October 2018 Recommended Programme of Investment Published May 2019 3 of 4 Artist impression – possible solution THE RECOMMENDED PROGRAMME IS AMBITIOUS AND ASPIRATIONAL, AND SEEKS TO REALISE LGWM’S VISION Artist impression – possible solution 2 Overview MAKING WELLINGTON A BETTER PLACE BY MOVING MORE PEOPLE WITH FEWER VEHICLES LGWM used the community’s feedback, and our extensive technical work, to develop this Recommended Programme of Investment. This was endorsed by the LGWM Governance Group in late 2018. The recommended programme reflects the partners’ ambitions for improving Wellington’s transport system over the next two decades. It is a high-level, whole-of-system approach that will enable the growth of the city and the region. It seeks to integrate urban development with transport investment, and help people get around, whether you’re walking, cycling, using public transport, or driving. At its heart, the programme seeks to deliver a multi-modal transport system that moves more people, goods and services reliably, with fewer vehicles. FUNDING AND AFFORDABILITY Once the Recommended Programme of Investment was endorsed by the LGWM Governance Group, it was shared with central government due to its scale and the funding challenges it presents. The LGWM vision and the recommended programme are ambitious. The Governance Group challenged the LGWM team to be bold so we didn’t miss any opportunities to support the city and region’s success. As such, LGWM acknowledges the programme as a whole is unlikely to be fundable within current transport funding settings. However, LGWM’s focus on integrating land use with transport investment has the potential to deliver large benefits via urban regeneration and uplift – especially from a new mass transit system. With this in mind, members of the LGWM Governance Group engaged with transport ministers to develop an innovative funding model for LGWM and to seek support for an initial package of investments that would allow early and substantial progress to be made in realising the ambitions of the recommended programme. 3 The recommended programme Moving more people with fewer vehicles OUR STRATEGIC APPROACH 1 Make the most of what we have • Optimise the transport system and make it safer • Encourage people to walk, cycle, and use public transport more, and use cars less 2 Deliver a step change in public transport • Substantially improve public transport capacity, quality and performance • Encourage urban intensification near public transport 3 Improve journeys to, from and in the central city • Prioritise people walking, cycling, and using public transport on key corridors • Improve accessibility and amenity of places and streets • Ensure those who need to use private vehicles can (e.g. deliveries) 4 Improve public transport priority and capacity on core routes into the city and to the region Improve journeys through and around the central city • Reduce conflicts between different transport users and traffic flows • Increase the resilience and reliability of our transport corridors, especially to the hospital, port, and airport Relocate through traffic out of the central city and other routes (such as Evans Bay Parade and Constable St) to the state highway – to improve amenity and places for people Separate walking, cycling, public transport, and vehicle movement across the state highway Prioritise space for walking, cycling, and public transport to make the central city more accessible and liveable CBD Lambton Harbour Te Aro Adelaide Rd Create a dedicated mass transit route to move more people and to support urban regeneration and intensification Evans Bay Newtown Kilbirnie Miramar Seatoun 5 The recommended programme A WHOLE OF SYSTEM APPROACH – A RANGE OF IMPROVEMENTS THAT WORK TOGETHER HIGH QUALITY WALKING AND CYCLING BETTER PUBLIC TRANSPORT WITH HIGH-CAPACITY MASS TRANSIT So our streets are safer and better places for people So people have more travel choices, and buses and trains are more reliable and attractive • Safer speeds in and around the city - Footpath widening • Mass transit from the railway station to the airport via a new waterfront spine, Taranaki Street, the hospital, Newtown, Kilbirnie, and Miramar (see page 9) - Improved crossing facilities and reduced waiting times • Bus priority improvements: - Better shelters, signage, lighting - Golden Mile spine, with general traffic removal on Willis and parts of Lambton and Courtenay - Core routes into the city such as Thorndon Quay and Hutt Road • Walking improvements though the central city including: • New dedicated walking access through Mt Victoria • Public space improvements, for example, Dixon, Mercer, through Te Aro, Basin Reserve • High quality, high frequency buses • A network of connected cycleways through the central city • Increased rail network capacity* • New dedicated cycleways connecting through Mt Victoria, along Adelaide Rd, and Vivian St • Integrated ticketing* *implemented outside of LGWM • New pedestrian crossings, including Cobham Drive Artist impression – possible solution 6 Artist impression – possible solution The recommended programme (continued) A WHOLE OF SYSTEM APPROACH – A RANGE OF IMPROVEMENTS THAT WORK TOGETHER URBAN DEVELOPMENT LAND USE CHANGES INTEGRATED WITH TRANSPORT SMARTER TRANSPORT NETWORK WITH ROAD PRICING MULTIMODAL STATE HIGHWAY IMPROVEMENTS So people have better travel choices near where they live and work So people and goods make better use of our transport system with fewer cars • District plan changes • Smarter pricing (e.g. parking/cordon charges) • Other tools to increase housing • Mobility as a Service for Wellington To relocate cars out of the central city and enable better public transport, walking and cycling, and so people can get to key destinations, such as the hospital and airport, more reliably • Building where the market can’t deliver • Network optimisation, safety and operations improvements • Capturing increases in land value to support infrastructure investment • Enhanced Travel Demand Management (TDM) • Integrated network operating system • Align parking policy and management with the programme • Basin Reserve improvements (see page 11) • Extra Mt Victoria Tunnel and widening Ruahine St/Wellington Rd • Reconfiguring SH1 into a tunnel under a new city park in Te Aro • Extra Terrace Tunnel • SH1 Southbound widening between Ngauranga and Aotea Quay Artist impression – possible solution Artist impression – possible solution 7 What could Wellington?s future look like? Ar impression possible solution Mass transit CONNECTING THE CENTRAL CITY TO NEWTOWN, MIRAMAR AND THE AIRPORT, SUPPORTING URBAN REGENERATION Mass transit will improve travel choice through the city with attractive public transport on a second spine along the waterfront quays. Mass transit will help shape a more compact and sustainable city and region. Mass transit will be part of the wider public transport network, with: • High frequency services (every 10 minutes or less) • Modern, high capacity electric vehicles with superior ride quality • Fast loading and unloading • Dedicated lanes with signal priority • High quality stations with level boarding Phased development: Artist impression – possible solution JERVOIS QUAY • Phase 1: Railway Station to Newtown • Phase 2: Extension to Miramar and the airport KEY ISSUES FURTHER WORK IS NEEDED IN LGWM’S NEXT STAGE TO INVESTIGATE MASS TRANSIT, AND DETERMINE THE MOST APPROPRIATE MODE AND ROUTE, AND HOW BEST TO INTEGRATE IT WITH OTHER PROGRAMME ELEMENTS Further investigation is needed on: • Technology (vehicle type) • Route choice and extensions • The potential for urban development • Integration with the wider public transport network • Funding options • Supporting land use and policy changes to enable urban development and support the investment in mass transit Artist impression – possible solution TARANAKI STREET 9 A more walkable and attractive central city BETTER FACILITIES AND PRIORITY FOR PEOPLE WALKING Walking and public space improvements in the central city will help create an environment that’s safe and attractive for people to walk around, and that makes walking a more pleasant transport option for more people. Walking improvements will include: • Accessibility and amenity improvements – including wider footpaths, improved crossings and priority, shelter, signage, lighting – on main walking routes • Setting safer speeds for vehicles in the central city and on State Highway 1 east of Mt Victoria • Larger-scale walking improvements, to support high-quality public spaces • Walking improvements included in major programme elements, for example high-quality walking access through Mt Victoria, and walking priority across the state highway in Te Aro • A safe crossing for people walking and cycling on State Highway 1 Cobham Drive Artist impression – possible solution Artist impression – possible solution 10 LAMBTON QUAY WILLIS & MERCER STREETS Unblocking the Basin IMPROVING ACCESS FOR ALL MODES WHILE ENHANCING THE BASIN’S VALUE FOR THE COMMUNITY Improvements near the Basin Reserve will reduce conflicts between different travel movements and modes, creating more reliable access around the Basin regardless of how people travel, and better connections with the community. Improvements will include: • Minor at-grade changes in the short-term to improve reliable access for all modes • Grade separation between north-south movements, east-west movements, and any mass transit corridors KEY ISSUES • Further investigation is needed once the mass transit route is decided to determine which form of grade separation will provide the best outcomes for the transport network and the community Artist impression – possible solution LOOKING SOUTH TO THE BASIN • Engagement with the community will be needed to explore and develop a design that achieves transport outcomes, is sympathetic to the local geography, enhances the use of the Basin, and improves amenity around the reserve. OPTIONS FOR GRADE SEPARATION WILL DEPEND ON KEY DECISIONS ABOUT THE MASS TRANSIT MODE AND ROUTE THAT REQUIRE MORE DETAILED INVESTIGATION Artist impression – possible solution LOOKING EAST FROM MEMORIAL PARK 11 Te Aro improvements REDUCING THE IMPACT OF TRAFFIC THROUGH TE ARO BY REMOVING CONFLICTING MOVEMENTS Putting the state highway into a new tunnel under Te Aro and creating a new urban greenspace above the tunnel will reduce severance in the Te Aro community and significantly improve the urban environment. It will enable regeneration and housing intensification close to jobs, education, and public transport. And it will give people walking, cycling, and on the bus, priority crossing over the state highway. It will also improve regional access to key destinations such as the hospital and airport. Improvements will include: • Undergrounding State Highway 1 in both directions on the inner-city bypass alignment • Creating a transformational green space above (see illustrations) • Removing state highway traffic from Vivian Street and Kent/Cambridge Terraces and making Vivian Street a two-way city street Artist impression – possible solution LOOKING EAST KEY ISSUES Further investigation is needed to decide on: • The form, feasibility, and cost of undergrounding • The potential for urban regeneration and uplift • Integration with other programme elements • Engagement with the community will be needed to explore and develop a design that achieves the programme’s outcomes and maximises the opportunities that the new park will bring Artist impression – possible solution 12 LOOKING WEST Programme sequence z; I I 3 INDICATIVE TIMING by 2024 Deliver early improvements including walking, cycling, and public transport that will help keep Wellington moving while starting investigation and design of larger programme elements UNDERWAY* Mass transit preparatory work – city to Newtown Central city walking Integrated ticketing* Mobility as a service Network optimisation Increased rail capacity* Thorndon Quay/Hutt Road – prioritising buses and improving walking and cycling Stadium Enhanced TDM Integrated system operation * Progressed outside the LGWM programme Bus priority to the city District plan changes Smarter pricing Basin improvements Safer speeds in central city Golden Mile – prioritising buses and improving walking and cycling. Thorndon WELLINGTON Lambton Harbour Public space improvements Connected central city cycleway network Te Aro Mt Victoria Extra Mt Victoria tunnel Ruahine St/Wellington Rd walking, cycling, widening * Includes detailed investigation, design, consultation, consenting, and/or early construction work ESTIMATED TOTAL CAPITAL EXPENDITURE: $0.6 BILLION* *2018 dollars 14 Hataitai Safer speed limits on SH1 east of Mt Victoria Brooklyn Evans Bay Newtown New Cobham Drive walking and cycling crossing Map is indicative only Smaller projects are not shown Kilbirnie Lyall Bay Seatoun INDICATIVE TIMING 2024 to 2029 Deliver a step-change in public transport with new mass transit, and reshape the transport system to provide more travel choice and transform Wellington Smarter pricing District plan changes Further rail enhancements Stadium Thorndon Technology review WELLINGTON Lambton Harbour UNDERWAY* Mass transit – Newtown to airport Mass transit city to Newtown Te Aro tunnel and city park Basin improvements Extra Terrace Tunnel Extra Mt Victoria tunnel Ngauranga to Aotea Quay * Includes detailed investigation, design, consultation, consenting, and/or early construction work Bus priority to and from the city along core routes Mt Victoria Hataitai Brooklyn Evans Bay Newtown New dedicated walking and cycling access through Mt Victoria ESTIMATED TOTAL CAPITAL EXPENDITURE: $1.7 BILLION* Te Aro Kilbirnie Ruahine St/Wellington Rd widening Map is indicative only Smaller projects are not shown Seatoun Lyall Bay *2018 dollars 15 INDICATIVE TIMING After 2029 Connect mass transit to the airport, adapt the programme to changing technology and to the city and region’s growth Technology review Ngauranga to Aotea Quay Stadium Thorndon WELLINGTON Lambton Harbour Extra Terrace Tunnel Vivian St transformed into a two way city street with walking and cycling enhancements Te Aro Mt Victoria Relocate SH1 southbound from Vivian Brooklyn St into a new tunnel under Te Aro New city park over Te Aro tunnel Mass transit – Newtown to airport ESTIMATED TOTAL CAPITAL EXPENDITURE: $1.7 BILLION* *2018 dollars 16 Map is indicative only Smaller projects are not shown Hataitai Evans Bay Newtown Kilbirnie Lyall Bay Seatoun Estimated programme performance {up "Hi- 1 I 1"me I -1 . I .4. ression possible solution Evaluating the recommended programme ASSESSING PERFORMANCE LGWM used a range of assessment techniques, including transport modelling, to assess the programme’s performance against Key Performance Indicators (KPIs). Other performance measures will be developed as the programme develops. PROGRAMME OBJECTIVES KEY PERFORMANCE INDICATORS Amenity The quality of the urban environment, including greenspace, urban design, traffic volumes/speeds and pedestrian space Carbon emissions Transport-related CO2 emissions in the central city Urban development potential Opportunities for urban development and value uplift Travel time reliability The reliability of travel time by different modes to key regional destinations Network catchment The number of people living within 30 minutes of key destinations System occupancy The ratio of people travelling to the central city (by all modes) against the number of private vehicles Level of service walking Delays for people walking in the central city Level of service cycling The quality of cycling facilities Safety for walking and cycling The safety benefits for people walking and cycling in and around the central city Network resilience Network resilience to disruption caused by large-scale natural hazards LIVEABILITY ACCESS REDUCED CAR RELIANCE ASSESSMENT SAFETY RESILIENCE 18 ESTIMATED PROGRAMME PERFORMANCE Liveability AMENITY CARBON EMISSIONS Measure of the quality of the urban environment including greenspace, urban design, traffic volumes/speeds, and pedestrian space Transport-related CO2 emissions Amenity will improve due to more and better walking space, urban activation along side streets, street enhancements along the mass transit route, and lower traffic speeds and volumes. AMENITY IN SELECTED AREAS URBAN DEVELOPMENT POTENTIAL Emissions are projected to decline due to changes in the vehicle fleet (fuel efficiency and electric vehicles). The programme contributes a further 18% reduction in emissions within the CBD. Road pricing will have the biggest impact on emissions and the programme includes good public transport, walking and cycling options to enable pricing. Mass transit supports more intensive development so more people use public transport and more destinations are walkable and cycleable.. Assessment of the opportunities for urban development and value uplift Mass transit will facilitate regeneration and more intensive development around stops. This will contribute to land value increase from additional development and jobs facilitated by intensification. POTENTIAL FOR URBAN DEVELOPMENT EMISSIONS PER PERSON (2013 = 100) 100 100 100 40 33 CBD 43 City 2013 (Base) Region 2036 19 ESTIMATED PROGRAMME PERFORMANCE Efficient and reliable access TRAVEL TIME RELIABILITY NETWORK CATCHMENT The reliability of travel time for journeys by different modes to key regional locations The number of people living and working within 30 minutes of key locations Travel time reliability to and through the central city and to key regional destinations will improve. TRAVEL TIME RELIABILITY, SAMPLE ROUTES (MINUTES) Range of travel times on each route Accessibility to the central city and key regional destinations will improve by all modes. In 2036, the programme will increase the number of people within 30 min of Wellington CBD by public transport by 58,000 (36%) and the number of people within 30 min drive of the airport by 75,000 (50%). TRAVEL TIME RELIABILITY, SAMPLE ROUTES (MINUTES)* 2016 50 Stadium Thorndon 30 min public transport access to Civic Square FREIGHT 30 min vehicle access to airport 225,000 220,000 40 2036 WELLINGTON Te Aro MINUTES Lambton Harbour VEHICLE 162,000 30 150,000 2016 Mt Victoria 20 Hataitai 2016 2036 Brooklyn Evans Bay Newtown 10 2036 Kilbirnie PUBLIC TRANSPORT Lyall Bay 0 2016 2036 • In the morning peak 7-9am weekdays 20 Island Bay Owhiro Bay Seatoun 2016 2036 ESTIMATED PROGRAMME PERFORMANCE Reduced reliance on private vehicles SYSTEM OCCUPANCY LEVEL OF SERVICE WALKING LEVEL OF SERVICE CYCLING The ratio of people entering the central city (by all modes) against the number of vehicles entering the central city Delays for people walking in the city An assessment of the quality of cycling facilities Key outcomes for people walking: System occupancy will increase due to more use of public transport, walking and cycling, fewer vehicles entering the central city, and increased car occupancy due to pricing. ✓ Less traffic across the central city The level of service for cycling will improve from poor to good or very good in the central city and when connecting to the east. Some improvement to the north and south. PEOPLE AND VEHICLES ENTERING THE CENTRAL CITY IN THE MORNING PEAK along key pedestrian routes ✓ Less waiting time at crossings in the central city ✓ Pedestrian crossing priority will be enhanced CYCLE, LEVEL OF SERVICE MEASURE, DANISH ROAD DIRECTORATE ✓ Community severance will be reduced due to walking priority across the state highway in Te Aro 100,000 82,000 ✓ Improvements for people crossing the road 31,000 2016 25,000 at stations along the mass transit corridor will provide a benefit to mass transit users and others 2036 21 ESTIMATED PROGRAMME PERFORMANCE Safety and resilience SAFETY FOR WALKING AND CYCLING NETWORK RESILIENCE An estimate of the safety benefits for people walking and cycling in and around the central city An assessment of the network’s resilience to disruption caused by largescale natural hazards There will be fewer fatal and serious injury crashes for people walking and cycling due to reduced traffic volumes in the central city, reduced conflicts along the state highway, and lower traffic speeds. Access between communities and key regional facilities (hospital, airport, port) will be more secure following a large-scale natural hazard event. ANNUAL DEATHS AND SERIOUS INJURIES, WALKING AND CYCLING 11 5 2016 22 2036 The transport network will be more resilient to small scale disruption due to additional capacity on both traffic and public transport networks. ESTIMATED PROGRAMME PERFORMANCE Other significant impacts PARKING On-street car parks will need to be removed BUILT ENVIRONMENT AND HERITAGE Where: Through the central city and along main corridors to south, east, north Private property and heritage items will be affected Why: To reallocate space to moving people Where: Along the mass transit route and the state highway The number of parks affected and location will be determined as detailed design progresses. An initial estimate is that up to 1,500 on-street car parks may be affected. Why: To provide space for mass transit and other key infrastructure works MITIGATION: The impacts may include land take, impact on property frontage or setting, or require a building to be adapted or moved. Parking mitigation strategy will be a key element of the programme MITIGATION: Improvements to public transport and walking and cycling links, coupled with pricing, will reduce the demand for parking Detailed design will acknowledge the requirement to preserve heritage features and enhance the overall built environment Property impacts will be avoided or minimised where possible through detailed design CONSTRUCTION DISRUPTION Road or lane closures, reduced speeds, stop/start conditions, and some restrictions on property access will be required Where: Through the central city and along main corridors to south & east – mass transit and the state highway Why: To accommodate construction of new and improved infrastructure Disruption during construction will be significant and city-wide. MITIGATION: Sequencing and control will be important to manage demand and available capacity Travel demand management techniques will be employed 23 ESTIMATED PROGRAMME PERFORMANCE Moving more people with fewer vehicles IMPROVING CAPACITY ON KEY ROUTES REDUCING RELIANCE ON PRIVATE VEHICLES By improving facilities for walking, cycling, and public transport, and creating dedicated/priority routes, key roads can carry many more people at peak times. 18,000 more people are forecast to travel into the central city with 6,000 fewer cars. PEOPLE ENTERING THE CENTRAL CITY IN THE MORNING PEAK* EXAMPLE CAPACITY – TARANAKI ST CROSS-SECTION 2200 2200 1200 1200 1200 9,200 people per hour 1200 100,000 82,000 Traffic Median 2016 3600 3600 2200 2200 1100 1200 1200 2036 1100 16,200 people per hour 2016 2036 * 7-9am weekdays 24 ESTIMATED PROGRAMME PERFORMANCE A step-change in public transport MORE CAPACITY WILL UNLOCK DEMAND The programme will deliver a step-change in public transport. An increase in capacity and higher-quality services are forecast to unlock demand. PUBLIC TRANSPORT CAPACITY AND PATRONAGE IN THE MORNING PEAK 50,000 45,000 MORE PUBLIC TRANSPORT CAPACITY, FEWER PUBLIC TRANSPORT VEHICLES IN THE CENTRAL CITY NORTHBOUND PUBLIC TRANSPORT SEATS IN THE MORNING PEAK* (EXCLUDES RAIL) New public transport capacity delivered by programme 40,000 35,000 NORTHBOUND PUBLIC TRANSPORT VEHICLES IN THE MORNING PEAK* (EXCLUDES RAIL) 15,000 160 9,000 30,000 Current public transport capacity 25,000 20,000 2018 2023 2028 2033 2038 2043 2048 70 2016 2036 2016 2036 * 7-9am weekdays Baseline public transport demand Demand unlocked by better services 25 Economics Economics COSTS BENEFITS BENEFIT COST RATIO Estimated capital costs of the key elements of the recommended programme are shown below. The programme is estimated to contribute significant benefits to the city and region including: Economic assessment estimates that the programme Benefit Cost Ratio (BCR) will be in a range from 0.6 to 1.4 (see summary below).  • Health benefits from more walking, cycling, and walking to public transport Taking account of costs to government, excluding possible third party revenues, the alternative BCR Government (BCR–G) is between 0.7 to 1.7. Mid-range capital cost estimate Element $m* Walkable city 70 Connected cycleways 30 Public transport 300 Mass transit – city to Newtown 990 Mass transit – Newtown to airport 450 • Environmental benefits such as lower carbon emissions and less noise Smarter transport network 30 • Travel time benefits Smarter pricing 30 Extra Mt Victoria tunnel and Ruahine/Wellington Rd 480 • Wider economic benefits from higher productivity and land value uplift Basin Reserve improvements 130 Extra Terrace Tunnel and 4th lane southbound 400 Te Aro Tunnel and park 1,100 TOTAL 4,010 * 2018 dollars • Liveability benefits from higher amenity and more green space Applying a lower discount rate (4% instead of 6%) would increase the full BCR range to 0.7 to 1.7, and the BCR-G to 0.8 to 2.0.  • Safety benefits for people walking, on bikes, and in cars due to fewer and less serious crashes Applying both a 4% discount rate and a longer evaluation period (60 years instead of 40 years) would increase the full BCR to 0.9 to 2.1, and the BCR-G to 1.0 to 2.4.  • More reliable, more pleasant and less crowded travel offered by mass transit • Changes in future distribution of housing in the city and region INDICATIVE BCR SUMMARY – RECOMMENDED PROGRAMME OF INVESTMENT Full cost BCR BCR Cost to Government BCR-G Lower benefits Central Higher benefits Lower benefits Central Higher benefits 0.6 1.0 1.4 0.7 1.2 1.7 27 MOVING NZTRANSPORT 9 Absolutely Positively AGE NCY greater WELLINGTON Wellington City Council WAKA KOTAHI REGIONAL COUNCIL MeHekeij?neke Te Pane Matua Taiao