Auckland Draft Regional Land Transport Plan 2015–2025
NZ Transport Agency, Kiwi Rail, Auckland Transport
Adapted in accordance with Section 69 of the Copyright Act 1994 by the Royal New Zealand Foundation of the Blind, for the sole use of persons who have a print disability.
Produced 2015 by Accessible Format Production, Blind Foundation, Auckland, New Zealand
Transcriber's Note
Graphics have been omitted in this e-text edition. In some instances, figures have been described. In place of maps is information on how to reach Auckland Transport for further information.
Notes from the e-text transcriber have been prefaced by "tn" (transcriber's note). In tables where cells have been left blank, the word "blank" has been added. Where heading levels are missing in the print edition, they have been added by the transcriber.
Pages 2–3
Introduction from the Chairman
Auckland has made gains in recent years in starting to seriously address traffic congestion and making its public transport system a more desirable option for getting around our city. Recent improvements extend also to other core services, which include parking and transit safety.
The compelling narrative for the next ten years in Auckland is one of growth and how we appropriately respond to that growth. Auckland is already New Zealand's largest city by far and also the powerhouse of its economy. With Auckland set to grow by almost 250,000 people in the next ten years, the transport needs of its commuters, businesses, students and visitors will grow in parallel.
A confounding factor, but one that does need to be confronted is that the Long Term Plan (the sister document to this Regional Land Transport Plan) paints a somewhat bleak picture, one in which Aucklanders get to choose between poor transport outcomes or paying an extra $300 million a year.
The challenges set out in this Regional Land Transport Plan are:
- We need to be bold—as an exemplar, introduction of the electric trains has vastly improved the customer experience for public transport at the same time as it helping keep cars off the road. As with the introduction of electric trains, the City Rail Link will address many issues at once, further helping to unlock the potential of Auckland
- We need to be innovative—yesterday's thinking will not solve tomorrow's problems
- We need to ruthlessly drive efficiencies to get the most from every dollar
- KiwiRail, the New Zealand Transport Agency and Auckland Transport need to work even more closely and collaboratively together, pooling our talents and resources
- We need to put Aucklanders, our customers, at the heart of every decision
Even in a world of limited rates increase, we are committed to rolling out the rapid and frequent transit network through improved timetables, adding more bus lanes, a fairer fare system and progressing key projects for improving traffic flows and providing essential infrastructure.
Auckland has a choice to make—a thoughtful and reflective approach is required in order to capture, rather than undermine, the future of transport in Auckland.
Dr Lester Levy, CNZM
Chairman Regional Transport Committee
Pages 4–5
Table of Contents
1. Executive Summary: Page 6
2. Consultation: Page 12
3. Context: Page 16
4. The Process Used to Develop this RLTP: Page 21
5. Overview: Page 36
6. Public Transport: Page 40
7. Arterial and Local Roads: Page 54
8. State Highways: Page 66
9. Supporting Auckland's Growth and Intensification: Page 70
10. Walking, Cycling and Travel Demand Management: Page 73
11. Safety: Page 82
12. Parking and Enforcement: Page 86
13. Transport Planning: Page 88
14. Monitoring and Review: Page 89
15. An Alternative Transport Investment Package for Auckland: Page 91
16. Prioritised List of Projects: Page 105
Appendix 1: Legislative Requirements: Page 112
Appendix 2: Prioritisation Methodology: Page 117
Appendix 3: Significance Policy: Page 124
Glossary: Page 126
Bibliography: Page 127
Pages 6–7
1. Executive Summary
One thing is certain about Auckland's future—Auckland is going to grow. Its population will grow and with it its economy and the expectations of its many ethnic groups and its businesses. Auckland's population grew by the equivalent of Tauranga between 2006 and 2013 and this rate of growth will increase. Auckland's economy will grow faster than the rest of New Zealand and the performance of key infrastructure, such as its airport and port will be a key determinant of New Zealand's growth potential. Visitor numbers will grow significantly and almost half of all tertiary students in New Zealand will study in Auckland.
The Regional Land Transport Plan (RLTP) forms part of the National Land Transport Programme and represents the combined intentions of the New Zealand Transport Agency, Auckland Transport and KiwiRail to respond to growth and other challenges facing Auckland in the next ten years.
The Plan builds on a strong base:
- Recent and on-going service improvements such as the Western Ring Road, new electric trains and the progressive roll out of the Auckland Manukau Eastern Transport Initiative (AMETI) programme will improve Auckland's liveability for commuters and aid the movement of freight
- There is a high degree of certainty on which to base planning. The Government Policy Statement for Transport has been confirmed, there is an Auckland Plan with considerable discussion of transport and growth matters and the Board of Auckland Transport has recently set its strategic priorities. The one remaining area of uncertainty is in the future direction of rail. This is currently being addressed and will be resolved in time to permit incorporation of decisions into the final RLTP
- Infrastructure already in place is being maintained to an adequate standard with relatively small backlogs of deferred maintenance
- The public is shifting to public transport in record numbers, relieving road congestion and allowing population growth to be accommodated without a proportional need to increase the road network
- Auckland's walking and cycling network is undergoing rapid development with a commitment to continue to extend this
This RLTP highlights the many things the three agencies need to deliver in order to achieve Auckland's potential. With restrained funding, the way in which initiatives are prioritised and the integration of the whole plan are vital to success. This is why your input is needed to ensure we have our priorities right. While the focus is often on capital projects, many initiatives designed to achieve quality of customer service, safety, environmental improvement, parking choices and timeliness of public transport are not based solely on capital projects. Your feedback on other ways we can improve delivery of transport outcomes is also needed.
The currently funded plan will deliver:
- Completion of those projects already underway including the Western Ring Road Improvements including Waterview Tunnel, cycleways at Dominion Road, Old Mangere Bridge and roading projects in the North West transformational area and completion of the Glenvar Road project in Long Bay
- The City Rail Link, with design completed in the next three years and construction of the Britomart to Albert Street tunnel
- Puhoi to Warkworth highway commencement of construction in 2018/19
- Public transport patronage reaching 100 million passenger journeys per annum by 2021
- Significant progress on public transport improvements including integrated fares, the integrated network and addressing looming bus congestion
- 40% of the Auckland Cycle network completed (from 33% now)
Page 8
NZTA are proposing to spend $2.2 billion in the first three years of the RLTP and $3.8 billion over the ten year period, with the major projects being:
- completion of the Western Ring Route in 2021
- additional lanes at bottlenecks for SH1 (from Greville Road in the north, and from Takanini in the south)
- Puhoi to Warkworth new motorway
Unfortunately, some of the benefits of this programme of improvements will be unrealised as complementary road and public transport programmes are not able to happen. For example, NZTA is spending $1.4 billion on the Waterview Connection, the last missing link in Auckland's motorway network, and the widening of the North Western motorway. If Auckland Transport is not able to carry out improvements to Lincoln and Te Atatu Roads due to budget constraints, then many of the benefits of the state highway improvements will be lost. The result is likely to be queuing on the new widened motorway as the increased traffic will not be able to exit the motorway any faster.
Auckland Council's draft Long Term Plan (LTP) includes significantly reduced funding for improvements to Auckland's roads and public transport. Consequently, only the highest priority projects will proceed. This will leave a large number of important projects deferred until additional funding becomes available.
Graph:
Figure 1: Funding available to Auckland Transport for network improvements (excluding City Rail Link)
tn: Graph omitted.
End Graph.
Public transport use has doubled in the last 20 years, which has helped keep a lid on road congestion. These gains are now at risk and the transformational improvements which we have been making to rail services and planned to make to bus services are now expected five or more years away. The need to prioritise the rapid and high frequency public transport network remains a priority.
If funding proposed in the LTP goes ahead, once essential renewals, commitments and operational requirements are taken into account, Auckland Transport will not be able to start any major new projects until 2021.
Rail infrastructure investment is also needed to enable increased levels of freight to be moved, to enable the passenger and freight rail network to work as one, and to address safety issues at level crossings.
With proposed Council funding, bus interchanges and rail station upgrades will be put on hold reducing our ability to increase patronage and reduce congestion. Some projects are essential to the introduction of the New Network. The New Network involves running some buses to train stations as opposed to going all the way into the city, in order that the saved bus kilometres can be reinvested in more services. The net result will be quicker journeys on more frequent public transport, but more people will need to transfer between services to complete their journeys. However without building interchange stations such as proposed at Otahuhu, the New Network cannot be fully implemented.
Page 9
Auckland Transport's cycling, walking and safety improvements will stall for at least three years.
Auckland Transport will not be able to properly maintain our assets as renewals spending will be reduced and in the first three years will be $ 89 million less than recommended. Although the cuts have been made with care so that safety is not compromised this level of spending will lead to a renewals backlog of over $1 billion at the end of ten years.
The City Rail Link will commence in the first three years of this plan and will be delivered in the early 2020s provided promised Government funding is forthcoming. This is an example of the sort of bold project needed to unlock Auckland's potential. Other projects likely to be needed sooner rather than later include light rail. Population challenges cannot be met by adding more buses to an already congested network of arterial roads.
NZTA, KiwiRail and Auckland Transport are key to the success of Auckland and need to continue to innovate, become more efficient and work better with stakeholders and each other. Government and Ratepayer funding cannot be the sole solution to an optimised network and excellent customer experience. Transport delivery agencies need creative, adaptive and innovative implementation.
Alternative sources of funding and delivery need to be explored as part of delivering a sustainable funding model.
Surplus assets need to be realised in order to release funding for higher priority investment.
How we prioritise funding for both capital projects and operational delivery is important and is an area where we need the public's input. As additional funding becomes available, the priority for additional investment will determine what else is possible.
The consultation process around this RLTP is the opportunity for communities and delivery agencies to get united around a clear plan and a bold future.
1.1 How AT prioritised projects to optimise the funding available
1.1.1 Prioritisation Methodology
There are always more transport projects needed than there is money to fund them, so a critical part of preparing the RLTP is prioritising all projects proposed by Auckland Transport and NZTA's Highway and Network Operations division.
The prioritisation process evaluated projects developed by legacy councils, to enable a fair assessment of the priority of these projects relative to new proposals developed by Auckland Transport. In total, around 1,000 projects were assessed.
The prioritisation process works like a sieve, grading each project according to strategic fit, effectiveness and efficiency, only the very best schemes pass through all the prioritisation sieving layers to be entered into the programme.
Page 10
Diagram:
Figure 2: Auckland Transport's prioritisation process
tn: Diagram omitted.
End Diagram.
The prioritisation process shown in Figure 2 describes a series of filters which were used in the development and assessment of different investment scenarios.
Details of how projects have been prioritised are set out below:
1.1.2 Non-discretionary activities
The following non-discretionary activities are included in the programme without being prioritised:
- Contractual commitments such as the purchase of electric trains, or the completion of projects already under construction.
- Maintaining the existing level of public transport service (but note that significant changes to existing services are proposed in the PT New Network)
- Maintenance and renewals of local roads and state highways
- Minor Safety projects, Local Board improvements and replacement of essential assets.
Auckland Transport chooses to treat these activities as essential, funding them before all other projects which are considered discretionary. However they are not exempt from scrutiny: in preparing this RLTP Auckland Transport has confirmed that these non-discretionary activities are being delivered efficiently and effectively, and represent value for money.
Page 11
There will be another round of prioritisation and ranking of projects for the next RLTP in 2018, consequently this plan considers the first 3 years of the programme in greatest detail. Given the constrained funding available, once non-discretionary activities are funded, there is very little additional funding in the first 3 years of the plan for the construction of discretionary projects.
The prioritisation process considers the merits of projects according to three criteria. Strategic fit, effectiveness and efficiency. These are discussed further in Section 4.5—Prioritisation.
The prioritised list is then used to develop a strategically aligned, optimised programme that is deliverable and represents value for money.
The results of prioritisation can be found in Chapter 16 in the ranked list of projects.
Page 12
2. Consultation
Auckland Transport has worked closely with Auckland Council and with the NZ Transport Agency throughout the development of this draft Regional Land Transport Plan. This draft Plan also reflects input from the Governing Body of Auckland Council and from each of the Local Boards, as well as the views of iwi and transport stakeholder representatives, expressed at pre-consultation meetings held between May and September 2014.
This draft RLTP is available at ; or to be sent a paper copy please email us at or phone 09 355 3553.
Now it is time to hear from you through the submissions process. Auckland Council and Auckland Transport are consulting jointly on this RLTP and the Council Long Term Plan. In particular, Auckland Transport wants your views on the following key questions:
- Do you agree with the criteria we have used for prioritising projects, and the way the methodology has been applied? (See Chapter 4 for details of the prioritisation methodology)
- Do you agree with the way we have prioritised projects with the constrained funding available? (See Chapters 4 and 16 for details of projects included in the ten year programme)
- Do you agree with the way we have prioritised other projects, which would be brought into the programme if more funding was available? (See Chapter 15)
You are also encouraged to have your say about Auckland Council's draft Long Term Plan, including the level of funding for Transport. For more information on the Long Term Plan, visit shapeauckland.co.nz or phone Auckland Council on (09) 301 0101.
2.1 How to have your say
Please take the time to let us know what you think of this draft Regional Land Transport Plan.
Auckland Council and Auckland Transport will work together to ensure that all issues are considered by the appropriate agency and taken into account in the development of the appropriate final plan. You have a choice of options to let us know your views on this RLTP and on Auckland Council's Long Term Plan: