Environmental Impact Statement Chapter 3.0 Project development

3.0 Project development

3.1 Background

3.1.1 Public transport in the Griffins' vision for Canberra

Canberra has been carefully designed and developed through several key planning documents, which have contributed to the foundation and formation of the National Capital. From the Griffins' prize-winning design, to Thomas Charles Weston and planners in the National Capital Development Commission and the National Capital Authority, Canberra has developed to reflect its unique position as a purpose-built capital.

Between 1912 and 1918, Walter Burley Griffin and Marion Mahoney Griffin created a series of plans that evolved into an overarching master plan in 1925. This plan outlined a series of wide main avenues of traffic and landscaped corridors, with provision for public transport corridors, including a future tramway. The vision was to ensure balanced and integrated transport outcomes could be achieved without compromising the integrity of the highly valued aesthetic and landscape features.

The Federal Government officially adopted a version of the "Griffin Plan" in 1925, and while not all aspects have been fully realised, its intent and core principles of axial lines, formal vistas, landscape and connections to the surrounding open space still guide Canberra's development.

Modern planning continues to build on these concepts, including the Griffin Legacy, which ensures that the city's growth respects its designed landscape and maintains its national significance. It also reinforces Main Avenues by providing sustainable public transport systems that reduce car dependency. The National CapitalPlan (NCP), first approved in 1990, incorporates these principles to guide ongoing development in areas of national significance in a way that respects Canberra's historic design while allowing for modern growth and sustainability.

3.1.2 Initial planning for a light rail network

Planning for the Light Rail network commenced with the 2012 Transport for Canberra Policy (Environment and Sustainable Development, 2012). The Policy updated the Frequent Network map of public transport services identifying where future bus transit or light rail would be located. It also committed to a corridor study for City to Gungahlin and an Infrastructure Australia funding submission that included light rail.

The ACT Government subsequently made a policy commitment to plan, finance, and develop the first stage of Canberra's Light Rail network in 2012. Given the rapid growth in Canberra's north, it identified the Gungahlin to City corridor as a priority first stage.

An evaluation of mode alternatives (light rail, bus rapid transit and a 'do nothing' scenario) to serve the City to Gungahlin Transit Corridor found that, while bus rapid transit was a cost-effective option, light rail provided greater benefits and generated the best overall future outcome for Canberra's public transport needs. A subsequent business case evaluated the potential benefits of light rail, and construction of Light Rail Stage 1 (LRS1) commenced in 2016. A detailed business case would be developed following completion of necessary planning 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.

Following commencement of LRS1 operations in 2019, a Light Rail Five Years On: Benefits Realisation Report released in 2024 evaluated the observed benefits (Transport Canberra and City Services, 2024). This report confirmed that the first stage of Light Rail to date has realised the benefits and changed the way in which Canberrans live, travel, and interact, providing confidence in the benefits of extending the Light Rail network.

3.1.3 Light rail network priorities - Stage 2 City to Woden

Strategic planning context

From 2012, feasibility studies and investigations informed the first Light Rail Masterplan in 2013. Community engagement on an updated Light Rail Network Plan (ACT Government, 2015) occurred in late 2015. This plan identified a broader Light Rail network and priorities for network development. Stage 2 from the City to Woden was identified as the next priority due to its capacity to connect key residential, cultural, commercial, and employment centres across Canberra using an integrated public transport network.

Community consultation on the potential routes for the expansion of light rail to Woden began in mid-2017, with feedback indicating a preference for a corridor via City West, Commonwealth Avenue, and Adelaide Avenue.

As shown in Figure 3-1, Canberra's Light Rail network was further refined in the Infrastructure Plan: Planning for the future (ACT Government, 2019) which identified extension of light rail from the city to the Parliamentary Zone and Woden as the next priority. The ACT Government's vision for Canberra's transport system was further articulated in the ACT Transport Strategy 2020 (ACT Government, 2020) which was released for community consultation in late 2018 and adopted in 2020. The Strategy confirmed the City to Woden stage as the next priority for investigation.

Inquiry into Commonwealth and Parliamentary approvals for Stage 2 of Canberra Light Rail

Around the same time as community feedback was being sought for the ACT Transport Strategy, in 2018 and 2019 there was a Commonwealth Joint Standing Committee (JSC) on the National Capital and External Territories inquiry into Commonwealth and Parliamentary approvals for Stage 2 of Canberra Light Rail (JSC inquiry) regarding:

• The relevant Parliamentary approval processes for works within the Parliamentary Zone
• The roles of the NCA and the Australian Government, and the associated approval processes
• Possible impacts on the Parliamentary Zone and Parliamentary precincts, including any impacts on the heritage values and national importance of the Parliamentary Zone and the national capital
• The identification of matters that may be of concern prior to formal Parliamentary or Australian Government consideration of the Project
• Any other relevant matter the JSC wishes to examine.

The JSC inquiry considered several route options either proposed by the ACT Government, including in response to JSC inquiry findings, or in submissions to the inquiry. This included strategic alignment options for the crossing of Lake Burley Griffin as well as alignment options through the Parliamentary Zone. The outcome of the inquiry was a comprehensive report prepared by the committee that included background and context for the project, a summary of the public submissions, and a series of recommendations. Following the release of the report the Australian Government agreed, or agreed in principle, to all of the inquiry recommendations.

As a result of the JSC Inquiry Report and associated Australian Government Response, the ACT Government resolved to pursue the State Circle East alignment option as the 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 NCP, a plan endorsed by the Australian Parliament, providing access to cultural institutions in the National Triangle and employment areas in Barton.

ACT Government response to the JSC inquiry

The ACT Government's response to the JSC inquiry included:

• A decision to divide Light Rail Stage 2 into two parts, Light Rail Stage 2A (LRS2A) and Light Rail Stage 2B (LRS2B; the Project). Division into two parts was based on faster project delivery that allowed LRS2A design and construction to proceed independently of LRS2B given Australian Government planning requirements through the National Triangle and Parliamentary Zone
• The inclusion of both LRS2A and LRS2B in the Infrastructure Plan (as shown in Figure 3-1 and discussed above)
• Identification of the alignment for:
  • The preferred option through the Parliamentary Zone from Commonwealth Avenue along State Circle to Adelaide Avenue
  • The alternative alignment option via National Triangle and Barton from Commonwealth Avenue along King George Terrace, Macquarie Street, Bligh Street, National Circuit, and Sydney Avenue, before connecting with State Circle.

An overview of the history of planning relevant to the Project is summarised in Figure 3-2. Further discussion regarding JSC inquiry outcomes for the Project in relation to the crossing of Lake Burley Griffin and the alignment for light rail through the Parliamentary Zone is provided in Section 3.3 below.

Various strategic planning documents and the Parliamentary processes described above identify light rail as the preferred transport solution to address future network congestion between Woden and the city. Notwithstanding, identified strategic alternatives to the Project include:

• Do nothing
• Do minimum - rapid bus augmentation
• Rapid bus - major intervention
• Project case (integrated public transport network with light rail between Woden and the city).

Consideration of strategic alternatives to the Project is discussed in Section 2.4 of Chapter 2 (Need for the Project).

3.2 Route and design options considerations

3.2.1 Methodology for assessment of route and design options

An iterative process of design development, stakeholder consultation, community engagement and assessment has been carried out to refine the Project design, including route and stop locations, landscape, urban realm, and technical elements.

A key driver influencing the Project's development process has been seeking alignment with the NCP and the Inter-Town Public Transport System map contained within in the NCP. Responding to the principles of the Griffin Plan (and later plans) has also been an important factor for the design development process. Implications of this include an acknowledged and necessary interaction of the Project with Matters of National Environmental Significance (MNES) identified under the Environment Protection and Biodiversity Conservation Act 1999 (Cth) (EPBC Act), particularly in relation to Commonwealth land and Commonwealth-listed heritage items such as Lake Burley Griffin and Adjacent Lands, the Parliament House Vista, and State Circle Cutting.

In considering the relative performance of design options, and with reference to the Project objectives (refer to Section 2.5 of Chapter 2 (Need for the Project)) the following factors have been considered as relevant:

• MNES identified under the EPBC Act, particularly National and Commonwealth heritage (including indirect heritage impacts relating to visual and landscape aspects) and biodiversity factors, as well as impacts to the environment of Commonwealth land and broader environmental impacts, including traffic, noise and vibration and flooding and hydrology
• Territory environmental considerations, such as Territory listed heritage items, items listed and considered under the Nature Conservation Act 2014 (ACT), land on the Register of contaminated sites under the Environment Protection Act 1997 (ACT), and broader environmental impacts to Territory Land including traffic, noise, vibration, flooding, and hydrology
• Urban design and place outcomes, including potential impacts to existing landscape, visual and urban realm including impacts to street trees, placemaking opportunities and urban design outcomes
• Land use and property, including integration with existing and planned development as well as property impacts (land acquisition, property access)
• Transport integration, movement and access, including potential for an improved and/ or more integrated transport network that focuses on customer access and interchange opportunities, impacts to existing public transport, road and active travel networks
• Deliverability and risk, including complexity of planning approvals, construction phase traffic disruption, constructability challenges including utilities and overall risks to, and impacts on, the delivery program
• Light rail operations and network safety, including operational requirements, fleet, journey time, operational safety and safety for road users and active travel movements
• Stakeholder and community feedback.

3.2.2 Light Rail network and operations principles - basis for design

The Project is an important part of delivering a wider light rail network for Canberra. LRS1 has several design and operational factors that have contributed to making it an attractive, reliable, and popular transport option. Wherever possible, these design and operational factors have and will continue to be integrated into the Project. Although new design approaches are needed for different environments along the Project corridor - particularly for grade-separated stops on Adelaide Avenue and Yarra Glen - replicating successful design and operational features presented in Table 3-1 seek to reinforce a legible, cohesive and reliable light rail network.

For overarching Project design principles, refer to Section 5.2 of Chapter 5 (Project description).

3.3 Options considered - initial options to support JSC inquiry

3.3.1 Initial options for the crossing of Lake Burley Griffin

As part of selection of the City to Woden corridor as the preferred corridor for expansion of the Light Rail network in 2019, and as shown in Figure 3-3, the following route options were considered for the crossing of Lake Burley Griffin:

• Commonwealth Avenue
• Acton Peninsula to Commonwealth Avenue
• Constitution Avenue and Kings Avenue
• Long tunnel from City Hill to Deakin
• Short tunnel from Flynn Drive to Deakin.

The Commonwealth Avenue route was investigated as part of the JSC inquiry. The JSC inquiry committee recommended that an independent light rail bridge be delivered on the route of Commonwealth Avenue and that this bridge would need to:

• Be of equal quality to that of the existing bridges
• Have the same column spacing as the existing bridges
• Not reduce existing clearance between the lake and the underside of the bridge
• Be slimmer than the existing bridges so as not to visually impact on the existing two bridges
• Have no impact on the structural soundness of the existing bridges.

3.3.2 Route considerations through the Parliamentary Zone

With Commonwealth Avenue assumed as the preferred route across Lake Burley Griffin, four broad route options around the Parliamentary Zone (including within the National Triangle precinct and Parliament House precinct) were also contemplated during the initial planning phase. All four broad options were considered as part of the JSC inquiry process (noting that other options were identified in submissions to the JSC inquiry). These options are shown in Figure 3-4 and included:

• State Circle East
• State Circle West
• Capital Circle East and West
• Parkes - Barton via King George Terrace and Windsor Walk.

In relation to National Triangle and Parliament House route options, the JSC inquiry report noted that if the ACT Government were to pursue a route that is consistent with the NCP, it could do so with the confidence that the route has already been considered by the Commonwealth, and given its in-principle approval, in the NCP.

In response to the JSC recommendation that State Circle East had the in-principle support of the Commonwealth under the NCP, the ACT Government ultimately resolved to explore the preferred State Circle East alignment option through the EIS process, recognising that it provided a comprehensive pathway to understanding technical, environmental, and stakeholder issues. At the same time including an alternative route through the National Triangle and Barton (refer to Section 3.1.3) meant that if the preferred option was not feasible, for whatever reason, the need to recommence the EIS process again with an alternative would be avoided.

Route options utilising State Circle West, Capital Circle (east and west) and the Parkes - Barton route via King George Terrace and Windsor Walk were therefore not considered further. The National Triangle-Barton alignment option presented in Section 3.5.2 below has evolved from the Parkes-Barton route presented to the JSC inquiry based on further consultation with key stakeholders including the NCA.

3.3.3 Confirmation of Project alignment

Given the complexity of the planning approvals processes required to deliver light rail through the National Triangle, the ACT Government determined to proceed with:

• A staged delivery approach, with detailed design and construction being progressed for LRS2A between Alinga Street and Commonwealth Park (LRS2A has since received approvals and is currently under construction)
• Environmental and planning approvals for the section between Commonwealth Park and Woden (the Project) that included further consideration of both the preferred State Circle East alignment option and an alternative alignment through the Parliamentary Zone via a National Triangle and Barton corridor.

This EIS provides an assessment of both the preferred State Circle East alignment option and an alternative alignment through the Parliamentary Zone via a National Triangle and Barton corridor. This approach allows for environmental impacts of both options to be considered; community and stakeholder feedback to be sought for both options; and provides flexibility by enabling the environmental assessment and approvals process for the Project to commence while both options are under investigation.

The Project would deliver a light rail alignment across Lake Burley Griffin, through the National Triangle, along Adelaide Avenue and Yarra Glen, before terminating at Woden Town Centre. The Project, including the preferred State Circle East alignment option and the alternative National Triangle-Barton alignment option is shown in Figure 3-5.

Ongoing landscape and technical investigations and assessments, and engagement with key stakeholders has identified a number of challenges relating to both alignment options, including:

• Potential visual impacts to Parliament House for stops located on State Circle
• Heritage impacts - including geographic, built form, and vistas
• Landscape impacts between State Circle and Capital Circle at Adelaide Avenue
• Constructability challenges, including noise and vibration, and construction duration
• Interface issues between the Project and the planned National Security Office Precinct.

Options assessed in relation to route selection and stop locations consider the above challenges and are discussed in the following sections.

3.4 Options considered - Commonwealth Avenue precinct

Key options that have been considered in the Commonwealth Avenue precinct include:

• Bridge options for crossing Lake Burley Griffin (refer to Section 3.4.1)
• Alignment options along the Commonwealth Avenue corridor (refer to Section 3.4.2)
• Light rail stop locations (refer to Section 3.4.3).

3.4.1 Bridge options for crossing of Lake Burley Griffin

The design of the light rail bridge over Lake Burley Griffin has considered the heritage significance of Lake Burley Griffin and the visual values of Commonwealth Avenue.

In March 2019, the Australian Government endorsed the JSC's Recommendations, which included design criteria for a new bridge (refer to Section 3.3).

Noting that there were several sub-options considered by the Commonwealth Avenue Bridge Steering Committee (which was established by the NCA and Infrastructure Canberra (iCBR) in May 2019 to guide a jointly funded design investigation into the Commonwealth Avenue light rail bridge), the following broad options were considered for crossing Lake Burley Griffin along the Commonwealth Avenue alignment:

• A new infill light rail bridge (between the existing Commonwealth Avenue road bridges)
• Light rail using the existing Commonwealth Avenue road bridges with reconfigured traffic lanes.

Conceptual images of the two bridge options are shown in Figure 3-6.

The Commonwealth Avenue Bridge is historically significant as an important part of Lake Burley Griffin and represents a significant part of Canberra's planning history, landscape design, and development. Lake Burley Griffin and Adjacent Lands (including Commonwealth Avenue Bridge) was listed on the Commonwealth Heritage List in 2022.

Both bridge options for crossing Lake Burley Griffin would provide attractive light rail journey times but would also result in complex approvals requirements with similar heritage impacts needing to be considered and managed.

Although the construction methodology for a new light rail bridge between the existing Commonwealth Avenue road bridges would be more complex (relative to the alternative option which would utilise existing bridges), the operational traffic impacts (reduced road capacity) that would result from the removal of a traffic lane in each direction on Commonwealth Avenue road bridges were seen as undesirable.

A new infill bridge would have impacts on Commonwealth heritage, altering large scale vistas of Lake Burley Griffin (refer further to the historic heritage assessment in Section 12.5 of Chapter 12 (Commonwealth Avenue precinct)). However, this option would occupy the space between the existing bridges as contemplated by the original bridge design for a future public transport corridor.

Considering the above as well as performance of the options against the JSC inquiry recommendations (refer to Section 3.3 above), a new single infill light rail bridge between the existing Commonwealth Avenue road bridges was identified as the preferred option for the light rail crossing of Lake Burley Griffin. The light rail bridge design would include wire-free running and would reflect the design quality and architectural character of the existing road bridges, in accordance with design guidance in the Public Domain Master Plan (Appendix I).

3.4.2 Commonwealth Avenue alignment considerations

The Commonwealth Avenue precinct includes two heritage-listed conservation areas: the Parliament House Vista and Lake Burley Griffin and Adjacent Lands (both listed on the Commonwealth Heritage List). The design of the light rail alignment on Commonwealth Avenue has been informed by heritage advice and a Light Rail Commonwealth Avenue Master Plan (LRCAM) (AECOM, 2022). It has considered visual impacts to the Parliament House Vista, Albert Hall, and Hotel Canberra as well as physical impacts to the heritage-listed Weston tree plantings within the median during both construction and operation.

Traffic congestion and related public transport constraints have been identified as a key challenge limiting Canberra's growth and productivity (refer to Section 2.3 of Chapter 2 (Need for the Project)). Following the urban design driver of 'design for growth' (refer to Section 5.2.1 in Chapter 5 (Project description)), the initial investigations into Light Rail Stage 2 considered the potential traffic impacts of future population growth and introducing light rail on Commonwealth Avenue as a key arterial road in Canberra's road network.

Traffic modelling for Light Rail Stage 2 has indicated that future population growth would increase demand for travel with substantial impacts to traffic performance including peak hour congestion. These impacts would be exacerbated if a travel lane from Commonwealth Avenue were to be repurposed for light rail. Potential physical and visual impacts of road widening to reduce congestion, symmetry with the approved design for LRS2A as well as recommendations from the JSC for a new light rail bridge in line with the median of Commonwealth Avenue, have influenced the decision for a light rail alignment along the Commonwealth Avenue median in this precinct.

The introduction of light rail to the median of Commonwealth Avenue would require the removal of the existing median tree plantings and a reconsideration of the tree structure, particularly the location of the Weston-planted evergreens that play a structural role in the Avenue. Project design development has considered opportunities to avoid and minimise tree impacts, and where impacts would be unavoidable, opportunities to replace trees consistent with the existing heritage landscape. To manage the impact of tree removal and replacement, the LRCAM (AECOM, 2022) was developed during the design of LRS2A. The Master Plan demonstrated the approach to introducing light rail on Commonwealth Avenue in a manner that would provide a landscape structure consistent with the Griffins' vision for a Main Avenue.

A wide light rail track configuration has been selected for the Project for its ability to accommodate a single row of trees down the centreline of the 12 m wide Commonwealth Avenue median. Light rail operational clearances require a tree form with a sympathetic branching habit able to withstand under pruning. In developing the LRCAM and in consultation with the NCA, the Commonwealth Avenue landscape cross section has been adjusted. Specifically, a deciduous oak was selected for the median as best suited to meet the historical and operational constraints while still providing a stately avenue tree and meeting the intent of the NCP. The Master Plan configuration proposes a consistent median arrangement for the entire length of Commonwealth Avenue.

Tree replacement and succession planning has been informed by multiple phases of tree survey with a number of factors influencing the design. These have included heritage considerations, ACT policy, and design guidance on species selection, health, form, Useful Life Expectancy (ULE) of the trees, biodiversity values, asset management requirements, and stakeholder inputs. The final Landscaping Plan for the Project (refer to landscape and visual mitigation measures in Chapter 21 (Environmental management and mitigation measures)) will provide for tree replacement that maintains or enhances visual, landscape, biodiversity and/or heritage values, among other relevant considerations.

Light rail along Commonwealth Avenue would be wire-free with green track to manage visual impacts to the vista and adjacent heritage sites.

Differences between the State Circle East and National Triangle-Barton alignment options are discussed in Section 3.5.

3.4.3 Stop locations

There would be one light rail stop within the Commonwealth Avenue precinct - the Albert Hall Stop. The Albert Hall Stop is relevant to the State Circle East alignment option only. On the National Triangle-Barton alignment option, a separate stop would be provided south of the Treasury Building (within the National Triangle precinct) instead of the Albert Hall Stop.

The Albert Hall Stop would be located in the median of Commonwealth Avenue adjacent to the Albert Hall. Key trip generators in the catchment include Questacon, the Treasury, the National Library of Australia, the Hyatt Hotel Canberra, the southern lake foreshore, events in the National Triangle, and several diplomatic missions.

Design considerations for the Albert Hall stop have included optimal stop spacing, physical and visual heritage impacts to Albert Hall (including driveway access), the street layout of the Griffin Plan, walking access to the stop and opportunity for light rail-bus interchange.

The Albert Hall stop location has been investigated as part of the LRCAM. The LRCAM has demonstrated the approach to introducing light rail on Commonwealth Avenue in a manner consistent with the Griffins' vision for a Main Avenue.

The Albert Hall Stop location considered both the current and a potential future intersection layout at Commonwealth Avenue-King Edward Terrace. The LRCAM envisages a potential future intersection of Commonwealth Avenue and King Edward Terrace consistent with the geometry of the Griffin Plan. Options for a stop platform to the north and south of King Edward Terrace were considered. A location south of King Edward Terrace provided the best connectivity and avoided conflicting with the current and future intersection alignment, as envisaged in the LRCAM.

A new signalised pedestrian crossing to the Albert Hall Stop would be located in line with the potential future intersection. The pedestrian crossing would provide access to existing bus stops located within the verge, facilitating transfer opportunities. The existing pedestrian underpass of Commonwealth Avenue would be retained as part of the Project, but has not been considered for access to the stop due to personal safety, accessibility, and inclusive design challenges.

3.5 Options considered - Parliament House, National Triangle, and Barton precincts

Key options that have been considered in the Parliament House, National Triangle and Barton precincts include:

• For the State Circle East alignment option (refer to Section 3.5.1):
  • Transition of the light rail alignment from Commonwealth Avenue to State Circle
  • Light rail track running options along the State Circle corridor
  • Light rail stop locations
• For the National Triangle-Barton alignment option (refer to Section 3.5.2):
  • Connection of the light rail alignment from Commonwealth Avenue to Kings Avenue
  • The light rail crossing of Kings Avenue
  • Light rail alignment options through Barton and connection with State Circle
  • Light rail stop locations
• For both alignment options, the transition of the light rail alignment from State Circle to Adelaide Avenue (refer to Section 3.5.3).

3.5.1 Light rail alignment (State Circle East alignment option)

State Circle forms the border of Capital Hill and serves an important movement function in the road network by connecting several key transport corridors including Commonwealth Avenue, Kings Avenue, Brisbane Avenue, Canberra Avenue and Adelaide Avenue. State Circle, between Commonwealth Avenue and Kings Avenue is within the National Triangle.

Key Project design considerations for State Circle as part of the State Circle East alignment option have included:

• Minimising visual impacts along the Main Avenues and to Capital Hill, respecting the views and vistas to and from Parliament House, minimising impacts to the heritage-listed State Circle Cutting and the Presbyterian Church of St Andrew
• Maintaining the symmetry and geometry of State Circle where possible and introducing a stop typology with architectural elements sympathetic to the area (such as curved platforms responding to the shape of the road)
• Designing and implementing light rail within the Inter-Town Public Transport System, retaining road network function, avoiding the need for traffic lights or complex intersections on Main Avenues where possible
• Maintaining the amenity of the Canberra Centenary Trail, which traverses the landscaped annulus.

Commonwealth Avenue to State Circle transition

For the State Circle East alignment option, the light rail alignment needs to transition from Commonwealth Avenue to State Circle. This area is on the northern side of Capital Hill and is currently a grade-separated road intersection. The LRCAM included a median running configuration (light rail track in the road median) on Commonwealth Avenue with a transition to a median running configuration on State Circle.

Moral Rights aspects, including potential landscape and visual impacts to Parliament House during construction and operation have also been considered in the design development process at this location.

Initial design development has identified design options for transition of light rail from Commonwealth Avenue to State Circle. All design options have assumed median running within the Commonwealth Avenue median with at-grade options and grade separated options (covered sections allowing light rail to pass beneath traffic lanes) with different arrangements considered for light rail running on State Circle. An overview of the options considered at the transition from Commonwealth Avenue to State Circle are shown in Figure 3-7.

The design development process for the Project has confirmed the broad arrangement outlined in the LRCAM as being the most feasible. Although an at-grade option has been assessed to have fewer technical challenges, a grade-separated arrangement with a covered section would provide several benefits over an at-grade approach, including:

• As supported through consultation with the NCA, Department of Parliamentary Services, and the Giurgola Moral Rights Administrators, there would be several comparatively superior visual and heritage vista outcomes, including:
  • Preserving the symmetry of Commonwealth Avenue
  • The ability to deliver a discrete portal arrangement within the existing landscape that would connect the light rail alignment with State Circle
  • Avoiding visual clutter associated with a new set of traffic signals on Commonwealth Avenue that would be required for an at-grade approach
• Reduced potential for property impacts, including avoiding potential impacts to West Block (that would likely result with selection of an at-grade option)
• Comparatively reduced traffic and active travel safety impacts, including:
  • Avoiding the need for an additional set of traffic signals for south bound traffic on Commonwealth Avenue
  • Adopting a design that would align with the ACT Active Travel Plan (Transport Canberra and City Services, 2023) and would avoid an unsafe interface between light rail and the southbound Commonwealth Avenue cycle lane. The design would also provide a safe light rail crossing arrangement for a future shared path on the outer verge of State Circle.

State Circle light rail running options

Investigations have considered three options for light rail running on State Circle, being inner running (light rail track closest to Capital Hill), median running (in the median of State Circle), and outside running (light rail track furthest away from Capital Hill). Potential visual impacts to the Parliament House Vista during construction and operation have been a primary consideration in developing design options at this location.

Constraints influencing the decision on light rail running have included:

• Retaining two traffic lanes in each direction on State Circle, in addition to turning lanes at intersections
• Protecting heritage elements including:
  • The cutting beneath Federation Mall (State Circle Cutting)
  • The Presbyterian Church of St Andrew between Canberra Avenue and Sydney Avenue
  • York Park
• Proximity to the planned National Security Office Precinct between Brisbane Avenue and York Park.

Retaining the existing number of traffic lanes on State Circle would require realignment of the State Circle outer carriageways to provide sufficient space for light rail. The need for road realignment combined with the localised heritage constraints listed above made it apparent that outer running would not be a feasible option.

The following two arrangements for light rail running have been investigated further as shown in Figure 3-8:

• A median running option within the median of State Circle. This would require the realignment of State Circle into Capital Hill to accommodate the light rail corridor
• An inner running option that would generally, when compared to the median running option, avoid road realignment and comparatively reduce the need for intersection adjustments.

As part of the State Circle East alignment option, median running has been identified as the preferred option because it would:

• Provide stops at locations to balance connections to employment and other key destinations
• Avoid physical impacts to heritage items during both construction and operation including the State Circle Cutting, Federation Mall, and the Presbyterian Church of St Andrew
• Maintain the general operational function for road vehicles on State Circle and minimise potential impacts to access and circulation
• Maintain the outer verge width of State Circle and avoid the need for property acquisitions
• Avoid impacts to the circular form and geometry of State Circle (relative to other options).

Notwithstanding, an inner running option on State Circle would support similar outcomes as those described above (refer further to Section 3.5.2).

Within the median running option, four sub-options have been considered to reduce cross-section width and impacts to the inner verge of State Circle. These have included curved island stop platforms with wide track centres, side platforms with both continuous and varying track centres and offset platforms.

The curved island platform stops with wide track centres have been selected on the basis that wide track centres would be required to pass beneath the Federation Mall bridges and their existing piers without impacting on the existing heritage cutting. The encroachment into the inner verge of State Circle would be greatest at stop locations (curved island stops provide a narrower footprint when compared to side platforms). Island stops would also avoid duplication of platform infrastructure such as canopies, ticketing machines and cabinets. This would be beneficial because the island stop design would result in less visual clutter in this highly visually sensitive landscape. For the State Circle East alignment option, and considering median running, offset platforms and side platforms with varying track centres have been determined to be less desirable for light rail operations, customer comfort and ease of use.

Discussion regarding arrangements for light rail running on State Circle for the National Triangle-Barton alignment option is included in Section 3.5.2.

Stop locations

For the State Circle East alignment option, stops would be located at Albert Hall (in the Commonwealth Avenue precinct), Kings Avenue, Sydney Avenue and Melbourne Avenue (in the Parliament House precinct). Light rail stop spacing has been determined based on the need to balance connectivity, patronage, and journey time.

The stops on the State Circle East alignment option would be located at existing road junctions on State Circle to maximise patronage within the Barton precinct, an NCP Defined Activity Centre. Spacing between light rail stops would be subject to patronage and placemaking opportunities as well as traffic and safety risks. City centre stops are normally closer together to better connect people to places of work, education, and leisure.

The Kings Avenue Stop would be located in the median of State Circle on the southern side of the intersection with Kings Avenue. The nearest light rail stops would be Albert Hall Stop, located around 1.2 km to the north-west, and Sydney Avenue Stop, located around 400 m to the south. Key trip generators in the catchment would include Parliament House, Old Parliament House, the Australian Federal Police, the Office of National Intelligence, the National Security Office Precinct, Centenary Trail, and events in the National Triangle.

The Sydney Avenue Stop would be located in the median of State Circle on the northern side of the intersection with Sydney Avenue. The nearest light rail stops would be Kings Avenue Stop, located around 400 m to the north, and Melbourne Avenue Stop, located around 700 m to the south-west. Key trip generators in the catchment would include Telopea Park School, the Department of Foreign Affairs and Trade, and the new Australian Tax Office.

The Melbourne Avenue Stop on the State Circle East alignment option would be located in the median of State Circle, east of the intersection with Melbourne Avenue and State Circle. The nearest light rail stop would be the Sydney Avenue Stop, located about 700 m to the north-east. Key trip generators in the catchment would include Parliament House and embassies.

A Melbourne Avenue Stop is also proposed for the National Triangle Barton alignment option, in the inner verge of State Circle, east of the intersection with Melbourne Avenue and State Circle.

3.5.2 Light rail alignment (National Triangle-Barton alignment option)

The National Triangle is a place with substantial heritage values containing cultural institutions and significant employment hubs. The National Triangle is formed by Commonwealth, Kings, and Constitution Avenues.

Notwithstanding the alignment option chosen through this area, an appropriate design would be required given the significant contribution of this area to the Parliament House Vista and National Triangle landscape, including views to and from Old Parliament House along the Land Axis.

The Project design for this alignment option has considered specific stop locations outside sensitive vistas, appropriate use of green track and landscaping, prioritising tree retention in some locations over road traffic impacts. The design has also included clutter free public plaza spaces that reinforce the main vista and improves active travel spaces.

Within the National Triangle, the Project would provide light rail infrastructure and accessible and convenient stop locations while effectively managing heritage, visual, tree, and property impacts. Impacts to local traffic, property access, and movement have also been key considerations in design development for this alignment option.

Connection from Commonwealth Avenue to Kings Avenue

As shown in Figure 3-9, options considered for connecting light rail from Commonwealth Avenue to Kings Avenue have included King Edward Terrace, King George Terrace, and Queen Victoria Terrace. Each of these connection options would introduce light rail to relatively narrow tree-lined streets with heritage values. Given the relatively narrow width of the streets in this area, introducing light rail would generally either require changes to local traffic circulation (to avoid mixing of light rail and vehicles) or widening of the streets to accommodate light rail and vehicles with associated impacts to the road verge, including removal of street trees.

A connection option via Queen Victoria Terrace was discounted early in the design development process based on a number of factors including impacts on the view from Parliament House, street trees, and local traffic and property access impacts. This connection option would also be further away from key destinations including national institutions within the National Triangle and therefore overall journey time would be greater for those seeking to access these destinations.

King Edward Terrace is currently the main traffic route across the National Triangle. The King Edward Terrace connection option would result in traffic impacts and property access constraints (such as challenges for access to carparks, institutions, and offices). Ongoing development within and adjacent to the National Triangle would mean that a connection from King Edward Terrace to State Circle would not be feasible.

King George Terrace has been selected as the most appropriate connection option across the National Triangle because it would be more direct (shorter light rail journey time) and centrally located to employment and cultural institutions.

As shown in Figure 3-9, two sub-options for the connection between Commonwealth Avenue and King George Terrace have been investigated:

• A 'northern' connection option via King Edward Terrace and Langton Crescent
• A 'southern' connection option directly from Commonwealth Avenue to King George Terrace on the northern side of Coronation Drive.

The 'southern' connection option from Commonwealth Avenue to King George Terrace has been identified as preferred because the connection option would have fewer tight turns and would therefore minimise potential associated noise and vibration impacts. It would also include fewer areas where light rail vehicles (LRVs) would be required to travel at lower speeds (and would therefore result in a comparatively better journey time). This option would also avoid direct impacts to breeding habitat for the Gang-gang Cockatoo, which is endangered under the EPBC Act.

Crossing of Kings Avenue

Following the selection of King George Terrace as the preferred route through the National Triangle, two sub-options have been considered to cross Kings Avenue into Barton. The first would cross Kings Avenue to connect with Macquarie Street. The second option would use Walpole Crescent and Queen Victoria Terrace to cross Kings Avenue into National Circuit. The option crossing Kings Avenue to connect with Macquarie Street has been identified as the preferred option because it would:

• Better maintain the symmetry of the National Triangle (and would therefore reduce visual impacts to heritage items)
• Provide greater opportunity for a more centrally located light rail stop within Barton
• Be consistent with the NCP development plan for the National Triangle
• Have comparatively lower environmental impacts, including impacts to street trees that also have local landscape character sensitivities
• Avoid interactions with sensitive communication assets expected in the vicinity of the intersection of National Circuit and Kings Avenue.

Light rail through Barton and connection with State Circle

Light rail through Barton would improve transport connectivity and would provide opportunities to further activate the area through careful design and placemaking considerations. The precinct is typically busy during working hours with limited evening and weekend activity despite the concentration of residences, hotels, and accommodation.

With an aim to better connect employment hubs in the area with other parts of the Light Rail network, consideration has been given to minimising impacts while also optimising journey time for passengers. Key design considerations through Barton have included:

• The ability to retain vehicular access to properties
• Minimising local traffic impacts (during both construction and operation) and on-street parking loss
• Limiting impacts to commercial premises, hotel guests and events
• Minimising landscape character impacts including tree removal and impacts to canopy cover
• Minimising other environmental impacts including heritage, noise, and vibration considerations.

Starting on Macquarie Street at Kings Avenue the assessment considered several possible routes for connection through Barton and then back up and onto State Circle.

As shown in Figure 3-10, three options have been considered through Barton between Kings Avenue and Brisbane Avenue:

• Option 1: Median running on Macquarie Street through to Brisbane Avenue, with one traffic lane in each direction
• Option 2: Median running on Macquarie Street, turning onto Blackall Street and then onto National Circuit through to Brisbane Avenue, with one lane of traffic in each direction
• Option 3: Median running on Macquarie Street, turning onto Bligh Street and then onto National Circuit through to Brisbane Avenue, with one lane of traffic in each direction.

Running on National Circuit between Bligh Street and Kings Avenue was not considered due to the constraints discussed in the National Triangle (refer Section 3.2.2).

In relation to Option 1, the vertical grade of Macquarie Street between Blackall Street and Brisbane Avenue is steep and considered a poor outcome for light rail running. Locating a stop on Macquarie Street would also be constrained by grades, driveway access and its local road network function role, making location of a stop challenging. Further south along the alignment, this option would also interact with heritage places and precincts (such as the Barton Housing precinct).In relation to Option 2, the grades of Blackall Street between Macquarie Street and National Circuit are also steep and therefore would be present design challenges and interface with several property accesses. Blackall Street is an important connection between Kings Avenue and the planned National Security Office Precinct and would require maintaining through vehicle traffic on Blackall Street, therefore substantially limiting the ability to include a light rail stop at this location.

In relation to Option 3, the grades on Bligh Street are generally flat and suitable for light rail. The local traffic function provides the opportunity to place a stop here with limited impacts to local traffic functionality while still maintaining access to properties on Bligh Street.

For all options the existing road carriageway widths would need to be widened to allow for dedicated light rail track and a single lane of traffic in each direction. This would result in the need to remove existing street trees, and would require 'left-in, left-out' arrangements for vehicles entering and exiting properties along these streets (for safety reasons vehicles would be restricted from crossing the light rail track).

In response to these issues, several design options have been considered to reduce overall width requirements and minimise impacts to street trees. These options have included shared running (private motor vehicles sharing the trackform with LRVs, with no exclusive right of way for light rail) and asymmetric running (offsetting the light rail track from the centre of the existing roadway).

Shared-running has been determined to be unsuitable because it would not meet the Light Rail network and operations principles (refer to Section 3.2.2) relating to journey time reliability, particularly along a busy road such as National Circuit and in a central point of the Light Rail network.

Asymmetric running has been determined to be unsuitable as this arrangement only provides space for a traffic lane to access properties on one side of the street. However, access would be required along both sides of the street, and asymmetric running would therefore result in a loss of property access along one side of the street. Asymmetric running would still result in impacts to trees on at least one side of the road during construction. Asymmetric running has been adopted for small section of Macquarie Street to allow light rail to safely turn onto Bligh Street from Macquarie Street, and to avoid direct property impacts and land acquisition.

A configuration with single track running using the corridors of Macquarie Street and National Circuit was also considered in response to key challenges, as shown in Figure 3-11.

Notwithstanding, a single track running arrangement would:

• Require additional works on Kings Avenue and or Walpole Crescent (in the National Triangle) to 're-connect' the single track arrangement
• Be less intuitive for passengers (a confusing design arrangement that would not be as easy to use, especially for infrequent users)
• Effectively duplicate the expected property interface impacts (including for driveway access), and the potential for conflicts with pedestrian movements
• Have the vertical alignment grade challenges on Macquarie Street between Blackall Street and Brisbane Avenue
• Likely have a greater level of disruption, resulting in construction traffic impacts, noise impacts, impacts on utilities and broader amenity impacts along both Macquarie Street and the National Circuit.

Given these constraints and challenges, Option 3 has been identified as the preferred option given that it:

• Works best with the existing street gradients
• Allows for a stop to be located on Bligh Street while maintaining local access and minimising impacts to the broader local traffic network
• Provides for a stop in an optimum catchment location with ability for interchange
• Allows for the continuation of the current rapid bus routes on National Circuit.

As part of design development for this option, potential heritage impacts associated with Hotel Kurrajong's landscape setting and street tree plantings have been considered and minimised to the extent possible. Track design, stop design, and landscape design measures have all sought to minimise tree removal. Tree replacement would respond to the surrounding landscape character, with the Bligh Street Stop designed to allow for the reinstatement of trees in generally the same location and position as those to be removed. Wire-free running through this area would also be adopted to minimise visual impacts.

Brisbane Avenue to State Circle

Brisbane Avenue, Sydney Avenue, and Canberra Avenue have all been considered as options to connect the National Triangle-Barton alignment option with State Circle. Considerations for this connection have included potential heritage and environmental constraints, gradients, traffic impacts during construction and operation, stop spacing and customer catchments around stops, as well as ease of access to a light rail stop in this area. Sydney Avenue has been selected as the preferred option because it would provide the opportunity for a centrally located stop within the Barton catchment, with safe and convenient walking connections. A light rail route on Sydney Avenue would also have fewer traffic impacts compared to Brisbane or Canberra Avenues.

Stop locations

The National Triangle-Barton alignment option would include three stop locations at Treasury (in the National Triangle precinct), Bligh Street, and Sydney Avenue (in the Barton precinct). The stop locations have been selected to balance coverage with light rail journey time, to provide regular stop spacing, to locate stops centrally within catchments and to provide opportunities for urban realm upgrades and/or redevelopment adjacent to the stops. In addition to potential impacts to heritage values in a highly sensitive area, constraints such as gradient, motor vehicle access to properties and locating stops where safe pedestrian crossings could be provided have been important decision-making factors.

The Treasury Stop would be located at the intersection of King George Terrace and Langton Crescent. The nearest light rail stop would be Bligh Street Stop, located around 1 km to the south-east. The Treasury Stop has been identified as the preferred stop location in the National Triangle because it would be consistent with the long-term development plan in the NCP and would:

• Be located within a convenient walk of employment and cultural institutions
• Minimise visual heritage impacts on Old Parliament House and would be located on the periphery of the Parliament House Vista
• Avoid impacts to trees on King George Terrace with heritage value
• Provide the opportunity for the design of a high amenity stop in a campus landscape setting, consistent with NCP aspirations.

A stop location around the eastern end of Bligh Street has been preferred due to its central location within the Barton catchment, the opportunity to provide regular stop spacing coverage along the light rail alignment and the opportunity to provide convenient transfer opportunities to rapid bus services at the Barton Interchange. Further, the width of National Circuit and Macquarie Street would also limit the ability to include a light rail stop, which would require space for trackform, stop platforms, formal tree plantings, and a traffic lane in each direction to maintain property access. A stop located on a local access street such as Bligh Street would also enable safer walking access for the volume of expected patronage by effectively creating a plaza environment rather than an island stop platform in the middle of a busy road such as National Circuit.

The nearest light rail stops to Bligh Street Stop would be Treasury Stop, located around 1 km to the north-west, and Sydney Avenue Stop, located around 700 m to the south-west.

The stop location on Sydney Avenue between National Circuit and Windsor Walk / Game Court has been selected to provide regular stop spacing coverage along the light rail alignment, and to provide access to major trip generators such as the new Australian Tax Office building. In addition to paths on Sydney Avenue, the stop location would also tie into existing direct walking connections via Windsor Walk, Game Court, and John McEwen Crescent. The nearest light rail stops to Sydney Avenue Stop would be Bligh Street Stop, located around 700 m to the north-east, and Melbourne Avenue Stop, located around 900 m to the west.

Light rail running on State Circle for the National Triangle-Barton alignment option

Section 3.5.1 discusses options considered for light rail running on State Circle for the State Circle East alignment option as well as the significance of Capital Hill and design drivers to reduce potential impacts.

As with the State Circle East alignment option, the National Triangle-Barton alignment option would need to transition onto State Circle. The National Triangle-Barton alignment option would transition across the Sydney Avenue and State Circle intersection and be aligned within the inside verge of State Circle. The Melbourne Avenue Stop would therefore be located on the inner verge east of the intersection of State Circle and Melbourne Avenue for the National Triangle-Barton alignment option (refer to Figure 3-5).

While the landscape character related to the topography and vegetation of Capital Hill would be moderately impacted, inner running has been identified as the most suitable option because it would:

• Provide a safe angle of approach for cyclists
• Reduces the extent of regrading required for the light rail alignment
• Reflect the heritage values of the strong circular form of State Circle by embedding the track into the landscape setting of Capital Hill with landscape planting.

3.5.3 State Circle to Adelaide Avenue transition

A common challenge for both alignment options would be the Project's transition to Adelaide Avenue from State Circle. The light rail alignment would need to transition from State Circle to Adelaide Avenue on the south-western side of Capital Hill. Capital Hill is a highly sensitive area due to the location of Parliament House and is an area of Aboriginal cultural significance. Prior to the arrival of Europeans in Australia, this region had a range of important ceremonial sites for local Aboriginal peoples.

A two-stage design competition for Parliament House was held beginning in 1979. Criteria against which the entries were judged included that the design must respond in a sensitive manner to both the natural environment including those qualities of environment that are uniquely Australian (climate, landscape, vegetation, and quality of light), and the Griffins' concept of the most significant national building being at the apex of the National Triangle. The design was to symbolise the unique national qualities, attributes, attitudes, aspirations, and achievements of Australia. The criteria also encouraged public access and involvement in the design. Parliament House was not intended to appear remote and inaccessible; access to both the site and the building was meant to be facilitated. The annulus between Capital Circle and State Circle was planted and expected to remain as open space.

The two principal constraints that have been considered in developing design options for the transition of the light rail alignment from State Circle to Adelaide are:

• The need to minimise visual impacts to the Parliament House Vista during construction and operation
• The grade change between State Circle and Adelaide Avenue. The vertical alignment of State Circle dips as it approaches Adelaide Avenue to allow it to pass beneath.

Following review of a long list of options, six options have been evaluated for the transition from State Circle to Adelaide Avenue, as shown on Figure 3-12. All options have assumed median running on Adelaide Avenue due to the existing median providing space for light rail trackform, island stop platforms, access from existing road interchanges and a symmetrical urban design without impacts associated with realigning the existing road. The options included:

• Option 1: Connection between State Circle (median or inner running options) and Adelaide Avenue, passing through the landscape area to an at grade signalised crossing of the Capital Circle transition to Adelaide Avenue (westbound carriageways), and a new light rail bridge over State Circle connecting with the Adelaide Avenue median
• Option 2: State Circle median running passing under the westbound road bridge that connects Capital Circle to Adelaide Avenue, connecting to the median of Adelaide Avenue via a long slot structure starting between the two bridge structures
• Option 3: Crossing State Circle at new traffic signals and entering a short underpass of the westbound carriageway of Adelaide Avenue, then following a long slot up onto the Adelaide Avenue median
• Option 4: A viaduct for light rail starting west of the intersection of Melbourne Avenue, passing over State Circle, transitioning to the Adelaide Avenue median via an at-grade signalised crossing of the westbound carriageway of Adelaide Avenue
• Option 5: Removal of the existing bridges over State Circle and replacement with a land bridge that maintains existing road traffic movements. Light rail would access the Adelaide Avenue median via this land bridge. The State Circle vehicle lanes would be arranged to maintain existing vehicle movements
• Option 6: Connection to the Adelaide Avenue median at-grade via the westbound on-ramp from State Circle to Adelaide Avenue with a signalised crossing of the Adelaide Avenue westbound carriageway adjacent to the entrance to The Lodge.

An evaluation of the six options shown in Figure 3-12 has concluded that none of the options would perform better or worse if the State Circle East alignment option or the National Triangle-Barton alignment option were to be adopted. The initial evaluation has also discounted four of the options (Option 3, Option 4, Option 5 and Option 6) for the following reasons:

• Option 3 has been discounted because it is similar to Option 2, with Option 3 having relatively greater engineering, constructability, and traffic impacts as well as resulting in more substantial potential landscape and visual impacts than Option 2
• Option 4 and Option 5 have not been progressed due to the potential visual clutter and permanent visual impacts to the Parliament House Vista related to the substantial change in landscape character as a result of either a substantial new bridge infrastructure (Option 4) or the extensive earthworks requirements associated with Option 5
• Option 6 has not been progressed due to steeper than desirable gradients for the light rail track on the westbound on-ramp and potential security concerns for, and permanent visual impacts to, The Lodge. This option would also have similar visual impacts as Option 5 in relation to the introduction of traffic signal infrastructure on Adelaide Avenue.

The remaining two options (Option 1 and Option 2) have been subject to more detailed investigation, including further design development and stakeholder engagement. The criteria used to further assess Option 1 and Option 2 have included consideration of landscape and visual amenity, heritage, and biodiversity impacts as well as constructability and safety.

The key outcomes of the more detailed investigations into Option 1 and Option 2 have included:

• In relation to Option 1:
  • Option 1 would result in the removal of vegetation within the landscaped annulus between State Circle and Capital Circle, and would alter the landscape character of this area through the introduction of new traffic signals on Capital Circle and a new light rail bridge between the existing Adelaide Avenue road bridges over State Circle
  • The Parliament House design competition documentation and submissions from the Giurgola Moral Rights Administrator and the Department of Parliamentary Services have been reviewed to understand the design intent of the landscape setting of Capital Hill and Parliament House. This review and feedback from stakeholders has identified key design objectives for further development of Option 1 to address stakeholder concerns associated with physical and visual impacts to the landscape and visual setting of Parliament House
  • The alignment of Option 1 within the landscaped annulus between State Circle and Capital Circle would remain within the 'road' zoning. It would therefore be generally consistent with mapping presented in the NCP Parliamentary Zone policy. While transport uses are permissible in the zone, the policy protects the setting of Parliament House by not permitting urban development. The traffic signals on Capital Circle required as part of the Option 1 design would not be centrally located within the Parliament House Vista from Adelaide Avenue and the design would retain public access and use of the open space within the landscaped annulus
• In relation to Option 2:
  • Given the topography of Adelaide Avenue rising away from State Circle, the long slot structure associated with Option 2 would need to extend for around 450 m before reaching the surface level of Adelaide Avenue
  • The length of the slot structure would result in visual impacts to The Lodge and the view to Capital Hill from Adelaide Avenue
  • There would be complexities associating with siting the light rail alignment between the existing foundations of the ageing Adelaide Avenue bridges over State Circle.

Further assessment of Option 1 and Option 2, including consultation with NCA and other key stakeholders, has resulted in the Project adopting Option 1. Noting the potential impacts associated with Option 1, design development for the Project will continue to engage with key stakeholders in order to optimise the design response in relation to these constraints.

3.6 Options considered - Inner South precinct

Key options that have been considered in the Inner South precinct include:

• Light rail route within the Adelaide Avenue corridor (refer to Section 3.6.1)
• Adelaide Avenue design considerations (refer to Section 3.6.2)
• Stop locations (refer to Section 3.6.3).

3.6.1 Light rail route (Adelaide Avenue corridor)

All options considered for transition of light rail from the Parliament House precinct (refer to Section 3.5.3) include a light rail alignment within the Adelaide Avenue corridor. Light rail route options within the Inner South precinct have therefore focused on the Adelaide Avenue corridor.

Based on the preferred option for the transition of light rail to Adelaide Avenue from State Circle via a central median arrangement as well as property constraints associated with The Lodge to the south and several embassies to the north, central median running along Adelaide Avenue has been progressed.

3.6.2 Adelaide Avenue design considerations

Notwithstanding the progression of the light rail alignment with central median running within the Adelaide Avenue corridor, there have been several considerations that have influenced the Project design within the Inner South precinct. These considerations relate to opportunities to enhance Adelaide Avenue as a Main Avenue consistent with the NCP Main Avenues and Approach Routes Precinct Code, and to enhance the landscape and visual setting on approach to Parliament House from the south.

The form and function of Adelaide Avenue has deviated substantially from the 1918 Griffin Plan. While other approach routes have been designed as boulevards, Adelaide Avenue was developed in the 1960s as an urban motorway without formal landscaping, footpaths, or at-grade intersections. It also follows the pre-existing undulating topography with Parliament House not entering the view for those approaching Capital Hill until a point just west of Hopetoun Circuit. From Hopetoun Circuit to State Circle, Adelaide Avenue follows the geometry of the 1918 Griffin Plan, has views of Parliament House uninterrupted by topography, and includes The Lodge.

The introduction of light rail provides an opportunity to create a formal avenue befitting its status in the Griffins' plan for Canberra. Currently, the landscape of Adelaide Avenue is limited to informal tree plantings within the verges, which is inconsistent with its classification under the NCP as a Main Avenue. The NCP Main Avenues and Approach Routes Precinct Code requires Main Avenues to be developed and maintained as high quality landscaped corridors where the landscape design increases in formality on approach to the Central National Area.

The Project has adopted design measures for this area that are consistent with a Main Avenue. Design measures would include green track (from the northern extent of the Inner South precinct to Hopetoun Circuit), wire-free running (transitioning to over-head wiring at the Hopetoun Circuit Stop), and narrow track centres with twin rows of formal tree plantings along the outside of the tracks. These would create an identifiable approach to the Central National Area, establish formal Avenue plantings, enhance the significant view of Parliament House, and reinforce the Griffins' landscape structure.

Wire-free running in these areas would reduce visual impacts associated with overhead wires and would therefore also minimise impacts to the heritage values of Parliament House and The Lodge.

3.6.3 Stop locations

There would be two stops in the Inner South precinct - the Hopetoun Circuit Stop and the Kent Street Stop.

Hopetoun Circuit Stop

The Hopetoun Circuit Stop would be a grade-separated stop located in the median of Adelaide Avenue, immediately to the west of Hopetoun Circuit. The nearest light rail stops would be the Melbourne Avenue Stop, located around 1.5 kilometres to the north-east, and the Kent Street Stop, located around 700 m to the south-west. Major trip generators in the catchment would include the Deakin Group Centre to the south-west of the stop as well as nearby schools.

Based on operational parameters for wire-free running, the light rail would transition at the Hopetoun Circuit Stop from wire-free running to use of overhead wiring. Overhead wiring would be adopted from this location through to the Woden Interchange in the south. Technical considerations that have determined the viability of a wire-free route have included the distance between stops where an LRV can travel wire-free using existing battery technologies taking gradients and operating speed into account. Additionally, the transition to over-head wires would need to occur at a stop with a traction power substation located nearby.

Four options for the location of the Hopetoun Circuit Stop platform have been considered

• Three options within the median of Adelaide Avenue (one to the east, one to the west, and one directly over Hopetoun Circuit on a new bridge structure)
• A slot-dive option where the rail alignment would descend from the median of Adelaide Avenue through a slot structure to a stop on Hopetoun Circuit.

The stop platform within the slot-dive arrangement introduced several concerns relating to a lack of passive surveillance and potential conflicts between LRVs, road vehicles and pedestrian movements on Hopetoun Circuit. Local traffic circulation would also be impacted with the introduction of another crossing and set of signals on Hopetoun Circuit. This option was therefore discounted.

Of the Adelaide Avenue median options, the western side has been identified as the preferred due to the location providing more direct and convenient walking access to the Deakin Group Centre (a main attractor for the stop) as well as the stop platform and overhead wires having less visual impact on the Parliament House Vista.

Kent Street Stop

The Kent Street Stop would be located near where the light rail alignment transitions from the Inner South precinct to the Yarra Glen precincts. For this reason, options for locating a light rail stop in this area have been considered in both the Inner South and Yarra Glen precincts. Three potential stop locations have been investigated to serve the Yarralumla, West Deakin, and North Curtin area:

• At the Kent Street overpass
• Adjacent to the Cotter Road overpass
• Near the Royal Australian Mint.

Initial investigations have determined that all three stop locations would be feasible, with the stop near Cotter Road presenting greater delivery constraints. Further investigations into a Cotter Road stop have resulted in this location being discounted because:

• The arrangement of the existing Cotter Road piers would result in:
  • A sub-optimal 'narrow track centre configuration' in order for the light rail to pass between the piers
  • A light rail track arrangement that would require a side platform rather than a central platform configuration. This would subsequently require double the vertical transport infrastructure requirements for lifts and stairs
  • A sub-optimal design outcome with the light rail alignment being on a curve once it had passed through the Cotter Road bridge piers as it transitioned onto Yarra Glen
• Limited catchment and challenges creating a meaningful place outcome, with poor connections into the broader road network and limited opportunity for interchange connectivity.

A Kent Street Stop has been identified as preferred due to the ability to tie into existing infrastructure and connections to existing communities. The Kent Street Stop would facilitate greater access to light rail via a number of modes, including active travel (walking and cycling) and via existing bus networks. The nearest light rail stops would Hopetoun Circuit Stop, located around 700 m to the north-east, and Carruthers Street Stop, located around 2 km south-west.

A light rail stop at a location near the Royal Australian Mint (the Mint) has also been considered. While a stop at this location would support future growth in North Curtin and the Molonglo Valley, the current catchment area is limited based on existing land uses. The infrastructure to support accessibility to the area, such as provision for bus and active travel, is also currently limited.

Planning for future growth and development in Woden is outlined in the Woden District Strategy (ACT Government, 2023), which identifies areas for change along the light rail corridor. Further planning and investigations into potential opportunities in Woden are being addressed through the development of the Southern Gateway Planning and Design Framework, as well as planning for the North Curtin Residential Area which is noted on the Indicative Land Release Program as being slated for initial release in 2028-29. The Southern Gateway Planning and Design Framework will further outline the strategic directions for growth and development in the Inner South and Woden Districts, including an integrated land-use and transport plan in and around Yarra Glen and North Woden.

Given this, and to provide flexibility for future land-use and transport plans, the Project design has been developed to not preclude the placement of a stop in the Yarra Glen median near the Mint, i.e. the light rail tracks would be sited with sufficient space for a stop platform.

While the Southern Gateway Planning and Design Framework does not form part of this EIS or this EPBC Act process, consideration of an alternative to the Kent Street Stop near the Mint, and other corridor development options, is ongoing. Implementation of the final Southern Gateway Planning and Design Framework would be subject to a separate assessment and approvals process.

3.7 Options considered - Yarra Glen precinct

Key options that have been considered in the Yarra Glen precinct include:

• Light rail route options (refer to Section 3.7.1)
• Stop locations (refer to Section 3.7.2)
• Yarra Glen, Yamba Drive, and Melrose Drive road configuration (refer to Section 3.7.3).

3.7.1 Light rail route

Three potential light rail route options have been considered through the Yarra Glen precinct (refer to Figure 3-13):

• Along Yarra Glen
• Along Denison Street connecting with Yarra Glen via Carruthers Street
• Along Kent Street connecting with Yarra Glen via Carruthers Street.

Of these three options, a light rail route along Yarra Glen has been identified as the preferred option for the following reasons:

• The ability to accommodate the light rail alignment within the Yarra Glen central median, which would result in fewer technical challenges than those associated with a light rail route on both Kent and Denison Streets. Routes along Kent and Denison Streets would result in:
  • Greater constructability challenges (likely need for road widening)
  • Higher potential for utilities constraints
  • More substantial construction and operation phase traffic impacts
  • More challenging grades (including at Adelaide Avenue and the area around the Denison Street/ Carruthers Street intersection)
• It would provide the fastest journey time, which would best support the objective of achieving a 30-minute journey time between the city and Woden
• It would best support access to light rail from both the Deakin and Curtin catchments, whereas neither of the Kent Street and Denison Street route options would provide access for those in Curtin
• The Yarra Glen route option would have greater potential to support urban renewal in the North Curtin area
• It would be consistent with the Inter-Town Public Transport System shown in the NCP.

3.7.2 Stop locations

There would be one stop in the Yarra Glen precinct - the Carruthers Street Stop. The location of the Kent Street Stop has considered options in both the Inner South and Yarra Glen precincts, as discussed in Section 3.6.2.

Carruthers Street Stop

Two options for the location of the Carruthers Street Stop have been considered, one north and one south of the Carruthers Street overpass. Both options would include wide track centres, and a wide island platform stop accessed by a new pedestrian and cyclist bridge. The nearest light rail stops would be Kent Street Stop, located around 2 km north-east, and Phillip Oval Stop, located around 1.3 km south.

Based on stakeholder feedback as well as a review of access to the stop, the cycling network plan in the ACT Active Travel Plan (Transport Canberra and City Services, 2023) and technical considerations, the southern location has been identified as preferred. The southern location has been selected because:

• It would provide greater stop access amenity
• The catchment would be greater, with the stop being on the same side as Curtin Group Centre and providing opportunity for a future park and ride facility
• It would provide greater opportunity for integration with the city-Tuggeranong via Woden cycle route.

3.7.3 Yarra Glen, Yamba Drive, and Melrose Drive configuration

As described in Section 5.6 of Chapter 5 (Project description), the Melrose Drive and Yamba Drive roundabout would be removed and replaced with a new signalised high capacity intersection. The new intersection would allow for light rail movement, and would include the following infrastructure:

• A new light rail bridge (short viaduct) over Yarralumla Creek
• Modification of the existing Melrose Drive road bridge over Yarralumla Creek to accommodate the southbound carriageway comprising two through traffic lanes
• Removal of the existing road connection from Yamba Drive to Melrose Drive, including the removal of the existing road bridge
• Removal of existing pedestrian and cyclist bridge over Yarralumla Creek, and construction of new pedestrian and cyclist bridge further south
• Relocation of existing active travel link to the eastern side of Yarralumla Creek.

Two options for a light rail bridge (viaduct) across Yarralumla Creek and an associated active travel route have been considered as part of the design development for Yarra Glen, Yamba Drive and Melrose Drive configuration. These options are shown in Figure 3-14.

Consideration of the two options has taken into account several factors, including:

• Development of design that maintains safety and limits transport and traffic impacts for the transition of light rail running from the Yarra Glen median to the western side of Yarralumla Creek
• Minimising traffic noise impacts to existing residential buildings on Irving Street, Phillip
• Minimising impacts to key sites and change areas identified in the ACT District Strategies and being developed by the Southern Gateway Planning and Design Framework
• Maintaining and enhancing walking and cycling network connections between Woden Town Centre, existing and planned residential development, open space and destinations to the north (Curtin and Deakin Group Centres, West Deakin, National Triangle, Barton, and the city)
• Avoiding worsening of potential flooding risk from Yarralumla Creek.

Both options would include a direct connection to Woden Town Centre via a light rail route that generally follows Yarralumla Creek, consistent with the Inter-town Public Transport System (Indicative Route) as set out in the NCP, with public transport as an allowable use under the Territory Plan. This approach would minimise journey time for the Project and potential future light rail extension(s) to the south.

Of these two options for light rail and active transport routes, Option 2 has been identified as the preferred arrangement because it would:

• Improve movement outcomes and safety of the Yamba Drive, Yarra Glen, Melrose Drive intersection and would minimise transport and traffic impacts
• Be consistent with light rail design criteria for horizontal and vertical alignment and would minimise the length of the bridge crossing of Yarralumla Creek to a single span, running parallel to Melrose Drive
• Provide an arrangement that limits encroachment into potential future development sites envisaged in the ACT District Strategies
• Consolidate the main north-south active travel route to the eastern side of Yarralumla Creek that would:
  • Enable a safer, more legible active travel network through to Woden Town Centre, including separation of the active travel route from the Phillip Oval Stop location
  • Maintain an active travel on the eastern side of Yarralumla Creek that responds to space constraints within the corridor
  • Best integrate the active travel route with planned future residential development
  • Maximise urban design and biodiversity outcomes by minimising tree removal and allowing for comparatively better landscaping opportunities within the light rail corridor.

Ongoing consultation with relevant stakeholders would continue in relation to integration of the Project with outcomes of investigations as part of the Southern Gateway Planning and Design Framework.

3.8 Options considered - Woden precinct

Key options that have been considered in the Woden precinct include:

• Light rail route options (refer to Section 3.8.1)
• Stop locations (refer to Section 3.8.2).

3.8.1 Light rail route

Flooding is a constraint in this precinct and the Project design has considered potential flooding impacts related to the introduction of the trackform, stops, and grade separated pedestrian bridges. Other factors considered in developing the preferred light rail route have included known or potential future development sites and opportunities, and existing infrastructure and developments immediately adjacent to the corridor including Ivy Apartments and Canberra College.

In the Woden precinct, the light rail alignment would be located on the western side of the Yarralumla Creek adjacent to Ivy Apartments, Phillip Oval and the bus layover, before crossing Launceston Street and following a median alignment on Callam Street to the Woden Interchange. The alignment would include a Phillip Oval stop near Irving Street.

The light rail would follow the Inter-Town Public Transport System (Identified Route) identified in the NCP (public transport is an allowable use within blocks along the alignment under the Territory Plan).

Potential alternative routes following the road network have been discounted because these options would result in a less direct route with longer journey time between Woden and defined activity centres, including those located to the south along a potential future Light Rail network extension.

3.8.2 Stop locations

There would be two stops in the Woden precinct - the Phillip Oval Stop and the terminus stop (Woden Interchange).

Phillip Oval Stop

The Phillip Oval Stop would serve the catchment north of Launceston Street. The catchment includes existing and proposed medium to high density residential development, Phillip Oval, and Canberra College. The nearest light rail stops would be Carruthers Street Stop, located around 1.3 km north, and Woden Interchange, located around 600 m south-east.

Factors considered in the location and design of the stop as well as the rail route and access arrangements have included:

• Potential flooding risk from Yarralumla Creek
• Potential physical and noise impacts to adjacent residential development from construction and operation, as well as potential impacts to motor vehicle access
• Physical impact to mature trees and habitat
• Access to the stop and broader walking and cycling network connections.
• Vertical and horizontal alignments of the walking and cycling path, stop location, bridge over Yarralumla Creek and the connecting watercourse and length of elevated to provide a Disability Standard Accessible Public Transport (DSAPT) compliant connection back to grade along the creek.

A review of a range of options against these factors has resulted in the following configuration for the Phillip Oval Stop:

• A stop location south (upstream) of the Yarralumla Creek main and side channels to reduce flood storage at the confluence
• A horizontal light rail alignment on the western edge of the Yarralumla Creek corridor to reduce flood storage impacts
• Lowering the vertical light rail alignment north of the stop to match the existing ground level to reduce flood storage impacts
• Relocating the existing active travel corridor on the eastern side of Yarralumla Creek with a north-south bridge over the side channel and use of an elevated path on piers to reduce flow impedance
• Provision of an east-west stop access bridge over Yarralumla Creek, north of the stop with DSAPT compliance for ramps and walkways
• Earthworks refinements, including localised benching above the formal channel on the western side of the creek and south of the stop to increase flood storage.

Terminus stop (Woden Interchange)

Two locations have been considered for a terminus stop for the Project (refer to Figure 3-15):

• Woden Town Centre
• Canberra Hospital.

A stop at Canberra Hospital would extend the light rail alignment beyond the Woden Town Centre.

Key constraints considered in evaluating the options for a light rail terminus stop have included relative length, ability to integrate with future Light Rail network extensions, bus interchange opportunities, utilities and transport network outcomes.

Community consultation undertaken in 2017 indicated a good level of support for a terminus at Canberra Hospital, however, respondents raised concerns regarding the amenity of the proposed hospital terminus to the hospital itself, and to future extensions of the network from a hospital terminus.

The Canberra Hospital terminus stop option would result in a 1.4 km extension to a terminus stop near Canberra Hospital at the intersection of Hindmarsh Drive and Yamba Drive. The additional distance would increase journey time for a potential future network extension to the south. Although there has been some community support for a stop near Canberra Hospital, there are various technical issues including substantial utilities relocation work, including for a high-pressure gas main on Hindmarsh Drive.

Woden Town Centre has been identified as the preferred terminus stop location because it would:

• Integrate with the renewed Woden Public Transport Interchange, providing access to safe, reliable and inclusive transport options incorporating cycling, walking, bus, and light rail
• Provide the most direct light rail route with the shortest journey time to Woden Town Centre, with minimal impact to journey time for a potential future extension to the south
• Follow the NCP Inter-Town Public Transport System (Indicative Route) where public transport is an allowable use under the Territory Plan.

The nearest light rail stop to Woden Interchange is Phillip Oval Stop, located around 600 m to the north-west.

3.9 Options considered - Project operations and stabling

Key options that have been considered in relation to Project operations and stabling:

• Stage operation (refer to Section 3.9.1)
• Service stopping patterns (refer to Section 3.9.2)
• Stabling and maintenance (refer to Section 3.9.3).

3.9.1 Staged operation

As part of the Project development process, investigations are ongoing into potential options to stage operation of the Project. Factors being considered that would influence options for staged operation include:

• Construction program and opportunities for staged construction completion, including in relation to longer duration construction areas such as Commonwealth Avenue light rail bridge
• Project power supply, including extent of wire-free running and the need for supporting infrastructure including traction power substation requirements
• Suitable space for a terminus design at an appropriate location, including requirements for turnback infrastructure
• Light rail operational considerations, including LRV fleet requirements
• Considerations for integration with broader public transport network (and drivers for the terminus location to perform an interchange function).

3.9.2 Service stopping patterns

Investigation into the viability and benefits of different stopping patterns, including the introduction of express light rail services in peak periods have been considered and presented in the report Express Light Rail Services to Woden (Transport Canberra and City Services, 2024). The investigation included review of timetable aspects as well as infrastructure design changes, and found that the introduction of express services would not provide substantive benefits when compared to the current all stopping services arrangement. It found that the reduction in journey times for express services would be minimal and would negatively impact customer experience.

3.9.3 Stabling and maintenance

Consideration has been given to stabling arrangements for LRVs to support light rail operations and service frequencies. Options considered have included:

• Catering for stabling of the full LRV fleet at the existing Mitchell Depot site
• Stabling of a majority of LRVs at the existing Mitchell Depot site with a smaller ('satellite') stabling facility introduced at the southern end of the Project for stabling of a small number of LRVs.

At this stage of design development, the existing Mitchell Depot has been identified as the preferred option for stabling of all LRVs for the Project. Reconfiguration of the Mitchell Depot site is feasible and would co-locate operations and maintenance activities. As part of ongoing design development, investigations into a potential satellite stabling facility location would continue.