Integrated Transport Assessment

Transcription

1 AUCKLAND REGIONAL TRANSPORT AUTHORITY Integrated Transport Assessment Guidelines Integrated Transport Assessment & Supplementary Documents Guidelines & Supplementary Documents - October 2007

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3 Integrated Transport Assessment Guidelines & Supplementary Documents Acknowledgements... ii Feedback... iii Executive Summary... iv Integrated Transport Assessment Guidelines... A Supplementary Documents: Assessing trip and traffic generation... B Achieving Multi-modal Developments... C Travel Management Association Guidelines... D Regional Cycle Parking Guidelines... E i

4 Acknowledgements ARTA acknowledges the input and expertise from a wide range of organisations and consultants in the development of the Integrated Transport Assessment and Supplementary Guidelines. Specifically ARTA would like to acknowledge the contribution from Auckland Regional Council officers in the development of the Integrated Transport Assessment Guidelines; Flow Transportation Specialists assistance with the development of the Guidance Note for Assessing Trip and Traffic Generation and the Guidance Note for Achieving Multi-modal Developments; Urban Trans and Flow Transportation Specialists for the Travel Management Association Guidelines; and Opus International Consultants for the Regional Bicycle Parking Guidelines. The Integrated Transport Assessment Guidelines were developed following a process of consultation with key stakeholders. It is acknowledged that while a number of stakeholders have had input into the Supplementary Guidelines they have not been through a formal consultation process. ii

5 Feedback ARTA would welcome feedback from stakeholders as they apply the guidelines. As we learn from the application of the guidelines, we will append and improve through a process of regular reviews and updates. ARTA would particularly welcome feedback on any aspects of the guidelines that prove difficult to apply, or may lead to unintended outcomes so that these can be constantly improved and updated. Any feedback should be sent to: ITAGuidelines@arta.co.nz iii

6 Executive Summary The following guidelines and supplementary Integrated Transport Assessment documents have been developed by ARTA in conjunction with a number of stakeholders and consultants to provide regional guidance on undertaking a range of assessments and implementing well integrated multi-modal developments throughout the Auckland region. These documents have been developed to provide guidance and a range of tools that can be used by a number of transport agencies, councils, consultants and developers. The first part of the document provides guidelines for Integrated Transport Assessments (ITA) which is a requirement of the Regional Policy Statement (RPS) Plan Change 6, Method An ITA is the initial assessment undertaken when considering the transport implications of a proposal. When undertaking an ITA there are a range of tools that can be used to mitigate some of the adverse effects of transport and create a multi-modal development with accessibility for all users. As such ARTA has developed a range of supplementary documents to assist in considering how different transport modes can be incorporated into a development or a how to set up a range of management frameworks to address immediate and long-term transport effects. It is acknowledged that there is a wide range of assessment tools used internationally for assessing transport and these guidelines draw on much of that information, however have been reshaped to assist in the Auckland context. It is expected that these guidelines will be constantly reviewed and refined based on new initiatives and opportunities that will continue to be tried and tested as we move forward into a new transport era of land use and transport integration, and successful multi-modal developments. Feedback from those using the guidelines is welcomed to ensure that the transport network is optimised, improved and accessible to all creating a world class transport system that makes Auckland an even better place to live, work and play both now and in the future. (ARTA s Mission ARTA s Strategic Plan) iv

7 A. Integrated Transport Assessment Guidelines 1. Introduction What is an Integrated Transport Assessment? Why is an ITA required? The purpose of an ITA Who should be involved in the ITA process? What about the current traffic impact assessments? Statutory and Policy Framework Policy outline The Integrated Transport Assessment Process Scoping the ITA ITA structure Activities requiring a full ITA...11 APPENDICES: Appendix A Scoping Discussion Criteria Appendix B Full Integrated Transport Assessment A-i

8 1. Introduction The Auckland Regional Transport Authority (ARTA) has developed this document, in conjunction with Auckland Regional Council (ARC), to provide guidance on the requirement for an Integrated Transport Assessment (ITA), as a result of Plan Change 6 to the Auckland Regional Policy Statement (RPS). The guidelines give context as to what is intended by the method. They identify a framework for gathering and assessing all the appropriate transport information required to assist in better aligning land use and transport in Auckland at both the regional and local level, as required in the Local Government (Auckland) Amendment Act 2004 (LG(A)AA). The ITA guidelines have been prepared to assist developers, local authorities, Auckland Regional Transport Authority (ARTA), Auckland Regional Council (ARC), Transit New Zealand (Transit) and any other parties involved in development proposals to robustly assess all transport opportunities or constraints that may occur from land use changes. An ITA is a comprehensive review of all the potential transport impacts from a Structure Plan, proposed Plan Change, a Metropolitan Urban Limits (MUL) shift or a major trip generating activity. It is expected the ITA would be undertaken at the beginning of the planning process and the findings of the assessment would be taken into consideration to identify and inform any actions required to avoid, remedy or mitigate adverse effects of the development proposal on the transport system. The outcomes of the ITA will be of key interest to: > Territorial authorities > Auckland Regional Transport Authority (ARTA) > Auckland Regional Council (ARC) > Transit > Developers; and > Other stakeholders. While this document will be used as a guideline for undertaking an ITA, it is not considered the only document that addresses transport and land use related assessments. The local authority district plans provide policies, objectives and rules related to transport and land use, as does Transit New Zealand s Planning Policy Manual 1. Other documents, such as the New Zealand Urban Design Protocol, may also need to be referred to, to ensure that a development achieves the appropriate land use, urban design and transport mix. References to other guidelines and supplementary information can be found in Supplementary Document One. 1 The Integrated Transport Assessment does not replace or modify Transit New Zealand s Planning Policy Manual or any specific requirements Transit may have with respect to impacts on the state highway network. A-1

9 1.1 What is an Integrated Transport Assessment? The ITA guidelines assist in identifying how a development will interact with the existing transport networks, where traffic capacity constraints may occur, where passenger transport services are sufficient or where extra services are required and the level of accessibility for walking and cycling. The guidelines provide a process to ensure that a full assessment of transport opportunities and constraints is undertaken and proposed development accords with regional planning and transport policies. In particular, it seeks to ensure the integration of land use with all modes of transport. The pattern of travel generated by changes in land use and the suitability of transport arrangements to accommodate it are important considerations in determining appropriate land uses. The fundamental purpose of the ITA is to provide information on how a proposed development will function in terms of its accessibility. The proposed land use zoning and/or land use should be located, designed and managed to promote access by a choice of modes, and mitigation measures should be identified to support the transport system. The information provided in the ITA should be sufficient to enable an assessment of: > How well the development meets general and specific policy objectives for the area > The measures taken to encourage access by all modes, including passenger transport, walking and cycling > The nature and scale of the impact on the existing transport network > The nature and scale of any changes required to the transport networks and services to and near the development in order to bring the location up to an appropriate standard; and > Any financial or other contributions required or any cost share agreements. Note: The details of measures to be taken and nature and scale of changes to the transport networks should be in line with appropriate technical/best practice documents e.g. Austroads Guides to Traffic Engineering Practice and other Austroads publications, Land Transport New Zealand Manuals, Standards and Guidelines, and the Roads and Traffic Authority (RTA) Guide to Traffic Generating Developments, Version 2.2. This is neither an exclusive nor exhaustive list. It is not proposed that the ITA Guidelines would repeat these documents here, however it would be expected that, depending on the scale of the development, the appropriate best practice technical guide would be referenced. 1.2 Why is an ITA required? Transport and accessibility are significant issues facing the Auckland region today. Many of the transport issues in Auckland are the direct result of incremental land use and transport decisions, often made in isolation from each other, which have not always addressed all modes of transport, or adequately assessed the wider and long-term implications of transport A-2

10 and land use decisions. All agencies in the Auckland region have a specific interest in ensuring activities that potentially impact on the transport network are managed. The Local Government (Auckland) Amendment Act 2004 requires the integration of land use and transport in the Auckland region to address some of the pressures the region is facing. Under the current planning framework of the Resource Management Act (1991), proposed MUL shifts, district plan changes and some developments require an Assessment of Environmental Effects (AEE). The AEE identifies the effects of a proposal early on in the process and, if necessary, provides for measures to reduce any adverse effects. It is in the AEE where the impacts of land use on the environment are assessed. The impacts on the transport network are assessed via policies, objectives and rules within district plans. The ITA Guidelines provide a structured framework in which to assess the integration of land use changes and transport solutions. More recently expectations have been raised for the need to assess the viability and impact on modes other than the private car, such as passenger transport, walking and cycling and the ability to access services without the need to travel by car. However, this has often been undertaken in an ad hoc and secondary manner. It is well understood that land use generates trips and it is important that appropriate development occurs in the right locations and where the surrounding transport networks can support it. The intent of the ITA Guidelines is to ensure all transport consequences of proposed land use changes are addressed, resulting in decisions that fully integrate land use and the suitability of transport arrangements to accommodate development. It is important that the integration of land use and transport is addressed by a comprehensive and robust analysis. Auckland has learnt from the past that if we are selective about the level of assessment required there is a risk that the incremental development will still affect the strategic network. Without an assessment framework such as the ITA Guidelines it will be difficult to provide for an integrated transport network. 1.3 The purpose of an ITA The ITA places particular emphasis on accessibility to land uses by all modes, as part of an integrated approach to planning and transport. In essence, the aim is to set out an approach that enables land use development and transport to be sustainable. The outcome of the ITA is: > To give clear direction to parties who are involved in development in the Auckland region of the transport and land use agency requirements to enable a comprehensive assessment of the transport consequences of developments; and > To provide all parties with as much information on the transport impacts of developments as reasonably possible. A-3

11 The ITA framework will require consideration of: > All modes of transport that would support the land use > Location policy, ensuring specified development takes place in locations that support sustainable transport mode share > Planning and development tools to facilitate sustainable transport > Planning agreements to encourage uptake of sustainable transport options by residents, employers and visitors > Parking standards in the relevant district plan with justification for the number of spaces proposed, so land is used efficiently and effectively 2 > Funding matters. The assessment will provide a more structured framework for discussion and negotiations between various agencies and developers and indicate the areas of concern in regard to the assessment of transport, and who is likely to be affected. During the discussions with various agencies and developers, agreements or commitments may be made to address some of the key transport issues. These agreements/commitments may be given further status: > In the district plan, if appropriate > In the LTCCP > As a consent condition > Through a Memorandum of Understanding; and/or > Via other legal agreements. This will depend on who is making the commitment and who is agreeing to it but it will provide a level of security to ensure that projects and funding are delivered on time and in an appropriate manner. 1.4 Who should be involved in the ITA process? Although this document has been prepared by ARTA, an ITA process will not necessarily be led by ARTA. It will be the responsibility of the agency, organisation or developer proposing the development. The guidelines will assist in providing an assessment framework and will show that a robust process was undertaken in regard to the assessment of the transport 2 An issue to be addressed is that by adhering to current district plan car parking standards is that these provisions are often overly generous and have not had regard to the RLTS or LGAAA. Where a reduction in parking can be achieved the local territorial authority should support it. A-4

12 network and what is required as part of the development for private cars, freight and commercial trips, passenger transport, walking and cycling. Once the ITA is completed it will be the role of the regulatory agency processing the MUL shift, proposed plan change or resource consent to ensure that the key aspects of the assessment are incorporated into the plan change, resource consent conditions or other agreements where appropriate. The role of ARTA is recognised as an affected party 3 as it has a statutory responsibility under the Local Government (Auckland) Amendment Act (2004) to plan, fund and develop the Auckland regional land transport network in a way that contributes to an integrated, safe, responsive and sustainable land transport system for the Auckland region. For the same reason, Transit should also be recognised as an affected party due to its responsibilities with respect to the state highway network. In that regard it is important that councils, ARTA and Transit work closely together to deliver the best possible outcomes in terms of addressing growth and development of the regional transport network. 1.5 What about the current traffic impact assessments? There has been a growing awareness of the need to consider transport issues wider than just traffic. Traffic Impact Assessments 4 in the past have predominately focused on the implications of traffic generation rather than transport access and network reliability as a whole. The ITA Guidelines have been developed to ensure that all aspects of transport are considered and not just the implications for traffic. Traffic assessments will now become a component of an ITA, which will help manage travel demand to identify opportunities for access to integrated high frequency passenger transport services, walking, cycling and achieving appropriate and supportive parking controls and to ensure sufficient intersection and roading capacity. 2. Statutory and Policy Framework In New Zealand, the Local Government Act provides for the development of growth strategies, and has a strong influence on land use development and transport planning. Councils are also required to develop long-term council community plans, which take into account and plan for local growth issues. The Resource Management Act (RMA) provides an important planning framework for both the regional and local councils to work within. The RMA focuses on effects from development and gives regional and local authorities the powers, functions and duties to manage this through regional policy statements, district plans and resource consent mechanisms. However, in Auckland the Local Government (Auckland) Amendment Act 2004 specifically addresses the concept of growth and the integration between land use and transport due to 3 ARTA is an affected party under S93 of the RMA when consents are publicly notified. ARTA also expects that a consent authority would consider ARTA an affected party under S94 (when a consent is not notified) due to its responsibility to plan, fund and develop the Auckland region transport network. 4 No formal New Zealand Guidelines exist for Traffic Impact Assessments, however there are British and Australian documents in wide circulation. Guidance on trip and traffic generation is outlined in Supplementary Document 1. A-5

13 the growth pressures the region is already experiencing. Regional and territorial authorities also have a role and responsibility for ensuring that transport infrastructure and services across the region deliver a transport network that will support the growth envisaged in the Regional Growth Strategy (RGS). A brief description of the legislative requirements, policy and planning documents is outlined below. A-6

14 2.1 Policy outline Figure Legislative Requirements, Policy and Planning Documents Local Government (Auckland) Amendment Act The LG(A)AA requires local authorities to give effect, in an integrated manner, to the growth concept in the Auckland Regional Growth Strategy and to contribute to the following matters: Providing more certainty in assessing transport and urban form consents, designations or plan changes; Managing transport and transport infrastructure, facilitating a multi-modal transport system and integrated transport management; Reducing adverse effects of transport on the environment and increasing the positive interactions of transport and land use; Supporting compact sustainable urban form and land use intensification; Integrating transport and land use policies to reinforce urban and rural objectives of the ARPS, and to develop a competitive, efficient economy, high quality of life and a quality environment. Resource Management Act The RMA is essentially about ensuring the sustainable use of resources for the foreseeable needs of the present and future generation, and also requires the importance of indigenous rights in the mitigation process. The RMA focuses on managing the effects of activities on the environment rather than regulating the activities themselves. The RMA adopts an approach that assess whether the effects of an activity are likely to result in unacceptable environmental impacts. The RMA can be problematic for transport assessment as it does not address potential future implications on the transport network from cumulative impacts it only has the ability to assess the effects from a single planning application or development proposal. Land Transport Management Act The purpose of the Land Transport Management Act is to contribute to the aim of achieving an integrated, safe, responsive and sustainable land transport system by providing an integrated approach to land transport funding and management; an improved social and environmental responsibility in land transport funding, planning and management; and improving long term planning and investment in land transport. When planning, developing and operating land transport infrastructure and services, the requirements of the LTMA must be taken into consideration by all parties with a land transport responsibility. The LTMA specifically establishes Land Transport New Zealand and Transit, and sets out the objectives, purpose and functions for both organisations. Auckland Regional Land Transport Strategy Auckland Regional Policy Statement Structure Plans 2005 District Plans Resource Consents The Auckland Regional Land Transport Strategy contains seven objectives, which the Integrated Transport Assessments need to have regard to: Assisting economic development Assisting safety and personal security Improving access and mobility Protecting and promoting public health Ensuring environmental sustainability Supporting the regional growth strategy Achieving economic efficiency. Proposed Plan Change Six to the Auckland Regional Policy Statement (ARPS) includes a new set of strategic policies specifically on Land Use and Transport Integration (2.6.11). Proposed Method states that territorial authorities shall ensure that proposals for new major traffic generating activities are subject to an Integrated Transport Assessment as a specific part of the Assessment of Environmental Effects (AEE). While there is some detail as to what should be covered in the audit, Method falls short of providing sufficient detail to assist TA s and others in undertaking such audits. The ARPS requires structure planning to be undertaken for significant new areas proposed for urban development, existing urban areas proposed for significant redevelopment, or new areas proposed for countryside living. The Structure Planning Guide outlines key aspects of transport, to consider when developing a structure plan: Determining the level of planned passenger transport improvements to the area Identifying opportunities for increasing accessibility levels for all modes within growth centres Improving links to passenger transport stops; Look to provide the highest densities for development and employment opportunities close to passenger transport stops Within regional centres, town centres and corridors provide opportunities for improved pedestrian and cycle modes Providing for residential and business density increases appropriate to the level of planned passenger transport Land use proposals will need to be designed and located with much greater attention to access by all modes and ensure that land use is well integrated with transport The purpose of a district plan is to assist territorial authorities in carrying out their functions under the RMA. District plans must give effect to national policy statements and regional policy statements. District plans must also not be inconsistent with regional plans, in regard to matters of regional significance and matters for which the regional council has primary responsibility. Section 75(3)(c) requires that a district plan must give effect to any regional policy statement District plans cover issues related to the functions of territorial authorities such as: Effects of land use Impacts of land use on natural hazards and the management of hazardous substances Noise Activities on the surfaces of rivers and lakes Impacts of land use on indigenous biological diversity. District plans also address: The objectives for the district Policies to implement the objectives Rules, if any, to be used to implement the policies Various activities will require resource consent when the proposal is for a: Controlled activity: The consent authority can impose conditions on the consent but only on matters over which the council has reserved control in the relevant plan. Restricted discretionary activity: The consent authority can exercise discretion as to whether or not to grant consent, and to impose conditions, but only in respect of matters to which it has restricted its discretion in the plan. Discretionary activity: The consent authority can exercise full discretion as to whether or not to grant consent and as to what conditions to impose on the consent if granted. An activity is discretionary if: The plan identifies it as discretionary. A resource consent is required for the activity but the plan fails to classify it as controlled, restricted discretionary, discretionary or non-complying Non-complying activity: A non-complying activity requires the applicant establish that the adverse effects of the activity on the environment will be minor or that the activity will not be contrary to the objectives of the relevant plan or proposed plan. Any effect on a person who has given written approval to the application will not be considered. In addition, the consent authority may disregard an adverse effect of the proposed activity if the plan permits an activity with that effect (the 'permitted baseline' test). Prohibited activity: A prohibited activity may not be carried out. In addition, no resource consent can be granted to authorise the activity. + A-7

15 3. The Integrated Transport Assessment Process The following guidelines set out a framework for undertaking an ITA, rather than suggesting a fixed process. The flexibility provided for in this process enables the most appropriate type of assessment to be carried out for any particular proposal. An ITA may range from a simple and straightforward process to one that is complex and non standard. No two ITAs are likely to be the same: what is appropriate for one development is unlikely to be the same for another. It is, however, necessary to fully understand the transport consequences of development proposals. There are several ways developers can assess the transport impacts of their development. The methods used will depend upon the type and scale of the proposal, and whether it is located in an area that is considered to have transport problems and appropriately zoned. Early scoping discussions with territorial authorities, ARTA and Transit will help to determine the type of ITA required. Broadly speaking, an ITA will be required where the proposed development is of a similar scale to the guidelines identified in section 3.3. These are flexible guidelines and the consenting authority should reserve the right to determine the type of assessment required for individual proposals. 3.1 Scoping the ITA Scoping the ITA is one of the most important processes. Early discussion with the appropriate agency/agencies should generally ensure that the proposer is aware of what is required from the ITA process and the agency\agencies is/are aware of the type of development proposed. The discussion will be based around the Scoping Form (Appendix A). This ensures coverage of all points such as: > The type, nature, scale, density and proposed location of the development > Whether the proposal is in line with national, regional and local transport and land use policy objectives > Whether an ITA is needed; and > The level of detail of the ITA, including any focus on site or area-specific issues. The scoping process will identify any issues in the area, and measures can be identified early in the process to help promote choice of access to the site, such as: > New or modified passenger transport services > New or modified pedestrian and cycle facilities A-8

16 > New or modified road infrastructure > Facilities for people with reduced mobility > Travel demand management measures > Passenger transport, walking or cycling measures to be funded by the proposed development > The potential cost of these measures and how they will be secured, for instance through planning conditions and obligations. The diagram on page 10 shows the process for determining when an ITA is appropriate for the scale of development. As a general rule, developers are advised to consult with the local regulatory agency to confirm the level of detail in the ITA. Note: The type of ITA required will be determined during the scoping phase. The framework has been designed to build on previous work (where applicable) so the information provided initially can be incorporated in the next stage and does not need to be repeated. A-9

17 Figure Determining when an ITA is appropriate for the scale of development Is the development a permitted activity? YES NO Scoping discussions with appropriate agency/agencies Territorial Authorities assess the proposal based on district plan requirements. Does the ITA require a full Integrated Transport Assessment? A full ITA will be automatically required if: A proposal is put forward to extend the Metropolitan Urban Limit (MUL) A structure plan process is undertaken for urban areas listed as high-density centres within schedule 1 of the RPS) A major trip generation activity is proposed There are plan changes YES NO Submission in opposition by agency(s) Scope ITA NO Can impacts be mitigated? Agencies to assess impacts and mitigation measures is more required? NO Are predicted impacts and mitigation measures acceptable? YES YES NO Build on initial work YES NO Agencies to check impacts and mitigation measures is more/less required? Are predicted impacts and mitigation measures acceptable? YES Submit ITA Submission in support by agency/agencies. A-10

18 3.2 ITA structure The ITA is intended to consider the following matters: The headings could be adapted and used as a basis for preparing an ITA. Refer to Appendix B for a more detailed structure outline. 1. Planning and policy framework 2. Travel characteristics/land use characteristics 3. Measures to influence travel 4. Appraisal of impacts 5. Mitigating impacts 6. Summary and conclusion. 3.3 Activities requiring a full ITA It is acknowledged that there are dangers in setting rigid guidelines for when an ITA is required. This document recognises that there needs to be a level of flexibility and discretion so that the impacts on the existing infrastructure and services are identified and that mitigation measures are required by the local territorial authorities to address these. As noted, a full assessment will be automatically required if: > A proposal is put forward to extend the Metropolitan Urban Limit (MUL) > A structure plan process is undertaken for urban areas listed as high density centres within schedule one of the RPS > A major trip generation activity is proposed (see below); and/or > There is a plan change. The ITA is about achieving appropriate desired outcomes in terms of modal splits for a development. It is recognised that some developments may not be able to achieve high mode splits by non-car modes due to the nature of the trips, or where the level of passenger transport service is not available. However, it is important that a robust and detailed assessment is undertaken to draw these conclusions. As a general guide, an ITA will be required for large developments, including but not limited to: > Significant housing developments > Mixed use developments > Large fast food retail A-11

19 > Large format retail/shopping malls > Cinemas and conference centres > Leisure and recreation facilities > Office and commercial development (including refits) > Distribution and warehousing > Industrial developments > Hospitals and large medical and care facilities (including retirement villages) > Schools and education related developments > Stadia, event centres and large sporting facilities > Other significant proposals. An indication of the size and scale of a development is outlined below, however the planning authority has the discretion to require a full Integrated Transport Assessment even if the development falls below these guidelines 5 : > 100 or more dwellings > 1,000 m 2 and above gross retail floor space > 2,500 m 2 and above gross office floor space > 5,000 m 2 and above gross industrial floor space; and > 10,000 m 2 and above gross warehousing floor space. An ITA will also be required for developments where: > Proposals fall below the guidelines, however there are significant committed or approved developments in the area, which will have a cumulative impact on a particular transport corridor and/or system > Proposals fall below the guidelines, however ARTA, ARC, Transit or the territorial authorities consider that the proposal will have a significant impact in transport terms. Where a state highway may be affected by a development, Transit may also review the proposal in line with their Planning Policy Manual and other relevant Transit documents. The scoping of the ITA will confirm what level of detail is required by the various agencies. 5 Some developments may fall below the guidelines in terms of their size and scale, however the location and the current status of the surrounding network may require a full Integrated Transport Assessment due to the perceived impacts on the network. This will be assessed during the scoping discussion with the local planning authority. A-12

20 Appendix A Scoping Discussion Criteria Applicant: Consultant: Location/Site: Development Name (if appropriate): Consent Number (if appropriate): Issues Comments 1 What is the proposal for? 2 What is the proposed size and description of proposal? 3 Are there any significant issues surrounding the existing use of land, e.g. > Existing transport constraints, e.g. roading network, congestion, safety, lack of passenger transport, walking or cycling opportunities etc. > Planning history? 4 Does the development involve the relocation of an existing use? If yes, what are the significant impacts? 5 Is there any traffic survey information of existing conditions? 6 To assess potential trip generation from the site do you intend to use a: > Database approach > Special surveys > Transport modelling > Other? A-13

21 7 Has current consented development been taken into account? 8 What is the intended timeframe for completion? Are there staging or sequencing opportunities to be considered in line with public and private investments in transportation? 9 What are the access requirements and considerations? > Arterials roads? > Priority/traffic signals/roundabout? 10 Policy issues: > Is proposal in line with current national and regional policy? > Is development proposal in line with structure and local plan policies? A-14

22 Appendix B Full Integrated Transport Assessment 1. Planning and policy framework This should set out the wider context for development of the area. It should focus on whether the development supports the policies of the Auckland Regional Growth Strategy (RGS), Auckland Regional Policy Statement (RPS), Auckland Regional Land Transport Strategy (RLTS), and district plans. 2. Land use characteristics All development proposals need to include a summary of land use/urban design decisions that impact on transport sustainability. This enables an analysis of the synergies or tensions between land use and transport decisions. The land use assessment needs to consider the following: > Reasons for location and density of the proposal and how this relates to the transport network? > Are there any urban design opportunities or constraints that impact on the design and location of the proposal in regard to transport? > Are there any givens for the proposal (i.e. particular designations or land purchases that guarantee a certain type of development such as education facilities, supermarkets etc.)? > Is there any potential to cluster development along Passenger Transport corridors? > Does the design of the proposal relate well to the transport network for all modes of transport? 3. Travel characteristics All developments will be expected to provide information on how people will access the proposed development. Non-residential uses: > Where will people be coming from origins and destinations? > Will the land use be serving a local catchment or will it draw people from a wider area? > Will it be safe and pleasant to walk to the site? A-15

23 > Will the land use attract single-purpose trips, or will people be undertaking other activities in the vicinity, and will these be in walking distance (e.g. will office developments be surrounded by other facilities)? > How many car parking spaces are proposed? > How will cycle opportunities be provided for? > How will access by passenger transport be accommodated? > Is there an existing passenger transport service that can accommodate the proposed development? Residential uses: > Similar questions to those above should be asked for residential uses. The issues will be ease of access on foot, cycle and passenger transport to other activities (employment, shopping, leisure etc). Freight > What is the expected number of freight/deliveries per day? Figures should be split by size/type of vehicle and time, where possible. Compare all of the above with existing journeys per day, mode splits and freight impacts (for sites with existing development or potential journeys and trips for underutilised sites with existing use rights). 4. Acceptable travel times An ITA will require a measure of what is accessible from the site in terms of job opportunities, shops and other local facilities such as education and leisure activities. This may involve four processes: Walking and cycling travel times: Walking and cycling time assessments should ascertain areas reachable within a particular walking or cycling time by average pedestrians and cyclists. The time bands used may depend on density, type and scale of development and land use. Measurement could be by analysis of maps, followed by checking times by people travelling the routes, to take into account factors such as crossing roads etc. It will also be necessary to show a clear plan of walking routes, facilities and catchment areas. Passenger transport travel times: A clear plan showing the existing routes in the vicinity of the site, including the distance from the centre of the site to bus stops, rail stations, frequency etc., will need to be shown. Consideration should be given to where people will be coming from or going to and how they will access the site and facilities, employment etc. using passenger transport. A-16

24 Car travel times: Information will be required showing the existing generation of the site and future generation including consideration of the number of people using the car. Calculation of travel times may be necessary, including where people will be coming from and going to. Modal splits: Having assessed travel times by different modes from locations in the area of the proposed development, the next element should be to estimate the number of people and by what mode they will travel to the site. While such predictions are an inexact science, it is possible to predict with some degree of confidence how likely people are to arrive by different modes with and without improvements to influence travel. 5. Improvements to influence travel This section outlines the opportunities for improvements proposed to influence travel behaviour to the site. The overall aim is to reduce the reliance on the single occupant car and to provide a realistic choice for travel to the site by walking, car pooling, cycling or passenger transport. Ideally, consideration should be given to the following measures: Promoting walking > Facilities for people with reduced mobility > Widths and quality of footpaths close to local amenities and services > Improving personal security > Pedestrian audits > Pedestrian routes and walkways (i.e. desire lines, crossing locations, pedestrian activity, high-quality walk environment/experience) > Pedestrian crossings > Pedestrian amenity. Promoting cycling > Design for cycling to the site > Measures at junctions and roundabouts and on roads immediately associated with the development > Cycle crossings > Potential conflict between pedestrians, vehicles and cyclists A-17

25 > Cycle facilities on site > Covered cycle parking (i.e. secure parking stands, changing and showering facilities and lockers, and other facilities). Promoting passenger transport > New or improved services > Information provision > Passenger transport stops (rail, ferry, bus) consistent with the requirements of the Passenger Transport Network Plan > New or improved existing passenger transport infrastructure (i.e. bus shelters, etc.) > Bus priority and traffic management > Bus/rail/ferry interchange points and linkages to other services > Access to local and regional rail services. Car access and parking > Demand management measure to include a better use of car parking spaces > Incentives to use other modes and optimise car parking space (e.g. car pooling) > Location of parking so as not to obstruct pedestrian flows or cycle routes or access to passenger transport > Assessment of on-street parking impact > Potential for intersection improvements and financial contribution towards capacity improvements on routes from the site to amenities and services. Organisational measures > Awareness raising and marketing of travel behaviour initiatives > Appointing a travel plan co-ordinator > Ride sharing schemes > Car park permit schemes > Cycle user groups > Fitness campaigns encouraging walking and cycling > Cycle, walk or passenger transport to work days A-18

26 > Changing work practices tele-working, tele-conferencing, flexi working. Attitude changes > Travel behaviour change initiatives > Work place culture to use multi-modal transport options. 6. Appraisal of impacts The use of multi-criteria assessment tool is promoted based on a framework presenting descriptions of the likely impact over a wide range of impact areas! This will allow the agencies involved to weigh up the key impacts and judge whether the benefits will outweigh the costs to society, including those which are difficult to calculate. The multi-criteria approach groups impacts under five main headings, each with sub categories that may vary according to the type of proposal and its scale. The main groupings are: Environment > Noise levels caused by transport using the site > Local air quality affected by transport using the site > Landscape/townscape heritage effects of transport using the site and the facilities made for transport use of the site > Routeing agreements for heavy commercial vehicles > Off-site effects e.g. rat running. Safety > Risk of accidents for those using and passing by the site > Personal security of those using and passing by the site. Accessibility > Changes in access to transport systems > Accessibility changes in the local area > Community severance (or linkage). Integration > Links with other policy areas > Links between transport systems A-19

27 > Links with other land uses. Economy > Effects on the economic efficiency and vehicle operating costs of transport in the local area. The focus of appraisal will be different for each site. The approach allows different schemes to be compared when mitigating the impact of development so that an optimum solution can be designed. Road impact/traffic impact assessments While the ITA will show how the traffic impacts of a development may be minimised (through passenger transport measures etc.) impacts may still arise from the development on the roading network. Therefore, various roading measures may be needed to address this impact. Measuring the impacts on roading is the part of the ITA that relates most closely to the Traffic Impact Assessments (TIA) but further consideration also needs to take the following into account: > Policies surrounding access by foot, by cycle and passenger transport > Investigation of travel patterns > Options for improving capacity on the surrounding roading network if required. Traffic impact assessments are concerned with additional vehicle trips related to the development and the distribution of these trips on the existing roading network. As noted this practice is well established as part of councils resource consent procedures. It is envisaged that a traffic impact assessment will be a key component of ITA. Parking impact analysis On-site parking provision conforms to demand management principles and policies. Avoidance of excessive parking, which will not be used or used inefficiently. Car parking provision should be compatible with: > Regional, local and town centre parking strategies > District plan requirements > The level of passenger transport available; and/or > The opportunity to integrate parking. A-20

28 7. Mitigating impacts The key role of the ITA is to ensure that developments are designed and implemented in such a way that they promote access by all modes and manage demand to avoid unacceptable impacts on local road networks and the state highways. Depending on the nature and scale of the development, this may require a combination of measures to promote all mode access and minimise extra vehicle traffic that may be generated by the development. Schemes can be designed to give greater emphasis to access by pedestrians, cyclists and passenger transport. Such measures may mean changing the location of a building and car parking within a site, diverting/providing bus services or supplementing the level of passenger transport to the site. To complement these measures, schemes may need to minimise the level of on-site parking (if appropriate) to promote sustainable modal shift, however this will require a robust assessment of the impact caused by a reduction in parking standards. 8. Summary and conclusion This section of the ITA should transparently summarise the finding of the assessment that has been undertaken. It should draw conclusions and show all measures (if any) proposed to mitigate the impact from the development. A-21

29 Supplementary Guidelines Assessing Trip and Traffic Generation...B Achieving Multi-modal Developments...C Travel Management Association Guidelines...D Regional Cycle Parking Guidelines...E

30 B. Supplementary Guidelines Document One ARTA Guidance Note for Assessing Trip & Traffic Generation Other Transport Assessment Guidelines Traffic Impact Assessment Trip Rate Information Publications Databases Accident Analysis Traffic Flows Traffic Growth Rates Design Guidelines Passenger Transport Services...3 B-i

31 1. Other Transport Assessment Guidelines The ITA Guidelines have taken cognisance of a number of guidelines developed around the world. These include: > Guide to Transport Assessment for Development Proposals in Scotland (2002), by the Scottish Executive; > Transport Assessment Guidelines for Developments: Version for Trial and Evaluation (2006), by the Department of Planning and Infrastructure on behalf of the Western Australian Planning Commission; > Guidance on Transport Assessment (2007), by Department of Transport (England and Wales), 2. Traffic Impact Assessment The ITA Guidelines seek to ensure that the scope of traditional Traffic Impact Assessments (TIA s) is broadened to include consideration of all transportation effects of a development proposal. However, the issues assessed within TIAs still need to be assessed within ITAs. There is no acknowledged guideline for undertaking TIAs within New Zealand. However, the reader is referred to the Guidelines for Traffic Impact Assessment developed by the Institution of Highways and Transportation in the U.K, in 1994, where more detail is required than that provided within the ITA Guidelines. 3. Trip Rate Information The following are acknowledged sources of trip rate information: 3.1 Publications > Guide to Traffic Generating Developments (Version 2.2, 2002), by the Roads and Traffic Authority of New South Wales > Trip Generation (Seventh Edition, 2003), by the Institute of Transportation Engineers > Trips and Parking related to Land Use (Volumes One and Two; Transfund New Zealand Research Reports 209 and 210, 2001), by Transfund New Zealand. 3.2 Databases > Database maintained by The New Zealand Trip Rate and Parking Database Bureau. This contains the information included within Transfund Research Report 210 (see above), plus additional information > Trip Rate Information Computer System (known as the TRICS database). B-1

32 These publications and databases provide information on trip rates in New Zealand, Australia, UK and USA. All should be used with care, particularly those relating to sites outside New Zealand, as trip rates will differ between developments with similar land uses for a variety of reasons (such as size and location of catchment, the extent of passenger transport facilities, the location of competing developments, and so on). The TRICS database provides some information on trips by all modes, rather than trips by motorised vehicles. 4. Accident Analysis Records of reported accidents can be obtained from Land Transport New Zealand s Crash Analysis System. 5. Traffic Flows Many territorial authorities include details of recent traffic counts on their web site. Existing flows on state highways are available from the Transit New Zealand website. In particular, the reader is referred to the following documents: > State Highway Traffic Volumes: In addition, Transit prepares a document setting out details on flows on state highways in the Auckland region, each year (not available on the website). The most recent document is: > Auckland Region Traffic Data Traffic Growth Rates Default growth rates are set out in the Land Transport New Zealand Economic Evaluation Manual (updated October 2006). These rates should be used with caution and should not be assumed necessarily to be the rates that need to be accommodated up to a future design year. 7. Design Guidelines The following design guidelines are relevant: > Planning Policy Manual (1999, plus 2005 Supplement), by Transit New Zealand > Austroads Guide to Traffic Engineering Practice series some of the more relevant ones are: Part 5: Intersections at Grade Part 7: Traffic Signals Part 11: Parking B-2

33 Part 13: Pedestrians Part 14: Bicycles. > Manual of Traffic Signs and Markings (MOTSAM) prepared by Transit NZ detailing signage and marking standards for New Zealand > Road and Traffic Standards series produced by Land Transport Safety Authority available online at These standards/ guidelines cover a wide range of topics including: > Guidelines for facilities for blind and vision impaired pedestrians > Guidelines for visibility at driveway; and > Guidelines for flush medians. > NZS 4404:2004 Land Development and Subdivision Engineering (2004) by Standards New Zealand > Fundamentals of Planning and Design for Cycling prepared by Transfund NZ (2004) > New Zealand Supplement to the Austroads Guide to Traffic Engineering Practice Part 14: Bicycles prepared by Transit NZ (2005). 8. Passenger Transport Services Passenger transport service design is the responsibility of ARTA, although it is undertaken in consultation with local councils and operators. Up-to-date service information is found on the MAXX website which should be included as part of the transport assessment. The web-site provides information on mode options (i.e. rail, bus, ferry), frequency and route design all of which should be used when assessing the accessibility of passenger transport services in relation to a development proposal. Information is also provided on walking distance and time from particular addresses to passenger transport services. This information is also vital to a development proposal. B-3

34 C. Supplementary Document Two ARTA Guidance Note for Achieving Multi-modal Developments May Introduction Background Facilitating Multi-modal Developments Planning Processes Structure Plans District Plans, Plan Changes and Variation Comprehensive Development/Concept Plans Resource Consents Building Consents Multimodal Considerations Extent of Facilities Required for Multi-modal developments Work-based Developments Current Journey to Work Mode Split Facilities to be Provided Offsetting Car Park Requirements Residential Developments...18 C-i

35 1. Introduction The Auckland Regional Transport Authority (ARTA), assisted by Flow Transportation Specialists Limited, has developed this document to give guidance on how to achieve multimodal developments. These guidelines will assist ARTA, Auckland Regional Council (ARC), developers, local authorities, Transit New Zealand and any other parties involved in development proposals to facilitate better use of all modes of transport into development proposals of all sizes and/or uses. The purpose of this document is to provide guidance on the various approaches and options that should be considered and, where appropriate, integrated into a development proposal for a multi-modal land use and transport approach. This document should be read in conjunction with the Integrated Transport Assessment Guidelines (ITA), developed by ARTA which provide a framework for assessing the impact of proposals on the transport network. The document is intended to provide a range of approaches to developing a multi-modal development by discussing: > How to facilitate a multi-modal development > The various planning processes and stages where multi-modal approaches can be integrated > A range of multi-modal considerations, measure and means of achieving a multi-modal development, and > The extent of facilities required for a multi-modal development. 2. Background While it is recognised that many local authority district plans and Transit s Planning Policy Manual provide a range of transport objectives, policies, requirements and standards, transport considerations on development proposals in the past have generally been limited to: > The effects of vehicles on the surrounding road network, including impacts on the State Highway network where appropriate > The provision of car parks and > The design of the accessways in and out of a development. As such, many transport assessments neglect to consider other transport users or provide facilities that encourage a multi-modal approach. Often this is due to the limited information available or the fact that certain standards, quality or quantity of infrastructure to support other modes is unknown. The ITA Guidelines have provided a step in the right direction by developing a framework to robustly assess all transport opportunities and constraints that C-1

36 may occur from land use changes and outline how a proposed development will function in terms of accessibility. The ITA Guidelines assist in identifying how a development will interact with the existing transport networks, where traffic capacity constraints may occur, where passenger transport services are sufficient or extra services may be required, and the level of accessibility for walking and cycling. However it is recognised that there is a gap between assessing how a proposal will interact as a multi-modal development, and the types of provisions and infrastructure that should be required through the planning process as part of the development to support more sustainable travel modes and create a highly accessible multimodal development. It is proposed this document will help to address that gap. 3. Facilitating Multi-modal Developments Multi-modal developments will vary in size and scale depending on their location and may have varying levels of existing transport access. The important aspect to consider when designing a multi-modal development is that it needs to support all forms of transportation, including sustainable forms of travel, such as, walking, cycling, and passenger transport and travel demand management (TDM) initiatives. In some cases infrastructure and service provision for a range of modes may already be in place and it is only a matter of integrating these with the existing network, in other places the provision of transport infrastructure and services may be some years away, which may require the development to be sequenced with the implementation of the planned infrastructure and services or be flexible enough to build a multi-modal network over time. By developing a multi-modal approach there is the opportunity to achieve a number of social benefits from improving access to the majority of the population rather than only those who have a driver s licence and access to a car 1. Traditionally transport considerations have been limited to the provision of adequate offstreet parking, vehicle access and the effects of traffic on the capacity and safety of the roading network generated by a development. While these provisions are still very important aspects when considering the impacts of a development proposal, by only considering these provisions users of the development are subliminally encouraged to travel by car, as that is often the main design element in regard to transport. As such, carparks are often oversupplied and dominate the landscape leaving pedestrians to find their way through large car parking lots to access the entrance of a building. Territorial authorities, through their district plans, generally provide a range of objectives and policies to support all transport modes however the rules in the district plan generally only address minimum requirements for the provision of car park spaces and vehicle crossing designs which limits the assessment of other modes. Depending on land use, development proposal are rarely assessed in terms of access by other transport modes or whether or not a development achieves any of the district plans objectives and policies for other modes. 1 New Zealand has 2.5 million registered cars and over four million people an average of 0.6 cars per person, meaning that at least 40% of the population does not have direct access to a car. C-2

37 Therefore by default councils have been supporting journeys by car, 2 rather than encouraging a range of accessibility even though many of the councils objectives and policies support access by a range of other modes. The form and type of infrastructure or TDM initiative recommended to provide for a multimodal development will vary. For example, the design of safe and adequate cycle and pedestrian facilities may be the only requirement for one development, where for larger proposals a range of infrastructure and TDM initiatives may be sought. Just as important in providing these facilities is the need to locate them in an appropriate location and to provide sufficient facilities for their expected use. All this needs to be considered early in the planning and design process and needs to be incorporated into each stage of the process of the proposal. The following section provides guidance on what should be addressed at different stages of the planning process and details of what transportation management techniques or measure can be applied to achieve multimodal developments. 4. Planning Processes There are several stages of the planning process where multi-modal provisions can be incorporated to ensure the provision of facilities that will enable and encourage modes of transport other than the single occupant car. The following stages are: > Structure plans > District plans, plan changes and plan variations > Comprehensive development plans/concept plans (these may be a requirement of a district plan policy or may be another layer in the structure plan process depending on the local authorities planning requirements) > Resource consents > Building consents. Each stage provides an important step in the planning process, although, not every development will evolve from a structure plan process. As such it is important to acknowledge that multi-modal considerations and measures can be incorporated at a difference planning levels as outlined below in sections and in Table Structure Plans As outlined in Plan Change 6 to the Regional Policy Statement, Structure Planning is both a strategic planning tool, a design tool and a comprehensive planning process with public and 2 The exception being in the Auckland CBD area, which has maximum parking requirements and Albany Town Centre, which specifies parking requirements in a minimum/maximum range. C-3

38 technical input 3. Structure plans provide higher levels of certainty to developers, the council, the public and affected parties regarding the layout, character and costs of development in an area allocated for growth or redevelopment. With regard to transport, structure plans will typically include details of the key linkages and connections of roads, pedestrian/cycle routes and green routes (through parks and reserves) through the examination of the existing and proposed patterns of development both within and adjoining the development area. The establishment of design guidelines or design codes necessary to achieve the desired quality of development might include a range of infrastructural features, such as carriageway widths and the provision of cycle lanes. Often flexibility is provided in the structure plan process which provides for multi-modal developments and still leaves flexibility for developers. To achieve a multi-modal development a structure plan process needs to consider a number of strategic issues in particular: > How a development can achieve integrated land use and transport outcomes by spatially incorporating the objectives and policies of a number of national, regional and local transport planning and land use documents > Recognition of strategic transport issues, strategies and plans, including planned passenger transport improvements and the strategic roading network, and > Local transport and accessibility issues, and in particular the need for safe and attractive walking environments, with good links to passenger transport and local facilities and amenities, cycling provision and good integration between the local and strategic transport network. When developing structure plans in terms of transport and land use outcomes it is vital that the layout of the transport network is conducive to a multi-modal approach that enhances accessibility choice for people using the transport network. In regard to land use the density, design and layout of the development can also significantly enhance accessibility for people. It is at this stage that the key design aspects of the development start to encourage a multimodal approach. At this stage of planning the key design considerations should include: > Deciding whether the location is appropriate for the desired land use, can it be supported by a range of modes which provide access to a range of facilities? > Do the proposed zonings and land use assumptions reflect appropriate densities to support passenger transport? > Can new technology and infrastructure be incorporated to provide for high-quality telecommunication services to reduce travel demand? 3 Appendix A-4 Plan Change 6 to the Regional Policy Statement C-4

39 > Designing the development to integrate with the existing community. Can the layout and network design seamlessly integrate into the existing facilities and is there an opportunity to enhance access for the existing community by providing new or additional through site connections? Is there an opportunity to provide green linkages through parks and reserves? > Designing for all modes including cycle and pedestrian links and potential passenger transport routes > Ensuring potential passenger transport routes occurr within/and/or adjacent to the highdensity areas of the development (use Appendix H of Plan Change 6 to the RPS for density guidance depending on the type of service levels) > Spatially locating community facilities such as schools, hospitals, town centres and open space adjacent to potential bus routes and well designed walking and cycling networks > Does the development need to be staged to integrate with longer term transport infrastructure and service timeframes? 4.2 District Plans, Plan Changes and Variation District plans are developed by local authorities to set out councils resource management strategies. They include planning policies and rules for activities and development, where provisions are usually generalised and district wide. District plans have a statutory requirement to be reviewed every 10 years to update the plan with current planning practices that have evolved over the time that the plan was made operative. However district plans can also be subject to a plan change or a variation by either the local council or a private developer at any time. A plan change and /or variation is usually undertaken to change any provision (or introduce new provisions) in any district or regional plan. Where plan changes and/or variations are to rezone land to provide for residential expansion or rural residential development, the creation of a business park or a new town development; there is an excellent opportunity to include or amend objectives, policies and rules to ensure a multi-modal development takes place. To encourage a multi-modal development via the district plan change and /or variation the objectives, policies and rules should require a developer to give effect to multi-modal considerations. The objectives, policies and rules need to be written in a manner which ensure: > All objectives, policies and rules in the plan change or variation are consistent with the Regional Policy Statement (RPS), Regional Growth Strategy (RGS) and Regional Land Transport Strategy (RLTS) C-5

40 > That any proposed development should be supported by appropriate local facilities within passenger transport, walking or cycling distance to reduce unnecessary vehicle trips and enable access to those who do not drive > The layout of the development integrates with the existing/surrounding community > Zoning and density requirements have regard to the RGS and Appendix H of Plan Change 6 to the RPS to support passenger transport infrastructure and service investment > Building design controls reflect multi modal access > That all modes of transport are considered in the design of the development including passenger transport, walking and cycling > Connectivity and accessibility for passenger transport, carpooling, walking and cycling are considered high priority components of the development and as such designed in an appropriate manner > Safety and shelter for all modes of transport are key considerations > Appropriate telecommunications infrastructure is required to encourage work from home behaviour and > Car parking provisions are flexible and measured against accessibility of all modes and access to local facilities rather than the traditional standards and minimum approach. 4.3 Comprehensive Development/Concept Plans Comprehensive Development Plans (CDP)/Concept Plans (CP) have recently become popular requirements from local authorities through changes to district plan policies. In some cases the land parcel may have undergone a structure plan process and the CPD or CP is for an area within the structure plan or alternatively required to comprehensively plan for a large parcel of land. These plans must reflect the outcomes of the structure plan process (if one exists) and the objectives policies and rules of the district plan by providing a detailed spatial plan that addresses, in more detail: > The location for the desired land use and whether it will be supported by a range of modes which provide access to a range of facilities. > The zoning, land use assumptions, densities and roading layout to support passenger transport, walking and cycling > The incorporation of new technology and infrastructure to provide high-quality telecommunication infrastructure and services to reduce travel demand. > Integration with the existing community and future (if areas are still to develop) C-6

41 > Designs for all modes including cycle and pedestrian links and potential passenger transport routes > Spatial location of community facilities such as schools, hospitals, town centres and open space adjacent to potential bus routes and well designed walking and cycling networks > Staging of the development to integrate with longer term transport infrastructure and service timeframes. 4.4 Resource Consents All developments will require a resource consent, however many applications may not have been through a major planning process such as structure plan, district plan change/variation or comprehensive development plan and as such the consent application may need to include a significant amount of information regarding how the proposal will be integrated with transport and the types of measures required to achieve a multi-modal development. All consent applications need to be aligned with statutory regional and local policy documents and reflect the requirements of the district plan. Typically consents include conditions that have to be met and these can include ones that allow the activity to provide for all modes of transport. Consent applications should include the following measures or conditions to encourage a multi-modal development: > Building layout and design, including floor area ratios or square metres to ensure land use achieves the right density and design controls to encourage access by all modes > Safe access areas for vehicles, passenger transport, pedestrians and, cyclists > Priority connections for pedestrians and cyclists to passenger transport services > Car parking and cycle parking requirements > Lighting and way finding requirements for safe walking and cycling > Shower and locker facilities for work places, so employees who choose to walk, run, cycle to work can shower and store clothing. Note: If the resource consent application is for a large area consideration of other measures from the structure plan, district plans, CPD process should also be incorporated. 4.5 Building Consents Building consents are approved by local councils to carry out building works at a specific site. These consents ensure that building, plumbing, drainage and fire safety requirements are in compliance with the NZ Building Code. Generally, the provision of transport related facilities will have been addressed in a resource consent or higher levels of planning, however if C-7

42 conditions are put on to consents through the planning process such as requirements for pedestrian and cycle access or for showers and locker/storage facilities these will need to be incorporated into the plans submitted for building consent. By including these aspects the final Building Consent stage it will ensure that they are integrated appropriately into the development and are design in a safe and accessible location. 5. Multimodal Considerations In considering the extent of facilities or measures available to develop a multi-modal development, Table 5.1 provides a list of measures that might be appropriate for different modes of travel, this is not an exhaustive list but provides a range of considerations and measures to achieve a multi-modal development. It is noted that the provision of any of these measures needs to be done in such a way that the facilities, such as bicycle parking, changing rooms, showers, lockers, cloakrooms and drying areas, etc. are easily accessible, safe and adequate for the number of people using them. C-8

43 Table 5.1 Facilitating a multi-modal development Physical measures to promote and facilitate multimodal development Multi-Modal Considerations Planning Process Measures Means Appropriate location and integrating the development Is the proposed development in a location which is supported by local facilities Are the zoning and density provisions supportive of a multi modal development The provision of new technology and infrastructure to provide high quality telecommunication infrastructure and services Designing the development to integrate with the existing community-linkages through parks and reserves? Designing for all modes including cycle and pedestrian links and potential passenger transport routes. Spatially locate community facilities adjacent potential bus routes and well designed walking and cycling networks. Does the development need to be staged to integrate with longer term transport infrastructure and service timeframes? Structure plan, comprehensive development /concept plans, resource consent stages An accessibility assessment in regard to existing local facilities Alignment of zoning requirements with the district plan or surrounding land uses. Alignment of density figures with those in Appendix H of Proposed Plan Change 6 to the RPS Inclusion of new telecommunication infrastructure and services. Spatially connecting with the existing community Located within a comprehensive and safe pedestrian network and cycle network Connections to part of the comprehensive passenger transport network Existing HOV facilities on the surrounding road network, including HOV lanes Infrastructure and service alignment Consideration and incorporation of these measures need to be undertaken as part of the Integrated Transport Assessment to indicate that the proposal is in an appropriate location. This should be undertaken in alignment with the assessment of environmental effects to ensure good land use and transport outcomes. This can be required to be undertaken at any stage of the planning process depending on which stage the development proposal is at. Review of councils LTCCP transport programmes, ARTA s Passenger Transport Network Plan and Transit NZ s 10 year state highway forecast for potential alignment with the major transport infrastructure or service improvements. 9

44 Facilitating a multi-modal development Multi-Modal Considerations Planning Process Measures Means Passenger Transport The Rapid, Quality and Local Connector Passenger Transport Networks Safe pedestrian facilities to and from passenger transport nodes, including wide footpaths, road crossings and lighting Bus lanes Other passenger transport infrastructure including, stations, shelters, bus bays, real time information displays Does the development need to be staged to integrate with longer term passenger transport infrastructure and service timeframes? Structure plan, comprehensive development /concept plans, district plan, resource consent stages Ensure the density and location of the development is within the services level provisions identified in ARTA s Passenger Transport Network Plan. Provide passenger transport infrastructure including, stations, shelters, bus bays, real time information displays where appropriate. Ensure road carriageway widths allow for bus lanes where appropriate, Integrate with provisions for pedestrian and cycle access All provisions for passenger transport infrastructure and service requirements will need to be discussed with ARTA and the local authority. Consideration for passenger transport infrastructure and services should be undertaken as part of the ITA. A review of ARTA s Passenger Transport Network Plan and the local authorities LTCCP will need to be undertaken to sequence the development longer term passenger transport infrastructure and service timeframes where appropriate. Cycling Comprehensive cycle network Cycle paths/lanes, priority crossing treatment Secure parking Changing facilities, showers, lockers and drying areas Structure plan, comprehensive development /concept plans, district plan, resource consent and building consent stages Connections to the existing cycle network Route identification and/or design of cycle paths/lanes, priority crossing treatment Identification and/or design of changing facilities, showers, lockers, cloakrooms and drying areas Security provisions for cycle parking Identification and/or location of cycle parking provisions Depending on the stage of the planning process these need to be incorporated in to each phase. If a structure plan process is taking place cycle routes and network development may be the only consideration. As a proposal moves through the planning process it will require more detail for example at the consent stage route design, cycle parking facilities and changing facilities including showers should be visible on the plan. 10

45 Facilitating a multi-modal development Multi-Modal Considerations Planning Process Measures Means Walking Comprehensive and safe pedestrian network Safe walking access including Priority treatment for pedestrian access (e.g. as opposed to the main access to a building being from the car park) Changing facilities, showers, lockers, cloakrooms and drying areas Structure plan, comprehensive development /concept plans, district plan, resource consent and building consent stages Priority treatment for pedestrian access Safe pedestrian facilities to and from public transport nodes, including wide footpaths, road crossings and lighting Safe walking access including wide footpaths, road crossings, lighting Covered verandas Identification and/or design of changing facilities, showers, lockers, cloakrooms and drying areas Security provisions for pedestrian networks As above for cycling, this would depend on the stage that the development proposal was at. Appropriate car parking provision and management Provision for appropriate levels of car parking. This should be a balance between the accessibility of other modes Location of car parking (i.e should not dominate the landscape, rather be hidden underground or behind buildings) Provision of HOV parking Consideration of long and short-term provisions and pricing mechanisms to appropriately manage car parking Structure plan, comprehensive development /concept plans, district plan, resource consent Regional Parking Strategy Guidance (currently under development) Appropriate district plan policies and standards to provide flexibility depending on accessibility of other modes particularly passenger transport Appropriate location of parking facilities (i.e underground parking and behind buildings) Identification of priority parking( i.e higher level of access to disability and HOV parking spaces) Consideration for car parking provisions for a development should be undertaken as part of the ITA Car parking ratios for a new development need to be based on passenger transport, walking and cycling accessibility to a range of services. Where new standards are being developed they need to be flexible to enable developers to appropriately assess the level of demand and mange car parking to meet that demand. If district plan standards are too high, justification for reduced standards can be made through either a plan change or variation process or through the resource consent process depending on the size and scale of the development. 11

46 Facilitating a multi-modal development Multi-Modal Considerations Planning Process Measures Means Motorised two wheelers Secure covered parking Changing facilities, showers, lockers, cloakrooms and drying areas Resource consent, building consent stages Identification and/or design of changing facilities, showers, lockers, cloakrooms and drying areas Safe and secure parking provisions This is likely to be incorporated at the resource and/or building consent stage to ensure the appropriate facilities are included in the plans for the construction of the development. Travel Plans To achieve a successful travel plan all of the above multi-modal considerations need to be incorporated into a well designed development to provide a high level of safe access by all modes to local facilities and services Structure plan, comprehensive development /concept plans, and building consent stage Travel plans should be undertaken as a voluntary process supported by an employer for a workplace travel plan or body corporate for a residential development. The infrastructure to support travel planning will need to be incorporated at the structure plan, comprehensive development /concept plans, resource and building consent stages. The infrastructure will need to be safe and accessible by all modes and need to incorporate all of the above multi modal considerations to achieve a successful out come. A number of other soft measure incentives can be incorporated into travel plans and information regarding the development of a successful travel plan process is available on ARTA s website. 12

47 Facilitating a multi-modal development Multi-Modal Considerations Planning Process Measures Means Ride sharing High occupant vehicle (HOV) facilities, including HOV lanes Priority parking facilities Structure plan, comprehensive development /concept plans, district plan, resource consent and building consent stages HOV facilities, including HOV lanes Priority HOV car parking Ride sharing programmes are popular measures that can be implemented from through travel plans and are incentivised where HOV lanes and priority parking are provided. The HOV lane infrastructure provisions will need to be incorporated into the planning process for large scale land use developments usually at the structure plan, comprehensive development /concept plans and district plan stages. However a smaller development can implement a ride share programme and car parking priority can be outlined in the resource consent. Remote work, shopping Internet access, broadband connection Structure plan, comprehensive development /concept plans, district plan, resource consent and building consent stages Inclusion of new telecommunication infrastructure and services Telecommunication infrastructure will require discussions and agreements with services providers at any stage of the planning process and could be difficult in existing developments where infrastructure may require upgrading. This should be a key consideration during the structure planning phase of a development. 13

48 6. Extent of Facilities Required for Multi-modal developments Providing facilities to enable and encourage non-single occupant car travel modes should be incorporated in all developments, and the car parking standards should be flexible to represent the level of accessibility by other modes. The extent of these facilities and the extent to which they can potentially offset parking provisions should be developed from basic principles. For pedestrian, cyclist and public transport networks and on-road facilities, consultation should be undertaken with the relevant local authority to determine the appropriate provisions. Generally, this should be consistent with councils pedestrian and cycle policies and strategies. The recommended numbers of car parking spaces provided for each land use type are specific to each local authority, and generally based on surveys. The recommended levels represent parking requirements needed to meet the peak parking accumulations observed, without consideration of seasonal variations. The relationships between land use activity and parking illustrate the operation of the developments that were surveyed. A better method of determining car parking and other travel mode facility requirements would be based on the number of employees at a development. However, this number is not usually known at the time that a development application is lodged. Also, specific uses of the development might change with time and change in the use of developments does not always require planning consent. Parking requirements will also vary with the parking policies of the local authorities with regards to whether the parking demand is to be met on site, or whether car parking is to be used as a policy tool to restrict commuter travel by private vehicles. Accordingly, any guidance with regards to facilities to enable multi-modal developments should be considered in light of the policies of the local authority and the likely travel mode splits that will eventuate for the particular land use activity. The following example investigates work-based trips and typical facilities required by a job orientated developments. The example below is for the Auckland region as a whole and should be adapted to local conditions using meshblock Census data and or local knowledge. 6.1 Work-based Developments 6.2 Current Journey to Work Mode Split The 2006 Census provides information on the primary mode of travel to work for the employed population on the day of the Census. The data is grouped into a number of different geographical groupings related to regional councils; territorial authorities, urban areas and meshblocks. The groupings include the Auckland region, Rodney District, North Shore City, Waitakere City, Auckland City, Manukau City, Papakura District and Franklin District. The following table summarises the mode splits for these areas on the census day, excluding those that did not go to work that day, other responses and not elsewhere included responses. C-14

49 Table Census, Main Means of Travel to Work, for the Census Usually Resident Population Count Aged 15 Years and Over and Employed Percent by Mode Area Worked at Public Bus Train Bicycle Walked or Motorcycle or Drove a Private Passenger in a Home Jogged Power Cycle or Company Car, Truck, Car, Truck or Van or Van Company Bus Rodney District 15.1% 2.0% 0.1% 0.4% 3.1% 0.8% 74.5% 4.0% North Shore City 8.0% 6.9% 0.1% 0.8% 3.5% 0.6% 75.4% 4.7% Waitakere City 6.4% 3.9% 1.7% 0.9% 2.7% 0.7% 77.8% 5.9% Auckland City 7.6% 8.6% 1.2% 1.4% 7.8% 0.7% 67.8% 4.9% Manukau City 5.5% 3.0% 1.1% 0.6% 2.4% 0.4% 80.1% 6.9% Papakura District 6.6% 1.3% 3.4% 0.8% 3.7% 0.4% 77.7% 6.0% Franklin District 14.5% 0.2% 0.9% 0.5% 3.7% 0.9% 74.8% 4.4% Auckland Region 7.7% 5.4% 1.1% 0.9% 4.5% 0.6% 74.3% 5.4% 15

50 Depending on the location of a development, quite a large proportion, around 20 to 30% would benefit from having improved facilities to facilitate them working remotely or travelling by active modes and public transport. Where developments are located in mixed use or public transport corridors, then the need for appropriate facilities for active and public transport modes will increase. 6.3 Facilities to be Provided Information presented in the 2005 Auckland Regional Land Transport Strategy has been used for the development of forecast mode splits. The RLTS identifies the expected increase in public transport mode share as well as the increase in walking and cycling mode shares by 2016 for the region as a whole. According to the strategy, this will be accomplished through a combination of a number of initiatives, including increased rail and bus services and frequencies. Page 111 of the report notes that 11% of the peak hour trips are expected to be made by public transport in 2016 and that 18% of all of the motorised trips into the Auckland Isthmus will be by public transport. For any development that is located where significant public transport infrastructure and routes is or will be established, it is expected that the public transport mode share will be higher than the regional average, particularly during peak commuter travel periods. On page 114 of the RLTS, a target is set for walking and cycling trips to account for 15.5% of all trips during the morning peak period. The strategy also notes that currently 15.1% of all trips during the morning peak period are walking and cycling trips. It is understood that many of these trips are completed by students going to school and university, as substantiated by the 2006 Census data of 5.4% for active modes for journeys to work. As such, it is not expected the job-based developments will be able to obtain a percent walking and cycling equal to the strategy s target. A similar increase to the overall percentage of active modes results in an estimate of 5.5% for the journey to work trips, and this has been assumed for this example. It is expected that the remaining trips will be completed by car. These trips will be divided among drive alone and passenger trips. With the introduction of HOV lanes in many areas of the region, and other means to encourage ridesharing, it is expected that the number of vehicle passengers will increase and the number of drive-alone trips will decrease. The Census data indicates an average vehicle occupancy of 1.07 people per vehicle for journeys to work in The RTA Guide 4 suggests a car occupancy of 1.19 based on surveys undertaken in An estimate of 1.2 has been assumed for this example. Working at home is assumed to increase marginally to 8%, although with faster broadband services, this could increase to 10% or more in the future. The resulting mode share forecast is shown in the following table. 4 Guide to Traffic Generating Developments, Roads and Traffic Authority, NSW, October 2002 C-16

51 Table Potential Means of Travel to Work, Percent by Mode Auckland Region Region Work at Home Public Bus Train Bicycle Walk or Jog Car Driver Passenger in Car Auckland Region 8% 9% 2% 1% 5% 60% 15% With regards to office job-related development, a further assessment of the number of employees typically employed in an office activity should be investigated. The RTA Guide assumes a mean employee density of 4.75 employees per 100m 2 of gross floor area (GFA) (i.e. one person per 21m 2 GFA). With a typical parking requirement for offices of one per 40m2 gross floor area and assuming a car occupancy of 1.2, then this parking requirement would accommodate 63% of employees. The remaining employees will use other modes including remote working, although in reality, a significant proportion of the remaining employees are likely to park elsewhere. Based on the above, provisions for those using public and passenger transport and active modes would be provided in all office developments, with approximately the following proportions: > One locker (sufficient to store clothes and other belongings etc.) per 120m 2 GFA (for all active travellers, public transport and motorised two-wheel travellers) > A minimum of one shower and changing facilities up to 1,500m 2 GFA, with an additional shower for every additional 1,500m 2 GFA (assumes average 15-minute use, four users per hour) > One bike locker per 2,000m 2 GFA > 20% of parking spaces to be for HOV use. It is noted that the above example is for the whole Auckland region, where the mode split is dominated by car travel to work. Where developments are located in areas where cycling, walking and public transport are much more realistic modes of transport, the provisions will be different. For example, for Auckland City, the resulting mode share forecast is shown in the following table. C-17

52 Table Potential Means of Travel to Work, Percent by Mode Auckland Region Region Work at Home Public Bus Train Bicycle Walk or Jog Car Driver Passenger in Car Auckland Region 8% 16% 2% 2% 8% 51% 13% The associated locker, shower, bicycle and HOV parking provisions would be as follows: > One locker per 30m 2 GFA (for all active travellers, public transport and motorised two wheel travellers) > A minimum of one shower and changing facilities up to 360m 2 GFA, with an additional shower for every additional 360m 2 GFA (assumes average 15-minute use, four users per hour) > One bike locker per 500m 2 GFA > 20% of parking spaces to be for HOV use. Different types of developments should be considered on a case-by-case basis, in a manner similar to the above, based on their specific location and proximity to public transport, residential activity and their likely level of employment for the particular use allowed by resource consent. 6.4 Offsetting Car Park Requirements Where it can be shown that a development will be able to support a higher proportion of nonsingle occupant car travel, the provision of facilities that encourage and enable other transport could be used to offset parking requirements. A similar exercise to that undertaken above would provide an indication of the extent of such facilities. Any investigation in this matter should be undertaken in consultation with the local authorities concerned. 6.5 Residential Developments Basic principles of car ownership have been applied to develop requirements for residential accommodation. Census data for 2006 that provides car ownership has been researched. The following table summarises the results for the Auckland region. C-18

53 Table Number of Motor Vehicles per Household (if stated) Percent Region Zero vehicles One Vehicle Two Vehicles More than three Vehicles Auckland Region 9.4% 37.8% 38.0% 14.8% Regardless of car ownership, the provision of broadband in homes will enable people to work and shop from home. Where such a provision is made, residential parking requirements should be investigated on a case-by-case basis, and related to the proximity of community, convenience, public transport and other essential services that encourage other modes of travel to the single occupant car. C-19

54 D. Supplementary Document Three ARTA Guidance Note for Travel Management Associations 2007 Glossary:...ii Executive Summary Introduction Foreword How the Guidelines Were Developed Using the ARTA TMA Guidelines TMA Overview and International Experience A Brief History of TMA Formation TMA Definition and Key Characteristics International Lessons Learned: TMA Strengths and Weaknesses Applying International Experience to Auckland TMAs in Auckland The Context for Considering TMAs in Auckland Primary Opportunities and Challenges for TMA Development in Auckland Alternative Organisational Models Roles of Key Stakeholders Funding TMAs in Auckland Assessing TMAs in Auckland TMA Self-Assessment Tool Step One Big Picture Scan Step Two TMA Feasibility Study Step Three TMA Formation Plans...39 D-i

55 Appendices: Appendix A Transport Policy and Strategies Appendix B Transport Demand Management Terminology Appendix C International TMA Web Links Appendix D International TMA Case Studies Glossary: AADT Annual Average Daily Total ACC Auckland City Council ARC Auckland Regional Council ARTA Auckland Regional Transport Authority BID Business Improvement District CBD Central Business District ETC Employee Transport Coordinators FDC Franklin District Council GFA Gross Floor Area HOVs High Occupancy Vehicles 1 LTNZ Land Transport New Zealand LTP Land Transport Programme MCC Manukau City Council NSCC North Shore City Council NZTS New Zealand Transport Strategy PDC Papakura District Council PT Public Transport 2 RDC Rodney District Council RGS Regional Growth Strategy RLTS Regional Land Transport Strategy SMA Strategic Management Areas SME Small and Medium Sized Enterprises SOV Single Occupant Vehicle TA Territorial Authority (city and district councils) TDM Transport Demand Management TMA Transport Management Association TMI Transport Management Initiative TMU Traffic Management Unit WCC Waitakere City Council 1 Generally defined as vehicles carrying three or more people, including the driver. 2 Also referred to in this report as passenger transport, excluding private car passengers. D-ii

56 Executive Summary The ARTA TMA Guidelines intend to assist developers, businesses, institutions, local authorities, the Auckland Regional Transport Authority (ARTA) and other government authorities, and any other parties involved in transport issues to better understand the concept of Transport Management Associations (TMAs) and to robustly assess if a TMA would be suitable and what role such an organisation might play in an area. TMAs are public-private partnership organisations established to design and implement collaborative transport strategies addressing traffic congestion, mobility, and/or air quality problems in specific geographic areas. Today, there are more than 150 TMAs across the world, primarily in the United States, Canada, and the United Kingdom. At the most basic level, TMAs are simply an organisational framework. They provide a platform for business and government to work together in a collaborative attempt to improve transport conditions in a defined geographic area. TMAs bring together a variety of interested stakeholders, and provide a central coordinating entity to facilitate and implement programmes outlined by the group. TMAs operate in a wide range of settings, working with different stakeholders and addressing a variety of transport-related issues. As a result, there is no single or standardised model for how a TMA should be structured organisationally, or what types of programmes a TMA should implement. Instead, the value of the TMA concept is its flexibility to adapt to local conditions and offer the best fit for each situation. TMAs, however, are not a magic solution to transport issues, and are not appropriate in every setting. The Auckland Regional Transport Authority (ARTA) has developed this document to provide guidance on the formation of Transport Management Associations (TMAs) in Auckland. These guidelines address the potential for TMAs in Auckland, including how they might work and be structured. The heart of the document is a TMA self-assessment tool designed to allow users to determine if a TMA may be appropriate in their area, or if other implementation alternatives are more suitable. D-1

57 1. Introduction 1.1 Foreword Auckland faces a number of transport challenges. Traffic congestion has reached levels significant enough to have negative economic, social, and environmental impacts on the region, and on New Zealand as a whole 3. For Auckland, the issues are multi-faceted, relating to regional growth, geographic and roadway capacity constraints, and a high reliance on cars. The Auckland region is the most-populated and fastest-growing area in New Zealand. Like many regions worldwide, transport-related challenges are a costly side-effect of economic growth and prosperity. The Auckland region s response to its transport problems is set out in two key documents, the Regional Growth Strategy (RGS) and the Regional Land Transport Strategy (RLTS). In order to support continued economic vitality and enhanced quality of life throughout Auckland, the RLTS supports investment in multi-modal transport strategies. To meet these objectives, ARTA developed the Sustainable Transport Plan in 2006 that includes a range of transport demand management (TDM) programmes for the region. The Sustainable Transport Plan outlines implementation strategies and measurable targets for workplace travel plans, tertiary travel plans, school travel plans, and town centre travel plans. It also identifies Transport Management Associations (TMAs) as a potentially viable strategy. Further details of these policy documents are provided in Appendix A, and terminology regarding TDM can be found in Appendix B. One of the means to enhance the effectiveness and implementation efficiency of travel plans and related TDM measures that has been undertaken overseas (mainly the US, Canada and the UK) is the development of TMAs. A TMA can be defined as an organised group applying carefully selected approaches to facilitating the movement of people and goods within an area 4. In addition to developing and coordinating TDM strategies, TMAs bring a variety of stakeholders together to jointly address transport challenges and to give stakeholders a unified voice in prioritising and advocating for enhanced transport investments and coordination in their area. In some instances, TMAs represent the only organisations that provide full coverage of a geographic area with common transport challenges (such as a key transport corridor crossing political jurisdictions), and/or the only forum for full coordination of public and private transport programmes in an area. The appeal of TMAs lies in two key areas: Synergy between multiple organisations and individuals organisations have a greater chance of addressing difficult transport challenges collectively than any one government agency, employer, developer, or resident could accomplish alone. The demand for transport 3 NZTS (2002) estimates the current cost of congestion in the Auckland region at around $1 billion. 4 TMA Handbook, NCTR and Association for Commuter Transportation, Washington DC, D-2

58 in an area where people go, when they go and how they get there is greatly influenced by the decisions of businesses and institutions (employment arrival/departure times, parking pricing, event scheduling, etc.). Flexibility TMAs operate in a wide range of settings, working with different stakeholders and addressing a variety of transport-related issues. As a result, there is no single or standardised model for how a TMA should be structured organisationally, or what types of programmes a TMA implements. Instead, the value of the TMA concept is its flexibility to adapt to local conditions and offer the best fit for each situation. 1.2 How the Guidelines Were Developed For this project, UrbanTrans and Flow combined their respective international and local experience with the formation/operation of TMAs, with a well structured process to understand the unique context of the Auckland region, to develop regional guidelines for establishing TMAs in Auckland. The team held meetings and discussions with several stakeholders to understand and clarify transport-related issues and needs as they relate to potential opportunities and constraints for TMAs in Auckland. These parties included officers and representatives of the following organisations: > Auckland Regional Transport Authority > Land Transport New Zealand, Head Office > Land Transport New Zealand, Auckland Office > Auckland City Council > North Shore City Council > Sustainable Business Network > Auckland International Airport > Hobsonville Land Company > Ports of Auckland > ASB Bank Limited > The University of Auckland. 1.3 Using the ARTA TMA Guidelines The ARTA TMA Guidelines are organised to lead readers through a three-stage progression of learning about TMAs. The stages move from a broad international context through to the application of a self-assessment tool for use at the local level within Auckland. D-3

59 Section Two TMA Overview and International Experience TMAs are new to Auckland, but there is a rich background of international experience to build from. This section defines TMAs, and presents international case studies and lessons learned. Section Three TMAs in Auckland This section begins the process of exploring application of TMAs in the Auckland context, including opportunities and challenges for TMAs in Auckland, stakeholder roles, and funding options. Section Four TMA Self-Assessment Tool The heart of the TMA Guidelines is this self-assessment tool. Once readers understand the TMA concept, and the potential for application in Auckland generally, this section provides a tool to assess TMA feasibility in specific areas. 2. TMA Overview and International Experience This section takes a brief look back at the origins of TMA formation in three different countries, sets forth more detail on the definition and characteristics of TMAs, and provides some perspective on lessons learned regarding the strengths and weaknesses of the TMA concept. TMAs have been around for over 25 years, and there are currently more than 150 TMAs across the world, primarily in the United States, Canada, and the United Kingdom. At the most basic level, TMAs are simply an organisational framework. They provide a platform for business and government to work together in a collaborative attempt to improve transport conditions in a defined geographic area. TMAs bring together a variety of interested stakeholders, and provide a central coordinating entity to facilitate and implement programmes outlined by the group. Responding to unique characteristics in different countries and to unique areas within an individual city stakeholders have adapted the basic organisation concept of the TMA in many different ways. The 25-year history has seen a variety of TMA models emerge, and they continue to evolve over time. 2.1 A Brief History of TMA Formation As TMAs are being considered for the first time in New Zealand, it is worth having a brief look back at the formation of the first TMAs in each of the three countries where TMAs are most prominent today. D-4

60 United States The first TMAs emerged in the United States in the early 1980s. The US Urban Mass Transportation Administration (UMTA), the agency now called the Federal Transit Administration, provided initial grants to foster cooperative business partnerships to implement TDM programmes. These initial grants funded the start-up and early operation of a handful of early TMAs, such as the Baltimore-Washington International Airport (BWI) TMA (Maryland), The Rideshare Company (Connecticut), the Bishop Ranch Transport Association (California), the Bellevue TMA (Washington), and the Greater Princeton TMA (New Jersey). It is unclear which organisation emerged as the first TMA. However, each of these early groups involved a collection of private businesses working collaboratively to reduce the impacts of congestion in their specific areas. For example, the Greater Princeton TMA (now called the Greater Mercer TMA) was initially formed to address private-sector concerns over the ability of local roadways to accommodate planned development in the area. Business leaders recognised that expanded roadways would not fully address the problem, and a study conducted by a regional agency in 1981 recommended forming a public-private partnership. The TMA was established as an independent, non-profit organisation in 1984, utilising UMTA grant funding and support from area corporations. As TMAs were a new concept, the initial years of operation involved significant education on the role of private sector organisations in helping to manage travel demand and soliciting support for the TMA. As the TMA s website notes: Canada Attracting support from companies such as Merrill Lynch, Bristol-Myers Squibb, ETC, Mobil and Princeton University, the TMA soon began to achieve the critical mass necessary to affect change. Some of our first tasks were to help develop a parking management programme at the Princeton Junction Station, to establish vanpools from the station and to help set up a rideshare programme at Educational Testing Service (ETS). The early 2000s saw the formation of the first TMAs in Canada. In 2001, public and privatesector stakeholders in the York Region (northwest of Toronto, Ontario) formed the Black Creek Regional TMA (now called Smart Commute North Toronto, Vaughn). Founding members of the TMA included York University, Seneca@York, Knoll, City of Toronto, City of Vaughan, York Region, and others. Now part of the Smart Commute Association (the regional TDM partnership for the Greater Toronto Area and Hamilton), the TMA includes new members such as Transport Canada, Toronto ATMAspheric Fund, Universal Workers Union Local 183, CH2M Hill, ING DIRECT, and others. The TMA serves 72,000 employees and students. United Kingdom In several areas across the United Kingdom, business and government are leading innovative new partnerships to address local area transport issues. The North East of Scotland Transport Partnership (NESTRANS) led the formation of the Dyce TMO in March D-5

61 2005. The TMO now includes corporate partners such as the BP Exploration Operating Company, Halliburton, Baker Hughes, AkerKvaerner, and Dril-Quip. As the TMO s website describes, We are a group of companies who have banded together to form a stand alone company to improve conditions for all modes of transport for the community and commuters of Dyce and to widen the choice of modes of access to all areas of Dyce. Formed in February 2006, the Sowton TMA is a not-for-profit company established to deliver sustainable transport solutions through travel plans to the Sowton Industrial Estate business community. The Sowton Industrial Estate encompasses over 200 businesses many of which are small and medium sized enterprises (SMEs). These in turn employ in the region of 15,000 staff. Since its inception, the Sowton TMA has attracted 40 member organisations which represent over 6,000 employees, over a third of the total work force for the area. 2.2 TMA Definition and Key Characteristics With over 150 TMAs now operating in various countries around the world, there is significant variation in the way these organisations are structured and the services they perform. While no two TMAs are exactly alike, they do share some important common characteristics. For further exploration: Greater Mercer TMA (US): Smart Commute North Toronto (Canada): Dyce TMO (UK): Sowton TMA (UK): TMA definition The US-based National Center for Transit Research (NCTR) and North America s Association for Commuter Transportation (ACT) offer the following TMA definition: A TMA is an organised group applying carefully selected approaches to facilitating the movement of people and goods within an area. TMAs are often legally constituted and frequently led by the private sector in partnership with the public sector to solve transport problems. 5 A closer look at each component of this definition clarifies many of the characteristics of standard TMAs (see below). An organised group Perhaps the simplest, and yet most critical, element in defining TMAs is that they provide an organisational framework for addressing transport issues. As such, TMAs are not, in and of themselves, a strategy to improve transport. TMAs simply represent an organisational framework for collaborative development and implementation of coordinated strategies to improve transport. The core idea of a TMA is to bring together diverse stakeholders involved with and/or impacted by transport issues to collectively pursue improvement strategies. The 5 TMA Handbook. NCTR and Association for Commuter Transportation, Washington DC, D-6

62 strength of the TMA as an organisational concept lies in the synergy between multiple organisations and individuals. Together, they often have a greater chance of addressing difficult transport challenges than any one government agency, employer, developer, or individual traveller could accomplish alone. Carefully selected approaches Moving forward from the basics of a TMA as an organisational framework, a key characteristic of TMAs is their ability to identify the specific transport-related challenges impacting the TMA area, and to develop tailored solutions uniquely suited to that area. Every area is different, with unique transport infrastructure and service assets, different types and sizes of businesses, differing levels and duration of traffic congestion, etc. As a result, outlining a prescriptive formula of recommended TMA services in these guidelines would lack value. Stakeholders in each TMA area, working collaboratively within the TMA organisational framework, assess their own needs and select their own blend of transport improvement strategies. Facilitating the movement of people and goods As the name suggests, TMAs focus on transport issues, primarily utilising transport management strategies, potentially encompassing both demand-side management (such as encouraging alternatives to driving alone) and supply-side or system management strategies (such as addressing signal timing inefficiencies). As noted above, every TMA focuses on the issues most relevant to their local context. As such, some TMAs incorporate programmes addressing both people and goods movement (e.g., Duwamish TMA; Seattle (US); and many TMAs serve a wide variety of travel markets (work trips, school trips, special event travel, etc.) within an area. While TMAs exist at a variety of scales, most TMA service areas are well known and distinct geographic areas, such as a central business district (CBD), activity centre, business district, or major transport corridor. The important factor is that the area shares common transport characteristics, which facilitates collaboration between area stakeholders in shared solutions. TMAs are not typically constrained by political boundaries, which sometimes are not contiguous with activity centres, corridors, or other areas with transport issues or travel patterns in common. Often legally constituted The standard TMA is typically a stand-alone, not-for-profit enterprise, with its own Board of Directors and its own paid staff (or contracted management). While these guidelines will also describe less formal alternatives that may be better suited to certain areas, the traditional definition of a TMA refers to the more formal, legally constituted organisational option. In many cases, TMAs operate as a programme of, or division of, an affiliated not-for-profit entity (e.g., business association). D-7

63 Led by the private sector Perhaps the most distinctive element of the TMA concept is the absolutely critical role of the private sector in both the formation and operation of a TMA. Private sector TMA members can include major employers, business association representatives, property developers, retail centre/district representatives, institutional leaders (i.e. schools, hospitals), privately owned public transport operators, business park managers and others. The motivation for involvement in a TMA stems from the impact that transport problems have on business (congestion-related travel delays, employee or shopper access issues, parking shortages, etc.), and from the impact that business decisions can have on the transport system. The notion that the private sector has a positive role to play in improving transport in their area is central to the TMA concept. In partnership with the public sector As an organisational framework, the TMA model is fundamentally a partnership model. Building on the recognition of the beneficial role of the private sector in addressing area transport, a TMA is intended as a collaborative partnership between businesses and relevant public sector transport agencies (transport planners and engineers, TDM planners, public transport providers, land planners, etc.). The public sector can improve transport policies, services, or funding. However, in many cases, the demand for transport in an area where people go, when they go and how they get there is greatly influenced by the decisions of businesses and institutions (e.g., setting employment arrival/departure times, parking management and pricing, event scheduling). Importantly, TMAs are not designed to replace or replicate services provided by government. Instead, TMAs seek to foster innovative new programmes, enhanced coordination and cost-effective collaboration. To solve transport problems TMAs are action-focused organisations. While sound planning is important to first identify the most cost-effective areas for action, TMAs should be designed to provide unique and valuable services to area organisations and area travellers. TMAs represent a organisational framework for collaborative development and implementation of coordinated strategies to improve transport. Example: Hartsfield-Jackson Atlanta International Airport in Georgia (US) The airport facility and the surrounding businesses (airline offices, hotels, rental car agencies, etc.) are located in an area that includes parts of two counties and several cities and towns. The 60,000 employees of the area represent a challenge too large for any one of these public agencies, yet too small to receive dedicated attention from regional or state governments. However, the Hartsfield Area TMA ( was able to establish a geographic service area at a scale appropriate to serving this travel market. D-8

64 TMA Example: Lloyd District TMA Portland, Oregon The Lloyd District is a district across the Willamette River from the CBD of Portland, Oregon. The Lloyd District TMA, formed in 1994, now has over 50 members, representing 40% of the district s 20,000 employees. The TMA runs a wide range of TDM programmes: facilitation of a network of workplace employee transport coordinators, sale of annual public transport passes, management of onstreet carpool-only parking spaces throughout the district, operation of a central transport store, distribution of a quarterly newsletter, coordination and funding of enhanced bicycle and pedestrian facilities, provision of transport information and marketing of transport options. The TMA is funded by the district s business association, by public grants, and through a percentage of the district s on-street parking meter revenue. The TMA is a not-for-profit and has three to four staff. The first nine years of TMA operations led to a 29% decline in drive alone commutes to work in the district. In 1997, 60% of commuters drove alone to work. By 2005, only 40% drove alone. The use of public transport increased from 21% to 39% of commute trips. In 2005, TMA programmes were responsible for a reduction in over 1,000 vehicles per day from the peak hour within the district. Lloyd District TMA Website: One way to better understand TMAs as an organisational framework to address transport issues is to illustrate how a TMA might be organised in a generic setting, such as the fictional area described below. Figure on Page D-10 offers a graphic representation of a fictional TMA serving a sample area. This generic sample area includes two major arterial roadways and one rail station. The area also includes a number of larger employers, a business park with small to medium-sized enterprises (SMEs), a retail centre, a hospital, and a site with a new mixeduse development project under construction. This activity centre already faces peak-hour transport problems, and city transport planners warn the problems will continue to get worse over time. The major employers and the hospital are facing some challenges recruiting and retaining high-quality employees, and the retail centre is losing market share, as shoppers voice concerns about the ease of travelling to the centre. The new development site will bring important new office space capacity, yet getting people in and out of the project effectively is an emerging concern for the developer. Determined to ensure this centre remains a leading centre for business, shopping, and health care services, several key stakeholders in the area joined forces with government officials to form a TMA in the area. The TMA Board of Directors meets monthly, sitting around a common table to identify and initiate transport solutions for the area. Private sector D-9

65 representatives from the area, and government representatives serving the area, are members of the TMA Board of Directors. The TMA has two staff members, which organise the activities of the TMA, secure funding, conduct research, and work with stakeholders to implement transport management strategies within the activity centre. Figure Representation of a Fictional TMA Serving a Sample Area International Approaches to TMA Funding As not-for-profit organisations, TMAs require revenue to fund day-to-day operations and to develop and implement services. International experience suggests there is no standard funding formula for TMAs. However, a majority of TMAs do draw on multiple revenue sources. The 2003 TMA Survey 6 found the following break-down of TMA revenue sources for existing TMAs. These figures represent the percentage of surveyed TMAs that utilise each funding source (not the percentage of revenue): 56% membership dues 48% federal grants (US and Canada) TMA Survey (International survey of TMAs, with 104 organisations responding). National Center for Transit Research, 2004 D-10

66 28% local grants 27% state/provincial grants 25% in-kind donations 19% service contracts (e.g., managing a workplace travel plan) 16% fees for one-time services (e.g., conducting a parking study) 9% developer funding agreements 7% business improvement districts (special rate districts). As the results above indicate, a majority of TMAs draw on dues from members (fees paid by individual businesses to belong to the TMA, often paid annually) for some portion of their revenue. However, over the past 5-10 years, international trends suggest that more and more TMAs are diversifying their funding sources beyond primary reliance on membership dues. In a 1993 survey of TMAs, 20% of TMAs relied on membership dues for 100% of their funding. In 2000, the total was just 5%. The percentage of total TMA funding drawn from membership dues also shrank from 47% in 1993 to 40% in Membership dues offer advantages to TMAs, in some cases. For the members of a TMA, paying annual dues can increase the sense of ownership in the TMA, and a larger degree of investment in its success. Additionally, membership dues are often structured based on the size of the member organisation (i.e., number of employees, per square metre, etc.), so that the TMA can justify offering higher levels of service to larger members. However, collecting membership dues requires a high degree of administrative energy. Too often, TMAs that rely heavily on membership dues spend limited staff time and energy recruiting new members and retaining existing members which represents time not spent implementing transport programmes. A related trend finds more TMAs forging funding arrangements through special rate districts, such as business improvement districts (BIDs). These groups are funded by a special tax assessment within their geographic areas. While the nature of the assessment often varies by area, the assessment is automatically generated each year, providing an ongoing, sustainable source of revenue. As such, TMAs that are part of, or partnered with, improvement districts are able to tap into this highly valuable revenue source (providing funding from area stakeholders without the administrative burden of collecting dues). D-11

67 2.3 International Lessons Learned: TMA Strengths and Weaknesses With over 25 years in existence, the concept of TMAs has continually evolved to fit changing transport needs and new market forces. This breadth of experience offers the opportunity for fairly extensive and time-tested assessments of the strengths and weaknesses of the TMA concept generally, as observed in a variety of different settings over many years. The following list of strengths and weaknesses would certainly not apply to any specific TMA, but represents a generalised list of the collective traits of TMAs as a concept that provide an important educational grounding for exploring TMAs in Auckland. Strengths In terms of strengths, TMAs can: > Provide a forum and an impetus for a diverse group of private and public sector stakeholders to collectively prioritise transport improvement strategies in their area. In most areas, the range of potential transport improvements exceeds available funding. Working together to prioritise short-term and long-term investments can be a challenging, but highly productive exercise. > Consolidate the private-sector voice on transport issues relevant to their area. This can be valuable for local and regional public-sector agencies, as they gain a single point of contact to discuss transport matters, and good for the private-sector, as their advocacy is strengthened by a unified voice. > Leverage peer-to-peer business networking to enhance private-sector participation in transport solutions (e.g., a business leader makes a compelling case to a peer business leader that a workplace travel plan benefited their business). Business-to-business networks can be more effective, in some settings, in spreading the application of workplace travel plans that government-led initiatives. > Shift the mentality of private sector entities, increasing their recognition that their decisions have an impact on travel behaviours, and that they can therefore be an effective part of the solution (e.g., allowing employees to flex arrival and departure times to better fit public transport schedules). > Provide an ideally-sized geographic scale for problem-solving. TMAs typically represent areas larger than individual sites (allowing for economies of scale, sharing best practices, etc.), yet smaller than an entire city or region (leveraging sub-regional identities, focusing on problems unique to a specific area, etc.). TMAs can also remain flexible in terms of geographic boundaries. TMA boundaries are not limited by political jurisdictional boundaries, and this can be designed to cover functional areas based on transport issues that may concern more that one jurisdiction (e.g., a transport corridor crossing a boundary between two local councils). D-12

68 > Provide a forum and organisational framework for coordination of TDM strategies between organisations (e.g., neighbouring employers coordinating work shifts to reduce peak-oriented congestion on local streets). Such coordination is not common where local or regional governments work one-on-one with individual sites to develop travel plans. > Allow for coordination of parking resources, parking management strategies, and access management improvements between multiple properties. > Provide more neutral, third-party ground for win-win solutions between public and private sectors (particularly for land development issues). In such situations, TMAs can also serve as a conduit for implementing trip-reduction programmes required as part of new property development trip generation mitigation agreements between developers and government. > Offer a credible organisation to receive and manage public funds. For example, while individual businesses or developers may not be logical recipients of public funding to support transport programmes, a not-for-profit entity representing an area may be able to manage such funds. > Provide programme delivery efficiencies and economies of scale (i.e., where the incremental cost of expanding a programme, such as a travel plan, to more than one site is minimal). > Be powerful innovation generators. TMAs often try new and innovative strategies due to the specific characteristics of their local environments. If these work well, the potential exists to expand the innovation beyond the TMA area. > Tailor strategies and target marketing efforts to fit area dynamics. This can avoid onesize-fits-all programme development and marketing. > Provide an ongoing implementation entity needed for many travel behaviour change programs, especially for medium to large land development projects. Weaknesses In terms of weaknesses, TMAs sometimes: > Become too focused on TDM as a stand-alone approach, missing out on important linkages to other transport improvement strategies or other issues important to businesses. In some regions, this focus can enhance the tendency to isolate TDM as a fringe strategy. > Lack a consistent formula for sustainable revenue generation, which can lead to poor allocation of resources into fund-raising, and/or low programme budgets. D-13

69 > Exist on extremely small average annual budgets, which can result in: An inability to implement significant programs An inability to attract high-level private-sector Board members An inability to get the full attention of government agencies Poor alignment between expectations and reality, in terms of travel behaviour change results. > Face the administrative burdens of running a small organisation, which can lead to administrative inefficiencies if there are multiple TMAs in one region (each organising and funding the same background administrative functions). > Succeed or fail in a manner too dependent on the skill and effectiveness of the TMA s Executive Director (a common problem for organisations with small staff sizes). Similarly, TMAs can pursue programmes in a manner too aligned with the skills and/or interests of the Executive Director and/or staff. These may or may not correlate with regional/local goals, or the goals and interests of private-sector members. > Only have the capacity to influence one end of a trip origin-destination pair. A majority of regional origin-destination pairs likely do not fall entirely within a TMA s boundaries, meaning the TMA inherently only covers limited trips for each person (not comprehensive). This potentially requires individuals to seek transport-related assistance from more than one organisation in a region. > Have the tendency of stand-alone organisations to chart their own course, in terms of programme delivery, marketing, branding, etc., which can lead to customer confusion within the regional marketplace. > Operate with the potential for competition with public agencies, in terms of coordinating transport strategies or accessing funding for transport programmes. Similarly, TMAs can operate with the potential for competition between different TMAs within one region (e.g., when competing for funding, or when competing for private-sector members). 2.4 Applying International Experience to Auckland While TMAs are new to Auckland, the rich background experience of 25 years of international applications should not be overlooked. Some TMAs have been more successful than others. Some have been around for many years, while others have not survived. All the while, TMAs have learnt from one another s experiences, and adapted lessons learned to their own areas. No TMA operates in an area identical in nature to another area. As a result, areas exploring TMAs must balance assessments of experiences in other areas with an understanding of their own local conditions. Areas within Auckland considering TMAs should utilise the lessons of the international experience to the greatest degree possible, while also using local conditions to tailor the TMA concept to fit their specific needs. Section 3 below D-14

70 presents preliminary issues important for considering TMAs in Auckland. However, Section 4, the TMA self-assessment tool, is essential as a starting point for TMA feasibility assessment in any given area within Auckland. One of the primary qualities exhibited by TMAs over the years is their capacity to continually evolve, adapting to the unique dynamics of specific geographic areas, and changing over time as conditions in these areas shift. This is perhaps the most important lesson from the international experience: successful TMAs emerge from the ground up, with area stakeholders tailoring the organisational framework best suited to their local conditions. To be sure, in many cases, regional or local government support is needed to jump-start these efforts (through seed funding or organisational development support services), and a structured feasibility study process is quite important (see Section 4, Self-Assessment Tool). However, only by beginning to work together with other key stakeholders in a specific area, and discussing the particular issues and needs facing these groups, will an appropriate organisational model for that area emerge. Before moving on to the use of the self-assessment tool, Section 3 below presents preliminary considerations for development of TMAs within Auckland. 3. TMAs in Auckland The previous section defined TMAs and outlined the key characteristics and the strengths and weaknesses of the concept generally, as it has evolved around the world over the last 25 years. This section addresses issues relevant for consideration of TMAs in the Auckland region generally. 3.1 The Context for Considering TMAs in Auckland The concept of TMAs is not new to Auckland. While TMAs do not yet exist in Auckland today (as of the time of this publication), regional plans have raised the potential for TMAs, and a number of local areas have identified TMAs as a potential option within their areas. Over the last few years, marked changes have occurred in land transport policies and priorities, and the Government is requiring the Auckland councils to update their planning documents to align them with the strategic priorities of the Regional Growth Strategy (RGS) and the Regional Land Transport Strategy (RLTS). The 2005 RLTS provides a focus on measures that will support the Auckland RGS by reducing reliance on private cars and providing high-quality alternatives. There is recognition in the RLTS that it will be impossible for Auckland to build its way out of congestion simply by providing more road capacity. Rather transport benefits will come from progress towards completing the strategic road network combined with incremental, but substantial improvements to public transport and TDM. TDM is a constant strand through the RLTS and aims to modify travel decisions so that more desirable transport, social, economic and/or environmental objectives can be achieved and the adverse effects of travel can be reduced. The RLTS sets out a number of policy D-15

71 approaches towards managing travel demand. These include supporting the RGS, focus on intensification where strong public transport links exist or can be established, providing realistic transport choices, influencing travel choices and careful management of parking provision in a manner which supports the broader-based and more integrated approach to transport efficiency. Chapter 8 of the RLTS refers specifically to TDM and addresses means to reduce the need to travel, providing for travel choices, influencing travel choices and pricing. Initiatives to influence travel choices include school travel plans, centre-based workplace travel plans, community travel initiatives and improved public transport information 7. The centre-based travel plans target is to achieve a 12% average reduction in car trips to work/study in organisations totalling 90,000 employees/students by The target for community-based travel initiatives is a 3% average reduction in local car trips made by 60,000 households. A number of measures are described for providing relevant information to influence travel choices. These include ensuring that relevant information is easily accessible, raising awareness and encouraging transport alternatives to the car. Through the coordination of a TMA, the measures can be made far more effective and further reaching in their impact and they offer equity such that all businesses and people accessing the area can benefit. (Further discussion of relevant regional policy documents is included in Appendix A.) Several areas within the Auckland region have considered the potential for TMA formation over the past few years. One such example is the North Harbour Industrial Estate. The area employs some 5,000 to 7,000 people and includes four schools in the immediate vicinity and the North Shore Hockey Club. It has limited access points and there is considerable frustration experienced by commuters travelling to and from the area, couriers who cannot make deliveries during peak times, and business owners, some of whom are moving from the area because of transport problems. The increasing cost of land means that future development is likely to be three-level office use, and with some 40% of the land still undeveloped, there could be a doubling in the workforce trying to access the area. Council officers were confident that TDM principles could be applied on a wide scale and be integrated with public transport and traffic engineering improvements. With the active support of businesses and people working in the area, it was thought possible to develop a sustainable solution to the problem. Subsequently, a TDM study was developed over the period from June 2005 to May 2006, which saw the establishment of a key stakeholders group (comprising North Shore City Council, ARTA, Transit New Zealand, Enterprise North Shore and the Albany Basin Business Association) and a wider working group (incorporating the key stakeholders group plus representatives from the four schools, a community board member, the North Shore Hockey Club, and the emergency services). A vision was developed for the area, being a safe and vibrant commercial community that is easily accessible with efficient and viable transport choices. 7 RLTS, 2005, Section D-16

72 Extensive surveying was undertaken, encompassing all employees, employers, business owners and residents in the area, to determine how people currently travel, what opportunities there are to use modes other than driving themselves, what facilities are provided by businesses, and what would help people to change. Throughout a number of meetings, the working group developed options that were assessed by the key stakeholders and this culminated in a TDM plan and an implementation plan. This process is effectively the same as one that might be followed in the development phase of a TMA, and indeed, one of the actions in the North Harbour Industrial Estate s plan is to set up a TMA for the area, which will then coordinate many of the other initiatives included in the plan. Local authorities and developers have also considered other areas that might have the potential to combine TDM principles and the active support and involvement of local businesses, employees and residents in order to help manage traffic generation and transport impacts. Accordingly, given this context, it is appropriate to generate guidelines for assessment of TMA feasibility in local areas, and to provide guidance on what other organisational structures could be considered if a TMA is not quite appropriate, in the traditional (international) meaning of the term. 3.2 Primary Opportunities and Challenges for TMA Development in Auckland With a range of groups raising the potential for TMA formation within Auckland, this project began with an initial assessment of the overall opportunities and challenges for TMA development in the Auckland region. Reviews of planning and policy documents addressing land use and transport issues in Auckland, along with conversations with government and business leaders, suggest that the standard TMA model does, indeed, have relevance and value in the Auckland context. TMAs, however, are not a magic solution to transport issues, and are not appropriate in every setting. Primary opportunities and challenges to establishing TMAs in Auckland are outlined below: Opportunities > Extending the travel behaviour change and TDM services commonly provided via workplace travel plans to small and medium enterprises (SMEs). Average employer size throughout Auckland suggests that SMEs are a significant portion of all employment in the region. Clustering of SMEs through organisational models serving a distinct geographic area represents a clear and more cost-efficient opportunity to offer TDM measures to more employees. Additionally, some TDM strategies (particularly ridesharing) require a sufficient critical mass for success something not likely among individual SMEs. > Leveraging existing interest and need among major land developers to support incorporation of TDM measures at new development sites. Especially within areas D-17

73 identified for future growth (in the RLTS and RGS), building TDM strategies into a new development from initial occupancy, and establishing a framework for TMA participation among appropriate future tenants, represents a significant opportunity to manage travel demand and enhance development projects. Additionally, the ARTA Integrated Transport Assessment (ITA) Guidelines allow developers to demonstrate reductions in trip generation or other transport impacts through TDM measures. TMAs (or alternative models) are key elements in supporting these scenarios, as TDM strategies are not oneoff activities they require a framework for ongoing implementation. The ITA Guidelines provide a process to ensure that a full assessment of transport opportunities and constraints is undertaken and proposed development accords with regional planning and transport policies. In particular it seeks to ensure the integration of land use with all modes of transport (ARTA, 2006). > Planning support for TDM implementation. From the RLTS and the ARTA Sustainable Transport Plan to LTNZ s TDM funding parameters, Auckland s policy and funding framework is highly supportive of TDM measures as an integrated component of overall land use and transport strategies. Exploring new organisational models for the expanded implementation of TDM is a natural progression in enhancing TDM in the region while also engaging new stakeholders (SMEs, developers, etc.). > Expanding on existing collaborative private-sector partnerships. The Auckland region has a number examples, from business associations to Chambers of Commerce, of privatesector entities coming together to address common issues. The Auckland CBD Into the future project is an example of an existing public private partnership being led by a government body. Additionally, from membership dues to special rate districts, experience with generating private sector revenue also exists. > Interest and need for enhanced dialogue between private sector stakeholders and government agencies regarding transport issues and the potential for mutually beneficial, joint solutions. Challenges: > No history of collaborative private sector partnerships specifically addressing transport issues. Like many areas, government has primarily provided or funded all services in the transport sector. Like other existing TDM measures (such as workplace travel plans), however, TMAs do not seek to duplicate or replace government services. Nonetheless, without a local model to point to, establishing the first TMA may be a challenge (a challenge not uncommon in other areas). Further, without direct experience in TMA feasibility assessment, formation, or operation, sound knowledge of best practices among local practitioners may be limited. > Few areas with large concentrations of people. As an organisational framework fostering collaborative solutions to transport issues, TMAs involve administrative overhead and related burdens associated with sustaining organisational operations. As such, a TMA s D-18

74 service area must be large enough to justify a dedicated organisation for the area. For example, the average TMA in the United States serves over 45,000 people. Few areas outside of the Auckland CBD have that concentration of people. This is not to suggest TMAs are not feasible in Auckland, but it does stress the importance of considering alternative organisational models to a formal TMA, and of paying close attention to the other characteristics of an area. (The TMA self-assessment tool below provides guidance.) Other responses to this challenge would be to bundle transport issues together with other issues important to businesses in an area (such as area security or marketing initiatives). > Constraints on development contributions to public transport enhancements. Developers who wish to implement passenger transport services cannot currently do so. Enforcement of any consent condition requirement associated with transport mode targets will be difficult to undertake whilst a developer is unable to provide or subsidise passenger transport, (This developer funding issue will be investigated in a separate study by ARTA.). 3.3 Alternative Organisational Models While TMAs may be an effective organisational model in many areas, they are not likely to be appropriate in all areas of Auckland. This is particularly true given the challenge noted above regarding the areas with sufficient concentration of people to justify a stand-alone TMA. The section below describes alternative organisational models (including examples of how these are applied internationally) to achieve some of the same benefits of TMAs, which could be applied in Auckland. In some cases, one of these alternatives may play a role in a phased solution, with the intention of forming a formal TMA at a future date. Step One of the TMA self-assessment tool (Section 4 below) offers a series of initial big picture questions and scenarios intended to screen for areas where one of the alternative organisational models described below may be more appropriate than a TMA. Readers may refer back to this section when utilising the self-assessment tool. Informal Network In many areas, stakeholders may benefit from enhanced communications and coordination regarding transport issues affecting their area, without having the need and/or resources to pursue a formal, stand-alone organisation like a TMA. In such cases, interested parties may form an informal network which meets periodically. Such informal networks, by nature, do not require legal or financial relationships between participants, and do not need dedicated staff. Instead, participants typically share responsibilities for organising network activities, and implement new transport initiatives individually and/or through occasional joint efforts. The stakeholders of an informal network coordinate on transport issues, yet there is no central entity to facilitate efforts or implement programmes on behalf of the group. Examples of information networks can include (but are not limited to): D-19

75 Workplace Transport Coordinator Networks: Representatives from several organisations implementing workplace travel plans in a given area meet periodically to share best practices or coordinate joint programmes (e.g., coordination for a joint promotional event). ARTA currently organises a regional transport coordinator network. Similar networks formed at the local level could accommodate discussion of location-specific issues, while coordinating with the regional network on broader topics. Informal Committees or Task Forces: Business leaders and other area stakeholders meet periodically to discuss needed transport improvements, develop joint advocacy positions, or provide unified input to ongoing transport studies or other projects. Advantages: > Easy to implement > No administrative costs or ongoing financial responsibilities > Facilitates information-sharing and coordination; offers a stakeholder support network. Disadvantages: > Lacks permanence > Lacks capacity for significant, ongoing programme implementation, as tasks fall to individual network members (who typically have other full-time responsibilities) > Difficulty attracting organisational funding for joint efforts. Application to Auckland It is likely that there are already very informal networks operating in Auckland. For example, in places where a number of businesses share one building, or are orientated around a shared parking area, social arrangements might already lead to ride sharing. By getting management involved, this could be expanded further and have greater support to adopt additional transport management initiatives. These informal networks could be formed in anticipation of a TMA being developed later that would involve a wider area. In summary, informal travel management networks are most likely to be appropriate for clusters of offices or small business parks, particularly if a group already exists to manage other joint facilities. Single, Strong Stakeholder Models (SSSM) While there is no commonly used name for this organisational model, the primary characteristic of this alternative involves the strong central leadership role of a single government organisation or major private-sector or institutional entity. While these initiatives may involve a number of additional partners from an area in developing and implementing transport management solutions, the coordination functions, organisational leadership, and funding are provided by the central organisation. This arrangement can make sense in areas D-20

76 that are too small to support the administrative requirements of a stand-alone TMA (such as a small, neighbourhood-level retail district), where multiple private sector leaders are not interested in or committed to forming and leading a stand-alone TMA, or in areas with one major stakeholder (such as a major land developer or one major employer). This model provides a central entity that works with each of the area s stakeholders (unlike an informal network), yet often lacks the true coordination and sense of ownership between multiple stakeholders (that a TMA may offer). Advantages: > Easier to implement than a TMA, as decisions and funding are centralised, not distributed > Easy to control alignment of organisational mission and government (or central entity) goals > Can be more administratively efficient, as a new, stand-alone organisation may not be required. Disadvantages: > May not engender true ownership and/or high-level participation between multiple stakeholders > Places greater burden and responsibility on the primary organisation to ensure solutions > Less likely to attract major private sector funding for new transport initiatives (if government-led). Application to Auckland Single, strong stakeholder models could provide a significant opportunity for areas where a large development has been led by a single entity and they wish to incorporate TDM initiatives into the culture of the development. Again, they could be formed in anticipation of a TMA being developed later that would involve a wider area, particularly when in the situation when larger organisations or tenants buy into or rent property within the development. In summary, this model is most likely to be appropriate for locations in Auckland where there is a single organisation that is leading development, and where growth will occur over time. As the development reaches maturity, or as significant tenants or properties are sold, consideration should be given to setting up a TMA to allow those entities more involvement in and funding of transport management measures and techniques for the area. Mobility Centre Mobility Centre is a term most commonly used in Europe to describe a model for implementing TDM services. Similar organisations are sometimes called Transport D-21

77 Coordination Centres or Vervoer Coördinatie Centrum (Dutch). Typically organised and led by government, core features are: > A primary focus on providing centralised information and/or tickets for multiple transport modes. For example, a mobility centre may consolidate information for multiple public transport operators, car-share companies, bicycle rental services, etc. > A focus on serving individuals (rather than working through employers or other stakeholders). This focus on working with clients is partly intended to give TDM a public face. Advantages: > Easier to implement than a TMA, as decisions and funding are centralised, not distributed > Easy to control alignment of organisational mission and government goals > With functions less tailored to each local area, simpler to replicate the model in more than one area. Disadvantages: > Little intended focus on working with area organisations, or forging collaborative partnerships with private-sector leaders > Owned and managed by Government, advocacy for enhanced services unlikely. Application to Auckland Being government led, mobility centres or transport coordination centres are likely to be appropriate for Auckland in areas where there is a mixture of large and small businesses, with a wide range of TDM customers, for example in a main street or downtown situation. Again, they could be formed in anticipation of a TMA being developed later, where the larger businesses would want to have a greater involvement in the decisions and running of the transport management measures and techniques. 3.4 Roles of Key Stakeholders The key stakeholders applicable to Auckland TMAs include ARTA, Territorial Authorities and business associations. Travel management and travel plan programmes rely heavily on the existence of a complementary sustainable transport infrastructure and service, and accordingly, it is advisable to have representatives of ARTA and the local authorities involved with the development and continuation of the TMA. They also have access to a wealth of information concerning current and proposed projects, road safety initiatives, engineering and planning expertise. Currently, in New Zealand it is not possible to secure passenger transport services D-22

78 via the planning consent system and developers can only be required to provide money for, or incorporate in their developments, capital works, such as rail stations, bus stops and shelters, real time passenger transport information, automatic traffic counters, covered secure cycle parking, showers, changing rooms, drying areas within the buildings, and so on. ARTA is expected to shortly embark on a body of work to consider the regional financial contributions policy for passenger transport services. This may involve developer contributions relating to the provision or subsidy of passenger transport services. D-23

79 Example: City of Glenwood Springs TDM Stakeholders Group Following a city-led TDM planning effort in 2000 that engaged local business leaders, this small Colorado community of 8,500 people sought to forge an on-going role for the private sector in implementing TDM programmes. Since a formal, stand-alone TMA was not appropriate for an area of this size, the City of Glenwood Springs formed a TDM stakeholders group to help guide citywide TDM programme development and to facilitate programme implementation within participating companies. website: The roles of ARTA, TAs and business associations with regards to TMAs are described below. ARTA The Local Government (Auckland) Amendment Act 2004 established ARTA as an Auckland Regional Council-controlled organisation in ARTA s statutory objective is to plan, fund and develop regional land transport in a way that contributes to an integrated, safe, responsive and sustainable land transport system for the Auckland region. ARTA is responsible for giving effect to the RLTS, with its main roles being to: > Provide a planning and funding framework to enable the integration of land transport infrastructure and services, to give effect to the RLTS > Prepare and manage a land transport programme (LTP) for all of the Auckland region s transport activities, excluding state highways > Prioritise local roading activities within the Auckland LTP > Plan and provide passenger transport services in the region > Plan and implement travel demand management activities. ARTA s Sustainable Transport Plan (STP) sets out ARTA s activities to deliver the sustainable transport component of the RLTS. The STP recognises that most employment in the Auckland region is in small and medium enterprises, and that individual travel plans may not be cost-effective because of the business size. Accordingly, ARTA is developing these guidelines for the establishment of TMAs in Auckland, which contribute to achieving the objectives of the RLTS. It is recommended that ARTA could provide a role for a TMA, much as it does for workplace and school travel plans. For workplace travel plans, ARTA has developed tools that can be used by businesses, organisations or consultants to develop a travel plan. With regards to schools, ARTA provides school travel planners who manage the development of travel plans. With regards to TMAs, the TravelWise tools could be adapted to help the TMA in the initial stages of set up, through to launching the TMA. Once launched, it is envisaged that the TMA D-24

80 could continue to receive advice from ARTA on TDM, public transport services and travel planning matters. Territorial Authorities Given the key role of Territorial Authorities (TAs) in a wide range of transport issues within their areas, TAs should be active stakeholders in the process of establishing TMA feasibility, and active participants in TMAs that may be formed in the TA. TA participation can take a variety of forms, from taking a leadership role in exploring TMA feasibility (providing technical assistance, seed funding, etc.) to being an active member of the TMA s decision-making body. Where TA offices are located within a TMA area, the TA may participate in the TMA as a major employer within the area. Importantly, TAs are also likely to play a critical funding role with TMAs, representing a TMA as the eligible recipient of any LTNZ funding requests. Business Associations Business associations can play a key role in the structure of TMAs. Often they are the key instigator for a TMA being set up and they are fundamental in representing the interests of the local businesses and their employees, i.e. commuters. Further, as business associations are established organisations with existing relationships with businesses in an area, they can become good homes for a TMA (avoiding the need to set up another stand-alone entity, and allowing for cross-pollination of issues relevant to local business). 3.5 Funding TMAs in Auckland In the Auckland context, there are essentially two main categories of TMA funding: private and public. As public-private partnerships, most TMAs should develop a revenue stream which blends both business and government funding. Primary options for funding TMAs in Auckland are described below. However, like the TMA concept itself, individual areas should remain free to design unique funding concepts in their areas. Private Funding Funding from area business owners, property owners, and major employers is an essential component of the TMA concept. As public-private partnerships, some or all of the TMA s funding should be generated by organisations within an area (with allowances for initial startup phases where government funding may make up a large portion of funding). While private funding is essential as a measure of business commitment, support, and ownership for a TMA, there are a wide range of options for generating such revenue. An initial distinction in private sector funding is whether revenues come only from TMA participants (in the form of membership dues, for example), or from all businesses or property owners within the defined TMA area (through a special rate, for example). In the first case, only interested parties participate in and fund the TMA, and as a result, only these entities (and their employees, residents, etc.) receive the direct benefits of TMA programmes. In the second case, all entities (and their employees, residents, etc.) in an area D-25

81 are effectively de-facto members of the TMA, with TMA services available area-wide. In some cases, a blend of these two funding options is possible, with a baseline of services available area-wide (funded by a special rate, for example), and supplemental services available only to entities paying an additional TMA membership fee. Funding via membership dues can take a variety of forms, and offers the prospective TMA a variety of advantages and disadvantages. Individual areas should examine market conditions, and business feedback, within their areas to determine if dues are feasible, and what dues schedule is most appropriate. Dues structures should provide for dues categories for various member types (such as employers, developers, and governments), along with graduated fees for various organisational sizes. For example, dues could be structured by number of employees (e.g., $ x per employee, or $ x for organisations with 1-25 employees, etc.), by building/site size (e.g., $ x per square metre), or other methods. Government organisations are often TMA members, and therefore may also pay membership fees. If a government agency is also an employer within the TMA area, they would likely pay dues just as other employers in the area would. If governments are simply a TMA participant, dues should be considered based on other factors, such as whether the agency is providing grant funding to the TMA and whether the agency is a voting member of the TMA s decision-making body. The advantage of using membership dues as a revenue source is primarily one of ownership and commitment. The TMA must continually demonstrate value to members on par with membership dues, and dues-paying members are therefore often more invested in the TMA s services and success/failure. The disadvantage of membership dues relates to the heavy administrative burden on the TMA staff to seek and maintain memberships in the TMA annually. For small organisations, this task can take up significant staff resources, diminishing the ability of the organisation to implement the very programmes that would provide value to members. Another funding source available to TMAs involves specific fee-for-services offerings. In this case, the TMA may offer (potentially supplemental) direct services to an organisation within their area. For example, the TMA may conduct a detailed site analysis for an organisation, developing specific strategies and implementation plans for one organisation (above and beyond the level of service required by the average organisation within the area). In terms of revenue sources derived from the entire TMA service area, targeted rates (or special rates), where the local businesses have a majority agreement to apply additional rates in their area, could be considered for funding a TMA (as well as other purposes). Such rates are collected by the local TA, and polling is required as part of the establishment phase to determine the level of support from businesses in the area. Increasingly, these special rate districts are being referred to as Business Improvement Districts (BIDs). Decisions affecting BID revenues are usually made by a Board consisting of private property and business owners. To deliver day-to-day services, a BID may have its own staff or may contract with a business district management organisation. Part of the revenue collected would be used to D-26

82 fund the TMA. This approach provides guaranteed funding and does not require the steady effort of collecting membership dues. A Role for Business Improvement Districts (BIDs)? Auckland already has several BIDs, including eight BIDs currently in Manukau City, ranging in size from 30 to more than 1,500 businesses. Manukau City Council s Business Improvement District Policy, established in 2005, is based on international models to improve the economic, social and cultural vitality of defined areas within the city. The policy enables additional funding to be directly applied in the area it is collected from, for initiatives including security and maintenance, graffiti control, beautification projects, events and tourism initiatives, marketing and promotional activity, business recruiting, signage, coordination of precinct (e.g., appointing someone to coordinate all activities), child care facilities, horticulture and retail improvements. The funding collected could also be put towards the development and running of TMAs for each of these areas. Internationally, trends suggest greater linkages between BIDs and TMAs. Public Funding TMAs can be funded entirely by private sector funds. However, in order to engage in a true public-private partnership, and to be able to leverage private sector investments, most TMAs will likely pursue some level of public funding. TMAs are not currently eligible as direct recipients of government funds within Auckland, and thus will need to work with local TAs to developing funding proposals and agreements. For joint private-public TMA partnerships, TAs can apply (through ARTA) for funding from LTNZ towards TDM projects, for which the set up of a TMA could be applicable. For example, North Shore City Council (NSCC) applied for funding for a TDM study for the North Harbour Industrial Estate. This study followed typical processes that might be followed for setting up a TMA. Further funding could be sought by the TA for works that the TMA considers necessary to realise their goals, if this is included on the TA s works programme. It should be noted that 100% funding is not provided for TA projects (currently, it is up to 75% for TDM projects), and the remaining funding would need to be sourced from the TA, through special or targeted rates, or from the local businesses or members of the TMA. The 2006/07 Auckland LTP is the basis for requesting government funding for land transport and also includes ARTA's view of the transport issues facing the Auckland region and priorities for funding. The Auckland LTP is the means by which this funding request is made to LTNZ and also gives guidance on priorities for future years' funding allocations. D-27

83 ARTA has identified the following key issues for the Auckland land transport system from the RLTS and nationally significant issues identified by LTNZ: > Congestion and unreliable travel times > Lack of transport choice increases reliance on private cars > Need for integration between land use and the transport system > Environmental sustainability > Public health. Ongoing costs such as maintenance and passenger service contracts have the first call on available funding. The remaining funding is used for improvement projects, and is allocated to the highest priority projects using the following criteria: > The seriousness and urgency of the issue being addressed (based on the issues above) > The effectiveness of the proposed solution (to deliver ARTA's goals, RLTS objectives and to meet the requirements of the Land Transport Management Act) > The economic efficiency of the proposed solution (calculated using LTNZ s Economic Evaluation Manuals). The above method is the same as that used by LTNZ to allocate funding nationally, but has been customised by ARTA for Auckland conditions. Volume Two of Land Transport New Zealand s Economic Evaluation Manual (EEM) covers economic efficiency evaluation of demand management and transport services proposals for land transport, including travel behaviour change. Chapter 2 of the EEM provides specific information on transport demand management. The EEM recognises that the cumulative effects of TDM strategies can be significant. The reader is directed to the manual for further details of how to undertake an assessment. Please see: In addition, community grants could be applied for. The Department of Internal Affairs website includes references to possible sources: Index?OpenDocument The Community Development Scheme is one of the Crown-funded schemes administered by the Local Government and Community Branch of the Department of Internal Affairs. The purpose of this scheme is to support communities to work together in new ways, to be innovative and generate their own solutions to local issues, and to become more self-reliant and resilient. The scheme is designed to support community-driven projects, that will enable D-28

84 people to come together, build trust and begin the process of working towards finding their own solutions to the issues they face. The Community Organisation Grants Scheme (COGS) was established in 1986 to provide essential support to not-for-profit, voluntary and community organisations. Most grants are in the order of $3,000 with a few special projects receiving $20,000. The Significant Community Based Projects Fund (SCBPF) has been established to support community-based projects and events of regional and national significance, where other methods of funding have been exhausted. They must have a range of benefits contributing to regional and/or national outcomes with particular reference to: arts, culture and heritage, sport and recreation, tourism, conservation and the environment, and economic development. In most cases, TMAs should seek to establish a blended revenue stream, including a variety of both private and public sector funds. Government funding may constitute the majority of TMA funding in the early years of operation, but private sector funds should ultimately become a solid portion of TMA revenue over time. 3.6 Assessing TMAs in Auckland This section has outlined a variety of general considerations relevant to developing TMAs in Auckland. Individual areas within Auckland that are exploring TMA formation should review both the international lessons learned (Section 2), and the issues presented in here in Section 3. However, by their nature, TMAs must emerge from the local context, with key stakeholders in an area assessing local conditions and local interests to determine whether a TMA may be appropriate, or if other organisational options make more sense. The following section offers a tool for the first few steps forward in that self-assessment process. 4. TMA Self-Assessment Tool The following sections offer a series of self-assessment tools intended for use by stakeholders in areas interested in exploring the potential value of a TMA, or other organisational model, for developing and implementing transport management strategies. This self-assessment process follows a standard sequence of steps for TMA assessments: Step One Big Picture Scan Brief scan of area conditions Is a TMA needed? Is a TMA the best organisational option available? If yes/maybe, go to Step Two Step Two TMA Feasibility Study In-depth analysis of area characteristics, transport conditions, stakeholder commitment, and funding If feasibility study supportive, go to Step Three Step Three TMA Formation Plan Development of three year business plan outlining organisational goals, objectives, and tactics Once complete, go to Step Four Step Four TMA Operation Initiate TMA operations Launch TMA programmes and services D-29

85 4.1 Step One Big Picture Scan The Step Two TMA Feasibility Study (below) requires a relatively detailed assessment process, involving data gathering, stakeholder meetings, and consensus building. The intent of this step, the Big Picture Scan, is to first be sure that a TMA holds enough potential for an area to warrant the effort required in Step Two, and to briefly explore the potential of whether other alternatives may address area needs just as effectively. To begin, answer each of the following big picture questions by ticking the appropriate box to the right. Big Picture Questions Yes Maybe No Is your area (currently or as planned) distinct, clearly defined, and well known? Is the area growing, or do plans call for strong growth within 5 years? Are there (or do plans forecast) transport challenges within the area? If answers yes/maybe, move to the step below. D-30

86 Area Characteristics (Only a sample of illustrative scenarios ) Suburban area with few major activity clusters and no distinct, well defined boundaries. Retail district with very few medium/large enterprises (25+ employees). Mixed-use retail/entertainment district with several large enterprises and many small enterprises/shops. Significant new development district with few/no other major businesses in the adjoining areas. Well defined business/commercial district with solid concentration of medium/large enterprises. Cluster of institutions, such as hospitals/universities. Individual, Site-Based Travel Plans TDM Implementation Options Informal Network SSSM, Transport Centre TMA Explore development and implementation of individual, site-based travels plans for medium to large enterprises. Explore regular meetings of an informal network to exchange and coordinate Consider development of Transport Centre led by 1-2 private sector or government entities, or Go to Step 2 (next page) transport strategies. go to Step Two to evaluate TMA feasibility. D-31

87 4.2 Step Two TMA Feasibility Study The TMA Feasibility Study process is intended for areas with sufficient interest and capacity to conduct a relatively intensive and objective assessment of TMA feasibility for a given area. The goal of the feasibility study process is to ensure, to the greatest extent possible, that a TMA formed in an area will be successful and sustainable. The process involves gathering relevant data, bringing together area stakeholders that are potential TMA participants, conducting individual interviews or area surveys (as needed), and any other steps necessary to address each of the criteria outlined below. The feasibility criteria below were formulated over the past ten years through experience working with over 60 TMAs internationally. The criteria have been tailored for the Auckland context. Review each of the criteria for TMA success below, and tick the appropriate box for the area under consideration. A summary worksheet follows to tally results. Area Characteristics First, review the following general characteristics of your area. Target Market Size As an organisational framework fostering collaborative solutions to transport issues, TMAs involve administrative overhead and related burdens associated with sustaining organisational operations. As such, a TMA s service area must be large enough to justify a dedicated organisation for the area. Additionally, some TDM strategies (particularly ridesharing) rely on sufficient market size for success. Smaller areas can still hold potential for TMA formation, but should be able to demonstrate strong ratings in other categories (e.g., rapid growth plans, highly committed stakeholders). Note: The term target market refers to the intended travel markets for the TMA s services (e.g., employees, students, shoppers). The intended target markets for TMA services should be the basis for assessing market size below. Tick appropriate Rate your area based on the criteria below: box below: Rating High Medium Low > 25,000 people. 7,500 25,000 people. < 7,500 people. D-32

88 Distinct Centre or Corridor TMAs area designed to address transport issues for clearly defined and well known centres or transport corridors. These areas often share common transport characteristics, which facilitates collaboration between area stakeholders. While the area does not need to be defined by hard boundaries, a majority of stakeholders should agree on the general area and perceive a degree of common identity within the area. Tick appropriate Rate your area based on the criteria below: box below: Widely recognised centre or corridor, with a clear perception of High common, shared identity among stakeholders. Locally known area, or emerging area, yet lacking current Medium perception of common, shared identity among stakeholders. Poorly defined area, not consistently recognised as a distinct Low centre or corridor. Rating Economic Development TMAs are most successful in areas where significant economic development is occurring now, or in a built-out area with significant business activity. TMAs are not well suited to areas in economic decline (unless transport problems are the principle reason for the decline), nor are they well suited to areas where growth is not anticipated within the next five years. Areas outlined as focal points for regional growth in policy documents, or areas with major new land use (re)development projects, can represent excellent TMA opportunities. Tick appropriate Rate your area based on the criteria below: box below: Rapidly growing area, with strong public policy support for High continued growth. Growing area, or areas in decline due specifically to transport Medium problems. Stagnant or declining area. Area without public policy support for Low continued growth. Rating Area Transport Characteristics Next, assess the characteristics of the transport network in your area. Typically, sufficient data is available to address each of the criteria without needing to gather new field data. For each of the criteria, the level of detail required should match the level of interest in such data by participating stakeholders. However, in most cases, highly detailed analyses are not needed to assign a high-medium-low rating for each. Lastly, pay attention to both quantitative- and perception-based assessments. For example, in some cases, perception of congestion can be just as relevant to area stakeholders as standard congestion measures (i.e., V/C ratios, intersection LOS). D-33

89 Congestion Existing traffic congestion on roads or highways within and leading to the potential TMA service area is key motivation for TMA formation. Traffic congestion provides varying types of motivations to action among public sector entities, businesses, developers, property managers and individual travellers. Addressing these various motivations is an important strength and a key role for a TMA. Though there are quantitative measures of traffic congestion (i.e. vehicle/capacity ratios, intersection level of service), qualitative assessments from those affected by congestion are also important, as these perceptions can negatively impact area economic viability. Tick appropriate Rate your area based on the criteria below: box below: Existing and growing congestion on a majority of major roadways High within, or leading to, the area. Emerging or anticipated congestion; moderate/low stakeholder Medium perception of the impacts of congestion. Few congestion issues; low stakeholder perception of the impacts Low of congestion. Rating Transport Options In developing TDM strategies to encourage uptake of alternatives to driving alone, the availability of viable alternatives (e.g. public transport, bicycle/pedestrian facilities) within the area impacts the potential for the success of TMA programmes. Tick appropriate Rate your area based on the criteria below: box below: High High-quality transport options available. Rating Medium Low Medium-quality transport options available. Few or poor-quality transport options. Parking Parking availability, parking pricing, and parking management (i.e. time restrictions) play a major role in determining individual travel decisions. As such, areas with abundant and/or free parking are challenging environments to encourage travel behaviour change. Alternatively, stakeholders and travellers in areas facing parking challenges are more likely motivated to explore the types of transport solutions potentially offered by TMAs. Tick appropriate Rate your area based on the criteria below: box below: Parking supply shortages, with parking management and/or High parking pricing policies in place. Either moderate parking supply shortages or parking management Medium and/or parking pricing policies in place. Low Adequate, free, and unmanaged parking. Rating D-34

90 Stakeholder Transport Challenges The degree to which transport challenges impact area employers, developers, or other stakeholders plays a major role in motivating involvement and support for a TMA. Long-term commitment to a TMA is likely when the TMA is able to address issues directly impacting area stakeholders. For example, transport challenges may create problems recruiting and retaining quality employees to the area, or congestion and parking issues may impact the appeal of local retail destinations. Tick appropriate Rate your area based on the criteria below: box below: High Significant challenges directly impacting area stakeholders. Some challenges impacting stakeholders, or challenges only Medium indirectly impacting stakeholders. Low Area stakeholders not impacted by transport issues. Rating Stakeholder Commitment Assess factors relating to existing and likely TMA stakeholders in your area. History of Involvement If public and private sector stakeholders have previously undertaken successful collaborative action on past challenges, transport or otherwise, the formation of a TMA is often easier, and success more likely. For example, area businesses may have previously come together to develop a coordinated plan to improve security with their area, or developed a joint marketing campaign for their area. Tick appropriate Rate your area based on the criteria below: box below: Recent experience with collaborative partnerships involving public High and private sector stakeholders. Some experience with collaborative partnerships, on a limited scale Medium or with limited private sector commitment. Low No previous experience with collaborative partnerships. Rating Existing Partnership Organisation Formal TMAs require significant effort linked to the formation of a new not-for-profit organisation. In areas with existing partnership organisations already in place (business associations, chambers of commerce, etc.), a new TMA can become a programme of, or a division of, an existing group, reducing administrative burdens. Tick appropriate Rate your area based on the criteria below: box below: Existing and active organisation in place; interest from the High organisation in addressing transport issues. Existing organisation in place, yet not active or without interest in Medium address transport issues. Low No existing partnership organisation in place. Rating D-35

91 Core Group Participation The TMA feasibility process often involves bringing together interested stakeholders from the area to discuss transport issues and their impacts. Active interest and commitments to on going participation from a core group of stakeholders is a critical indicator for TMA success in an area. This group should include major stakeholders from the area that can commit time and resources to a long-term programme, even if there is no "payoff" in the first few years. The group should also have the capacity to elicit support from other public and private sector leaders. Tick appropriate Rate your area based on the criteria below: box below: Core group forms, with solid commitments to on going support of a High TMA from major stakeholders. Core group still coming together, with some commitments to Medium support of a TMA (support from major stakeholders lacking). Low interest, little on going participation; few solid commitments to Low on-going support from stakeholders. Rating Champion One factor cited for the early success of many TMA formation efforts is the presence of a community leader, developer, or an individual business that makes a strong, personal commitment to promote and facilitate the creation and formation of the TMA. One highly motivated (and influential) champion is extremely valuable to TMA success. Caution is urged in areas with a strong champion, yet few other supporters (as a single champion can leave an area or shift focus), or in areas with only public sector champions. In new development areas exploring TMA formation, the primary property developer involved in the area should be a solid champion. Tick appropriate Rate your area based on the criteria below: box below: High Influential private sector champion currently involved. Medium Potential champion(s) emerging. Low No clear champions involved. Rating Financial Sustainability Assessing financial resources for TMA operations should look to both start-up and ongoing, multi-year funding streams. New TMAs sometimes face a chicken and the egg dilemma, where business stakeholders look to the ability of a TMA to deliver value for their investment, yet the organisation may not deliver value until it gets off the ground (or even for one to two years following formation). As such, government seed funding, or support from an existing partnership entity, is often crucial. However, in any case, realistic assessment of long-term funding remains essential. D-36

92 Start-up Resources The early years of TMA operations involve administrative and organisational development tasks. As such, expectations for major impacts on transport issues within an area should be carefully managed. During this initial period, start-up or seed funding and/or in-kind resources are critical to allow a TMA to fully mature. Tick appropriate Rate your area based on the criteria below: box below: Revenue identified; firm commitments in place. High Rating Medium Low Potential revenue identified; few or very short-term commitments in place. No specific revenue sources identified. Multi-year Revenue Sources As is true for many organisations, establishing sustainable revenue sources is critical not just to survival, but to maximising organisational potential. Historically, too many TMAs relied primarily on annual membership dues. Unfortunately, this arrangement often prioritises fundraising over programme implementation, reducing organisational effectiveness. A TMA should not rely exclusively on membership dues or short-term grants to sustain and grow an association, though these funding areas can be important elements of an overall budget. The highest probability of success arises when the TMA programme obtains multiyear funding commitments from a special rate or improvement district, or through a local development assessment or contribution. Tick appropriate Rate your area based on the criteria below: box below: High Multi-year funding identified, with 3+ year commitments. Medium Year-to-year funding identified; future year funding probable. Low No funding identified; no funding beyond year one identified. Rating Review the ratings allocated for each of the proceeding criteria, and transfer the ratings to the following summary worksheet. D-37

93 TMA Feasibility Summary Worksheet Criteria for TMA Success High Medium Low Area Characteristics Target Market Size Distinct Activity Centre or Corridor Economic Development Congestion Transport Characteristics Transport Options Parking Stakeholder Transport Challenges History of Involvement Stakeholder Commitment Existing Partnership Organisations Core Group Participation Champion Funding Start-Up Resources Multi-year Funding Sources Totals: The summary worksheet provides the ability to get a full sense of the likely feasibility of forming a successful TMA in your area. Additional considerations include: The TMA Feasibility Assessment process is not a science. As such, no precise parameters for total ratings are given here. Instead, a balanced approach is more appropriate. An area exhibiting mostly high and medium ratings is likely a good TMA candidate. Conversely, an area with mostly medium or mostly medium and low ratings should likely examine alternative organisational options (or delay further TMA exploration until conditions change). With a few exceptions, the success criteria are not meant as individual determinants of TMA feasibility. For example, a low rating in one area does not mean a TMA cannot work in an area. However, low ratings should be balanced out by other high factors that give stakeholders in an area a solid level of confidence in the likely success of a TMA. The grey-shaded boxes in the summary worksheet are the exceptions to the above point. If an area is rated low for one of the grey-shaded criteria, extreme caution (and strong justifications) should be used in pursuing a TMA. D-38

94 Conducting a TMA Feasibility Study As described in the introduction to this section, the TMA Feasibility Study process should be a relatively intensive and objective assessment of TMA feasibility for a given area. The first six evaluation criteria (target market size through to parking) can largely be determined through examination of existing quantitative data and local stakeholder knowledge of the area. However, the remaining criteria require more extensive research on local perceptions of issues, the degree of impact transport issues are having on area stakeholders, expressions of interest in supporting and helping to fund a TMA. Typically, this research is completed through one-on-one outreach to major stakeholders (interviews, surveys, etc.), as well as through group meetings where the potential for beginnings of a collaborative atmosphere may emerge. While there is not a single model for who should lead the feasibility study process, the process must accurately gauge the level of interest and need from both business and government organisations in the area, and must conclude with a truly objective determination of whether a TMA is feasible for the area. Many areas therefore utilise objective, third-party entities to manage the feasibility study process. 4.3 Step Three TMA Formation Plans If the TMA Feasibility Assessment supports TMA formation, the next step in the TMA process involves developing a business pan to guide the launch of the TMA, as well as the initial years of operation. Typically, a TMA business plan will outline the sequential formation steps remaining (see below for guidance), mission, goals and objectives for the TMA, as well as business plan (with quarterly action plans) covering a three year period. In most cases, the third year of the plan will call for a renewed strategic planning effort, and drafting a new three year business plan. Suggested guidelines for the establishment of TMA for an existing area and for a greenfields site are provided below. These guidelines are only illustrative in nature. As every TMA area is different, each area should pursue formation steps that make sense for their specific areas. D-39

95 Table Suggested Guidelines for the Formation and Operation of TMAs Existing Area 1 Set up an interim board of directors from interested parties (local councillors, local authority officers, public transport operators and local business representatives) 2 Directors must agree to the business plan prior to the launch of the TMA and prior to registration as a not-for-profit company Greenfields Site Establish a board of directors from interested parties (local councillors, local authority officers, public transport operators, business representatives and community representatives from the new residents) Directors must agree the business plan prior to the launch of the TMA and prior to registration as a notfor-profit company 3 Write Memorandum and Articles of Association to establish the operating principles of the company 4 Elect Chairman, Vice Chair, Secretary and Treasurer 5 Vote to agree business plan and budget 6 Write job description for transport management coordinator and supporting staff 7 Establish line management and transport management coordinator accountability 8 Launch the TMA and raise awareness through local media 9 Establish database of businesses and organisations in defined geographical area with information regarding size, location, parking availability, whether or not they have a travel plan in place, etc. 10 Contact the businesses, sell the TMA concept undertake staff travel surveys of those without travel plans in place 11 Seek further funding opportunities to ensure the continuity of the TMA Establish database of all participating organisations in the new development area with information regarding size, location, and parking availability (this list is not exhaustive) 12 Prepare travel plans for all participating organisations (including residential developments) 13 Liaise with existing travel plan coordinators, local authorities and public transport providers to make best use of demand management measures already in place Liaise with existing travel plan coordinators, local authorities and public transport providers to make best use of demand management measures already in place within the vicinity of the development area 14 Continue awareness raising campaigns coordinated with local authority programmes and nationwide events 15 Monitor effect of travel plans and sustainable transport measures through annual automatic traffic count data and travel to work staff surveys and residential travel surveys. D-40

96 Appendix A Transport Policy and Strategies New Zealand and Auckland Regional Land Transport Strategies The New Zealand Transport Strategy (NZTS) promotes a holistic, multi-modal view of transport that encompasses passenger transport, cycling, walking and travel demand management. The NZTS recognises that transport must contribute to economic development, safety and personal security, access and mobility, public health, and environmental sustainability. The latest review of the RLTS document was released by the Auckland Regional Council (ARC) in November It adopts seven objectives to achieve the RLTS goal of a transport system, which enhances the Auckland region as a great place to live, work and play. The first five objectives incorporate the national transport strategy objectives while the remaining two provide an Auckland focus and include an economic efficiency dimension. The seven objectives are as follows: > Assisting economic development > Assisting safety and personal security > Improving access and mobility > Protecting and promoting public health > Ensuring environmental sustainability > Supporting the Auckland Regional Growth Strategy (RGS) > Achieving economic efficiency. The 2005 review of the RLTS provides a focus on measures that will support the Auckland RGS by reducing reliance on private cars and providing high-quality alternatives. There is recognition in the RLTS that it will be impossible for Auckland to build its way out of congestion simply by providing more road capacity. Rather, transport benefits will come from progress towards completing the strategic road network combined with incremental, but substantial improvements to public transport and travel demand management. Travel demand management is a constant strand through the RLTS and aims to modify travel decisions so that more desirable transport, social, economic and/or environmental objectives can be achieved and the adverse effects of travel can be reduced. The RLTS sets out a number of policy approaches towards managing travel demand. These include D-A.1

97 supporting the RGS, focus on intensification where strong public transport links exist or can be established, providing realistic transport choices, influencing travel choices and careful management of parking provision in a manner which supports the broader based and more integrated approach to transport efficiency. Chapter 8 of the RLTS refers specifically to travel demand management and addresses means to reduce the need to travel, providing for travel choices, influencing travel choices and pricing. Initiatives to influence travel choices include school travel plans, centre-based workplace travel plane, community travel initiatives and improved public transport information 8. The centre-based travel plan target is to achieve a 12% average reduction in car trips to work/study in organisations totalling 90,000 employees/students by The target for community-based travel initiatives is a 3% average reduction in local car trips made by 60,000 households. A number of measures are described for providing relevant information to influence travel choices. These include ensuring that relevant information is easily accessible, raising awareness and encouraging transport alternatives to the car. Auckland Regional Growth Strategy Objective Six of the RLTS is to support the RGS, which was released in November The RGS sets a vision for how Auckland s growth could be managed to 2050 with a population of two million. Broadly, the aim of the RGS is to manage the majority of future growth into well designed urban growth centres and corridors. The growth strategy concept is for more compact cities with 70 per cent of new growth occurring within the existing metropolitan area and concentrating this growth in more intensive mixed-use centres along northern, western, southern passenger transport corridors and main arterial routes. The strategy for more intensive development is to support a greater range of local services and facilities, increase the opportunity for safe walking and cycling and help support passenger transport. This approach needs to be supported by high standards of urban design. Auckland Transport Plan The Auckland Transport Plan (ATP) is the Auckland Regional Transport Authority s (ARTA) main way of meeting its statutory obligation to give effect to the Auckland RLTS. Bringing together the strategies, plans, projects and packagies developed by ARTA, local authorities, Transit New Zealand and ONTRACK, it supports the delivery of an integrated, safe, responsive and sustainable transport system for the Auckland region. To transform the RLTS policies and strategies into actions the ATP has established a multi-modal, multiagency, long-term implementation transport plan, which outlines priorities and phasing of land transport packages and projects over the next 10 years, within a long-term context. 8 RLTS, 2005, Section D-A.2

98 ARTA Sustainable Transport Plan A key conclusion of Auckland s RLTS is that building roads cannot, on its own, reduce traffic congestion or deliver a transport system that meets wider environmental and social goals 9. To meet the objectives of the RLTS, ARTA developed a Sustainable Transport Plan (STP), which comprises a range of travel demand management programmes. Key actions identified include improving walking and cycling networks, implementing travel plans in schools and workplaces and implementing town centre transport plans. The 2016 target set in the RLTS for the ARTA workplace travel plan programme is to: Achieve a reduction of 3,500 cars from the morning peak, by working with organisations totalling 90,0000 employees. 10 A key means of achieving this target will be increasing the uptake of workplace travel plans across the Auckland region. The aim of a workplace travel plan is to increase the use of buses, trains, cycles and other sustainable transport options and reduce dependency on the car for commute and business journeys. ARTA states in its Sustainable Transport Plan that it aims to complete 30 workplace travel plans [in the Auckland region] per year for the next 10 years. Such travel plans could be developed under the umbrella of a TMA, where the TMA provides or coordinates the supporting services, marketing and education of typical travel plan initiatives. Other sustainable transport activities, including ridesharing, car pooling and tele-working are mentioned in the plan. Mass marketing campaigns are not provided for, due to recognition of the need to provide people with better choices before asking them to change their behaviour. The plan acknowledges that new initiatives will be developed and recommends that provision be made for funding at the national level to allow further demand management initiatives to be developed. The STP refers to research being undertaken to assess the feasibility and success criteria for the establishment of TMAs in the Auckland region, from which these guidelines will result. ARTA Regional Passenger Transport Network Plan The Passenger Transport Network Plan was finalised in This states ARTA s mission as follows: To deliver a world-class transport system that makes Auckland an even better place to live, work and play. The plan includes a long-term overview, looking ahead 40 to 50 years, but it relates primarily to the 10 year horizon, up to Sustainable Transport Plan, 2006, Auckland Regional Transport Authority, p 5 10 Sustainable Transport Plan, 2006, Auckland Regional Transport Authority, p 38 D-A.3

99 The major components of the plan include: > Significant investment in the rail network, including electrification, and various network, infrastructure and service upgrades > Completion of a number of key bus rapid transit projects > Implementation of Quality Transit Network bus services between key destinations > Improvement to ferry services and infrastructure; and > System improvements such as integrated ticketing. The expected outcomes of the plan are consistent with those of the RLTS, including the aim that 48% of people travelling into the Central City by motorised modes in the morning peak period will be by passenger transport. This compares with 49% sought by the RLTS. Auckland Land Transport Programme The Auckland LTP is the basis for requesting government funding for land transport and also includes ARTA's view of the transport issues facing the Auckland region and priorities for funding. The Auckland LTP is the means by which this funding request is made to Land Transport New Zealand (LTNZ) and also gives guidance on priorities for future funding allocations. ARTA has identified the following key issues for the Auckland land transport system from the RLTS and nationally significant issues identified by LTNZ: > Congestion and unreliable travel times > Lack of transport choice increases reliance on private cars > Need for integration between land use and the transport system > Environmental sustainability > Public health. Ongoing costs such as maintenance and passenger service contracts have the first call on available funding. The remaining funding is used for improvement projects, and is allocated to the highest priority projects using the following criteria: > The seriousness and urgency of the issue being addressed (based on the issues above) > The effectiveness of the proposed solution (to deliver on ARTA's goals, RLTS objectives and to meet the requirements of the Land Transport Management Act) > The economic efficiency of the proposed solution (calculated using LTNZ s Economic Evaluation Manuals). D-A.4

100 The above method is the same as that used by LTNZ to allocate funding nationally, but has been customised by ARTA for Auckland conditions. Development Consent Processes The environmental impacts of activities are primarily controlled by the Resource Management Act (RMA) through the requirement to apply for resource consents as well as through any conditions for permitted activities included in the relevant regional or district plan. Where an activity does not fully comply with all aspects of the district plan rules, a traffic impact assessment might be required. A resource consent provides permission to carry out an activity so long as it complies with any conditions attached to the consent. There have been instances where a territorial authority has included a condition of consent as requiring the consent holder to develop a travel plan 11. The effective integration of land use and transport is a requirement of the Local Government (Auckland) Amendment Act, the Land Transport Management Act, and Regional Strategic Documents. Proposed Plan Change 6 has incorporated method into the Regional Policy Statement requiring an Integrated Transport Assessment (ITA) (previously called a Transport Audit) for major trip generating activities. (Please note that ARTA is not now seeking that travel plans be required by all new schools and proposed major trip generating activities that require a resource consent). An ITA is a comprehensive review of all potential transport impacts from a proposal, both positive and negative, with measures to address the impacts and to align land use and transport planning decisions at both a local and regional level. The ITA will provide information on how a proposed development will function in terms of its accessibility by all modes, it will help to ensure that development is located, designed and managed to promote access by a choice of modes and it will identify and mitigate any adverse impacts on the transport system. The ITA is seen by ARTA as being a successor to the traffic impact assessment and ARTA anticipates that it will be adopted by the Auckland regional territorial authorities in their district plans. Summary In summary, the RLTS emphasises the need for measures that encourage uptake of transport modes other than the private car, making travel more sustainable. A summary of objectives and strategies is provided on the following page For example, the Mansons Development, Corner Fanshawe/Halsey Streets, Auckland City 12 Source: Auckland Regional Land Transport Strategy D-A.5

101 Summary of objectives and strategies Objective Reduce need to travel Strategy Land use intensification Mixed-use developments Telecommunications infrastructure Provide for travel choices Allocation of road space (to passenger transport, walking, cycling, HOVs) Improved passenger transport services Improved walking and cycling networks Influence travel choices School travel plans Workplace travel plans Town centre travel plans Improved information on travel options Pricing Regionally/nationally agreed parking controls Congestion pricing Tolling of existing roads The effective integration of land use and transport is a requirement of the Local Government (Auckland) Amendment Act, the Land Transport Management Act, and Regional Strategic Documents. The relationship between land use and travel demands is increasingly recognised and is a cornerstone of the Auckland RGS, which seeks to encourage intensified development within key growth centres. More intense development also means that valuable land is used in a more active manner, rather than to accommodate car parking, which is essentially dead space. The Regional Policy Statement and District Plans are the primary relevant planning documents associated with obtaining appropriate land use intensification and mixed use developments. Mechanisms associated with pricing TDM initiatives are generally the matter of the Ministry of Transport (e.g. through the Land Transport Pricing Study), although local councils do include parking controls within their District Plans. Providing for travel choices and influencing travel choices is undertaken by ARTA and the TAs. D-A.6

102 Appendix B Transport Demand Management Terminology TDM tends to set the overarching strategy in which various transport management initiatives and incentives operate. The definitions below have been arranged in the hierarchy of overarching strategy, which shapes individual travel plans (or transport management plans), which in turn coordinate different travel plan management measures. Different coordinating and funding bodies such as travel plan coordination centres and TMAs can be established within the overarching TDM or mobility management strategy to coordinate area-wide transport management measures and individual travel plans. The following definitions explain terminology that is regularly used in TDM programmes around the world and thereby often incorporated into TMA discussions. Transport Demand Management (TDM) TDM describes a wide range of programmes and services that make the most efficient use of existing transport facilities by managing the actual "demand" for travel on these facilities. Using strategies which promote alternative modes, increase vehicle occupancy, reduce travel distances, and shift travel away from the most congested routes or travel times, TDM efforts can extend the useful life of transport facilities, enhance travel viable options, and reduce emissions. Mobility Management Mobility management is a broad concept, the objective of which is to reduce dependence on the private car for personal transport. The basic means of achieving this are offering better information about alternative transport modes and more attractive services. 12 The term mobility management is more commonly used in Europe while demand management or transportation demand management is used in North America and elsewhere to describe the same concept. Travel Plans A package of measures that aims to reduce the number of car journeys created by an individual organisation (or site) and provide people with greater transport choice. A travel plan is a package of measures aimed at promoting sustainable travel within an organisation, with an emphasis on reducing reliance on single occupancy car travel. [Travel plan]s must be tailored to the specific circumstances of [each] site. [They] should take into account factors such as the size and location of [the] organisation, or building; the number of 12 Mobility Management in the Nordic Countries, (NORDEN) Nordic Council of Ministers. Copenhagen 2005 D-B.1

103 staff employed; the number of visitors; and the number of deliveries or contractors servicing the building The Travel Plan Resource Pack for Employers, DfT (2002) D-B.2

104 Appendix C International TMA Web Links Transport Management Associations Airport Corridor Transportation Association Annapolis Regional TMA Bishop Ranch Business Park Buckhead Area TMA BWI Business Partnership City of Aspen TOPS (TMI) City of Glenwood Springs (TMI) Commuter Club Downtown Denver Partnership Downtown Minneapolis TMO Dulles Area Transportation Association Duwamish TMA Emory / Clifton Corridor TMA Greater Mercer TMA Greater Redmond TMA Greater Valley Forge TMA Hartsfield Area TMA Missoula in Motion North Natomas TMA The Rideshare Company South Main TMO South Natomas TMA Stapleton Area TMA TransManage (Bellevue TMA) Transportation Solutions The TMA Group TMA of San Francisco US 36 TMO D-C.1

105 Canada Smart Commute North Toronto, Vaughn Centre de gestion des deplacements de l'est (Est TMA) Willingdon Corridor Transportation Action Group (BEST) United Kingdom Sowton TMA Dyce TMO Mobility Centres ATC Bologna (Italy) Mobil Zentral (Austria) Mobidesk (Belgium) Mobilito (Austria) VCC Noord Nederland (The Netherlands) VCC Oost (The Netherlands) VCC Schiphol (The Netherlands) D-C.2

106 Appendix D International TMA Case Studies The following provides more detailed examples of three TMAs. These include the North Natomas TMA, which was among the first active TMA that is truly community-based, formed in advance of the development of the North Natomas Community in Sacramento, California. The TMA was established as the new community was planned. By contrast, the Sowton Industrial Estate TMA in Exeter, Devon, England was a TMA, developed to address existing problems. TMAs in Sacramento, California, USA 14 TMAs in Sacramento, California were established under a two-year grant programme provided by the California Department of Transportation (Caltrans) in an effort to facilitate local involvement in solving local transportation issues and specifically commute problems. California is a very large and diverse state and Caltrans acknowledged that a broad brush approach to solving commute problems was limited and that a Transportation Demand Management Strategy is better implemented with local influence and implementation coming directly from the community. Caltrans intention in offering start up money was to attract and retain the private sector's participation in strategies to improve mobility and decrease congestion. The two-year grant provided base funding to hire staff and get the ball rolling, attracting additional membership and dues revenue from the private sector. Generally most businesses joined the TMAs for the benefits they offered; essentially promoting the regional ridesharing or car sharing programmes, often putting a personalised touch on the service. Soon thereafter, the City of Sacramento saw the benefit of including TMA membership as a trip mitigation option for new development. TMAs provided a more formalised structure for offering many of the mitigation options a developer could choose from (e.g. on-site employee transportation coordinator, public transport passes and sales/distribution, offering an emergency ride home programme, etc.). Developers were motivated to select the TMA membership mitigation option because it carried a greater weight (sufficient mitigation options needed to be selected to earn a set number of points ) and streamlined their efforts one TMA could offer an emergency ride home (ERH) programme instead of each individual tenant having to offer an ERH programme. Most of the TMAs in Sacramento were established on this basis, with a couple of exceptions, including the North Natomas TMA, details of which are provided below. 14 Information regarding the start up and implementation programme of the TMAs in Sacramento has been obtained via S Philbin from Deborah Maus, former Executive Director for the South Natomas TMA and from a paper presented at the 2004 ECOMM Conference in Lyon, France. D-D.1

107 North Natomas TMA The North Natomas TMA was among the first active TMA that is truly community-based and was formed in advance of the development of the North Natomas Community. The TMA was established as the new community was planned. The North Natomas TMA was set up as a tax district, voted into place by the handful of developers that owned the majority of the (then undeveloped) land that is now North Natomas. As with the other TMAs in Sacramento, the developers motivation was to streamline their compliance with the city's processes and requirements. The tax district was similar to the targeted rate available as a revenue generator in Auckland. The North Natomas Community Plan was the result of decades of collaboration among residents, environmentalists, planners, developers, business owners and others, resulting in the potential to be one of the most liveable communities in the USA. Located north of downtown Sacramento, the plan included acres that, at build-out, would include 32,500 dwellings with a population of 66,000 residents and 71,000 employees. The vision for North Natomas was a well integrated mixture of land uses interdependent on quality public transport services and other forms of transport. The North Natomas Transportation Management Association (NNTMA) is the fundamental component of the plan. The overall goal was to reduce trips and air pollution emissions by 35% on build-out in The North Natomas TMA is community-orientated with mixed use membership including commercial, business and residents. It is charged with providing commuter trip reduction and air quality mitigation services to support all residents and businesses in North Natomas. The TMA board, which was set up in 1999 consists of representatives from residential developers, homebuilders and residents, non-residential developers and existing businesses. In addition, the TMA coordinates with the Regional Transit, Sacramento Metropolitan Air Quality Management District, the City s Alternative Modes Coordinator, Natomas Manager, Special Districts staff, Sacramento Area Council of Governemnts and other Sacramento area TMAs. In the years 2002 and 2003 the TMA provided the following services: > A community shuttle pilot in partnership with developers, the City of Sacramento and Paratransit Inc > A neighbourhood electric vehicle (NEV) pilot programme in partnership with developers (similar to a car club) > NEV access through Discovery Park in partnership with Parks and Recreation > A walk to school pilot programme in partnership with Natomas Park Elementary School 15 Emerging Smart Growth Community Designed with a Transportation Infrastructure and a built-in Mobility Management Association. North Natomas Transportation Management Association ECOMM Conference Paper, Lyon, France. D-D.2

108 > Subsidised start-up of commuter bicycling for residents. > Establishment of a residential Mobility committee > Oversee development of the Natomas Bikeways/trail master plan > Development of a five-year business plan > Promotion of teleworking > Secured additional revenue > Advocated for the downtown Natomas airport light rail extension and express bus service > Implemented the biannual travel survey to evaluate programmes and track vehicle trip and air emission goals > Designed the new website to support facilitated services and programmes, and > Promoted the expansion of the Interactive Kiosk programme regionally. Funding for the North Natomas TMA was achieved by the city of Sacramento implementing a community financing district (CFD). In essence, this imposed and annual tax on the businesses and the residents depending on size, For example, a single family unit would pay US$18 per unit and a multi-family unit would pay US$14 per unit, offices would pay US$.06 per square foot, commercial property and retail would pay US$.10 per square foot, and industrial units would pay US$.03 per square foot and US$200 per acre for sports complex uses. However, the fast growing North Natomas community is overwhelming the funding resources available to the TMA to impact travel behaviour. They require even greater funding opportunities. This example demonstrates how start-up funding or seed funding can be used to initiate the TMA process whilst developer contributions and user dues can endure the continuity of the TMA. However, TMAs are most successful when implemented in partnership with all parties involved in trip generation and demand management, hence the involvement of developers, commercial businesses and residents. The TMA should therefore be managed by a board of directors who represent the interests of all these parties. Sowton Transport Management Association The Sowton TMA is a not-for-profit company limited by guarantee and established to deliver sustainable transport solutions through travel plans to the Sowton Industrial Estate business community. The Sowton TMA is an area-wide trip mitigation and travel planning coordination organisation, which has been established using guiding principles for the implementation of TMAs in the USA. It operates in an area that has been undergoing industrialisation since the mid-1960s. Many of the business that are registered members of the TMA have been in location for a number of years and in that time they have witnessed increased levels of D-D.3

109 congestion and parking problems. This is not a TMA designed for a new development area but a TMA that meets the needs of a well established community. The aims of the Sowton TMA are to: > Implement an overarching long-term sustainable travel plan for the area in and around the Sowton Industrial Estate > Reduce congestion during morning and evening commuter peak period traffic flows by 10% taking into account continued organic growth and the development of the site > Engage businesses on the estate such that they produce travel plans that lock into the over arching travel plan and reflect the overall objectives of the Sowton TMA. The Sowton Industrial Estate encompasses over 200 businesses, many of which are small and medium sized enterprises (SMEs). These in turn employ in the region of 15,000 staff. Since the launch of the Sowton TMA in February 2006, the TMA has attracted 40 member organisations that represent over 6,000 employees, over a third of the total work force for the area. Funding is provided by business sponsorship, limited local authority grants and assistance in kind (such as legal and accounting support from solicitors and accountants in the area). The Sowton TMA is also working in partnership with the local highway authority to ensure that new developments that require a travel plan as part of the planning process, are also required to pay commuted funds to the Sowton TMA to assist with the implementation of the travel plan. The Sowton TMA demonstrates a strong level of commitment to the implementation of travel planning initiatives in Exeter. It has been registered as a not-for-profit company limited by guarantee. It has published a business plan and is controlled by a board of directors who adhere to the operational guidelines which are set out in the Memorandum and Articles of Association. The model is now being rolled out to other areas with the UK Highways Agency showing a particular interest in introducing the TMA model to business parks and industrial estates that are located adjacent to the motorway and trunk road network. The Sowton TMA model is an innovative mechanism for the implementation of area-wide travel planning initiatives to mitigate trip generation. It encompasses partnership working in the true sense of the word since some of the funding has come from the local authorities, business community and developers. This TMA model operates on a much smaller scale to those studied in the USA and although it has not set up a transport coordination centre (e.g. as seen in Groningen) many of the lessons learned in both countries, have helped to shape this unique TMA model. D-D.4

110 E. Supplementary Document Four ARTA Guidance Note for Cycle Parking Facilities 2007 Acknowledgement...iii 1. Introduction The Vision Why the need for these Bicycle Parking Guidelines Who should use these Guidelines Types of Bicycle Parking Type One Customer/Visitor Short-Term Bicycle Parking Type Two Customer/Visitor Short to Medium-Term Bicycle Parking Type Three Public Long-Term Bicycle Parking Type Four Private Long-Term Bicycle Parking Type Five Temporary Bicycle Parking...6 Summary of Criteria Bicycle Parking Hardware General Requirements for all types of Bicycle Parking Hardware Bicycle Stands Vertical Mounted Bicycle Holders Bicycle Shelters (Bike Sheds) Enclosures (for Type Three and Type Four) Cycle Lockers Cycle Lockers at Public Transport (PT) Stations Bike Stations Temporary Bicycle Parking Future Bicycle Parking Options Lighting, Signage and Trip End Facilities Lighting...20 E-i

111 4.2 CCTV Signage Trip End Facilities Evaluation of Existing and New Public Bicycle Parking Evaluation Form Examples of Existing Cycle Parking Implementation Public Private Funding Sources Bicycle Parking Ratios Ratios for Bicycle Parking for Private Developments Public Transport (PT) Stations Town Centres Central Business Districts (CBD)...36 Reference Documents...38 APPENDICES: Appendix A Future Bicycle Parking Options Appendix B Audit Checklist Appendix C Example of Enclosure Access Agreement and Cycle Locker Lease Agreement E-ii

112 Acknowledgement We would like to thank the following parties and organisations for their assistance in developing these guidelines: > Auckland City Council Ina Stenzel and Clare Jephocate > Auckland Regional Transport Authority Bronwyn Coster, Toni Dale, Alison Jones, Rae-Anne Kurucz, Debbie Lang, and Jenny Tanner. > Cycle Action Auckland Bevan Woodward and John Gregory > Franklin District Council Dawn Inglis > Manukau City Council Steve Patton > North Shore City Council Richard Murray > Papakura District Council Alan Peddie > Rodney District Council Ahmed Khaled and Belinda Matheson > Waitakere City Council Sandy Mills. Note: Prices indicated are only to be used as a guide as at 1 June Please contact the suppliers direct in order to obtain a fixed quote. E-iii

113 1. Introduction 1.1 The Vision The Auckland Regional Transport Authority (ARTA) is committed to facilitating the implementation of a Regional Cycling Network. The network has been developed in collaboration with all of the seven Auckland Territorial Local Authorities (TLA s) and will comprise over 939km of connected cycle routes. The implementation of the regional cycling network will make cycling a safer and more attractive travel option thus working towards ARTA s aim of doubling the number of cycle trips by the year ARTA recognises that it is also important to ensure that there is regional consistency with facilities that will support the cycle network. Therefore, these guidelines have been developed in order to inform TLAs, education providers and private businesses/developers on how to and where to install bicycle parking. > These guidelines summarise the different levels of bicycle parking which should be implemented within Auckland, and the requirements for the different types of bicycle parking. The guidelines also include a list of products available from local suppliers. > Some TLAs would also like to ensure that all new developments include the provision for bicycle parking and other trip end facilities. Therefore, these guidelines provide a reference for TLAs until such time as these requirements are included in individual district plans. 1.2 Why the need for these Bicycle Parking Guidelines > These guidelines address the need for bicycle parking to be consistent and secure. > The design of bicycle parking facilities should ensure easy recognition through consistent signage and locations. > All bicycle parking should be provided so that it supports bicycles of all shapes, sizes and designs. > To ensure the appropriate level of security for all bicycle users, five types of bicycle parking (with varying levels of security) are recommended. As many cyclists have a large amount of money invested in their bicycles (and all the equipment attached), the level of security is considered the most important aspect for these cyclists. > To ensure the personal security of cyclists and security of the parked bicycle, the guidelines address the need to consider aspects such as lighting and the location of facilities > Many cyclists will lock their bicycles to the most convenient feature near to their final destination for convenience and security. This latent demand is a key consideration when determining where cycle parking should be provided. E-1

114 1.3 Who should use these Guidelines These guidelines should be used by anyone involved in providing bicycle parking. This includes: > Territory Local Authorities > Town Planners/landscape architects > Transportation planners or engineers > Travel planners > Developers > Education providers > Public transport providers. 2. Types of Bicycle Parking There are five levels or types of bicycle parking which are to be considered. These are: > Type One Customer/Visitor Short-Term Bicycle Parking > Type Two Customer/Visitor Short to Medium-Term Bicycle Parking > Type Three Public Long-Term Bicycle Parking > Type Four Private Long-Term Bicycle Parking > Type Five Temporary Bicycle Parking. 2.1 Type One Customer/Visitor Short-Term Bicycle Parking This level of bicycle parking should be provided outside destinations where visitors are only expected to stay for five to 30 minutes. This level of bicycle parking should be installed within 20 metres of the main pedestrian entrance to a building/shop. Possible locations for this type of bicycle parking: > Local shopping centres > Neighbourhood stores (e.g. dairies or take away stores) > Outside libraries or video hire stores > Playgrounds and beaches > At key points along popular cycle routes (e.g. public toilets or cafés) E-2

115 > Outside commercial premises, office buildings, council civil buildings etc. (to provide for bicycle courier/short-term visitor parking). The general requirements of this type of bicycle parking are: > Approved bicycle stands > Located in such a manner as not to block the footpath > Located within 20 metres of a pedestrian access to a destination > Good passive surveillance and lighting > Clear signage > Undercover, if there is an existing shelter available. If parking facilities are not conveniently located, cyclists will ignore the facility and will secure their bicycles to nearby railings, posts, seats, parking meters, trees etc. In town centre areas, which have traffic running through the centre (strip shopping centres), the Type One bicycle parking should consist of either one or two bicycle stands located every 50 metres along the strip. Photograph Example of Type One bicycle parking which is undercover, and within 10 metres of the main pedestrian entrance to a public building. 2.2 Type Two Customer/Visitor Short Medium-Term Bicycle Parking This level of bicycle parking should be provided outside destinations where customers/ visitors are expected to stay for 30 minutes to three hours. This level of bicycle parking should be installed within 100m of the destination, or so that it is closer than the nearest carpark (excluding disabled carparks). Possible locations for this type of bicycle parking: E-3

116 > Town centres, supermarkets, or shopping malls > Places of assembly > Leisure centres/swimming pools. The general requirements of this type of bicycle parking are: > Approved bicycle stands (number to reflect demand for bicycle parking) > Located within 100m of the destination or so that it is closer than the nearest carpark (excluding disabled carparks) > Clear signage > Good passive surveillance and lighting > Undercover. In town centres with pedestrian only malls, Type Two bicycle parking should be provided in clusters near the different entrances to the pedestrian mall. Photograph Example of Type Two Bicycle parking within a supermarket carparking area, (bicycle parking would be even better if located closer than the nearest carpark) (Photo: Cycle Action Auckland) 2.3 Type Three Public Long-Term Bicycle Parking This level of bicycle parking should be provided where there is a demand for public high security long-term bicycle parking. This level of bicycle parking should be installed so that it is easy to access and is close to the main destination point for cyclists (i.e. near the pedestrian entrance to PT stations). This level of bicycle parking should be installed within 100 m of the destination, or so that it is closer than the nearest carpark (excluding disabled carparks). Possible locations for this type of bicycle parking: > Public Transport (PT) stations E-4

117 > Town centres/central business districts. The general requirements of this type of bicycle parking are: > High-security storage areas that have limited access > Provision for personal bicycle locks to be used > Clear directional signage > Clear instructions for use > Good passive surveillance and/or CCTV coverage > Good lighting > Undercover. Acceptable types of facilities > Lockers > Limited access enclosures > Bike station. Photograph Example of Type Three Bicycle public parking lockers at PT stations 2.4 Type Four Private Long-Term Bicycle Parking This level of bicycle parking should be provided by private companies or organisations for use by employees or students who work/study on the site. The bicycle parking should be high security and limited access, so that employees or students can confidently leave the bicycle for long durations. Possible locations for this type of bicycle parking: > Intermediate and High Schools E-5

118 > Tertiary educational facilities > Office buildings > Shopping malls (staff carparking) > Industrial/commercial workplaces > All other workplaces. The general requirements of this type of bicycle parking are: > High-security storage areas with limited access > Clear instructions on how to gain access to the storage area > Undercover > Good lighting > Located so that personal security is not compromised > Provision for personal bicycle locks. Photograph Example of Type Four Bicycle enclosure at an intermediate school (bicycle parking would be better if covered and the old type bicycle stands were updated). (Photo: ARTA) Most private developments will be required to provide both Type Four parking for staff/students and Type One parking for visitors. 2.5 Type Five Temporary Bicycle Parking This type of bicycle parking covers the provision for temporary bicycle parking which can be included as part of a traffic management plan for a specific event or public gathering which is being held in an venue which is not usually used for such gatherings. The bicycle parking should be high security and continuously patrolled. Types of events where temporary bicycle parking should be considered: E-6

119 > Sporting events with a large spectator crowd (either a specific stadium or other locations)ons) > Festivals (e.g. Pasifica, the Grey Lynn Festival and Devonport Wine and Food Festival) > Large open air concerts (e.g. Christmas in the Park). The general requirements of this type of bicycle parking are: > High-security fenced areas with no public access > Appropriate bicycle storage system > Appropriate system for identifying individual bicycles and their owners > Constant surveillance from staff. The temporary bicycle parking should be located in such a way that it is: > Close to the pedestrian entrance to the venue > Is clearly signposted > Does not obstruct the flow of pedestrians entering or exiting the venue > Is promoted as part of the travel to the venue. Photograph Example of Type 5 Temporary bicycle parking for a major sports event. E-7

120 Summary of Criteria The Table below summarises the most important aspects for the different types of bicycle parking. Table Summary of Key Issues for the Different Types of Bicycle Parking Type Duration Convenient Location Type One 5min 30 min Type Two 30 min 3 hours Type Three All day Undercover Secure Type Four Type Five All day 3-6 hours Legend: Least important Moderate importance Very important 3. Bicycle Parking Hardware This section sets out the requirements for bicycle parking hardware. 3.1 General Requirements for all types of Bicycle Parking Hardware All bicycle parking facilities should: > Support all types of bicycles, including those without a diamond shaped frame > Enable both wheels and frame to be secured using a personal bicycle lock > Not cause damage to wheels, frame or other components > Be securely anchored to the ground, wall or ceiling, so they cannot be easily removed > Be of sufficient strength to resist vandalism and theft > Be smooth, so that the stand does not scratch the bicycle frame. 3.2 Bicycle Stands General Requirements Bicycle stands should: > Support the bicycle upright by its frame in two places to prevent the bicycle from tipping over E-8

121 > Enable wheels and frame to be locked to the device without damage, including scratching of the frame > Support all types of bicycles, including those without a diamond shaped frame > Be securely anchored to the ground, so they cannot be easily removed > Be of sufficient strength to resist vandalism and theft. Typical Design The typical and preferable design of a public bicycle stand is the Sheffield stand, which incorporates a bicycle parking symbol, as shown in Figure Figure Preferred design of bicycle stand Layout of Bicycle Stands The design envelope for a horizontally parked bicycle is considered to be 700mm wide x 1750mm long. Bicycle stands should be located a minimum of 900mm from any wall, fence or barrier. The spacing between bicycle racks should be a minimum of 1200mm. The minimum clearances between a parked bicycle and the edge of a vehicle traffic lane, or parking lanes is 600mm. If the parking is located next to a road with a speed limit of 60km/h or greater then this distance should be increase to 1000mm. The minimum aisle width is the space between any part of a bicycle using the provided bicycle stands. The minimum aisle width varies depending on the angle of the bicycle stands, as summarised in Table on the following page. E-9

122 Table Minimum Aisle width Angle Minimum Aisle Width (m) 90 o o o o 1.1 Figure Possible layout of bicycle parking, utilising a double and single car parking space Bicycle parking should always be protected from the traffic with a physical barrier such as kerb & channel, bollards, or car stops. Figure Artist impression of bicycle parking on a kerb build out near the entrance to a pedestrian mall. Customised Design TLAs or developers may develop their own customised bicycle stand design in order for the stands to match the surrounding street furniture. This may include variations in shape, colour, materials and other features. The development of a customised bicycle stand is generally considered acceptable, as long as the bicycle stands meet all the requirements specified in Section 0 and there is clear signage. For example, North Shore City Council has developed a customised bicycle stand design, as shown in Figure on the following page. E-10

123 Figure North Shore City Council Standard Design for Bicycle Support Rail 3.3 Vertical Mounted Bicycle Holders General Requirements Vertical mounted bicycle holders may be installed within enclosures to maximise the number of bicycles which can be stored. Wall mounted bicycle holders should: > Support the bicycle without damage > Be easy to use > Be securely anchored to the wall/ceiling > Have provision for each bicycle to be secured to the wall using a personal bicycle lock. Note: Not all cyclists will have the strength to lift their bicycles onto a vertical-mounted bicycle holder. Therefore, vertical-mounted bicycle holders should be installed in conjunction with ground level cycle stands. E-11

124 Typical Design Vertical Mounted Bicycle Holders The following photograph and drawings show examples of vertical mounted bicycle holders. Photograph Artist impression of basic vertical-mounted bicycle holders located within a secure enclosure. Note that there is no means to secure each bicycle with a personal bicycle lock, which is required. (Photo: Sandy Mills, Waitakere City Council) Figure Example of vertical mounted rack available from A.E. Tilley Ltd. System includes bar; which supports the bicycle and provides an area for a personal lock to be secured (Drawing : A.E.Tilley Ltd) Figure Example of vertical mounted bar with hooks for bicycle wheels. The central bar provides a means for cyclists to secure the bicycle using a bicycle lock. E-12

125 Layout of Vertical-Mounted Bicycle Holder The design envelope for a vertically 1750mm long x 1200mm deep. parked bicycle is considered to be 700mm wide x The layout of vertical mounts should be: > 700mm minimum horizontal spacing if the hooks are at the same level > 400 mm horizontal spacing if hooks are staggered vertically by more than 500mm. Depending on the vertical mounting configuration, the mount should be positioned to ensure that bicycles can be hung without touching the floor. Vertical mounts should not be placed any higher than 2.5m above the floor level. The minimum aisle width, between any part of a hanging bicycle, is 2.0m. 3.4 Bicycle Shelters (Bike Sheds) General Requirements Bicycle shelters should: > Protect bicycles from sun and rain > Protect bicycle from sea spray in marine areas > Contains bicycle stands or vertical mounts. Typical Design Rodney District Council has recently developed a basic design for a bicycle shelter for schools in the district. The photographs below are two examples of bicycle shelters in the UK. Photograph (Photo: ARTA) E-13

126 Photograph (Photo: ARTA) Building Consent A building consent will usually be required for the construction of a bicycle shelter. Please contact the local consenting authority for more information. 3.5 Enclosures (for Type Three and Type Four) General Requirements An enclosure is a communal compound that is used to store bicycles. Typically, enclosures are located at workplaces, schools or other educational facilities. Bicycle enclosures should: > Have an appropriate entry control, such as an employee swipe card or special key provided to specific people only. For schools, it is possible to have the door to the enclosure unlocked at the start of the day and locked when school starts and the door remains locked until the end of the school day. > Be sheltered from the weather. This may be in the form of an over-head shelter for schools. Alternatively for workplaces, the enclosure may be located within an under-cover car parking area or service area. > Allow for easy storage of bicycles, with bicycle stands/vertical mounts that allow for the bicycle to be locked with a personal bicycle lock. > Be located so that they can be reached by bicycle, and as close as possible to the building access. They should also be positioned so that they are convenient to trip end facilities, such as showers and lockers. In multi-storey car parking buildings, cycle parking should be located near the main groundfloor entrance and cyclists should not be expected to travel up/down floors in order to access the enclosure. In shared situations, a code of conduct agreement may be required to be signed by all parties wishing to use the enclosure. An example of a code of conduct agreement is shown in Appendix C. E-14

127 Figure Artist impression of an enclosure located under a ramp on a multi-storey car parking building. Photograph Example of sheltered enclosure at a UK primary school (Photo: ARTA) E-15

128 Enclosures at Passenger Transport (PT) Stations Enclosures could be provided at PT stations. These sheltered enclosures could be accessed by an electronic swipe card, which can be obtained from a central service area. The swipe card would be valid for a specified period (for example 12 months). It is recommended that enclosures be installed at locations where there is a manned kiosk, extensive passive surveillance, or CCTV coverage. Below are photographs of two examples of public bicycle enclosures at PT stations in the UK. Photograph Example of a bicycle enclosure at a PT station in the UK (Photo: ARTA) Photograph Example of a bicycle enclosure at a PT station in the UK (Photo: ARTA) 3.6 Cycle Lockers General Requirements for Cycle Lockers Cycle lockers are lockers which are used to store individual bicycles. Cycle lockers should: > Be of sufficient strength to stop vandalism and forced entry E-16

129 > Be robust in order to withstand damage from kicking, or the weight of people sitting on the lockers > Be graffiti proof. There are various types of suitable locking mechanisms; consideration of the type of locking mechanism will depend on who the user of the lockers will be. Locking mechanisms include: > Personal padlocks > Normal key operation (requires prior arrangement in order to use the lockers) > Electronic keys > Coin-operated locks. Lockers take up a lot of space on site and therefore should be designed to blend into the surrounding area. General Requirements for the location of Cycle Lockers When determining suitable sites for locating bicycle lockers, consideration should be given to: > Security Be in public view and have CCTV coverage Have good lighting. > Safety of users and the lockers Be located outside the path of pedestrians and vehicles Be protected from vehicles Be easily accessible from the road (no steps or obstacles to carry cycle over nor are cyclist encourage to illegally cycle on the footpaths). > Ease of use Be arranged so that parking and unparking manoeuvres will not result in touching or damaging adjacent bicycles, lockers or parked carparks Be close to the cyclist s ultimate destination, preferably located closer than the nearest carpark Be clearly signed as bicycle parking, with clear instructions for their use and clear signage directing cyclists to parking area. E-17

130 Layout Cycle lockers generally come to two configurations: horizontal and vertical. The horizontal lockers are generally configured as single lockers or double lockers, which allow access from both sides. Figure indicates the typical layout of a double sided horizontal bicycle locker. The minimum aisle width of 1.5m is required along all sides of the lockers to allow cyclists to access and manoeuvre between the lockers. Figure Typical layout of double sized horizontal lockers Revenue Source Depending on the location of the lockers, it may be possible to place advertising material on the vacant end panels of the cycle lockers. This is a possible revenue source for councils or other land owners whom have cycle lockers located in prominent locations. Lea se Agreement Local authorities, car parking operators or business complex managers may decide to supply cycle lockers and lease these to the public for a specific period of time (i.e. a three-month period). The terms of the lease would be established by the owner, but would typically require a refundable deposit and a monthly rental. A typical lease agreement for this type of arrangement is shown in Appendix C. To ensure long-term security of the lockers, it is important that the keys are not able to be copied. E-18

131 Building Consent If a small number of bicycle lockers are to be installed, then a building consent will generally not be required. If a higher number of lockers are to be installed, a building consent may be deemed necessary by the consenting authority. It is recommended that the consenting authority be contacted to confirm if there are any specific consenting requirements. 3.7 Cycle Lockers at Public Transport (PT) Stations Local authorities should install cycle lockers at all public transport terminals, located in residential areas, in order to assist in creating an integrated transportation network. ARTA would encourage that cycle lockers installed in conjunction with PT stations to have the same regional appearance. Therefore, the lockers should: > Be the colour MAXX Blue (Pantone PMS 288, or 100c, 85m, 0y, 10k) > Have clear signage indicating how to use the lockers or how to arrange for the leasing of each locker. The signage should have MAXX branding, as shown in Figure For information on the layout and style of the signage, please contact: Jo Martin, ARTA, (09) > Have a perforated panel that allows the public to see what is stored in the locker > Have some means to secure the bicycle to the ground within the locker, using a bicycle lock > Be individually numbered. The type of locking mechanism for the lockers is dependent on the site and the local authority s policy. In areas where vandalism is expected, the lockers should be secured at all times and access to the lockers should be controlled. If a high level of vandalism is expected, then it may not be practical to install proprietary bicycle lockers that are not designed to withstand sustained vandalism. Concrete housing with steel doors may be required in areas where vandalism and potential damage to the lockers is expected. When cycle lockers are installed in a park and ride carpark, the installation of the cycle lockers should be incorporated in the local authorities CCTV coverage and overall security monitoring of the site. 3.8 Bike Stations Bike stations are manned bicycle shelters or enclosures which the public can use to store their bicycles for the day. Bike stations are often set up in conjunction with a bicycle shop or cafe and may have showers and other trip end facilities. The cost of operating a bike station is relatively high; therefore, decisions regarding bike stations should be based on economic feasibility and demand. E-19

132 3.9 Temporary Bicycle Parking The temporary bicycle parking should be in the form of a secure compound area, where cyclists can check their bicycle in and receive a security tag, which they must present at the end of the event to collect their bicycle, i.e. similar to a coat check at a hotel. It is anticipated that the bicycle stands within a temporary fenced compound would be one continuous bar, from which bicycles can be hang from their seats or handle bars, similar to what are used at triathlons. An example of this type of stand is shown in the photograph below. Photograph Example of Triathlon Type bicycle racks Photograph Example of Triathlon Type bicycle racks 3.10 Future Bicycle Parking Options Innovative bicycle parking solutions have been developed around the world to address issues which some cities have. Some examples of innovative bicycle parking solutions are included in Appendix A. 4. Lighting, Signage and Trip End Facilities This section describes the other requirements for successful bicycle parking facilities. These include: lighting, CCTV, signage and trip end facilities. 4.1 Lighting Bicycle parking areas should be well lit to minimise theft and vandalism, to reduce the pedestrian hazard, and for the safety of cyclists. E-20

133 The minimum level of lighting in pedestrian malls and town centres should comply with AS/NZS Category P6. Where bicycle parking is located in conjunction with a PT station, the minimum lighting should comply with the requirements for the surrounding area. Where bicycle parking is located in conjunction with a public open car park, the lighting levels directly surrounding the bicycle parking should comply with AS/NZS Category P12 (disabled car parks); the surrounding car parking area should comply with Category P11. Lighting of private car parking areas that are used for bicycle parking is required for personal security. Sufficient lighting should be provided in bicycle parking areas to ensure personal safety, bicycle security and enable personal bicycle lockers to be unlocked. 4.2 CCTV Where possible, bicycle parking should be covered by CCTV coverage. Where practicable the location of the bicycle parking should be moved to fall into a coverage area. Alternatively, the CCTV cameras to be moved to include the bicycle parking. If a large isolated area of bicycle parking is being implemented, then consideration should be given to incorporating CCTV coverage into the design and implementation of the parking. 4.3 Signage Bicycle Parking Signage Signage should be incorporated in bicycle parkin g facilities in order to: > Define the parking area > Promote the presence of the bicycle parking > Explain how to use the bicycle stand. Photograph Example of bicycle parking signage near cycle stands (Photograph: ARTA) E-21

134 Photograph Example of bicycle parking signage near cycle stands (Photograph: ARTA) Figure RP9 Sign. The standard sign to indicate bicycle parking is RP9, as specified in the Land Transport New Zealand Traffic Control Devices Rule. Refer to 01.html for more information. (Drawing : LTNZ) Cycle lockers or enclosures, of which the p urpose may not be immediately obvious, must have instructional signs. Figure shows an example of the signage on existing cycle lockers explaining their use. E-22

135 Figure MAXX Signage indicating how to gain access to the cycle lockers Directional Signage Directional signage should be installed at large sites such as PT stations, town centres or shopping malls in order to direct cyclists to secure bicycle parking. Figure Indicative directional cycle parking signage This signage could also be incorporated in the park and ride car parking signs or as part of other council or MAXX branding. Photographs and are two examples of where cycle parking directional signage could be incorporated with other signage. E-23

136 Photograph Example of existing directional signage which could have the cycle parking direction signage included. Photograph Example of existing directional signage which could have the cycle parking direction signage included. 4.4 Trip End Facilities Showers Showers should be provided in all places of employment and education for all employees and students who wish to cycle to work or their place of study. The shower facilities need to be provided so that they can be easily accessed by cyclists without disturbing other staff members or students. In the situation for schools or educational facilities, the recreation centre/gymnasium should be available for use by cyclists. If the recreation centre/gymnasium are not located in a central location for education facilities, then showers should be provided in each building/department. Lockers It is desirable that lockers be provided for all staff and students who would like to cycle to work/ their place of study. However, it is important that lockers are provided for staff/students that do not have an individual secure work stations in order to securely leave the equipment/ clothes etc. The lockers should be located close to the showers. E-24

137 Photograph Lockers for Cyclists at Waitakere City Council Civic Centre (Photo : Waitakere City Council) Drying Room It would be desirable for all employees to have access to a drying room/clothes rack which would allow for cyclists to hang up and dry their cycling clothes, helmet, gloves, jackets and shoes before the cycle home at the end of the day. This could be in the form of a designated well ventilated room/closet that can only be accessed by the same staff as those accessing the bicycle enclosure. Bicycle Maintenance Facilities It is desirable to provide basic bicycle maintenance facilities and equipment in employee and student secure enclosures. This includes: > Good quality floor pump > Tools for emergency repairs > Puncture repair kits > Covered space to undertake repairs. In school situations, where it is not possible to supply sheltered bicycle parking, an area could be provided for students to store plastic bags, or similar, in order for them to cover their bicycle seats on rainy days. E-25

138 5. Evaluation of Existing and New Public Bicycle Parking 5.1 Evaluation Form An evaluation form has been developed to evaluate Type One and Two bicycle parking. This form is shown in Figure 5.1.1, and in Appendix B. The evaluation form has identified the key elements of good bicycle parking. Some of the elements (identified by the shading) are considered to be critical for the usefulness of the bicycle parking. When using the evaluation form, the reviewer must answer yes, no or not applicable (N/A) to the elements identified. If all the elements are answered as yes, the bicycle parking is rated as good. If all the critical elements are answered as yes, but some of the other elements as no, then the bicycle parking is rated as adequate. If one or more of the critical elements are answered as no, the bicycle parking is rated as poor. E-26

139 Figure Evaluation Form of Public Bicycle Parking Location: Completed By: Address: Date: Number of Bicycle Stands: 1.0 Type of Stand/s Yes No n/a Comment 1.1 Accommodates all types of bicycles 1.2 Supports frame of the bicycle 1.3 Secured to the ground 1.4 Of sufficient strength to stop vandalism 1.5 Smooth (i.e. will not scratch bicycle) 1.6 Both wheels of a bicycle can be easily secured to the stand/s 1.7 A bicycle does not slip when leant against the stand 2.0 Positioning of the Stand/s Yes No n/a Comment 2.1 Correctly spaced 2.2 Free from obstructions (i.e. street furniture, signs, parked vehicles, walls etc.) 2.3 Clear from the path of pedestrians 2.4 Stand/s can not be blocked by parking vehicles 2.5 All aspects of the all of bicycle stand/s can be utilised. (i.e. both sides of the stand/s can be used) 3.0 General Location of the Stand/s Yes No n/a Comment 3.1 Located close to key destination/s 3.2 Under shelter 3.3 Positioned for the parking demand (i.e. are there bicycles locked to other objects within 50 metres of the stand) 4.0 Security Yes No n/a Comment 4.1 Good passive surveillance 4.2 Good lighting 4.3 CCTV (critical for long-term low security public bicycle parking ) 5.0 Signage Yes No n/a Comment 5.1 Parking signage 5.2 Ease of use 5.3 There are clear instructions for use (if required) 6.0 No. of Bicycle Parking Spaces Yes No n/a Comment 6.1 There is a sufficient number of stands Key Critical Items Overall Rating Good / Adequate / Poor Overall Rating Criteria Good Yes to all items Adequate Yes to all critical items Poor No to one or more critical items E-27

140 5.2 Examples of Existing Cycle Parking The followin g photographs show existing bicycle parking which has been evaluated using the evaluation form shown in Figure Where the bicycle parking is considered to be poor, the critical elements which the parking is missing are noted under each photograph. Bic ycle Parking Rated as Poor Does not comply with critical elements 1.1, Does not comply with critical element , 1.4 Does not comply with critical elements 1.1, 1.2, 1.3, 1.4. Does not comply with critical elements 2.2, 2.3. (Photo: Cycle Action Aucklan d) Does not comply with critical elements 3.1. Does not comply with critical elements 1.1, 1.2 and 5.1. E-28

141 Bicycle Parking Rated as Adequate (Photo: NSCC) Bicyle Parking Rated as Good (Photo: NSCC) (Photo: Cycle Action Auckland) E-29

142 6. Implementation This section describes the recommended priority for the implementation for bicycle parking. 6.1 Public The recommended priority for the implementation of public bicycle parking on road-reserve or council property is: 1. Public facilities where there is an existing demand (i.e. where bicycles are being locked to other street furniture, trees etc.) 2. Public facilities outside community facilities such as libraries, leisure centres, civic centres, swimming pools, tourist information centres, playgrounds, and public toilets (on cycle routes) 3. PT stations, including train stations, bus terminals and ferry terminals 4. Town centres/local shopping centres, potential opportunities to develop long-term bicycle parking in public carparking buildings. 6.2 Private The recommended priority for TLAs to encourage the installation of private bicycle parking is: 1. All new developments or sites which are being redeveloped 2. Intermediate and secondary schools (roll > 500) 3. Major tertiary education facilities 4. Supermarkets 5. Shopping malls/town centres (where there is no public land available for bicycle parking) 6. Other employment centres. E-30

143 6.3 Funding Sources Local Territorial Authorities TLAs can apply to Land Transport New Zealand for funding to assist in the development of their cycling network and infrastructure which supports alternative moods of transport, including bicycle parking. Bicycle parking should be provided in town centres where TLAs are focusing on developing their cycling network. Funding for the bicycle parking could be incorporated into the overall funding application for th e bicycle infrastructure in these areas. Private Development The implementation of bicycle parking facilities as part of a new or upgraded development should be at the developers cost. All new employment buildings/centres should be required to incorporate visitor and employee bicycle parking, showers and other trip end facilities. Town Centre TLA s should incorporate bicycle parking into the upgrade of any town centre redevelopments. The short to medium-term parking should be incorporated in the urban landscape design. Schools Schools involved in school travel plans may be able to use some of the implementation funding to install bicycle parking. Funding is also available through the Ministry of Education, particularly for bicycle parking facilities at new schools. ARTA is currently pursuing possibilities with Greenfleet, who are interested in sponsoring the installation of covered bicycle parking enclosures in schools. Other sponsorship or funding sources may be through local trusts. Other Agencies Funding may be available through numerous grants. A list of available grants can be viewed on the following websites: E-31

144 7. Bicycle Parking Ratios 7.1 Ratios for Bicycle Parking for Private Developments The ratios specified in Table can be used to determine the number for bicycle parking spaces which should be provided at all private developments. The ratios are to act as guidelines only and the actual ratio used with depend on the following factors: > Accessibility if a site has good cycling accessibility, then it is likely that more people will cycle. Therefore, more parking should be provided. > Location of the site in relation to target audience i.e. employment centres located close to residential areas. > Availability of car parking, i.e. CBD areas, where there is limited carparking, more people will look for alternative means of transport. The following notes relate to the ratios specified in Table 7.1.1: > The term employee relates to the maximum number of employees working on site at any one time > Ratios refer to the number of parking spaces for each bicycle (some bicycle stands provide parking spaces for two bicycles) > Employee parking: > Recent business travel plan surveys have indicated that an average of 3-5% of employees currently cycle to work > In order to accommodate the aims of the Regional Land Transport Strategy, which aims to double the number of cycle trips, a provision of 10% of employees to cycle is considered achievable and not excessive > This ratio may be considered to be too high for some TLA s. Therefore a range of one per 10 to 15 employees is considered reasonable > However, in areas where there is good cyclist accessibility, the higher ratio of one per 10 employees is considered desirable. > In some situations there is an overlap in shift workers requiring bicycle parking. Employers should ensure that the appropriate number of bicycle parks are provided to allow for the overlap. > Schools for new schools and schools in areas with good accessibility, the ratio should be increased to one per five pupils and staff. > Some schools allow for after hours private use of facilities/venues, (such as a gymnasium or auditorium). In these situations, bicycle parking should be provided in the vicinity of E-32

145 these facilities/venues. The bicycle parking ratios should be consistent with the type of activity the facilities/venues are likely to be used for, > The provision for showers and lockers at private developments will generally be for staff or students only. > The ratio for tertiary education facilities depends on the course structure. If all students are on campus at the same time then the higher ratio needs to be provided. However, if students are staggered throughout the day or are not on campus, then the lower ratio may be more appropriate. The parking at tertiary education facilities needs to be located in strategic locations throughout the campus where there is demand. E-33

146 Table Proposed Ratios for Bicycle Parking for Developments Development Type 1 (min. of 2) Type 2 Type 3 Type 4 Type 5 Showers Lockers Shopping malls / retail areas Primary school Intermediate school Secondary school Tertiary education facility Residential apartment Office building 1 per 500 students and staff at the school, located outside the school office. 1 per 500 students and staff at the school, located outside the school office. 1 per 500 students and staff at the school, located outside the school office. 1 per 800 m 2 of office space located outside the main entrance of each department. 1 per 20 units located outside the main entrance. 1 per 800 m 2 located outside the main entrance/s. 1 for each 10 car parking spaces required as part of the D.P. for public areas. 1 per 10 to 20 students 1 per 10 to 15 employees. 1 per 10 to 15 employees. 1 per 10 to 15 students and employees. 1 per 10 full-time equivalent students and 1 per 10 to 15 employees. 1 per 10 to15 employees. 1 per unit. 1 per 10 to15 employees. Industrial 1 per 10 to15 employees. E-34

147 Development Type 1 (min. of 2) Type 2 Type 3 Type 4 Type 5 Showers Lockers Recreation facilities 1 per 10 to 20 visitors. 1 per 5 employees. Hospitals 1 per 50 visitors. 1 per 10 to15 employees. Places of assembly including churches, movie theatres, sports arenas and stadiums. Public gatherings, outdoor concerts, markets etc. which are not held in a normal place of assembly. 1 per 50 visitors. 1 per 50 visitors. 1 per 10 to15 employees. 1 per people (per day or event) predicted to attend the event depending on accessibility of venue. E-35

148 7.2 Public Transport (PT) Stations At PT stations with ticket offices, a minimum of two Type One bicycle parks should be provided in the vicinity of the ticket office, in order to accommodate the bicycles of cyclists whom wish to purchase tickets. The number of long-term bicycle parks at PT stations will depend on a number of factors, including: > Land use surrounding station, i.e. residential, commercial or industrial > Cyclist accessibility > Social economic area > Perceived level of security > Existing number of local residents using the PT station. Where a PT station is located in a prominently residential area, the ratio of bicycle parking should be in the order of one Type Three bicycle park per 30 residential PT users, who live within the cycling catchment around the PT station (i.e. those whom live within the a radius of four kilometres from the PT station, but outside the 800m radius). It is recommended that a small number of Type Three bicycle parking facilities be provided initially, and if demand increases, then the provision for bicycle parking is also increased. Type O ne bicycle parking, to cater for a minimum of four bicycles, should also be provided at all PT Stations to allow for overflow bicycle parking, or short term bicycle trips. 7.3 Town Centres Types One and T wo bicycle parking should be provided in town centres. As spe cified in Sect ion 2.1, Type One bicycle parking should consist of one or two bicycle stands located every 50 metres in the town centre. Type Two bicycle parking should be provided in the existing carparking areas within Town Centres. The number of bicycle parks should satisfy the demand in the area. 7.4 Central Business Districts (CBD) Types One and Three bicycle parking should be provided in a CBD. As specified in Section 2.1, Type One bicycle parking should consist of one or two bicycle stands located every 50 metres in the CBD. However, if private bicycle parking has been provided outside some office building, then the distance between public facilities could be greater. E-36

149 Type Three bicycle parking should be provided to cater for longer stay visitors to the CBD. This level of bicycle parking could be provided in existing council parking buildings/areas. Showers and other trip end facilities should also be made available for cyclists using the Type Three bicycle parking facilities. E-37

150 Reference Documents AS Parking Facilities Part 3: Bicycle Parking Facilities (1993), Standards Australia, New South Wales, Australia. Austroads Guide to Traffic Engineering, Part 14 Bicycles (1999), Austroads, Sydney, Australia. Christchurch City Council, District Plan, Christchurch, New Zealand City of Portland Bicycle Master Plan (1998) Section IV Trip End Facilities, Office of Transport, Portland, USA. Transport for London, Street Management Cycle Parking Standards, TFL Proposed Guidelines, Mayor of London, England. Land Transport Safety Authority, Cycle Network and Route Planning Guide (2004) Land Transport Safety Authority, New Zealand Land Transport New Zealand, Traffic Control Devices Rule RTA NSW Bicycle Guideline Issue 1.2 (2005), Roads and Traffic Authority NSW, Australia. SPARC Cycle Friendly Employer, (2003), SPARC, Wellington, New Zealand Transit New Zealand Supplement to Austroads Guide to Traffic Engineering, Part 14 Bicycles (2005), Transit New Zealand, Wellington, New Zealand Regional Land Transport Strategy (RLTS), Auckland Regional Transport Authority, (2006), Auckland. E-38

151 Appendix A Future Bicycle Parking Options Below are some other examples of other bicycle parking options used overseas. These may be too advanced for Auckland in the short-term, but may be options in the future. Biceberg Biceberg is an underground bicycle storage area, which can accommodate 23, 46, 69, 92 bicycles. The Biceburg is operated by one central control centre (the only part which above ground). The storage area is access by an access swipe which opens the door; a bicycle is then placed in the lift area. The door then closes and the bicycle is then automatically lowered and placed in the storage area. The bicycle can be retrieved by swiping the same card. This system would be very good where there is little above ground space available and where there is a large open town square area. Ideal for universities. The Biceberg is considered to be a Type Three or Four long-term bicycle parking facility. Photograph 1 Photograph of the above ground element of the Biceberg. Bicycles are stored underground. (Photo: c/o E-A.1

152 Vertical Cycle Parking The following are examples of vertical cycle parking stands: Cyclepod Photograph 2 Cyclepod (Photo: c/o Bike Tree Bikes are raised up vertically, and are stored under the canopy of the tree. Photograph 3 Biketree (Photo: c/o E-A.2

153 Other Bicycle Parking Options The following are examples of other bicycle parking options. Clamp Style Bicycle Stands Photograph 4 Byk-Klamp (Photo : ARTA) Photograph 5 Byk-Klamp (Photo : ARTA) Photograph 6 Clamp style bicycle stands (Photo : ARTA) E-A.3

154 Sheffield Stand incorporating Bicycle Pump Photograph 7 Sheffield stand incorporating pump (Photo: c/o Creative Modified Bicycle Stands Photograph 8 Bicycle stand incorporating croquet set design (Photo: c/o E-A.4