Hawke s Bay Regional Transport Study EXECUTIVE SUMMARY. Prepared by GABITES PORTER

Hawke s Bay Regional Transport Study EXECUTIVE SUMMARY Prepared by GABITES PORTER April 24

1. Introduction In January 23 Gabites Porter in association with OPUS International Consultants were commissioned to undertake the Hawke s Bay Regional Traffic Study for Napier City Council, Hastings District Council, Hawke s Bay Regional Council and Transit NZ. The aim of the Hawke s Bay Regional Traffic Study is: To identify the best way to move people and goods within the study area, including movements to and from the Port of Napier, with maximum efficiency and effective use of the roading network and least environmental effects within the study area. Particular consideration has been given to the existing and potential use of public transport and rail as alternatives to the continued use of private cars and trucks. The associated environmental assessments covered a number of issues including air emissions, noise, culture, and vibration, using criteria adopted from standard AEE procedures, Transfund s Project Evaluation Manual and MoT s National Vehicle Emissions Control Strategy. Napier Over the past 2 years there have been a number of transportation studies of the Heretaunga Plains leading to the Heretaunga Plains Transportation Study in 198. That study, and associated traffic models, was updated in 1986 and 1996. Additional studies centred on Napier were undertaken in 1997 and 1999 although they did involve the modelling of the entire Heretaunga Plains area. In some measure, this study is an update of previous work, but looking at a longer time horizon (226), and with particular attention being paid to goods vehicle movement, and to environmental effects. Study Area Hastings 5.km Havelock North This study utilises a transportation model of the Heretaunga Plains region including Napier, Hastings and Havelock North developed by Gabites Porter. This model simulates travel behaviour by modelling the road network within the study area and using detailed land use activity within the area as a means of predicting trip production. The approach taken was a straightforward conventional technique involving appropriate update and extension of the analytical tools used in previous work, and using those tools in a forecasting mode to help determine the long-term strategic transport system. A series of surveys and data collection was undertaken to provide a sound basis for the analysis that followed. The study covers the area contained within the Heretaunga Plains region including Napier, Hastings and Havelock North. The area, as shown above, extends from Whirinaki in the north to Paki Paki and Maraekakaho in the south. It is bounded by the coastline in the east, the Tuki Tuki River to the southeast, and the foothills through to Eskdale in the west. The study area itself has been further divided into subareas to form a zone system. The source of land use data is primarily from the Statistics New Zealand March 21 Census data. The zone system has accordingly been derived from meshblock boundaries. Hawke s Bay Regional Traffic Study Page 1

2. Network Deficiencies and Land Use to the local economy, but also result in greater vehicle impacts and emissions. The Hawke s Bay Regional Traffic Study found that both Hastings and Napier are expecting significant growth in trade, production, tourism, population, households, and employment over the next 25 years. This growth will have related increases in travel demands, putting pressure on both the existing and planned roading network. This study identified options for addressing the current and future road network deficiencies this growth will cause with least environmental effects. Population and employment on the Heretaunga Plains are changing. The study found that: The population within the study area is expected to grow from 124,6 in 21 to 138,2 in 226, an increase of 1.9%. Employment is expected to grow from 45,699 in 21 to 52,629 in 226, an increase of 15%. KM's KM's 2. 15. 1. 5.. 2. 15. 1. 5.. AM BASE 23 AM BASE 216 AM BASE 226 LOS F.2 5.8 8.3 LOS E 2.8 31.3 39.5 LOS D 51. 78. 85.4 Model Period Figure 1: Aggregate LOS in Kilometres for the Morning Peak - Do-Minimum Network PM BASE 23 PM BASE 216 PM BASE 226 LOS F 2.4 9.1 1.9 LOS E 23.7 35.7 51.8 LOS D 6. 94.1 16.3 Model Period This growth in population and employment will result in a significant increase in network deficiencies 1. The study found that: During the morning peak in 23, the total length of road affected by the three worst LOS, (F, E, and D) was 72 km. With the proposed Do-Minimum network, this is estimated to grow to 133 km by 226. See Figure 1. During the evening peak in 23, the total length of road affected by the three worst LOS, (F, E, and D) is 86.1 km. With the proposed Do-Minimum network it is estimated that this will climb to 169 km by 226. See Figure 2. These deficiencies will result in significant adverse effects to the local economy and the environment. Not only do poorly performing parts of the network cause time delays, and hence additional to costs 1 Deficiencies measured by Levels of Service (LOS). See Chapter 6 of the main report for a more detailed explanation of LOS. Figure 2: Aggregate LOS in Kilometres for the Evening Peak- Do-Minimum Network Part of the consideration of deficiencies of the current network is identifying areas that are considered to be environmentally sensitive because of traffic flow that is incompatible with the built environment within which it finds itself, or because of the ecological or natural values of the environment. The other sensitive areas are those areas of the city such as residential or tourist environments where the road network is insufficient to deal with current or future traffic volumes through to 226, and where traffic and land use conflicts will arise. The following routes have been identified as being of particular interest in forward planning because their physical environment is not compatible the traffic flows that will be experienced by 226: 1. Windsor Avenue, Grove Road, and Frederick Street. These roads are in residential areas of Hastings City and use Hawke s Bay Regional Traffic Study Page 2

of these routes will also impact on reserve and recreation facilities on these routes. There are also three schools that front onto these roads, being Karamu High School, Mahora School and St Mary s School. In 226, the level of service for these roads will decrease to LOS D and in some sections LOS E, with a small section decreasing to LOS F during the morning peak. The residential and recreation nature of the area together with the number of educational facilities, mean that the land uses on these roads will be sensitive to the associated potential effects of impacts of noise, emissions, vibrations and safety. 2. Guppy Road. Guppy Road is a residential area of Napier City. The level of service in the section of Guppy Road between Meeanee Road and Gloucester Street will reduce to LOS D in 226. This will have associated effects on the residential activities with increased levels of noise and air emissions, and also impacting on safety with potential conflicts between property owners and through traffic. Reigner School is also located on this section of Guppy Road and there will be associated safety issues for children travelling to and from school. 3. Marine Parade. The Council is in the process of undertaking major upgrades of the tourist facilities along Marine Parade. This will draw further people to the area. Level of service changes through to 226 will occur down to LOS D and this will have associated effects on the local environment. There is a mix of residential activity and motel/hotel accommodation, and commercial activities such as restaurants on the Marine Parade. The small lot sizes, an inability to set back these activities from the road and constraints to carriageway upgrades mean that this is an environmentally sensitive area where the potential for conflict is high. Heavy vehicles currently make up 19% of the total vehicle movements along Marine Parade. There are seasonal peaks to heavy vehicle movements and these coincide with the summer tourist peak, thereby increasing the conflict and the level of sensitivity of the environment. Changes in traffic flows will accordingly have environmental impacts on these activities in terms of changes in the level of noise, air emissions and traffic safety. 4. Georges Drive. Georges Drive separates the Napier suburbs of Napier South and Marewa. It is an attractive environment with its focus on the wide area of open space that incorporates the Alexander Park Reserve. Adjacent land uses are residential. Georges Drive is part of State Highway 2 and while its expected to carry higher than average traffic flows, the residential nature of the adjacent land uses identify it as a sensitive environment particularly in relation to heavy goods traffic. 3. Developing the Strategy In order to respond to the network deficiencies highlighted in the assessments, a number of network improvements were investigated in an initial sieve of possible options. This initial analysis involved an appraisal of travel demands, and analysing each option at a 24hr level to determine the option s ability to have both the desired traffic performance and economic performance. The principal upgrading components with alignment alternatives were divided into corridors so that options could be suitably compared (some being mutually exclusive). The corridors and their respective options are listed below. Hawke s Bay Expressway 1. Four lane Hawke s Bay Expressway from extension alignment A 2. Four lane Hawke s Bay Expressway from extension alignment B 3. Four lane Hawke s Bay Expressway from extension alignment C 4. 2 lane Hawke s Bay Expressway from extension alignment A 5. 2 lane Hawke s Bay Expressway from extension alignment B Hawke s Bay Regional Traffic Study Page 3

6. 2 lane Hawke s Bay Expressway from extension alignment C 7. Four lane Hawke s Bay Expressway from Pakowhai to Kennedy 8. Four lane Hawke s Bay Expressway from Pakowhai to Meeanee 9. Four lane Hawke s Bay Expressway from Meeanee to Kennedy 1. Four lane Hawke s Bay Expressway from Bayview to Prebensen Hastings Northern Arterial 1. Hastings Northern Arterial alignment A 2. Hastings Northern Arterial alignment B 3. Hastings Northern Arterial alignment B with Evenden Road closed 4. Hastings Northern Arterial alignment C Hastings Southern Arterial 1. Hastings Southern Arterial alignment A 2. Hastings Southern Arterial alignment B Awatoto - Expressway Connection 1. Awatoto - Expressway Connection alignment A 2. Awatoto - Expressway Connection alignment B 3. Awatoto - Expressway Connection alignment C 4. Awatoto - Expressway Connection alignment C1 5. Awatoto - Expressway Connection alignment C1 with SH2 realignment 6. Awatoto - Expressway Connection alignment C2 7. Awatoto - Expressway Connection alignment D Whakatu Outlet 1. Whakatu Outlet alignment A 2. Whakatu Outlet alignment B 3. Whakatu Tomoana Link alignment A 4. Whakatu Tomoana Link alignment B Kennedy Road 1. Kennedy Road widening Riverbend to Wellesley 2. Pirimai link, Latham Street Harold Holt Avenue 2. Four lane Prebensen Drive from Expressway to Hyderabad Road with overpass at the Prebensen Drive / Hyderabad Road intersection Each of these potential improvements was investigated for their ability to improve network performance either in the immediate area or at a strategic level, economic performance as a stand-alone project and their impact on emissions and on environment effects. A number of these network options were found to not perform well, either economically or operationally, during this initial sieve. As a result of this, the following options did not warrant further analysis: Four lane Hawke s Bay Expressway from Bayview to Prebensen Awatoto - Expressway Connection alignment C1 Awatoto - Expressway Connection alignment C1 with SH2 realignment Awatoto - Expressway Connection alignment C2 Awatoto - Expressway Connection alignment D Thames Street Link from Tamatea/Austin intersection to Hyderabad Road A number of the remaining options were alternative alignments for solving the same set of deficiencies identified in the deficiency section. Where there are multiple possible alignments for a strategy element, one alignment was chosen to represent the strategy option. To determine the most suitable alignment from those competing with each other, a comparative analysis of each alternative alignment was undertaken. However, any of the alternative alignments may at a later stage of detailed design and analysis be chosen if they display similar impacts on the network. Prebensen Drive 1. Thames Street Link from Prebensen Drive/Austin intersection to Hyderabad Road Hawke s Bay Regional Traffic Study Page 4

\4. The Strategy The initial assessment and comparison of competing options highlighted those options that were either economically incapable of proceeding further within the study timeframe, or did not have any significant gain in network operation through an improved Level of Service. Where a number of possible alignments for the same general project were proposed, the alignment that was preferred in the comparison of competing options was selected as being worthy of a more indepth analysis. The list of 32 options was reduced to 11 potential network improvements that were put through a detailed investigation for either their ability to further develop the roading hierarchy and thereby improve the operation of existing elements of the network, or to directly upgrade existing network elements that are operating, or will operate in the future, at a substandard Level of Service. Each was also assessed in an accompanying analysis of their associated environmental effects and potential mitigation. The 11 network options that underwent detailed investigation for inclusion into the Strategy were as follows (shown in Figure 3): Hierarchal Improvements 1. Hastings Southern Arterial Alignment A. This element has an economically positive result both as a stand-alone project and as part of the overall strategy whilst significantly relieving particularly congested parts of the existing local Hastings network. It also helps reinforce the use of the Hawke's Bay Expressway. 2. Hastings Northern Arterial Alignment A. This element has a stand-alone economically beneficial result. It improves access to the Hawke's Bay Expressway whilst reducing potentially unnecessary light and heavy vehicle movements within the local northern area of Hastings, and by reducing HGV flows along SH2 into Napier. 3. Whakatu Outlet - Alignment B. This element has a stand-alone economically beneficial result. It improves access to the Hawke's Bay Expressway for HGV movements from the southeast thereby reducing HGV flow along SH2 into Napier. 4. Whakatu Tomoana Link. This element has an economically positive result whilst significantly improving access between these two important employment areas. 5. Awatoto - Expressway Connection - Alignment A. This element does not currently produce a benefit stream sufficient to result in funding as the total road user benefits are expected to be less than the cost of the project. However, it does have the potential to usefully reduce the on HGV flow along SH2 thereby improving the amenity of the foreshore area. It is also an important element of the overall strategy for reducing HGV flow along Marine Parade if any form of regulation was to be placed HGV traffic along Marine Parade and adjacent parallel routes. 6. Four Lane Prebensen Drive from Expressway to Hyderabad Road with overpass. This element has an economically positive result whilst significantly improving access between the port and eastern industrial areas. When taken in association with other elements of the strategy, it provides a very important alternative route for HGV traffic accessing the port away from some congested areas of the Napier network. 7. Pakowhai / Expressway flyover. This element has an economically positive result as it enhances access to the Hawke's Bay Expressway at a congested location. It also improves the performance of the intersection for the significant number of northbound vehicles using the intersection from Pakowhai Road. Upgrade Improvements 1. Four lane Hawke s Bay Expressway from extension Alignment B. This element, has a borderline economical positive result. However, it does substantially reduce the number of long distance trips from the south into Napier along SH2 by redirecting them onto the preferred Hawke s Bay Expressway. A sub-option of this element, Hawke s Bay Regional Traffic Study Page 5

involving the extension to the expressway only, would also have an economically positive result. 2. Four Lane Hawke s Bay Expressway from Pakowhai to Kennedy. By itself, this element currently does not have an economically beneficial result. It however substantially reduces the number of long distance trips from the south into Napier along SH2 and draws trips onto itself from lower standard parallel routes. 3. Four Lane Hawke s Bay Expressway from Kennedy to Prebensen. This element as whole has a borderline economic positive result. However, it does help reduce the number of long distance trips from the south into Napier along SH2. As it forms part of an overall strategy of increasing capacity along this important element of the network, it should be kept as part of the overall strategy network. 4. Four Lane Kennedy Road Riverbend to Wellesley. This element has an economically positive result whilst significantly relieving a particularly congested and important part of the existing Napier network. Safety would be enhanced and local amenity improved by removing a substantial amount of through traffic from parallel local residential roads. Hawke s Bay Regional Traffic Study Page 6

KEY New Component Upgraded Component Prebensen Hyderabad Overpass Kennedy Awatoto Pakowhai Overpass HB Expressway Widening Whakatu Outlet Tomoana Link Expressway Extension Hastings Northern Arterial Hastings Southern Arterial Hawke s Bay Regional Traffic Study Gabites Porter (NZ) Ltd Network Improvement Options Figure 3 Hawke s Bay Regional Traffic Study Page 7

6. Heavy Goods Vehicles Specific attention was paid to Heavy Goods Vehicles traffic resulting in a separate Heavy Good Vehicle Strategy that utilises the proposed recommended roading strategy. The assessed options included: Slowing expressway speeds. The study concluded that slowing the Expressway is completely at odds with the strategy that has been developed, and does not assist with attracting heavy goods traffic away from Marine Parade and other environmentally sensitive areas. Replacing port related traffic with rail. The study concluded that an Inland Port at Whakatu would tend to encourage the use of rail. Also, under existing rules it may be possible to encourage the use of rail using the Alternative to Roading rules of Transfund. Banning Heavy Goods Vehicles through movements on Marine Parade. The study paid particular attention to this option concluding that goods vehicles can be discouraged from using Marine Parade. Progressive implementation of the strategic network usefully attracts a proportion of heavy vehicles away, but some form of active discouragement will also be needed, and it appears that a bylaw may be the best option. Changing Marine Parade has a potential to divert vehicles through the central city streets (see figure 4) and that will need to be suitably controlled. The effect these options had on the wider overall economic performance of the future strategic network were found to be negligible. This was because Heavy Goods Vehicle traffic makes up a relatively small proportion of total traffic. Highway 2, and Marine Parade. The third is from the north using State Highway 2 (North), Meeanee Quay and Pandora Road. All of these are seen to have associated potential environmental effects, but the Expressway route has been continuously developed as the major route. The findings and recommendations for the future strategic network have concluded reinforcement of the use of that corridor, and the goods vehicle strategy should be consistent with it. As far as possible, the strategic network has been designed to attract vehicles to the expressway and away from local streets. It has also been designed to make the route to the port via the expressway the most logical for goods vehicles from the south, and from the Whakatu/Tomoana industrial area. The strategic network attracts some heavy vehicle use away from Marine Parade, but some form of active discouragement will also be needed, and it appears that a bylaw may be the best option. The necessary strategic emphasis placed on the Expressway and Hyderabad Road to the Port will increase use of these routes. Their place in the hierarchy has been well known for a number of years, and houses that have been built or purchased alongside the routes have had full knowledge of the traffic flows that could be expected. This is part of the reason why road hierarchies are published in District and City plans. In this case, the Centreline proclamation has been in existence since the early 196 s, and was in the City of Napier District Plan that was made public in 1968, and Operative in 1973. Nevertheless, as the Expressway is developed by Transit New Zealand, consideration should be given to noise and the necessity or otherwise for attenuation measures, and the erection of visual barriers. The Port of Napier is one of the busier ports in the country, and will always generate significant volumes of heavy goods movement. It is an essential part of the economic activity of the region. At present there are three main routes to the Port, one using the expressway, Prebensen Drive, Hyderabad Road and the Ahuriri Bypass. The second is State Hawke s Bay Regional Traffic Study Page 8

KEY Increased HGV Traffic Decreased HGV Traffic (Line thickness indicates volume) Ahuriri Ahuriri 2,5 2,5 2, 2, 1,5 1,5 1, 1, 1,529 1,529 2,298 2,298 5 5 Marine Marine 1,5 1,5 1, 1, 5 5 983 983 127 127 Expressway Expressway 3, 3, 2, 2, 1, 1, 2,936 2,936 3,257 3,257 Georges Georges 5 5 4 4 3 3 2 2 427 427 1 1 184 184 1.km Hawke s Bay Regional Traffic Study Gabites Porter (NZ) Ltd Roading Strategy vs Roading Strategy with HGV Ban on Marine Parade vs. Change in Two-way HGV 226 24HR Flows Figure 4 Hawke s Bay Regional Traffic Study Page 9

7. Strategic Outcomes Figure 5 demonstrates the effect of the recommeneded stratgic network on HGV flows. The strategy results in a significant reduction in the level of traffic using local Hastings and Napier roads. Traffic flow has been redirected onto the new elements of the strategy and further funnelled onto the Hawke's Bay Expressway in preference to SH2 and Marine Parade. Implementation of the recommended strategic network could result in approximately a 16% increase in traffic onto the Hawke s Bay Expressway from the surrounding network, predominantly from SH2 which could drop by 1 vpd each way. Flows along Havelock Road would be expected to decrease by 32 vpd each way. Flows along Frederick Street, Heretaunga Street, Omahu Road, Maraekakaho Road, Pakowhai Road and Karamu Road are expected to decrease, thereby enhancing the environment within the Hastings Area. The implementation of the Hastings Southern Arterial would result in an increase in traffic using Flaxmere Avenue as a means of accessing Flaxmere rather than using Omahu Road. The recommended improvements to the expressway and Kennedy Road would usefully draw traffic away from surrounding local roads. Taradale Road, Marine Parade, Georges Drive and Willowbank Avenue would all have a reduction in flow. Movement onto the Hawke's Bay Expressway would reduce traffic flow along Georges Drive by approximately 7-8 vpd each way. HGV movements would be usefully redirected onto the higher elements of the arterial network by 226 with an associated reduction in the number of HGVs on the surrounding roads. The improvements to the Hawke's Bay Expressway would result in an increase of 5 HGVs each way along the expressway between Taradale and Prebensen. HGV traffic along Meeanee Quay is expected to drop by 75 per day each way. The implementation of the Hastings Northern and Southern Arterials would result in a decrease of 17 HGVs each way along Havelock Road in and out of Hastings. The recommended strategic network improvements are expected to result in a 22 vpd each way increase in HGVs along the expressway by 226, a 19% increase. This corresponds to a 24% decrease in HGV movements along SH2 at Waitangi Bridge. This decrease continues along Marine Parade where there would be a drop of 11 HGVs per day each way (18% of total HGV traffic). It is clear however that for there to be a complete removal of HGV through traffic along Marine Parade, some form of regulatory option would need to be implemented. The use of such a regulation was discussed in an earlier section and also in greater detail in the Hawke s Bay Regional Heavy Traffic Management Plan. The overall strategy would enable significant portions of the Hawke s Bay road network to achieve operational Levels of Service of D or better. In some instances, the improvements result in increased delays on side roads at minor intersections. This is particularly the case along Kennedy Road where a number of side roads are expected to face increased delays in the 226 evening peak periods. These side roads have not been upgraded as part of the strategy, as there a number of possible improvements for each intersection. It is also likely that authorities may want to rationalise some intersections and their controls. The recommended improvements to the strategic network are aimed at reinforcing and improving a number of existing important routes within the road hierarchy. Their improvement draws traffic from the secondary road network along which shorter local trips are undertaken. This in turn enables those vehicles using these secondary elements to operate more efficiently. As a number of public transport routes use both the secondary network for their local activity and the upgraded arterial network for their longer distance routes, it is expected that there would be an associated improvement to their future operation as a result of the strategy. Hawke s Bay Regional Traffic Study Page 1

2548 2652 2224-4 -518 12 12-967 -78 KEY Decreased flows compared to the do-minimum 373 214 Increased flows compared to the do-minimum 1779-1254 -166 689 779 168 1979-123 -223 1718 197-175 -142-879 -112-18 -98-277 -177 1718 197-574 -661-484 -681-484 -681-474 -528-18 -98 1267 1651 613 49-11 -11-365 -297-84 -751-1259 -58-1172 -59 358 3434 229 233 46 137-291 52-319 4 39 26-39 -27-254 -259 5.km Hawke s Bay Regional Traffic Study Gabites Porter (NZ) Ltd 226 Traffic Flow Change Strategy vs Do-Minimum Figure 5 Hawke s Bay Regional Traffic Study Page 11

Figures 6 and 7 show that with implementation of the recommended strategy, during both the 226 AM and PM Peaks, the lengths of road throughout the study area at LOS F and E are expected to reduce to levels very close to those existing now. This can also be shown in the following Figures which show the Levels of Service throughout the study area for 226 before and after completion of the recommended Strategy. KM's 2. 15. 1. 5. SH2 improves to LOS D and better, Havelock Road improves to LOS E and better, Priority intersections along Havelock and Heretaunga Streets improves to LOS D and better, Pakowhai Road south of Evenden Road improves to LOS E and better, Priority intersections along Pakowhai Road improves to LOS D and better, Omahu Road improves to LOS E and better, Frederick Street improves to LOS D or better,. AM BASE 23 AM BASE 226 AM STRATEGY 226 LOS F.2 8.3.7 LOS E 2.8 39.5 27.6 LOS D 51. 85.4 7.5 Model Period Figure 6: AM Network LOS Total Change 23-226 As a result of additional traffic being attracted to some routes described in the strategy, a number of minor intersections are expected to experience a reduction service for which further local improvements will be needed. KM's 2. 15. 1. 5.. PM BASE 23 PM BASE 226 PM STRATEGY 226 LOS F 2.4 1.9 1.3 LOS E 23.7 51.8 33. LOS D 6. 16.3 89.9 Where elements of the strategy have been implemented there have been improvements in the levels of service projected for 226 compared with those that would otherwise occur if only the Do- Minimum improvements were completed. Namely: The Hawke s Bay Expressway improves to LOS D and better in all locations south of Prebensen Drive, Kennedy Road improves to a minimum of LOS D between Wycliffe Street and Wellesley Road, The existing length of Prebensen Drive between the expressway and Hyderabad Road improves to LOS D, Compared with the Do-Minimum improvements, the recommended strategic network results in: Traffic transferring away from local roads and environmentally sensitive areas onto arterial roads; Marginal decreases emissions of CO 2, CO, and NOx despite increasing traffic levels; A marginal decrease in fuel use despite Model Period increasing traffic levels; Figure 7: PM Network LOS Total Change 23-226 A marginal increase in noise pressure; and Economic road user benefits of $7.54M over 25 years. The overall outcome is shown in the assessments as supporting and providing for the travel needs generated by ongoing growth of the Hawke s Bay region as a whole. Hawke s Bay Regional Traffic Study Page 12