Bulahdelah Upgrading the Pacific Highway … · Highway Environmental Impact Statement Technical Paper 13 ... Locked Bag 248 Rhodes NSW 2138 ... Technical Paper 13 Author: Fiona Court

Bulahdelah Upgrading the Pacific Highway Environmental Impact Statement Technical Paper 13 Social and Economic

November 2004

Roads and Traffic

Authority

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58L320A.050

13 - Social and Economic Final.doc

Bulahdelah – Upgrading the Pacific Highway Technical Paper 13

Author: Fiona Court

Reviewer: Bruce Lean

Approved by: Mark Keogh

Signed: ..................................................................................................................

Date: 1 November 2004

Contents Technical Paper 13

Contents

Page Number

1. Introduction 1-1 1.1 Overview 1-1 1.2 Clarification of Government Departments 1-2

2. Background Information 2-1 2.1 Study Method 2-1 2.2 Regional and Local Context 2-2

2.2.1 Regional 2-2 2.2.2 Local 2-2

2.3 Demographic Profile 2-3 2.3.1 Persons Living in Bulahdelah 2-3 2.3.2 Qualifications and Training 2-4 2.3.3 Household Income 2-4 2.3.4 Travel Needs 2-5 2.3.5 Council Planning 2-5

2.4 Economic Context 2-5 2.4.1 Economic History 2-5 2.4.2 The Local Community 2-7 2.4.3 Economic Future 2-8

2.5 Overview of Issues Raised During Community Consultation 2-8

3. Social Impacts 3-1 3.1 Types of Impacts 3-1

3.1.1 Broadscale Impacts 3-1 3.1.2 Local Scale Impacts 3-1

3.2 Social Impacts 3-2 3.2.1 Severance Effects 3-2 3.2.2 Traffic Circulation 3-2 3.2.3 Land Use Change 3-2

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3.2.4 Economic Impacts 3-3 3.2.5 Pedestrian and Cyclist Activity 3-3 3.2.6 Vehicular Access 3-4 3.2.7 Property Acquisition 3-4 3.2.8 Environmental Amenity 3-5

3.3 Community Health and Stress 3-5 3.4 Impact Mitigation 3-6

4. Economic Impacts 4-1 4.1 Economic Profile 4-1

4.1.1 Businesses Adjacent to the Highway 4-1 4.1.2 Employment Characteristics 4-2 4.1.3 Driver Behaviour 4-2 4.1.4 Business Survey 4-3 4.1.5 Future Economic Base 4-5

4.2 Economic Issues 4-6 4.2.1 Local Economy 4-6 4.2.2 Highway Business 4-6 4.2.3 The Service Town Role for Bulahdelah 4-7

4.3 Economic Impacts 4-10 4.3.1 Research on the Economic Impacts of Bypasses 4-10 4.3.2 Highway Traffic 4-24 4.3.3 Impact Mitigation 4-25

5. Analysis of Transport-related Costs and Benefits 5-1 5.1 Overview 5-1 5.2 Main Components of the Assessment 5-1

5.2.1 The Base Case 5-1 5.2.2 The Proposal Case 5-2 5.2.3 Time Savings 5-2 5.2.4 Vehicle Operating Cost Savings 5-2 5.2.5 Accident Cost Savings 5-2 5.2.6 Road User Delays During Construction 5-2 5.2.7 Other Effects 5-3

5.3 Economic Evaluation 5-3 5.3.1 Basic Parameters 5-3 5.3.2 Cost of the Proposal 5-3

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Contents Technical Paper 13

5.3.3 Proposal Benefits 5-4 5.3.4 Assessed Economic Impacts 5-4

6. Conclusions 6-1 6.1 Community Concerns 6-1 6.2 Managing Change 6-1 6.3 Heavy Vehicles 6-1 6.4 Short-term Social and Economic Impacts 6-2 6.5 Mitigation Measures 6-3 6.6 Economic Analysis 6-4

References R-1

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List of Tables Table 2.1: Main Employment Sectors 2-7 Table 4.1: Employment Numbers from Completed Surveys 4-3 Table 4.2: Place of Residence of Employees from Completed Surveys 4-4 Table 4.3 Objectives and Principles for Highway Service Centres 4-7 Table 4.4: Socioeconomic Impacts of Town Bypasses — NSW Examples 4-12 Table 4.5: Socioeconomic Impacts of Town Bypasses – United States Examples 4-19 Table 4.6: Total Estimated Traffic Volumes 4-24 Table 4.7: Vehicles Stopping 4-25 Table 5.1: Summary of Assessed Economic Impacts at 7 Percent Discount Rate 5-5 Table 5.2: Sensitivity Tests — Discount Rate Variation 5-5 Table 5.3: Sensitivity Tests — Construction Cost Variation 5-6

List of Figures Chapter 1 Introduction Figure 1.1 The Proposal

Appendices Appendix A Business Survey Form, July 2000 Appendix B Driver Survey Form, May 2000

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Introduction Technical Paper 13

1. Introduction

1.1 Overview

The Roads and Traffic Authority (RTA) proposes to upgrade the Pacific Highway at Bulahdelah. This technical paper forms part of an environmental impact statement (EIS) that defines the proposal and examines its impacts. The Environmental Impact Statement comprises a main volume and 16 technical papers, which are listed below:

Technical Paper 1 Community and Stakeholder Involvement

Technical Paper 2 Statutory Planning

Technical Paper 3 Need and Route Evaluation

Technical Paper 4 The Proposal

Technical Paper 5 Environmental Management Framework

Technical Paper 6 Traffic and Transport

Technical Paper 7 Ecological Assessment and Species Impact Statement

Technical Paper 8 Water

Technical Paper 9 Hazard and Risk

Technical Paper 10 Energy, Waste and Demand on Resources

Technical Paper 11 Topography, Geology and Soils

Technical Paper 12 Visual

Technical Paper 13 Social and Economic

Technical Paper 14 Noise and Vibration

Technical Paper 15 Air

Technical Paper 16 Heritage.

The proposed upgrade of the Pacific Highway at Bulahdelah consists of approximately 8.5 kilometres of dual carriageway that would connect the proposed Karuah to Bulahdelah upgrade to the south to the completed Bulahdelah to Coolongolook upgrade to the north.

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The preferred route, shown in Figure 1.1, passing generally to the east of Bulahdelah, was determined following consideration of a number of options in consultation with the local community and a range of other stakeholders. Connections to the existing highway would be via grade-separated interchanges to the south of Bulahdelah and at Lee Street at the northern end of the township.

The details of the proposal are provided in Technical Paper 4 — The Proposal.

The technical paper addresses the socioeconomic effects of the proposal of the Pacific Highway at Bulahdelah. It describes the current socioeconomic environment for the town of Bulahdelah and outlines the potential effects of the proposed route on the future social and economic environment.

This report is structured in three sections:

demographic and community issues;

social issues; and

economic issues.

The nature of socioeconomic assessment is generally qualitative, so broad conclusions should be drawn with caution. The range of impacts and benefits arising from the proposal are difficult to estimate. They depend in part on intangible qualities such as environmental amenity and community spirit. This paper aims to give an overview of issues arising from the proposal. Recommendations for mitigation measures are outlined to address the potential impacts.

The paper also includes the economic assessment of the proposal, using cost–benefit analysis to consider the costs and benefits to the community as a whole.

1.2 Clarification of Government Departments

NSW Department of Primary Industries commenced on 1 July 2004 as the amalgamation of:

NSW Fisheries;

State Forests of NSW;

NSW Agriculture; and

Mineral Resources.

The 16 technical papers supporting the Environment Impact Statement were written before this amalgamation occurred. All references to these government departments in the technical papers signify the NSW Department of Primary Industries.

Page 1-2 Roads and Traffic Authority 58L320A.050 13 - Social and Economic Final.doc

Figure 1.1 The Proposal

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Reconstructionof northboundcarriagewayAccess to

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Background Information Technical Paper 13

2. Background Information

2.1 Study Method

This study identifies the social effects of the proposal by:

identifying socioeconomic aspects;

providing a general statement on the types of impacts that can be expected;

holding interviews with property occupants affected by the proposal to identify their major issues;

making contact with representative organisations;

considering Local and State Government comments;

assessing local access issues;

identifying likely impacts on businesses and service facilities dependent on the highway;

examining route options in relation to expected impacts;

discussing mitigation measures; and

preparing appropriate mitigation measures.

Major research activities included were:

gaining an understanding of the Bulahdelah community (living and working environments) through the use of Australian Bureau of Statistics (ABS) data;

undertaking extensive community consultation to understand social issues;

undertaking a survey of town businesses to understand current and future income and employment characteristics;

undertaking a driver survey to understand stopping characteristics;

considering future scenarios for highway traffic stopping at Bulahdelah and town economic drivers;

considering government policy, such as the Pacific Highways Service Centre Directive;

considering Council’s strategic planning for opportunities and impacts; and

reviewing the assessment study results for air quality, noise and vibration, and visual impacts.



The technical paper focuses on economic and social impacts expected as a result of the completion of the proposal. A number of other papers, listed in Section 1 include the consideration of other environmental costs and benefits.

2.2 Regional and Local Context

2.2.1 Regional

Bulahdelah is located within the Great Lakes local government area, which is part of the Hunter Region of New South Wales, close to the Mid North Coast Region.

The population of the Hunter in 2001 was 563,586, a 4.3 percent growth since 1996. The total population of the Hunter in 1996 was 540,491, with a population growth of 5.2 percent since the 1991 Census (Australian Bureau of Statistics 2002(a)).

The population of the Mid North Coast in 2001 was 275,274 and represents an increase of 4.7 percent over the population in 1996. The total population at the 1996 Census was 262,985 with a population growth of 9.2 percent since the 1991 Census (Australian Bureau of Statistics 2002(a)).

In the 20 year period between 1981–2001, the average annual growth rate for the Mid North Coast region was 2.3 percent. The population of this region is projected to grow to 363,800 in 2031, an increase of 30 percent over the 30 years between 2001–2031 (Department of Infrastructure, Planning and Natural Resources 2004). This region is expected to experience the biggest gains through internal migration of any region in NSW. The annual growth rate between 2001–2006 is projected to be 1.1 percent. By 2026–2031, the annual growth rate is expected to have slowed to 0.7 percent (Department of Infrastructure, Planning and Natural Resources 2004).

2.2.2 Local

The Great Lakes area has a significant recreational status — one third is National Park and State Forest, while the remainder is made up of mountain ranges, rolling hills and valleys, a triple lake system, numerous rivers and some 27 beaches (Great Lakes Council 2000). The towns of Forster, Tuncurry and Taree are the employment, retail and service provider centres of the region. Tourism is a significant activity, particularly within the coastal towns.

Bulahdelah, regarded as the gateway to the Myall Lakes, is known as ‘meeting of the waters’ in the district’s Aboriginal language. It is surrounded by scenic forest and undulating river lands beneath the backdrop of Bulahdelah (Alum) Mountain. The local community appreciates the mountain for its heritage value, environmental significance and its contribution to the identity of the township. Thus the town displays a distinct urban form against a bushland backdrop to the north, east and west and the Myall River to the south. A small area of rural residential property merges into rural land at the south of the town.



Located approximately three hours drive from Sydney, Bulahdelah currently provides a journey rest and service point for many travellers. Various regional facilities and services are located in the town including a district hospital, schools, and police and emergency services. Local facilities include shops, such as post office, bakery, hardware and chemist. The town has a wide and busy main street which provides ample parking for drivers pulling over for food and fuel.

2.3 Demographic Profile

Three collector districts were identified from the Australian Bureau of Statistics, and census information was collated for the town of Bulahdelah and surrounding areas. Two collector districts cover the township of Bulahdelah and a third collector district extends from the edge of the township to the south (beyond the study area). However, the proportion of people within this demographic profile living outside the township is small and unlikely to influence the demographic characteristics of the study area.

2.3.1 Persons Living in Bulahdelah

The Great Lakes area is the second fastest growing local government area in NSW (Great Lakes Council 2000). This level of growth is not found in Bulahdelah. The last five years have seen Bulahdelah’s population increase by 101 to a total of 1,448 (Australian Bureau of Statistics 2001). In 1996, the population of Bulahdelah was 1,347 and there had been little change since 1986 (Australian Bureau of Statistics 1996 and 2001).

Most of Bulahdelah’s population live within the township, with only 287 people living in rural areas. The 2001 census results show that almost 50 percent of the population growth since 1996 has occurred in the rural part of the Bulahdelah study area. This increase in rural population could be due to:

the rezoning of land to accommodate rural residential development;

perceived economic and social benefits; and/or

tourism and visitor number increases.

Age

Bulahdelah has a similar age profile to NSW for children and youth between zero and 18 years of age (26.7 percent) and people aged between 18 and 65 (50.5 percent). However, the percentage of the population aged 65 and over is almost double the NSW average. This high proportion of older people in Bulahdelah follows a regional trend which is likely to continue due to the high number of retirees immigrating to the Great Lakes local government area (Great Lakes Council 2000).



Aboriginals and Torres Strait Islanders

In the 2001 census, 1.3 percent of people in the Bulahdelah area were of Aboriginal descent. This figure is almost half the percentage of the Aboriginal population recorded in the 1996 census (2.5 percent). In 1996 there were 33 Aboriginal people in the area, the majority (30) living in the township. In 2001 there were 19 Aboriginal people in the study area, of whom 13 lived in the township and six in the rural area. There were no Torres Strait Islanders recorded in Bulahdelah on the night of the 2001 Census.

Although the number of Aboriginal people has decreased in the Bulahdelah area from 1996 to 2001, the regional Aboriginal population has increased by 13.3 percent over the intercensal period. However, most Aboriginal and Torres Strait Islander people live in the townships and surrounding areas of Forster and Tuncurry (Great Lakes Council Social Plan 2000–2004).

State of Usual Residence on Census Night

On census night 2001, 120 persons were visiting the town of Bulahdelah. This represents 8.3 percent of total persons counted, larger than the NSW result of 4.8 percent visitors recorded on census evening.

2.3.2 Qualifications and Training

The number of people holding a Bachelor’s degree or higher in the Bulahdelah study area in 2001 was 56. This represents five percent of the Bulahdelah population, lower than the NSW average of 13.6 percent. This percentage is likely to be affected by the type of employment sectors in the township and the ages and number of the population.

2.3.3 Household Income

Bulahdelah, on average, is a middle household income area with 61 percent of households earning between $300 and $1,000 per week. This is significantly higher than the State average of 41 percent. Bulahdelah, however, has a low percentage of higher income households and a slightly higher percentage of lower income households than the State.

Almost two percent (1.9 percent) of households in Bulahdelah earn a low income of less than $300 per week, higher then the State average of 1.1 percent. NSW has a relatively high percentage of higher income earners, with 43 percent of households earning at or above $1,000 per week. Bulahdelah’s higher income households make up 23.4 percent, which is significantly lower than the State average. These figures are likely to be influenced by other characteristics including employment, age and population.



2.3.4 Travel Needs

Bulahdelah has very limited access to public transport, as there is no significant population demand or need to justify such provision within the township. Consequently, the census data shows that most people travel in private vehicles. However, there is public transport (school buses) to the town’s educational facilities.

According to the 2001 census, the car was the most frequently used mode of travel for work trips for Bulahdelah residents, with 50 percent opting to drive, which was slightly lower than NSW generally (55 percent). A relatively large number of people, (20 percent) walked to work compared to the Great Lakes (7.5 percent) and the NSW (two percent) figures. Pedestrian connectivity within the town is therefore an important issue.

2.3.5 Council Planning

Great Lakes Council prepared a Community Profile in 1999 to help prioritise community needs and define community projects. Because of Bulahdelah’s size and low population growth (less than one percent per annum) compared to other parts of the local government area, only one specific community project was recommended for the town. This project focused on community use of Department of Education facilities.

Subsequently, coordinated groups in the town are supporting progress issues, such as a one-stop shop Rural Transaction Centre that has opened in Bulahdelah town centre.

2.4 Economic Context

2.4.1 Economic History

Much of the information on the socioeconomic history of the town is derived from the Preliminary Forestry Social Impact Assessment prepared for the Resource and Conservation Assessment Council (RACAC) Socioeconomic Working Group (Manidis Roberts 1996) and 2001 census data.

Bulahdelah was established as a mining town in the early 1900s. Since then, the area has experienced a range of social and economic changes.

Before the 1950s, the main industry in the district was forestry. Secondary industries were dairying and alum mining, both of which declined in the 1950s. More recent economic diversification included beef cattle production; health, education and other public services; and a small amount of tourism. The health, education and social service sector continued to increase until the 1980s, when State and Federal Government rationalisation of services meant many offices were closed or relocated.



Quotas and other restrictions on timber extraction imposed economic and employment pressures during the 1990s. Bulahdelah’s unemployment levels in 1991 increased to 6.3 percent, although they were significantly lower than the State level of 11 percent. The full effect of major changes in traditional industries such as timber and farming were reflected in the 1996 figures — unemployment in Great Lakes was 15.4 percent, and in Bulahdelah unemployment rose to 8.1 percent, similar to the State level of 7.7 percent. Although Bulahdelah’s unemployment rate reflected the State average at this time, it failed to follow the State’s improvement in 2001 to 7.2 percent, and stabilised at 8.1 percent.

Overall employment statistics in agriculture, forestry, fishing and hunting decreased by 11.4 percent between 1986 and 1991. Census data from 1991 indicate that 15.7 percent (72 of a total population of 1,092) of employed people in Bulahdelah were directly employed in the timber industry. By 1996, this population had dropped to 13.9 percent (65 people).

Overall, the Great Lakes local government area has seen decreasing unemployment. However, Council regards unemployment as a major concern for the area, given that the level is higher than the State average. The relatively high level of unemployment has been attributed to the limited number of large employers in the area, and the last decade’s major changes in traditional industries such as timber and farming. Most employment is in the retail and hospitality industries, which rely on the tourist trade. Council perceives that high unemployment has social and financial consequences for the community. Many young people are relocating to further their studies, gain apprenticeships and find employment opportunities. Those who remain in the area have little opportunity to gain meaningful long-term employment (Great Lakes Council 2000). As younger generations move away, older people lose a primary source of support and care and a decline in the number of people able to provide important local volunteer services. This is likely to affect the community socially as young people are an important part of the vitality and functioning of the town.

Bulahdelah’s employment rate has not followed the Great Lakes trend but has been affected by the changes in traditional industries. The employment environment in the township can be described as uncertain. This could be due to similar factors experienced by the Great Lakes area as a whole — no new or large sources of employment in the township, lack of higher educational facilities, no significant new development or increase in the tourist trade.

The nature of work undertaken by residents of Bulahdelah has shifted from manual labour to service activities and management. This is shown in Table 2.1.



Table 2.1: Main Employment Sectors

Industry Employed Persons

Agriculture, Forestry and Fishing 36

Mining 6

Manufacturing 44

Electricity, Gas and Water Supply 3

Construction 12

Wholesale Trade 17

Retail Trade 75

Accommodation, Cafes and Restaurants 42

Transport and Storage 24

Communication Services 9

Finance and Insurance 6

Property and Business Services 18

Government Administration and Defence 21

Education 26

Health and Community Services 50

Cultural and Recreational Services 9

Personal and Other Services 6

Non-classifiable economic units 3

Not stated 12

Total 419

Source: Australian Bureau of Statistics 2002b Basic Community Profiles Table B26 2001 Census of Population and Housing

2.4.2 The Local Community

Today Bulahdelah has an active community, which has initiated and maintained many local facilities, including:

the Bulahdelah Showground;

the Bulahdelah Bowling Club;



Bulahdelah Ambulance Service;

Great Lakes Nursing Home;

the Rural Transaction Centre (established 2001); and

the Bulahdelah Volunteer Rescue Association.

Much of this infrastructure has been built using community-raised funds. Projects such as these indicate the high level of social networking and concern within the community regarding the future of Bulahdelah township. The regular flood regime in the valley also provides a reason for strong community networking and community planning. Consultations for the proposal found a similar strong level of community networking and enthusiasm to support or protect the town. A number of groups commenced, and existing groups actively debated upgrade issues.

2.4.3 Economic Future

Consultations for the Forestry Social Impact Assessment indicated that the ‘community [were] wary of the appropriateness and effectiveness of a number of alternate industries suggested as saviours, for example, ecotourism’ (Manidis Roberts Consultants 1996). Consultations for the highway upgrade (2000 to 2003) found a similar response in many respondents. However, ecotourism is seen by others as an important part of the economic future of Bulahdelah.

Given the dependence of many businesses on the highway, the growth in traffic is of relevance. The traffic volume in 2002 was 11,900 vehicles per day at the Myall River Bridge south of Bulahdelah. The projected increases in traffic volumes are:

15,400 vehicles per day in 2008;

19,800 vehicles per day in 2018; and

24,100 vehicles per day in 2028.

These volumes indicate the potential for growth in driver expenditure in Bulahdelah which would increase employment opportunities in businesses providing services to highway traffic.

2.5 Overview of Issues Raised During Community Consultation

Issues of concern to local residents and the wider community included the following (see Technical Paper 1 — Community and Stakeholder Involvement for a full description):

socioeconomic issues — the potential loss of employment along the Pacific Highway when the town centre is bypassed. Businesses in Bulahdelah such as service stations, motels and cafes indicate that they rely heavily on through traffic;



improving the image of the town — the negative impact on businesses resulting from a town centre bypass could be offset by a future increase in tourism-related businesses and activities. The town would become safer, a quiet resting-place for travellers, still offering the same high level of services. This ‘improved Bulahdelah’ image could be promoted by the business sector;

visual connections — the proposal should provide highway drivers with a view of the town from the new highway, to keep a ‘town presence’ on the Pacific Highway. This visual ‘trigger’ may provide an incentive for drivers to stop and use the services and facilities within the town;

social and heritage issues — Bulahdelah (Alum) Mountain and the former courthouse at Bulahdelah have social and heritage value. The former courthouse is listed on the Register of the National Estate. The area of the Bulahdelah (Alum) Mountain above the highway is being registered by the Department of Environment and Conservation (formerly NSW National Parks and Wildlife Service) as an Aboriginal Place. Bulahdelah (Alum) Mountain is highly valued for the sense of place it provides to the town. Concerns relate to the potential to reduce the value of that sense of place; and

recreation issues — the mountain is used for hiking, abseiling and educational purposes. There is concern regarding future access to the mountain after the project is completed.

Regional issues raised included:

the highway should be free flowing and be designed to ensure that bottlenecks do not occur;

safety for the travelling public should be a priority; and

the highway should not cause serious or irreversible environmental damage.


Social Impacts Technical Paper 13

3. Social Impacts

3.1 Types of Impacts

3.1.1 Broadscale Impacts

Broadscale social issues that can arise in relocating a highway are:

severance — this relates to impediments to connections between different areas within the town and/or different regions in the area;

traffic — traffic circulation issues are important both within the town and for highway travellers passing through the area;

land use change — changing land uses within a region can have economic, environmental and social impacts; and

economic — the economic impacts of constructing a new highway relate to the immediate township affected. They also affect the surrounding region, through effects on increased regional accessibility.

These issues are discussed in Section 3.2.

3.1.2 Local Scale Impacts

Issues relating to the proposal affecting the local community are:

pedestrian and cyclist access — relocation of the highway and alteration of traffic conditions would have implications for both pedestrians and cyclists in the local area;

vehicular access — vehicular access to different areas of town and to the highway would change. In addition, a number of properties would require new local access roads or arrangements;

property acquisition — the proposal would require property acquisition. Impacts on properties affected by partial acquisition relate to their proximity to the proposal and associated visual impacts, their ability to maintain agricultural productivity, traffic noise, vibration impacts and changed access arrangements. Full acquisition would require relocation of property residents, which can be difficult to arrange acceptably;

environmental amenity — environmental amenity relates to the physical or material comfort provided to residents and others by their surrounding environment. Levels of environmental amenity can be affected by noise, vibration, visual and air pollution impacts; and



community health and stress — this relates to changes in the residential amenity of those located close to the highway. Noise impacts are highly individual in nature and can be accompanied by psychological impacts.

These issues are discussed in Section 3.2.

3.2 Social Impacts

3.2.1 Severance Effects

At present, the Pacific Highway route through the centre of Bulahdelah produces significant severance impacts. One side of the town is physically separated from the other by fast-moving traffic, including heavy vehicles. The town has a historic connection with, and functions around, the Pacific Highway. Although the highway has a severing effect on the town, many residents accept this because of the economic benefits that highway traffic provides. With projected increases in Pacific Highway traffic, the severance effects will increase.

It is anticipated that rerouting the highway would increase the ability for, and amount of, community interaction. Schools, shops and residences would no longer be separated by high traffic volumes. This change also has the potential to alter Bulahdelah’s tourism focus from that of a drive-through town to a welcoming, community-focused tourist destination in its own right.

Visibly, historically and spiritually, the town has a connection to Bulahdelah (Alum) Mountain. The recreation areas in the mountain and surrounding bushland are regularly used by schools and individuals. Route selection for the proposal has been mindful of the need to provide linkages for vehicles, people and bicycles. Two pedestrian/bike links (one overbridge, one underbridge) and a link along Bombah Point Road are provided next to the town. Pedestrian/bike access across the highway is also provided at the southern and northern interchanges. Possible severing effects of a new highway would include loss of immediate access (because specific pedestrian overbridges must be used to access the mountain area) and loss of a sense of immediate ‘connection’. That is, for some residents, the highway places a barrier between them and the mountain that can only be traversed at specific locations.

3.2.2 Traffic Circulation

Traffic circulation patterns within the town are currently affected by the existing highway, including signalised intersections, reduced highway speeds within the town, a continuous concrete barrier in the kerb and median near Meade Street, and left and right turning bays. Rerouting the highway to bypass the town is expected to significantly improve local traffic circulation and parking, both in the town and along the current highway.

3.2.3 Land Use Change

The key land use changes associated with the proposal relate to acquisition, severance and the possible redevelopment of land.



The proposal provides the opportunity for Great Lakes Council to define the township of Bulahdelah as a highway service town in their Local Environmental Plan. If this proceeds, large land use changes (for a service centre development) would be restricted at the interchange points at Bulahdelah. Great Lakes Council has expressed its support for Bulahdelah becoming a service town and does not support retail or commercial development on the proposal outside the town area. A recent Great Lakes Highway Service Centre Strategy (Ove Arup 2004) commissioned by Great Lakes Council concluded that Bulahdelah should be considered a service town, and that the Local Environmental Plan be amended so the that development of service centres outside the Bulahdelah area is ‘not permissible’.

3.2.4 Economic Impacts

The extent to which the travelling public uses Bulahdelah to purchase services will be influenced by the proximity of the interchange points to the town centre, the location and type of signage, the visibility of the town from the highway and the level to which the town can become a traffic or visitor ‘attractor’ with desirable services.

Concerns relate to whether or not enhanced amenity within Bulahdelah resulting from the proposal will attract travellers to take advantage of town services. Changes in town centre land uses (for example, a decline in the number of service stations) due to adverse economic impacts could be expected if travellers bypass the town.

These issues are more fully explored in Section 4.

3.2.5 Pedestrian and Cyclist Activity

The 2001 census indicates that a relatively large number of people, (14 percent) walk to work compared to the NSW average of 4.2 percent. Pedestrian connectivity within the town is therefore important and was an input to selecting the preferred option over through-town options.

Impacts are highest where the proposal crosses pedestrian and cycle flow paths. Key recreational pedestrian paths affected would be those between the town and Bulahdelah (Alum) Mountain. Pedestrian connectivity would be maintained by building an overpass and underpass at two locations that coincide with existing footpath links. Other pedestrian and cyclist flow paths are those along Bombah Point Road and from the town to the Bulahdelah Golf Course. Pedestrian and cyclist access has been maintained or enhanced through inclusion of footpaths at the Bombah Point Road bridge and the northern interchange.

In the rural and bushland areas to the south and north of Bulahdelah respectively, where grade-separated structures are not viable because of very low pedestrian volumes, connectivity is generally reduced by the highway as it would be fenced on both sides. However, given the very low pedestrian numbers in these areas, there would be a low level of impact. Access can be gained through the southern and northern interchanges and the underpass to the golf course.



The proposal is expected to have positive impacts on pedestrian and cyclist amenity throughout the town as its route would be entirely outside the town urban area. Pedestrian and cyclist activity in the town area would be expected to improve as a result of reduced traffic volumes. Connectivity would be improved by the removal of the existing highway’s median barriers before handing the road back to Council. Improved safety conditions along this road will benefit town residents and school children. However, it is envisaged the road will still be relatively busy and safe crossing points should be provided.

3.2.6 Vehicular Access

The proposal would be a limited-access highway. Access to the highway would only be possible at controlled points at the southern and northern interchanges and at the Wootten Road intersection. Local roads would be provided for the Bulahdelah Golf Club, for the Bulahdelah tip and for residents. Booral Road residents would have a relatively small additional travel distance of approximately 1.5 kilometres when travelling to the south (accessing the highway at the southern interchange). Similarly, visitors to the golf club from the north would exit at the northern interchange and backtrack some 650 metres to the club.

Vehicle access would be maintained to all properties. Where access is not possible or is not economically feasible, land would be acquired and boundary adjustments made.

3.2.7 Property Acquisition

Property acquisition can have two types of impacts.

First, for those people whose properties are fully acquired, the stress and annoyance of relocating may be high. Finding suitable and affordable ‘replacement’ housing may also be difficult.

Second, partial property acquisition affects the quality of life for those located close to the highway. The impacts of partial property acquisition that bring a highway closer to residences or sensitive land uses may be high.

The proposal would directly affect a mix of rural, semi-rural and forestry land, and therefore would result in minimal residential property acquisition. Of the five route options considered, the proposal requires the least number of property acquisitions.

Approximately 16 private properties, as well as Crown and Council land, are expected to be affected. Approximately three properties would be divided in two or have a sizeable area of land excised.



3.2.8 Environmental Amenity

Environmental amenity is important for residences and places where people gather. The level of amenity is influenced by factors such as noise, vibration, air quality and visual impacts. Environments become unpleasant where these impacts are high. The environmental amenity of Bulahdelah is important and may be reflected in the relatively high number of drivers that stop in Bulahdelah for rest, food and fuel. Town bypass studies have concluded that the economic effects of a highway bypass are in part linked to the environmental benefits gained in the village centre — for example, improved air quality, reduced traffic noise and improved pedestrian amenity (Bureau of Transport and Communications Economics 1994).

The town centre at the southern end of Stroud Street, with the hotel (and off-street parking), and food and other retail outlets is considered — despite existing highway traffic—to have a level of amenity sufficient to warrant travellers finding the area desirable to stop and revive. The river and grassed banks add to the atmosphere. Members of the community have identified the potential improvement to the town's amenity, for both residents and visitors, due to removal of heavy vehicles and other traffic from the town as a key benefit of the proposal.

St Joseph’s Primary School and Bulahdelah Central School have requested that their amenity be protected through noise mitigation measures. Some residents have expressed concern about potential air pollution impacts on students at these schools. The proposal is further away from schools than the existing highway, reducing noise and air quality impacts. The Bulahdelah Central School, currently approximately 20 metres upslope from the Pacific Highway, will be approximately 280 metres downslope from the proposal (from the highway pavement to the MacKenzie Street boundary). The distance from the proposal to the St Joseph’s Primary School eastern boundary would be approximately 180 metres. It would be approximately 220 metres to new classrooms currently being proposed.

Concern was expressed about construction and operation noise reflecting off Bulahdelah (Alum) Mountain, resulting in increased impacts for residents closer to the highway. The impacts of noise on community health and on the behaviour of residents were identified as a concern by some residents.

The issues relating to noise impacts are addressed in Technical Paper 14 — Noise and Vibration and air quality impacts are addressed in Technical Paper 15 — Air.

3.3 Community Health and Stress

The proposal would result in a small number of existing residents being closer to traffic passing through Bulahdelah than they were previously. Some people have indicated that this change in circumstances could have an effect on their emotional health. Submissions and discussions with the project team have also identified personal anxiety about the project, the loss of flora and fauna (including rare or threatened species) and the loss of connectivity between the town’s urban area and Bulahdelah (Alum) Mountain. There is also anxiety about the long-term economic viability of the town. Some residents have already begun changing their life plans



and are prepared to relocate, start new businesses or amend their current living arrangements.

The proposal would also be expected to benefit community health and reduce stress by removing current traffic effects from the centre of town.

3.4 Impact Mitigation

Measures aimed at reducing potential social and economic effects on Bulahdelah would include:

highway signage identifying the town as a desirable place to stop and revive;

compliance of the design of the underpasses or overpasses with Australian Standard 1428 (AS1428) Design for Access and Mobility in accordance with the Disability Discrimination Act 1993;

provision of appropriate measures to address noise impacts for residents and sensitive receivers where these exceed Department of Environment and Conservation (formerly Environment Protection Authority) noise criteria; and

urban improvement works being identified as part of the highway handover package, including:

► some pavement rehabilitation and re-sealing;

► removal of the median barrier near Meade Street;

► minor culvert and bridge works, where necessary;

► relocation of rest area toilet facilities adjoining the golf course to a suitable location in Bulahdelah;

► improved vehicular and pedestrian access to the public reserve south-west of existing Myall River bridge;

► provision of limited on-street heavy vehicle parking facilities on the existing highway near central service stations; and

► a streetscape scheme for the existing highway, including some selective landscaping or tree planting and minor traffic-calming work.


Economic Impacts Technical Paper 13

4. Economic Impacts

4.1 Economic Profile

4.1.1 Businesses Adjacent to the Highway

There are approximately 70 businesses operating in the Bulahdelah area. This number is not definitive as it does not include rural properties that could be classified as businesses or businesses run from home. Approximately 30 businesses are located adjacent to the current Pacific Highway. The principal types of businesses in Bulahdelah, based on the number of establishments surveyed, include:

petrol stations and motor vehicle repairs — four service stations with a motor vehicle repair workshop attached to one. The service stations in particular are heavily reliant on passing trade;

food stores — four outlets predominantly targeting highway service trade, tourists and local convenience demand. It has been indicated in resident discussions that most residents of Bulahdelah would do their large weekly or fortnightly shopping in Forster;

restaurants, cafes, takeaways — three venues in the town centre, as well as the service station road houses, motels and the hotel on Stroud Street providing eat-in facilities;

service industries — 10 service-related businesses, including two real estate agents, chemist, newsagency, clothing store, hairdresser, credit union and the Myall River Produce store;

tourist accommodation — four motels, a hotel and a camping/caravan park. There is also bed-and-breakfast style accommodation within and near the town;

tourism-related businesses — two houseboat businesses on the Myall River with several houseboats attached to each. There are other small tourism and recreation-related businesses, most of which are advertised in the information centre; and

clubs and hotels — a bowling club, a golf club and the hotel.

Other services near the existing highway include the Bulahdelah Information Centre, two schools and a church.



4.1.2 Employment Characteristics

The 2001 unemployment rate in the Bulahdelah study area was 8.1 percent, higher than the NSW unemployment rate of 7.2 percent.

Approximately 30 percent of the employed workforce is in professional and managerial occupations. Approximately 42 percent of the employed workforce is in tradesperson, production and transport fields and 26 percent are in clerical and service positions.

Various reports and anecdotal evidence suggest an ongoing decline in professional jobs in Bulahdelah. Throughout the last two decades, State and Federal Government initiatives to rationalise the provision of social services and the local government relocation to Forster led to a ‘brain drain’ from the town (Manidis Roberts 1996).

The ANZ Bank on Stroud Street closed in December 1996 to merge with the Raymond Terrace branch. The Holiday Coast Credit Union commenced trading in Bulahdelah soon after. The Bulahdelah Hospital and Great Lakes Nursing Home (at Bulahdelah) employ a relatively large number of skilled professionals.

4.1.3 Driver Behaviour

Driver surveys were undertaken in 2000. They determined that the proportion of regional drivers on the Pacific Highway who stop at Bulahdelah is approximately 8–10 percent of total highway traffic (refer to Technical Paper 6 — Traffic and Transport).

Driver surveys provide a perspective on the desirability of Bulahdelah as a place for regional travellers to stop. Surveys were conducted at the service stations on the Pacific Highway and at the Stroud Street shopping centre. A total of 524 responses for a typical weekday and 163 for a typical weekend during non-holiday period were analysed. In summary, for the combined weekday and weekend responses:

45 percent of trips originated from the north of Bulahdelah;

32 percent of trips originated from the south of Bulahdelah, with Sydney being the most common southern origin;

pleasure was the most common purpose for travelling and accounts for about 42 percent of responses;

37 percent of trips were business related; and

72 percent of survey respondents stated that Bulahdelah was a regular stop.

The main reason for stopping in Bulahdelah was for fuel (44 percent of drivers). However, 16 percent nominated fuel and rest and 32 percent rest as the reason for stopping. Therefore, Bulahdelah offers a high proportion of drivers an appealing place to rest and revive. This was confirmed by town business owners, who felt that Bulahdelah was considered an attractive place for families travelling long distances to pull off the highway, have a break and buy fuel.



The attraction of Bulahdelah as a stopping place is further confirmed by the finding that 75 percent of weekday drivers and 65 percent of weekend drivers stop regularly in Bulahdelah. Some drivers who offered comments about the proposal were concerned they could lose immediate access to good services. As a result of these and other consultations, the proposal has been located close to the town with easy entry and exit points.

4.1.4 Business Survey

A business survey (see Appendix A) was sent in July 2000 to 47 businesses in Bulahdelah to gain an understanding of employment trends, the various levels of reliance on trade from passing traffic and the likely future plans of these business owners. Completed surveys were received from 28 businesses.

Respondents included the majority of businesses along the Pacific Highway and Stroud Street who were most likely to be directly affected by the proposal.

Employment

The 28 businesses responding to the July 2000 survey employed an average of nine people per business. These businesses stated they employed a total of 256 people. The majority of persons (157 people or 61 percent) identified by the surveys were employed on a casual basis and only 27 percent were in full time employment.

More women than men were employed in these businesses, the majority in casual work positions, as shown in Table 4.1.

Table 4.1: Employment Numbers from Completed Surveys

Male Female Not Stated Total Percent

Full time 45 23 68 27

Part time 8 23 31 12

Casual 36 91 301 157 61

Total Percent

89 35

137 53

30 12

256 100

100

Note 1. The gender of 30 casual employees was not stated on a survey response.

Dependence on Highway Traffic

The results of the survey suggest that there is a high level of dependence on highway traffic through both direct and indirect linkages. Direct linkages include the three service stations, take away food outlets, the four motels and the Caravan Park. The surveys indicate Bulahdelah has a high level of business and employment dependence on the Pacific Highway:

16 businesses have direct access to the Pacific Highway;



17 businesses indicated 50 percent or more of their business is derived from the highway;

11 businesses considered that they were highly reliant on the highway, with more than 70 percent of their trade being highway-related;

seven businesses considered that they were substantially reliant on the highway, which provides between 40 and 70 percent of their trade;

of the businesses surveyed, 79 percent of employees work for businesses which indicate they are substantially reliant on the highway (that is, more than 40 percent of trade is derived from the highway); and

the majority of jobs (61 percent) in those businesses that responded are casual positions. Casual employment provides flexibility for families, employing young people, and men and women who are also family carers. Of these casual positions, 89 percent are in businesses substantially reliant on the highway for business.

Examples of indirect linkages to the highway include those businesses that provide goods or services to businesses with a direct link to the highway, and services to those employees who are mostly Bulahdelah residents, as shown in Table 4.2.

Table 4.2: Place of Residence of Employees from Completed Surveys

Number Percentage of Employees

Employees from Bulahdelah 204 80

Employees in the local area 46 18

Employees in other areas 6 2

Total 256 100

Business Duration, Turnover and Investment

A majority (75 percent) of businesses surveyed indicated they had been operating in Bulahdelah for more than 10 years. Eighty-one percent indicated that they owned their business. Of the businesses surveyed:

24 percent stated the value of their total annual sales was between $50,000 and $250,000;

32 percent stated the value of their total annual sales was between $250,000 and $500,000;

16 percent stated the value of their total annual sales was between $500,000 and $1 million; and

28 percent stated the value of their total annual sales was greater than $1 million.



A number of reasons were provided for setting up a business in Bulahdelah. The most common of these related to a perceived high level of demand for services and purchasing an existing viable business with a proven track record. The businesses that responded have invested a combined total of $4.79 million over the five years preceding the survey and intend to invest a further $5.04 million in the next five years.

Given the projected increase in highway traffic over the next 20 years, it is possible that the expected future capital investment in the town centre would be higher if not for the uncertainty being created by the highway upgrade proposal. Business owners indicate that highway upgrade proposals have been around for a considerable time and they have been reluctant to invest in recent years given doubt over the future highway location. Some responded that they did not expect to invest at all if the town is to be bypassed. Their concerns related to their distance from a bypass, what facilities would be developed and whether they would be effective in encouraging drivers to stop in Bulahdelah.

4.1.5 Future Economic Base

Bulahdelah has a high level of economic and employment dependence on the existing highway. The location of the town on the Pacific Highway approximately two and a half hours driving time from Sydney has assisted the development of its highway-servicing role. The businesses that responded to the survey indicated a preference for a highway option that maintains Bulahdelah’s role as a service town and driver reviver location.

The town also contains a number of business activities not highway related. These include manufacturing and timber milling services to the wider region and services and tradesmen servicing the local population.

Tourism NSW data show that the Great Lakes area has seen an increase in annual visitor nights from 1,782,000 in 1994/1995 to 1,956,000 in 1996/1997 (Great Lakes Shire Council 1999). This compares favourably to the Greater Taree area (1,628,000 visitor nights in 1996/1997). Recent media reporting notes that the Great Lakes is increasing its visitor levels (Myall Coast News Of The Area 2001).

An increase in the region's tourism role is supported by Great Lakes Council. Bulahdelah is not currently considered to be a major tourist destination. There is some discussion about whether Bulahdelah has strong enough local features to encourage a significant local tourism trade. Alternatively, many believe that the town currently lacks the facilities and tourism development strategies to capture its full tourist income potential. It is located at an important turn-off to the Great Lakes area, has a unique natural resource in Bulahdelah (Alum) Mountain and has an attractive main street. These features, together with an expanding number of bed-and-breakfast facilities in the district could result in the town increasing its tourism-derived income. A notable example of a tourism-related business with large capital investment is the houseboat hire business on the Myall River.



Taree to the north, although recently bypassed, is a recognised tourist destination and has capitalised on the positive effects of removing the highway from its centre. The town continues to work on this improvement with activities like beautification programs. However, being a regional centre, Taree has a large enough economic base to survive being bypassed. People within Bulahdelah see highway-related traffic and tourism as the main future economic opportunity for the town.

4.2 Economic Issues

4.2.1 Local Economy

The local economy of Bulahdelah has been in decline for a number of years. The additional effect of a reduction in highway-related business could have consequences for the local economy. However, even a reduction in the percentage of travellers stopping at Bulahdelah in the short term would be made up as a result of the increasing volume of traffic predicted to use the highway. The relocation of through traffic from within the town to the bypass adjacent to its eastern perimeter will also bring changes which would benefit the environment of the central area. With improvements to in-town noise and general amenity, and appropriate investment in new town centre facilities and infrastructure, drivers from the highway may be encouraged to stop in Bulahdelah for services. With strong traffic growth predicted over the next 10 years, improvements to local services could result in economic growth and a subsequent increase in local jobs.

There is, however, concern that vital local services that employ local people, such as the Bulahdelah Hospital, doctor and schools, could be reduced as a result of a reduction in highway-related employment. Even though these may not be completely lost, service levels could be reduced.

4.2.2 Highway Business

A major concern expressed by the local community is the potential loss of local employment should the town centre be bypassed. Businesses in Bulahdelah such as service stations, motels and cafes rely heavily on through traffic. Driver surveys (discussed in Section 4.1.3) showed approximately eight to 10 percent of drivers pull over in Bulahdelah, or approximately 1,190 vehicles per day in 2002. With a conservative assumption of $20 per vehicle expenditure (food and fuel) this represents approximately $8.6 million in annual turnover revenue to the town. There is concern that with a complete bypass, many businesses would not be able to sustain their current level of operations.

The other key issue is that of spontaneous expenditure—the decision to buy food or stay overnight which is not made until driving past a place that appeals to car occupants. The proportion of spending that is ‘spontaneous’ was not quantified in driver surveys, but in discussion, some businesses indicated that it is an extremely important part of their income base. For example, highway hotels and motels indicate that up to 70 percent of clientele do not book ahead for their overnight accommodation. Average expenditure is $70 per night for approximately 150 beds in



Bulahdelah in four motels adjacent to the highway. It is felt by some that the town is too small to survive without the highway as a major through road.

The loss in employment opportunities for those young people who choose to stay in the town would mean they would have to relocate to find work or remain unemployed. One discussion noted that vandalism by young people of local public buildings is low and one possible reason is that part-time or casual work has long been available for many young people in shops servicing the highway.

Conversely, there is a school of thought among community members that, while a bypass option would have an impact on the businesses catering for highway traffic, the negative impact on these businesses would be offset by a future increase in tourist-related businesses. The town could become a quiet resting-place for travellers, giving the local business sector an opportunity to promote the town and tourism features. The number of regional travellers is likely to increase. It is reported that Bulahdelah (Alum) Mountain is developing as a tourist attraction and walking area. It has unique geological, flora and fauna features, along with spectacular views from the lookouts.

4.2.3 The Service Town Role for Bulahdelah

Objectives and principles have been established by the NSW State Government for service centres along the Pacific Highway, as part of a direction under Section 117(2) of the Environmental Planning and Assessment Act 1979. This Direction requires Councils along the Pacific Highway to consider the objectives of the Planning Policy on Commercial/Retail Development along the Pacific Highway from the Queensland Border to Hexham. These are outlined in Table 4.3.

Table 4.3 Objectives and Principles for Highway Service Centres

Objectives Principles

Objective 1: To recognise that the Pacific Highway’s function is to operate as the North Coast’s primary inter- and intra-regional road traffic route. That is, the purpose of the Pacific Highway is regional transport, not retailing.

Principle 1: Within towns, new commercial or retail development should not spread along the highway. Rather, it should be concentrated within distinct commercial centres.

Objective 2: To recognise and protect the very large public expenditure being invested in the Pacific Highway; specifically, to limit the need for future public expenditure (for example, further bypasses) to overcome new ribbon development.

Principle 2: Notwithstanding Principle 1, some commercial activities may not always be suited within a town’s commercial centre (for example, short-stay accommodation, entertainment, tourism developments, clubs, petrol stations, vehicle sales, building materials/products sales or showrooms, other bulky goods retailing, wholesaling). These uses should be located ‘within town’.


Bulahdelah – Upgrading the Pacific Highway Technical Paper 13 Table 4.3 (continued)


Objective 3: To prevent, and as opportunities arise to reverse, the losses in highway safety and highway efficiency caused by incremental additions of out-of-town or town fringe retail or commercial development fronting the highway.

Principle 3: Where a commercial or retail outlet or area is established with frontage to the Pacific Highway within a town, special effort should be made to protect or enhance the safety and efficiency of the highway.

Objective 4: To provide for the food, vehicle service and rest needs of travellers on the highway.

Principle 4: In out-of-town locations (except as provided in Principle 6), new commercial or retail development should not be established near the Pacific Highway if this proximity would be inconsistent with Objectives 1, 2, 3 or 6 of this Direction.

Objective 5: To achieve Objective 4 in such a way that the role of highway service centres is differentiated from the role of commercial areas in towns.

Principle 5: Retail or commercial uses which become bypassed by the Pacific Highway should not be relocated onto the new bypass, except as provided in Principle 6.

Objective 6: To prevent retail or commercial foci of towns from shifting from town centre areas (where they can best serve the populations of the towns) to highway-oriented sites.

Principle 6 — Acceptance of the need for highway service centres: Highway service centres should be permitted to establish beside the Pacific Highway, subject to Principles 7 to 9.

Principle 7 — Location criteria for highway service centres: Highway service centres will be limited in distribution. They should be strategically located to serve, but not to over serve, the travelling public. They should:

be located as near as possible to an existing town that has been bypassed;

be spaced no closer than 24 kilometres from another highway service centre or a town through which the highway still passes; and

be limited to one highway service centre to serve both directions of traffic, or one highway service centre per side of the highway, for each segment identified as potentially appropriate for a highway service centre. If there is a need for one highway service centre each side of the highway, they should be located either opposite each other, or staggered such that the highway service centre on the driver’s approach is viewed first and is no more than 500 metres from the other.


Economic Impacts Technical Paper 13 Table 4.3 (continued)


Principle 8 — Uses allowed in a highway service centre: The only uses which will be allowed in highway service centres are:

service stations (which may supply convenience goods catering for the needs of the travelling public);

emergency vehicle repairs;

bus/coach terminal facilities (but not depots);

restaurant facilities (preferably both sit-down and fast food);

toilet/shower facilities;

tourist information (but not commercial tourist facilities);

telephones;

rest areas (including seating, barbecue and play areas); and

adequate parking for cars, buses and trucks.

Principle 9 — Access and safety at highway service centres: Access to and from highway service centres should be carefully designed such that highway travel is not slowed or made more dangerous.

Principle 10: Where existing commercial or retail development does not conform to the Principles listed above, whether or not it performs highway service centre functions, it should not expand beyond its current level of service.

Source: Minister for Urban Affairs and Planning Direction No. S28 under Section 117(2) of the Environment Protection and Assessment Act. Commercial/Retail Development along the Pacific Highway, North Coast, from the Queensland border to Hexham.

Applying the principles set out in the Minister's Direction, the aim is to locate centres as near as practicable to a town that has been bypassed or to ensure appropriate access to the town be provided to facilitate its development as a service town. The Minister’s Direction also indicates that service centres or towns should be spaced at intervals of no less than 24 kilometres.

A strategy for developing service centres on the Pacific Highway in the Great Lakes Council area is currently being developed by Great Lakes Council (Ove Arup 2004). This strategy will be used as a basis to amend the Great Lakes Local Environmental Plan.



Some features of this strategy include:

service centre facilities currently exist at Raymond Terrace;

Karuah is to be considered a service town by Council;

Bulahdelah is to be considered a service town and as such, service centres would be prohibited on the highway within at least 24 kilometres either side of Bulahdelah;

Coolongolook is to be maintained as a service town (30 kilometres north of Bulahdelah); and

Nabiac is to be maintained as a service town (17 kilometres north of Coolongolook and 25 kilometres south of Taree).

A service centre is supported by Council at the Taree turn-off next to the Pacific Highway. A development proposal for this site has not been put forward.

A development application for a service centre along the highway would be made to Great Lakes Council, who would then assess this against their strategy. If the development is for land considered not permissible for this use, there are no appeal provisions. If the land use is permissible, Council would refer to the RTA for highway access and safety issues. Direct access to the Pacific Highway would require the consent of the RTA.

A proposed service centre to the north of Karuah is currently the subject of a development application to Council. Karuah is 28 kilometres north of Raymond Terrace and is to be bypassed several kilometres to the west of the town. The environmental impact statement for the Karuah Upgrade (Ove Arup 1999) notes the option for a service centre to be located four kilometres north of the town. This was expected to have both positive and negative economic impacts on the township.

4.3 Economic Impacts

4.3.1 Research on the Economic Impacts of Bypasses

The economic impacts of town bypasses have been studied across New South Wales, especially along the Hume Highway and Princes Highway corridors. Almghawech and Beattie (1998) note the ‘uncertainty of prediction and the limited methods available make it difficult to provide a definitive statement about the impact of a bypass on highway-oriented businesses’.

The Bureau of Transport and Communications Economics (1994) studied Berrima and Mittagong to assess the effects of a bypass on a small town. The study noted that:

economic impacts are closely linked to environmental effects and that ‘about 80 percent of tourists to Berrima…[surveyed]…commented that the reduction in heavy vehicle traffic had made the town a nicer place to visit’ (p. 8);



in Berrima, with the reduction of heavy traffic, tourism has expanded as the walking environment in the town has become easier and safer;

over the short term, Mittagong has suffered slightly negative impacts due to the reduction in highway-related traffic. Over the longer term, this position is expected to reverse, as without high volumes of traffic the town is perceived as a more pleasant place to visit and live. This has been supported by promotional material and town beautification programs; and

in conclusion, the extent of socioeconomic change caused by the construction of a town bypass can be related to:

► the size of the town, with smaller towns usually more adversely affected (towns with populations of less than 3,000 will undergo economic change);

► the distance of the town from the highway interchange and location and type of signage (the degree to which passing trade will be encouraged to continue to stop);

► the current growth of population and incomes in the local economy; and

► the willingness of the local community to accept change and to maximise opportunities presented (this also depends on the level of assistance provided by government agencies to help plan and promote adaptation within the community).

Almghawech and Beattie (1998) also note that the extent to which a bypass adversely affects a local business community depends on the reliance of businesses on passing trade and the importance of a town's position relative to other stopping places on the same highway.

Similar studies for Goulburn and Yass by the RTA (Parolin and Garner 1996) found that:

quality-of-life aspects of the bypassed towns were valued by the local community;

direct adverse economic impacts occurred for those businesses that were largely dependent on passing trade and highway traffic; and

these economic impacts were relatively short-term.

A successful bypass is generally visible from the town. This appears to have some impact on the motorist’s propensity to turn off the highway and decide to stop. This visual link provides an indication of the distance to the town. Some level of visibility is necessary, but unimpeded visual linkages are not required—they should be sufficient to give a clear indication of the distance from the highway. The shorter the distance, the more attractive the town is for motorists.

Table 4.4 summarises some of the studies of the impacts of bypasses undertaken in Australia. Table 4.5 provides examples of small towns in Wisconsin, United States.


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l pos

itive

ec

onom

ic im

pact

. M

agni

ficat

ion

of

hist

oric

app

eal.

Bu

reau

of

Tran

spor

t &

Com

mun

icat

ions

Ec

onom

ics

1994

Pag

e 4

-12

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

Econom

ic Im

pacts

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Cam

den

9,

172

1980

Seve

ral

kilo

met

res

2.1

kilo

met

res

Two

inte

rcha

nges

w

ithin

3

kilo

met

res

of

the

tow

n ce

ntre

The

Cam

den

CBD

serv

ices

a w

ide

area

with

The

Oa

ks a

nd N

arel

lan

as n

eare

st c

entre

s

– –

The

tow

n ce

ntre

is

curre

ntly

ext

rem

ely

activ

e, s

trong

reta

il st

rip d

evel

opm

ent

with

on-

stre

et p

arki

ng,

outd

oor c

afés

and

a

visi

ble

sens

e of

co

mm

unity

.

RTA

1996

Goul

burn

20,8

8419

9210 ki

lom

etre

sAp

prox

-im

atel

y 4

kilo

met

res

Inte

rcha

nges

at

nor

th a

nd

sout

h

Annu

al tu

rnov

er

for h

ighw

ay-

rela

ted

activ

ities

be

fore

byp

ass

was

$14

3.8m

illion

Mor

e se

vere

th

an th

ose

actu

ally

ex

perie

nced

Mai

n st

reet

Pr

ogra

m &

Gre

at

Goul

bour

n Ho

use

and

Land

Gi

veaw

ay.

Incr

easi

ng

busi

ness

pr

omot

ion

and

adve

rtisi

ng—

high

way

sig

ns.

Relo

catio

n of

so

me

busi

ness

to

be

near

er

high

way

.

Tota

l ret

ail t

urno

ver

afte

r byp

ass

was

$1

30.9

m. D

ecre

ase

in

ABS

tota

l ret

ail

turn

over

was

~

4.9

perc

ent.

High

way

-dep

ende

nt

busi

ness

es d

ropp

ed,

but o

ther

s ha

ve

incr

ease

d.

One

perc

ent j

ob lo

ss.

Com

mun

ity b

elie

f tha

t it

is n

ow a

nic

er p

lace

to

live

due

to a

nic

er

mai

n st

reet

are

a,

redu

ctio

n in

noi

se a

nd

air p

ollu

tion.

Paro

lin &

Gar

ner

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

PA

RS

ON

S B

RIN

CK

ER

HO

FF

Pag

e 4

-13

Bula

hd

ela

h –

Up

gra

din

g t

he P

acif

ic H

ighw

ay

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Gunn

ing

2,17

319

93–

––

18 b

usin

esse

sha

ve to

tal r

etai

l tu

rnov

er o

f $5

.6 m

illion

—m

ostly

orie

nted

to

loca

l ser

vice

s.

Petro

l wou

ld fo

rm

mai

n hi

ghw

ay-

rela

ted

reta

il ac

tivity

. Eco

nom

ic

base

of r

egio

n is

fin

e w

ool

prod

uctio

n.

Tow

n re

side

nts

happ

ier t

o se

e tru

cks

out o

f th

e m

ain

stre

et.

No

proa

ctiv

e co

mm

unity

in

itiat

ives

.

Two

perc

ent j

ob lo

ss

expe

rienc

ed. N

ever

a

larg

e st

oppi

ng p

lace

. Ha

s co

ntin

ued

to s

erve

lo

cal r

esid

ents

. Fiv

e bu

sine

sses

adv

ised

an

nual

redu

ctio

n in

tu

rnov

er. $

628,

000

to

$658

,000

(1

1.4

perc

ent o

f 1.

4 pe

rcen

t tot

al re

tail

turn

over

, 2.7

per

cent

sh

opfro

nt re

tail

turn

over

). In

200

2,

Coun

cil r

ezon

ed a

site

fo

r a s

ervi

ce c

entre

—

expe

cted

to e

mpl

oy 7

0 to

100

peo

ple.

Rec

ent

popu

latio

n in

crea

se

due

to p

roxi

mity

of

Canb

erra

.

Paro

lin a

nd

Garn

er. I

nfor

mal

di

scus

sion

s Co

unci

l sta

ff 17

.12.

02

Kiam

a

–19

87–

Appr

ox-

imat

ely

2 ki

lom

etre

s

Two

half-

diam

onds

. Co

mm

unity

pu

shin

g fo

r a

third

hal

f-di

amon

d in

terc

hang

e.

Tour

ism

impo

rtant

in

are

a.

Com

mun

ity

wor

ried

abou

t los

s of

thro

ugh

traffi

c.

Som

e lo

sses

fo

r ser

vice

st

atio

ns.

Com

mun

ity

wor

ries

abou

t re

duce

d ac

cess

.

Mai

n st

reet

be

autif

icat

ion

prog

ram

.

Pag

e 4

-14

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

Econom

ic Im

pacts

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Nor

th

Kiam

a 19

,900

Ex

pect

ed~

2003

w

ill co

nnec

t to

Kiam

a by

pass

.

– –

– Ve

ry lo

w le

vel o

f to

uris

t-rel

ated

ec

onom

ic

activ

ity—

mai

nly

serv

ices

co

nnec

ted

to

loca

ls.

Faci

litat

ed

mov

emen

t be

twee

n re

side

ntia

l ar

eas

on e

ach

side

of

high

way

. Re

side

nts

enco

urag

ed to

sh

op in

Kia

ma

rath

er th

an

Shel

lhar

bour

du

e to

re

arra

nged

tra

ffic

inte

rcha

nges

Land

scap

ing

stra

tegi

es

impl

emen

ted

to

min

imis

e vi

sual

im

pact

of

proj

ect.

–Co

nnel

lWag

ner

1996

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

PA

RS

ON

S B

RIN

CK

ER

HO

FF

Pag

e 4

-15

Bula

hd

ela

h –

Up

gra

din

g t

he P

acif

ic H

ighw

ay

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Mitt

agon

g5,

679

19

92Ap

prox

-im

atel

y 5

kilo

met

res

One

kilo

met

re

––

Larg

e de

crea

sein

ligh

t veh

icle

tra

ffic

stop

ping

in

the

tow

n fo

r se

rvic

es a

nd

faci

litie

s.

Us

ed th

e re

duct

ion

in

traffi

c to

fa

cilit

ate

mor

e on

-stre

et

park

ing,

mak

ing

area

mor

e ac

cess

ible

. Go

vern

men

t un

derta

king

st

reet

scap

e im

prov

emen

ts.

Reta

ilers

wer

e su

rvey

ed in

fir

st y

ear o

f pr

ojec

t op

enin

g. T

hey

prov

ided

in

form

atio

n on

cu

rrent

and

lo

ng-te

rm

pred

icte

d im

pact

s. A

sh

ort-t

erm

dr

op in

reta

il an

d to

uris

m

reve

nue.

Lon

g-te

rm s

tabi

lised

im

pact

s.

Sinc

e 19

94, s

hort-

term

loss

es in

re

tail/

tour

ism

wer

e 4.

5 pe

rcen

t (Bu

sine

ss

Surv

eys

1993

). To

uris

m h

as

subs

eque

ntly

in

crea

sed.

Lig

ht

vehi

cle

traffi

c ha

s no

t be

en re

duce

d as

muc

h as

exp

ecte

d.

Bure

au o

f Tr

ansp

ort &

Co

mm

unic

atio

ns

Econ

omic

s 19

94

Pag

e 4

-16

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

Econom

ic Im

pacts

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Tare

e

18,0

00

2000

14.5

kilo

met

res

Appr

ox-

imat

ely

8 ki

lom

etre

s

Two

Was

felt

to b

e hi

gh b

y so

me

peop

le.

-Re

deve

lopm

ent

of V

icto

ria S

t and

th

e riv

er

fore

shor

e to

m

ake

it an

in

vitin

g re

tail

area

.

In

itial

dow

ntur

n in

re

tail

follo

wed

by

stro

ng u

ptur

n an

d ne

w

expa

nsio

n in

som

e ar

eas.

Los

ses

incu

rred

in s

ervi

ce s

tatio

n se

ctor

repl

aced

by

gain

s in

oth

er a

reas

.

RTA

1996

Disc

ussi

ons

with

Cou

ncil

and

loca

l bus

ines

s gr

oups

pr

esen

tatio

n to

Bu

lahd

elah

Up

grad

e Co

mm

unity

Fo

cus

Grou

p

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

PA

RS

ON

S B

RIN

CK

ER

HO

FF

Pag

e 4

-17

Bula

hd

ela

h –

Up

gra

din

g t

he P

acif

ic H

ighw

ay

Technic

al P

ap

er

13

Tab

le 4

.4 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Mitigation Measures

6

Observed Impacts

Reference

Yass

4,89

5 at

the

time

of

open

ing.

5,

800

in

2002

19

95—

—On

eAn

nual

turn

over

from

hig

hway

-re

late

d ac

tiviti

es

befo

re b

ypas

s w

as $

59.4

m

Tow

nshi

p is

75

kilo

met

res

wes

t of G

oulb

urn,

62

kilo

met

res

north

of C

anbe

rra.

Sign

ifica

nt

econ

omic

do

wnt

urn.

Ho

wev

er,

hope

d th

at

peop

le w

ill m

ove

into

to

wn

as it

w

ould

be

bette

r pla

ce to

liv

e.

Incr

easi

ng

busi

ness

pr

omot

ion

and

adve

rtisi

ng —

hi

ghw

ay s

igns

. Re

loca

tion

of

som

e bu

sine

ss

to b

e ne

arer

to

the

high

way

.

Annu

al tu

rnov

er

follo

win

g by

pass

op

enin

g w

as $

49.5

m.

Drop

in g

ross

ann

ual

turn

over

for r

etai

l ac

tivity

~

15.2

per

cent

. 4.

5 pe

rcen

t job

loss

(a

ppro

xim

atel

y 90

jo

bs).

Yass

ser

vice

ce

ntre

repl

aced

som

e of

thes

e em

ploy

men

t lo

sses

(80

peop

le) a

nd

is th

e m

ost i

mpo

rtant

on

the

Hum

e. G

row

th

in Y

ass

gene

rally

due

to

its

role

as

a se

rvic

e to

wn,

and

its

prox

imity

to C

anbe

rra.

Com

mun

ity b

elie

f tha

t it

is n

ow a

nic

er p

lace

to

live

due

to re

duct

ion

in n

oise

and

air

pollu

tion.

RTA

1996

Di

scus

sion

s w

ith C

ounc

il (in

form

al) 2

001.

Pag

e 4

-18

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

Econom

ic Im

pacts

Technic

al P

ap

er

13

Tabl

e 4.

5: S

ocio

econ

omic

Impa

cts

of T

own

Bypa

sses

– U

nite

d St

ates

Exa

mpl

es

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Observed Impacts

Reference

Barn

evel

d (Io

wa)

86

2

1983

3 ki

lom

etre

sdu

al

carri

agew

ay

500

met

res.

2

inte

rsec

tions

at

grad

e at

~1–

2 ki

lom

etre

s ei

ther

si

de o

f tow

n

Smal

l ec

onom

ic

depe

nden

ce

on to

uris

m

– Th

roug

h-to

wn

traffi

ccu

t by

two-

third

s.

Grow

th a

nd

empl

oym

ent s

till

stro

ng.

W

isco

nsin

De

partm

ent o

f Tr

ansp

ort 1

998

Blue

M

ound

s (Io

wa)

626

1983

3 ki

lom

etre

sdu

al

carri

agew

ay

300

met

res.

2

inte

rsec

tions

at

grad

e at

~1–

2 ki

lom

etre

s ei

ther

si

de o

f tow

n

Larg

est

empl

oyer

is

dairy

m

anuf

actu

ring

—lit

tle

relia

nce

on

reta

il.

– Th

roug

h-to

wn

traffi

ccu

t by

two-

third

s.

Busi

ness

es s

low

ed.

Tour

ism

con

tinue

s to

at

tract

vis

itors

.

W

isco

nsin

De

partm

ent o

f Tr

ansp

ort 1

998

Dodg

evill

e (Io

wa)

4,

213

1980

6 ki

lom

etre

sdu

al

carri

agew

ay

1,50

0 m

etre

s.

Mov

es a

two-

high

way

in

ters

ectio

n ou

t of

the

cent

re o

f tow

n.

Two

half

inte

rcha

nges

at

eith

er e

nd o

f tow

n.

––

Thro

ugh-

tow

n tra

ffic

the

sam

e, d

espi

te

glob

al tr

affic

incr

ease

. Li

ttle

impa

ct o

n ec

onom

y or

po

pula

tion.

W

isco

nsin

De

partm

ent o

f Tr

ansp

ort 1

998

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

PA

RS

ON

S B

RIN

CK

ER

HO

FF

Pag

e 4

-19

Bula

hd

ela

h –

Up

gra

din

g t

he P

acif

ic H

ighw

ay

Technic

al P

ap

er

13

Tab

le 4

.5 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Observed Impacts

Reference

Fort

Atki

nson

(Io

wa)

10,9

74

1995

10

kilo

met

res

of

sing

le

carri

agew

ay.

3,00

0 m

etre

s.

Inte

rcha

nges

bot

h at

-gra

de a

nd

grad

e-se

para

ted.

A

ring

road

mov

es a

m

ultip

le h

ighw

ay

junc

tion

from

the

cent

re o

f tow

n.

– –

Too

early

to te

ll, b

ut it

is

pre

dict

ed th

at th

e to

wn

will

rem

ain

a de

stin

atio

n in

its

own

right

.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Haug

en

(Iow

a)

304

1987

3

kilo

met

res

of

dual

ca

rriag

eway

. N

ew a

lignm

ent

slig

htly

to th

e ea

st o

f old

.

100

met

res.

–

Sign

ifica

nt

depe

nden

ce

on h

ighw

ay

traffi

c.

– Tr

ade

has

drop

ped.

Th

e co

mm

unity

feel

s as

thou

gh th

e by

pass

ha

s ad

vers

ely

impa

cted

thei

r tow

n.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Holm

en

(Iow

a)

4,67

9

19

895

kilo

met

res

dual

ca

rriag

eway

.

1,50

0 m

etre

s.

Grad

e-se

para

ted

inte

rcha

nges

at

eith

er e

nd o

f tow

n.

Littl

e de

pend

ence

on

hig

hway

tra

ffic.

–Th

roug

h-tra

ffic

has

stab

ilise

d de

spite

an

incr

ease

in tr

affic

. Co

mm

unity

is

rela

tivel

y ec

onom

ical

ly

unaf

fect

ed.

W

isco

nsin

De

partm

ent o

f Tr

ansp

ort 1

998

Pag

e 4

-20

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

.050 1

3 -

Socia

l and

Econom

ic F

inal.d

oc

Econom

ic Im

pacts

Technic

al P

ap

er

13

Tab

le 4

.5 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Observed Impacts

Reference

Mt H

oreb

(Io

wa)

4,

911

1984

4

kilo

met

res

of

dual

ca

rriag

eway

.

1,50

0 m

etre

s.

Mov

es a

hig

hway

in

ters

ectio

n ou

t of

the

cent

re o

f tow

n.

–

–

Thro

ugh-

traffi

cdr

oppe

d by

a q

uarte

r, bu

t no

econ

omic

sl

owin

g. S

ucce

ssfu

lly

mar

kete

d th

emse

lves

as

a to

uris

t de

stin

atio

n.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Nei

llsvi

lle

(Iow

a)

2,65

9 19

94

4 ki

lom

etre

s of

si

ngle

ca

rriag

eway

.

On th

e ed

ge o

f to

wn.

Re

mov

ed a

T-

inte

rsec

tion

from

th

e ce

ntre

of t

own.

– –

Thro

ugh

traffi

c ha

s m

ore

than

hal

ved.

Bu

sine

sses

are

hu

rting

.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

New

Lon

don

(Iow

a)

6,97

9 19

94

8 ki

lom

etre

s of

si

ngle

ca

rriag

eway

, 90

kilo

met

res

spee

d lim

it. M

oves

hi

ghw

ay fr

om

cent

re o

f tow

n to

out

skirt

s.

On th

e ed

ge o

f to

wn.

Gr

ade-

sepa

rate

d in

terc

hang

e w

ith

cros

sing

hig

hway

on

edg

e of

tow

n.

– –

Econ

omy

slow

ing

but

pred

icte

d to

sta

bilis

e.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Plym

outh

(Io

wa)

7,

326

1985

5

kilo

met

res

of

sing

le

carri

agew

ay. 2

ki

lom

etre

s of

du

al

carri

agew

ay

1,50

0 m

etre

s.

Sing

le c

arria

gew

ay

has

at-g

rade

in

ters

ectio

ns.

–

Rem

oves

high

way

from

ce

ntre

of t

own

to th

e ed

ge.

Econ

omy

sim

ilar t

o be

fore

the

bypa

ss.

Thro

ugh

traffi

c si

mila

r, de

spite

glo

bal t

raffi

c in

crea

se.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

58L320A

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l and

Econom

ic F

inal.d

oc

PA

RS

ON

S B

RIN

CK

ER

HO

FF

Pag

e 4

-21

Bula

hd

ela

h –

Up

gra

din

g t

he P

acif

ic H

ighw

ay

Technic

al P

ap

er

13

Tab

le 4

.5 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Observed Impacts

Reference

Rhin

e-la

nder

(Io

wa)

7,

782

1991

7

kilo

met

res

of

dual

ca

rriag

eway

.

1,50

0 m

etre

s.

At g

rade

in

ters

ectio

ns.

– –

Mos

t tra

ffic

cont

inue

s to

driv

e al

ong

the

old

rout

e. C

omm

unity

feel

s it

was

a w

aste

of

mon

ey.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Ridg

eway

(Io

wa)

64

3 19

83

3 ki

lom

etre

s of

du

al

carri

agew

ay.

Still

pass

es

thro

ugh

tow

n.

Still

thro

ugh

tow

n.

At g

rade

in

ters

ectio

ns.

– –

Thro

ugh

traffi

c is

one

-fif

th o

f pre

viou

s.

Econ

omy

has

slow

ed,

but t

own

is o

ther

wis

e st

able

.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Rive

r Fal

ls

(Iow

a)

11,4

69

1991

3

kilo

met

res

of

sing

le

carri

agew

ay

2 ki

lom

etre

s of

du

al

carri

agew

ay. O

n th

e ed

ge o

f to

wn.

700

met

res.

Si

ngle

car

riage

way

w

ith a

t-gra

de

inte

rsec

tions

. Dua

l ca

rriag

eway

with

gr

ade-

sepa

rate

d in

terc

hang

es.

– –

Traf

fic is

the

sam

e th

roug

h to

wn.

Tow

n ha

s em

brac

ed th

e by

pass

as

an

oppo

rtuni

ty fo

r de

velo

pmen

t.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Spoo

ner

(Iow

a)

2,57

2 19

87

10 k

ilom

etre

s of

du

al

carri

agew

ay.

3,00

0 m

etre

s.

At-g

rade

and

gr

ade-

sepa

rate

d in

terc

hang

es.

Bypa

sses

the

tow

n an

d m

oves

an

inte

rsec

tion

outs

ide

tow

n.

– –

Traf

fic le

vels

sim

ilar.

Econ

omy

has

slow

ed.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Pag

e 4

-22

Road

s a

nd

Tra

ffic

Auth

ori

ty

58L320A

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inal.d

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Econom

ic Im

pacts

Technic

al P

ap

er

13

Tab

le 4

.5 (

conti

nued

)

Rout

e

Town

Population of Town


Length of Route1


2

Interchanges3

Economic Dependence

4

Predicted Impacts5

Observed Impacts

Reference

Ston

ewal

l (O

klah

oma)

53

0 19

93

17 k

ilom

etre

s.

1 ki

lom

etre

. –

Sign

ifica

nt.

– N

o ev

iden

ce o

f byp

ass

impe

ding

reta

il sa

les

grow

th.

Roge

rs &

M

arsh

men

t, 20

00

Tom

ahaw

k (Io

wa)

3,

457

1983

10

kilo

met

res

of

sing

le

carri

agew

ay

bypa

sses

tow

n

3,00

0 m

etre

s (b

ut o

n th

e ed

ge o

f tow

n).

Mov

es a

n in

ters

ectio

n fro

m

the

cent

re o

f tow

n.

– –

Traf

fic th

roug

h to

wn

has

stab

ilise

d de

spite

gl

obal

traf

fic in

crea

se.

Econ

omy

and

popu

latio

n st

able

.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Vero

na

(Iow

a)

6,04

4 19

95

5 ki

lom

etre

s of

du

al

carri

agew

ay

with

4 g

rade

-se

para

ted

inte

rcha

nges

. By

pass

es to

wn.

1,50

0 m

etre

s.

– –

– Th

roug

h tra

ffic

halv

ed.

Econ

omy,

pop

ulat

ion

slow

ed c

onsi

dera

bly.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Wes

t Ben

d (Io

wa)

28

,089

19

86

10 k

ilom

etre

s of

du

al

carri

agew

ay

with

3 in

ter-

chan

ges.

1,50

0 m

etre

s.

– –

– Th

roug

h tra

ffic

drop

ped

by o

ne-th

ird.

Tow

n w

as g

row

ing

anyw

ay a

nd s

trong

gr

owth

con

tinue

s.

Wis

cons

in

Depa

rtmen

t of

Tran

spor

t 199

8

Not

es:

1.

Leng

th o

f rou

te (b

ypas

s).

4.

Leve

l of e

cono

mic

dep

ende

nce

on th

e hi

ghw

ay v

ehic

les.

2.

Di

stan

ce fr

om to

wn

urba

n ar

eas.

5.

Pr

edic

ted

impa

cts

of th

e by

pass

.

3.

N

umbe

r and

loca

tion

of in

terc

hang

es in

rela

tion

to th

e to

wn.

6.

M

itiga

tion

mea

sure

s id

entif

ied

befo

re c

onst

ruct

ion.

58L320A

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FF

Pag

e 4

-23


Several characteristics have been identified from these studies which are likely to influence the level of economic impact. How Bulahdelah performs against these is summarised below.

Size of the town Large towns are generally self-sustaining;

Bulahdelah is a small town which relies in part on passing trade to purchase goods and services.

Distance from major cities

Sydney and Newcastle are the nearest major centres. Driving time is 2.5hours from Sydney, 0.75 hours from Newcastle;

these driving times are in the range for typical ‘Stop Revive Survive’ suggestions.

Ease of access The proposal creates an additional trip time of approximately 3 minutes to reach the Bulahdelah town centre. The interchanges have been designed to provide smooth traffic flows into the township.

Visibility The southern interchange has been designed to provide distant views of the Bulahdelah urban areas. In particular, village lights should be seen at night-time. The mountain would still be a key visual cue for drivers identifying that they are at Bulahdelah. Other features include exit prompts, gateways on local approach routes (not on the highway) and signage relating to services and facilities available.

Facilities in the town Quality facilities such as shops, toilets, fuel, accommodation and recreation facilities are provided, along with a comprehensive Tourist Information Centre.

Inherent attractions in the town

Attractions include Bulahdelah (Alum) Mountain, parks, riverside areas and heritage sites such as the courthouse and Alum Mine complex. Other attractions include the heritage character of the town, its peacefulness, the natural environment and the main street shops. The Mountain Park is to be reinstated following construction activities, and interpretive signage placed at strategic locations regarding the history of the Alum Mine complex.

The location of other service towns or service centres (proximity thereof)

Competition for highway traffic services includes Karuah, the Rock and Coolongolook.

4.3.2 Highway Traffic

Table 4.6 shows the estimated annual average daily vehicles on the existing Pacific Highway at the Myall River Bridge.

Table 4.6: Total Estimated Traffic Volumes

Year Two-way Annual Average Daily Vehicles

2002 11,900

2008 15,400

2018 19,800

2028 24,100



At present, 8–10 percent of Pacific Highway vehicles stop at Bulahdelah. This equates to 1,071 vehicles per day. By 2008 this total would have risen to almost 1,400 vehicles per day if the proportion stopping in town remains the same — an increase of approximately 30 percent.

Experience from bypass developments elsewhere suggests that there would be an initial reduction in the number of vehicles stopping followed by a gradual return to previous levels. The time taken to return to pre-bypass conditions depends on a wide range of factors. It is not possible to predict the expected level of change in the proportion of total traffic stopping once the upgrade of the highway opens. Karuah assumed a 50 percent drop in traffic stopping for services in the town. Assuming a similar level, the following figures would be expected.

Table 4.7: Vehicles Stopping

Year Vehicles Stopping

2002 1,071 @ 9%

2008 770 @ 5%

2018 990 @ 5%

2028 1,205@ 5%

Conditions in 2008 will be different and the ability to encourage drivers to use Bulahdelah in future will depend both on what has occurred in the interim in the town, and what has taken place elsewhere along the highway (for example, service centre developments). Factors influencing a driver’s decision to stop would include the relative attractiveness of Bulahdelah compared to other locations and the provision of competing facilities elsewhere which are not currently available.

Evidence elsewhere indicates that following an initial decrease on opening of the bypass, stopping volumes recover rapidly especially if associated programs of in-town improvements are implemented, complementing the improved amenities resulting from the removal of through traffic, especially heavy vehicles.

4.3.3 Impact Mitigation

Key features of the proposal to minimise economic impacts include:

interchanges at the north and south of town, designed to be close to the town and providing easy northbound and southbound access to the existing highway and town centre;

the Mountain Park retained and enhanced and a pedestrian pathway planned from the picnic area to Bombah Point Road overpass;

old Alunite Mine site complex clearly described in interpretive signage. Similar interpretive signage would be developed for the site where Rachael Henning’s house used to stand (this aims to support the town’s historical (tourism) appeal);



trucks from the sawmill and other industry would use Markwell Road and Lee Street (to be upgraded and sealed) and the northern interchange rather than the main streets of Bulahdelah—enhancing the amenity of the main shopping area;

relocation of the rest area toilet facilities, currently adjacent to Bulahdelah Golf Club, to a suitable location in the township;

in addition to the standard advance direction (GI Series) and Intersection Direction (G2 Series) signs, a Diagrammatic Advance sign would spatially portray the location of a bypassed town with respect to the through route. The RTA would examine whether Bulahdelah meets the requirements for ‘historic’ village and having a symbol on signage;

the landscape plan would enhance traveller views of Bulahdelah (Alum) Mountain and Bulahdelah Golf Course (visual cues of the approaching town) and the exit points; and

a landscape plan would be developed for streetscape improvements for the existing highway, including minor traffic calming works.

There are also opportunities for the town community and Great Lakes Council to take action to minimise economic impacts. This could include:

exploiting the opportunities provided by the consideration of the town as a ‘service town’ and improving visitor services and facilities;

assisting the community to provide and support local leaders who are helping to coordinate town improvement activities and working together through organisations such as the Chamber of Commerce;

together with the local community, marketing now to highway travellers Bulahdelah’s current service role and its future role when the highway is upgraded (spell out the new arrangements and how they facilitate ‘dropping into Bulahdelah’);

emphasising the local attractions—heritage, flora, fauna, the mountain and river, houseboats, gateway to Myall Lakes, tourism, crafts and arts, possible industry tours (sawmills, dairies);

making town improvements that recognise the township’s intrinsic characteristics; and

monitoring the total number of highway travellers that pull over into Bulahdelah each year (not local movements) to ascertain losses or gains and projected town income. This will help with decisions about marketing initiatives.

Opportunities also exist for individual businesses to try to maintain or improve turnover by:

increasing their promotion activities and supporting signage initiatives for Bulahdelah; and



considering the facilities and services required by highway traffic and making sure the town as a whole fulfils these functions.

Some of the potential beneficial economic effects of the bypass have been identified as:

the town’s population should grow because it will be a better place to live and is within commuting distance of major employment centres;

traffic volumes are projected to substantially increase on the highway, which will in part offset the increased percentage of drivers no longer stopping in Bulahdelah for services and facilities;

less noise, vibration and air pollution in the town centre may encourage people to stop and spend on services/facilities; and

fewer accidents are anticipated in the township.


Analysis of Transport-related Costs and Benefits Technical Paper 13

5. Analysis of Transport-related Costs and Benefits

5.1 Overview

The economic assessment of the proposed Pacific Highway Upgrade at Bulahdelah comprises one element of the overall process, which also includes the consideration of environmental and social issues. It focuses on those impacts relating to economic costs and benefits that would arise from the construction and operation of the proposal.

The assessment includes all those effects which can be reliably described in monetary terms, so that a conclusion can be reached on whether the investment of resources in the proposal is sound.

The assessment technique used, cost–benefit analysis, is a method of measuring and evaluating the relative merits of public investment projects in support of sound economic decisions. It is a well established method which considers the costs and benefits accruing to the community as a whole. This evaluation uses a road-user cost–benefit analysis framework which does not attempt to place a value on the environmental and social effects of the proposal. The latter are considered in descriptive terms, usually in relationship to accepted criteria in Technical Papers 7, 8, 11, 14 and 15.

The economic assessment has been undertaken in accordance with NSW Government Guidelines for Economic Appraisal (NSW Treasury 1997) and the Economic Analysis Manual (RTA 1999 with 2002 update). The economic assessment has been used for the derivation of specific technical details. Sensitivity testing was undertaken to determine the potential effects of variations in capital costs and discount rates.

5.2 Main Components of the Assessment

5.2.1 The Base Case

A base case provides a common point of reference against which to measure the incremental costs and benefits of the proposal. In this case, the ‘do nothing’ option would provide the baseline.



5.2.2 The Proposal Case

The proposal case evaluated for the assessment comprises the construction of the Upgrade of the Pacific Highway at Bulahdelah with four lanes and no change throughout the evaluation period of 30 years. For the purposes of the assessment, the proposal is assumed to open in 2008 and the road would not need to be replaced for 40 years.

5.2.3 Time Savings

Travel time savings have been derived from the transport model constructed for the proposal. This provides morning and afternoon peak, inter-peak and off-peak travel time savings resulting from the construction of the proposal. These are aggregated to provide daily travel time savings and then converted to annual values.

Monetary values have been derived by applying the value of time of $24.37 per vehicle hour. This is based on the values contained in Appendix B of the Economic Analysis Manual (RTA Update 2002). These are the most recent available.

5.2.4 Vehicle Operating Cost Savings

Operating cost savings have been derived in a similar way, using annual vehicle kilometres saved as a result of the introduction of the proposal converted to a monetary value.

5.2.5 Accident Cost Savings

Accident cost savings were based on analysis of crash data for the Pacific Highway and average crash costs for particular types of road. Data for the previous 12 years indicate that the crash rate on the section of the highway through Bulahdelah is twice that for a rural two-lane individual road and three times that of the Karuah section of the highway.

The introduction of a freeway standard road such as the proposal, with a high standard of access control, improved separation of pedestrians and vehicles, and high geometric standards is expected to result in a reduction in the accident ratio in excess of seven percent. A cost of $17,000 per million vehicle kilometres travelled have been adopted for the proposal based on assumptions in the Economic Assessment Manual (RTA 1999 and 2002), compared to $21,369 per million vehicle kilometres travelled for the existing highway (the base case).

5.2.6 Road User Delays During Construction

Road user delays were calculated for the construction period and are assumed to occur consistently over this period. These were estimated to total $661,342 for the proposal case.



5.2.7 Other Effects

Other impacts (both positive and negative) resulting from the proposal, not included in the assessment, are:

noise effects;

air pollution and greenhouse gas impacts;

pedestrian and severance effects;

effects during construction; and

impacts on the natural environment.

These effects are assessed descriptively using available and scientifically acceptable methods as described in the technical papers listed in Section 1.

5.3 Economic Evaluation

5.3.1 Basic Parameters

The economic evaluation is undertaken by comparing the stream of benefits generated by the proposal over the evaluation period with its costs over the same period. As this requires a comparison to be made over differing periods, a process of discounting future benefits and costs to a common level ($ 2003) is necessary. This is because construction costs are concentrated at the beginning, then followed by a much lower level of recurring costs relating to operation and maintenance, while the benefits occur regularly over the life of the proposal.

Discounting is a method of taking account of the real costs of funds and resources that might otherwise have been used to generate benefits of a different kind. This approach takes account of the opportunity costs associated with resources and investment. A real discount rate of seven percent is assumed in this analysis.

The following parameters have been used in the analysis:

evaluation period of 30 years from the year of opening;

monetary values expressed in 2003 dollars; and

discount rate of seven percent.

5.3.2 Cost of the Proposal

The capital costs, on-going maintenance costs of the new and existing road, road user delays during construction, vehicle operating-cost savings, travel time savings and accident savings for the preferred option compared to the base case are outlined in the following sections.



It is assumed that there are no capital costs in the base case. The capital costs for the proposal are $153 million. A residual value equal to 25 percent of the value of the infrastructure construction costs is assumed at the end of the evaluation. This is based on the road requiring replacement after 40 years. The costs include amounts for project development, investigation and design, property acquisitions, public utilities, construction and handover. These costs include allowance for environmental mitigation measures to address environmental impacts.

The costs of road maintenance were provided by the RTA as follows:

maintenance costs for the existing highway in the base case are assumed to be $43,000 per kilometre per year;

maintenance costs of the proposal following construction are $10,000 per kilometre per year;

upkeep of the old highway for the proposal case is $10,000 per kilometre per year; and

life cycle maintenance costs were not included in the evaluation although these would have an impact on the costs of the base case.

These estimates indicate an annual reduction of $15,300 ($348,300 minus $333,000) in maintenance costs for the proposal case in comparison to the base case.

5.3.3 Proposal Benefits

Benefits are the intended effects of the proposal. These are mainly related to the efficiency of the transport system (reduced travel time) and its safety (cost of accidents avoided). These are experienced directly by the users, including pedestrians, of the road network. Proposals also have other effects, both positive and negative. Typically these affect the environment and are mainly experienced by third parties.

As these parameters have a considerable influence on the results of the cost–benefit analysis, sensitivity testing to indicate the robustness of the results has been carried out by examining the effects of varying both the capital costs of the proposal and the discount rate applied to the analysis.

5.3.4 Assessed Economic Impacts

The Main Assessment

The following economic criteria have been calculated for the proposal case and in the sensitivity tests.

Net Present Value (NPV) or the discounted benefits minus discounted costs to measure the overall economic worth of the proposal;



Benefit–Cost Ratio (BCR) or discounted benefits divided by discounted costs plus discounted recurring operating and maintenance costs to provide a simple method of reporting on the worth of proposals; and

Internal Rate of Return (IRR) which provides the discount rate at which the present value of benefits is equal to the present value of costs.

The results of the assessment are summarised in Table 5.1.

Table 5.1: Summary of Assessed Economic Impacts at 7 Percent Discount Rate

Criteria Result

Net present value of total capital cost $117.84 million

Net present value of recurrent costs $0.09 million

Net present value of annual net benefits $411.77 million

Net present value of benefits minus costs $294.00 million

Benefit–cost ratio 3.5

Internal rate of return 17.3 percent

Sensitivity Tests

Tests were conducted on the robustness of the outcomes by varying the discount ratio by plus/minus three percent, and the capital cost of the proposal by plus/minus 20 percent. The results of these tests are summarised in Tables 5.2 and 5.3 respectively.

Table 5.2: Sensitivity Tests — Discount Rate Variation

Discount Rate Criteria

4 percent 10 percent

Net present value of total capital cost $123.94 million $109.70 million

Net present value of recurrent costs $0.14 million $0.06 million

Net present value of annual net benefits $728.71 million $248.52 million

Net present value of benefits minus costs $604.91 million $138.88 million

Benefit–cost ratio 5.9 2.3



Table 5.3: Sensitivity Tests — Construction Cost Variation

Construction Cost Criteria

Increased by 20% Decreased by 20%

Net present value of total capital cost $141.41 million $94.27 million

Net present value of recurrent costs $0.09 million $0.09 million

Net present value of annual net benefits $411.77 million $411.77 million

Net present value of benefits minus costs $270.44 million $317.58 million

Benefit–cost ratio 2.9 4.4

Internal rate of return 15.5 percent 19.6 percent

The results of the sensitivity tests show that the proposal is robust and would continue to generate a surplus of benefits over costs even if the most significant components of the assessment are revised.


Conclusions Technical Paper 13

6. Conclusions

6.1 Community Concerns

The proposal would relocate the highway from the centre of town to a route immediately to the east of the urban area. There is concern among community members that the removal of through traffic from the town centre would reduce the number of vehicles stopping there and have a consequent negative effect on the economy of the town. This concern is compounded by the acknowledged general long-term decline of small towns serving rural hinterlands. The small size of Bulahdelah means that its economic base is less able to accommodate the kind of change expected when the proposal bypasses the town.

It is not possible to be definitive about the outcomes of the removal of through traffic from the centre of Bulahdelah, especially as this is not expected to take place until at least 2008. However, the experience gained from other small towns that have been bypassed suggests that a successful response requires a willingness to accept change, community leaders to step forward with a vision and the community to maximise the opportunities resulting from that change.

6.2 Managing Change

The willingness of the local community to accept change and to maximise future opportunities varies. Residents have expressed a range of opinions on this issue. Some feel that the town should be focusing on tourism as the major future source of income. The Tourist Information Centre was noted in the consultations as being relatively successful in attracting vehicles from the highway to pull over and visit local attractions.

Change may be difficult as 75 percent of businesses participating in surveys for this assessment stated they had been in their current business for over 10 years. This difficulty is to be expected, given the highway-related nature of several businesses and consistently increasing highway traffic volumes.

6.3 Heavy Vehicles

Studies elsewhere have indicated that the removal of through traffic, in particular heavy vehicles, from the town centre, results in benefits for residents. These include safety and amenity improvements, which provide opportunities to enhance the intrinsic qualities of the town for both residents and visitors.



Heavy vehicle through traffic generally contributes little income to the town, yet creates significant noise, dust, air and safety problems for residents. As part of its highway servicing strategy, Great Lakes Council is identifying the best location for truck facilities. Fuel is not of major importance as many heavy vehicles now fill up in Brisbane and do not require refuelling until Sydney. However, trucks are more likely to stop in Bulahdelah if other services are provided, such as parking, showers, washing machines or good food. The development of Bulahdelah as an attractive place for heavy vehicles to stop is dependent on the willingness of the local community to provide these services and facilities.

6.4 Short-term Social and Economic Impacts

The short-term social and economic impacts on small towns that have been bypassed have varied. Reductions in business turnover vary, depending on the nature of the business. Businesses geared towards serving the town and its hinterland may not experience any, or have limited, change in turnover. Reductions in trade may occur in the short term and not be as severe as anticipated (Johnson 2002). For the town of Goulburn, bypassed in 1995, turnover revenue over a two-year period from the opening of the bypass fell by about 9 percent, with approximately 40 percent of existing businesses experiencing some reduction. This level was expected to improve as the local economy adjusted to the changes brought about by the bypass.

Johnson found in his research that in towns where businesses were heavily reliant on passing trade, volume of sales decreased. Greater effects were experienced by those businesses providing road-related services, such as service stations and motels. Some service stations in Goulburn closed or repositioned themselves by specialising in other motor vehicle-related services. Johnson concluded that motels can be expected to experience a reduction in occupancy rates in the short term, but will generally increase to above pre-bypass levels as highway traffic increases.

It would be expected that downward adjustments in trade in Bulahdelah would be mitigated by a natural increase in traffic volumes on the Pacific Highway. This would be further mitigated by improved marketing of Bulahdelah as a convenient and desirable place to take advantage of a range of services.

Various organisations in Bulahdelah, with the assistance of local and State Government, are attempting to consolidate and enhance Bulahdelah’s role as a service town, improve its image, and benchmark its customer service and business potential. The aim is to increase visitation levels before the construction activities associated with the proposal commence.

As noted in Section 4.3.1, socioeconomic change depends on town size, distance and visibility from the new highway, access arrangements, facilities in the town, the inherent attractions in the town and the proximity of other highway service facilities.


Conclusions Technical Paper 13

Successful strategies to improve the economic activity within bypassed towns have included substantial programs of streetscape improvement, often undertaken by local government in collaboration with local businesses. This has occurred in towns such as Taree, Bangalow, Mittagong and Berrima. Streetscape improvements have included pavement and parking treatments, landscaping, seating, lighting and signage. In a number of areas, building façade upgrades have also been undertaken. Proposals in relation to this are outlined in Section 4.3.3.

6.5 Mitigation Measures

The economic impacts of the proposal can be reduced by careful planning. The measures that have been included in the route selection and concept design of the proposal include:

locating the Upgrade to provide for a visual link to the town;

providing clear and easy access to Bulahdelah. The highway interchanges have been strategically placed and designed to assist traffic flows into and out of the town. Directional signage would be placed on the highway well ahead of the exit points; and

improving in-town streetscape as part of the proposal. Additional opportunities for further improvements to local amenities and facilities exist for local government and the community.

Great Lakes Council has indicated support for the growth in tourism-based industry in the Bulahdelah area. Council staff and the community are considering long-term strategies for Bulahdelah, in association with Department of State and Regional Development, Bulahdelah Chamber of Commerce, Bulahdelah Progress Association and the Bulahdelah Historical Society.

Great Lakes Council is also proposing to establish Bulahdelah as a service town through their Local Environmental Plan. Council is currently finalising the Great Lakes Service Centre Study and Strategy Report for the Pacific Highway in the Great Lakes Local Government Area. The strategy supports the definition of Bulahdelah as a service town fulfilling the same function as a service centre and is consistent with the objectives of the Planning Policy on Commercial/Retail Development along the Pacific Highway from the Queensland Border to Hexham.

Despite concerns about the impact on Bulahdelah’s highway-derived income base, there are indications that some members of the town are already rethinking its economic future, devising new and innovative initiatives. There is an opportunity to coordinate these initiatives with the highway project to create a positive economic outlook for the Bulahdelah region.



6.6 Economic Analysis

Many impacts are not able to be assessed in economic terms. These impacts include economic, environmental and social impacts that can not be quantified in monetary terms. These impacts can include both the beneficial and adverse effects of the proposal.

The results of the analysis indicate that a net economic benefit would still be achieved even if unquantified impacts attracted a total negative cost of $294 million in discounted present values.

The proposal would be an economically sound use of resources. The proposal of the Pacific Highway at Bulahdelah would generate positive net present values in all the scenarios tested.


References Technical Paper 13

References

Almghawech, R. and Beattie, G. 1998 Predicting the Economic Impact of a Proposed Bypass: Berry, Milton and Ulladulla.

Australian Bureau of Statistics 1996 Census of Population and Housing 1996, Canberra.

Australian Bureau of Statistics 2001 Census of Population and Housing 2001, Canberra.

Australian Bureau of Statistics 2002(a) 2001 Census Basic Community Profile and Snapshot, 19 November 2002, Canberra.

Australian Bureau of Statistics 2002(b) 2001 Census Basic Community Profiles Bulahdelah (UCL 114600), Commonwealth of Australia, Canberra.

Bureau of Transport and Communications Economics 1994 Working Paper 11: The Effects on Small Towns of being Bypassed by a Highway: A Case Study of Berrima and Mittagong.

Connell Wagner 1996 North Kiama Bypass – Updated Environmental Impact Statement, prepared for the NSW Roads and Traffic Authority, May 1996.

Department of Infrastructure, Planning and Natural Resources 2004 New South Wales State and Regional Population Projections 2001–2051, 2004 Release, Transport and Population Data Centre, May 2004.

Great Lakes Council 1999 Great Lakes Community Profile.

Great Lakes Council 2000 Great Lakes Council Social Plan, 2000–2004.

Johnson, D. 2002 Impact of Bypasses on Rural Communities, Road System and Engineering Technology Forum.

Manidis Roberts 1996 Preliminary Forestry Social Impact Assessment, report to the Resource and Conservation Assessment Council Socio Economic Working Group.

McClune Consulting, Wickenburg Economic Study of Bypass Alternatives, prepared for Sverdrup Civil Inc. for US93 Wickenburg to Santa Maria River Location/Design Concept Study and Environmental Studies.

Minister for Urban Affairs and Planning, Direction No. S28: Commercial/Retail Development along the Pacific Highway, North Coast.

63L320A.050 13 - Social and Economic Final.doc PARSONS BRINCKERHOFF Page R-1


Mocnik, F. 2002 ‘Thrills, spills and bloodied knees’, Australian Geographic, Jan-Mar 2002.

Myall Coast News of the Area 2001 Tourism Increases 68% in Great Lakes, Thursday, 29 November 2001, pg 23.

NSW Roads and Traffic Authority 1991 and 2002 Economic Analysis Manual, Sydney.

NSW Treasury 1997 NSW Government Guidelines for Economic Appraisal, Sydney.

Ove Arup and Partners Pty Ltd 1999 Proposed Upgrade of the Pacific Highway at Karuah Environmental Impact Statement, prepared for the NSW Roads and Traffic Authority, November 1999.

Parolin, B. P. and Garner, B. 1996 Evaluation of the Economic Impacts of Bypass Roads on Country Towns: A Guide to Good Practice, prepared for the NSW Roads and Traffic Authority Research and Development Project TEP/93/6.

Parolin, B. P. and Garner, B. 1996 Evaluation of the Economic Impacts of Bypass Roads on Country Towns: Final Project Report, prepared for the NSW Roads and Traffic Authority Research and Development Project TEP/93/6.

PPK Environment and Infrastructure 2000 Pacific Highway Bulahdelah Upgrade Roadside Interview Working Paper, report to the NSW Roads and Traffic Authority.

Purdon Associates 1999 Pacific Highway Upgrade – Karuah: Planning, Social and Economic Impact Working Paper, report to Ove Arup and Partners Pty Ltd.

Rogers, C. L. and Marshment, R. 2000 Measuring Highway Bypass Impacts on Small Town Business Districts, 3 October 2000.

Wisconsin Department of Transport 1998 The Economic Impacts of Highway Bypasses on Communities – Technical Report, February 1998.

Page R-2 Roads and Traffic Authority 58L320A.050 13 - Social and Economic Final.doc

Appendix A

Business Survey Form, July 2000

Appendix A Technical Paper 13

Pacific Highway Bulahdelah Upgrade Bulahdelah Business Survey - July 2000

Investigations into the options of the Upgrade of the Pacific Highway at Bulahdelah are continuing. This survey asks questions about the businesses in Bulahdelah, to assist with the studies on route options and to help us to understand different impacts. The information will remain confidential, in that direct reference would not be made to your business. However, summaries of the questions below will be made public as part of the technical studies. We appreciate your time in filling in this survey and returning it to PPK in the stamped envelope attached. Please print your answers. If you have questions about any of the questions below, please do not hesitate to contact us on 1800 688 153. 1. Please describe the main activities of your business (for example, restaurant, or take away, or

newsagent etc.):

_________________________________________________________________________________________

_________________________________________________________________________________________

_________________________________________________________________________________________

2. Does your business currently have direct Highway access? (Yes/No):

_________________________________________________________________________________________

3. What proportion of your business do you feel is from Highway traffic?

_________________________________________________________________________________________

4. For accommodation providers, what proportion of your business is passing traffic and what proportion makes a booking in advance?

_________________________________________________________________________________________

_________________________________________________________________________________________

5. Please indicate the current number of employees in your establishment:

Full time: __________ Male:__________ Female: __________

Part time: __________ Male:__________ Female: __________

Casual: __________ Male:__________ Female: __________

6. Where do your employees live?:

How many in Bulahdelah? : __________

How many in Bulahdelah local area? : __________

How many in other areas? : __________

63L320A.050 13 - Social and Economic Final.doc PARSONS BRINCKERHOFF Page A-1


7. How long has your firm been operating in its current location? (tick one):

Less than 1 year One to three years Three to six years Six to ten years More than 10 years

8. What is the total value of your current annual sales? (tick one):

Less than $50,000 Between $50,000 and $250,000 Between $250,000 and $500,000 Between $500,000 and $1 million More than $1 million

9. Have you witnessed an increase in sales turnaround over the last five years?:

_________________________________________________________________________________________

10. Why did you choose Bulahdelah to set up business? (for example, family live here, or raw materials available, or feel there is a demand for your business here etc.):

_________________________________________________________________________________________

_________________________________________________________________________________________

_________________________________________________________________________________________

11. Do you own the business or lease the business?

_________________________________________________________________________________________

_________________________________________________________________________________________

12. How much capital investment have you made to the business over the last five years? ($):

_________________________________________________________________________________________

13. How much are you likely to invest over the next five years? ($):

_________________________________________________________________________________________

14. What do you feel could improve business sales in the town? (try to think of both Highway and non Highway related issues):

_________________________________________________________________________________________

_________________________________________________________________________________________

_________________________________________________________________________________________

15. Any other comments in relation to existing and potential future business opportunities in Bulahdelah:

_________________________________________________________________________________________

_________________________________________________________________________________________

Page A-2 Roads and Traffic Authority 58L320A.050 13 - Social and Economic Final.doc

Appendix B

Driver Survey Form, May 2000

Appendix B Technical Paper 13

Pacific Highway — Bulahdelah Upgrade

The RTA is currently investigating various options for upgrading the Pacific Highway at Bulahdelah. As part of this work, traffic surveys are being carried out to determine the characteristics of trips through Bulahdelah.

Your assistance is requested in providing the following details relating to your current journey:

FOR THE TRIP BEING MADE TODAY

What was the Origin of the trip? ........................... Approximate Departure Time: ..................

What is the Destination of the trip?....................... Approximate Arrival Time: .......................

What is the purpose of the trip? .................................................................................................

Purpose of stopping in Bulahdelah?............................................................................................

Do you normally stop in Bulahdelah? .........................................................................................

Type of Vehicle? ................................................... Number of Passengers? ...........................

Other Comments? ......................................................................................................................

...................................................................................................................................................

THANK YOU FOR YOUR ASSISTANCE

For further information please contact Ron Brown NTPE Ph: 02 49261313, Hugh Donaldson PB Ph: 07 32182239 or Mark Eastwood RTA Ph: 02 66401000

63L320A.050 13 - Social and Economic Final.doc PARSONS BRINCKERHOFF Page B-1

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Bulahdelah Upgrading the Pacific Highway … · Highway Environmental Impact Statement Technical Paper 13 ... Locked Bag 248 Rhodes NSW 2138 ... Technical Paper 13 Author: Fiona Court