Environmental Impact Statement Chapter 23.0 Justification and conclusion

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23.0 Justification and conclusion

This chapter summarises the justifications and conclusions presented in this Environmental Impact Statement (EIS), and provides a summary of consistency with principles of ecologically sustainable development and objectives of the Environment Protection and Biodiversity Conservation Act 1999 (Cth) (EPBC Act).

23.1 Project justification

The Project is identified as a priority project in various strategic land use and transport planning policies and supports growth planned for the City to Woden corridor.

Connecting centres over a 25 km Light Rail network (which would be achieved with the combination of Light Rail State 1 (LRS1), Light Rail Stage 2A (LRS2A) and the Project) would offer Canberra a plan to reduce predicted private vehicle based congestion, and release capacity for a broader range of road users, while improving journey time reliability for public transport users.

The Project would increase the people-carrying capacity of the City to Woden corridor, providing capacity for an additional 2,400 person trips per hour in each direction (in comparison, major avenues currently provide an estimated capacity for around 4,000 to 4,400 vehicles per hour). The Project would also enhance existing public transport services by providing a reliable and attractive option between Commonwealth Park and Woden that is less affected by forecast traffic congestion, compared to buses that share road space with general traffic.

As described in Chapter 2 (Need for the Project), the Project would assist in addressing current and future transport, land use, sustainability and liveability challenges in Canberra. These challenges include:

Traffic congestion and constraints on existing public transport: Car travel is the dominant mode of commuting to work in Canberra, and with forecast population growth, this trend is likely to continue, worsening road congestion and impacting local economic productivity. Despite the broad coverage of the Canberra's existing bus network, there is limited capacity to support a growing city and its performance will also be affected by worsening road congestion
Sustainable city development: The ACT's population is projected to exceed 750,000 by 2060, an increase of over 330,000 persons compared with 2021 data (ACT Government, 2022). Existing low residential densities and the dispersed nature of activity centres and employment in Canberra do little to improve productivity of the Canberra economy, reduce car dependency, sustain efficient public transport operations or reduce greenhouse gas emissions. Low densities result in increased car dependency, placing upward pressure on per capita costs for providing public transport and community services over larger areas and raising social exclusion and service access issues
Net zero carbon emissions: The ACT Government aims to reduce emissions by 100% from 1990 levels by 2045. High car use, combined with population growth is likely to lead to increased carbon emissions in the future if viable transport alternatives, including public transport, are not provided. Compared with public transport alternatives, private car use also contributes to other adverse environmental impacts
Wellbeing and accessibility: In 2022 Canberrans spent 70 minutes commuting to and from work on average per day. Minimising the amount of time spent travelling for work on a daily basis, and improving the reliability of travel, contributes to wellbeing. Wellbeing is also linked to social connection and social inclusion and the ability to easily travel to connect with family, friends and the community. A failure to continue to improve public transport infrastructure is unsustainable for a growing city in the long term and does not support key wellbeing and accessibility needs of the community.

These challenges, which reinforce the need for the Project, are dealt with to varying degrees by the Project. In particular, the Project provides the following benefits:

Greater access and opportunities: The Project would connect people with Canberra's lakeside, cultural institutions, festivals, education and events precincts. It would support vibrant towns and local centres which can house Canberra's growing population while limiting extra pressure on the transport network or green spaces on the edges of Canberra
Delivering a city-wide network: Canberra's population growth requires a transport network that provides choice by linking the city and suburbs. The Project would create a frequent and reliable transport option that better connects major town centres and residential employment hubs, including direct connection for North Woden and Inner South districts
Good for the environment: Light Rail Stage 1 is fully electric and connected to the ACT grid, which has been 100% renewable since 2019. Travel by light rail is free of greenhouse gas emissions, making it one of the cleanest travel options in Canberra and providing an attractive alternative to car travel
Provides an efficient transport option: In comparison to buses, light rail provides greater capacity to move passengers, making it a more efficient transportation option by moving more people with fewer vehicles
Social and economic benefits: Construction of the Project would support local jobs, while facilitating further job creation into the future. The Project would support an estimated peak construction workforce of around 900 to 1000 people (as identified in Section 6.6.2 of Chapter 6 (Construction)), as well as additional jobs during the pre-construction period (such as advisory and professional services roles), and in the Project operations phase. In operation, the Project is also estimated to deliver broader economic benefits for Canberra by improving overall productivity due to improved journey time reliability and reduced congestion delays. Design principles for the Project, including gender sensitive urban design principles, would contribute to creating attractive spaces that foster a safer and more inclusive public transport experience
Keeping Canberra competitive: Linking Canberra's north and south, the Project would support reliable and efficient transport that provides direct connections to key activity centres outlined in the National Capital Plan (NCP) and the ACT District strategies; supports building more vibrant precincts and places; encourages business growth and tourism; transports people of all abilities safely; and would support active travel over greater distances.

The implications of not proceeding with the Project means Canberra will experience an increasingly congested transport network over time, and there would be no improvement in transport connectivity, capacity or choice. The challenges outlined above would not be addressed and the social, economic and environmental benefits of the Project would not be delivered.

23.2 Ecologically sustainable development (ESD)

23.2.1 Adoption of ESD principles

The design and development of the Project has adopted Ecological Sustainable Development (ESD) principles (Section 9 of the Planning Act 2023 (ACT) and Section 3A of the Environment Protection and Biodiversity Conservation Act 1999 (Cth) (EPBC Act)) considering both long-term and short-term economic development, social development, and environmental protection. The Project's consistency with ESD principles is detailed in Section 7.5. In summary:

Decision-making processes regarding the Project have integrated long-term and short-term economic, environmental, social and equitable considerations. The Project would enhance the provision of public transport opportunities, and potential implications of not proceeding with the Project would include continued reliance on private vehicles, increased journey times on the road network, and poorer access to employment opportunities, community facilities, and social and recreational activities
The Project has and would continue to be designed and planned to incorporate initiatives which would contribute to improved intergenerational equity. Chapter 7 (Sustainability) of the EIS documents the Project's approach to sustainability. Through the ESG-integration framework, and particularly the integration of social sustainability initiatives (such as the application of gender sensitive urban design frameworks for designing safe and inclusive places), the Project would provide for the long-term well-being of communities and would respond to the social needs of the growing city into the future. In particular, the Project has considered First Nations heritage through a 'Designing with Country' process and has sought to avoid and minimise direct and indirect impacts to heritage values through ongoing design refinement and a commitment to ongoing mitigation and management. These approached promote intergenerational equity and sustainable prosperity
The conservation of biological diversity and ecological integrity has been a key consideration for the Project. Biodiversity impacts have been assessed in this EIS, with mitigation measures provided to manage the potential impacts of the Project (refer to Technical Report 2 - Biodiversity and Chapter 21 (Environmental management and mitigation measures). Opportunities for biodiversity sensitive urban design (BSUD) interventions along the light rail alignment would be considered and implemented to protect and enhance the existing biodiversity values, minimise biodiversity threats, strengthen ecological connectivity and resilience, and improve amenity outcomes. The Public Domain Master Plan (Appendix I) provides design guidance to support a Project design that is appropriately sensitive to biodiversity
Economic viability and value-for-money considerations have been accounted for in the objectives of the Project. These objectives would continue to inform the ongoing development of the Project (such as design development, feasibility studies and business case)
Chapter 21 (Environmental management and mitigation measures) outlines management and mitigation measures that aim to maintain and enhance the social, economic, and environmental outcomes for the community, through all stages of the Project-lifecycle, for the long-term benefit of future generations. Mitigation measures would be implemented in a timely matter such that environmental impacts are appropriately managed.

23.2.2 Consistency with the objectives of the EPBC Act

The Project would be consistent with the objectives of the EPBC Act as described in Table 23-1.

Table 23-1 Consistency with the objects of the EPBC Act
EPBC Act objectives	Consistency
To provide for the protection of the environment, especially those aspects of the environment that are matters of national environmental significance; and	This EIS assesses the potential impacts of the Project on the environment, including matters of national environmental significance. The Project includes appropriate mitigation measures to protect these matters and potential impacts to them.
To promote ecologically sustainable development through the conservation and ecologically sustainable use of natural resources; and	The Project has adopted ESD principles, as detailed in Section 7.5 and Section 23.2.1. Section 11.12 and Chapter 21 (Environmental management and mitigation measures) include measures to further promote ESD, including through delivery of the Project and the use, reuse and renewal of natural resources.
To promote the conservation of biodiversity; and to provide for the protection and conservation of heritage; and	The Project has been designed, and would continue to be developed to minimise impacts to biodiversity and heritage. The hierarchy of avoidance/conservation, then minimisation of impact and finally offset as a last resort has and would continue to be adopted as part of ongoing design development. Biodiversity impacts have been avoided and minimised through design and assessed in this EIS. Mitigation measures have been identified to manage potential impacts and provide for the conservation of biodiversity (refer to Technical Report 2 - Biodiversity). Opportunities for BSUD interventions along the light rail alignment would also be considered and implemented to protect and enhance the existing biodiversity values, minimise biodiversity threats, strengthen ecological connectivity and resilience, and improve amenity outcomes. The Project has been designed to avoid and minimise impacts on matters of Commonwealth and ACT heritage. Technical Report 3 - Heritage addresses the potential impacts of the Project on Commonwealth and ACT heritage and provides measures to manage these impacts. The Public Domain Master Plan (Appendix I) also provides guidance to achieve design outcomes that are appropriately sensitive to biodiversity and heritage.
To promote a co-operative approach to the protection and management of the environment involving governments, the community, land-holders and indigenous peoples; and	The approach to environmental management, as described in Chapter 21 (Environmental management and mitigation measures), allows for a co-operative approach including engagement with the public and regulatory stakeholders. Several measures commit to consultation with stakeholders to confirm the extent of impact and an appropriate management approach. Specific measures have been identified to coordinate changes to the city's transport networks, utilities and land use planning, and to identify, mitigate and manage potential cumulative impacts cooperatively with other development proponents.
To assist in the co-operative implementation of Australia's international environmental responsibilities; and	The design and planning for the Project has directly responded to Australia's international environmental responsibilities, including international obligations relating reductions in greenhouse gas emissions. The approach to environmental management, as described in Chapter 21 (Environmental management and mitigation measures) detail how the proponent would meet relevant environmental responsibilities in relation to the Project.
To recognise the role of Indigenous people in the conservation and ecologically sustainable use of Australia's biodiversity; and	As part of the design development process engagement has occurred with Aboriginal community members to identify ways to incorporate Country and culture into the Project. Design themes and recommendations developed through this process are reflected in the Public Domain Master Plan (Appendix I). This has included recommendations of relevance to landscaping and biodiversity outcomes. Landscaping has been identified as a significant opportunity to incorporate cultural knowledge and perspectives of Country. Opportunities to design with Country would continue to be identified during the Project development process (including through ongoing design development, construction planning and operations), in consultation with Aboriginal stakeholders.
To promote the use of Indigenous peoples' knowledge of biodiversity with the involvement of, and in co-operation with, the owners of the knowledge.

23.3 Conclusion

The ACT Government is committed to planning for and delivering an integrated transport system in line with the city's projected growth, thereby supporting Canberra's reputation as one of the most liveable cities in Australia and the world. As part of its transport vision, the ACT Government has proceeded with the delivery of a modern and efficient Light Rail network, integrated with other transport initiatives. The Light Rail network has been carefully planned and implemented in stages, with the first 12 km and 14 stops already in operation.

The Project would provide greater access and opportunities for Canberrans by providing direct connections to major town centres, and residential and employment hubs. In combination with the approved LRS2A, it would extend the benefits of the existing frequent and reliable transport service provided by LRS1. It is a sustainable solution that is good for the environment (100% electric and one of the cleanest travel options in Canberra) and would provide an attractive alternative to car travel. The Project would provide social and economic benefits, keeping Canberra competitive by encouraging business growth and tourism.

The benefits of light rail are clear, having been highlighted recently with the release of Light Rail Five Years On: Benefits Realisation Report 2024 (TCCS, 2024a). In the roughly five years since commencement of operations for LRS1, it has secured around 20% of all public transport patronage in the ACT and around 40% of light rail customers are new public transport customers. It has increased business growth by over 26% in the Gungahlin district and by almost 20% in the Canberra and Central district. It has delivered these benefits while also having 99.98% of services running on-time and an approximate 95% satisfaction rating from users.

A Commonwealth Joint Standing Committee (JSC) on the National Capital and External Territories inquiry was held into Commonwealth and Parliamentary approvals for Stage 2 of Canberra Light Rail. The JSC Inquiry Report recommendations were agreed, or agreed to in principle, by the Australian Government. The ACT Government resolved to pursue the State Circle East alignment as the ACT Government's preferred alignment option based on in-principle support from the Australian Government as it is wholly consistent with the Inter-Town Public Transport System (Indicative Route) map contained within the National Capital Plan, a plan endorsed by the Commonwealth Parliament, providing access to cultural institutions in the National Triangle and employment areas in Barton.

In response to the JSC recommendation that State Circle East had the in-principle support of the Commonwealth under the NCP, the ACT Government identified State Circle East as the preferred corridor and at the same time, including an alternative alignment through the National Triangle and Barton meant that if the preferred option was not feasible, for whatever reason, the need to recommence the EIS process again with an alternative alignment would be avoided.

The two alignment options have been assessed in this EIS. However, only one alignment option would be constructed. The decision on alignment option for the Project will consider factors including:

Place outcomes
Community and stakeholder feedback on the draft EIS
Potential environmental and social benefits and impacts.

The revised, final EIS will describe only one alignment option, and will identify potential environmental impacts and benefits of that option. By continuing to plan and develop the Project in a way that is sensitive to the ACT's heritage, its natural environment, and the needs of local communities and visitors, Canberrans would be the beneficiaries of a modern, sustainable transport option that would make an essential contribution to the city's liveability, well into the future.

A detailed business case would be developed following completion of necessary environmental approvals outlined in Chapter 8 (Legislation and policy). This approach enables the scope and alignment to be well defined prior to government considering an investment decision. The process would be undertaken in accordance with the Capital Framework and include consideration of technical studies, options analysis, delivery model assessment, economic analysis (including cost-benefit assessment and Wellbeing Impact Assessment) to support an investment decision.

This draft EIS is an essential step to make sure that all relevant environmental considerations and concerns are identified and considered before the Project progresses. The EIS has assessed the environmental and social impacts associated with the Project and has been prepared to address assessment requirements issued under the Planning Act 2023 (ACT) and the EPBC Act. It has also taken into account other relevant legislation, policies and guidelines.

The Project is expected to have environmental, social and economic benefits, as described in Section 23.1. While some localised adverse impacts would be unavoidable due to the nature of the construction and operation of the Project, the Project has been designed and would be implemented to avoid, minimise and/or manage these impacts as far as practicable.

Detailed mitigation measures have been identified to manage environmental impacts both during construction and operation of the Project as set out in Chapter 21 (Environmental management and mitigation measures). These measures and commitments will be adopted to avoid and/or manage the identified impacts and where relevant, will be incorporated into the construction and operation environmental management plans for the Project (as outlined in Appendix L (Environmental Management Plan outline)).

Residual impacts on biodiversity-related matters of national environmental significance from the Project would be offset, in accordance with an offset strategy (provided as an appendix to Technical Report 2 - Biodiversity). Offsetting is not proposed for other environmental aspects, which would be managed through the mitigation measures listed in Chapter 21 (Environmental management and mitigation measures) and management plans for the Project (as outlined in Appendix L (Environmental Management Plan outline)).

The Project would extend the benefits realised from LRS1 to further connect the city from the north to the south, with an additional 10 km of light rail and nine stops between Commonwealth Park to Woden. The Project would provide the necessary transport infrastructure to realise the benefits of a more liveable, connected city, provide a frequent and reliable transport choice independent of road congestion, deliver broader economic benefits and create opportunities for urban renewal and business growth. The Project design, together with a landscape led approach and place-making opportunities, would also contribute to creating attractive spaces that are sensitive to the surrounding environment, and foster a safer and more inclusive public transport experience for the Canberra community.