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1 A Task Force to Improve Short Term Access into and out of Brisbane Airport Precinct Task Force report December 2007 M a in Roads Report

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Page 1: Draft airport task force report - v20Dec 07 9ammedia01.couriermail.com.au/multimedia/2007/12/Airport... · 2007-12-20 · John Elliott, General Manager, Policy and Queensland/Northern

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A Task Force to Improve Short Term Access into and out of Brisbane Airport Precinct

Task Force report

December 2007

MainRoadsReport

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Executive summary

Growth is continuing at the airport precinct and traffic numbers into and out of the precinct are increasing, particularly along Airport Drive. Since 2005, traffic numbers have grown by 25 per cent on Airport Drive.

In August 2007, traffic signals were turned on at the Gateway Motorway and Airport Drive interchange (on the roundabout). This provided significant safety and traffic improvements for all approaches except for the westbound traffic on Airport Drive.

At the request of the Minister for Main Roads and Local Government, a Task Force with membership of all major stakeholders was formed to identify and recommend short term actions to improve travel into and out of the airport.

Members assessed potential options and recommended the following actions.

Recommended actions

Recommendation 1

Upgrade and promote the alternative route into and out of the airport precinct – the Lomandra Drive, Sugarmill Road and Kingsford Smith Drive route.

Recommendation 2

Discourage and minimise traffic that drives through the airport precinct and does not have business in the precinct, to curb 'rat running' in peak periods.

Recommendation 3

Provide quicker response to incidents on the motorway, at the airport roundabout interchange and on the approach roads.

Recommendation 4

Increase use of the Airtrain by people accessing the airport precinct, particularly employees, by making it more attractive.

Recommendation 5

Upgrade the bus service between Chermside, Toombul, DFO and the airport business precinct.

Recommendation 6

Develop and implement public information activities to raise community and stakeholder awareness of travel options into and out of the precinct.

Major infrastructure projects are either in construction or under consideration in the area to provide for growth in the medium to long term.

These include a new deviation for the Gateway Motorway and a second, northern access to the airport. Both of these are planned for completion in mid 2009.

Contents

Executive summary 2

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Introduction 4 Task Force Terms of Reference 4 Task Force membership 5 Task Force process 5 Operation of the airport roundabout 6 Considering the options 9 Recommended actions 10 Constraints on upgrading the roundabout 15 Longer term improvements 15 Attachments 16

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Introduction

This is the report of the Task Force to Improve Short Term Access into and out of Brisbane Airport Precinct.

In October 2007, the Minister for Main Roads and Local Government, Warren Pitt, asked the Department of Main Roads to form a Task Force with the major stakeholders to investigate possible short term actions that might improve access into and out of the airport precinct.

Attachment 1 shows the general location of the airport roundabout.

Main Roads has recognised that the roundabout at the interchange of the Gateway Motorway and Airport Drive has experienced phenomenal growth in traffic volumes over recent years, resulting in major congestion issues and related safety concerns. The interchange and roundabout had a crash record of 122 reported accidents in the five years leading up to 2007, with 85 people injured and 11 hospitalised. This was the highest crash record of intersections in Queensland, with the Royal Automobile Club of Queensland (RACQ) reporting it as the highest ranked "Red Spot" on Queensland's road network.

In response to the safety concerns, and in collaboration with Brisbane Airport Corporation (BAC), Main Roads installed traffic control signals on all four legs of the roundabout. The signals became operational on 27 August 2007. The traffic signals have provided many benefits at the interchange, including improved safety. However, the traffic lights have increased traffic queues westbound on Airport Drive, particularly between 3pm and 6pm on weekday afternoons.

Task Force Terms of Reference

The Terms of Reference for the Task Force were finalised at its first meeting on 18 October 2007.

The Task Force had the following objectives:

− maintain or improve current road safety levels on all approaches and departures from the airport precinct

− maintain or improve the existing extent and frequency of queues from the roundabout into the northbound lanes of the Gateway Motorway

− maintain or improve the travel time and reliability of travel for inbound vehicles to the airport precinct

− improve the travel time and reliability of travel for outbound vehicles from the airport precinct, particularly on weekdays between 3pm and 6pm.

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Task Force membership

The Task Force member organisations and their representatives are:

Queensland Department of Main Roads Eddie Peters, District Director (Metropolitan) Task Force Chair

Queensland Transport David Welsby, Regional Manager (SEQ Planning),

Brisbane Airport Corporation Terry Rossitto, Transport Infrastructure Manager

Australia Trade Coast Wendy McMillan, General Manager

Brisbane City Council George Pund, Manager (Transport and Traffic)

Queensland Taxi Council John Varendorff, Acting Chief Executive Officer

RACQ John Wikman, Manager, Traffic and Safety

Queensland Motorways Limited Tom Knobel, Commercial Manager

Observer

Commonwealth Department of Infrastructure, Transport, Regional Development and Local Government John Elliott, General Manager, Policy and Queensland/Northern Territory Road Investments

Task Force process

The Task Force carried out its tasks through a series of four formal meetings where information was provided, options were discussed and further investigations were carried out by representatives from the member organisations after each meeting.

From the meetings, sub-groups proceeded to refine each proposed short term action and determined its implementation date and time frame, and its benefits.

Main Roads, Queensland Transport, Brisbane City Council, Brisbane Airport Corporation and RACQ contributed most to the detail of short term options.

Queensland Motorways and BAC contributed detail to the major infrastructure projects underway. These projects will provide major capacity upgrades through the Gateway Motorway deviation and the Airport Northern Access, due for completion by mid 2009.

All other actions are aimed at shorter term improvements as they relate to the Terms of Reference objectives.

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Operation of the airport roundabout

History

1986 - the roundabout was commissioned with the opening of the Gateway Bridge and intersected with the Gateway Motorway. This meant that all northbound and southbound traffic on the Gateway Motorway had to negotiate with roundabout traffic to and from the airport.

1990 - the roundabout was grade-separated so northbound and southbound traffic on the Gateway Motorway could travel over the roundabout and stay separated from airport traffic.

2003 - slip-lanes were installed so traffic could negotiate left-turns around the roundabout without having to enter the main traffic area. This reduced the number of cars queuing to enter the roundabout.

2005 - Direct Factory Outlet (DFO) opened at No. 1 Airport Drive, resulting in a substantial increase in traffic volumes travelling to and from the airport precinct. Main Roads commenced a new study to investigate options to reduce congestion at the roundabout.

2007 – signals were installed at the roundabout to reduce the high rate of traffic accidents (to improve safety) and control the queue lengths on the approaches (to improve reliability). Of particular concern was the queuing on the northbound Airport Drive exit from the Gateway Motorway, which often resulted in stationary traffic on the motorway. The new interchange signals have removed this queuing problem.

Demand and capacity

Since 2005, there has been a 25 per cent increase in peak hour demand by vehicles using this interchange. That is, an extra 730 vehicles per hour are using this interchange during peak hours compared with two years ago.

While there is some 'rat running' through the airport precinct, the large majority of trips in the precinct have an origin or destination within the precinct.

Current demand westbound in the afternoon peak period reached 550 vehicles every 15 minutes (2,100 vehicles per hour). The current maximum capacity for westbound traffic through the signals is 500 vehicles each 15 minutes (2,000 vehicles per hour).

Current growth patterns are expected to continue.

The BAC 2007 Annual Report shows growth in passenger numbers over the last 10 years has fluctuated considerably each year. The 2007 growth in international passengers has been 5.9 per cent (3,975,211 passengers in 2007) and in domestic passengers has been 9.5 per cent (13,519,490 passengers in 2007). It is reasonable to assume that in the short term this growth will continue1.

In the six-year period from 2007 to 2013, the total average day airport jobs will grow from 11,677 to 24,539 in 2013 (average growth of 13 per cent per year). Of that growth, 3,519 additional average day jobs (27 per cent of the total) are projected for the precinct known as No. 1 Airport Drive. Developments proposed in the precinct include a Woolworths outlet, Medical Centre, office space, child care centres and a hotel. These developments do, and will continue to contribute to, increased travel demand on Airport Drive.

1 BAC Holdings Limited. 2007. Brisbane Airport Corporation 2007 Annual Report. Brisbane: BAC. Pages 3, 15, 29 and 30

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Impact of recent signalisation

Before the signals were installed at the roundabout, the 25 per cent increase in peak traffic over the last two years had resulted in significant congestion. Delays increased on all approach legs of the roundabout, and significant variability occurred in travel times. This was due to the uncontrolled nature of the roundabout, and the dangerous and increasing occurrence of northbound traffic exiting from the Gateway Motorway, and queuing onto the through lanes of the motorway. Not only was it unsafe, the capacity of the motorway and all other approach roads was also impacted.

In peak times, the Gateway Motorway itself is at capacity in both directions. When the left through lane is blocked by the queue from the off-ramp, the capacity of the motorway is significantly reduced and further queuing occurs on the motorway. Over the last five years, an additional 25 accidents were reported between Kingsford Smith Drive and the northbound off-ramp to the airport. This is in addition to the 122 accidents reported at the interchange itself. Attachment 2 shows the interchange and the approach roads.

After the signals were made operational on 27 August 2007, the following changes were observed (attachment 2 shows the interchange and the afternoon peak operations in terms of green signal phase times).

Northbound off-ramp

The signals:

− reduced the frequency of the queues extending onto the Gateway Motorway (90km/h)

− improved through-put in peaks on the motorway northbound by 400 vehicles per hour from 2,800 to 3,200

− improved travel times

− improved access and reliability of travel to the airport.

Northbound on-ramp

The signals:

− provided the ability to prevent queues from extending through the roundabout, particularly during northbound incidents that may occur on the Gateway Motorway

− did not increase in capacity at this location because of the limited merging available onto the congested motorway at the top of the ramp.

Southbound off-ramp

The signals:

− provided minimal interruption to operations due to low flows. This movement has a 'free' slip lane available for movements from the north to the airport.

East-West Arterial departure westbound

The signals:

− provided safer weaving between the interchange and the intersection of the East-West Arterial and Nudgee Road

− improved synchronisation with the intersection of the East-West Arterial and Nudgee Road. This intersection has also reached capacity during peak periods over the last two years. Lack of synchronisation had been causing inefficiencies in its operation.

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East-West Arterial approach eastbound

The signals:

− reduced frequency of traffic queuing back towards Sandgate Road

− provided more reliable operation between the intersection of the East-West Arterial and the newly signalised interchange

− improved access to the airport with decreased and more reliable travel times.

Airport Drive westbound

The signals:

− produced delays of up to 20 minutes on a typical day

− reduced the capacity of the intersection from 550 vehicles in 15 minutes to 500 vehicles in the same period.

Improved interchange safety and motorway operations

Significantly, there have been no recorded crashes at the interchange since the signals became operational on 27 August 2007.

However, there remain significant issues with congestion on Airport Drive westbound, particularly in the period from 3pm to 6pm Monday to Friday.

Travel time data shows average speeds in the congested period of approximately 16 km/hr and a travel time along Airport Drive of 20 minutes

Attachments 3a to 3d show how traffic flows have changed since 27 August 2007.

Attachment 3a shows 24-hour traffic volumes on the Gateway Motorway on 23 August (before signals).

Attachment 3b shows 24-hour traffic volumes on the Gateway Motorway on 30 August (with signals).

These figures demonstrate larger and more consistent traffic movements after the signals became operational.

Attachment 3c shows 24-hour approach traffic volumes for the northbound off-ramp, East-West Arterial, southbound off-ramp and Airport Drive on 23 August 2007 (before the signals).

Attachment 3d shows 24-hour approach traffic volumes for the northbound off-ramp, East-West Arterial, southbound off-ramp and Airport Drive on 13 September 2007 (with signals).

These figures demonstrate the improved consistency of movement on the approaches generally (discounting the southbound off-ramp which has relatively minor volumes). The figures also show that peak approach volumes in the period between 3pm and 6pm have decreased by up to 10 per cent in some 15-minute periods on Airport Drive westbound. This is due to a reduction in capacity rather than demand for this approach.

A three-day travel survey was undertaken in September 2007 to identify travel times and average speeds. The results of the survey are shown in attachment 4. For the Airport Drive westbound traffic, average travel speeds varied from 60.6km/hr in non-congestion conditions to 16.6km/hr in congested conditions. Travel time varied on that leg from five minutes 36 seconds to 20 minutes 26 seconds.

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Considering the options

Options considered

From the second meeting of the Task Force on 1 November 2007, a list of possible options was developed for further investigation.

All options discussed were initially screened using the Task Force objectives and the following criteria.

− Options that would compromise safety would not be supported.

− Options that had the potential to further reduce congestion were to be recommended for investigation and development of project proposals i.e., the short term options.

− Other options that would potentially benefit traffic in the area, but did not address the immediate congestion issues and may not be available in the short to medium term (within 12 months), were put aside for future consideration i.e., long term options.

− Some options discussed were considered either longer term (beyond 18 months) or did not fit with the objectives i.e., no further action at this time.

For example, some suggestions have been made to convert the signals to 'orange flash' during peak periods, effectively re-converting the roundabout to non-signal controlled. The Task Force does not recommend this option as it would compromise safety, compromise inbound vehicle travel times and reliability, and re-introduce queuing onto the Gateway Motorway from the northbound off-ramp.

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Recommended actions

The short term options have been further refined by the Task Force and a final list of recommended actions developed.

Recommendation 1

Upgrade and promote the alternative route into and out of the airport precinct – the Lomandra Drive, Sugarmill Road and Kingsford Smith Drive route.

This proposal has the following three components.

− Upgrade the Lomandra Drive and Sugarmill Road intersection to attract trips. BAC is proceeding with this work between November 2007 and March 2008.

− Upgrade the Sugarmill Road and Kingsford Smith Drive intersection to allow greater priority for right turn movements out of Sugarmill Road. This could be staged with initial police control in peak periods followed by intersection improvements and signalisation.

− Provide changes to directional signage on Kingsford Smith Drive eastbound to encourage traffic accessing the Brisbane Airport Business Precinct to use Sugarmill Road and Lomandra Drive as an alternative to Gateway Motorway and Airport Drive.

Benefit: These actions have the potential to increase the capacity out of the airport precinct by up to 100 vehicles per hour

Time frame: Substantial implementation by March 2008.

Implementation by: BAC, Main Roads, BCC (off-duty police to be engaged in the short term)

Recommendation 2

Discourage and minimise traffic that drives through the airport precinct and does not have business in the precinct, to curb 'rat running' in peak periods

It has been identified that up to one third of the total traffic on Lomandra Drive (100 vehicles per hour) is made up of 'rat runners'.

A system of permits could be introduced for those people with legitimate business in the precinct who wish to turn left out of Lomandra Drive into Airport Drive. Those without permits in the peak hours would be required to turn around, or take an unattractive route via the international airport roundabout.

In addition, signs could be placed at the Sugarmill Road entrance from Kingsford Smith Drive to discourage 'rat running'.

Benefit: These actions would decrease demand by up to 100 vehicles per hour

Time frame: March 2008

Implementation by: BAC (off-duty police would be required)

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Recommendation 3

Provide quicker response to incidents on the motorway, at the airport roundabout interchange and on the approach roads

This action has commenced in part. Main Roads has, in contract with RACQ, increased the towing service for broken down or disabled vehicles. The contract commenced in December 2007.

The second part of this action is the implementation of more traffic response vehicles (TRVs) for this part of the metropolitan Brisbane road system. The additional TRVs will come online progressively in 2008.

Benefit: Quicker clearance times for incidents on the Gateway Motorway and other roads

Time frame: Some elements currently in place. The remainder to be progressively implemented in 2008

Implementation by: Main Roads and RACQ

Recommendation 4

Increase use of the Airtrain by people accessing the airport precinct, particularly employees, by making it more attractive

This action seeks to increase the use of Airtrain services, particularly by people employed in the airport precinct. It does this by marketing discount price tickets to employees, increasing the services capacity of Airtrain, providing shuttle bus connections from the International terminal station to employment sites, and improving bus connections to the rail network.

Ticket price – Airtrain can make available to airport precinct employees discounted weekly tickets at $20 or 10 trip savers at $25. These are currently used by approximately 230 employees. TransLink could provide free travel for these with discount tickets on connections to Airtrain.

Airtrain services capacity – Train services cover the period from 5:30am to 7:30pm, generally at half hour frequencies using Gold Coast connection six-car train sets. During the am and pm peak periods, services operate at 15 minute frequencies. Additional trains from the city to the airport are three car sets only. Airtrain is in negotiation with Queensland Rail regarding the use of Gold Coast service six-car sets for the additional peak hour trains. This would increase peak hour train service capacity by 25 per cent to about 2800 passenger capacity per hour each way. If these negotiations are successful, additional capacity would be available from 31 March 2008.

Airport shuttle bus – Brisbane Airport Corporation (BAC) plan to introduce a Domestic to International shuttle service running continuously from February 2008. BAC is investigating the extension of this shuttle service to pick up employees from precincts other than airport terminal for connection to the International terminal station.

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Bus connections to rail - TransLink is investigating options to provide additional services on route 320 from the Chermside Bus Interchange via Eagle Junction to the city to improve public transport feeder access to Airtrain services. With the introduction of the TransLink GO Card in February 2008, it may be possible to use the GO Card for Airtrain services.

Benefit: The action shifts travel during the peak periods on to Airtrain rail services reducing the length of inbound morning and outbound afternoon peak traffic queues.

Time frame: This option will be further developed through negotiations with Queensland Rail and the BAC.

Implementation could start on 31 March 2008. These arrangements could remain in force until no longer required – likely to be mid 2009.

Implementation by: Airtrain - provide and market discount Airtrain tickets and identification cards

Airtrain - negotiate Airtrain services arrangements with Queensland Rail

BAC - provide airport shuttle bus services and supporting infrastructure

TransLink - provide free travel on TransLink services from home to train connection for card holders

TransLink - provide TransLink bus connections to Eagle Junction

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Recommendation 5

Upgrade the bus service between Chermside, Toombul, DFO and the airport business precinct

It is proposed to extend the existing 308 bus as a limited stop service to run from the Chermside Bus Interchange via Toombul Shopping Centre to DFO and the rest of the airport precinct. The frequency and hours of operation would be increased to provide a 30min frequency between 5am and 7pm (with 15min peak frequency between 5.30am and 7.30am and between 3.30pm to 5.30pm).

The changes would be accompanied by providing information to employers (who provide the information to employees) about public transport options.

Existing bus services operate at shorter operating hours and carry about 200 people per day. This expansion is consistent with medium term network planning.

Bus services could be extended to Pandanus Avenue to service 1,500 employees at Aerotech Park.

Consultation between Brisbane Transport and TransLink will be required to further develop this action.

Benefit: Improves access by public transport to the airport precinct

May reduce private vehicle travel to the airport. Up to 30 per cent of vehicle movements through the roundabout are estimated to be airport precinct employees and currently only 2 per cent of airport precinct employees used public transport for the journey to work.

Time frame: Further development - construct new bus stops, contract bus services, prepare information (start: January 2008; finish: February 2008)

Implementation – bus service improvements could commence in late February 2008.

Implementation by: TransLink, in conjunction with Brisbane Transport

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Recommendation 6

Develop and implement public information activities to raise community and stakeholder awareness of travel options into and out of the precinct

Airport precinct travel information working group Set up an airport precinct travel information working group with representatives from each of the Task Force member organisations. The group will coordinate the public information program for the airport precinct travel improvements. Main Roads will chair the group.

Broad airport precinct travel Improvements communications Main Roads will develop and deliver the broad communications program to ensure the community is aware of and receives relevant information about their travel options. The program will include:

− Engaging with representatives from key stakeholder groups Main Roads will brief and update representatives of key stakeholder group of the travel improvements and their benefits and impacts.

− Engaging with airport precinct business owners and employees Implement a customised TravelSmart program for airport precinct business owners and employees to raise awareness of travel options and how they can take advantage of them.

− Providing a fact sheet and flyer series Main Roads will produce a series of fact sheets and flyers about the travel improvements program for distribution to the community and airport precinct employees.

− Hosting a project website Main Roads will host a comprehensive project website with up-to-date information about progress and initiatives. The site will include links to other relevant websites so there is a one-stop shop for all information about travel improvements at the precinct.

− Improving traffic reporting Main Roads has already installed a webcam at the roundabout to help travellers and motorists better plan their journeys. Additional web cameras and better information sharing with the BAC can improve traffic reporting on airport congestion to the community. This will be delivered through the 13 19 40 traffic hotline and website, and the BAC's internal communication systems to airport clients.

− Providing an enquiries email and telephone hotline Main Roads has already set up the [email protected] email enquiry line for the community to provide comments. This will be supplemented with a telephone hotline.

Benefit: Raise community awareness of the airport precinct travel improvements and advise the community of their improved travel options

Time frame: The airport precinct travel improvements information activities will commence immediately, and will be rolled out with key program activities.

Communications for recommended actions will be implemented by the responsible organisation/s with Main Roads to coordinate

Implementation by: Main Roads to lead in partnership with all Task Force partners

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Constraints on upgrading the roundabout

The Task Force considered further upgrading of the interchange, in particular, by providing:

− a bus queue facility at the East-West Arterial Road and Airport Drive entries to the interchange

− changes to the traffic signal timings

− a third lane for west bound movements from Airport Drive to the East-West Arterial Road and the on-ramp to the Gateway Motorway northbound.

These options are not recommended. They will not provide any additional net benefits because:

− providing a bus queue would noticeably impede the flow of general traffic

− traffic signal timings are now at optimum

− while a third lane at the interchange would provide some additional capacity, it would only result in increased queues both at the Nudgee Road and East-West Arterial intersection and at the on-ramp to the motorway. The improvement in capacity would not eliminate the current congestion and delays.

Longer term improvements

The Task Force recognises that, while providing some short term relief, the recommended actions will not be adequate to manage long term growth in the area.

Large road infrastructure investments are planned, with some under construction, to improve road transport into and out of the airport precinct. They include the following.

− Construction of a deviation of the Gateway Motorway from the Brisbane River, north to Nudgee Road. This will provide an alternative high capacity motorway to the existing one. It is being constructed as part of the Gateway Upgrade Project by Queensland Motorways Limited.

− Construction by the BAC of a second, northern access into the airport. It will connect to the Gateway deviation mentioned above, with both to be opened to traffic in mid 2009. Combined, these two projects are expected to result in a decrease of up to 40 per cent of the traffic from the airport roundabout.

− The state is considering, at the same time as the Airport Link project, a much higher capacity interchange to encompass both the existing Gateway/Airport Drive roundabout and the Nudgee Road and East-West Arterial interchange. Tenders for the Airport Link project closed on 14 December. The successful tenderer is to be announced in mid 2008.

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Attachments

Attachment 1 General location of Airport Drive and Gateway Motorway Interchange (roundabout)

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Attachment 2

Approach roads Airport Drive and Gateway Motorway Interchange (roundabout)

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Attachment 3a

24-hour traffic volumes on the Gateway Motorway on 23 August – before the signals were installed

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Attachment 3b 24-hour traffic volumes on the Gateway Motorway on 30 August – three days after the si9ngals were installed

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Attachment 3c 24-hour approach traffic volumes for the roundabout approaches on 23 August - before the signals were installed

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Attachment 3d 24-hour approach traffic volumes for the roundabout approaches - after the signals were installed

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Attachment 4 Results of the three-day travel survey in September 2007 28

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Attachment 1 General location of Airport Drive and Gateway Motorway Interchange (roundabout)

Airport roundabout

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Attachment 2 Approach roads Airport Drive and Gateway Motorway Interchange (roundabout)

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Gateway Motorway - 15 Minute Volumes 23 Aug 2007Prior to Traffic Signals

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Max Flow 700 vehicles per 15 minutes

Attachment 3a 24-hour traffic volumes on the Gateway Motorway on 23 August – before the signals were installed

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Gateway Motorway - 15 Minute Volumes 30 Aug 2007 with Traffic Signals

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Attachment 3b 24-hour traffic volumes on the Gateway Motorway on 30 August – three days after the signals were installed

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Interchange 15 Minute Approach Volumes Thurs 23 Aug 2007prior to Traffic Signals

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Attachment 3c 24-hour approach traffic volumes for the roundabout approaches on 23 August - before the signals were installed

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Interchange 15 Minute Approach Volumes Thurs 13 Sept 2007 with Traffic Signals

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Northbound Off Ramp East West Arterial Southbound Off Ramp Airport Drive

Attachment 3d 24-hour approach traffic volumes for the roundabout approaches - after the si9ngals were installed

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Attachment 4 Results of the three-day travel survey in September 2007

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