Transportation Planning Casebook/Westconnex - What Went Wrong

Summary

WestConnex is a significant road infrastructure project in Australia and is considered a crucial part of a larger effort to improve the transportation system in Sydney and Australia. This project spans about 33 km and has built approximately 26 km of tunnels between Homebush and Kingsgrove, running beneath Inner West communities such as Haberfield and St Peters. Along with the NSW Government's unprecedented investment in public transportation infrastructure, WestConnex aims to reduce traffic congestion, create many job opportunities, and connect communities.

The origins of the WestConnex project can be traced back to early planning initiatives such as the Cumberland County Plan of 1948. This plan aimed to establish a network of radial motorways that would revolve around the Central Business District (CBD) of Sydney. However, it faced opposition from the community and the government and lost its significance over time. The subsequent plans, such as the "Roads 2000" in the 1970s and the motorway projects proposed under the Labor government in the 2000s, laid the initial groundwork for the WestConnex project.

The "First Things First" strategy of 2012 was an important turning point for the Sydney motorways, where Infrastructure NSW identified the WestConnex motorway as the most significant road priority in New South Wales. The initial proposal included expanding existing motorways, constructing new tunnels, and repairing surface roads. However, the proposal lacked a direct link to the CBD. Despite some concerns and criticism, construction began in 2015, marking the beginning of several stages aimed at improving traffic flow, connectivity, and travel times.

Over the years, with modifications to the initial proposals, major portions of the project, including the M4 Tunnels and WestConnex M8, was completed, allowing drivers to save significant time. However, the project faced several challenges, such as criticism for its high cost, environmental impacts, and community health concerns. The completion of the Rozelle Interchange, which is a crucial milestone especially for future projects such as the Western Harbor Tunnel and Sydney Gateway, also resulted in traffic congestion, causing inconvenience to the commuters. Additionally, the tolling system raised concerns regarding affordability and fairness, with commuters potentially having to pay high tolls.

Overall, the WestConnex project is a significant development in Sydney's infrastructure that is expected to transform the city's transportation system. The project has implemented various proactive solutions, including design alterations, emergency works, and improved transparency. Moving forward, the project will continue to progress with proposals for the Western Harbor Tunnel, Sydney Gateway, and the M6 Stage 1 and Stage 2 Motorways, with the aim of enhancing Sydney's transportation network and reducing congestion. As Sydney grows and evolves, WestConnex will remain an essential component of the city's infrastructure plan, shaping the future mobility and connectivity of New South Wales.

List of Actors

Sector	Actor/Organisation	Description
NSW Government	Roads and Traffic Authority	This authority enabled the RTA to manage the project efficiently, ensuring that the necessary roadworks were carried out to meet the project's infrastructure requirements​.
NSW Government	Roads and Maritime Service	Took over functions from the former Roads and Traffic Authority and was responsible for the planning, managing, and overseeing of the WestConnex project, including compliance with road infrastructure and safety regulations​.
NSW Government	Transport for NSW	Managed key project components, such as the Rozelle Interchange and Iron Cove Link, and significantly integrated WestConnex into the broader Sydney transport network​.
NSW Government	Planning NSW	This government body was involved in the approval and regulatory oversight, ensuring that the project met state planning requirements and environmental standards​.
Local Government	Cumberland County Council & City of Sydney Counci & Inner West Council	These councils participated in the local planning processes and dealt with community concerns about construction impacts like noise and traffic disruptions​.
Social Organision	NRMA	The organization supports the project because it aims to enhance transportation in Sydney's west, significantly cut travel times, and fulfill a plan dating back to 1947.
Private	Land Owners	They were directly affected by compulsory land acquisitions necessary for the project, playing a crucial role in the negotiation and compensation processes​.
Private	Sydney Transport Partners	This company owns Westconnex and is comprised of Transurban (50% stake), Australian Super, the Canada Pension Plan Investment Board, Platinum Tawreed Investments (a subsidiary of the Abu Dhabi Investment Authority) and Caisse de depot et placement du Quebec (a Quebec based global investment group).
Private	Transurban	As the primary private partner, this company was involved in financing, constructing, operating, and maintaining the motorway sections of WestConnex, including managing toll operations​.
Private	Local Residents	Faced direct impacts from construction activities, such as increased local traffic and environmental concerns. They participated in community consultations and addressed issues related to living near construction sites.

Timeline of Events

Date	Description of Key Events
1948	The first comprehensive plan for the Sydney motorways is proposed in the Cumberland County Plan.
1951	The NSW Government adopts the Cumberland County Plan.
1976	Premier Neville Wran halted work on inner-city projects, scaled back the under-construction Eastern Suburbs railway line and eliminated a number of the Cumberland Plan's inner-city road reservations.
1987	The Department of Main Roads released Roads 2000, which shifted the focus of motorway planning from completing the CBD-centric radial system and addressed the growing number of cross-suburban vehicle journeys instead.
1992	The Western Motorway (M4), was completed from Lapstone to Concord.
1995	The South-Western Motorway (M5), reached from Prestons to Beverly Hills.
2001	The motorway was opened, but it was too steep for laden trucks returning from Port Botany, significantly increasing vehicle emissions and frequently overwhelming the ventilation system.
July 2002	The M4 East scheme proposed three options.
2003-2004	The short tunnel option was preferred for M4 East due to its lower costs.
2004	The government considered the Marrickville Tunnel scheme.
2005	Decision not to proceed with the M4 East proposal was made due to community opposition concerning potential congestion.
March 2007	The government made claims about the plans for the Inner West Motorway.
October 2007	Proposal of the '3-in-1' tolled motorway was adopted, including the M4 extension to the CBD via the Anzac Bridge.
2009	The government released the M5 Transport Corridor Feasibility Study, which investigated strategic options for improving the M5 Motorway corridor.
November 2009 - March 2010	Strategic concept for the M5 East Duplication placed on public exhibition for community and stakeholder feedback.
2010	The consultancy Evans & Peck made a proposal for the Inner West Bypass.
September 2012	The WestConnex concept was first developed by Infrastructure NSW as part of the State Infrastructure Strategy 2012 which identified the expansion and extension of the M4 corridor and expansion of the M5 East as the two highest priorities for enhancing Sydney's motorway network.
October 2012	A formal concept paper for WestConnex was prepared and coincided with the release of the State Infrastructure Strategy.
September 2013	The WestConnex Strategic Environmental Review was published which identified environmental benefits as well as key challenges associated with WestConnex and considered how those issues could be avoided, managed and/or mitigated during project development and delivery.
October 2013	The NSW Government established the WestConnex Delivery Authority to lead the delivery of the project.
November 2013	Transport Administration (General) Amendment (WestConnex Delivery Authority) Regulation 2013 commenced to constitute WestConnex Delivery Authority as a public subsidiary corporation of Roads and Maritime Services and to enable the corporation to exercise certain functions of RMS (primarily under the Roads Act 1993) in relation to the delivery of the WestConnex program of works in Sydney.
November 2013	The Director General's Environmental Assessment requirements were issued for the M4 Widening.
November 2013	The State Significant Infrastructure Application Report for the M4 East was lodged.
January 2014	The original Director General Environmental Assessment requirements were issued for the M4 East component of WestConnex.
July 2014	Public Authorities (Financial Arrangements) Amendment (Sydney Motorway Corporation Pty Ltd) Regulation 2014 was passed to include Sydney Motorway Corporation Pty Ltd and its subsidiaries in the definition of controlled entity in the Public Authorities (Financial Arrangements) Act 1987.
August 2014	The Sydney Motorway Corporation, a State-owned incorporated company, was set up separately to the WestConnex Delivery Authority to organise the financing of WestConnex.
November 2014	Infrastructure NSW recommended in its State Infrastructure Strategy Update that final business cases be developed for north and south extensions of WestConnex by the end of 2015.
November 2014	The original M5 State Significant Infrastructure Application Report was lodged.
December 2014	The WestConnex M4 Widening was approved by Minister for Planning Pru Goward.
March 2015	The Secretary's Environmental Assessment Requirements issued for the new M5.
March 2015	Construction commenced on the M4 Widening.
June 2015	Amended Secretary's Environmental Assessment Requirements were issued for M4 East component of WestConnex.
September 2015	Plans were revealed by WestConnex Delivery Authority to build the interchange on a former landfill site in St Peters.
December 2016	M5 Interchange at King Georges Road (King Georges Road Interchange) upgrade was completed.
July 2017	M4 Western Motorway (M4) widening was completed.
July 2019	The construction of Westconnex M4 tunnels is completed.
July 2020	The construction of Westconnex M8 tunnels is completed.
January 2023	The M4 and M8 are extended to create a connection.
November 2023	The Rozelle Interchange is opened to the public.
December 2023	A second lane for 400 meters where the City West Link merges with the new Crescent Overpass before Anzac Bridge was added.

Locations

Westconnex Network Map

Policy Issues

Funding Mechanisms

Public / Private Funding

The WestConnex project was initially funded through a hybrid model of financing which included an initial contribution from the NSW and Australian Government, alongside private sector debt and tolling revenue. A new Government owned corporation, the Sydney Motorway Corporation was set up in 2014 in order to finance and deliver WestConnex.

Initial investment into the government owned corporation included:

• $1.8 billion from the NSW Government

• $1.5 billion grant from the Australian Government

• $2 billion concessional loan from the Australian Government

• $3.2 billion in private sector financing

After the delivery of the initial stages of WestConnex, the New South Wales government in 2018 sold a 51% stake in the Sydney Motorway Corporation for $9.26 billion, raising money from project equity which could be invested into the later stages of the project. In September 2021 the remaining 49% of the Sydney Motorway Corporation was sold to the Sydney Transport Partners consortium for an additional $11.11 billion.

Tolling Strategy

By purchasing the Sydney Motorway Corporation, the Sydney Transport Partners gained access to guaranteed tolling concessions. These concessions provide guarantees around the ability to raise tolls on the WestConnex motorway through to the end of 2060.

Westconnex (excl. M5 West)	Values in 2019
Toll rate	$0.49 per kilometre
Toll cap	$9.30
Truck multiplier	3x
Escalation - prior to 31 December 2040	Greater of CPI or 4% per annum (escalated on 1 January each year)
Escalation - post 31 December 2040	Greater of CPI or 0% per annum (escalated on 1 January each year)
Concession term expiry	31 December 2060
M5 West	Values in 2019
Toll rate in 2019	$4.74
Truck multiplier	3x
Escalation	Greater of CPI or 0% per quarter
Concession term expiry	31 December 2060

NSW Government Strategic Objectives

When recommending the delivery of the WestConnex project in 2012, Infrastructure NSW proposed the following objectives:

• Improved access and connections to Western Sydney and key employment hubs across the city.
• Relieve road congestion to improve the reliability and safety of travel in the M4 and M5 corridors).
• Create opportunities for urban renewal, improved livability and public and active transport improvements along and around Parramatta Road.
• Shifting through traffic and heavy vehicles to underground motorways and returning local streets to local communities.
• Enhanced productivity for commercial and freight-generating land uses located along the WestConnex corridors.
• Optimize user-pays contributions in a way that is affordable, equitable and fair.

Narrative

Early Planning

Cumberland County Plan

Country of Cumberland Planning Scheme

The Cumberland County Plan, which led to the development of WestConnex, was the first comprehensive plan for the Sydney motorways. The plan was proposed by the Cumberland County Council in 1948 and adopted by the New South Wales government in 1951. Its objective was to establish a radial motorway network centered around the Central Business District (CBD) of Sydney which advocated for decentralization, zoning, green belts, open spaces, and improved road and rail systems. However, this vision was not fully realized.

While Sydney had a comprehensive plan for the railway system and several planned areas, including the city core, the city's expansion was primarily organic and followed a "starfish" structure in the early twentieth century. This structure closely followed the railway and tramway lines that extended from the city center. To address the postwar metropolitan growth, the McKell Labor government passed legislation in 1944 that established a unified planning authority for Sydney. As a result, the Cumberland County Council was founded in July 1945 to serve as the sole planning body of Sydney.

The plan faced opposition from NSW Government agencies, landowners, and local citizens and lost its patron when the county council was abolished in 1963. In 1976, with the election of the Australian Labor Party under Premier Neville Wran, the plan lost its relevance which resulted in halting of work on inner-city projects, reducing the under-construction Eastern Suburbs railway line, and eliminating many of Cumberland Plan's inner-city road reservations. Though Wran's choice to sell up the M4 East corridor was later questioned, the Cumberland Plan's radial design was already beginning to lose relevance.

Roads 2000

In 1975, the Commonwealth Bureau of Roads proposed a significant investment in the construction of urban arterial roads to address the urban requirements. However, due to economic constraints in the late 1970s and early 1980s, this proposal was not supported by the state or federal governments. Consequently, the existing urban road difficulties threatened to halt the smooth functioning of Sydney by 1987. To address this issue, the Department of Main Roads proposed to revive the motorway plans..

The resulting state-wide planning program, "Roads 2000," aimed to re-sheet highways, replace bridges in rural regions, and implement new traffic controls. Its most ambitious project, the orbital, was a new freeway/motorway route around Sydney that would connect all of the radial and intercity highways while bypassing the congested urban areas. The Western Motorway (M4), from Lapstone to Concord, was completed in 1992, and the South-Western Motorway (M5), from Prestons to Beverly Hills, was completed in 1995. However, the M5 East segment of the orbital, which connects Beverly Hills and the airport, remained debated. Though a surface corridor had been reserved for much of the route, the Labor government was concerned about minimizing surface damage. Following last-minute design changes, the resulting roadway that opened in 2001 still was too steep for heavy trucks returning from Port Botany, which led to an increase in vehicle emissions and overloaded ventilation systems.

Labor Proposals from the 2000s

The Labor government proposed several Sydney motorways during the 2000s.

Proposed Motorway	Connectivity	Timeline
M4 East (Basis for the M4 East concept design in the WestConnex project)	The M4 East scheme proposed three options with the below connectivities: Short tunnel option: A 3.6-km tunnel between the M4 at Concord and City West Link and Parramatta Road at Haberfield. Long tunnel option: A 6.5-km tunnel between the M4 at Concord and City West Link at Lilyfield. Slot option: A sunken trench road between the M4 at Concord and Parramatta Road at Haberfield.	July 2002: Proposal of the M4 East scheme with three options. Between 2003 and 2004: Presentation of the preferred short tunnel option for M4 East due to its lower costs. Early 2005: Decision not to proceed with the M4 East proposal due to community opposition concerning potential congestion. October 2007: Proposal of the '3-in-1' tolled motorway, including the M4 extension to the CBD via the Anzac Bridge. 2009: Failure to receive funding from the 2009/10 federal budget.
Marrickville Tunnel (Incorporated into the M4-M5 Link project and the M4-M8 extensions as part of the WestConnex initiative)	The Marrickville Tunnel was proposed to connect the M4 East with Mascot, creating a direct route for traffic between Port Botany, Sydney Airport, and South Sydney. One of the options considered was a truck-only tunnel for freight transportation between the port and airport to north-western Sydney. The tunnel was to be built under Sydenham Road, connecting Parramatta Road in Lewisham to the Princes Highway in St Peters.	2004: Consideration of the Marrickville Tunnel scheme by the government.
Inner West Motorway (Dismissed by the government or remained as proposals)	The two motorways were proposed in the Inner West region: Inner West Motorway: A motorway between St Peter's and City West Link and Victoria Road via Enmore, Stanmore, Camperdown, and Annandale. Inner West Bypass: A bypass connecting a tunnel following Victoria Road and the cancelled Lane Cove Valley Expressway, joining the M2 Hills Motorway at Lane Cove. Another tunnel proposed to follow the Pacific Highway and join the F3 Sydney-Newcastle Freeway.	March 2007: Claims made about the plans by the government for the Inner West Motorway. 2010: Proposal for the Inner West Bypass by consultancy Evans & Peck.
M5 Duplication (Evolved into the King Georges Road Interchange Upgrade and New M5 projects as part of the larger WestConnex initiative)	M5 East Duplication: A proposal duplicating the M5 East and constructing a new connection from the M5 East at Arncliffe to Euston Road, Qantas Drive, and Gardeners Road.	2009: Release of the M5 Transport Corridor Feasibility Study by the government. November 2009 - March 2010: Strategic concept for the M5 East Duplication placed on public exhibition for community and stakeholder feedback.

"First Things First" Strategy of 2012

The Sydney Strategic Road Network

The "First Things First" strategy of 2012 was a turning point in Sydney's transport planning. The Coalition government of Premier Barry O'Farrell, which was elected in 2011 with the intention of overhauling the city's transportation system, commissioned Infrastructure NSW (iNSW), led by former Premier Nick Greiner, to review projects and identify priorities. The following year, iNSW's strategy nominated the construction of a 33 km freeway, known as the "WestConnex," as the state's top road priority.

Initially, the WestConnex plan proposed:

• Widening the existing M4 between Parramatta and Homebush.
• Extending the M4 to Camperdown.
• Building a tunnel (later known as the "M4 South" or "M4-M5 Link") from Camperdown to St Peters for access to Port Botany and Sydney Airport.
• Widening the existing M5 East.
• Improving surface roads around the port and airport.

Despite its emphasis on travel to and from Botany Bay's international ports, the proposal lacked a direct link to the CBD, limiting the federal investments.

Further Improvements and Alterations

In 2013, the WestConnex project was separated into three sections: M4 Widening, M4 East, and M5 East Airport Link, with additional stages planned to complete the inner-city bypass. The initial concept was further modified in late 2014, particularly for the M4-M5 Link, which included realignments to enable a future second harbor road tunnel as well as improvements such as the Rozelle Interchange and a tunnel beneath Rozelle to bypass Victoria Road congestion.

Construction Phase

Time to Start Property Acquisition and Construction

Property acquisition and construction work for the WestConnex project began in 2015. Specifically, construction of the M4 widening began in March 2015, marking the start of actual construction on the project.This phase of work includes widening the old M4 Western Motorway from Parramatta to Homebush Bay to four lanes from its original two or three lanes, and a new three-lane tunnel from Homebush to Haberfield.

Public and Political Reaction

The WestConnex project has been met with widespread public and political reaction, including questions about the project's cost, expected traffic mitigation effects and concerns about environmental and community health impacts. Specifically, criticisms regarding health impacts have focused on the underestimation of health impacts during the planning process, with impact assessments on air quality and noise in particular being seen as inadequate.

In addition, the City of Sydney City Council clearly opposes the WestConnex project, believing that this project fails to solve Sydney's transportation connectivity problems and may lead to increased air pollution and traffic congestion. The city government also pointed out that the total cost of the project may be as high as A$45 billion and will have a minimal impact on most people's commuting time savings, while also increasing the financial burden on citizens due to high tolls.

Trade-offs and Design Changes during the Construction Phase

In 2016, Transport for New South Wales revised the conceptual design of the M4-M5 Link Road and Rozelle Interchange to better integrate existing roads and communities. These modifications are designed to reduce the impact on surrounding communities while optimizing traffic flow and reducing congestion on major roads, without increasing the overall cost of the project.

These design changes include realigning the route to reduce disruption to residential areas and adding sound insulation to reduce noise pollution during construction and operation. In addition, the design adjustments to the Rozelle Interchange include more public spaces and green areas to enhance the quality of life for the surrounding community and strive to minimize environmental impact.

Contract and Management Innovations

Significant innovations in contract management and procurement helped accelerate the project timelines. For example, the M4 East segment benefitted from an accelerated procurement strategy that allowed for faster contract awards and construction commencement, which was crucial in meeting tight deadlines.

Westconnex Opening

Major stages

The M4 Tunnels

The first major stage of WestConnex were completed in July 2019, linking to the widened M4 motorway and Haberfield. Motorists on this section of WestConnex are saving an average of 35 minutes on their westbound peak time journey compared to Parramatta Road.

WestConnex M8

The second stage of WestConnex, open since July 2020, doubles the capacity of the M5 East via twin 9km tunnels. The tunnels cut up to 30 minutes off a trip between Liverpool and the southern CBD.

The new extensions of the M4 and M8

The third stage of WestConnex opened in January 2023, linking the M4 at Haberfield with the M8 at St Peters.

The Rozelle Interchange

The final stage of WestConnex opened to traffic in November 2023. It connects the M4-M5 Link to the Anzac and Iron Cove bridges, and the future Western Harbour Tunnel and Beaches Link. The Rozelle Interchange is being built almost entirely underground, freeing up space for a new regional park.

Issues and solutions

After the Rozelle Interchange was delivered, some issues appeared. As a result of the new junction, 10 lanes of traffic now have to merge into four lanes on the Anzac Bridge. Instead of bringing convenience to the public, the project has caused traffic bedlam. Therefore, people called it the labyrinthine "spaghetti" junction, the world's most complex underground.

On 4th December, 2023, emergency works were carried out to improve "pinch points" on Sydney's Rozelle interchange, which will add a second lane for 400 meters where the City West Link merges with the new Crescent Overpass before Anzac Bridge. In February, 2024, The NSW Government responded to community calls for greater transparency around the Rozelle Interchange, with the release for the first time of travel time data to help motorists plan their trips.

Future Plans

Western Harbour Tunnel

The Western Harbour Tunnel is currently under construction and will provide a third road crossing point of Sydney Harbour and will provide a western bypass of the Sydney CBD. Some of the traffic from Westconnex entering the Rozelle Interchange will be diverted from the Anzac Bridge and be able to travel directly across the harbour into North Sydney or from North Sydney directly to the inner west, bypassing the Sydney CBD.

Sydney Gateway

The Sydney Gateway project is currently under construction and will provide a connection from the WestConnex motorway at St Peters to the domestic and international Sydney Airport terminals. It will also provide more connectivity from Port Botany into the motorway network for road freight.

Alongside the motorway project the freight rail line between Port Botany and Mascot has been duplicated to provide additional freight rail capacity, and contribute to reducing the number of trucks on Sydney roads.

M6 Stage 1 Motorway

The M6 stage 1 motorway project is currently under construction and will connect the Westconnex M8 at Arncliffe to the A1 at President Avenue in Kogarah via an underground tunnel. The aim of the project is to provide a more direct connection from southern Sydney into the wider motorway network. It is also intended to reduce traffic on surface streets (particularly heavy vehicles).

The project also incorporates a road/tunnel stubs to allow for the future extension of the M6 tunnels.

M6 Stage 2 Motorway

The M6 Stage 2 project is a planned extension of the M6 to the south which would extend the motorway network through the Sutherland Shire and connecting to the A1 motorway at Loftus. This would divert traffic (particularly heavy vehicles) from existing surface roads, and extend the motorway network to the southern urban fringe of Sydney.

The project has no committed funding or planning approvals and was shelved indefinitely by the NSW Government in June 2022, however the road corridor for the extension has been reserved since 1951.

Discussion Questions

1. How could the Sydney Motorway design have been deployed in a more effective way?
2. Is the 1948 Cumberland County Plan fit for purpose in 2024?
3. Is the current road user tolling of traffic on the motorway network consistent with the goals of the network?
4. To what extent has the WestConnex project met the Government's strategic objectives for the project?