Freeway Connection Policy

Introduction

Head, Transport for Victoria has obligations under transport legislation to coordinate, manage and operate the State’s road system (including freeways). This includes approving any freeway connections. Head, Transport for Victoria is also a referral authority for related land use planning applications, such as applications relating to use of land alongside freeways and adjoining arterial roads.

Legislative compliance

The Freeway connection policy's key requirements, freeway connection principles and guidance, have been determined within the context of Victoria’s transport and planning statutes.

Transport Integration Act 2010(opens in a new window) is Victoria’s primary transport Act. It places an emphasis on multi-faceted assessment in decision-making which is a critical driver in achieving integrated transport and land use outcomes. The TIA also establishes and sets out the powers and functions of the Head, TfV.

Road Management Act 2004(opens in a new window) is transport legislation under the Transport Integration Act and establishes a coordinated management system for public roads that will promote safe and efficient state and local public road networks and the responsible use of Victorian roads, including freeways. Schedule 2, Clause 1 of the Road Management Act states that no road, private road, or access point is to be connected to a freeway without the written consent of the Head, Transport for Victoria.

Planning and Environment Act 1987(opens in a new window) establishes a framework for planning the use, development, and protection of land in Victoria. The Planning & Environment Act is interface legislation under the Transport Integration Act.

There are several planning processes covered by the Planning and Environment Act which may involve an application for freeway access.

Victoria Planning Provisions(opens in a new window) are a comprehensive set of planning provisions for Victoria. It is a statutory device to ensure that consistent provisions for various matters are maintained across Victoria and that the construction and layout of planning schemes are the same.

Appendix A sets out some of the key relevant sections and clauses from the principal legislation (and amendments) that apply to the Freeway Connection Policy.

To be noted when reading the Policy

The Policy applies to land declared as freeway under Section 14 of the Road Management Act. This includes the freeway carriageway and the ramps connecting to the freeway, and related segments of road declared as freeway.

Structure of the Policy

The Policy comprises two parts listed below. Each part provides Key Requirements and Principles which will be used when assessing proposals seeking access under these scenarios:

• Part A(opens in a new window) applies to freeways connections for general public use and can be triggered by access being sought to the freeway network (usually at a location where a road, private road or access point seeks connection to a freeway) as well as by proposals seeking access to the arterial or local road network that may impact on a freeway.
• Part B (opens in a new window)of the policy applies to proposals for new authorised access for emergency services, utilities, VicTrack and private land for both existing declared freeways and future freeways.

Planning processes

The Policy provides guidance to support planning processes and preparation of development proposals in the proximity of a freeway. It applies to the following planning processes under the Planning and Environment Act which involve applications for freeway access or that are in proximity to a freeway:

• Planning permit applications
• Planning scheme amendments
• Combined planning scheme amendment planning permit

While the Policy is not applicable to development of and amendments to Precinct Structure Plans and Activity Centre Structure Plans, the principles in the Policy may be of assistance during these processes, to identify preferable approaches when there is a need to change or establish freeway interchanges. The Policy will not apply to a planning scheme amendment to formalise and give the structure plan statutory weight at the end of a structure planning process but can apply to any subsequent planning scheme amendments.

Subsequent planning permit applications and planning scheme amendments associated with delivery of Precinct Structure Plans and Activity Centre Structure Plans may trigger the Policy, if they impact on freeways.

Additionally, while not covered by the Planning and Environment Act, any applications involving Commonwealth land should follow the process to the extent possible. The access proponent will still need to comply with the Road Management Act and obtain Head, Transport for Victoria's consent to access a Victorian freeway from adjacent Commonwealth land, including complying with Head, Transport for Victoria's access conditions.

Part A of the Freeway connection policy can be triggered by access being sought to the freeway network for general public use (usually in the form of a location where a road, private road or access point is connected to a freeway) as well as by proposals seeking access to the arterial or local road network that impact on a freeway.

Direct access to freeway network

This policy will apply to proposals seeking:

• new connections of a road, private road, or access point to an existing freeway
• to modify or upgrade an existing freeway interchange or access point
• withdrawal of access (addressed in Part B(opens in a new window) of the Policy)

For proposals seeking freeway access via an authorised access point, refer to Part B(opens in a new window) of the Policy.

Indirect access to freeway network via the non-freeway network

This policy may be triggered by proposals seeking access to the arterial or local road network in the proximity of a freeway, where traffic generated by the development will have an appreciable impact on the freeway. The impact of indirect access proposals will be site specific and is determined by factors such as the distance from the freeway, likely volume of additional movements from the development and site-specific issues such as the layout of the road network. This impact must be considered and may be managed in accordance with the guidance in this policy.

The impact on the freeway of movements (both to and from the freeway carriageway) generated by the proposed access is to be considered. The impacts will be context and site specific and must be assessed in conjunction with statutory planners in the relevant Department of Transport and Planning region.

Audience

The audience for Part A of the Policy includes:

• Externally - parties seeking access to the freeway network such as developers and landowners. The policy can also be used by Victorian Infrastructure Delivery Authority to inform freeway connection considerations when preparing freeway-related business cases and project alternatives.
• Internally - Department of Transport and Planning areas including regions, transport planners, statutory planners, transport engineers and designers with a role in reviewing proposals submitted to the Department of Transport and Planning seeking freeway access, as well as instances where the Department of Transport and Planning may be seeking the provision of access to the freeway network.

Using Part A of the Policy

Proponents seeking access to a freeway must meet all the Key Requirements and the Freeway Connection Principles of this policy. Figure 1 shows the successive phases used to assess proposals, with the initial phases requiring assessment against only selected Freeway Connection Principles to avoid the need for proponents to undertake and provide more detailed analysis in support of their proposal if not warranted. This also avoids the need for detailed assessment by the Department of Transport and Planning if not warranted.

When the Key Requirements and Freeway Connection Principles of the Policy are met, the Department of Transport and Planning can provide in-principle support for access to a freeway under the Road Management Act. Following in-principle support under the Road Management Act, assessment under the Planning and Environment Act can occur.

Please refer to this page (opens in a new window)for more detail on the phases and the processes developed to assist the assessment.

Context

In limited circumstances the Head, Transport for Victoria (and predecessor organisations such as VicRoads, Road Construction Authority and Country Roads Board) has authorised access to freeways at locations other than via purpose constructed road interchanges and service roads, provided the accesses can operate safely. Authorised access points are characterised by having a particular limited purpose, low traffic volumes utilising the access, occasional use, and being for non-commercial purposes. Examples of authorised access point use include use by emergency services, utilities and VicTrack.

Applicability

Authorised access points, if provided, are for specific authorised purposes (not for general public use), for irregular use, and low traffic volumes only. Access is authorised for a specified land use, and no other use. This means that where land use changes occur, the authorised access point will no longer be valid (this includes where land is proposed to be subdivided). Any regular use and or higher volume uses are to be considered under Part A of this policy.

This policy also applies to the operation of existing authorised access points, and proposals to withdraw existing authorised access points. The policy principles can be applied to assist in determining whether an existing authorised access point should be removed where a safety or operational issue has been identified.

Authorised access does not need to be created for:

• terminals, interchanges, intersections, pedestrian, bicycle and shared use paths constructed as part of a freeway project
• grade separations of freeways with public roads or railways
• pedestrian, bicycle and shared use paths constructed by or on behalf of the State, that are within a freeway reservation or are grade separated.

These uses are to be considered under Part A of this policy.

Road authorities do not require authorised access points themselves as the Road Management Act, or other relevant Acts (e.g. for toll roads) provide road authorities with the powers necessary to manage their road network.

A person must not connect an access point to a freeway without the written consent of the Head, Transport for Victoria (Schedule 2, Clause 1 Road Management Act).

Audience

This policy applies to any party seeking to create an authorised access point to a freeway (including freeways that are toll roads such as CityLink, EastLink, Peninsula Link etc subject to discussion with toll road operators) or considering the operation of an existing authorised access point.

Part B Notes

1. Agreement of the Head, Transport for Victoria to proposed authorised access point(s) must not be assumed by any proponent, entity, or project. Any projects seeking to utilise authorised access arrangements are encouraged to contact the Department of Transport and Planning regarding potential authorised access points during the project development and scoping stage, and before concept designs are finalised.
2. Authorised access points are not for general public use.
3. Precedent on the network does not mean that access will be granted. Precedent refers to similar configuration or similar arrangements existing elsewhere on the freeway network.
4. A person must not construct an access point to a freeway without the written consent of the Head, Transport for Victoria under the Road Management Act.

Roles and Responsibilities (Part A and Part B)

Proponents seeking access to a freeway must follow this Policy in order for their submissions to be considered by the Department of Transport and Planning.

Department of Transport and Planning staff will apply this policy when assessing proposals seeking access to a freeway.

Decisions made using this Policy must follow the appropriate Department of Transport and Planning governance and delegations from Head, Transport for Victoria.

References

The following key reference documents have been used (in consultation with key Department of Transport and Planning subject matter experts) to inform the development of this policy. Practitioners are encouraged to consult these documents for further information in relation to key concepts and terminology used throughout this policy.

References

• Austroads Guide to Traffic Management Part 6: Intersections, Interchanges and Crossings Management (2020);

  AGTM06-20_Part_6_Intersections_Interchanges_and_Crossings_Management 2020_ed4.0.pdf

  https://austroads.gov.au/publications/traffic-management/agtm06

• Austroads Guide to Road Design Part 4C: Interchanges

  AGRD04C-23_Guide_to_Road_Design_Part_4C_Interchanges_Ed2.1.pdf

• Austroads Glossary of Terms (2015 Edition), Austroads Publication No. AP-C87-15;

  AP-C87-15_Austroads_Glossary_of_Terms.pdf

• DTP Managed Roads

  Map of DTP Managed Roads (arcgis.com)

• Planning and Environment Act 1987 (Ver 156; 5 June 2024)

  Planning and Environment Act 1987 (legislation.vic.gov.au)

• Road Management Act 2004 (Ver 065; 1 July 2024)

  Road Management Act 2004 (legislation.vic.gov.au)

• Victoria Planning Provisions (3 May 2024)

  Victoria Planning Provisions Planning Scheme - Ordinance

• Applicable Department of Transport and Planning (VicRoads) Supplements to Guide to Road Design and Guide to Traffic Management, as referred to throughout the Policy and in the Checklists (see Attachments 1 to 4)
• Managed Motorway Design Guide – Volume 2 (October 2019)

Appendix E provides photographic examples of authorised access points to declared freeways