Bulli Pass 2010

Introduction

In November 2010 the New South Wales Roads and Traffic Authority (RTA) completed construction of a 2 metre high, steel-reinforced concrete wall ("containment barrier") at the base of Bulli Pass. The wall was built to replace the sand trap runoff area which had formerly been used to safely stop runaway vehicles. In the opinion of this author, the concrete wall is a death trap which should be removed because of the threat it poses to users of the Pass. The sand trap must be reinstated.

The placement of a solid concrete wall at the base of the Bulli Pas steep decline is, in the opinion of this author, irresponsible. In a worst case scenario, a passenger vehicle will hit the concrete wall at a speed of approximately 120 kph and at an angle of greater than 45 degrees. This will, according to scientific studies, most likely result in the death of those in the vehicle, due to initial impact, subsequent rollover, or other associated trauma. A truck slamming into the wall could also result in the death of the driver and passengers. The high speed impact of a bus or coach on the wall could also be catastrophic, especially if the passengers are unrestrained.

Background

Bulli Pass is a decline on the Illawarra Escarpment, descending approximately 300 metres with a number of steep grades, including one near the base of the Pass which was formerly served by a sand trap runnoff area. Constructed in the 1840s, Bulli Pass is an important thoroughfare connecting the Illawarra with southern and western Sydney. The road is heavily used by communter traffic during the week and by tourists on the weekends and holidays. Motorcycles, car, vans, buses and small trucks are the most common vehicles on the Pass. Tourist and rail buses also regularly use the road. Mount Ousley pass to the south is the preferred route for heavy vehicles, including coal trucks, though Bulli Pass is used intermittently by heavy vehicles and especially during closures of Mount Ousley.

In the past there have been numerous instances of cars and trucks running out of control on Bulli Pass due to break or other mechanical failure and subsequently making use of the two sand traps. The precise number of deaths and injuries as a result of these runaways is not known. There are (were) 2 sand trap runoff areas on Bulli Pass to accommodate such runaways - one at the Elbow near the top of the Pass, and another at its base. Access to the sand trap at the base of the Pass was, until November 2010, across the north-south road - Princes Highway, Bulli, and Lawrence Hargrave Drive, Thirroul.

Prior to the construction of the concrete wall and overhead bridge there was a large amount of open space at the bottom of Bulli Pass. This enabled drivers travelling north or south the opportunity to quickly guage traffic - including runaways - coming down the Pass, though this did not completely alleviate the threat of collision with such vehicles. Despite this threat, such collisions were few. The configuration - open space plus sand trap runoff area - ensured a degree of safety for both north-south drivers and passenger, and also those involved in a runaway. It was not ideal, but it was generally safer than the post November 2010 configuration.

More common than accidents with runaways vehicles, have been accidents at the T-intersection at the bottom of Bulli Pass, involving vehicles heading north colliding with those turning right up the Pass from the north, or those coming down the Pass at a normal speed. One of these three factors was removed by the recent construction of the northbound overhead bridge, however the other two remain. The threat of runaway vehicles colliding with vehicles on the southbound lane has been removed by the construction of the containment barrier, however it has replaced one problematic traffic management option with another more dangerous one which could result in a death.

The following is a chronological outline of events relevant to, or directly concerning, the construction of the concrete wall at the base of Bulli Pass and efforts to have it removed.

2003

25 February 2003- NSW Govt makes Bulli Pass pledge - ABC news report:

The NSW Government has promised to start work on a major upgrade of Bulli Pass, north of Wollongong, if it retains power at next month's election. Transport Minister Carl Scully says the upgrade will involve the reconstruction of the pass at the intersection of Lawrence Hargrave Drive and the Princes Highway. He says work will also start on a three kilometre extension of the Northern Distributor between Bellambi Lane and Molloy Street at Bulli in 2005. Mr Scully says plans for the Bulli Pass intersection have been accelerated after a number of road accidents and community concern.

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2005

In 2005 detailed planning commenced on the construction of a overhead bridge at the bottom of Bulli Pass. Initial designs called for a two-lane bridge and no change to the configuration of the bottom of the pass in regards to the sand trap runoff area. However this changed when the government decided to only construct a single lane bridge. Arising out of community consultation, the RTA put forward the proposal to replace the sand trap with a concrete barrier.

Raphael H. Grzebieta, Roger Zou, Tony Jiang and Anthony Carey, Roadside hazard and barrier crashworthiness issues confronting vehicle and barrier manufacturers and government regulators, National Highway Traffic Safety Administration, United States Government and Monash University, 2005, 15p. {Available url: www.nhtsa.gov}. This comprehensive study is of relevance to an analysis of the impact of construction of the Bulli Pass containment barrier. It points out, amongst many other things, that airbags will most likely fire and a small passenger vehicle will undergo significant steering damage when it hits a concrete barrier at speeds greater than 60 kph and angles greater than 20 degrees (refer series of images at right). This raises questions in regards to the ability of a driver to control a vehicle following impact with the Bulli Pass containment barrier.

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2006

Proposed Intersection Reconstruction brochure (RTA).

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2007

Princes Highway and Lawrence Hargrave Drive Intersection Construction - Submissions Report, November 2007, RTA, page 13 (extract):

4. Modifications to the proposal - However, in response to submissions the following commitments would be included as part of the proposal.

- The option to construct a containment wall that would be used to manage run away vehicles travelling down Bulli Pass.

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2008

Princes Highway and Lawrence Hargrave Drive Intersection Upgrade – Review of Environmental Factors, NSW RTA, January 2008 (extract):

2.3.4 Road Design Parameters

To manage runaway vehicles on Bulli Pass, a containment wall will be constructed from the northern edge of the existing culverts to the right turn movement out of LHD. The wall will protect southbound motorists on LHD from vehicles travelling down Bulli Pass. The wall will be 2 metres high and designed to withstand the force of a runaway truck whilst being configured to slow a vehicle down using the side friction that will be generated upon collision.

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2009

J. Mak, P. Vecovski and G. Brisbane, Methods to identify and manage runaway heavy vehicle issues on steep descents [Bulli Pass and Mount Ousley], Australasian Road Safety Research, Policing and Education Conference, 10-13 November 2009, Sydney, pp.714-724. This article outlines some of the rationale behind construction of the concrete containment barrier.

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2010

March - Community Update brochure (RTA) on progress of Bulli Pass works.

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26 November 2010 - RTA website notification re completion of work on containment barrier:

The containment barrier now replaces the existing safety ramp and protects Wollongong bound motorists on Lawrence Hargrave Drive from those coming down Bulli Pass. The wall is designed to withstand the force of a runaway vehicle including heavy vehicles.

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27 November 2010 - Illawarra Mercury - letter to the editor (variant printed in the Northern News, 15 December 2010):

Backward step at Bulli

Why has the RTA replaced the emergency sand trap at the bottom of Bulli Pass with a steel-reinforced concrete wall? I assume that, due to the shock of impact, there will be significant physical trauma and loss of life associated with any runaway motorcycle, car, van or truck which happens to run into the wall at speed. Having watched motor races such as Bathurst for more than thirty years I can only imagine the carnage created should a heavily laden truck or a bus crash into the barrier. Why was this wall built? Was it the result of penny pinching by the State Labor government in failing to give us a dual lane north-south overpass - as originally planned - rather then the present north-only single lane? Perhaps David Campbell or Paul McLeay can answer this question. The concrete wall should be removed as soon as possible and the sand trap runnoff area restored in the interest of the safety of local and visiting drivers and their passengers. Michael Organ Austinmer. 

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6 December 2010 - Letter to the Minister for the Illawarra:

Mr Eric Roozendaal
Minister for the Illawarra
Parliament House, Sydney

cc. David Campbell MHR, Paul McLeay MHR

Removal of Concrete Wall at bottom of Bulli Pass

Dear Mr. Rozendaal

I would request that, in the interest of public safety, the recently constructed 2 metre high concrete wall (“containment barrier”) at the bottom of Bulli Pass be demolished immediately and the former sand-trap runoff area ("safety ramp") be reinstated.

I would also request that the government immediately fund expansion of the overhead bridge at the bottom of Bulli Pass to accommodate 2 lanes of bi-directional traffic and thereby remove the threat to south bound traffic of collision with runaway vehicles coming down the pass.

There is a long history of break failure on Bulli Pass due to its steep grades, with a range of vehicles, including trucks, having made use of the sand-trap arrester bed over the years. Recent studies by the RTA (Mak et al. 2009) have shown that speeds in excess of 100 km/h can be reached by B-double trucks (105+) and sedans (115+) in runaway situations at the bottom of the pass.

Due to the steep decline and present configuration of the new concrete wall, it is highly likely that vehicles will strike it at angles between 35° - 64° and at speeds approaching, or greater than, 100 km/h.

As Grzebieta et al. (2005) point out, this could very likely result in loss of life. Studies by the Monash University Accident Research Centre (Grzebieta et al., 2005) have shown that impact by a small vehicle with a concrete wall at an angle of 45° and at 80 km/h will not be survivable for the passengers, and could result in the aerial launch of the vehicle and rollover. Impacts at angles greater than 45° and over 60 km/h release airbags and can result in disabled steering controls.

There are numerous scenarios for life-threatening decelerations associated with this new concrete wall at Bulli Pass.

The RTA, in its November 2007 Submissions report, stated that: "Following the community consultation process, a risk workshop was held in February 2007 to resolve how run away vehicles down Bulli Pass could be managed. A number of stakeholders including the local council and the emergency services participated in the workshop. The preferred option is the construction of a containment wall that would act as a stopping mechanism for run away vehicles as they would make contact with the barrier at a negligible angle, then travel along the wall using friction and angle to guide and slow the vehicle. The wall would also separate southbound traffic from Lawrence Hargrave Drive and motorists travelling down Bulli Pass thereby eliminating the conflict point that exists with the current arrangement."

The so-called "negligible angle" of impact is, in fact, up to 64° due to the way the wall has been constructed, and the "guide and slow" scenario is, I would suggest, unworkable for many drivers involved in a high speed runaway situation on Bulli Pass.

It would also appear that the RTA's "risk workshop" failed to consider the safety of the occupants of a runaway vehicle as a primary consideration (a "Must Objective") in its ultimate decision to construct a "containment barrier."

I do not want to see a death resulting from a motorcycle, car, van, bus or truck impacting the concrete wall and therefore request that it be removed immediately.

Yours sincerely

Michael Organ
Austinmer

References

Raphael H. Grzebieta, Roger Zou, Tony Jiang and Anthony Carey, Roadside hazard and barrier crashworthiness issues confronting vehicle and barrier manufacturers and government regulators, National Highway Traffic Safety Administration, United States Government and Monash University, 2005, 15p. {Available url: www.nhtsa.gov}

Reducing Serious Injury and Death from Run-off-road Crashes in Victoria – Turning knowledge into action, Royal Automobile Club of Victoria and Monash University Accident Research Centre, Research report 06/04, June 2006, 24p.

J. Mak, P. Vecovski and G. Brisbane, Methods to identify and manage runaway heavy vehicle issues on steep descents [Bulli Pass and Mount Ousley], Australasian Road Safety Research, Policing and Education Conference, 10-13 November 2009, Sydney, pp.714-724.

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7 December 2010 - Illawarra Mercury - letter to the editor:

'Great Wall' of Bulli

Michael Organ's letter (Mercury, December 2) must have echoed in the minds of many a passer-by, as to the wisdom of the "Great Wall of Bulli" at the foot of Bulli Pass, which may be an Achilles heel for any runaway motorist. Once it began to appear, I thought the wall would be lined with bales of straw and a bank of rubber tyres, in the fashion of a speedway track. An alternative could be a broad band of very thick grease, overlapping the length of the vibrant chevron signage, so an out-of-control vehicle would slide along the curvature of the wall before coming to a halt up the hill. It would also pose a challenge for graffiti vandals who aim to leave their ugly marks on this pristine wall. I await some enterprising developer to promote the now-irrelevant sand ramp as the ideal location for the construction of houses on stilts, with magnificant unobstructed ocean and escarpment views. Lastly, when will a competition be held to name the new overpass bridge? Mike Morphett, Thirroul.

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11 December 2010 - Illawarra Mercury - letter to the editor:

Bulli barrier clarification

I would like to comment on Michael Organ and Mike Morphett's comments (Mercury letters, December 2 and December 7). During the development of the $31 million Lawrence Hargrave Dr and Bulli Pass intersection upgrade, the need to more safely control runaway vehicles coming down Bulli Pass was recognised. the installation of the containment barrier is considered the most effective and safest option. The containment barrier has been designed to withstand the force of runaway vehicles, including semi-trailers. It acts by allowing runaway vehicles to make contact with the barrier at a small angele, deflecting the vehicle, and as the vehicle travels along the barrier the combination of friction and its alignment guides and slows the vehicle down. The barrier also separates motorists travelling south from Lawrence Hargrave Dr onto the Princes Highway from vehicles travelling down Bulli Pass, significantly reducing the risk of a runaway vehicles crossing the path of other motorists. Before the upgrade, a runaway vehicle crossed another lane of traffic to access the safety ramp, causing the potential for further crashes. The containment barrier was placed on public display for community comment in February 2008. It was displayed again in May 2009 and was included in the March 2010 Community Update. I trust this clarifies the situation for the benefit of your readers. Brad Turner, RTA Regional Manager.

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16 December 2010 - Northern Leader - letter to the editor:

Concrete wall risk to drivers

Why has the RTA replaced the emergency sand trap at the bottom of Bulli Pass with a steel-reinforced concrete wall? There will undoubtedly be physical trauma and possible loss of life associated with any runaway motorcycle, car, van or truck which happens to run into the wall at speed. It should never have been built. Was it the result of penny pinching by the State Labor government who failed to give us the dual lane north-south overpass as originally planned? Perhaps David Campbell or Paul McLeay can answer that question. The concrete wall should be removed as soon as possible and the sand trap runnoff area restored in the interest of the safety of local and visiting drivers and their passengers. Michael Organ Austinmer.

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17 December 2010 - Illawarra Mercury - letter to the editor:

Overload on the Pass

Pity the RTA lifted the max 4.5 tonne load limit heading south on Bulli Pass. More trucks are using the pass than before the limit. There are no noise barriers, serious crash barriers, footpaths or any protection at all for the houses and pedestrians if a truck goes awry. On Wednesday there was an example of what could go wrong with a truck overtuning on the "elbow" due to faulty brakes. It couldn't even make the "safety ramp." All trucks over 4.5 tonnes should use Mt Ousley. The safety of many must be the main concern. Al Grundy, Bulli.

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2 January 2011

Car heading south runs into barrier

Around 2 Janaury a car heading south along Lawrence Hargrave Drive ran into the north eastern corner of the containment barrier. No information on this accident is known to the author apart from the visible evidence i.e. tyre marks on the wall, debri and a partially destroyed road sign.

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13 January 2011 - Wollongong & Northern Leader - letters to the editor:

Runaway trucks risk to drivers

There is a circumstance in our roads in the Illawarra that is unique, because there are a few instances where a major road crosses over another busy road thus forming a dangerous crossing, such as at the intersection of Bulli Pass, Princes Highway and Mount Ousley and Princes Highway. We are speaking of the danger of runaways. Engineers have included a safety device at the new bridge at the junction of Bulli Pass and Princes Highway. This eye-catching structure is constructed to divert a runaway truck from vehicles travelling along the Princes Highway. Let us hope it is never used. One small request - a mirror to help drivers turning north. Don Gray, Thirroul.

Mixed response to Bulli Pass safety wall

In reference to Mr Michael Organ's letter (W&NL 16/12/2010). An out of control vehicle coming down the 'pass' and heading for Mr Organ's sand trap and a south bound vehicle coming from Thirroul arrives at the intersection at the same time, wow how many lives will be in danger then. Hooray for the wall - good thinking. A. West, Woonona.

Typical of our politicians these days! Why didn't Michael Organ protest about the work at the bottom of Bulli Pass 4 years ago, before it was too late? It's no good whinging about it now, after the work has been completed. I wrote to the then minister for our roads, David Campbell, and protested about the lack of planning and fore thought by the government and the RTA, in taking the cheapest, and nastiest, option, and not planning for safety and the future. I received letters back from the minister telling me that I was the only one protesting the proposed work, and what was proposed was the RTA's preferred option. Too late now! Trevor Frost via web.

[Comment: none of these letters address the basic issue of the danger of the barrier itself to runaway vehicles, and the fact that an impact with it can cause death. MO]

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This page was originally created on 27 November 2010. Site last updated: 14 January 2011. Return to Michael Organ's Home Page.