Chapter 2The shape of the Brisbane 2032 Olympic and Paralympics Games, with nine years to go
Nine years to go to the opening ceremony
2.1The International Olympic Committee's (IOC) new Olympic processes have allowed for the Olympic and Paralympic Games to be awarded earlier than the usual seven years.
2.2In the case of the Brisbane 2032 Olympic and Paralympic Games (Brisbane 2032), these were awarded in 2021, approximately 11 years prior to the opening ceremony on 23 July 2032. As of November 2023, there are approximately nine years to go. This time period is commonly referred to as the 'green and gold decade' or the 'green and gold runway'.
2.3The figure below outlines the timeline for the Brisbane 2032 Games from the time of awarding, through to the opening ceremony.
Figure 2.1Timeline for the Brisbane 2032 Olympic and Paralympic Games
Source: Council of Mayors South East Queensland, Submission 68, p. 5.
2.4In its submission, the Council of Mayors South East Queensland (COMSEQ), who have been frequently attributed as the original bidders for Brisbane 2032, stated that the extended lead time offers an opportunity to leverage the Games and strategically direct investments into areas with the greatest need and that it has 'facilitated the optimisation of design and planning'.
2.5Despite this extended lead time, they also noted that 25 per cent of the Games delivery timeline has expired and 'there is an urgency to accelerate pace to ensure that all necessary preparations, including infrastructure delivery, are completed in a timely manner'.
2.6Regional Development Australia Sunshine Coast echoed these concerns stating that:
Although [nine] years remain … time is of the essence. In a dynamically changing economic environment where inflation, employment and international supply chains are all challenging to meet major projects, Governments immediately need to commit funding to major transport infrastructure projects.
2.7When questioned by the committee about the risks associated with hosting the Olympics, the Australian Olympic Committee's, Chief Executive Officer, Mr Matthew Carroll responded that 'the risk is always that you're working to a locked-in timetable … so you have to work towards that.
2.8Further to this, when questioned about accountability processes Mr Carroll reflected on the Brisbane 2032 Games being the first time Games were awarded many years in advance, and planning is in line with timing expectations, stating:
'… we're still nine years out so there is the time … you don't want to start doing a lot of stuff too soon, because that ends up costing you money. You've got to do it within a time frame'.
2.9Ms Cindy Hook, Chief Executive Officer, Brisbane 2032 Olympic and Paralympic Games Organising Committee (Organising Committee) made similar claims to the committee in August 2023, sharing that the IOC 'is very comfortable' with where progress currently stands.
2.10Several sporting organisations have expressed concerns relating to preparations, events and funding that may be lagging. Mr Stephen Moneghetti of Athletics Australia disagreed with claims that nine years was a lengthy runway:
I beg to differ on nine years being a long time. In an athlete's life, that's a short runway, and there [would] be athletes out there looking at the Paris Olympics next year and the Los Angeles Olympics.
2.11The 'green and gold decade' has often been described as a great opportunity for sport over the 10-year runway 'that can leave a real legacy in transforming [Australia] for the better'. The green and gold decade will also feature a wide range of major sporting events in Australia including world championships, and preparation and qualification events for the 2024, 2028 and 2032 Olympic and Paralympic Games.
2.12Prior to its cancellation, the Victorian 2026 Commonwealth Games was widely acknowledged as an accelerator and critical milestone for the Brisbane 2032 Games. Ms Petria Thomas OAM, Chef de Mission, 2026 Commonwealth Games Team, expressed to the committee that the cancellation was 'hugely disappointing and leaves a very big gap' in the lead up to the Brisbane 2032 Games.
2.13Mr Kipp Kauffman advised that preparations in the lead up to the Brisbane 2032 Games 'needs to factor in workforce' as it can take years to develop the right qualifications to an international standard for technical officials and critical event-delivery staff and this must be considered in planning.
2.14The Department of Infrastructure, Transport, Regional Development, Communications, and the Arts (Department of Infrastructure) noted in its submission that 'the Australian Government relies on the Queensland Government to design, procure and deliver projects on-time and on-budget' for the Brisbane 2032 Games.
Consultation
2.15Throughout the inquiry, across all major topics of consideration, the committee has heard evidence from participants that there has been a lack of consultation with community and with sporting organisations when it comes to the design, planning and preparation of the Brisbane 2032 Games.
2.16Ms Jackie Lauff, Chief Executive Officer, Sport Matters, told the committee of the importance of consulting widely with key stakeholders, including 'sporting and community organisations, athletes, and marginalised populations across host cities'.
2.17In its submission, the Local Government Association of Queensland asserted that it is critical for local governments to be engaged in planning and implementation of the Brisbane 2032 Games as 'local government is the level of government closest to the community' and local governments 'are the owners and the operators of major tourism assets in their communities'.
2.18Further, one participant to the inquiry stated that:
Statements in the media to the effect that the public has been consulted are wrong. Consultation has consisted of a one-way process of drip-feeding decisions to the public, with bad news being held back.
2.19When discussing the Gold Coast Light Rail transport development ahead of the Brisbane 2032 Games, community group Save Our Southern Gold Coast stated that 'it is crucial' for the public to have access to information on projects and public spending and that 'community consultations have not been conducted in an integral or transparent fashion'.
2.20Local Brisbane resident, Annette Hogan stated in her submission that 'community members are becoming increasingly distressed and distrustful' due to the lack of useful information and having not been 'involved in exploring options'.
2.21In relation to the Brisbane Cricket Ground (the Gabba) redevelopment set to take place ahead of Brisbane 2032, Professor Daniel Angus of the East Brisbane State School Parents and Citizens Association Olympic Impact Group (P&C Group) told the committee the community is:
Concerned that all levels of government and the Olympic organising committee are not committed to genuine consultation, transparency or community involvement in decisions that will have significant and legacy before, during and long after the games.
2.22Professor Angus proclaimed that the significant decision to demolish and rebuild the Gabba at a cost of $2.7 billion occurred 'before proper governance and consultation committees' were established.
2.23Professor Angus went on to explain that the P&C Group had written to 'sporting codes themselves—AFL, Cricket Australia' along with 'individual politicians [and] key decision-makers' which often resulted in 'quite a lengthy delay in responses'.
2.24Further to this, Ms Melissa Occhipinti, Founder of Friends of Raymond Park, reported that the Queensland Government have not 'conducted any community consultation' regarding the Raymond Park athletics track, despite claims of 'constant communication with the community'.
2.25Ms Occhipinti also went on to tell the committee in a hearing that the lack of consultation and communication is a 'disgrace' and has caused 'much stress and anxiety' in the community and 'mistrust' toward the Queensland Government.
2.26Brisbane Residents United (BRU) noted in its submission there has been 'no real community consultation' and the community do not have access to 'consultative structures' to ensure their issues and concerns are heard and recognised. BRU also labelled the communications to the community as 'abhorrent' and disrespectful.
2.27When questioned on the consultation with the community regarding the Gabba redevelopment, Ms Hook informed the committee that 'once the announcement was made by the state government last month, we did a letter to all residents'.
2.28When asked if the Department of Infrastructure was aware of the complaints regarding the lack of consultation, Mr Bill Brummitt, Assistant Secretary, Olympics, Paralympics and Sport Infrastructure Branch, responded that 'the minister has had some correspondence on it in the past' and further advised that the project validation reports 'have stakeholder consultation incorporated into them'.
2.29Discussing consultation with the community in the lead up to the Brisbane 2032 Games, Ms Hook noted that consultation is underway and 'progressing well' with First Nations Australians 'on integration into every aspect of the games.' She also told the committee that 'one of the first consultations was with First Nations people in Brisbane, Sunshine Coast, and the Gold Coast'.
2.30In response to a question taken on notice regarding commitment to meet with community groups, the Organising Committee declared that 'Brisbane 2032 will meet and communicate with community groups in the lead up to the Games'.
2.31In response to another question taken on notice on the lack of consultation to date with residents and community affected by the Gabba redevelopment, the Organising Committee stated that:
The Queensland Government is responsible for plans to redevelop the Gabba. Brisbane 2032 will meet and communicate with communities in the lead up to the Games, providing updates on work Brisbane 2032 is responsible for. As an example, Brisbane 2032 has recently conducted a letterbox drop to 600 residents in close proximity to Raymond Park, providing an update on what we know and can comment on, almost nine years out from the Games.
2.32Beyond community engagement, consultation with National Sporting Organisations (NSOs) has also reportedly been lacking, with several sporting bodies noting they have had no engagement from organisers or governments regarding the Brisbane 2032 Games.
2.33A collective of 22 NSOs collaborated on a joint submission for the inquiry, where they noted 'a few NSOs were consulted in the candidature phase', however, further engagement will be needed as a priority.
2.34Swimming Australia asserted that successful Games preparation requires governments and Games partners to foster early and close collaboration, stating that consultation is a 'mutual benefit that helps to avoid mistakes and missed opportunities'. These views were echoed by many, with the City of Gold Coast declaring that consultations with NSOs should be 'a non-negotiable'.
2.35According to the Queensland Government, the Brisbane 2032 Master Plan was developed 'through extensive consultation with the public, private and not-for-profits sectors, including with International Sporting Federations' and engagement with sporting organisations will continue through the project validation process, ensuring that planning meets elite and community sporting needs.
Transport infrastructure
2.36In 2015, COMSEQ began investigating the feasibility of hosting the Olympic and Paralympic Games, to bring forward much needed transport and road infrastructure to support South East Queensland's growing population and to showcase the region as a destination for tourism, trade, and investment.
2.37Community support for the Brisbane 2032 Games has largely been linked to the simultaneous delivery of transport infrastructure. A 2019 survey identified that 72 per cent of SEQ residents were supportive of a Games bid, on the basis it delivers regional connectivity and accelerates transport infrastructure.
2.38A 2022 Sunshine Coast survey of residents found the top four community priorities were road infrastructure, traffic management, infrastructure to support population growth and public transport.
2.39According to COMSEQ, the need for adequate transport infrastructure in the region is twofold: it ensures the efficient accessibility of Games events, which is a critical factor of success, and it supports the long-term connectivity needs that can unlock new opportunities for housing supply and housing diversity.[40]
2.40This was echoed by the Redland City Council, who expressed that transport investment is 'imperative to ensuring legacy opportunities are realised', including upgrades to existing infrastructure and temporary solutions to ensure the efficient and safe movement of participants, visitors, and residents.[41]
2.41In its submission, the Queensland Government reported transport planning activities are underway for the Brisbane 2032 Games, with a strong focus on sustainable and active modes including rail, bus, cycling and walking. They explained that Games transport will centre on three core objectives:
having secure and reliable movement for athletes, technical officials, dignitaries, official media, and sponsors;
having safe and reliable high-capacity passenger transport to provide access to Games venues for all spectators and workforce; and
maintaining reliable transport network operations during the Games for 'background' commercial and personal travel to keep the region moving.[42]
2.42Mr Mike Kaiser, Director-General, Department of State Development, Infrastructure, Local Government and Planning, informed the committee of plans to increase the walkability of Brisbane ahead of the Games by leveraging recent footbridge infrastructure and creating linkages between the Gabba and the City. Mr Kaiser stated:
…we expect to see a lot of people travelling by rail … but we also want to give people a great experience of walking around our sub-tropical city. We think that that could be a real feature of the games, so we're studying, planning, and investing in the walkability of our precincts as well through the inner city.[43]
2.43The Queensland Government confirmed there are several critical upgrades to transport corridors connecting the three Brisbane 2032 Games zones in SEQ, the Gold Coast, Sunshine Coast and Brisbane, that will be funded under the existing $29.7 billion Queensland Transport and Roads Investment Program.[44]
2.44Responsibility for the design, procurement, and delivery of transport projects sits with the Queensland Government, with Australian Government involvement 'in project level governance proportionate to its contributions'. The Brisbane Coordination Office oversees and integrates Games transport and the Queensland Department of State Development, Infrastructure, Local Government and Planning and Queensland Department of Transport and Main Roads, deliver the projects.[46]
Australian Government investment in transport infrastructure
2.45The Australian Government is supporting Brisbane 2032 Games transport through the existing National Partnership Agreement for Land Transport Infrastructure, which invests $20 billion in transport projects over 10 years. This investment includes funding of $22.45 million for sub‑projects prioritised to support population growth and Games preparation, relating to priority planning works for the Pacific Motorway, Sunshine Motorway and Ipswich Motorway, and a Sunshine Coast Public Transport Study.
2.46The Department of Infrastructure advised that many of the transport projects needed to support the Brisbane 2032 Games are already being planned, funded, and delivered through the current Infrastructure Investment Pipeline.
2.47These projects are outlined in Table 2.1 below with the corresponding date in which the Australian Government committed to jointly fund the project.
Table 2.1Australian Government investment in South East Queensland transport projects
| |
Bruce Highway Upgrade Program | 2013–14 Budget |
Warrego Highway Upgrade Program | 2013–14 Budget |
Ipswich Motorway Stage 2 planning | 2022–23 March Budget |
Coomera Connector Stage 1 | 2020–21 Budget |
Brisbane to the Gold Coast (Kuraby – Beenleigh Faster Rail Upgrade) | 2022–23 March Budget |
Gold Coast Light Rail Stage 3 | 2018–19 MYEFO |
Source: Department of Infrastructure, Transport, Regional Development, Communications and the Arts, answer to questions taken on notice, 8 September 2023 (received 5 October 2023)
2.48Despite these current and planned transport investment projects, the Queensland and Australian Governments have not yet agreed on a specific Brisbane 2032 Games transport agreement.[49] When asked about when this is likely to occur, the Department of Infrastructure responded on notice, advising that timing of 'a transport infrastructure priorities list' for the Brisbane 2032 Games 'is a matter for the Queensland Government'.[50]
2.49Reporting and governance provisions for these Australian Government transport investments are reported to be in line with standard arrangements, 'including either monthly or quarterly meetings with the Queensland Government'.
2.50Mr Blair Exell, Deputy Secretary, Health Strategy, First Nations and Sport, Department of Health and Aged Care, also informed the committee that updates and reporting on transport infrastructure were provided at the Brisbane 2032 CEO integration group, which meets monthly.[52]
Concerns with proposed transport infrastructure
2.51Several participants to the inquiry have raised concerns with planned and proposed transport infrastructure projects and gaps in transport infrastructure that will impact on the successful delivery of the Brisbane 2032 Games.
2.52Community group, Save Our Southern Gold Coast, highlighted issues with the expansion of the Gold Coast Light Rail and plans to extend this further to Stage4, which they say is being considered by governments. The group argued that:
… the proposed light rail system is slow and expensive and does not meet the requirements for efficient transportation of athletes, equipment, and broadcasting materials.[53]
2.53They further noted that heavy rail infrastructure is necessary to adequately prepare for the Brisbane 2032 Games and be truly Olympic ready, along with the implementation of zero‑emission buses to provide a sustainable and flexible public transport system for the entire Gold Coast City.[54] Save Our SouthernGold Coast called on the Australian and Queensland Governments to complete the fast heavy rail route from Varsity Lakes Station to Gold Coast Airport, ahead of the Brisbane 2032 Games.[55]
2.54Similar concerns were raised with the proposed developments of light rail or 'mass transit' systems in the Sunshine Coast. The Sunshine Coast Mass Transit Action Group (SC MTAG) criticised the now coined, Sunshine Coast Public Transport Project as being a biased project that is 'too narrow in scope' with minimal public support and will provide 'very little transport support for the Olympic Games and the Sunshine Coast community more generally'.[56]
2.55The SC MTAG undertook a survey of residents in 2021 to determine community views on suitable transport options, which indicated 'overwhelming support' for the delivery of a heavy rail in the Sunshine Coast, and that heavy rail should be prioritised over mass transit or light rail investment.[57] The figure below details resident's responses to the survey, on a choice of light or fast (heavy) rail.
Figure 2.2Resident responses to the choice of fast (heavy) rail or light rail.
Source: Sunshine Coast Mass Transit Action Group Inc, online survey 2021.
2.56SC MTAG explained that a heavy rail project, the Sunshine Coast Direct Line from Beerwah to Maroochydore had already received a partial commitment from the Australian government, however, 'a lack of commitment' from the Queensland Government could compromise the project being completed in time for the Games.[58]
2.57They further noted that direct rail investment would provide an alternative to highway travel, which may not be able to support the extra Brisbane 2032 Games traffic. SC MTAG also called for shorter time horizons, if the project is agreed, to enable full functionality throughout the Games period.[59]
Infrastructure Review
2.58On 1 May 2023, the Hon Catherine King MP, Minister for Infrastructure, Transport and Regional Development and Local Government, announced a review into Australian Government funded infrastructure projects in the Infrastructure Investment Pipeline (infrastructure review). Some infrastructure projects relating to the Brisbane 2032 Games were captured in this review, creating a level of uncertainty with state government and local government delivery partners over projects.
2.59The Gold Coast Light Rail was one project identified as enhancing traffic flows for events held in the Gold Coast region, including the Brisbane 2032 Games. The Mayor of Gold Coast, Councillor Tom Tate expressed concern over the review of the Gold Coast Light Rail Stage 4:
This evaluation makes us nervous because uncertainty makes us nervous. We do our budgets. So does the state. We have lined up our budget for light rail Stage 4, for the detailed business plan, and I want to get going. Therefore, this project, looking through the lens of the Gold Coast, shouldn't be re-evaluated.
2.60Cr Tate said it would be 'a betrayal’ if the Gold Coast Light Rail did not proceed with funding after the review, explaining that the light rail was one project that was split into four stages.
2.61The Sunshine Coast Direct Line linking Brisbane to the Sunshine Coast, by building rail between Beerwah and Maroochydore also became subject to the Australian Government Infrastructure Review as the project was still in planning stage.
2.62Mr Carroll confirmed that this transport project formed part of the original IOC agreement for the Brisbane 2032 Games and expressed confidence in the delivery of the project.
2.63In the October 2022–23 Budget, $200 million in funding was cut from the forward estimates for the Sunshine Coast Direct Line and it was delayed over the 10-year infrastructure pipeline, raising concerns it would not be built in time for the Brisbane 2032 Games.
2.64However, Mr Kaiser said he believed the review had no impacts on the timeline of delivery for the Sunshine Coast Direct Line. He confirmed the business case for the project would continue despite the ongoing review, and that the Queensland Government were strong advocates for the project.
2.65On 16 November 2023, the outcomes of the Infrastructure Review were announced by Minster for Infrastructure, Transport and Regional Development. In Queensland, nine projects were cancelled, and other projects had been delayed with funding still uncertain.
2.66The outcomes of the review were criticised by the Queensland Premier, the Hon Annastacia Palaszczuk MP, describing infrastructure cuts as 'outrageous'. She reportedly suggested the cancellation of projects and uncertainty of others in the pipeline could threaten the delivery of the Brisbane 2032 Games.
2.67On 30 November 2023, media reports indicated the Australian and Queensland Governments agreed to proceed with Sunshine Coast Direct Line from Beerwah to Maroochydore as originally budgeted.
Governance, oversight, and transparency
Development of the Brisbane 2032 Games governance arrangements
2.68According to the Queensland Government's submission to the inquiry, the final response to the IOC’s Future Host Questionnaire (FHQ), which forms part of the final Olympic contract, proposed that two entities be established for the development and execution of the games. These are:
the Brisbane 2032 Organising Committee, a statutory body through legislation with primary responsibility for organising and staging the event; and
an entity to coordinate all non-Organising Committee government responsibilities, including venues, athlete villages, transport, legacy initiatives, and front-line government services. The legal form of this entity was not agreed in the FHQ.
2.69Deloitte was commissioned by the Queensland Department of the Premier and Cabinet in May 2022 to provide recommendations for governance arrangements of the Brisbane 2032 Games. Deloitte informed the committee that the focus of the work was to analyse existing contractual roles and responsibilities under the host contract and arrangements for how previous games had been delivered, to provide governance options for Brisbane 2032 from a non-OCOG perspective, and to provide practical considerations for implementing the preferred role, within the IOC's New Norm reforms overlay.[72]
2.70Deloitte reportedly undertook an 'extensive review' of lessons learned from previous Games and 'consulted extensively' with Games Delivery Partners including the Queensland and Australian Governments, local councils, COMSEQ, Paralympics Australia and the Australian Olympic Committee.
2.71The final version of the Brisbane 2032 Governance Arrangements Games Delivery Partner Report was released in March 2023 and recommended the establishment of the Brisbane 2032 Coordination Office (BCO) within the Queensland Department of the Premier and Cabinet to provide whole‑of‑government leadership and coordination activities, that is led by a Chief Executive Officer and independently reviewed within two years.
2.72The report also recommended the establishment of two, strategic cross-partner advisory groups, the Brisbane 2032 Intergovernmental Leaders’ Forum, and the Brisbane 2032 CEO Integration Group, which will include local, state, and federal representatives 'at the highest levels'.[75]
2.73The Queensland Government argued that the Deloitte review found the proposed model leveraged the Queensland Government’s existing capabilities and legislative powers without the need for the legislated structure of the statutory body proposed in the FHQ.
2.74Deloitte also claimed that the decision to recommend the BCO be integrated with the Department of the Premier and Cabinet, along with their other recommendations have been 'supported by Games partners and the IOC', noting that the original bid documents referenced an Olympic coordination authority but did not 'prescribe the powers of it or that it must be independent'.
2.75Under these arrangements, the BCO and the Organising Committee will be subject to reviews by the IOC and its coordination commission. Ms Hook confirmed reporting to the IOC occurs annually, and further explained that the first coordination commission meeting was in the June 2023, with the next scheduled for March 2024.
2.76However, Ms Paula Robinson, General Counsel and Company Secretary, Brisbane Organising Committee for the 2032 Olympic and Paralympic Games informed the committee that:
As a statutory authority, we have obligations to make certain documents of our organisation public. There are no formal requirements to make information regarding our coordination commission public.
2.77Mr Carroll noted that breaches of the IOC agreement are managed within the agreement itself, with the IOC having the ability to serve notices and rectify the breach through penalties that are subject to the IOC.
Australian Government investment and oversight
2.78In April 2021, the former Prime Minister, the Hon Scott Morrison MP wrote to the Hon Annastacia Palaszczuk MP, Premier of Queensland and Minister for the Olympic and Paralympic Games, outlining intentions for the Australian Government to provide investment into critical infrastructure for the Games on a 50/50 basis, subject to a 50/50 shared governance model with oversight of all projects from the planning, scoping and design phase through to contracting, construction and delivery.
2.79On 17 February 2023, the Queensland and Australian governments signed the Brisbane 2032 Intergovernmental Agreement (IGA) with the Australian Government providing $3.4 billion in infrastructure investment. The IGA is stated to have included 'a clear outline of roles and responsibilities' regarding infrastructure delivery for both parties.
2.80The IGA also detailed a range of reporting and oversight mechanisms including:
Requirements for a Joint Business Case on the Brisbane Live Arena and Project Validation Reports (PVRs) for each project under the Minor Venues Program that demonstrate value for money and optimised delivery.
The provision of independent gateway reviews to allow for an additional independent check of project preparation, progress, and quality.
Joint selection of the chosen design and the selected delivery partner for the Arena and joint oversight and consultation on the chosen design and the selected delivery partner for the Minor Venues Program.
Regular reporting - financial updates in monthly project reporting and cash‑flow projections twice a year and,
Post Completion Reports.
2.81Governance arrangements for the Brisbane 2032 Master Plan are also expected to contain change control processes, periodic validation of projects as they progress and PVRs to provide a greater level of accountability and inform investment decisions for both the Queensland and Australian Governments.
2.82Mr Brummitt also assured the committee that there is sufficient oversight and accountability for the Australian Government's investment, detailing the Project Control Group that consists of working level and executive steering committees in which multiple Australian Government agencies and departments are members of and frequently attend.
Concerns with transparency and accountability
2.83Concerns have been raised by stakeholders to the Brisbane 2032 Games and participants of the inquiry regarding a lack of accountability and transparent decision making. Ms Elizabeth Handley, President of Brisbane Residents United criticised organisers and funding partners of the games, stating:
Governance procedures provide little transparency and accountability. Detailed information is difficult to find. Legislation shields decisions from right-to-information requests. The Olympic Games will provide the excuse to bypass present planning legislation and create pieces of planning legislation to limit community consultation.[87]
2.84Echoing these views was local resident Nicky MacMillan who asserted in his submission that decisions have been made prior to agreements for the Gabba rebuild and other projects, resulting in an urgent need for significantly greater transparency by Queensland and Australian Governments as to project planning and project budgets.[88]
2.85Local community group, West End Community Association also called for greater transparency in the distribution of costs and benefits of the Brisbane 2032 Games.[89]
2.86The COMSEQ claimed that it is 'essential' to clarify that the primary focus should be on ensuring efficient delivery of planned infrastructure, which could be achieved by streamlining governance processes and fostering transparent collaboration among all relevant stakeholders.[90]
Housing and accommodation
2.87The Queensland Government is a proponent of the view that the Brisbane 2032 Games present a significant opportunity to increase housing and ensure it meets the needs of Queensland’s growing population. Planning Institute of Australia agreed that major events leave legacies and reduce the financial risk of future housing through construction of new housing types that can improve living conditions, amenity and reduce living costs.
2.88The City of Gold Coast have claimed that the most significant positive influence on the housing market is likely to be seen in the years leading up to the Games, as large infrastructure projects bring requirements for worker accommodation, creating additional demand for housing and improved public transport options and travel efficiencies. They also noted however, that this can have a negative effect on housing affordability.
2.89The Victorian Council of Social Services have agreed with this, stating that an influx of temporary workers will place demand on the already scarce rental market, impacting affordability of homes, and that 'managing housing demand will be a key challenge' for Games hosts.
2.90The Planning Institute of Australia advised that studies into past Games have observed that housing costs will rise in Olympic host cities, as was seen in the Sydney 2000 Games, where house prices and rents increased significantly. They further reflected on studies that found the hosting of the Olympic and Paralympic Games often results in forced evictions and reductions in housing affordability, particularly for marginalised groups.
2.91Ms Fiona Caniglia, Executive Director of Q Shelter informed the committee of similar views, stating that mega events often cause the displacement of local populations and increasing homelessness in host cities due to rising accommodation costs and a lack of social and affordable housing.
2.92These concerns were frequently reported by local community groups. BRU noted that growing homelessness and poverty is already an issue in Brisbane due to the current economic climate, with the West End Community Association and resident Rebecca Ninness asserting that this will be exacerbated in the lead up to, and during the Brisbane 2032 Games.
Accommodation
2.93Regarding athlete accommodation, the Queensland Government confirmed that all accommodation is expected to be close to competition venues, with an expected travel time of less than 20 minutes. Planned accommodation includes two villages in Hamilton, Brisbane, and the Gold Coast and two satellite villages in the Sunshine Coast and Kooralbyn.
2.94The Organising Committee advised that a 'significant amount' of accommodation availability was secured during the candidature and bid process through existing and planned inventory. They committed to working with Games delivery partners as the estimated demand for accommodation is refined, to secure further accommodation while seeking to minimise disruption to local communities.
2.95Further, COMSEQ stated that the Games master plan focused on a strategic and synchronised approach. By integrating existing plans, the approach will provide appropriate distribution of athlete accommodation to effectively handle the accommodation task while simultaneously supporting regional tourism opportunities.
2.96Despite these claims, the Sunshine Coast Council advised the committee that the region will be working to identify and attract new investment in hotel stock as there are concerns of a shortfall in hotels and other short term accommodation offerings. The council also noted that increased hotel options form part of their legacy outcomes to develop the Sunshine Coast as an accessible and inclusive tourism destination.
2.97COMSEQ have additionally expressed that accommodation for the Games cannot be addressed by hotels and apartments alone, reflecting that village‑style developments can serve as temporary housing solutions for Games clients and can subsequently be repurposed as permanent housing.
2.98The City of Gold Coast echoed this view, stating the Games provide an opportunity for affordable housing, with the proposed Gold Coast satellite village housing more than 2 600 athletes and officials during the Games. They further mentioned that any planning and design of the village will need to be carefully undertaken to provide a positive, permanent residential legacy.
2.99The Queensland Government noted in their submission that planning for the design and delivery of the Brisbane athlete village has commenced, and social and affordable housing will be included in the dwelling mix.
2.100Additionally, the Sunshine Coast athlete's village will be located on a 53-hectare site providing a mix of residential, commercial, retail, civic and community uses. The village will accommodate up to 1 400 athletes and officials during the Games and will provide a mix of residential housing and commercial use in legacy mode.
Solutions and opportunities
2.101The Sunshine Coast Council has advised the committee they have commenced engagement with Q Shelter following research that highlighted the concerns. They claim they have now instigated several initiatives to address housing affordability and the associated issues, noting the issue cannot wait until 2032.
2.102COMSEQ also acknowledged that it is crucial to recognise that the housing crisis in Australia is an urgent issue that extends beyond the Brisbane 2032 Games. They proposed that the housing challenge demands a collaborative approach across all levels of government and strategic, direct investments into areas with the greatest need.
2.103Ms Caniglia informed the committee that in the lead up to the Brisbane 2032 Games, Q Shelter would like to see a social and affordable housing legacy from the athlete's village, a workforce housing strategy and housing monitoring reports to understand displacement patterns. She further explained that investment in housing, targeted to very vulnerable homeless people now, instead of a crisis response in 2032, is particularly important.
2.104The Victorian Council of Social Services reflected on the Australian Government's goal to build more social and affordable housing and the aim of delivering a pipeline of at least 25 000 social homes each year. They emphasised that it presented a significant opportunity for the Australian Government to contribute funding for long-term social housing and reduce the impacts on housing associated with hosting the Games.
2.105The Queensland Government confirmed that the Australian Housing and Urban Research Institute has been engaged to model Queensland’s rental housing supply and demand at both a statewide and regional level, through to the Brisbane 2032 Games. Result from this modelling activity is expected to be presented by the end of 2023.
Venue infrastructure
2.106The Brisbane 2032 Games is the first Olympic and Paralympic Games to be awarded under the IOC’s New Norm policies which are designed to drive legacy outcomes for the host community, both before and after the Games, with the indicative Master Plan being developed through the lens of ensuring sustainable venue solutions that provide social benefits to local communities.
2.107More than 80 per cent of competition venues required to host the Brisbane 2032 Games are reported to already exist or will use temporary structures and overlay. Aligning with the IOC's New Norm, the Queensland and Australian Governments have committed to the use of existing and required infrastructure, with no new major infrastructure being built just to host the Games.
2.108The FHQ document prior to the awarding of the Games stated that 'venues were selected based on a rigorous technical assessment' that considered including technical and community sporting requirements, capacity, and operational requirements such as transport and security. It further assured that any new venues proposed were selected on the basis of long-term demand due to population growth, or they were existing planned infrastructure.[114]
2.109The Sunshine Coast Council reported the Sunshine Coast will be in receipt of three expanded or new sporting venues in the coming years that will support large population growth of the region, as a result of accelerated investment for the Brisbane 2032 Games. They stated that without the investment the Sunshine Coast 'would not be capable of hosting Olympic competitions'.[115]
2.110The Queensland Government also committed to providing a sustainable 2032 Games. To provide a sustainable Games they have guaranteed that all new or upgraded venue infrastructure over $100 million will be driven by industry best practice, using low carbon operations such as electric vehicle charging and energy efficient infrastructure.
2.111The Australian Government committed $3.4 billion to Brisbane 2032 venue infrastructure in the signing of the IGA, following requests from the Queensland Government. This includes up to $2.5 billion for the Brisbane Live Arena (the Arena) development, and up to $935 million for the Minor Venues Program, that is 50 per cent jointly funded for the provision of 15 new and upgraded venues. Figure 2.3 below lists these venues, their locations and build type.
Figure 2.3Minor Venues Program list of projects
Source: Brisbane 2032 Olympic and Paralympic Games Intergovernmental Agreement - Schedule A: Brisbane 2032 Olympic and Paralympic Games venue infrastructure, p. 11.
2.112However, not all venues identified in the Games Master Plan are being funded under the IGA, with the Queensland Government managing arrangements and funding for all other venues including the $2.7 billion redevelopment of the Gabba, the temporary athletics track at Raymond Park and funding for Brisbane 2032 athlete villages.
Brisbane Live Arena and the Minor Venues Program
2.113According to COMSEQ and the Queensland Government, the proposed Brisbane Arena funded by the Australian Government, will host swimming and water polo finals for Brisbane 2032 with 15 000 seats for spectators and a temporary pool structure that will be removed following Games events. In legacy mode, the Arena will become a premier indoor sport and entertainment venue with a capacity to seat 17 000 people. The Arena reportedly addresses and aligns long-term planning to replace the aging and costly Brisbane Entertainment Centre.[120]
2.114The Department of Infrastructure confirmed the Australian Government’s role in venue infrastructure is to approve the business case for the Arena and the PVRs for the Minor Venues Program. They noted that work is currently underway on these business cases, with a focus 'to ensure value for money' and appropriate project governance 'to monitor progress'.[121]
2.115Further to this, the Queensland Government advised that:
Independent gateway reviews are undertaken for major infrastructure programs and projects and will be applied to the Brisbane Arena project. Gateway reviews employ a small team of independent experts to examine projects at key decision points to help ensure the projects meet strategic objectives and achieve value for money.
2.116On 1 December 2023, media reports in The Australian revealed further concerns relating to the arena’s planned location. Due to transport disruptions that would occur at the Roma Street site, the precinct is alleged to move to an alternative site in Brisbane, with either Queensland Police Services headquarters or Visy Industries in West End as possible proposals.
Gaps, concerns, and opportunities for venues
2.117These commitments to sporting infrastructure venues for the Brisbane 2032 Games have been welcomed by many community and sporting organisations, who have recognised the benefit these venues will have, across both community and grassroots participation and elite performance. However, a large volume of NSOs who engaged with the inquiry identified significant gaps in venue infrastructure to support the Brisbane 2032 Games, and to leave a legacy where the provision of temporary venues and overlay were selected.
2.118The collective of Australian NSOs supported the engagement with International Sporting Federations in the development of the Games Master Plan, acknowledging that the next step is for governments to prioritise engagement and consultation with NSOs to maximise beneficial outcomes regarding competition and training venue investment.
2.119Sport Climbing Australia declared that existing climbing infrastructure is inadequate, with 'no committed investment' of high‑performance climbing facilities 'from any government in Australia'. They further explained it is critical that investment for facility provision happens 'well in advance of the Brisbane 2032 Games', ideally by 2026–27 at the latest.
2.120Similar concerns were expressed by Football Australia who said existing competition venues available for the Brisbane 2032 Games are not fit for purpose and 'do not have the capacity to meet football audience demands'. They suggested that a joint review of current training and competition venues be conducted in lead up to Brisbane 2032 Games to ensure capacity and capability is appropriate.
2.121Mr Carroll argued that sport cannot serve the community without coordinated investment in sporting infrastructure from all levels of government and the full exploration of available opportunities. On behalf of the Australian Olympic Committee, he called on the Australian Government to lead a national sporting infrastructure audit, with the view to maximising current and future investment.[129]
Committee view
2.122Consultation and engagement may be broadly embedded into processes for the Brisbane 2032 Games with a particular focus on collaboration with international federations. However, there does appear to be a distinct lack of meaningful engagement with some local communities and individuals affected by the hosting of the Games.
2.123Greater consultation and community engagement is needed now, in the lead up to the Games and once the Games are completed to not only hear the communities' concerns, but to also find appropriate and practical solutions.
2.124The committee has also heard repeated calls for improved consultation from the Queensland and Australian Governments with NSOs when planning, designing, and implementing venue infrastructure ahead of the Brisbane 2032 Games. The committee learned about how this has not yet been done but may mean the difference between a successful or unsuccessful Games. In addition, this may impact on whether the Games deliver legacy outcomes that are suitable for the sports and communities they service, both at an elite and local level.
2.125The Queensland Government has indicated its intention to repurpose athlete accommodation to social and affordable housing following the 2032 Brisbane Games. Notwithstanding this, there is a clear gap in affordable housing and housing availability now, that is only going to worsen as preparations for the Games continue. The Queensland Government should listen to the community and key stakeholders, including Q Shelter and the Planning Institute of Australia, who have shared insights and solutions with the committee on how to address this issue and minimise the certain impacts of the Games.
2.126The committee is concerned about the current planning timelines for transport infrastructure projects that will impact the Brisbane 2032 Games delivery, noting that the Federal Budget papers indicate completion to occur in the year 2031–32. The committee considers the Australian Government has taken a chaotic approach to the infrastructure investment pipeline and many projects remain in doubt and at risk of not being delivered.
2.127The committee was made aware that the Australian Government’s commitment to invest $2.5 billion to build the Arena was made without the project being considered by Infrastructure Australia. The committee is of the view the Australian Government has not received independent expert advice on whether the Arena is a priority infrastructure project. Under the current legislation framework, Infrastructure Australia does not have powers in relation to social infrastructure.
2.128The committee is aware of amendments before the Australian Parliament to the Infrastructure Australia Amendment (Independent Review) Bill 2023 that would expand Infrastructure Australia’s functions to include nationally significant social infrastructure. This would empower Infrastructure Australia to provide independent advice on the Brisbane Live Arena proposal and expand accountability processes.
2.129Current accountability and transparency mechanisms appear insufficient to effectively evaluate and critique the operations and delivery of Brisbane 2032 Games plans, due to the interconnectedness of the Brisbane Coordination Office within the Queensland Government. It is the committee’s view that all governments, including the Australian and Queensland governments, should strive to achieve maximum oversight and accountability to ensure investments are handled appropriately and deliver the expected returns for taxpayers and the community.
2.130One way to achieve this is through the establishment of an independent Olympic Coordination Authority with representation from all levels of participating governments, and a direct connection with the IOC. The committee heard how this model of governance has been the standard in past Olympic and Paralympic Games, including the Sydney 2000 Games and was originally planned in the Brisbane 2032 bid.
2.131This independent Olympic Coordination Authority should be implemented as originally proposed, and as soon as possible, to oversee preparations for the Games and ensure accountability for residents, taxpayers and athletes who will be counting on the Games to deliver economic and social benefits and a lasting legacy.
2.132The committee recommends that the Australian Government actively engage with the Queensland Government to:
undertake a housing needs analysis in Games locations, with a view to mobilising all levels of government and stakeholders in the housing industry to coordinate responses in identifying opportunities to increase housing supply without impacts to housing affordability; and
agree a co-funding arrangement that ensures the athlete’s accommodation is converted into social and affordable housing when the Games conclude.
2.133The committee recommends that the Australian Government work with the Queensland Government to explore options to improve transparency and accountability mechanisms. As part of this process, an independent and integrated Olympic Coordination Authority, with representation from all three levels of government should be considered as an alternative governance arrangement.
2.134The committee recommends the Australian Parliament consider amendments to the Infrastructure Australia Amendment (Independent Review) Bill 2023 to expand Infrastructure Australia’s functions to include nationally significant social infrastructure and provide a greater level of overview for the Brisbane Live Arena project.
2.135The committee recommends the Australian Government work cohesively with the Queensland Government to ensure completion of the Sunshine Coast Direct Line from Beerwah to Maroochydore. To de-risk the delivery timelines the project should be delivered in 2029–30 as set out in the March 2022–23 Budget to ensure the rail is operational well in advance of the Brisbane 2032Games.
2.136The committee recommends the Australian Government provide greater clarity and transparency on the delivery of infrastructure projects for the Brisbane 2032 Games, or for projects that will have an impact on the Games. As part of this work the committee also recommends that the business case for the Brisbane Live Arena be put to Infrastructure Australia for assessment to ensure it meets the Australian Government’s infrastructure priorities.