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Transportation Planning Casebook/F6-M6 in NSW

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Summary

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Project location and design elements

The M6 (formerly known as the F6 extension) is a planned motorway which connects Sydney to the Illawarra Region. The M6 has a total of three stages, with the first stage currently under construction, and stage 2 and 3 yet to be approved. Stage 1 a four-kilometre-long twin motorway tunnel, which will connect to the M8 motorway (formerly known as the New M5 Motorway) in Arncliffe with President Avenue in Kogarah.[1][2]

The M6 was first proposed in the 1950’s as part of a wider Sydney study which highlighted the need for a strong south link.[3] Due to political aspects, the project remained under ground for quite some time, till it became a talking point in the 2000s. With the start of the new Liberal movement in 2012, the F6 became a strategic priority. The route alignment which would be proposed in 2017 would follow the same route as the initial planned freeway in 1951. [4][5]

The M6 plays great significance in the network as it's positioned to be one of few public funded toll roads in recent years.

Annotated list of actors

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Actor/organisation Sector Interests/Concerns
Transport for New South Wales (TfNSW) State Government Transport for NSW leads the M6 Motorway and is responsible for this key project of Future Transport Strategy 2056.
NSW Department of Planning State Government Responsible for approving, monitoring and supervising the project.
Bayside Council Local Government The Council advocates for and addresses local communities, minimising construction impacts on local infrastructure and public space, negotiating with the State Government for optimal outcomes.[6]
CIMIC Group’s CPB Contractors and UGL

Ghella

Private The contract and construction contract has been awarded to CIMIC Group’s CPB Contractors and UGL, in a joint venture with Ghella.[7]
Fulton Hogan Egis Private It has been secured a 30 year contract to undertake asset management tasks for the M6 Stage 1 Motorway.[8]
People of Sydney Private
  • M6 Motorway helps save a lot of time travelling between South Sydney and Sydney CBD and ease traffic congestion.[1]
  • When operational, the M6 will reduce the amount of traffic travelling on local surface roads, benefiting residents and commuters in the local community.[1]

Timeline

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Year   Event(s)
1951
  • Initial proposals of the F6 Southern Freeway, connecting the Illawarra region to Sydney City.[9]
  • Road corridors are reserved.
1959 Construction on the Princess Motorway between North Wollongong and West Wollongong (southern Freeway) begins.[10]
1970 Construction of the Princess Motorway (Southern Freeway) between Waterfall and Bulli Tops.[10]
1977 Under the Labour Government, freeway projects in inner city areas are abandoned, shelving the F6 project.[11]
2002 Proposal to transform the reserved road corridor into public transport and open space.[12]
2005 F6 is endorsed by the road minister.[13]
2007 F6 is a political topic which some candidates use to run.
2007 – early 2012 Labour government takes no actions on the F6.
2012   Liberal government reintroduce F6 in strategic documentation.
2014 $10 million is awarded for a F6 feasibility study.[14]
June 2017 Revealing of a potential railway tunnel between Thirroul and Waterfall as an alternative.[15]
October 2017 Route alignment and staging is released.[16]
June 2018 Business case is released showing a BCR of 1.56.
October 2019
  • Renaming of the project to "M6 Motorway" and decision to separate the M6's southern end at Loftus from the M1 Princes Motorway at Waterfall.
  • Completion date delayed to late 2025.[17]
December 2019 Stage one received formal approval.[18]
November 2021 Major construction of Stage 1 began.[19]
June 2022 Proposed further sections indefinitely shelved.[20]
19 September 2023 State government (labour) allocate $1.5 billion over the next 4 years to 2026-27.[21]
27 February 2024 Fulton Hogan Egis has been awarded a 30 year contract to carry out asset management works for the M6 Stage 1 Motorway in New South Wales.[8]
1 March 2024 Work was suspended and an exclusion zone set up around the site.[22]
3 March 2024 Emergency services pour concrete into sinkhole to shore up Sydney building.[23]

Policy issues

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Net Zero

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The NSW government, and by extension organizational bodies, have set Net Zero goals. A significant contributor to emissions is transport, contributing to 24 per cent of all emissions. Of this 24 per cent, light vehicles (private or commercial) contributed 66 per cent. Most notable to transport, TfNSW has outlined the goal to reduce emissions from the transport sector to 0 by 2050.  

The M6 (in its entirety as well as Stage 1) is a significant project which will incur significant costs. Stage 1 is projected to cost $3 billion, with the entire M6 estimated to be around $10.8 billion. While the project is expected to generate time savings (and thereby emission savings because of petrol savings in reduction of vehicle standby), the project is also expected to lead to induced demand and an increase in vehicle use.  

The investment in the M6 does not match up with environmental priorities set out by the Government.

Funding

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Funding for the M6 has been achieved via both public funding, making it one of the first public funded toll roads in recent years. The M6-Stage 1 is proposed to have toll rates of:[24]

  • A flat rate of $2.44 (in 2021 dollars) each way
  • Heavy vehicles will pay three times the toll of light vehicles.

Narrative

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Early Planning

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Cumberland County Plan (1948)

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The Cumberland County Plan (CCP) was officially released in 1948 and officially adopted in 1951. The purpose of the plan was to consider more appropriate and efficient uses of land for the region of Sydney, which was comprised of 68 shires and municipalities and the City of Sydney.

The plan set out not only land use, but proposed transportation across the region. A key point to highlight is the relevancy of the post war on the planning which transpired. With the rapid population growth and economic expansion after the war, updates to the transportation network were required. And with the emergence of private vehicles as the favoured transportation mode, naturally connected road networks were the focus of any transport planning by the CCP.

As part of the CCP, a high-level road network was proposed. Relevant to the case study, a southern expressway, connecting the regions of Sydney CBD and Wollongong.

Corridor Reservation

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As a follow-up to the CCP, a series of corridors were reserved. This includes the road corridor from Loftus to St Peters, relevant to the M6 extension.

Sydney Area Transportation Study (SATS) (1974)

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Other documentation supporting the Southern Freeway was the SATS. The study highlighted strong demand volumes from the CBD down south (via Sutherland).[25]

Future Motorway in Trouble

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1977 - Neville Wran

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The proposal for the F6 Southern Freeway, originally planned to connect Ultimo to Wollongong, was abandoned as part of a political pre-election promise to stop the construction of freeways in inner city areas.[11] This political will not only stopped the construction of the F6 (in its totality) but also put a hold on other notable road projects (Warringah Freeway F1, Gorehill Freeway F2, Western Freeway F4, and Eastern Freeway F7).

In addition to the cancelled freeway, the road corridor which had previously been reserved as part of the Cumberland County Plan was also altered.[11] Changes included the removal of the city portion, which included space from the City’s CBD to Huntley Street, (Alexandria), with the remainder of the corridor staying intact.

2002 – Public Transport Corridor

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In September 2002, then Transport Minister Carl Scully announced a shift from the planned F6 freeway extension to promoting public transport and recreational use along a 20-kilometer corridor from St Peters to Loftus.[12] This further marked a departure from road expansions, as the area reserved since 1951 would now focus on innovative transport solutions like light rail and bus-only roads while preserving green spaces.

Political scuffle

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Back on the menu – 2005

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In 2005, the debate over the F6 Motorway extension was reignited by Roads Minister Michael Costa,[13] despite his predecessor Carl Scully's decision to halt the project in favour of public transport alternatives. Paul McLeay, the Member for Heathcote, supported the NRMA's survey to assess the project's benefits, advocating for the extension as a crucial link for the Illawarra and Sutherland Shire residents. This move suggested a potential reversal of Scully's earlier plans, emphasizing ongoing conflicts within the government and between different stakeholders regarding Sydney's transport infrastructure priorities.

State Election – 2007

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Leading up to the NSW state election, talks around the F6 extension would restart. While Michael Costa highlighted the project in 2005, no new development on the F6 occurred. With no firm positions held by the state parties, discussions for the F6 were brought to light by local MPs and external parties (NRMA and Tourism and Transport Forum (TTF)).

NRMA’s push for the F6 found support within the Liberal Party, with Miranda Candidate Graham Annesley. The (Miranda) Labour opposition was adamantly against the F6 extension, due to potential of increased traffic on local roads.

Labor wins – limbo (2007 – 2011)

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After Labour’s win in 2007, the F6 was shelved. During this period, there was no state budget allocation to the planning or study of the F6.  

In 2010, Scott Morrison, now former Australian Prime minister, at the time Shadow Minister, highlighted the need for the F6 extension and the failure of the Labour party to deliver it.

Back on the Menu

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With the Coalition Government back at the helm after a 16-year absence (last held in 1995), the F6 was quickly reintroduced as a major project. The liberal party issued two key documents within a short period of time, which would highlight the F6 as a key strategic project which would bring major improvements to the network.

The State Infrastructure Strategy 2012 – 2032

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The State Infrastructure Strategy (SIS) is a 20-year strategic infrastructure plan which sets out future initiatives and opportunities to address infrastructure challenges and enhance productivity, living standards, and economic growth. The plan is updated every 4 years to maintain a relevant focus on the required infrastructure.  

The strategy had the F6 officially added to the project agenda, with plans to roll it out within a timeframe of 10 to 20 years. This F6 extension would be between Sydney Airport and the locality of Waterfall. Note that, in the project's framing, the strategy highlights that it could be accelerated if the private sector provided financing.

The plan scoped the project to cost $3 billion, assuming all work was done above ground. It was also assumed that two thirds of the funding would be contributed by user funding.

NSW Long Term Transport Master Plan 2012

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The Master Plan was the first comprehensive transport plan developed by the Liberal government in New South Wales after they came into power in 2011. The plan aligned with the SIS, which was issued a few months prior.  

A key gap identified in the plan is the missing sections in the motorway network, particularly the F6 which does not provide access to the network from the south.  

This plan would be the first to reference the alignment the extension of the F6, which outlined the connection between Loftus and St Peters.[26]

State budget 2014 - 2015

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The F6 extension would receive its first set of funding in the 2014-2015 budget of $10 million for a feasibility study.[14]

Planning and Approval

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Route Alignment

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While planning was being done in the background, the official announcement for the F6 extension came in October 2017 as part of the 2056 Future Transport Strategy.

The route alignment assessed four different routes, which included:[16]

  • F6 Corridor: Aligned with the reserved corridor for the F6 Southern Freeway as identified in the Cumberland County Plan
  • A1 Corridor: Aligned with the Princes Highway
  • A3 Corridor: Aligned with the Princes Highway and King Georges Road
  • A6 Corridor: Aligned with Heathcote Road, New Illawarra Road, Alfords Point Road, Davies Road and Fairford Road

Planning found that the F6 corridor would be most suitable.

Economic Benefits

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As per the 2018 business case, the project was found to have a benefit to cost ratio of 1.56.[27] BCRs for the release of the different amounts of the F6 reserved corridor were also assessed as a comparison. All BCR’s returned values greater than 1, with the most conservative assumption returning a BCR of 1.2.

The benefits of the project have been assessed over a 30-year operational period. The residual value of assets with a lifespan greater than 30 years has been valued at $88 million and included within the calculation of transport benefits.

Controversy

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While there has been opposition to the M6, it has not amassed the same level of controversy as the WestConnex. Protests regarding the M6 have been seen on the local level as well as incorporated in larger protests against toll roads in Sydney.[28][29] Protests for stage 1 have mostly been in regard to induced demand, citing that the extension will increase the amount of traffic on local roads.

In addition to the wary concerns of locals, there has been political controversy regarding the beneficiary of M6. While the project will bring economic benefit (as seen through the business case) to Sydney, it should also be highlighted that owner of WestConnex (a consortium of private investors, most notably Transurban) will also benefit.[30] With the M6 not connecting on the Genral Holm Drive, it provides users limited opportunities to leave the toll road eco-system, thus generating additional revenue for toll collectors.

Construction

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Start

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Construction of the M6 Stage 1 began in November 2021. The project was awarded to a joint venture between CPB Contractors, UGL, and Ghella.

To date

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As of April 24, over 70% tunnel excavation across the project alignment.[31]

Trouble in paradise

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On the 1st of March 2024, excavation works at the tunnels near West Botany Street halted due to the formation of sink holes.[32] The factory located 16-metres above the tunnels experienced a partial collapse.

Later that month, on the 9th of March, another subsidence event occurred near the south-bound tunnel, approximately 12m from the surface.  

Since these events, the CGU joint venture has paused all tunnelling work in the affected areas while assessments are conducted. Geotechnical and engineering evaluations are underway to understand the subsidence and its implications on the project timeline.

Future

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Stage 1

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Stage 1 of the M6 from WestConnex at Arncliffe to President Avenue, Kogarah is due for completion in 2025.

Stage 2 and 3

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Stage 2: President Avenue to Tarren Point and Stage 3: Tarren Point to Loftus have no available timeline, funding commitment, or planning approval.  

A large factor in the delay to these projects is the current market constraints and labour shortages.

Discussion questions

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  • Why hasn't the M6 received the same level of opposition as the WestConnex?
  • What does public financing mean for toll operators?
  • Will we ever see M6 - Stage 2 and 3? (and should we see one?)

See also

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References

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  1. ↑ a b c F6 Extension Stafe 1 Project overview (PDF). NSW Government. November 2018.
  2. ↑ F6 Extension Stage 1 New M5 Motorway at Arnclife to President Avenue at Kogarah Preferred infrastructure report. Roads and Maritime Services. ISBN 978-1-925891-34-8.
  3. ↑ NSW Government (December 2019). State Significant Infrastructure Assessment (SSI 8931).
  4. ↑ WESTCONNEX UPDATED STRATEGIC BUSINESS CASE (PDF). November 2015. ISBN 978-1-925421-39-2.
  5. ↑ Trembath, Murray (2016-08-08). "Drilling rigs begin work on M1 (F6) corridor". St George & Sutherland Shire Leader. https://www.theleader.com.au/story/4082636/f6-extension-tests/. 
  6. ↑ "M6 Stage 1: Connecting Kogarah to the M8". Bayside Council. Retrieved 2024-04-28.
  7. ↑ NSW Government (2021-05-24). "MAJOR CONTRACT AWARDED FOR M6 STAGE 1" (PDF). Retrieved 2024-04-28.
  8. ↑ a b "Fulton Hogan Egis awarded 30 year M6 Motorway contract". Roads & Infrastructure Magazine. 2024-02-27. https://roadsonline.com.au/fulton-hogan-egis-awarded-30-year-m6-motorway-contract/. 
  9. ↑ Dictionary of Sydney staff writer (2008). "County of Cumberland Planning Scheme". The Dictionary of Sydney. Retrieved 2024-04-28.{{cite web}}: CS1 maint: url-status (link)
  10. ↑ a b "F6 Southern Freeway: History and Development". OZROADS. Retrieved 2024-04-28.
  11. ↑ a b c "Government Decision on Inner-Urban Freeways". Main Roads (PDF). Vol. 42. March 1977.
  12. ↑ a b "Buses, light rail replace freeway plan". The Sydney Morning Herald. 2002-09-07. https://www.smh.com.au/national/buses-light-rail-replace-freeway-plan-20020907-gdfm3b.html. 
  13. ↑ a b "MP backs plan for motorway survey". ABC News. 2005-04-29. https://www.abc.net.au/news/2005-04-29/mp-backs-plan-for-motorway-survey/1560438. 
  14. ↑ a b Infrastructure Statement 2014-15 Budget Paper No.4 (PDF). NSW Government.
  15. ↑ Robertson, James; O'Sullivan, Matt (2017-06-27). "Minister's answer undercut by cabinet documents on Sydney-Wollongong rail tunnel". Sydney Morning Herald. http://www.smh.com.au/nsw/ministers-answer-undercut-by-cabinet-documents-on-sydneywollongong-rail-tunnel-20170627-gwzmg0.html. Retrieved 2024-04-28. 
  16. ↑ a b NSW Government (November 2017). "F6 Extension Stage 1 - Selection of preferred project" (PDF). Retrieved 2024-04-28.{{cite web}}: CS1 maint: url-status (link)
  17. ↑ O'Sullivan, Matt (2019-10-29). "Opening of new motorway in Sydney's south running 12 months late". The Sydney Morning Herald. https://www.smh.com.au/national/nsw/opening-of-new-motorway-in-sydney-s-south-running-12-months-late-20191029-p53590.html. 
  18. ↑ Trembath, Murray (2020-01-14). "Opening of new motorway in Sydney's south running 12 months late". St George & Sutherland Shire Leader. https://www.theleader.com.au/story/6553065/m6-formally-approved/. 
  19. ↑ "Construction Begins on the M6 Motorway". Liberal Party NSW. 2021-11-29. Retrieved 2024-04-28.{{cite web}}: CS1 maint: url-status (link)
  20. ↑ Kidd, Jessica; Cornish, Ruby (2022-06-01). "NSW government puts Beaches Link and Blue Mountains tunnel on ice". ABC News. https://www.abc.net.au/news/2022-06-01/nsw-government-road-projects-paused-budget-constraints/101116124. 
  21. ↑ Infrastructure Statement 2023-24 Budget Paper No. 3 (PDF). NSW Budget.
  22. ↑ Gerrard, Neil (2024-03-12). "Contractors halt tunnelling on Sydney’s M6 Stage 1 after second incidence of subsidence". Construction Briefing. https://www.constructionbriefing.com/news/contractors-halt-tunnelling-on-sydney-s-m6-stage-1-after-second-incidence-of-subsidence/8035850.article. 
  23. ↑ Taylor, Andrew (2024-03-02). "Emergency services pour concrete into sinkhole to shore up Sydney building". The Sydney Morning Herald. https://www.smh.com.au/national/nsw/emergency-services-pour-concrete-into-sinkhole-to-shore-up-sydney-building-20240302-p5f991.html. 
  24. ↑ New South Wales Parliament. Legislative Council. (August 2022). Portfolio Committee No. 6 – Transport. Report no. 16. Road tolling regimes (PDF). ISBN 978-1-922543-73-8.
  25. ↑ Sydney Area Transportation Study (SATS) (1974). SATS: Sydney area transportation study: volume 2: travel mode development and forecasts.
  26. ↑ NSW Government (December 2012). NSW LONG TERM TRANSPORT MASTER PLAN (PDF). ISBN 978-1-922030-31-3.
  27. ↑ Final Business Case Summary: F6 Extension - Stage 1 (PDF). Infrastructure NSW. June 2018.
  28. ↑ McIlroy, Jim (2018-03-08). "Community protests F6 Extension to WestConnex tollway". Green Left. https://www.greenleft.org.au/content/community-protests-f6-extension-westconnex-tollway. 
  29. ↑ Laurence, Emily; Cockburn, Paige (2018-02-17). "Protesters march through Sydney in rally against NSW transport plans, road tolls". ABC NEWS. https://www.abc.net.au/news/2018-02-17/nsw-transport-rally-through-sydney-cbd/9458116. 
  30. ↑ O'Sullivan, Matt (2018-01-03). "Leaked documents show Sydney's F6 Extension to benefit new owners of WestConnex". The Sydney Morning Herald. https://www.smh.com.au/national/nsw/leaked-documents-show-sydneys-f6-extension-to-benefit-new-owners-of-westconnex-20171031-gzbrwx.html. 
  31. ↑ "M6 Stage 1". Transport for NSW (RMS). Retrieved 2024-04-28.
  32. ↑ Gerrard, Neil (2024-03-12). "Contractors halt tunnelling on Sydney’s M6 Stage 1 after second incidence of subsidence". Construction Briefing. https://www.constructionbriefing.com/news/contractors-halt-tunnelling-on-sydney-s-m6-stage-1-after-second-incidence-of-subsidence/8035850.article. 
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