United Nations Public Service Awards Case Studies

Queensland is the second largest of Australia's states and territories, covering some 1.7 million square kilometres in the north-eastern section of Australia. It is four times the size of Japan and seven times that of the United Kingdom and with a population of just over 4 million, is also one of the most decentralised states in Australia.

The population of Queensland is connected through 178,000 km of public roads – the state's largest community asset. Main Roads is the Queensland Government department responsible for the management of 34,000 km of this network, the biggest in Australia with a replacement value of approximately AUD$30 billion. The remainder of the road network is managed by the state's 125 local government councils.

Managing this network is a big job. Between them, state and local governments spend around $3 billion per year on planning, constructing, maintaining and operating the road network. But the community has diverse expectations of the road network. Each year demand on the network grows and the public are increasingly turning to government and industry for integrated solutions to their issues.

In the late 1990's, both levels of government were facing similar difficulties in meeting the demands being placed on the road network. The challenge was how to best manage the road network to meet the growing demand and community expectations with the resources available. Local and state governments needed to stop blaming one another and cooperate.

After a study tour to Western Australia in August 2001 to review their model of road management, Main Roads and the Local Government Association of Queensland (LGAQ) established a Memorandum of Understanding to further investigate the potential for a statewide alliance. This investigation included a statewide consultation tour, workshop sessions and an extensive pilot program of the Roads Alliance model. On 28 August 2002, the LGAQ and Main Roads signed a Memorandum of Agreement to implement a new approach – the Roads Alliance.

What is the initiative about? (the solution)
The Roads Alliance is a partnership between state and local government to better meet local and regional needs on the Queensland road network. It challenges traditional thinking, processes and cultures in both levels of government as to how local and state governments should work together and moved to empower local governments to set and deliver regional road outcomes. It build on the commitment of local and state government to deliver on the road task and achieve better value from all available resources through improved planning, increased capability, better resources sharing and joint purchasing and more efficient project delivery. Under the Alliance, local government and Main Roads district voluntarily form Regional Road Groups (RRGs) to collectively determine expenditure priorities for the development, management and delivery of regional works programs for public roads of similar function owned by state and local governments, known as the Local Roads of Regional Significance (LRRS). The Alliance has delivered benefits including: • better road management and investment decisions made regionally • a network approach and improved consistency in planning and investment • improved access to social services within a region including schools and hospitals • improved regional economic development opportunities through reduced travel time and costs – tourism, freight and so on • improved local government capability • greater use of state and local government expertise • access to better road management technology • best use of available resources and improved economies of scale in various areas – ie plant, equipment and staff • concentrated efforts on roads of regional significance across Queensland The Roads Alliance has led extensive collaboration, capability building and engagement for the smarter delivery and management of Queensland’s road network by seeking increased efficiencies, capacity and effectiveness, and reduced duplication. It has strengthened relationships between the Department and Local Government – one of Main Roads' largest stakeholders – as evidenced with the voluntary participation of 124 out of a possible 125 councils in the Alliance. It provides funding certainty and longer-term commitment through a rolling four-year works program and builds capacity in Main Roads districts and local government through knowledge sharing and 'on-the-job' experience. The Alliance provides an avenue for local governments and Main Roads to resolve differences without referring them to a ministerial level. It has also established a robust mechanism for communities to build better cases for road funding and delivers a safer, more effective and consistent road network for all road users across Queensland. In addition, the Alliance has facilitated a uniform approach to asset management and arrangements for collecting, analysing and reporting data on the state's road assets. This has resulted in better investment decisions and increased efficiency in delivery through resource sharing, group purchasing and improved planning, design, construction and maintenance. The strengthening of the local government role in regional decision making has reduced duplication across government levels and lifted economic performance through improved regional planning, investment and management of road worker employment. The increased involvement of local government in regionally focused planning has also helped ensure the needs of rural and remote communities are not overlooked. The Roads Alliance is about better skilled people, using better technology and information to make better decisions. The outcome is safer roads delivered sooner for all Queensland regions.

Who proposed the solution, who implemented it and who were the stakeholders?
The Roads Alliance built on the excellent relationship between Main Roads and local government (the primary stakeholder) and was conceived and developed in partnership by Main Roads and the LGAQ. Extensive collaboration and consultation by senior managers from both Main Roads and the LGAQ was undertaken to engage with stakeholders and secure their support during the development phase. Road reference groups from state and local government were established to ensure ongoing stakeholder engagement and where possible, representatives from Main Roads and the LGAQ attended discussions and regional meetings to obtain a greater appreciation of the issues affecting Queensland communities. Information was regularly sent and/or presented to all local governments to explain the development of the Alliance concept, but more importantly to seek feedback and engender a sense of participation and involvement in further scoping of the concept. The Alliance model was not finalised until the concept and its implications were fully investigated and the outcomes are agreed as advantageous to both parties. Even then flexibility was built in to allow the scope to vary from region to region with the ultimate decision and agreement left at a regional and local level. A joint Main Roads and LGAQ project team led the implementation of the Roads Alliance by developing new policies and processes with an emphasis on collaboration but at its core the Roads Alliance was and remains driven by RRGs. This is consistent with the fundamental principle of the Alliance to transfer of authority to RRGs.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
The primary aim of the Roads Alliance is to deliver better roads sooner across Queensland through partnership between local government and Main Roads. The objectives of the Roads Alliance are to: • maximise economic development and benefit through better funding allocations • achieve maximum efficiencies for Main Roads and local government through a combined approach to road network planning and coordination of road projects • reduce the duplication of resources and asset (eg plant, equipment, buildings) used to improve efficiency and flexibility across Main Roads and local government • invest in improved road management and delivery capability through increased training and technology and systems transfer. The Roads Alliance has seen Main Roads transfer decision making power to local government, through equitable partnering and decision making, to begin the move to a truly collaborative approach to Queensland road system management. This collaboration has been evident since the early stages of the Roads Alliance formation. The decentralised management of the Queensland road network is a key strategy of the Alliance. Fundamental to this strategy is the transfer of decision making authority to RRGs for the LRRS network. RRG responsibilities are to: • decide the composition of RRGs as best able to meet their regional needs • identify the LRRS in their region that the RRG is to manage • adopt practices including prioritisation procedures and weighting methodology to determine regional investment strategies and decisions for input into a five-year works program • undertake asset management practices and minimum data set requirements • adopt Joint Purchasing and Resource Sharing initiatives • review and plan for improved capability A number of boards and committees have been established to ensure the effective leadership and successful implementation of the Alliance. These include: • the Alliance Board, comprising key executive members from the LGAQ and Main Roads to jointly position, provide direction and approve Roads Alliance initiatives and activities • joint reference group, comprising project staff and executives from LGAQ and Main Roads who meet regularly to discuss implementation • Working groups established for key areas in the Alliance including Asset Management, Program Development and Joint Purchasing and Resource Sharing

b. What were the key development and implementation steps and the chronology? No more than 500 words
Main Roads and the LGAQ spent two years developing the Roads Alliance process. Following discussions in May 2001, Main Roads and LGAQ established a Memorandum of Understanding to investigate the potential for a statewide alliance. On 28 August 2002, the LGAQ and Main Roads signed a Memorandum of Agreement. Since the signing of this agreement, 124 out of 125 councils have voluntarily participated in the Roads Alliance.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
Since its inception, the Alliance has successfully addressed critical issues and generated key learnings for input into future planning and collaborations. Key obstacles and challenges encountered include: • the need to establish and embed a strong Alliance culture and working relationship to enable participants to continue to collaborate and work in parallel on a range of issues and challenges. To galvanise the commitment of stakeholders a governance structure was agreed on at the outset and a clear Alliance vision was outlined in the Memorandum of Agreement along with a set of guiding principles to which members subscribe. • differing circumstances, individual strengths and weaknesses, challenges and opportunities of the Alliance's 125 different parties (124 local governments and Main Roads). Arrangements needed to effectively accommodate these diverse situations, while achieving consistent outcomes. The solution was the design of a business model based on the achievement of common objectives, rather than trying to force stakeholders to "fit" a single implementation timetable and approach. • significant differences in parties' capacities and capabilities. This was overcome by establishing a framework of desired capabilities and working closely and investing with each partner on an individual basis to achieve that capability outcome. • an inconsistent knowledge of the condition and performance of all roads throughout the state due to roads owned by different governments – an obstacle to robust prioritisation of network-wide investment. This was addressed with agreed Asset Management systems and standards, and supported with associated systems development and training. • consistently delivering the best possible regional road infrastructure from Main Roads and the local governments' available funds. This obstacle was overcome by better joint-funding applications, Joint Purchasing and Resource Sharing; and transparent group decision making when prioritising works throughout a region. • partners with differing positions and backgrounds resulting in consistent understandings and perceptions of value, which affected willingness to commit to particular initiatives. This was addressed by piloting initiatives to test implementation approaches and generate key learnings and support.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Local and state government recognised that collective action was needed to achieve systemic, state wide improvement in planning, resource-use and capability if they were to deliver the outcomes required by their stakeholders. A consistent state-wide improvement is not possible if parties act individually, regardless of their individual excellence, but instead requires effective collaboration. Accordingly, a principle of the Roads Alliance is to adopt a collaborative approach to maximise efficiencies and effectiveness of new and existing financial, technical and human resources of local and state governments. Furthermore, over the past five years an additional $24 million per annum has been allocated for RRGs through the Roads Alliance. In 2006-07, the state government provided funding of $14 million under the Roads Alliance for the delivery and maintenance of the LRRS network. This included funding for road safety initiatives ($10 million) and capability improvements ($1 million). To mobilise these resources the Alliance has: • built on the strengths of the existing relationship between Main Roads and local government, leveraging the existing financial technical and human resources of both parties • pursued voluntary membership (124 out of 125 Queensland local governments are members) • devolved authority to 18 RRGs, for deciding road and funding priorities at a regional level • developed Technical Committees to support each RRG • shifted the emphasis on planning, purchasing and investing to focus on network functionality rather than "road ownership" responsibility to achieve efficiencies and reduce duplication. • fostered the adoption of 'Statements Of Intent' that support 20-year road investment strategies to separate investment planning from state and local election cycles • adopted a joint management approach to network planning of road works to ensure sustainable employment in rural and remote areas • adopted agreed planning visions to meet Queensland communities' diverse expectations across a regional road network servicing both high growth and low growth environments (population, economic) • taken a flexible approach, recognising that 'no one size fits all' • adopted a state-wide framework to guide investment decision making and road management strategies • gone well beyond normal collaborative approaches by shifting responsibility for the allocation and prioritisation of expenditure of state government funding to RRGs where Main Roads is only one voice/vote among eight to ten mayors.

Is the initiative sustainable and transferable?
The Roads Alliance represents a new and better style of public sector management based on collaboration and partnership between different levels of government, with potential for replication across many areas of public policy. To ensure the sustainability of this model and adequately equip RRGs to make all necessary decisions, significant training and capability development initiatives have been pursued. The training which focuses on developing and broadening capability across the state, ensures better skilled road managers and workers for delivering better road outcomes on the Queensland road network. The Roads Alliance has been a catalyst for change in Main Roads processes relating to the management of the road network, particularly at a regional level. These practices have been adopted throughout Main Roads District offices and have become embedded in the day to day operational activities of Main Roads state-wide. National and international recognition for the Alliance is further testimony to the benchmark that the Alliance has set in government as a best practice model for collaboration across levels of government.

What are the impact of your initiative and the lessons learned?
Developing the Roads Alliance was an intensely consultative process. The LGAQ describe it as the most consultative activity undertaken by local government in Queensland. Senior managers from state and local government toured the state to engage with key stakeholders on the Alliance concept at specially arranged workshops. A fundamental principle when developing the Alliance was that the Roads Alliance would not move forward until Main Roads and the LGAQ were confident that an overwhelming majority of local governments agreed with the concept. A key message early in the consultation phase was that local governments and Main Roads districts would need to move beyond parochialism. It was essential to get across the message that it is possible to derive a local benefit from acting regionally. For example, if your key access is to Brisbane, Mt Isa or Townsville you benefit from any work carried out on a connecting road, whether or not the work is in your local government or district area. Concerns were raised at the start of the process that local politics would render local government incapable of acting regionally. This has proven to be incorrect. Many local governments have demonstrated a clear commitment to regional decision making. When developing the Roads Alliance model there was an emphasis on not trying to do too much too soon. It was very much an incremental model. The objective of this approach was to reduce the level risk to local governments at any one time. This model enabled local governments and Main Roads to stage implementation. A related aspect was that it not be more than what local government and districts would have been doing anyway. The Alliance's strength comes from not changing what these parties did, but how they did it. Local governments in RRGs are demonstrating efficient planning and work practices by developing joint regional works programs, identifying regional priorities for investment, joint purchasing, resource sharing and using common road management processes. This has presented a major challenge for Main Roads because it now must transfer/share decision making with local government on the LRRS network with the support of jointly developed systems and processes. A key learning has been that transferring decision making to joint regional frameworks has resulted in less conflict and broader thinking by both tiers of government, creating a better appreciation of all members need and desired outcomes. Meeting the community's expectations in providing increasingly complex infrastructure creates challenges beyond the ability of any one level of government to address. The Roads Alliance is an innovative process to assist governments to meet these challenges. It required change – for governments to let go of the past and adopt new ways of doing things. The Roads Alliance goes beyond the traditional models where levels of government dispute responsibility based on institutional arrangements. It is instead based on cooperation and has delivered better relationships, better capability and better performance. These achievements have only been possible through the dedication and commitment of the Roads Alliance Project Team members in their support to RRGs and Technical Committees throughout Queensland over a number of years.


Institution Name:		Main Roads
Institution Type:		Government Agency
Contact Person:		Alan Tesch
Title:		Director-General
Telephone/ Fax:		3306 7310
Institution's / Project's Website:
E-mail:		alan.b.tesch@mainroads.qld.gov.au
Address:		Floor 13, Capital Hill Building, 85 George Street
Postal Code:		4000
City:		Brisbane
State/Province:		Queensland
Country:		Australia

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information