Section 32 Report: Chapter 8 - Transportation

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1 Section 32 Report: Chapter 8 - Transportation Introduction Hurunui District is highly reliant on its land transport network. The District s size and rural nature necessitates an efficient, safe, sustainable and extensive network that provides for a range of transport modes. However, the physical nature of the resource has a direct impact on the environmental amenity of the District and has the potential to cause significant adverse amenity effects. The Plan is an appropriate means for management of the transport network, due to its role as a regulatory mechanism for the control of land use and infrastructure. Provisions to provide for and manage the network are necessary in order to ensure appropriate development, use and maintenance, that considers environmental amenity and current and future users. Such measures are crucial and should be effectively managed because: The quality of the network impacts on the social, cultural and economic wellbeing of the district s businesses, residents and visitors. Adjacent land use should be managed to prevent adverse effects. Appropriate restrictions on land use may improve affordability, efficiency, integration and safety of the network. Furthermore, the transport network should be managed to ensure the amenity value of neighbouring sites is not diminished. Categorised transport corridors permit effective network management. This improves decision making around appropriate adjacent activities and provides greater certainty and outcomes for consenting officers and Plan users. It also allows Council to set standards to monitor road use, which can feed through to subsequent funding decisions around maintenance and development. Operative District Plan Approach The Operative District Plan (ODP) contains a single broad transportation policy in the Utilities section, under a similarly broad utilities objective. The methods for implementing the policy cover Council management and funding of maintenance and development, consideration of best practice approaches and adoption of national standards, and the provision of information to the public. The ODP contains a comprehensive rule framework and design standards regarding access ways in the Transportation section. These essentially set out the types of activities permitted within transport corridors and rules for access to properties from the network. These are predominantly based on national standards with some deviation to acknowledge the District s rural nature and road variability. Parking, loading, manoeuvring and vehicle crossing standards are set out in the Environmental Amenity section. These ensure adequate accessibility, and prevent congestion and safety issues.

2 The current provisions do not actively encourage alternative transport modes, such as cycling and walking, which can reduce strain on the network. Legislative and Policy Framework The Transport chapter is restricted and guided by a range of legislation and policy from central and regional government. Resource Management Act 1991 (RMA) The RMA does not contain any express requirements regarding transport management for district councils. However, the Council must manage the effects of the use and development of land associated with physical resources, such as the District s transport network. In order to achieve the RMA s purpose, the Council should also endeavour to manage the network in a manner that maintains and enhances social, cultural and economic wellbeing. The Local Government Act 2002 (LGA) The LGA requires the Council to provide for transport infrastructure and funding as part of the Long Term Plan (LTP). Therefore, the District Plan can provide guidance for the LTP in terms of the desirable transport network outcomes. For example, the categorisation of corridor types may assist in identifying necessary funding requirements and allocation during LTP reviews. Environment Canterbury Regional Policy Statement 2013 (RPS) The RPS requires Council to set out objectives, policies and methods in the District Plan around the development and maintenance of the transport network and stipulations around adjacent land use. This approach is intended to reduce the potential adverse effects of the transport network and to minimise any unnecessary reverse sensitivity concerns. The RPS requires the Council to provide for current and future capacity across a range of transport modes. Provisions should seek to create an efficient, sustainable network that provides for a range of transport modes and appropriate activities. This should be achieved in collaboration with national agencies, neighbouring territorial authorities and iwi. Policy Reference Will/Should/May Method Policy Regional growth Territorial Authorities Local Will: Will: Authorities Consider transport programmes under the Land Transport Management Act 2003 (LTMA) that promote better design and integration between land use and transport Work together where appropriate, with adjoining local authorities and, with providers of regionally significant infrastructure when identifying patterns and locations of development. 8-2

3 Policy Development conditions Policy Strategic land transport network and arterial roads Territorial Authorities Will: Local Will: Authorities Territorial Authorities Will: Local Will: Authorities Set out objectives and policies, and may include methods in district plans, particular to each district that establish a comprehensive approach to the management of the location of urban and ruralresidential development within the territorial authority area, including provisions requiring consideration as to how new land use will be appropriately serviced by transport and other infrastructure. (1) Work together where appropriate, with adjoining local authorities and, with providers of regionally significant infrastructure when identifying patterns and locations of development. (2) Set out objectives and policies, and may include methods in regional and district plans: that identifies regionally significant infrastructure, and recognises its economic and social benefits; that manage the adverse effects of, and from, the installation, operation, maintenance and/or development of regionally significant infrastructure. Set out objectives and policies, and may include methods in district plans which: minimise the requirement for upgrading of the strategic land transport network by ensuring that the existing capacity of this network is efficiently used and not compromised by new development. provide for the strategic integration of changes in land-use with the provision of any necessary strategic land transport network, recognising the availability of any necessary funding. minimise loss of function of the strategic land transport network and other arterial roads. support, as appropriate, the provision of public transport services. restrict the location of connection to the existing strategic land transport network, and as necessary to other arterial roads, to those locations where adverse effects on the existing infrastructure are mitigated. discourage the further development of the strategic land transport network if all practicable steps have not been taken by the infrastructure provider to mitigate the adverse effects on the community. Engage with Ngāi Tahu as tāngata whenua, including by recognising iwi management plans, 8-3

4 Policy Land use and transport integration Local Should: Authorities Territorial Authorities Should: Local Should: Authorities when determining Ngāi Tahu values in respect of strategic land transport networks and arterial roads. (1) Work together, including with neighbouring district and regional councils that adjoin the Canterbury Region, to adopt a consistent approach in relation to cross boundary issues for strategic land transport networks. (2) Engage with the NZ Transport Agency to protect the appropriate functioning of the strategic land transport network. Set out objectives, policies and / or methods in district plans which: avoid land-uses that may result in adverse reverse sensitivity effects on transport infrastructure. enable the appropriate upgrading of existing and establishment of new transport infrastructure. address the interaction between land use and the transport system, including high traffic generators and the promotion of accessibility and modal choice as appropriate. promote transport modes which have low adverse environmental effects. (1) Engage with developers to promote accessibility and modal choice for substantial developments. (2) Engage with the NZ Transport Agency to protect the appropriate functioning of the strategic land and transport network. Consultation The review of the ODP has been subject to multiple rounds of consultation and workshops with the Council, as set out in the Introduction chapter of this section 32 evaluation report. General consultation involved public open days and subsequent feedback following the public release of the draft direction and content of the Transport chapter. A technical review of the revised content was conducted by an independent transport engineer, to ensure consistency with best practice industry standards. The draft content was subject to general consultation on the proposed District Plan. Consultation with residents and the public consisted of open days and the receipt of feedback. The only feedback received in relation to transport regarded public transit between Amberley and Christchurch. Pre-First Schedule consultation was conducted with the New Zealand Transport Agency (NZTA) and Fonterra. Their suggested amendments have been incorporated where appropriate. The most 8-4

5 significant amendments related to ensuring alignment of design standards and policies with best practice and national standards. NZTA also requested that their position as a requiring authority be expressly recognised. Council agreed to these amendments. The issues and draft content of the chapter have been considered at a number of Council workshops. Council advised that there is a need for greater clarity and certainty and improvement of services. Key directions were: Simplify all provisions relevant to transport access and parking should be in a single part of the plan, with the diagrams simplified and located in a single chapter. Certainty the Transport chapter should have its own objectives and policies, instead of being contained within the Utilities objective and policies. Car parking the minimum onsite car parking standards are to be amended to align with the current best practice standards. Objectives As a result of the review of the existing ODP provisions and the subsequent consultation, Council has developed an objective that seeks to resolve the perceived issues, while meeting its obligations. The sole proposed objective for the Transport chapter is: Objective 8: A safe and efficient transport network that services the current and future needs of all users. The RMA requires the examination of the extent to which the objectives of the District Plan are the most appropriate way to achieve the purpose of the Act. The purpose of the RMA is set out in Section 5 of the Act and is to promote the sustainable management of natural and physical resources. The objective is the most appropriate to achieve the purpose (section 5) of the Act because: It seeks to manage the transport network as a physical resource while providing for social, cultural and economic wellbeing and health of users and communities. It seeks the efficient management of the network to meet the needs of current and future users. The objective gives appropriate regard to section 7(b), (ba), (c), (f) & (i) and of the Act because: It encourages efficient use and development of the natural and physical resources associated with the transport network Efficiency of the transport network and supporting alternative transport modes will lead to the efficiency of end use of energy by reducing congestion and travel time A safe and efficient transport network that services users assists in maintaining and enhancing amenity values and the quality of the environment Consideration of the needs of future users and the creation of an efficient network takes into consideration the potential impacts of climate change on transport modes and demand 8-5

6 Options Council considered a range of potential options for achieving Objective 8 and for meeting its obligations under the RMA and giving effect to the RPS. The three main options considered, along with an evaluation of their potential costs, benefits, effectiveness and efficiency, are described below. Option 1 Status Quo This option is to maintain the current provisions of the ODP. As discussed above, a broad transport policy, supported by a broad utilities objective, provides the foundation of the Transport content of the ODP. The provisions take into consideration the importance of an efficient and safe network. The resulting rules and assessment criteria manage access, mobility and the impact on residential amenity values. Option 2 Development focused provisions This option would include provisions aimed at improving safety and efficiency for motor vehicle users as the predominant users of the transport network. This option would include the removal of provisions encouraging and providing for alternative transport, such as cyclists and pedestrians, in order to encourage gains in safety and efficiency for predominant users. This could be achieved by removing policies around alternative transport, open space character and restrictions on adjacent land use. This may allow for additional high use, low amenity transport corridors. Option 3 Refined provisions This option essentially retains the current ODP provisions, but with amendments to address the issues raised during scoping and consultation. Specifically, the changes would include the development of a policy framework that includes greater encouragement for alternative modes of transport and for improved open space character and additional amenity planting within transport corridors. These amendments are intended to improve wellbeing outcomes and increase accessibility of the network. This option would include all transport related provisions being contained within one comprehensive chapter, with the removal of the Transport policy framework from the utilities chapter. Encouraging and providing for alternative transport would be implemented through provisions increasing the width of transport corridors and ensuring greater open space and amenity design alongside roads, particularly in urban areas. The provisions would encourage the development of corridors that are sufficiently wide enough to permit preservation and enhancement of amenity values. Such measures may be achieved through planting, increased open space and preservation of natural character. 8-6

7 All rules, including access way restrictions, parking and manoeuvrability requirements and minimum sight distances would remained unchanged, as advised by the independent review conducted to ensure consistency with best practice and national design standards. This excludes a number of minor amendments to ensure consistency with national standards. 8-7

8 Option 1 Status Quo Benefits Environmental Social Cultural Economic Ensuring the efficient use and development of the network minimises the impact on natural and physical resources. Restricting network access and vehicle movements may reduce the environmental and amenity impact of high movement sites. Costs Environmental quality and natural character and amenity may be impacted, as the framework gives inadequate consideration to the importance of amenity values and environmental quality within and adjacent to transport corridors. Lack of provision for alternative transport modes may result in long term environmental impacts, due to forgone Aims to protect the health and safety of road users and the wider community through the provision of a safe transport network. Network accessibility and connectivity achieved through controls on network access may result in increased community and social wellbeing by improving mobility. Lack of provision for alternative transport modes reduces network accessibility. This may impact on social cohesion and mobility Lack of landscaping and open space areas in transport corridors may reduce amenity values, impacting on recreational potential and social wellbeing. Network efficiency and user mobility may improve access to sites of cultural significance and encourage engagement in cultural practices. Lack of consideration for adjacent land use and sensitivity concerns may have detrimental effects for sensitive sites of cultural significance. Efficiency and safety gains may increase economic performance by reducing congestion and travel time and improving safety of users, goods and services, and reducing related costs. Lack of provision for alternative transport modes reduces network accessibility and efficiency. This may result in long term costs to economic performance by increasing network congestion. 8-8

9 sustainability potential and resulting pollution. Effectiveness Efficiency This approach is partially effective. The efficiency and safety of the network is provided for through regulating access ways and considering adjacent land uses. However, the needs of current and future users are not adequately provided for as the provisions do not give consideration to or encourage alternative transport. This approach is inefficient. The lack of provisions for multimodal transport significantly restricts network efficiency. Furthermore, this may result in long term environmental degradation and lack of mobility, reducing environmental and social wellbeing. This will not provide for a safe and efficient network for all current and future users, as it does not adequately provide for users of alternative transport, which can be achieved at low costs. 8-9

10 Option 2 - Development focused provisions Environmental Social Cultural Economic Benefits Lack of requirements around open space and amenity values in transport corridors reduces additional land requirements and may inadvertently preserve natural character of high amenity areas. Increased mobility resulting from improved network efficiency, may enhance mobility for predominant users. Removing the requirements for car parking and manoeuvrability may reduce associated costs. As the current and proposed requirements necessitate additional space, removing these provisions will ensure greater flexibility for developers and landowners. Reduced cost to Council as no requirement to provide for additional land within transport corridors. Costs The transport network has the potential to cause significant adverse environmental outcomes, as the provisions do not directly consider environmental impacts. This may be exacerbated by a lack of encouragement for alternative transport modes. Lack of consideration or restrictions regarding corridor types and adjacent land uses may reduce environmental quality and While not providing for alternative transport may result in short term gains, the long term costs to mobility and network congestion are substantial. This coupled with a move away from alternative transport may further restrict mobility and network efficiency. This may impact on resident mobility and social cohesion. Lack of consideration for adjacent land use and sensitivity concerns may have detrimental effects for sensitive sites of cultural significance. A lack of standards for road quality may reduce immediate maintenance costs to Council. Lack of categorisation of transport corridors may result in reduced information regarding use and efficiency concerns, which could feed through to poor maintenance decisions, subsequently affecting road quality and efficiency. Lack of consideration of long term congestion issues may 8-10

11 Effectiveness Efficiency amenity. This may also result in reverse sensitivity concerns. impact on business performance by reducing efficiency. This approach is not effective in achieving Objective 8. While it encourages network efficiency and safety for predominant users, this is at the cost of alternative current and future users. Furthermore, the lack of consideration of accessibility requirements and multimodal transport fails to achieve Objective 8, by not providing for all network users. While this approach partially achieves Objective 8, in establishing an efficient network that provides for some users, it is not as effective as a more comprehensive approach that considers the current and future needs of all users. This approach is not efficient. The costs to efficiency and safety in the lack of provisions for alternative transport and considerations of corridor placement and adjacent land uses, outweigh the gains to efficiency for predominant users.. This approach does not efficiently achieve Objective 8, as it does not provide a safe and efficient network for all current and future users. 8-11

12 Option 3 - Refined provisions Environmental Social Cultural Economic Benefits Ensures high environmental amenity value and preservation of natural character in urban areas through the use of planting and open space design. Encourages alternative transport modes that may result in improved long term environmental outcomes through greater energy efficiency and reduced pollution. Regular maintenance and improvement of the transport network will ensure sustainability and efficiency, reducing potential environmental impact. Allows for a range of users with differing transport needs. Creation of high amenity value corridors and recreational spaces in urban areas through the use of planting and open space design may improve social wellbeing by allowing for additional recreational activities and improving wellbeing derived from environmental amenity. Providing for active alternative transport modes, such as cycling, may improve health outcomes. Protects the health and wellbeing of people and the community by encouraging the creation of a safe transport network. Open space character and amenity planting may allow for the protection or enhancement of culturally significant sites that are adjacent to transport corridors. Provision for alternative methods of transport may increase mobility of tāngata whenua, therefore improving access to sites of cultural significance. The provisions seek to establish a network and vehicle crossings accommodative of a range of uses such as high usage/low amenity business and industrial. Sufficient parking and multimodal transport options may improve network accessibility and subsequently ease of transportation of goods and services. Restrictions on adjacent land uses based on the corridor type may reduce network strain and improve network efficiency. Network accessibility and connectivity, provided through efficiency and encouragement 8-12

13 Costs Increasing the physical size of the network to accommodate additional on street parking, walkways, cycle ways and open space area will require land. of multi-modal transport, may result in increased community and social wellbeing by allowing greater mobility. Increased land use requirements of a wider transport corridor may reduce potential open space areas and urban amenity. The additional land requirements resulting from wider transport corridors may lock up valuable land and restrict development potential. This may result in adverse environmental effects if natural character and amenity values are compromised. Providing for alternative transport may result in costs to short term efficiency. Conflict between multimodal users has the potential to result in network inefficiencies, damage to property and risk to health. Costs of designing, developing and maintaining amenity parking, walkways, cycle ways and open space character are high. Costs could fall on Council or developers and are potentially prohibitive. This limits the options for developers in regards to potential site locations due to restrictions on land use and surrounding road types. A stringent road classification system could prove restrictive to implement, in terms of unforeseen growth and subsequent expenditure and funding expectations. Additional costs to developers of 8-13

14 Effectiveness Efficiency providing space for on-site cark parking and maneuvering requirements may be prohibitive. This option is the most effective at ensuring a safe and efficient transport network for all current and future users. This is achieved through providing for multimodal transport, and retaining standards around accessibility. Consideration is given to current and future users through ensuring maintenance and preservation of amenity values and provisions for alternative transport. The provisions are considered the most efficient. As identified above, they ensure network safety and efficiency while providing for future and current generations. This is achieved through encouraging multimodal transport and managing adjacent land use types. These measures outweigh the potential land use and financial costs. While accessibility requirements may also result in land use and financial costs for developers, the increased mobility and subsequent social and cultural benefits are significant. 8-14

15 Evaluation of Appropriateness Retaining the status quo with minor amendments (Option 3) is the most appropriate approach to achieve Objective 8. Provisions that encourage alternative transport, require more adequate parking, and that manage network access and adjacent land uses, will ensure a safe and efficient network for all current and future users. Risks Risks of acting or not acting: Council considers there is sufficient information regarding the subject matter of the above provisions that support Objective 8. The risks of implementing a policy framework to provide for development, use and maintenance of the transport network outweigh the risks of not acting, namely impacts on network efficiency, amenity values, economic performance and user mobility. As the review is essentially a revision of the existing policies in the operative District Plan, the risks and uncertainty are well known and are therefore unlikely to change with implementation of the proposed provisions. By not providing for the development, use and maintenance of the transport network, Council would not be meeting Part 2 of the RMA or giving effect to the RPS. The proposed provisions provide a framework to reduce this risk. Conclusion This evaluation has been undertaken in accordance with section 32 of the RMA. The report has assessed the benefits and costs of the proposed provisions relating to development, use and maintenance of the District s transport network, and the extent to which these provisions meet the Council s obligations under the RMA and give effect to the RPS. The review seeks to resolve the inadequacies of the provisions of the ODP, identified during scoping and consultation. The review of the Transport chapter has determined that the most appropriate way to resolve these issues and to meet Council s obligations is to develop objectives, policies and rules that support development, maintenance and use of an efficient and safe transport network. This is achieved in consideration of provision for multimodal transport, reverse sensitivity concerns and preservation and enhancement of amenity values. Provided below is a summary of the main findings of the review and subsequent changes proposed to the Transport chapter: Retain the transport provisions but update the structure to ensure consistency with other chapters of the proposed District Plan. As a result of the updated structure, all provisions relating to transport, including parking requirements and vehicle crossings standards, will be moved to the Transport chapter. Changes to the existing rules are limited to improvements to the parking requirements standards. 8-15