Regional Plan: Coastal: Plan Change 3. Responses to Transport Related Submissions. July 2008

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1 Responses to Transport Related Submissions July 2008

2 Project: Regional Plan: Coastal: Plan Change 3 Title: Responses to Transport Related Submissions Document Reference: S:\ARCX\004\CR doc Prepared by: Ian Clark Reviewed by: Karl Hancock Revisions: Date Status Reference Approved by Initials 16 June 2008 Draft, version A AR July 2008 Version B BR I Clark 4 July 2008 Version C CR I Clark

3 Responses to Transport Related Submissions i EXECUTIVE SUMMARY This report provides details on a number of transport issues related to the Regional Plan: Coastal, Plan Change 3 (Wynyard Quarter). The main assessment of the traffic and transport effects of the plan change has taken place within the auspices of the Wynyard Quarter District Plan Change and there have been two distinct phases for this work: An Integrated Transport Assessment (ITA) relating to the Wynyard Quarter District Plan Change was completed in June ; A submissions report provided additional information relating to the transportation aspects of the District Plan Change, in response to submissions 2. The key transport issues for the District Plan Change were summarised as follows: The site is unique, in terms of its size, proximity to the Auckland City Central Business District (CBD) and prime waterfront location; Wynyard Quarter is surrounded by water on three sides, with Fanshawe Street on the fourth side; The locational advantages enjoyed by Wynyard Quarter, which make the area attractive for intensive use, offer very significant challenges in terms of accessibility; The Plan Change proposes development of the area in a manner which seeks to reduce trips by drivers of private vehicles 3 to 30% of total trips. The transport solution therefore centred on the following: Formation of a Transport Management Body (TMB); Travel demand management through a series of transport and travel plans; Positive measures for passenger transport; Maximising walk / cycle accessibility and amenity; Parking restraint; Local capacity improvements for general traffic; A cap on office activities. Given the location of the Coastal Plan Change, the transport issues are closely related to those of the District Plan Change. However, this report has assumed that the reader is familiar with the June 2007 ITA and it therefore focuses on issues of particular relevance to the Coastal Plan Change, as raised in submissions, namely: The extent to which trip generating activities within the coastal plan area have been considered within the ITA; An assessment is provided of the need for the Te Wero Bridge, for pedestrians, cyclists and buses; 1 Wynyard Quarter: Integrated Transport Assessment (June 2007), prepared for Auckland City Council by a team of consultants from Architecture Brewer Davidson, Flow Transportation Specialists, Maunsell Aecom, Opus International Consultants and T2 Engineers 2 Wynyard Quarter: Response to Transport Related Submissions (May 2008), Flow Transportation Specialists 3 Private vehicles include cars, SUVs, utilities and light commercial vehicles

4 Responses to Transport Related Submissions ii A response is provided to parking related submissions; A summary is provided of the transport related submissions and responses are provided to each issue. These issues generally cover the above three topics, plus consideration of the need for consistency with the Wynyard Quarter District Plan Change and considerations relating to the provision of offices within Wynyard Wharf.

5 Responses to Transport Related Submissions iii CONTENTS 1 INTRODUCTION CONSIDERATION OF LAND USES AND TRIP GENERATION Assumptions for Wynyard Quarter District Plan Change Marine Events Precinct Marine Uses Ferry Services Cruise Ships Development of Wynyard Wharf TE WERO BRIDGE ASSESSMENT Benefits for Pedestrians and Cyclists Walk Distances to Bus Stops Economic Assessment Te Wero Bridge as a Pedestrian and Cycle Only Link Possible Bus Flows using Te Wero Bridge Conclusion on Te Wero Bridge PARKING ISSUES RESPONSES TO SUBMISSIONS Te Wero Bridge Use of Bridge by Buses Use of the Bridge by Diesel Buses Adverse effects of Te Wero Bridge Alternatives to Te Wero Bridge Parking Provision Consistency with Wynyard Quarter Plan Change Need for consistency Travel Demand Strategies Development of office activities on Wynyard Wharf Office activities Maximum office floor area APPENDICES APPENDIX A APPENDIX B APPENDIX C APPENDIX D LAND USE AND TRIP GENERATION ASSUMPTIONS FOR WYNYARD QUARTER MARINE EVENTS PRECINCT INTEGRATED TRANSPORT ASSESSMENT TE WERO BRIDGE TRANSPORT ASSESSMENT PREDICTED OPERATION OF LOWER HOBSON STREET/QUAY STREET INTERSECTION, WITHOUT AND WITH TE WERO BRIDGE

6 Responses to Transport Related Submissions 1 INTRODUCTION This report provides details on a number of transport issues related to the Regional Plan: Coastal, Plan Change 3 (Wynyard Quarter). It adds to information provided within the Wynyard Quarter Integrated Transport Assessment, in response to various submissions on the Plan Change. The main assessment of the traffic and transport effects of the plan change has taken place within the auspices of the Wynyard Quarter District Plan Change. There have been two distinct phases for this work: An Integrated Transport Assessment (ITA) relating to the Wynyard Quarter District Plan Change was completed in June ; A submissions report provided additional information relating to the transportation aspects of the District Plan Change, in response to submissions 5. The key transport issues for the District Plan Change were summarised as follows: The site is unique, in terms of its size, proximity to the Auckland City Central Business District (CBD) and prime waterfront location; Wynyard Quarter is surrounded by water on three sides, with Fanshawe Street on the fourth side; The locational advantages enjoyed by Wynyard Quarter, which make the area attractive for intensive use, offer very significant challenges in terms of accessibility; The Plan Change proposes development of the area in a manner which seeks to reduce trips by drivers of private vehicles 6 to 30% of total trips. The transport solution therefore centred on the following: Formation of a Transport Management Body (TMB); Travel demand management through a series of transport and travel plans; Positive measures for passenger transport; Maximising walk / cycle accessibility and amenity; Parking restraint; Local capacity improvements for general traffic; Cap on development activities. Given the location of the Coastal Plan Change, the transport issues are closely related to those of the District Plan Change. However, this report assumes that the reader is familiar with the June 2007 ITA and it therefore focuses on issues of particular relevance to the Coastal Plan Change, as raised in submissions, namely: The extent to which trip generating activities within the coastal plan area have been considered within the June 2007 ITA; Issues relating to the provision of Te Wero Bridge, for pedestrians, cyclists and buses; 4 Wynyard Quarter: Integrated Transport Assessment (June 2007), prepared for Auckland City Council by a team of consultants from Architecture Brewer Davidson, Flow Transportation Specialists, Maunsell Aecom, Opus International Consultants and T2 Engineers 5 Wynyard Quarter: Response to Transport Related Submissions (May 2008), Flow Transportation Specialists 6 Private vehicles include cars, SUVs, utilities and light commercial vehicles

7 Responses to Transport Related Submissions 2 Parking related issues; The need for consistency with the Wynyard Quarter District Plan Change and considerations relating to the provision of offices within Wynyard Wharf. 2 CONSIDERATION OF LAND USES AND TRIP GENERATION 2.1 Assumptions for Wynyard Quarter District Plan Change The latest land use assumptions for the Wynyard Quarter area and adjacent sites, and the trip predictions for these land uses are summarised at Appendix A. The only developments assumed for areas covered by Plan Change 3 are as follows: Offices, plus small amounts of retail and food and beverage uses, on Wynyard Wharf; and The Marine Events Precinct on Halsey Street Wharf Extension. It is necessary to consider what other activities may occur on the wharves which may generate traffic. 2.2 Marine Events Precinct The trip predictions set out at Appendix A have assumed that no trips will be associated with the Marine Events Precinct, which is to be relocated from its existing site at the former Alinghi base to the adjacent Halsey Street Wharf. Section 7.6 of the June 2007 ITA noted that the assessment relates to a normal working day, when there may not be any special events. The trip generating characteristics of the proposed Marine Events Precinct (MEP) have been considered in a separate report, which is attached at Appendix B 7. This report identifies the wide variety of events that are attracted to the existing facility and the changes that can be expected with the new facility. Many of the events take place during evenings or at weekends, to the extent that on a normal weekday the only traffic in the peak periods is likely to relate to permanent staff (such as the Centre manager, administration staff, security personnel and so on). There may be significant levels of operational traffic during the set up/taking down phase of events, which may occur on the days before and after significant events, but the amount of this could be controlled if exhibitors/tradespersons (etc) are going to park within areas under the control of the Centre, such as the adjacent wharves. Some events may include shows or displays within a weekday, but the traffic effects of any event likely to attract more than a certain number of people (with this number yet to be determined) would be controlled by a Traffic and Transport Management Plan. This Plan would be an evolution of the Traffic Management Plans that are already prepared for events at the existing Marine Events Centre. It would need to be developed to be consistent with the objectives of the proposed Wynyard Quarter Transport Management Body and would need to focus on minimising activity within the network peak periods. 7 It should be noted that this report is an update to the one circulated to the submitters to the District Plan Change. This is in response to the subsequent development of the MEP proposal, including firming up of the intended floor space. The development is now to include one full floor and two (partial) mezzanine floors, rather than three full floors.

8 Responses to Transport Related Submissions Marine Uses The trip predictions at Appendix A include estimates of marine related traffic. However, this is based on the floor area of buildings for each marine related area. There are currently some areas that generate traffic without buildings, such as the fishing activity that is based off Halsey Street Wharf, and the maintenance and repair facilities adjacent to the existing Marine Events Centre. The ITA relating to the MEP summarised the existing activities in this area and it noted that some of these activities are expected to relocate away from the area in the future. However, some marine activity is likely to continue to take place off the wharves in the vicinity of the Marine Events Precinct, without supporting buildings, meaning that the current trip predictions should be modified to take this activity into account. We have ascertained the level of parking likely to be provided for these uses and the timing of the trips, and can reasonably conclude that this activity will generate minimal additional trips in the peak periods. 2.4 Ferry Services The SeaLink ferry terminal is currently situated at 45 Jellicoe Street on North Wharf, adjacent to the southern end of Wynyard Wharf. This terminal operates both passenger and freight ferry services to Great Barrier Island and Waiheke Island. The Great Barrier Island ferry has a capacity for 196 passengers and 30 car spaces. It sails once a day, five days a week (excluding Wednesday and Saturday). The sailings currently leave the wharf at different times each day, but only within the peak periods on a Monday, when the outbound sailing departs at 0730 and returns at The Waiheke Island ferry has a capacity for 300 passengers and 35 cars. It only operates from the central Auckland terminal on a Friday evening and at weekends, with the rest of the services operating out of Half Moon Bay. However, while its capacity is 300, it is usually only crewed to carry 200 passengers at a time, although this can be increased if necessary. The current sail times are not within the Friday evening peak. Freight vessels are also available from the terminal. This includes freight services to Great Barrier Island and Waiheke but also includes a monthly service to Rakino and chartered vessels that can travel anywhere in the Hauraki Gulf. These services can also carry a very limited number of passengers and cars. As a result, it can be concluded that the current ferry services have a negligible effect on the operation of the road network in the peak periods. 2.5 Cruise Ships It has been suggested that Wynyard Wharf could be used in the future to berth cruise ships. This would be an overflow facility and would be preferable, relative to the current situation, whereby cruise ships have been known to berth alongside active docks. Clearly it is currently intended that this overflow facility would be used infrequently. As such, it can be ignored as it will not have any impact on the operation of the road network on a normal day. It may be that the concept of traffic and transport management plans are introduced to this activity (in a similar manner to those proposed for events at the Marine Events Precinct) and every effort should be made to avoid significant trips in the network peak periods.

9 Responses to Transport Related Submissions Development of Wynyard Wharf Appendix A shows that the proposals for new developments on Wynyard Wharf have been factored into the Integrated Transport Assessment. A maximum of 45 trips per hour (two way) is predicted to be generated by such development. A comparison with the trips predicted to be generated by activity within Wynyard Quarter indicates that Wynyard Wharf will be a minor contributor to the overall traffic volumes. However, there is a need to integrate the parking and traffic generation controls on the wharf with the controls for the adjacent land. 3 TE WERO BRIDGE ASSESSMENT The Wynyard Quarter ITA recommended the provision of the Te Wero Bridge for buses, pedestrians and cyclists, but it did not fully justify the need for the facility, nor identify the potential benefits. The Bridge would provide a link between Jellicoe Street, within the Wynyard Quarter, to the west, and Quay Street, on the approach to the Britomart Transport Centre, to the east. It is proposed that the Bridge would accommodate pedestrians, cyclists and scheduled buses, but not general traffic. It is also recognised that the Bridge may need to be used by emergency vehicles on occasions. This proposed facility has now been considered further, in a separate report, which is attached at Appendix C. The Report considers a number of alternatives for the proposal, including route variations, the effects of only providing the facility for pedestrians and cyclists, or of providing for pedestrians and cyclists with only a one lane facility for buses. The effects of the Bridge are assessed as follows: The Bridge will bring a greater proportion of the Wynyard Quarter within reach of the rest of the Auckland CBD by walking and cycling, thereby increasing accessibility; It will facilitate excellent penetration of bus services through the Quarter; It will allow some bus services to be extended from Britomart right into the Quarter and will bring the Britomart Transport Centre within a reasonable walking distance of a greater proportion of the Quarter; It will offer an alternative transport route to/from the Quarter which will reduce the dependence of the area on Fanshawe Street. As a result, the provision of an alternative route which reduces the dependence of the area on access via Fanshawe Street is considered to be a major benefit in terms of the resilience of the network; The Bridge will have some minor positive and negative effects for general traffic, but the modelling assessment has demonstrated that the net effects are positive. Further details on some of the key issues are set out below (taken directly from the Te Wero Bridge Transport Assessment provided at Appendix C). 3.1 Benefits for Pedestrians and Cyclists The following three diagrams illustrate three different locations within the Wynyard Quarter development and the possible walk routes for scenarios without and with the Te Wero Bridge link. With the link located at the northeastern corner of the Wynyard Quarter, the Bridge will offer the greatest benefits for developments within the northern areas of Wynyard Quarter, as well as providing a direct link to the Marine Events Precinct.

10 Responses to Transport Related Submissions 5 It has been assumed that walkers take the more picturesque route around the Viaduct Harbour. For the sake of a start point all routes have been assumed to commence at the Britomart Transport Interchange. Figure 1: Walk routes to the northern end of Wynyard Quarter north of Jellicoe Street Figure 2: Walk routes to the southern end of Wynyard Quarter Air New Zealand and ACP Media Buildings

11 Responses to Transport Related Submissions 6 Figure 3: Walk routes to the Marine Events Precinct Table 1 illustrates the approximate walk distances for the three figures above. Table 1: Approximate walk distances as per the above diagrams (metres) Destination Existing Route Route via Te Wero Bridge Jellicoe Street (west) 2030 m 1250 m Air New Zealand Building 1480 m 1675 m Marine Events Precinct 1500 m 875 m As previously suggested the Te Wero Bridge will provide its greatest time and distance savings for developments at the northern end of Wynyard Quarter. In particular for the Marine Events Precinct the walk distance with Te Wero Bridge in place will be reduced by approximately 600m. Similar distance savings can also be assumed for bus routes travelling between these destinations, albeit that the existing route would be via the road network. As a result, the proposed Te Wero Bridge will bring a significant proportion of the Wynyard Quarter within a reasonable walk distance of the rest of the Auckland CBD, with its various attractions and transport facilities, including the Britomart transport terminal. 3.2 Walk Distances to Bus Stops Three bus stops are currently located on Fanshawe Street which serves Wynyard Quarter bus users. The following diagram shows the aerial photo of Wynyard Quarter and the location of the existing bus stops.

12 Responses to Transport Related Submissions 7 Figure 4: Existing Bus Stops along Fanshawe Street The two eastbound bus stops are located 20 metres to the east of Fanshawe Street / Beaumont Street intersection and the south end of Bouzaid Way respectively, each of them can allow a maximum number of two buses (Beaumont Street) and four buses (Bouzaid Way) to stop and load passengers at the same time. The westbound bus stop, which is 60 metres to the east of Fanshawe Street / Halsey Street intersection, is capable of accommodating four to five buses parked and loading simultaneously, assuming a normal 12.5 metre bus length. Currently Fanshawe Street has seven vehicle lanes (two-way) in the vicinity of Wynyard Quarter and crossing this wide road represents a significant impediment for westbound bus passengers wishing to access the Quarter. The following pedestrian crossing facilities have been provided on Fanshawe Street: A signalised pedestrian crossing combined with a refuge island operates between Beaumont Street and Daldy Street. This pedestrian crossing is located metres away from bus stops on either side of the road; Signal controlled crossings are provided at Fanshawe Street / Halsey Street intersection, this intersection is approximately 160 metres south of the westbound bus stop. However, there is no crossing of Fanshawe Street on the eastern side of the intersection; A mid block pedestrian crossing is provided on Fanshawe Street, to the east of Bouzaid Way, in the vicinity of the pedestrian link up to Graham Street. The Transport Assessment considered the walk routes between the bus stops along Fanshawe Street and developments in each of the seven Quarter Areas, in turn. The results for Quarter Area 5 are provided here, this being the block between Madden Street and Jellicoe Street. Four different walking routes have been selected for Quarter Area 5, based on the possibility of a variety of entry points into individual developments within this Area. The resulting walking distances have been outlined in Figure 5 (with these distances relating to the eastbound bus stops).

13 Responses to Transport Related Submissions 8 Figure 5: Walking Routes to Existing Bus Stops for Quarter Area 5 It is shown that the walking distances from the central north access point is the longest, being 645 metres for people using the eastbound bus stops. However, the longest distance experienced by westbound bus users will be 730m for people who use the eastern access point. In addition, pedestrians will need to cross Fanshawe Street, either west of Halsey Street or adjacent to Daldy Street. As a result, Quarter Area 5 (and Areas 4, 6, 7 and part of 3) are only moderately well served by the existing bus stops along Fanshawe Street. This is particularly the case for persons accessing the westbound services along Fanshawe Street. These services are only served by bus stops to the south side of this busy route, and this represents a significant barrier to easy pedestrian access. At grade and grade separated pedestrian crossings of Fanshawe Street are proposed, but neither will provide the same level of access to buses as regular services running right through the Quarter. This is particularly the case on wet days, or for people that are less able to walk or do not like to walk for a variety of reasons. It is also noted that the bus stops along Fanshawe Street will only directly serve passenger transport users from the North Shore. Table 7-5 of the Integrated Transport Assessment of June 2007 indicated that some 40% of inbound passenger transport trips in the AM peak and only 11% of the outbound trips will be to/from North Shore (and Hibiscus Coast). That is to say, these services will not be of direct use to the remaining 60% of inbound passenger transport users (i.e. predominantly commuters) and there is a need for additional facilities. This is the key driver for the provision of the Te Wero Bridge, which will bring a greater proportion of Wynyard Quarter within walking distance of the Britomart Transport Interchange and will offer the potential for some buses to be extended from Britomart through the centre of the Wynyard Quarter. The Transport Assessment also noted two advantages for bus operations in routing some buses through the Wynyard Quarter: The extension of some services will reduce the pressure on layover space in the vicinity of Britomart;

14 Responses to Transport Related Submissions 9 The diversion of some North Shore services could reduce pressure on bus stops along Fanshawe Street (particularly the bus stop adjacent to Victoria Park for westbound services). 3.3 Economic Assessment The economic assessment indicates that the Benefit Cost Ratio (BCR) of the facility will be 1.0, based on the benefits to pedestrians, cyclists and passenger transport users, as well as benefits to general traffic through the removal of buses from Fanshawe Street. However it is noted that this BCR under-represents the value of the facility, which will facilitate the development proposed by the Plan Change. The Transport Assessment also notes the intangible benefits of the project which are considered to be sufficient to justify a BCR of greater than 1 and it suggests that a BCR should also be prepared which reflects private contributions toward the Bridge. 3.4 Te Wero Bridge as a Pedestrian and Cycle Only Link The concept of pursuing the Bridge as a pedestrian and cycle link only may appear to be attractive in some respects. It would appear to offer a cheaper solution and it would avoid the potentially adverse effects of buses passing through the Viaduct Harbour entertainment area. However, there are considered to be significant benefits in terms of the accessibility of the Wynyard Quarter in getting buses right to the front door of developments within the Quarter. Such bus access is considered to be consistent with Transit Oriented Development and with the aim of the Plan Change to maximise the accessibility for modes of transport other than the private car. The traffic modelling indicates that this is achievable without causing significant increases in bus travel times (for those bus passengers that will be passing right through the Quarter). 3.5 Possible Bus Flows using Te Wero Bridge The Transport Assessment of the Bridge was prepared on the basis that the facility will be used by up to 18 buses per direction per hour in the peaks, with 12 buses per direction per hour in the interpeak. However, it should be noted that the report did not recommend 18 buses per hour, per direction. Rather, it recognised that the frequency of service will only be determined by ARTA, in due course. In order to undertake our assessment, which was to include calculating a benefit cost ratio of the bridge, we needed to establish reasonable bus routing assumptions. In the absence of inputs from an ongoing study which has been commissioned by ARTA, we discussed the possible routing of buses with ARTA officers. These services should therefore be tagged as being for the purposes of modelling and undertaking the economic analysis. The possible services which will run through the Quarter are currently being assessed by consultants to the Auckland Regional Transport Authority (ARTA). ARTA recently gave evidence to the Wynyard Quarter District Plan Change hearing suggesting that bus services may not run across the Bridge in the short term, but that the possibility of buses using this route should be retained or future proofed. The term future proofed could mean that space should be retained to allow the possible future widening of the crossing, but we are advised that this is most unlikely to be feasible. As a result, future proofing needs to mean that the Bridge should be built to accommodate buses at the outset. The principal reason given by ARTA for not recommending that buses use the Bridge in the short term was that it is likely to be an opening bridge. We suggest that the intended protocols regarding the opening of the Bridge should be clarified by the relevant authorities as a matter of urgency, such that the effects of the Bridge can be more reasonably estimated. Currently there are concerns about excessive effects on marine users on the one hand, if the bridge is opened infrequently (to allow marine vessels to pass) and concerns about the reliability of bus services using the bridge if it is closed too frequently.

15 Responses to Transport Related Submissions 10 Whatever the level of services, and it is apparent that these will change over time, it should be emphasised that the aim is that any buses using the Bridge should be serving people living and working in the Wynyard Quarter. It is not the intention to provide a rapid transit route through the Quarter. 3.6 Conclusion on Te Wero Bridge As a result, the provision of the Te Wero Bridge for buses as well as pedestrians and cyclists is considered to be an important part of the transport package for the Wynyard Quarter and it is consistent with the objective of maximising the accessibility of the area by modes of transport other than the private car. 4 PARKING ISSUES The main references to parking within the area governed by the plan change are as follows: g: parking shall be only for vehicles directly associated with port activities and ancillary services; i: vehicle parking on Halsey Street Extension Wharf, Western Viaduct Wharf and North Wharf shall be ancillary to port activities or use of existing buildings and the wharves shall not be used for general public car parking ; The ARC will restrict the exercise of its discretion under Rules and to the following matters: h the provision of vehicle parking and loading bays on wharves and the management of traffic flows; Vehicle parking on Halsey Street Extension Wharf and the Western Viaduct Wharf shall be provided in a manner that does not affect its functioning as a marine events precinct and the wharves shall not be used for general public car parking Use and development of Wynyard Wharf shall: j limit vehicle parking to only providing for loading, short-term ancillary and disabled parking, to minimize vehicle movement on the wharf and not detract from the amenity of the area. The primary aim of these policies is fairly self evident, that parking should be confined to the essential operations of the adjacent uses, rather than being for other purposes. However, it is worthwhile referring to the parking standards that are included within the adjacent Wynyard Quarter District Plan Change (rule ). These are as follows: Table 2: Maximum Parking Space Requirement per Land Use Activity type Maximum Parking Ratio (per m 2, GFA) Office 1 per 150 m 2 Retail 1 per 150 m 2 Non permanent Accommodation 1 per 200 m 2 Accommodation 1 per 80 m 2 All other listed activities 1 per 105 m 2

16 Responses to Transport Related Submissions 11 It is not clear whether the office (and minor retail and food and beverage uses) on Wynyard Wharf, referred to at Section 2 above, are covered as port activities or ancillary uses and therefore whether parking is to be permitted for these uses. We would recommend that the Wynyard Quarter maximum parking standards are applied. Based on these maximum parking rates, it would lead to 36 spaces related to the activities on Wynyard Wharf. It is noted that residential activities on the wharves are a non-complying activity in the plan change and so the accommodation parts of the table do not need to be included in the coastal plan. The parking requirement for the Halsey Street Wharf (and Western Viaduct Wharf which extends off that wharf) was set out in our report on the Marine Events Precinct. This report recommended that a total of up to 50 spaces should be provided to serve the operational uses of the Events Centre and the various marine uses which will continue to take place on the wharves. Additional spaces may be required for exhibitors during larger events. It is confirmed that there is no need for general public car parking on these wharves. It should be noted that the parking, particularly for Wynyard Wharf, could be provided off site, provided that sufficient safeguards are in place regarding the use of the allocated spaces. This is likely to be primarily for reasons of amenity, rather than for traffic/transport reasons. 5 RESPONSES TO SUBMISSIONS 5.1 Te Wero Bridge The following submissions relate to the traffic effects of the proposed Te Wero Bridge: Viaduct Harbour Holdings Ltd (Submission 33/4) state that the Te Wero Bridge will give rise to adverse effects; PEG Hosking (Submission 33/9) opposes the use of the Te Wero Bridge by non Tank Farm buses. He also suggests the use of Fanshawe Street and Viaduct Harbour Avenue for public transport; The Heart of the City (submission 19/5) states that regional diesel buses should be excluded from using Te Wero Bridge and should remain on Fanshawe Street; Mr JS Burrett (submission 46/3) expresses concern about the noise as buses accelerate across the Bridge; B McClure (submission 3/1), E and E Ikin (submission 5/1) and P Hosking (submission 14/5) oppose the bridge and suggest that if there is a bridge, it should be for pedestrians and cyclists only; Various other submitters oppose Te Wero bridge for un-specified reasons or because of potential effects on marine users in the Viaduct Harbour. Our responses to these submissions are set out below Use of Bridge by Buses The need for the Bridge and the benefits for buses using the facility are identified in Section 3 of this report and further details are provided in the report attached at Appendix C. The number of buses to use the bridge has yet to be determined and it may be that buses do not use the bridge in the short term. However, we consider that the bridge should be constructed in a way which facilitates its use by buses, for reasons set out at Section 3.

17 Responses to Transport Related Submissions 12 Again, we stress that the aim is that the buses should be permitted across Te Wero bridge in order to increase the penetration of services within Wynyard Quarter. That is to say, they should be serving people living and working within the Quarter. The aim is not to provide a rapid transit route through the Quarter Use of the Bridge by Diesel Buses This was an issue that was raised within the Wynyard Quarter ITA. We accept that it would be desirable for buses using the Bridge not to be diesel, and there may be potential for the use of electric buses similar to the City Circuit bus. However, this is an issue which can probably not be addressed via the Plan Change Adverse effects of Te Wero Bridge The adverse effects of the Bridge can be summarised as follows: Effects of the Bridge on marine users. The magnitude of this issue is not clear at this time as operational protocols regarding the opening of the bridge have yet to be established. Our report on the Te Wero Bridge noted the surveys which were reported in the Wynyard Quarter ITA. These surveys indicated that the number of vessels passing through the line of the proposed bridge is quite modest in the weekday AM peak but more substantial during the weekday PM peak. We therefore recommended that the bridge remains for bus (and pedestrian and cycle use) throughout the AM peak period, between , with openings perhaps between and However, it seems likely that an opening may be required during the PM peak. During the interpeak we recommend that the bridge is open for marine users at fixed times, maybe on the hour, every hour, for about 10 minutes, but as noted above, this is an issue which requires clarification; The effects of buses on the Bridge and on the route through to Quay Street, in terms of noise, amenity and other effects through the Viaduct Harbour entertainment area. This issue is closely related to the other issues, noted above, namely, the magnitude of the effects will depend on the number of buses, which has yet to be determined, and the extent of noise and other environmental effects will depend on the type of vehicles using this route. It is currently intended that the number of buses using the Bridge will be quite modest and the adverse effects on the route from the Bridge through the Viaduct Harbour entertainment area will be similarly modest. We firmly recommend that the route should be retained as a low speed environment and that bus drivers will need to respect the fact that they are in a pedestrian dominated area; The effects of buses on the operation of the road network, such as at the Lower Hobson Street / Quay Street intersection. This issue has been addressed implicitly within the Te Wero Bridge Transport Assessment. Section 6.2 of the Assessment considered the overall travel times of vehicles (buses and other vehicles) on the road network within the western half of the CBD and concluded that these times will decrease. As a result, while there may be local adverse effects due to additional traffic heading to and from the Bridge, the overall effects are positive. The local adverse effects are set out at Appendix D, in terms of the predicted operation of the Lower Hobson Street / Quay Street intersection for future (2021) scenarios without and with the Bridge. These plots indicate that the intersection is currently modelled as operating with one arm right at 100%, in the PM peak. However, optimisation of the signals (by increasing the time for this phase by a couple of seconds) would resolve this modelled issue, allowing the intersection to operate within capacity in the peak periods, in the year 2021.

18 Responses to Transport Related Submissions Alternatives to Te Wero Bridge As noted earlier, it is proposed that the Te Wero Bridge is used by pedestrians, cyclists and buses. A number of alternatives to the Te Wero Bridge were assessed within the Te Wero Bridge report, including: The use of the Bridge by pedestrians and cyclists only; The above option explicitly included the option of running all Wynyard Quarter related buses via Fanshawe Street; The use of the Bridge by pedestrians, cyclists plus buses in one direction only; The provision of alternative routes across the Viaduct Harbour. We also considered the option of using Viaduct Harbour Avenue for buses but did not explicitly refer to this option in the report. This was due to the limited width of Viaduct Harbour Avenue, which means that bus priorities cannot be easily achieved along the route. This will reduce the value of the route for buses, as they will have to share space with general traffic and will therefore become caught up in general congestion. 5.2 Parking Provision The following submissions relate to parking issues: Auckland Regional Council (submission 23/3) suggests changes in the provisions in order to ensure that the wharves are not used for large scale car parking; Creative Functions Ltd (submission 24) seeks a number of modifications to the plan change, around the wording of the parking provisions; Sealink Travel Group Ltd (submission 25/36) note that parking provision and public transport are not mutually exclusive and properly designed provision for cars and vehicular movement does not need to detract from the amenity of the area and other road users; Auckland City Council (submission 32) requests that the maximum parking ratios should be consistent with the Wynyard Quarter plan change. We consider that the general intentions regarding parking are clear, from the clauses quoted at Section 4 above. As such, the ARC s suggested change does not appear to be necessary, as the aim not to permit parking for the general public is already stated. Similarly, we do not see the need for the changes proposed by Creative Functions Ltd, as presumably this activity is covered as an existing facility and parking may be permitted for the intermittent use of this facility until the expiry of the lease, which we understand is in November The Sealink submission is considered to be addressed by the existing provision g which states that parking shall be only for vehicles directly associated with port activities and ancillary services. Ferry services are included within the coastal plan s definition of port activities. Section 2.4 of this report noted that current ferry services have a negligible effect on the operation of the road network in the peak periods. As noted above, we suggest that there is merit in ensuring that the parking for new activities is consistent with the maximum standards set out at Section 4 above.

19 Responses to Transport Related Submissions Consistency with Wynyard Quarter Plan Change Need for consistency Auckland City Council (submission 32) and Auckland Regional Council (submission 23) refer to the need for consistency with the travel demand management (TDM) prerequisites within the Wynyard Quarter District Plan Change. On the one hand, the activities proposed within the wharves are quite modest and not of a scale, in isolation, to cause significant adverse effects. However, the uses of Wynyard Quarter and the adjacent wharves will all share access onto Fanshawe Street, and the main intersections are predicted to be quite congested, particularly in the PM peak. As a result, it seems inappropriate to permit unrestricted car access for activities on the wharves while imposing a range of conditions on activities within Wynyard Quarter Travel Demand Strategies As noted above, we are recommending that car parking standards within the wharves are consistent with those proposed for Wynyard Quarter and it follows that the TDM measures should also be consistently applied. These travel demand strategies are as follows: Restrictions on parking; A cap on the amount of office activity; The development of a Transport Management Body; A requirement for the preparation of travel plans Need for a Transport Management Body The rationale for the travel management requirements contained within the District Plan Change in addition to the office GFA cap and parking constraints are set out below. Accessibility Transport planners often refer to the stick and the carrot approaches and these terms can be used to demonstrate the need for both parking restraint and travel demand initiatives. The parking restraint will be the stick which will be used to ensure that excessive numbers of private vehicles do not enter or leave sites within the Quarter. Such restraint can be a fairly effective method of achieving a mode shift, but it has the potential to reduce the accessibility of Wynyard Quarter by private vehicles; The travel management initiatives will therefore provide the carrots to ensure that the area remains accessible by other means. That is to say, the initiatives will play an important role in facilitating options for visitors, workers and residents to utilise different modes of transport to/from the Quarter. An unbalanced diet of only sticks or only carrots is unlikely to lead to a successful outcome for the following reasons: A diet of only sticks (i.e. parking restraint without other supporting measures) is likely to leave the area as being inaccessible. Thus while it may allow the Plan Change to proceed without significant adverse traffic effects, it would be likely to jeopardise the success of the development, if the Quarter becomes known as an area that it is hard to get to;

20 Responses to Transport Related Submissions 15 On the other hand, a diet of only carrots (i.e. travel management initiatives without parking restraint) may achieve a modicum of success, because in New Zealand people are fairly wedded to the benefits of car travel. Encouraging changes in travel behaviour through the provision of alternative transport options will only be partially successful unless some of the convenience of driving a car is reduced such as via parking restraint. In the longer term there may be a different situation, as we all become more aware of the need to change our behaviour for health and environmental reasons. An example of the need for travel management initiatives to facilitate accessibility relates to the amount of travel by car passengers. Table 7-1 of the ITA of June 2007 noted that currently private vehicle occupancy for journeys to work in the Wynyard Quarter is running at around 1.1 persons per car. It is hoped that this figure will increase to 1.5 or more persons per car, meaning that car passengers will be able to comprise 15% of the future journey to work trips. A transport management body could significantly improve the level of knowledge by setting up a Rideshare system, enabling people working for different companies to share rides with people making similar trips, on a Quarter-wide basis. Clearly this is only one example of a travel management initiative, and more are set out in the Preliminary Transport Plan 8 but it serves the purpose of demonstrating how the Transport Management Body can actively influence travel behaviour and ensure that the area is accessible. Unaccounted Trips As part of the operation of activities within Wynyard Quarter there will be a number of trips which are not directly associated with the use of on site car parking. These trips will include drop-off or pick up trips, courier deliveries and short term parking on street. The travel management initiatives will play an important role in managing and minimising these trips, by facilitating travel by other means and maximising the awareness of the potential of alternative forms of travel. To continue to use the example of a Rideshare scheme, if an employee s friend or partner who is driving home from work via Fanshawe Street diverts into Wynyard Quarter to pick someone up from their place of work, this will create an inbound and an outbound trip passing through the Quarter. On the other hand, if that person is picked up by a someone working in an adjacent building, this will avoid any additional trips. Consistency and control A key aim of the Transport Management Body will be to coordinate transport related initiatives on a Quarter-wide basis. This will achieve the following: It will allow employers and groups of residents the economies of scale in implementing various measures; It will ensure that the various measures to be implemented are consistent and complementary; It will allow employers and groups of residents a share of control in the travel management initiatives for the area, in terms of which measures are selected from the wide range of TDM related tools and how they are implemented. 8 Wynyard Quarter: Preliminary Transport Plan (May 2008), Flow Transportation Specialists

21 Responses to Transport Related Submissions Travel Plans Section of the District Plan Change states that a detailed site travel management plan should be provided for any new activity or change to an existing activity which either provides 10 or more car parking spaces on site or results in a total average daily traffic generation of 100 movements or more. It would be desirable for the provisions of the coastal plan to be consistent on this issue. It would relate to the potential office activity on Wynyard Wharf and to the Marine Events Precinct. Indeed our report on the MEP (at Appendix B) recommends that the Traffic Management Plans which relate to events at the existing site are widened to become Traffic and Transport Management Plans. The current District Plan does not provide any reference to the development of travel plans, but this is only as they are a new concept (within New Zealand). However, it is reasonable to assume that the requirement for a travel plan should be similar to that required for a traffic and transport assessment 9. The Auckland City District Plan does not indicate the threshold for a traffic assessment, but Section 9.6 of the District Plan: Central Area Section states that any parking relating to a permitted, controlled or discretionary activity providing for more than 100 vehicles is a restricted controlled activity. This is the threshold at which a Traffic Impact Assessment has traditionally been assumed to be required (prior to the development of the ARTA ITA Guidelines, referred to below). Within the Wynyard Quarter, according to the current Central Area Plan, parking is required at a rate of 1 space per 50m2. This indicates that a traffic assessment is currently required at 5,000m2. The scope of Traffic Impact Assessments has now been widened to include wider transport issues and guidelines for Integrated Transport Assessments (ITAs) were prepared by ARTA in These stated that ITAs should be prepared for (inter alia) a plan change or a major trip generation activity. Guidelines were given as to the size of development that justified the need for an ITA, which included offices of more than 2500m2. The maximum parking standards proposed for the Wynyard Quarter include 1 per 150m2 of office space. As a result, the travel plan thresholds within the Plan Change indicate that a travel plan should be undertaken for an office development of 1,500m2, based on the parking threshold given in the Plan Change. The above figure indicates that the thresholds for travel plans within Wynyard Quarter are lower than those for ITA s in Auckland. However, it should be recognised that the ARTA thresholds are intended to be only a guide. The ARTA document states that 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. The same rationale can be applied to the need for travel plans for smaller developments within Wynyard Quarter, due to the potential impact on the road network, and the need for active travel management initiatives to minimise the adverse effects. This is particularly the case as the thresholds for ITAs were set for the Auckland region as a whole. In general, the traffic generating potential per unit size of development will be greater in areas outside the Auckland CBD, but the number of person trips by all modes will probably be higher for sites within the CBD, due to the greater intensity of use (with for example, more office employees per 100m2 of space) partly a result of higher land prices. As a result it is considered 9 While we are not aware of any thresholds requiring travel plans within New Zealand, the approach of adopting the same threshold for travel plans and transport assessments is adopted elsewhere. For example in the UK, Appendix B of Guidance on Transport Assessment (March 2007), Department for Transport, sets out consistent thresholds for both travel plans and transport assessments

22 Responses to Transport Related Submissions 17 appropriate that the thresholds for travel plans within Wynyard Quarter are lower than may be expected elsewhere in the Auckland region Summary of the need for travel management initiatives Thus the travel management initiatives are required for the area to complement the parking restraint policies, to ensure that accessibility of the area is maintained and to assist in minimising the number of vehicle trips. 5.4 Development of office activities on Wynyard Wharf The following submissions relate to the traffic effects of new developments, particularly office activities, on Wynyard Wharf: Viaduct Harbour Holdings Ltd (submissions 33/11 and 33/12) seek that all provision for offices on Wynyard Wharf, and rule i in particular, be deleted from the plan change. VHHL consider that the coastal plan change is not consistent with the district plan change objectives which seek to focus higher traffic generating activity near Fanshawe Street to reduce the potential to draw traffic throughout Wynyard Quarter. Auckland City Council (submission 32/9) seek that clause i be amended to incorporate a maximum total office floor area limitation on Wynyard Wharf to provide consistency with the District Plan Change and the supporting traffic modelling forming part of the section 32 analysis. Our responses to these submissions are set out below Office activities Clause i of the plan change states: i the maximum area that the office activities permitted by Rule can occupy at wharf (ground floor) level on Wynyard Wharf is 50% of any individual building. There is no limit on other levels. As noted in Section 2 and Appendix A of this report, the proposed office activity on Wynyard Wharf has been taken into account in the Integrated Transport Assessment. Although the district plan change has a general position of encouraging office activities toward the south end of Wynyard Quarter, it also provides for office activities in other areas. The amendments recommended elsewhere in this report will limit the effects of office activities on Wynyard Wharf on traffic congestion on the approaches to Fanshawe Street Maximum office floor area It is understood that the 50% limit in clause i was included to encourage active uses at ground level for amenity reasons, as well as to limit the total area of office space on Wynyard Wharf in response to traffic concerns. In order to give greater clarity to the limit on office space, and provide consistency with the district plan, it may be appropriate to expand the above provision to also include: subject to the total office activity on Wynyard Wharf not exceeding 4,200 m 2.

23 Responses to Transport Related Submissions 18 APPENDIX A Land Use and Trip Generation Assumptions for Wynyard Quarter

24 Responses to Transport Related Submissions 19 Wynyard Quarter has been divided into seven separate areas as shown in Figure A1. Table A1 shows the assumptions made for the land uses within each area. Figure A1: Proposed Quarter Areas within Wynyard Quarter

25 Responses to Transport Related Submissions 20 Table A1: Land Use Assumptions by Quarter Area (m2) Quarter Area 1 Quarter Area 2 Quarter Area 3 Quarter Area 4 Quarter Area 5 Quarter Area 6 Quarter Area 7 Marine Office Retail Food and Beverage Land Uses (m2) Accommo dation Nonperm. Accommo dation Events Centre Totals 2,600 66,000 3,440 1,900 48, ,900 4,000 33,500 3,940 2,150 84, ,600 75,000 5,000 7,040 3,850 14, ,750 11,000 34,000 5,100 2,800 94, ,750 41,200 35,000 6,000 6,000 18, , ,500 4,050 2,200 45, , , , ,800 Total 133, ,000 30,700 19, , ,900 Halsey Wharf Extension Wynyard Wharf Viaduct Harbour Avenue East of Halsey Street Total (inc. adj areas Adjacent Areas ,600 2, , , , , ,100 13, , , ,450 31,300 20, ,950 13,150 2, ,750 It will be noted that the only development assumed for areas covered by Plan Change 3 are offices, with small amounts of retail and food and beverage uses, on Wynyard Wharf, with the Marine Events Precinct on Halsey Wharf Extension. The trip rates for each land use were set out in the June 2007 ITA. The expected trip totals for each of the Quarter Areas are as set out in Table A2, on the basis of the assumed land uses per quarter set out above.

26 Responses to Transport Related Submissions 21 Table A2: Trip Predictions per Quarter Area (vehicles/hour) Total GFA Trips AM In Trips AM Out Trips PM In Trips PM Out Quarter Area 1 121, Quarter Area 2 127, Quarter Area 3 105, Quarter Area 4 147, Quarter Area 5 106, Quarter Area 6 62, Quarter Area 7 14, Total 686,900 1,980 1,105 1,150 2,285 Halsey Wharf Extension 2, Wynyard Wharf 5, Viaduct Harbour Avenue East of Halsey Street Total (Wynyard Quarter inc. adj areas 34, , ,750 2,330 1,270 1,310 2,650

27 Responses to Transport Related Submissions 22 APPENDIX B Marine Events Precinct Integrated Transport Assessment

28 Responses to Transport Related Submissions 23

29 Responses to Transport Related Submissions 24 APPENDIX C Te Wero Bridge Transport Assessment

30 Responses to Transport Related Submissions 25

31 Responses to Transport Related Submissions 26 APPENDIX D Predicted Operation of Lower Hobson Street/Quay Street Intersection, in 2021, without and With Te Wero Bridge

32 Responses to Transport Related Submissions 27 Predicted Operation of Lower Hobson Street / Quay Street, without Te Wero Bridge: AM Peak Predicted Operation of Lower Hobson Street / Quay Street, without Te Wero Bridge: PM Peak

33 Responses to Transport Related Submissions 28 Predicted Operation of Lower Hobson Street / Quay Street, with Te Wero Bridge: AM Peak Predicted Operation of Lower Hobson Street / Quay Street, with Te Wero Bridge: PM Peak