Golden Target Awards and State Awards for Excellence 2009 Community Relations Category Entrant: Donna Marshall, MarCom Communication Gap Creek Road Upgrade Detailed Design Phase
Table of Contents Executive Summary... 1 Situation Analysis... 2 Goals and Objectives... 3 Research... 4 Target Publics... 5 Communication Strategy... 6 Implementation... 7 Budget... 8 Results... 9 Evaluation... 10 Appendix A Supporting Material A-1 RACQ Queensland road not up to scratch article A-2 Stakeholder letter Project update A-3 Stakeholder letter Kookaburra Street consultation A-4 Detailed design phase newsletter (extract only 4 of 6 pages) A-5 Detailed design phase public display A-6 Brisbane Times article A-7 Courier Mail article A-8 Westside News editorial A-9a Concept plan (2007) A-9b Final design plan (2009) A-10 Amended tree removal plan (extract only page 1 of 14) A-11 Feedback summary A-12 Environmental stakeholder correspondence (sample only) A-13 Community emails (sample only) Appendix B Confidential Information B-1 Budget
Public Relations Institute of Australia Executive Summary Gap Creek Road is a partially unsealed, winding track through Mt Coot-tha Forest, an environmental reserve of state and national significance. Brisbane City Council needed to upgrade the road for safety, but previous proposals in the late 1990s had been overturned by stakeholder opposition, leaving Council to ponder if the project could ever be delivered. A community engagement program was developed with the goal of encouraging support for the upgrade by addressing and neutralising possible opposition platforms. The engagement strategy was developed to achieve three central objectives: 1. reduce opposition to the project based on environmental and social impacts 2. gain support from environmental stakeholders for the upgrade design 3. gain majority community support for the upgrade design. A strategy involving highly targeted, open and collaborative communication generated significant results, not just for Council and its stakeholders, but also the environment. Traffic speed, truck movement and fauna safety concerns were addressed through design enhancements. Three of the four key environmental stakeholders shifted their positions from opposition to support, with the fourth noting acceptance. Overwhelming community support was received for the upgrade design only 12 of the 187 contacts received noted any remaining opposition. An exceptional outcome for what was once an undeliverable project. (200 words) A narrow bend along the unsealed section of Gap Creek Road 1
Situation Analysis Critical project...significant challenges Gap Creek Road is a partially unsealed track that winds its way through a state and nationally significant environmental reserve Mt Coot-tha Forest. It provides the only north-south connection between Brisbane s western suburbs of Kenmore Hills and The Gap. The nearest alternative north-south access, some five kilometres away, adds an additional 20 to 30 minutes to travel time. The road s gravel section through Mt Coot-tha Forest was the subject of frequent motorist complaint as a result of vehicle damage and driving difficulty. Maintenance costs in continual regrading and environmental degradation due to dust and erosion were significant issues. Use of the road had increased with population growth in these suburbs, with around 1750 vehicle using the road each day. As a result, the road no longer met operational safety standards...an upgrade was necessary! The upgrade would no doubt improve safety. It would also provide both positive and negative environmental outcomes. Positive: Negative: Elimination of dust currently choking nearby habitat and affecting waterways. Removal of roadside vegetation and increased potential for fauna/vehicle conflict. An upgrade proposal in the late 1990s had been overturned by stakeholder opposition based on impact to the environment and associated traffic speed concerns. This project s feasibility study, undertaken between 2006 and 2008, identified the upgrade was supported by road-users, but remained opposed by key environmental stakeholders and residents. Environmental stakeholders had called for the road s closure to protect fauna habitat. Residents of Gap Creek Road were concerned about land acquisition and the impact of increased traffic and speed. With safety the key objective for Brisbane City Council, the scene was set for high-stakes stakeholder engagement with the aim to get this project through to construction. The core challenges were: The need for an environmentally and socially sensitive road upgrade. The upgrade would face intense opposition if concerns about environmental and social impact were not addressed. The engagement program had to demonstrate the final design would deliver a sensitive upgrade outcome an oxymoron to most stakeholders. High-profile stakeholders. Politically powerful environmental organisations were key project stakeholders. They opposed the project during its feasibility study due to concerns of environmental impact. They needed to be involved, not merely consulted, if lobbying for the project s abandonment was to be avoided. Stakeholder apathy. Past negative experiences with road upgrades within environmentally sensitive areas meant many stakeholders doubted Council would protect and enhance the environment. Concerns over false promises to silence the squeaky wheels abounded. A stakeholder engagement program and responsive project management approach was required to overcome these challenges to ensure Council could address the increasing safety concerns. 2
Goals and Objectives Goal Overcoming opposition The overarching goal of the engagement program was to encourage support for the upgrade design by removing possible opposition platforms. This goal by definition required detailed, genuine engagement to identify and work through these platforms. Objectives The ultimate objective was support, but this was broken down into its three critical elements to ensure each could receive adequate focus from the program. Objective Reduce opposition to the project based on environmental and social impacts Gain support from environmental stakeholders for the upgrade design Gain majority community support/ acceptance of the upgrade Rationale If these issues could be identified and be seen to be addressed, opposition to the project would be eliminated As the stakeholders with the greatest lobbying power, the support of key environmental organisations would eliminate the high-profile public opposition experienced in 1990s While environmental stakeholders were both powerful and vocal, resident and broader community support was also necessary to ensure delivery of the project The program s strategic elements were developed to achieve these objectives and in doing so, the eventual delivery of a previously undeliverable project. Existing single lane bridge on Gap Creek Road - a safety hazard 3
Research Establishing the foundation The project s feasibility study immediately preceded this design phase. Its findings were carefully reviewed to provide a solid foundation for development of the design phase engagement program. Stakeholder assessment Stakeholders consulted during the feasibility study were assessed to determine their level of interest in and influence on the project. This assessment informed the development of a three-tier stakeholder engagement approach: Tier one...in-depth involvement Tier two...ongoing communication and land requirement discussions Tier three regular updates and design review opportunities. Feasibility Study feedback review Feedback gathered during the 18 month feasibility study was reviewed to identify: key issues currently generating opposition aspects of the project likely to generate support. The findings fed into key message development around design focus and Council s desire to address major concerns. At a management level, they informed discussions of how designs could be developed to mitigate these issues. Road user feedback review Comments from regular road users were reviewed and key messages developed to justify the need for the upgrade based on safety. Gap Creek Road traffic and accident data Traffic modelling and accident data was reviewed to develop key messages to explain: the upgrade rationale projected traffic outcomes. Environmental report review The Ecological Assessment Report and Environmental Impact Assessment were reviewed to identify if: scientific findings validated identified community concerns recommended impact mitigation measures matched community desires. This information was used to develop key messages around study findings (presented for transparency) and environmental impact management options, to demonstrate Council s commitment to addressing key issues. 4
Target Publics Understand your target...inform your approach Stakeholder research identified several key target publics who had the potential to stop the project. A three-tier engagement approach was adopted to ensure maximum effort was directed toward these stakeholders, while also meeting the engagement and information requirements of other less critical stakeholders, to ensure their support would be forthcoming. Tier Target public Interests identified Requirements One Environmental organisations Australian Koala Foundation Rural Environment Planning Association Moggill Creek Catchment Group Opposed to the upgrade Interest in: - environmental impact - environmental studies - fauna protection Ongoing involvement Demonstrated issues mitigation The Hut Community and Environment Association Two Adjoining residents Gap Creek/Dillon/Highwood Road Concerns around: - property acquisition - traffic speed/changes - environmental impact Information updates Engagement on relevant issues Interest groups Cycling clubs Horse riding clubs RACQ (voted the road Queensland s worst local road ) - Appendix A-1 Interest in: - provisions for specific user groups - road safety improvements Demonstrated issues mitigation Three Local community The Gap Kenmore Hills Chapel Hill Interest in: - safety improvements - environmental outcomes Progress updates Engagement 0pportunities Ashgrove 5
Communication Strategy Genuine, collaborative engagement To be successful, the engagement strategy had to encourage stakeholder involvement. Stakeholders had to feel not only heard, but adequately responded to. A strategy providing open and honest communication was developed. This included sharing of technical investigation findings to take stakeholders on the journey to a final design and to demonstrate a clear rationale for decisions made. The specific strategic elements included: Ongoing collaboration, not just consultation, with environmental stakeholders to identify issues and develop mitigation strategies that would lead to support for the design. This included meetings, site walks and peer review of project reports. Demonstration that community feedback was directly influencing design development to eliminate opposition based on key concerns. Whole of management team involvement in engagement activities to ensure decisions made reflected engagement inputs. The importance of Council project management team involvement in this program cannot be overstated. Without their commitment to addressing concerns, the communication strategy, no matter how well founded, would have failed. The table below demonstrates how each strategic element related to specific program objectives. Objective Strategy Reduce opposition Environmental stakeholder support Community support/ acceptance Open and honest communication Collaboration with stakeholders Demonstrate feedback influencing design Management team involvement 6
Implementation Target stakeholder needs The implementation program ensured the most relevant communication channel was used to address each specific stakeholder s needs. Direct interface methods were used with tier one and two stakeholders to encourage open sharing of information. Print materials, media and public events were used for tier three stakeholders to promote design changes addressing issues and provide engagement opportunities. Tool Stakeholder Tier Purpose Face-to-face meetings, including site walks/visits Stakeholder letters Appendix A-2 & 3 Newsletter Appendix A-4 Public displays (four locations) Appendix A-5 Report review points (two locations) Media/advertising Appendix A-6 to 8 One/Two Two All All Three Discuss design features and impacts Identify key issues and workshop solutions Share investigation findings Review issues on site to provide a real perspective Update progress Explain design features Request face-to-face discussions Advise of design features Detail key issues from earlier engagement Demonstrate how issues have been addressed Maximise information reach Present design features Provide face-to-face engagement Identify remnant concerns Transparent sharing of study results Update progress Detail key issues from earlier engagement Demonstrate how issues have been addressed Maximise information reach Web site All Update progress Present design features Advise of upcoming engagement opportunities Free-call telephone line Email feedback link All Immediate information/feedback link Significantly, the project management team walked the upgrade route with environmental stakeholders to identify concerns. Trees to be removed were tagged and marked on plans then meetings held to discuss how significant trees might be saved. Similarly in-depth meetings were held to discuss fauna crossings, speed control, lighting, bicycle facilities, land requirements and other issues of interest. 7
Budget Targeted expenditure for targeted outcomes See Appendix B Confidential information The unsealed section of Gap Creek Road 8
Results Demonstrated design improvements The results achieved were nothing short of outstanding. By approaching stakeholder engagement in a genuine manner, with a real commitment to resolving key concerns, the Gap Creek Road project team achieved the previously unachievable an environmentally and socially sensitive road upgrade design. Furthermore, opposition stated during its feasibility study was removed, not through PR spin, but through project enhancements addressing key concerns. The table below and plans shown in Appendix A-9 demonstrate these enhancements. Stakeholder Issues raised Design response Plan Ref Environmental groups Increased fauna mortality through increased traffic Speed control devices to keep traffic below 50km/hour 1 Residents Increased traffic speed due to sealing the road Removal of significant trees Design reviewed to remove 49 less trees Appendix A-10 N/A Concern about fauna mortality due to increased fauna near the road edge * Under-road fauna crossings provided 2 Environmental groups Lighting of the road impacting nocturnal fauna No general street lighting Speed devices (lit for safety) to use yellow coloured bulbs to reduce attractiveness to insects ** N/A Concern about impact of through-traffic on forest Entry statements highlighting the area s significance 3 Speed control devices to reduce throughroute attractiveness 1 Cycling groups Poor entry into Gap Creek Reserve car park Heavy vehicle road use Right turn lane provided into car park 4 5 tonne load limit Residents Speed control devices to reduce throughroute attractiveness 1 Environmental groups Acquisition impact (20 properties initially identified) Re-vegetation plan concerns All private land acquisition removed 5 Plan altered to include suggested species N/A * Removal of dust would improve roadside vegetation, increasing fauna presence near the road. ** Insects attract nocturnal fauna who feed on them. 9
Evaluation Delivering the undeliverable This community engagement program was extraordinarily successful in ensuring the future of this difficult project. It turned once opposing stakeholders into supporters and in doing so, provided an improved environmental outcome. When evaluated against its initial objectives the success of the program is beyond question. Reduce opposition to the project based on environmental and social impact achieved Final upgrade design demonstrated community concerns around traffic speed, fauna safety, traffic volumes, tree impact and acquisition requirements had been addressed. No campaign opposing the project was launched and Council will commence the upgrade in October this year. Support for design features noted in feedback. Appendix A-11 Gain environmental stakeholder support for the design achieved Three of the four have noted support for the final design. The fourth noted acceptance. All applauded the inclusion of speed control devices and fauna crossings to protect fauna. Those involved in tree impact discussions noted satisfaction with Council s efforts to reduce impact. Stakeholder concerned about replanting lists noted satisfaction with changes made following their feedback. Appendix A-12 Gain community support/acceptance of the project achieved Clear support received of the 187 community contacts received, only 12 noted opposition, while the majority (96) noted support. Appendix A-11 Many called for imminent construction. Appendix A-13 (2,000 words) 10