HAWKE’S BAY REGIONAL COUNCIL
Regional
Transport Committee
Friday 17 February 2012
SUBJECT: Adoption of the Heretaunga Plains
Transportation Study
Reason for
report
1. Technical work on the
Heretaunga Plains Transportation Study (HPTS) is complete.
2. The findings of the
study in the form of a recommended transportation strategy need to be
considered and adopted by the Regional Transport Committee (RTC). This is
required, if the study and the strategy it promotes, is to be used to inform
the new Regional Land Transport Strategy and support the Regional Land Transport
Programme for the 2012-2015 period and beyond.
3. Once the study and the
strategy contained within it are adopted by the RTC, it will be forwarded on to
NZTA for consideration and endorsement.
4. Ideally, all the other
study partners should also consider and adopt the strategy, as they will in due
course, be responsible for implementing most of the findings contained in the
document.
5. This report has been
prepared as a first step in those processes. Mr Tony Harrison, GHD Limited will
be present to provide a presentation to the Committee.
Study setup
Funding and management
6. The Hawke’s Bay
Regional Council (HBRC), as lead authority, proposed and commissioned the
Heretaunga Plains Transportation Study (HPTS) in late 2009. The study partners
are the New Zealand Transport Agency (NZTA), Hastings District Council (HDC)
and Napier City Council (NCC).
7. NZTA was the primary
funder, however all study partners have contributed to the cost of the study.
The value of the contract was approximately $500,000. Each partner has borne
their own costs of participation in the study over and above that sum.
8. At an early stage, a
study management and technical group (SMTG)1 was formed. This was
comprised of technical representatives drawn from each of the agencies. Murray
Buchanan of Besl was appointed as project manager by HBRC.
Note 1 SMTG - Study management and technical
group was formed of; 2 representatives from NZTA ([Mark Kinvig] Simon Barnett
/ Oliver Postings), 2 from NCC (Jon Schwass / Alastair Thompsen); 2 from HDC
(Jag Pannu / Mark Clews; 1 from HBRC [Helen Codlin] Carol Gilbertson; and
Murray Buchanan project manager Besl; Tony Harrison / Laura Skilton GHD.
Project brief
9. The project brief was
developed by the project manager for the HBRC.
10. In the first instance
this involved; a) undertaking a review of the Peer Reviewers comments from the
2004 Hawke’s Bay Transportation Study (later re-named the Heretaunga Plains
Transportation Study 2004), and b) interviewing the study partners to identify
their individual and joint transportation concerns / issues, and c) a review of
other studies in New Zealand and the tender documents used, to ensure
consistency with national methodologies.
11. Based on this work a
draft “brief for tender” and supporting information was developed and then
considered and approved by the SMTG prior to notification of the tender. The
tender was advertised at the end of November 2009.
12. Two tenders were
received. They were evaluated by a tender evaluation team (TEV)2 appointed
by the SMTG in February 2010. GHD Limited was awarded the contract. The study
commenced in April 2010, once a “project plan” was prepared by GHD and approved
by the Project Manager / HBRC.
Note 2 TEV – Tender Evaluation team; NZTA- Mark
Kinvig / Simon Barnett; HDC -Jag Pannu / Mark Clews; NCC -Jon Schwass / John
Wright; HBRC- Helen Codlin; Besl -Murray Buchanan
Transportation Planning Process
13. The overall study
management, reporting, implementation and funding structure is shown in figure
1 below;
Figure 1. - study management
and reporting structure
HPTS 2004
14. The 2004 transportation
study, while comprehensive and undertaken professionally, had been the target
of technical, policy and strategic concerns.
Technical
15. The Peer Reviewer of the
2004 Study, had identified a number of technical issues that he considered
“affected” the reliability of the technical findings of the study. He
considered these should be remedied in any future updates/studies.
16. Some of the technical
matters which had been questioned included; a) link speeds assigned in the
model on key routes (e.g. the expressway); b) the way intersections had been
coded / not coded; c) the level of service (LoS) formula used (these were set
at lower thresholds than LoS used elsewhere in New Zealand) and d) the
appropriateness of the “imported” base survey data (i.e. its age, reliability
and relevance for the study).
Strategic and policy
17. The “divergence” between
the technical findings of the 2004 study and the final recommendations had been
questioned by NZTA. This had occurred because the technical findings had been
modified in consequence of the public consultation and submission process
followed by the “forum” overviewing the study process.
18. Major and unanticipated
landuse changes had occurred since the inception of the 2004 study. These had
resulted from significant alterations to the landuse and development strategies
of Hastings and Napier used in the 2004 study involving, for instance the establishment
of new Large Format Retailing, recreation and “greenfields” residential growth
areas.
19. On top of these landuse
adjustments, further changes in consequence of the Heretaunga Plains Urban
Development Study (which introduced a significant focus on intensification of
development within existing urban limits in the longer term) were also being
implemented. In effect the 2004 study landuse was out of date.
20. A key component of the
2004 study (i.e. the Hastings Northern Arterial) had also been rejected in a
decision made under the Resource Management Act 1991 and had subsequently been
abandoned by Hastings District Council. Alternative options had to be
considered.
21. Lastly, the required
timeframe (duration) of the study and the national policy context under which
the HPTS 2004 had been prepared, were significantly changed.
NZTA view
22. In response to these
matters, NZTA had indicated that the 2004 study was no longer considered
reliable and could not be used to justify new transport projects on the
Heretaunga Plains or the future allocation of funding.
Study area
23. 
The study area is
shown on Map 1, see Attachment 1. Adjustments to the previous 2004
transportation study area were made to align the land area to that used in the
Heretaunga Plains Urban Development Study (HPUDS).
Focus of
2009 study
Aim
24. The overall aim of the 2009 study is;
“to ensure
that people and goods are moved to/from and within the study area with the
least cost and for the most benefit to the region’s economy while enhancing its
[the Heretaunga Plains] social and cultural fabric and environmental
condition”.
25. This aim and the brief
for the 2009 HPTS, while similar to that used in 2004, had a number of notable
differences.
26. In line with the government’s
clear direction that economic development was the key to all future transport
infrastructure investment, the study has placed greater weight on this aspect.
27. This did not mean that other factors were not to be
accounted for, such as environmental, societal or cultural values, but that the
outcomes of the study were to be framed firstly in economic benefit terms.
Key requirements
28. Other
major requirements for this study were:
28.1. the integration of the existing
development strategies of Hastings and Napier and future strategy contained in
HPUDS into the transportation planning process,
28.2. the remedying of the known shortcomings of
the 2004 model,
28.3. developing a method which allows for
public transport forecasting,
28.4. considering the impact of alternative
modes (walking, cycling, light rail and rail) on household travel demand and
freight transport (including transport “hubs” on the network; and lastly
28.5. providing up to date and reliable
information for inclusion into a reviewed Regional Land Transport Strategy, due
in mid 2012.
HPTS 2009
work streams
29. The study process was segmented into three major
work stages. The first stage was the model build. The second stage covered
future landuse. The third stage
was evaluative (network deficiency analysis, options identification, testing of
individual projects and packages of projects against current and future
networks / landuse).
Model Build
30. Building a model allows
us to represent in “virtual form”, the base transport network and patterns of
landuse that exist on the Heretaunga Plains. In turn this allows us to simulate traffic demand as it currently exists on the
transport network and to forecast what is likely to happen out into the
relatively distant future.
31. The ability to forecast
over long term timeframes is important due to the costs involved and lead times
required, to modify our transport network. These forecasts then enable us to
assess the condition of the transport network at any nominated point in time using set value criteria called levels of Service
(LoS). LoS enable us to
establish where and when network deficiencies (problems) exist which will need
resolution.
32. Lastly models enable us
to test the performance of various solutions which might be proposed and
ultimately to recommend at a strategic level, how the transport network should be modified and improved over time. Following is a diagrammatic representation
of the model build process.
Figure 2. -
model build process
33. Once a base network is
developed, it is calibrated against known traffic data, ensuring that the model
is accurate and reliably replicating what exists at present. This is critical
to its ability to predict future conditions with a high degree of accuracy.
34. The model at this point
in the process, contains all;
34.1. existing roads - by type such as arterial,
collector, local, rural;
34.2. intersection controls on significant roads
- traffic lights, roundabouts, stop/give way signs, left/right turn barriers;
34.3. link speeds - the pace at which traffic is
known to flow on roads;
34.4. lane capacity - how much traffic can be
carried by a road; and,
34.5. current landuse - by types such as
residential households, commercial (retail, offices, services) and industrial
(manufacturing, processing, warehousing, transport).
Landuse
35. Stage 2 involved the
allocation of future growth (of population – by households, and employment),
both numerically and spatially, within the model study area.
36. This type of forecasting
is inherently difficult. It requires both an understanding of likely growth
patterns out into the relatively distant future (2046), along with an
understanding of the form of that growth (demographics). It also relies heavily
upon gaining an insight into the Heretaunga Plains economic, social, cultural
and geographical profiles. Using these alongside the demographics, we can make
predictions, particularly economic and resource availability predictions, about
our future.
37. In order to make this
task more manageable and cost effective, the SMTG utilised work already in
place.
38. The existing growth
strategies (for commercial, industrial and residential development) of Napier
and Hastings provided the initial forecasting information required, through to
around 2020 (the exact date will depend on actual growth rates over the
period).
39. The recently completed
Heretaunga Plains Urban Development Study (HPUDS)
provided the information required for the longer term forecasts from around
2015 out to the year 2045/46. Even taking this
approach, considerable additional work had to be done. It was necessary to
reshape all those forecasts, so that they were fit to use for this study. This
largely involved disaggregating data into more detailed figures and locations.
40. This had to be done
because the combination of “the places where people live and the places where
they work”, is the key driver in predicting future trips on the network. This
holds true whether these trips are undertaken on Public Transport, by private
motor vehicle or by a passive mode (e.g. walking or cycling).
41. Heavy Commercial Vehicle
(freight) movement is less governed by this relationship. It instead represents
the connections between the sources of raw materials for processing and the
movement of finished products to markets, whether they are nationally or
internationally based.
42. This is why the study
looked closely at freight data related to the port at Napier, and trends in
production and employment type. From the data, it was clear the region’s
economic prospects and production is closely tied to agriculture, forestry and
fishing and will likely remain so.
43. Returning to trip
generation for households, Map 2 following shows the HPUDS forecast growth
areas and the distribution of new households within the northern Heretaunga
Plains (basically the land in and around Napier) for the period through to
2045.
44. The map also indicates
the primary growth locations for new employment and industrial production over
the same timeframe.
Map 2 – Northern Heretaunga Plains household and employment growth areas
45. Map 3 below similarly
shows the HPUDS distribution of new households along with the primary growth locations for employment and
industrial production, within the southern Heretaunga Plains, centred around
the Hastings urban area.
Map 3 – Southern Heretaunga Plains household and employment growth areas
46. The current Napier and
Hastings and HPUDS forecast, were adapted for use in this study and reviewed
and confirmed by Alastair Thompsen (NCC), Mark Clews (HDC) and Project Manager,
Murray Buchanan.
47. At this point in the
study process, a “calibration and validation” report was prepared by GHD. The
report set out how well the base model replicated performance on the transport
network. The assessment compares the outputs of the model against nationally
set criteria determined by NZTA in their Economic Evaluation Manual (EEM).
48. These documents were
submitted to the Peer Reviewer appointed by the SMTG, Mr Tony Penny of Traffic
Design Group, Christchurch. (Refer to paragraphs 73-77 for details).
49. Once the peer review was
completed and the landuse allocation and distributions (households and
employment) were confirmed, work on stage 3 of the study was able to progress.
Evaluation
50. An important step in
this process involved running the model to complete a deficiency analysis. This
analysis uses “levels of service (LoS)” on the network to establish the
efficiency or performance of the network.
Levels of service
51. Levels of service are
typically displayed as a range. This range generally runs from Level A through
F, with A being an almost ideal scenario, while F represents the opposite
situation; network breakdown.
52. The following figure
displays the levels of service used in this study (these are based on the
nationally accepted NZTA EEM criteria). A very brief description for each
category as used in the study is also given.
|
LOS
|
|
Driving Conditions
|
|
A
|
|
…drivers unaffected by other traffic,
free flow
|
|
B
|
|
... still have reasonable freedom
|
|
C
|
|
... comfort and convenience declines
|
|
D
|
|
... all drivers markedly restricted
|
|
E
|
|
... near capacity, little or no freedom
|
|
F
|
|
... forced flow
|
Figure 3. – Levels of service criteria
53. Within the Heretaunga
Plains study area, the daily levels of congestion across the network, are not
as significant as in the larger urban centres of New Zealand. The network
generally operates quite efficiently.
54. However capacity and
delay issues do exist on parts of the network, along with commensurate unwanted
impacts from transport on adjoining landuse activities.
55. Capacity issues are most
evident on sections of key routes (Prebensen/Hastings Havelock Road/ parts of
expressway) and unwanted impacts are best represented by the “clash” of heavy
commercial vehicles with residential living or other sensitive environments,
such as the Marine Parade.
56. When assessing levels of
service for this study, three time periods have been used. These are morning
and afternoon peaks and inter peak. Some models do calculate 24 hour results,
but this was not considered necessary for the HPTS model due to the general
lack of pressures on the network on a 24 hour a day basis i.e. we face peak
time travel issues.
57. As already noted it is
relatively rare to find conditions on the current Heretaunga Plains network,
which are worse than level of service D for sustained periods of the day, but
LoS D is likely to and does occur often at peak times. Level of service E also
occurs on parts the network at peak times under current conditions. Both of
these LoS indicate that in those areas, a response is required now.
58. Typically, as the model
predicts out into the future, a general decline in LoS values occurs. This in
the main, is driven by landuse changes (i.e. more people, more households more
employment equals more trips), although vehicle ownership rates also play a
role (more cars equals more trips).
59. Under this process,
parts of the network now operating at level C can drift down to D, while D
heads towards E. Where performance (the level of service) on the network
worsens in this way, is where some future response is required.
60. The following maps 4 and
5 show the network for Hastings and Napier in 2009 PM Peak. The extent of
routes classed as C, D and E are shown.
Map 4 Napier
- Levels of Service for 2009 PM peak
|
|
LoS Code
on Maps
Black LoS A
or B
Green LoS C
Blue LoS D
Red LoS E
No links
were coded LoS F
|
|
61. For 2009, the model
confirms the southbound lanes of Kennedy Road from Riverbend Road through to
the CBD, Hyderabad Road between Taradale Road and Georges Drive, the Expressway
northbound from Pakowhai Road to the Tutaekuri Bridge and the section of Prebensen
Drive between the Expressway and Austin Street as being under significant
pressure.
62. These are all LoS E at
peak times. This indicates that there are capacity issues and most likely
intersection delays and side friction along those roads, in short that
congestion is occurring on these routes.
63. The intersection at Lee
Road/ Meeanee Road is also LoS E. The other sections of Prebensen Drive, the
expressway between Meeanee Road and Kennedy Road (both
directions) and the Expressway northbound from Omahu Road to the Tutaekuri
Bridge, are at LoS D.
Map 5 Hastings-
Levels of service for 2009 PM peak
PM peak
|
|
LoS Code
on Maps
Black LoS A
or B
Green LoS C
Blue LoS D
Red LoS E
No links
were coded LoS F
|
|
64. In the Hastings sector,
sections of Omahu Road (both lanes) from Stortford Lodge to Wilson Road, Karamu
Road from Jervois Street to Grove Road, St Aubyn Street between Market Street
and Karamu Road and Heretaunga Street from Hastings Street to Windsor Ave
(eastbound) are LoS E.
65. LoS D is indicated along
Pakowhai Road from Farndon Road to Elwood Road (northbound), the next section
of Omahu Road, the balance of the Hastings/Havelock Road, Karamu Road, Omahu
Road and many routes in and around the Hastings CBD.
66. As an overall comment, a
slightly greater percentage of the Hastings network can currently be said to be
“at risk” as compared to Napier. This maybe a consequence of past investments
by Napier City Council into links such as Prebensen Drive and NZTA’s Urban
Expressway alignment and the historical layout and corridor widths of Hastings
and Napier being quite different.
67. For the future analysis,
the years of 2016, 2026, 2036, and 2046 were assessed, with the results for
each year being broadly compared to the model outputs for 2009. The results for
2046 alone are displayed below on maps 6 and 7 for comparison purposes.
Map 6 Napier
- Levels of Service for 2046 PM peak
|
|
LoS Code
on Maps
Black LoS A
or B
Green LoS C
Blue LoS D
Red LoS E
No links
were coded LoS F
|
|
Map 7 Hastings-
Levels of service for 2046 PM peak
|
|
LoS Code
on Maps
Black LoS A
or B
Green LoS C
Blue LoS D
Red LoS E
No links
were coded LoS F
|
|
68. These 2046 LoS plots,
clearly show those parts of the network likely to be under pressure and in need
of modification or improvement. These plots reflect the results for 2009, with
all the “problem areas” indentified in 2009, showing a significant
deterioration in performance.
69. Areas that were acceptable
in 2009 (at LoS C) have, in the main part, also declined and new failures on
other parts of the network have therefore become evident.
70. While these plots
present network conditions in a relatively simple manner (by colour coding),
the model generates actual traffic flow counts for each link along with actual
intersection volumes and delay calculations.
71. This data enables,
especially when assessing future options, key information to be fed into the
calculation of initial benefit cost ratios (BCR) for any projects which may
address the LoS problems shown in the plots.
72. It also enables the
assessment of changes in traffic volumes (total) and in flows on particular
links (i.e. whether traffic is being induced by transfer from one route to another)
or new traffic (trips) is being generated. This is an important factor when
assessing the effectiveness of any solution.
Independent
Peer Review
73. The base model and
calibration report (refer to paragraph 52), under NZTA policy, were required to
be independently peer reviewed. The peer reviewer independently assesses the
structure of the model and its operational parameters, to ensure that the model
is appropriate and consistent with nationally accepted methodologies.
74. Appropriateness in this
context is determined by comparing the model against its purpose (and this is
set out in the brief) to determine whether it was “fit for purpose”.
75. Mr Tony Penny of Traffic
Design Group (TDG) Christchurch was appointed as peer reviewer. Mr Penny is an
acknowledged and nationally recognised expert in this field. He (and his team)
undertook a rigorous and lengthy verification check of the model which resulted
in a number of changes in the way the model had been setup. The most
significant aspect altered was the way that trips were allocated within the
model.
76. The model now assigns
person trips as opposed to vehicle trips. The Peer Reviewer considered this an important distinction and
a necessary change to ensure that the models predictive capacity was accurate,
particularly when considering the impact of public transport. A number of other
changes were also made.
77. At the end of this
process the peer reviewer formally advised that the base model was in his
opinion, “fit for purpose”.
Adjustments
made to model
78. As part of an internal
check process initiated by the SMTG, a number of discrepancies in the numerical
allocation and location assignments were found relating to employment growth
(not households), which had to be corrected (that is employment growth had
inadvertently been placed into wrong traffic zones).
79. These corrections
related to the growth levels allocated to Central Hastings (too high) and
Tomoana / Whakatu industrial areas (too low) in Hastings, and to the Onekawa
(too high) and LFR / technology park areas (too low) within Napier.
80. These re-assignments
were completed by Mark Clews for the Hastings localities and Murray Buchanan /
Jon Schwass for the Napier locations. These changes were signed off by the SMTG
and all members of the group are now confident that all landuse forecasts are
as robust as they can be.
81. In addition a number of
other potential issues were raised at the SMTG in consequence of an external
review commissioned by NCC. Most of the issues raised were dealt with by making
small adjustments to the model (e.g. correcting links and centroid placements).
82. Among the more important
issues raised were the way the model treated intersections, the underlying
formula for intersection delays, dealing with induced
traffic, consistency with EEM criteria, predictive accuracy and acceptance of the model by NZTA.
83. SMTG agreed that a brief
be prepared seeking advice from NZTA on these latter matters. NZTA agreed to this additional “check” taking place and Mr Tony
Brennand, an expert on the Trips software, was nominated to carry out the
assessment for NZTA (he is based in NZTA Wellington).
84. The outcome was that,
after making the changes to correct various minor aspects, Mr Brennand has confirmed that from NZTA’s
perspective the model outputs were “fit for purpose at a strategic level”.
85. In addition GHD have continued to review and
refine various elements of the model and have completed one further review.
This found that a number of intersection calculations (trip numbers) were not
consistent with the model graphical outputs.
86. This had affected the
way the model was predicting flows at a couple of key intersections, the most
notable affected intersection being at the Pakowhai / Expressway/ Links Road
junction.
87. This has resulted in revisions to the initial BCR
figures produced, with some changing quite significantly. The most affected BCR
figures were on the proposed Whakatu arterial link and Expressway projects.
88. This issue has now also
been resolved under the direction of a senior modeller from GHD’s Melbourne office. This revision has also
been referred by GHD to Mr Tony Penny of TDG for an independent check and sign
off, which has now been given (this was done to maintain the validity of the
Peer Review sign off).
89. In consequence of the Peer Review, the further
adjustments made to the landuse, Mr Brennands NZTA review, and the GHD review,
the SMTG consider that the model is robust and reliable and the predictive
outputs of the model provide a fair means for assessing and comparing changes
and upgrades to the network on a sub-regional strategic basis (i.e. across the
Heretaunga Plains).
Other key
inputs to options
90. While GHD and the SMTG
used the model to identify problems and to gain an insight into solutions to
recommend, other sources of information where accessed. These included previous studies, territorial authority
plans, national documents (the GPS, IRS) and most importantly, stakeholders.
Stakeholders
91. At the commencement of the study, GHD undertook an
extensive series of stakeholder interviews. These focussed on producers reliant
on the transport network to access and despatch primary product, processors and
manufacturers and importantly transport service and network providers, although
a range of other stakeholders were also engaged with, including regulators.
92. Feedback from these
parties was used to identify what they saw as the main transport barriers to
their businesses, possible solutions to remove these and to refine solutions already identified, which might
also address their concerns.
93. Stakeholder preferences
were also identified in terms of the types of solution (e.g. road versus rail),
timing of improvements, the priority and importance of projects, this latter
point usually being expressed in economic terms, although issues around what
they saw as “avoidance” of environmental concerns were raised.
94. At the most basic level,
these stakeholders wanted freight transport addressed and this was generally
expressed in the following terms;
“the provision of
fast, efficient routes into industrial areas where the processing of raw
materials is taking place, and then fast and efficient access to the port at
Napier and international markets or out of the region to markets in other parts
of New Zealand”.
95. In terms of
environmental concerns, many stakeholders couched these quite simply as “keeping trucks off the parade and out
of residential areas”. They did not want their
industry or sector to be thought of as environmentally unaware and wanted to
avoid future conflict between production activities and the community.
Heavy commercial vehicles
96. Following on from the
stakeholder feedback, which reinforced a key study aim “of addressing freight movement over the
Heretaunga Plains”, the recently completed HPMV
study has also been used to inform the work undertaken on freight.
97. In analysing freight
movements on the Heretaunga Plains, opportunities for HPMV were included in the options evaluated. GHD were
aware of the funding constraints in the region over the next few years and so
have had a particular focus on a number of key opportunities to address freight
transport and on obtaining the best economic return for any transport
investments in line with the GPS.
98. More extensive analysis
has therefore been undertaken on the potential and sought after (by industry)
HPMV routes, these in the main being Prebensen Drive, the expressway (Pakowhai interchange options) and the
Whakatu Arterial Link (including the outlet from Whakatu to Pakowhai Road and
possible cross country connection to State Highway 2 at the Napier Road
intersection).
Projects for
investigation
99. In response, the SMTG
initially drew up a list of 33 projects3 to investigate as possible
solutions (see attachment 1). These were incorporated into the model as single
projects (i.e. each project was tested on a standalone basis to establish an
indicative project benefit cost ratio (BCR) and first year rate of return
(FRR)).
100. While this list focussed on the road network, underlying it, were other
“in built” strategic responses. Decisions were made relating to other modes as
part of this process.
Note 3 - Actual number of different projects was
less, as a number of the projects involved multiple options to investigate.
101. For instance it was
decided that the “forced” transfer of 5% of all trips to public transport and passive modes (current use
sits at >1 to <2%) should occur, this reducing the number of trips to be
accommodated on the road network (which are currently around 200 million per
year [2046 this figure will be 260 to 280 million] or at least 5 trips per day
for every person).
102. As well, investigations into the development of
a freight transfer depot, rail and light rail / tramcar passenger services, the
extension of walking and cycling and using travel demand management
interventions (TDM) such as pricing of parking, were also progressed.
103. Light rail and tramcar
systems were assessed for both Napier and Hastings. Tramcar systems were seen
as the more economic of the two options so were subject to the more detailed assessment.
104. In Hastings the rail line
to Havelock North was estimated to cost around $31 million to develop. That
figure did not include rolling stock and other associated capital costs which
took the total to around $43 million. Running costs were estimated to be around
$420,000 per annum. Fare revenue was estimated at around $252,000 per annum on
the basis of 40,000 commuter trips per annum being made and an average fare of
$2.15 per trip. Consequently the BCR was assessed as 0.33 which is considered
economically ineffective.
105. The Napier analysis gave a similar result for
the CBD to Taradale option.
106. The freight distribution
centre(s) or “intermediary freight facilities”, that is between freight sources
and the Port at Napier, were also assessed. One site was at Whakatu and the other off Prebensen Drive. This showed that
there were some benefits from establishing such a centre but also potentially
notable drawbacks and costs relating to rail crossings. Three rail crossings
would require grade separation with costs in the order of $5 – 10 million per
site, several other sites required improvements in the order of $250,000 per
site. No definitive conclusion is made other than the sites should be further
investigated by the Port if the use of such sites were commercially viable. It
is recommended that the study partners work with the Port towards obtaining
operational rights for the rail link from Whakatu to the Port from Kiwi Rail.
107. It was however, clear
that even with all those interventions (assuming such interventions were in place), improvements in the road network were required, if
current levels of service (economic efficiency) across the network were to be
maintained for the community and the adverse impacts of traffic on people and
communities minimised.
108. While over half of the 33
projects initially investigated, were uneconomic to progress within the next ten years, many were considered viable and
necessary to progress to the next stage of implementation.
109. In particular the
connected works of the Whakatu arterial link, improvements to the expressway at
its junction with Pakowhai Road and Prebensen Drive from the expressway to the
Hyderabad intersection (including the roundabout), were all found to be highly
beneficial to the network in the immediate to medium term (next 3-5 years),
especially for freight management.
110. Other projects which
produced significant benefits included the Southern Arterial Route (from
Havelock to Hastings to Irongate on south side of Hastings), capacity improvements on the Havelock Road-St Aubyn
Street through to Nelson Street and the Northeastern Connector in Hastings
from Evenden Road to Karamu Road (a section of the previously proposed but
abandoned NAR).
111. Outside of those
projects, there were other projects which gain sound BCR’s over time and which
could well be viable and necessary to progress in later years of the study
period (2026-2046). These included the Southern Arterial Route (from Havelock
to Hastings to Irongate Road in the south side of Hastings), and the provision
of additional capacity in Kennedy Road between Riverbend Road and the CBD.
Staging
investigations
112. Of those projects the
Whakatu arterial link, the “connecting” expressway works, and Prebensen Drive were chosen for “incremental analysis”
or staged analysis. This focuses on a chosen corridor and any projects that
fall within the corridor and stages them in various combinations to get the
best mix in terms of which goes first and when.
113. It also allows the BCR to
be calculated on the combined works and then compared against the outcome for each staging tested. This work
has shown that there is a small advantage in staging the Pakowhai intersection
upgrade first, Whakatu Arterial Link second and the Prebensen Drive upgrade
third.
114. However that advantage,
as noted, is not major, as all these works generate considerable benefits
individually or in combination, regardless of which proceeds first. In reality
funding availability is the biggest potential constraint for any of these
works, not the works contribution to the efficiency of the network or its
timing.
115. In all cases the BCR’s are very sound (in the range
of 4.2 to 4.9 for 2012/16/20) as can be seen in the figure 4 below.
|
Route
sequence
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BCR
2012/16/20
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Preb-Pak-Wh
|
4.3
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Preb-Wh-Pak
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4.2
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|
Wh-Pak-Preb
|
4.7
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Wh-Preb-Pak
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4.4
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Pak-Preb-Wh
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4.6
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Pak-Wh-Preb
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4.9
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Figure 4 –
Staging of key major projects
116. Other staging
investigations for projects have been carried out in additional to those shown above, as they were promising. These are in
the vicinity of the Hastings urban centres and included evaluating two options
for the broader Hastings to Havelock corridor.
117. These were the southern
arterial route (SAR) and Havelock Road (HR) from the Hastings CBD to Havelock
North, along with parts of the “rejected” corridor for the Northern Arterial
Route (NAR), now known as the Northeastern Connector (NC) between the
expressway and Karamu Road). The results of this additional staging analysis
are shown in figure 5 below.
|
Route
sequence
|
BCR
2012/16/20
|
|
Wh-Pak-Preb-HR
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5.8
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WH-Pak-Preb-NC
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5.4
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Wh-Pak-Preb-SAR
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4.6
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Figure 5 –
Testing of additional key major projects
118. The Havelock Road option
tested required extensive removal of streetside parking to provide additional
traffic lanes. While this achieved a high BCR, it is not considered a viable
option due to the economic and environmental disadvantages it would generate
for adjoining property and business owners. A more socially acceptable solution
is required and further investigation is needed by HDC. Initially this would
mean looking at travel demand management and public transit options.
119. The Northeastern
Collector, in the staging analysis ranks slightly ahead of the Southern
Arterial Route option.
120. The rest of the
individual projects, have not been subject to detailed staging analysis, as
their base BCR values mean they are not likely to proceed within the reasonably
foreseeable future (next 10 years).
121. In the final report,
however, an indicative timeline for investigation (and subject to feasibility)
implementation of these projects has been developed, going out to the year
2046.
Structure of
study findings
122. During the preparation of
the final study document, the SMTG considered various options proposed by GHD.
It was decided that the outcomes specified in the brief for the study should be
modified. This would enable it to reflect decisions taken by the RTC, while the
study was progressing, and new advice from NZTA that the study needed to
recommend a strategy if NZTA were to adopt it.
123. Essentially this meant
the study would be finalised in the form of a “strategy” for the Heretaunga
Plains transport network which “contained” a programme of works, rather than as
a technical document with a recommended programme of works for consideration
and possible inclusion into the Regional Land Transport Strategy.
124. The strategic approach
was to be closely aligned to the programme of works which the technical work
supported and the Regional Land Transport Programme already considered and
adopted by the RTC.
Strategic
context
125. The RTC adopted the
strategic approach set out in reports dated November and December 2011. The
strategic approach was a result of bringing together the works programmes of
all the Approved Organisations within Hawke’s Bay, inputs from the Wider Region
Transport Study and advice on the programme of works which the HPTS had
developed and supported.
126. In general there was very
close alignment of the projects put forward in the RLTP and the strategic
issues and recommendations identified in the two regional transportation
studies.
127. In undertaking this work
GHD has been aware of the limited R funds available to the region in the short
term and the likely ongoing “N” funding constraints, given the national
economic position and the focus on Roads of National Significance (RoNS) by the
government.
128. As such GHD have adopted
the need to improve productivity and economic efficiency, along with the
effectiveness and safety, of the regions transport system as key elements in
any strategy, as these are the means of accessing “N” funds. This was required
in the brief in any event as GHD were always required to ensure that whatever
programme (projects) was recommended, had to align with the Investment and
Revenue Strategy (IRS) issued by NZTA.
129. GHD have also ensured
that the recommended strategy and programme, will fully integrate future and
current landuse and transport in the region, while “reaping” the best economic,
effectiveness and safety returns from the limited “R” funds available and
future “N” funds, this also being an overarching strategic principle.
130. Next GHD have also
considered and ensured that the previous strategic focus within the region
flowing from earlier studies (e.g. the HPTS 2004 and Rural Transport Study
2005) and the 2009-12 RLTP, which all sought to resolve long term freight
transport issues within the region was accounted for.
131. Lastly GHD has taken
account of existing strategic development plans of the regions councils where
they relate to and affect the provision of transport infrastructure,
particularly in Napier in respect to Prebensen Drive and associated works
required along that key freight route to and from the Port of Napier.
Strategic
focus
132. Within the study area for
the HPTS, GHD has focussed on what was considered the single most important
strategic issue facing the region;
“improving the economic efficiency, effectiveness and safety of the
routes servicing the region’s economic production centres and in particular the
transport routes to and from the Port of Napier”.
133. In essence projects have
been prioritised to complete key individual elements of the strategic roading network, while at the same
time examining alternative solutions to issues, such as freight distribution
centres, public transport and walking and cycling.
134. This was done as it was considered that a broad
approach would enable the best long term investment to be identified and
assessed along with the traditional improvements/additions to the road network.
135. Even so, many projects
that are not strategically linked, were considered and future implementation may occur as they gain
currency and/or funding becomes available, through new “N” funding,
Programme -
Strategic projects
136. The key projects recommended in the programme, all
follow logically on from the analysis undertaken and strategic approach taken.
137. They reinforce the
regions strong focus on achieving the widest possible range of outcomes (i.e. economic efficiency,
effectiveness and safety) but in particular economic development. They all
ensure efficient and effective transport links to connect production centres
and sources of raw material supplies and enable the export and import of raw
materials and finished goods through the port at Napier.
138. Reflecting recent RTC reports, these top projects have been prioritised by GHD
on the basis of travel from “source to destination” (i.e. hinterland to port),
rather than more randomly and should all be viewed as strategic in nature.
Strategic
programme
139. The following summary of
projects forms the core part of the programme proposed by GHD in the study. These effectively form the
implementation component of the strategy contained in the study.
139.1. Short term (2012 – 2017)
· Whakatu Arterial
Link: Investigate, design and construct
· Expressway/Pakowhai:
Investigate, design and construct “at grade” solution with future proofing for
grade separation.
· Prebensen Drive:
Complete design. Construct 4 laning and Ford Road extension
· Freight Distribution
Centre: investigate the Freight Distribution Centre, in particular the
feasibility of The Port of Napier being able to operate the rail link from
Whakatu to the Port.
· Havelock Road Public
Transport Intervention: Consider trial of improved public transport system
including connections within Havelock North and travel demand initiatives.
· Kennedy Road:
Investigate options for achieving additional capacity on Kennedy Road i.e. lane
management systems (2+1 tidal lanes) and travel demand measures.
· Northeastern
Connector: Undertake detailed investigation for the Expressway to Karamu Road.
· Havelock Road –
Implement HDC’s travel demand initiatives and corridor plan.
· Implement a more
robust traffic counting programme to assist future studies.
139.2. Medium Term (2018 – 2026)
· Undertake household
and origin destination surveys to assist future studies.
· Havelock Road:
Monitor and review the impact of public transport trial and travel demand
measures. Continue to implement HDC’s corridor plan.
· Public transport -
Results of Havelock North trial are reviewed and if positive consideration
should be given to rolling out more enhanced services to areas such as Taradale
and Flaxmere.
· St Aubyn Street
Corridor - Undertake corridor study to consider capacity improvements and
alternatives such as clearways, lane management systems and travel demand.
· Awatoto Expressway
Corridor: Undertake corridor study and investigation.
· Northeastern
Connector: Design and construct from Pakowhai Road to Karamu Road.
· Southern Arterial:
Undertake detailed investigation on completion of Whakatu Arterial Link and
Expressway/Pakowhai intersection improvements.
· Karamu Gateway:
Undertake corridor study to consider capacity improvements such as clearways,
lane management systems and travel demand.
· Expressway/Pakowhai –
Review performance of “at grade” solution and investigate and design grade
separated solution, if required.
· Expressway Corridor:
Undertake investigation options for increased capacity or lane management
systems.
139.3. Long term (2027 – 2046)
· Expressway/Pakowhai –
Implement grade separation solution if at grade solution has reached capacity.
· Havelock Road –
continue to implement HDC’s corridor plan.
· St Aubyn Street
Corridor: Implement preferred solution from corridor study.
· Awatoto Expressway:
Implement preferred solution from corridor study.
· Southern Arterial:
Design and construct if required with on completion of other network
improvements.
· Karamu Gateway:
Implement preferred solution from corridor study.
· Expressway Corridor:
Implement options for increased capacity or lane management systems.
Investigate Tutaekuri Bridge duplication.
Decision
Making Process
140. Council is required to
make a decision in accordance with the requirements of the Local Government Act
2002 (the Act). Staff have assessed the requirements contained in Part 6 Sub
Part 1 of the Act in relation to this item and have concluded the following:
140.1. The decision does
not significantly alter the service provision or affect a strategic asset.
140.2. The use of the
special consultative procedure is not prescribed by legislation fro the
adoption of a technical study. The Heretaunga Plains Transportation Study does
not have any statutory standing, it provides technical recommendations that
will be considered as part of the special consultative process for the adoption
of the Regional Land Transport Strategy and Regional Land Transport Programme.
140.3. The decision does
not fall within the definition of Council’s policy on significance.
140.4. Options that have
been considered include adoption of the HPTS and the recommendations included
in the Study or to not adopt some or part of the HPTS and its recommendations.
140.5. The decision is not
inconsistent with an existing policy or plan.
140.6. Given the nature and
significance of the issue to be considered and decided, and also the persons
likely to be affected by, or have an interest in the decisions made, Council
can exercise its discretion and make a decision without consulting directly
with the community or others having an interest in the decision.
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RECOMMENDATIONS
That the
Regional Transport Committee:
1. Agrees that the decisions to be made
are not significant under the criteria contained in Council’s adopted policy
on significance and that Council can exercise its discretion under Sections
79(1)(a) and 82(3) of the Local Government Act 2002 and make decisions on
this issue without conferring directly with the community and persons likely
to be affected by or to have an interest in the decision due to the nature and significance of the issue to be considered
and decided.
2. Adopt the Heretaunga Plains Transportation Study and the
strategy it contains, noting that the technical recommendations will be used to
inform the key projects included in the Regional Land Transport Programme.
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pp
M.J.Buchanan
BESL
CONSULTANCY
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Carol Gilbertson
Transport
Manager
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Attachment/s
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1View
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Project
Overview Map
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