Roadside Fuel Facilities Policy - ACAPMAg · vehicles at Category 1 and Category 2 facilities. Sustainable: the provision of RFFs is to assist TMR in its delivery of best value investment

Roadside Fuel Facilities Policy Consultation Version 2.0 (August 2019) – DRAFT FOR CONSULTATION

Roadside Fuel Facilities Policy

Consultation Version 2.0 June 2020 i

DRAFT – NOT GOVERNMENT POLICY (FOR DISCUSSION PURPOSES ONLY)

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Consultation Version 2.0 June 2020 ii


Contents

1. Policy statement 1

1.1 Policy principles 1

1.2 Scope 1

1.3 Legislative head of power 2

2. Context 2

2.1 Purpose 2

2.2 Background 2

2.3 Objectives 2

3. Operator Agreement 3

4. Categories of facility 3

4.1 Category 1 Roadside Fuel Facility/ Service Centre 3

4.2 Category 2 Roadside Fuel Facility/ Remote Service Centre 3

4.3 Category 3 Roadside Fuel Facility/ Service Station 3

4.4 Category 4 Roadside Fuel Facility/ Unattended Facility 3

5. Operator benefits 5

6. Fees and charges 5

7. Design and access considerations 6

7.1 Road access 6

7.2 Limited access roads 6

7.3 Provision for low and zero emission vehicles 6

7.4 Parking 6

7.5 Pedestrian safety 7

7.6 Rest areas 7

8. Location 7

8.1 Remote facilities 7

8.2 Roadside Fuel Facilities Plans 7


Consultation Version 2.0 June 2020 iii


9. Signage 8

10. Types of proposal 8

11. Conclusion of tenure 8

12. Maintenance and works 8

13. Compliance, monitoring and reporting 9

14. Transitional arrangements for existing facilities 9

15. Appeal and review 9

16. Review 9

17. Associated policy 9

18. Glossary 12

Table of Figures

Figure 1 - Context for policy and supporting documents 10

Figure 2 - Relationship of supporting documents 11

Table of Tables

Table 1 - Services which must be offered to meet the requirements for roadside fuel facilities 4

Table 2 - Operator benefits 5

Consultation Version 2.0 June 2020 1


1. Policy statement

The Department of Transport and Main Roads (TMR) permits the use of state-controlled road (SCR) land by third

parties for the operation of Roadside Fuel Facilities (RFF) at appropriate locations, under certain conditions and

for set periods of time.

To be an RFF there must be an Operator Agreement between TMR and the facility operator.

This policy replaces the Service Centre Policy 2013 and the Access Policy for Roadside Service Centre Facilities on

Limited access Roads.

1.1 Policy principles

The following policy principles apply to this policy:

Responsive: the design and operation of RFFs are to be customer-centric and deliver a quality customer experience.

Accessible: RFFs enable the cost-effective, safe, reliable and quick movement of people and goods. RFFs are to be

developed, designed and situated in such a way as to ensure TMR’s investment in network assets is protected. This

includes ensuring development does not compromise the existing SCR network, maintenance or planned upgrades of

the SCR network.

Safe: the development of an RFF is to be undertaken in a way which contributes to a single, integrated transport

network accessible to everyone. Facilities must not adversely impact the safety of the transport network or its users.

Facilities must be located appropriately to provide rest opportunities for drivers and related road accesses must be

designed to enhance the safety and efficiency of the transport network.

Efficient: RFFs are to make full use of opportunities for new and innovative ways of doing things including adopting

innovative design and enhancements to the quality of facilities. This includes provisioning for low and zero emission

vehicles at Category 1 and Category 2 facilities.

Sustainable: the provision of RFFs is to assist TMR in its delivery of best value investment in the transport system of

the future.

The above principles are consistent with the TMR Strategic Plan 2019-2023.

1.2 Scope

This policy applies to:

• new attended and unattended RFFs on SCR in rural areas (refer Glossary)

• motorways and highways (refer Glossary) – note, access from limited access roads will only be considered for

category 1 or category 2 RFFs

• both land within the boundary of a SCR and land adjacent to the SCR

• existing facilities on SCR which have been upgraded and meet the requirements of this policy.

This policy does not apply to:

• non-commercial rest opportunities or stopping places such as those provided by civic or TMR operations including rest

areas, or facilities provided specifically for heavy vehicles such as decoupling areas, except where they are in some

way incorporated into the operation of a commercial facility

• facilities that are not adjacent to the SCR network



• heavy rail, light rail, busway or bikeway land.

1.3 Legislative head of power

This policy does not circumvent, override or provide any concession on any relevant legislation which applies to RFFs or

their approval processes.

The Transport Infrastructure Act 1994 is the governing legislation for the management of transport infrastructure and

includes amongst its objectives, the need to provide community access to the road network.

Service centres are addressed in section 76 of the Transport Infrastructure Act 1994.

Provisions for fatigue management and mandated rest breaks for heavy vehicle operators are regulated by the National

Heavy Vehicle Law (Queensland) 2014.

2. Context

2.1 Purpose

RFFs provide opportunities for road users to access quality facilities which provide fuel/energy sources and services. A

key aim of strategically located RFFs is to encourage drivers to break their journey to avoid driver fatigue. Poorly

designed or located RFFs have the potential to adversely impact the safety, functionality and operational efficiency of the

SCR network.

The intent of this policy is to facilitate the safe, integrated and efficient use of highways and motorways on the SCR

network by ensuring commercial fuel operators deliver services and facilities to benefit road users across Queensland.

This policy sets minimum requirements for RFFs and outlines the parameters under which TMR will consider support for

RFFs on the SCR network.

2.2 Background

TMR plans, builds and maintains Queensland’s road, rail, freight and maritime infrastructure while managing the use of

our transport system through regulatory services. TMR’s vision is to create a single integrated transport network

accessible to everyone.

The use of the transport network by third parties for purposes of an RFF needs to balance:

• the safety and efficiency of the road network

• a quality customer experience

• the best value investment in facilities which support the transport system of the future.

2.3 Objectives

The objectives of this policy are to:

• support road safety

• support Queensland’s economic development

• enable the movement of people and goods across the state

• maintain the efficiency of traffic movements on the network by permitting access to the network



• sustainably manage the costs of maintaining, operating and extending the network.

3. Operator Agreement

An RFF can be established through the recognition of an existing facility or as an open tender process facilitated by TMR.

The outcome of the tender process is an Operator Agreement between the facility operator and TMR. The Operator

Agreement sets out the requirements for facilities and services to be provided (refer section 4).

4. Categories of facility

RFFs must be customer centric. All categories of RFF must be designed to encourage all road user groups to break their

journey. There are 4 categories of RFFs, with each category being required to provide a specified level of service. The

category will also influence the level of access and other benefits allowed by TMR.

The design of the facility will depend on the local context, but at a minimum, all RFFs must provide:

• fuel services

• public toilets

• rubbish bins

• shaded seating area (may be indoor or outdoor but must be free to use)

• separate parking for heavy and light vehicles.

Refer to Table 1 for a description of the service requirements for each category of RFF.

4.1 Category 1 Roadside Fuel Facility/ Service Centre

The highest order of RFF providing a full suite of services for all road users. An RFF must provide all required services

outlined in Table 1 to be considered a Category 1 Facility and to receive the benefits of this level of facility. Access from

limited access roads will be considered for this category of facility.

4.2 Category 2 Roadside Fuel Facility/ Remote Service Centre

A high order RFF based in a remote area with the benefits of a Category 1 Facility but a lesser requirement regarding the

type of services that must be provided. Access from limited access roads will be considered for this category of facility.

4.3 Category 3 Roadside Fuel Facility/ Service Station

A mid-range RFF which provides basic services for all road users.

4.4 Category 4 Roadside Fuel Facility/ Unattended Facility

A Category 4 RFF is fully automated with no staff presence. Unattended facilities are required to accommodate light and

heavy vehicles and must provide all required services outlined in this policy to be considered an unattended facility and to

receive the benefits of this level of facility. Unattended facilities predominately service the diesel fuel market and may not



distribute petroleum or LPG. This is due to the limitations of current technology and safety regulations. Should this

change the prohibition will be reviewed. The sale of low and zero emission energy sources will be considered on a case

by case basis.

Table 1 - Services which must be offered to meet the requirements for roadside fuel facilities

Service

Facility Category

Category 1

Service Centre

Category 2

Remote Service Centre

Category 3

Service Station

Category 4 Unattended

Facility

Essential Desirable Optional Prohibited

Available 24 hours / 7 days all facilities

Rubbish Bins

Outdoor seating (shaded)

Car and motorcycle parking (short term)

Cars towing caravans, boats or trailers parking (short term)

Heavy vehicle parking (short term)

Available as per hours of operation

Public toilets

Sale of diesel

Sale of petroleum and LPG

Provision for sale of low and zero emission energy sources

Convenience items (packaged food and basic car maintenance) – vending machine for unattended facilities

Heavy vehicle parking (long term)

Infant change facilities

24-hour, 7-day operations all services

Shower and wash facilities

Heavy vehicle rest facilities (i.e. lounge, laundry)

Food retailers

Indoor seating area

Outdoor play area

Communication services – (e.g. Wi-Fi) including charging stations for mobile devices



Service

Facility Category

Category 1

Service Centre

Category 2

Remote Service Centre

Category 3

Service Station

Category 4 Unattended

Facility

Accommodation To be consulted on

To be consulted on

To be consulted on

To be consulted on

Emergency services vehicle parking

Coach parking (short term)

Drive thru facilities (where they can be shown not to impact on ingress/egress)

To be consulted on

To be consulted on

To be consulted on

Note: Where an operator has provided facilities, the operator is responsible for maintaining those facilities.

5. Operator benefits

Operators that enter into an Operator Agreement with TMR to operate an RFF and meet all the requirements of the policy

will be:

1) provided access to the SCR traffic stream

2) included in TMR publications

3) eligible to apply for signage as detailed in Table 2.

Table 2 - Operator benefits

Operator benefits Category 1: Service Centre

Category 2:

Remote

Service Centre

Category 3:

Service Station

Category 4: Unattended

Facility

Identification on official white on blue TMR signage including logos (as available)

To be considered after testing with stakeholders




Identification on official white on blue TMR signage with “Service Centre” and service symbols (as space allows)

Available Available Not available Not available

Identification on official white on blue TMR signage with service symbols

Available Available Available *Available -

“diesel only”

Identification in appropriate TMR publications

Available Available Available

*Available -

“diesel only”

Access from a limited access road may be considered

Available Available Not available Not available

*Signage for Category 4 Facilities must specify the type of fuel/energy that is available at these facilities.

6. Fees and charges

All RFFs must provide and maintain at no cost to TMR:



• fuel services

• public toilets

• rubbish bins

• shaded seating area (may be indoor or outdoor but must be free to use)

• separate parking for heavy and light vehicles.

RFF Operator Agreements are entered into by TMR to provide a commercial opportunity for private enterprise. As such,

RFFs must operate at no cost to TMR. TMR does not contribute to the establishment or ongoing provision of any facilities

and services required under this policy.

RFF Operator Agreements may include a fee component for use of the road corridor and for access to the traffic stream.

If an application for roadway signage is successful, operators will be required to enter into an agreement with TMR.

Operators must pay for sign design, manufacturing, installation and maintenance.

Where an RFF is on land leased from TMR, at the conclusion of the lease, TMR will have the option to have the land

returned to its previous state at the cost of the lessee, including the removal of any signs.

All fees will be at a commercial rate and will increase annually in line with the government’s indexation policy.

7. Design and access considerations

7.1 Road access

Safe road access to and from an RFF is a key consideration. TMR will not approve access to an RFF unless all road

impacts of the proposed development can be avoided, managed or mitigated to maintain a safe and efficient road

network for all road users. This may require, for example, the provision of on and off ramps, acceleration and deceleration

lanes and/or protected turn lanes. The cost for the provision of this infrastructure will be met by the RFF Operator.

7.2 Limited access roads

Under section 54 of the Transport Infrastructure Act 1994, SCRs may be declared limited access roads. To preserve the

intended high standard of performance, through function and safety on limited access roads, opportunities for access to

adjacent land for the operation of an RFF will be limited and will only be considered for Category 1 and Category 2

facilities.

7.3 Provision for low and zero emission vehicles

RFFs are to make full use of opportunities for innovative design and provision of services. Category 1 facilities must be

constructed in such a way as to not impede the addition of low and zero emission vehicle energy sources such as electric

vehicle fast charging, hydrogen and biodiesel.

This equipment may be provided by another entity.

7.4 Parking

Parking areas for RFFs must ensure the provision of a safe and efficient parking system for all vehicles using the facility

and minimise opportunities for harm to vulnerable users.



The parking standards specified in the Australian Standards must be achieved for all RFFs. The number of parking

spaces required for each vehicle type will depend on local conditions, the size of the facility and relevant planning scheme

requirements. All parking must be contained within the boundaries of the facility and parking for heavy and light vehicles

must be separated.

Allocated parking must be provided for the following vehicle types:

• cars

• motorcycles

• cars towing caravans, boats or trailers

– both short term and overnight parking where appropriate

• heavy vehicles (including B-doubles where the SCR forms a part of a B-double route)

– both short term and overnight parking.

7.5 Pedestrian safety

The design of RFFs must minimise the potential for conflict between pedestrians and vehicles both entering and within

the RFF.

7.6 Rest areas

TMR may support the development of RFFs within or adjacent to TMR rest areas. Proposals will be considered if a

proponent can demonstrate that their facility would improve the customer experience, continue to allow road users access

to free facilities, and encourage drivers to break their journey.

Operators of such facilities will be required to enter into an agreement with TMR. Such an agreement must include

provision for fees to the Chief Executive of TMR, and requirements addressing the minimum level of maintenance for the

rest area.

8. Location

8.1 Remote facilities

When an RFF is in a remote area, a Category 2 Facility is permitted. These facilities have most of the services of a

Category 1 Facility and all the benefits provided by TMR. TMR has created this category of facility to acknowledge that

not all markets in remote areas are able to support the full range of services required of a Category 1 facility, such as 24-

hour operation.

8.2 Roadside Fuel Facilities Plans

An RFF Plan is a geographically based plan, prepared by TMR, which incorporate several of the factors relevant to the

preferred locations for RFFs.

An RFF Plan may apply to:

• an individual highway or motorway

• a network of highways and motorways



• all highways or motorways within a defined geographic region.

RFFs must be consistent with any approved RFF Plan. Not all parts of the state will have an approved plan. Any

approved plans will be available on the TMR website.

It must be noted this policy also applies to areas that do not have a published RFF Plan. For proposals where there is no

RFF Plan, or the proposed site is not included in an RFF Plan, all facility, design, access and location requirements

contained in this policy still apply.

9. Signage

RFF operators are eligible to apply for identification on official TMR signage, including advance signage, where the

required service level of the RFF is provided and maintained.

The aim of RFF signs is to guide road users to their destination; not to market businesses. Section 5 (Operator benefits)

details the signs which can be made available to each category of facility.

Roadway signage will only be considered where, among other conditions:

• road safety and efficiency will not be compromised

• roadside space permits; and

• the facility is either on, or near, the SCR.

Eligible facilities can apply for signage on-line via the Queensland Government Business and Industry Portal

www.business.qld.gov.au/industry/tourism.

10. Types of proposal

Proposals for RFFs may be:

• Proponent led: A proponent may approach the relevant TMR District Office. Proposals must be consistent with this

policy and any RFF Plan in effect.

• TMR led (Commercial): TMR may release sites on TMR land suitable for RFFs to the market to be developed by

proponents.

11. Conclusion of tenure

At the conclusion of the lease of TMR land, TMR is to have the option to either:

• have the land returned to its previous state at the cost of the lessee, or

• have the facility left in good condition for use at TMR’s discretion.

12. Maintenance and works

TMR does not accept responsibility for the maintenance, loss, damage or removal of RFF infrastructure. Where TMR

works impact directly on RFF infrastructure, TMR will where possible, safely and carefully relocate the structure away

from the work area for the duration of the works and then replace it at the conclusion of the works at the original location.

Care will be taken to minimise damage to the structure.



If the structure obstructs the completed works, including maintenance works (such as mowing) the structure may be

moved to a new location or removed.

If structures are assessed as road safety hazards, relocation or removal must occur in a safe manner and at the cost of

the owner of the structure.

13. Compliance, monitoring and reporting

TMR will maintain and monitor the RFF Operator Agreement and will take any necessary action to rectify breaches.

14. Transitional arrangements for existing facilities

An existing facility is a facility which has some or all services or facilities required of an RFF but does not have an

Operator Agreement with TMR.

An existing facility may choose to apply to be an RFF where it provides the appropriate services.

15. Appeal and review

Internal and external reviews and merit-based appeals are available for applicants affected by decisions made regarding

the approval of RFFs.

16. Review

This policy will be reviewed on an as needs basis.

17. Associated policy

This policy does not circumvent, override or provide any concession on any relevant federal or state legislation or local

government law which applies to RFFs or their approval processes.

This policy fits within a broader context and framework of TMR standards, guidelines and policies and has relationships

with a number of other policies and guidelines that make up the policy landscape of TMR. As shown in Figure 1, this

policy sits as part of a suite of policies and guidelines that relate to the management of the road corridor, whilst also

having connection to other policies and guidelines relating to:

• access to the SCR network

• signage

• fatigue management

• road design.



Figure 1 - Context for policy and supporting documents



This policy is part of a suite of documents which support the interpretation and implementation of the policy as shown in

Figure 2.

This document should be read together with:

• Access Policy for Service Centres on Limited Access Roads

• Rest Areas and Stopping Places – Location, Design and Facilities

• Vehicular Access to State-controlled Roads Policy

• Guideline to Traffic Impact Assessment

• Manual of Uniform Traffic Control Devices

• Road Planning and Design Manual.

Figure 2 - Relationship of supporting documents



18. Glossary

Term, abbreviation or acronym Description

Advance Signs Signs on high speed roads which give advanced warning of services. The location and design of advance signs are outlined in the Manual of Uniform Road Traffic Devices.

Annual Average Daily Traffic (AADT) This is a measure used in transport engineering and transport planning. It is the total volume of traffic on a road for the year divided by 365 days.

Carriageway The traffic lanes and road shoulders. In the case of a divided road the area between the two carriageways is also the carriageway.

Direct Access A direct connection of a facility’s road access to the through carriageway of a road.

Franchised roads A road to which a road franchise agreement applies, and includes facilities identified in the road franchise agreement that are on or adjacent to the road and relate to the operation or servicing of the road or facilities for road users.

Fuel For purpose of the policy, fuel means anything including petroleum products, Liquid/Liquefied Petroleum Gas (LPG) or electricity that is used to power a motor vehicle

Guideline for the Design of Roadside Fuel Facilities (RFF Guideline)

A TMR guideline that sets the design expectations of TMR in relation to the performance of RFFs, outlines parameters within which TMR will assess applications for RFFs and provides assistance to other parties, such as local government, which are responsible for the assessment of the planning merits of RFF development proposals.

Heavy Rigid Vehicle (HRV) Heavy rigid truck of more than 8-tonne gross vehicle mass with more than 2 axles.

Highway A state-controlled road which provides a link within and between regions providing connections between principal and key regional centres, carrying long-distance traffic movements, especially freight. These roads serve a similar purpose as motorways but carry less traffic. They provide a high standard of driving conditions and can have two to four or more traffic lanes, sometimes divided, and have visible line markings. Highways typically carry medium-high volumes of traffic (10-100,000 AADT in urban areas, and 1,000-80,000 AADT in rural areas). These roads feature a speed environment of between 80-110km/h.

Limited Access Road A state-controlled road, or part of a state-controlled road, declared to be a limited access road pursuant to Transport Infrastructure Act 1994 section 54 that has been gazetted as such under sections 56 and 57.

Low and Zero Emission Fuel Source A fuel source which results in little or no exhaust gas from the vehicle utilizing it. This commonly includes electricity and hydrogen but may include any number of fuel sources.

Motorway A state-controlled road that is declared under section 27 of the Transport Infrastructure Act 1994, or a road or land that is intended to become a motorway (and TMR has notified the local authority in writing of this intention). Motorways form part of the main links between primary regional centres (capital cities), or between primary regional centres and principal regional centres (major cities), carrying long-distance freight and passenger traffic. These roads provide a consistently high standard of driving conditions, with divided carriageways, typically four or more traffic lanes, with sealed shoulders and line markings that are easily visible in all weather conditions. Motorways carry high volumes of traffic (often 80,000+ AADT), have a speed environment of 80-110km/h.

Operator Agreement An agreement between TMR and an RFF operator that outlines conditions and requirements for a facility in line with any regional RFF plan, RFF policy and RFF Guideline.

Parking – Short Term Parking of up to 4 hours.

Parking -– Long Term (Overnight) Parking for a maximum of 20 hours. Long term parking is only available where it is considered appropriate for safety reasons. Signage will indicate where this can occur.

Permitted Road Access Location A permitted road access location granted under section 62(1)(a) Transport Infrastructure Act 1994. Refer to “Road Access Works” below.

Planned Upgrades All future planning should be considered when preparing a RFF Plan however only planning projects recognised as a Category C (Protected Planning) or Category D



Term, abbreviation or acronym Description

(Protected and Funded Planning) as per the Approved Planning Policy (July 2014) can be reflected in the RFF Plan through the mapping and supporting words.

Remote Area For purposes of this policy a remote area is any area other than the SEQ regional plan area, Pacific Coast Way and state strategic touring route.

Rest Area The formal rest area network includes rest areas provided by TMR and other organisations. These include motorist rest areas, Driver Reviver locations, heavy vehicle rest areas and dual-use rest areas for both motorists and heavy vehicle drivers.

They are provided specifically for the purpose of rest and short-term breaks and are published in the Guide to Queensland Roads. These sites are intended to supplement locally-provided facilities and commercial opportunities where available.

Roadside Fuel Facilities Plan (RFF Plan) A geographically based plan, prepared by TMR, which identifies zones or sites within which an RFF may be supported by TMR and identifies the facilities required in a region, including existing zones or sites and potential zones or sites for Roadside Fuel Facilities including unattended facilities along with existing facilities noted but not endorsed in the RFF plan. An RFF Plan can be prepared for an individual road corridor, a network of state-controlled highways and motorways or a TMR District or Region in its entirety; depending on the needs of the individual office.

The RFF plan will identify zones or locations where the chief executive may permit the development of RFFs and any restrictions, conditions or limits on the number of facilities permitted. It will be used to formulate required gazette notices consistent with Section 54 of the TIA.

Road Access Works For the purposes of this policy as specified in Schedule 6, section 62 and section 33 respectively of the Transport Infrastructure Act 1994. Refer to “permitted road access location” above.

Roadside Fuel Facility (RFF) This means a business supplying fuel and other services and facilities to travellers and located adjacent to or near state-controlled roads (SCRs) which are recognised as highways or motorways. In this policy a Roadside Fuel Facility can be a Category 1 Facility (Service Centre), Category 2 Facility (Remote facility), Category 3 Facility (Service Station) or a Category 4 (Unattended facility).

Rural Area

All areas with roads which are not triggered by the Urban class parameters below including remote areas.

Service Centre Sign Official white lettering on a blue background service sign. The guideline for service signs on state-controlled roads provides further information on service signs including service centre signs. The Manual of Uniform Road Traffic Devices is also used to regulate services signs to ensure road safety is maintained.

Applications to install services signs within a state-controlled road corridor must be lodged using the following online application tool:

Service signs application form: www.business.qld.gov.au/industry/tourism/applying-service-sign.

State Assessment Referral Agency (SARA)

The agency that assesses development applications.

State-controlled roads (SCR) A road or route, or part of a road or route, declared by gazette notice to be a State-controlled road under section 24 (1) of the Transport Infrastructure Act 1994.

TIA Transport Infrastructure Act 1994. The objective of the Act is to provide a regime that allows for and encourages effective integrated planning and efficient management of a system of transport infrastructure.

TMR/Department The Queensland Department of Transport and Main Roads, or any future department that may undertake the responsibilities of the sections of the Transport Infrastructure Act 1994 mentioned in this document.

Department of Transport and Main Roads' Region and Districts

Refer to TMRs’ website for information about Transport and Main Roads' Regions and Districts.

Urban Area

Urban Centre Locations (as defined by the Australian Bureau of Statistics) with a residential population density above 50 people/km2, and with an area land use of Residential, Commercial, Industrial, Education and Hospital/Medical.



Documents

Roadside Fuel Facilities Policy - ACAPMAg · vehicles at Category 1 and Category 2 facilities. Sustainable: the provision of RFFs is to assist TMR in its delivery of best value investment