Sustainable Transport Strategy - Kāpiti Coast District Council June 2020 - Low Carbon Kapiti
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Kāpiti Coast District Council Sustainable Transport Strategy June 2020
2 Kāpiti Coast District Council | Sustainable Transport Strategy
Contents
Executive Summary 4 5.0 Outcomes and Vision 23
A Sustainable Approach 4 5.1 Outcomes 23
Addressing Challenges 4 5.2 Vision 23
Outcome and Vision 4
Focus Areas 4 6.0 Focus Areas 25
6.1 Focus Area 1: The Transport Network 25
Tāngata Whenua 5 6.1.1 Improved Connections
Te Whakaminenga o Kāpiti and Mode Choice 25
and Whakahoatanga Manatu 5 6.2 Focus Area 2: Integrating Land Use
and Development 27
Strategy on a Page 6 6.3 Focus Area 3: Safety 27
6.4 Focus Area 4: Resilience 28
1.0 Introduction 7 6.5 Focus Area 5: Climate Change 28
1.1 What is the Sustainable Transport Strategy 6.6 Focus Area 6: The Environment 29
and Why is it Important? 7
6.7 Focus Area 7: Amenity 30
1.2 Why Now? 7
6.8 Focus Area 8: Affordability 30
2.0 What does the transport network
look like now? 8
3.0 Policy Context 10
4.0 Challenges 12
4.1 Population Growth and
Economic Development 12
4.2 A Network Under Pressure 12
4.2.1 Congestion 12
4.2.2 Parking 13
4.3 Service Provision and Access 13
4.4 Reliance on the Private Car 15
4.5 Demographics and Demographic Change 16
4.6 Safety 17
4.7 Resilience 18
4.8 Climate Change 18
4.9 The Environment 19
4.10 Amenity 19
4.11 Affordability 19
Summary of Key Challenges 20
Kāpiti Coast District Council | Sustainable Transport Strategy 3Executive Summary
Any comprehensive transport strategy must cover all modes of travel and have
a clear vision of the future. This Strategy establishes a framework for delivering
good outcomes for our communities, and provides details of the key areas of
focus for transport in Kāpiti for the next twenty years.
A Sustainable Approach the reliable, efficient and safe movement of people
and goods. Therefore, this strategy has established
This Strategy aims to deliver a transport network 7 outcomes:
that provides equitable access for all, whilst
ensuring that environmental and economic • Improved Access, Connectivity and Integration
outcomes are reflected in decision making.
• Safe and Resilient Communities;
Addressing Challenges • Supporting a Vibrant and Thriving District;
Kāpiti strives to be an attractive location
for businesses as well as an appealing area • Climate Change
for new residents. There are a number of
transport-related challenges to achieving this. • Environmental Enhancements;
There is a need to ensure that the transport
infrastructure supports growth, as well as • Amenity; and
addressing issues that already exist, so that
• Affordability.
people and businesses can easily access services
and goods. The vision and outcomes contained
within this strategy reflect these desires. Focus Areas
The strategy recognises that to deliver a fit for To achieve these outcomes this strategy identifies
purpose network, there is a need to address key 8 Focus Areas. These focus areas do not identify
gaps in the network that are limiting connectivity specific schemes, as the spending programme
and the ability to encourage mode shift, reverse will be in the Access and Transport Activity
the worsening road safety trends, build resilience Management Plan and the Long Term Plan.
into the transport network, and provide for Instead it establishes the principles that
environmental and amenity enhancements. Council will apply in the development of new
The responses to the challenges need to be and enhancement of existing infrastructure, and
made within the context of funding availability. provides a framework to enable discussions with
other funding partners.
Outcome and Vision Council recognises that the outcomes will also
be delivered through the actions of individuals
The outcomes and vision have been developed
and organisations, investment by Council in
to ensure that the transport issues being faced
infrastructure on behalf of the community and
such as congestion, pressures on parking, levels
regulation through other Council policies and
of access to public transport, safety risks, and
plans such as the District Plan, and bylaws.
the impacts of climate change do not worsen
over time. The goal is to enhance community
connectedness through the creation of a well-
planned physical transport system that allows for
4 Kāpiti Coast District Council | Sustainable Transport StrategyTāngata Whenua
Te Whakaminenga o Kāpiti The tāngata whenua have established four
principles on which the vision is based:
and Whakahoatanga Manatu
• Manaakitanga – which is concerned with
Council recognises the status of the tāngata whenua the wellbeing of families and communities;
under Te Tiriti o Waitangi (Treaty of Waitangi),
and works closely with Ngāti Toa Rangatira, • Te Reo – it is fundamental that the
Ngāti Raukawa and Te Āti Awa ki Whakarongotai language is treasured;
iwi, who hold mana whenua • Kotahitanga – working in partnership to
within the District. build strength; and
Te Whakaminenga o Kāpiti is one of the longest • Tino Rangatiratanga – self-determination,
running partnerships between tāngata whenua and control and decision-making, including a
Kāpiti Coast District Council, and it establishes strong role for kaitiakitanga.
a commitment of working together to advance
matters of mutual interest. The partnership The Sustainable Transport seeks to implement
is engaged in Whakahoatanga Manatu (a measures that:
Memorandum of Partnership) that recognises
• ensure the most is made of existing assets;
the “need for active protection of tāngata whenua
interests to be considered in its dealings with • support mode shift;
other parties”.
• protect the environment; and
Through Whakahoatanga Manatu Council agrees • work in partnership to deliver
to hold a number of principles, which are relevant transport improvements.
to this Strategy. In particular, the agreement to
actively promote the sustainable management Therefore, achieving the outcomes contained with
of natural and physical resources, to promote this strategy will go some way towards realising
partnership with tāngata whenua in policy and the principles of Manaakitanga, Kotahitanga and
plan development, and to recognise and provide Tino Rangatiratanga.
for kaitiakitanga. In the Māori world view, people
and the environment are inextricably linked,
and Kaitiakitanga (guardianship and protection)
recognises the role of humans and tikanga in
sustaining the mauri of natural and physical
resources.
Kāpiti Coast District Council | Sustainable Transport Strategy 5Strategy on a Page
This Strategy on a page illustrates the relationship between identified challenges,
what is desired for Kāpiti, and the key areas of focus to address the challenges
and deliver against the outcomes
Challenges Outcomes Key Focus Areas / Actions
All outcomes
Growth All focus areas
Improved Access, Connectivity The Transport Network
and Integration, Supporting a
A Network Under Vibrant and Thriving District Integrating Land Use and Transport
Pressure
Improved Access, Connectivity The Transport Network
and Integration, Supporting a
Service Provision Vibrant and Thriving District Integrating Land Use and Transport
and Access
The Transport Network
Improved Access, Connectivity
Integrating Land Use and Transport
Reliance on and Integration
the Private Car Safety
The Transport Network
All outcomes Integrating Land Use and Transport
Demographics Safety
Safety
Safe and Resilient Communities,
The Environment, Resilience
Amenity
Safety The Environment
Safe and Resilient Safety
Communities Resilience
Resilience
Climate Change Climate Change
Climate Change
Safe and Resilient Communities, Resilience
The Environment The Environment
Environment
Amenity, Supporting a Vibrant Amenity
and Thriving District
Amenity
Affordability Affordability
Affordability1.0
Introduction
Kāpiti’s position as a gateway to the in Kāpiti, providing a clear basis for engagement
with all ‘transport stakeholders’. It establishes
Wellington Region and improved a relationship between local, regional and
regional transport links make it central policy and decision making, and the
attractive to people seeking lifestyle implementation programme to ensure the
delivery of infrastructure to support growth.
changes and housing choice. Kāpiti
This Strategy aims to enhance community
has undergone significant growth and
connectedness via the development of a well-
is forecast to continue to grow over planned transport system that ensures the reliable,
the next 30 years. efficient and safe movement of people and goods.
Transport and urban form play a key role in There is a need to:
contributing to the social, economic, environmental • develop and maintain a well-connected
and cultural wellbeing of communities and are transport network that will cater for the impact
key influencers of travel behaviour. The ability for of population and business growth whilst
people to move around has an immense impact minimising environmental impacts;
on their lives and how they gain access to people,
employment, goods and services. It is essential to • provide for transport mode choice;
ensuring a vibrant and thriving economy. • take into account the diverse needs of
Kāpiti faces a number of challenges including a communities including vulnerable road users,
network under pressure, reliance on the private car, the travel disadvantaged and local businesses;
safety, resilience, and protecting the environment • ensure that the transport network is resilient
and affordability, all of which can be exacerbated to adapt to the effects of climate change and
by growth, demographic changes and climate other natural events such as earthquakes and
change. Travel patterns differ from the past, and landslides; and
investment decisions need to support the users of
• improve affordability and decrease
different modes for existing and future generations
carbon footprint.
by delivering infrastructure to support growth and
addressing existing issues on the network.
1.2
1.1 Why Now?
The original transport strategy was developed
What is the Sustainable
in 2008. Since then there has been significant
Transport Strategy and changes to both the transport network in Kāpiti
Why is it Important? and to Central, Regional and Local Government
legislation and policy. Many of the proposals
A sustainable transport system is concerned
identified in the original Strategy have been
with managing and delivering a transport network
developed or superseded. At both a regional
that supports growth and encouraging alternatives
and local level, the most significant change to
to the private car. Principles of sustainability in
the network has been the Roads of National
the transport network include equitable access
Significance projects, which have changed travel
for all, a system that can cope with change,
patterns both within and in and out of Kāpiti.
the integration of transport and land use, and
ensuring impacts on the environment are avoided, The road network is growing as a result of new
remedied or mitigated. development and new connections - around 28km
of Old State Highway 1 will form part of the roading
This Strategy takes a long-term view, up to 2040,
network once responsibility for it passes from NZTA
in shaping the future of transport and provides
to Kāpiti Coast District Council (revocation).
a framework for guiding transport investment
Kāpiti Coast District Council | Sustainable Transport Strategy 72.0
What does the transport network
look like now?
Kāpiti has an extensive transport The Kāpiti Coast District Plan also contains a
road network hierarchy for planning purposes and
network that is characterised by rules in the District Plan relate to this hierarchy.
State Highway 1 and a railway line The hierarchy includes:
running north / south through
1. strategic arterial routes
the District connecting us to the (such as State Highway 1),
Wellington Region to the South and 2. major community connectors
East and Horowhenua and Horizons to (such as Te Moana Road, Kāpiti Road),
the North. There is a well-established 3. Local community connectors such as
but limited bus network and a high Otaihanga Road; and
quality and frequent rail service 4. other local roads / neighbourhood
access routes.
between Waikanae and Wellington,
as well as a developing cycleway, The hierarchy1 has been developed based on
walkway and bridleway network function and the level of traffic using these
routes. All these roads serve to help support
(www.kapiticoast.govt.nz/ the movement and connectivity of people and
media/30062/stride-n-ride-trails- goods. This bears many similarities to the One
dec-2017.pdf). Network Road Classification (ONRC)2 hierarchy,
details of the ONRC hierarchy and its relationship
to the implementation programme can be found
in the Access and Transport Activity Management
Plan (AMP).
Whilst we have an extensive transport network,
there are still transport issues that need to be
addressed. A key challenge will be to develop a
transport network that is fit for purpose for existing
and future residents, businesses and services,
and that enables mode choice while minimising
environmental impacts and enhancing character.
1 www.kapiticoast.govt.nz/media/29724/transport_hierarchy.pdf
2 www.nzta.govt.nz/roads-and-rail/road-efficiency-group/projects/onrc
8 Kāpiti Coast District Council | Sustainable Transport Strategy13km unsealed roads
253 Building Consents
per year
427km Footpath
403km sealed roads
Peka Peka to Ōtaki Expressway
Old State Highway 1
Part of Rail Network not electrified
Double Tracking to Waikanae
Park and Ride / Rail Stations
Mackays to Peka Peka Expressway
Transmission Gully
Waikanae North and Ngarara Developments
Scale
0 0.5 1 1.5 2km3.0
Policy Context
This Strategy sits within a framework The four wellbeings – social, economic,
environmental and cultural have also been
of local, regional and national plans, reintroduced into the Local Government Act
strategies and legislation, and is as a statutory purpose of Local Government.
one of a number of Kāpiti Coast
By definition, a network cannot operate in isolation.
District strategies that set out the It is important, therefore, that in developing
long-term strategic response to this strategy cross-border working or broader
strategies, plans and activities are taken into
Council’s outcomes and goals for
account. In addition to the relationship with NZTA
the community. and their policies and plans, the most relevant
of these are:
At the national level, this strategy is directed mainly
by three acts, the Local Government Act 2002 (LGA), • The Regional Growth Framework
the Resource Management Act 1991 (RMA) and (currently under development);
the Land Transport Management Act 2003. (LTMA).
• The Regional Land Transport Plan, which is
Since 2008 there have been changes to legislation
led by Greater Wellington Regional Council,
that direct transport spending priorities.
but developed in partnership with all local
authorities in the Wellington Region and NZTA;
Transport Outcomes Land Transport Local Government Resource
Framework 2018 Management Act 2003 Act 2002 Management Act 1991
Identifies four outcomes ‘to contribute to an Requires a sustainable Requires a sustainable
that successive effective, efficient, and safe approach to the approach to the
governments can land transport system in management of natural management of natural
prioritise against. the public interest’, and and physical resources and physical resources
contains requirements and the maintenance and the maintenance
around central government and enhancement of the and enhancement
funding and NZTA environment. of the environment.
spending requirements.
Government Policy Statement 2018 Regional Land
Sets out distribution of central Transport Plan
government funding across transport Sets regional investment priorities.
modes. Required every 6 years with a
Kāpiti Coast
review every 3 years. Focus on safety,
Sustainable
access, environment and value for
Transport Strategy
money. Mode neutrality is a key feature. Wellington Regional
Public Transport Plan
Sets the long-term direction for
public transport in the region
New Zealand Transport Agency
Arataki Road to Zero 2020 National Land One Road Network
NZTAs plan for the A new road safety strategy Transport Classification
transport system for New Zealand. Programme Identifies transport hierarchy
including 5 step Identifies transport based on role, function and
changes. spending. traffic levels.
10 Kāpiti Coast District Council | Sustainable Transport StrategyCycleways
Open Development Economic Climate Coastal
Walkways
Spaces Management Development Change Management
Bridleways
Strategy Strategy Strategy Strategy Strategy
Strategy
Sustainable Transport Strategy
Access and Transport Activity Management Plan Long Term Plan
Forms the implementation part of the Sustainable Transport Strategy. Incorporates outcomes of
Identifies transport investment programme for a three-year, 10-year Access and Transport Activity
and 30-year, or longer, view of planned expenditure Management Plan
• The Regional Public Transport Plan, as Greater to ensure resilience and reduction of transport
Wellington are responsible for the provision of based emissions. The Open Space Strategy sets
public transport services; the direction for the provision and management
of Kāpiti Coast’s open spaces network for the
• The relationship between Kāpiti and:
next 30 years. It is relevant as the recreational
• Porirua City; trails associated with the Cycleway, Walkway and
Bridleway (CWB) network form part of the Open
• Upper Hutt District Council; and
Space Strategy but also straddles the Sustainable
• Horowhenua District Council; and Transport Strategy.
• The Horowhenua Integrated Transport Strategy, The Access and Transport AMP, which is submitted
where the Ōtaki to Levin project, improved to NZTA for approval. Specifically, the AMP
rail services and improved connectivity for identifies:
cycleways, walkways and bridelways is of
particular importance. • the national, regional and local strategic
drivers for services;
At a local level, the Sustainable Transport Strategy
• how the Council will assess and manage
is one of a number of Kāpiti Coast District
transport demand;
Strategies that set out the long term response to
key challenges. The Development Management • the critical assets and how these are
Strategy, Open Space Strategy, Coastal Strategy accounted for in the proposed plan;
and Climate Change Strategy are particularly
• what levels of service the investment provides;
relevant to directing transport investment. These
are currently being reviewed, and so names may • the planned balance between maintenance,
change, but the relationship of these strategies renewals and capital investment proposed
and the Sustainable Transport Strategy will for the maintenance of existing assets and
remain relevant. The Development Management for any future needs; and
Strategy identifies the growth framework and the
• how these costs will be met.
transport system must respond to this as well as
the outcomes of the Coastal Strategy and Climate Our approach to strategy and related implementation
Change Strategy. In this respect transport is an plan development will provide flexibility for amending
enabler rather than a key driver. These responses investment priorities and take account of changes
include directing the location and construction to National, Regional and Local Policies, Strategies,
of infrastructure, and supporting measures Programmes without having to make large scale
such as mode shift and transport technologies, changes to this document.
Kāpiti Coast District Council | Sustainable Transport Strategy 114.0
Challenges
As a regional gateway with strong With growth in population and economic and
tourism development, there is strong potential
links to the North and South, Kāpiti for an increase in both personal and commercial
is well positioned to create a vibrant vehicles on roads. Without a coherent and co-
and thriving District that residents ordinated plan to direct funding to where it is
needed, all of the challenges highlighted in this
are proud to call home. However, strategy are likely to be exacerbated further. There
fundamental to achieving this will be is a need to ensure that infrastructure is delivered
addressing the transport challenges to support this growth in a timely manner.
we face.
4.2
4.1 A Network Under Pressure
Population Growth Poor connectivity combined with population
growth and economic development is placing
and Economic Development pressure on infrastructure. This is resulting in:
Kāpiti has seen significant growth in the last 30
• level of service issues such as congestion,
years and projections show that this will continue.
particularly on east west arterial routes;
The current population of approximately 56,000
is expected to grow to 68,548 by 2043 leading to a • impacts on access to goods, services and
demand of around 7,680 new dwellings. Projections recreational facilities; and
show a change in household composition over time • parking issues.
with increases in the older population and smaller
(i.e., fewer people) households. Between 2013 and
4.2.1 Congestion
2043, the number of residents over 65 will grow by
70% and at that time, they will constitute 31.7% of Traffic modelling tells us that without intervention
the total population of the district. and greater mode choice these problems will only
worsen over time.
As population growth is an influencer in the future
demand for business land Kāpiti also currently
requires around 61,600sqm of floor space in the
next 25 years. Similarly, as a coastal destination
with many attractive attributes including Kāpiti
Island, Kāpiti is also a draw for tourism activities,
which will place further pressure on the transport
network. Tourism has increased since the opening Kāpiti Road is one of the most congested
of the M2PP Expressway, particularly at Kapiti routes on the network with over 26,000
Landing and Paraparaumu Beach, and accounts vehicles per day using this road. This is a
for around 15% of spending in the Kāpiti district. major community connector that links beach
communities and town centres with the wider
regional network, but traffic has increased
to the point where there is no discernible
peak. Traffic increases from 8am and remains
high until at least 6pm. Based on current
conditions, plans for anticipated growth
and intensification around the Paraparaumu
District Centre, along with business
development around Te Roto Drive and the
Kāpiti Airport, would see congestion along
Kāpiti Road and Rimu Road worsen.
12 Kāpiti Coast District Council | Sustainable Transport StrategyThe Wellington Northern Corridor improvements, Kāpiti Line, which has helped relieve the parking
including the Roads of National Significance pressures around the Paraparaumu and Waikanae
Expressway (RONS) projects have changed, and will train stations, but has not completely resolved
continue to change, travel patterns. These include: parking issues in these areas. This is impacting
on businesses, particularly in Waikanae, as
• McKays to Peka Peka (M2PP): parking is being taken up by commuters rather
Completed in February 2017 than town centre visitors.
• Transmission Gully (TG)):
due for completion late 2020 4.3
• Peka Peka to Ōtaki (PP2O): due for Service Provision and Access
completion in 2021 Whilst rail services from Waikanae to Wellington
• Ōtaki to north of Levin (O2L): are frequent and high quality, rail services in the
which is in the planning stages and north of the District are poor. Electrification only
extends as far as Waikanae, and in Ōtaki the only
will potentially be completed by 2029.
rail service is the Capital Connect that runs to and
Changes to traffic volumes on Old State Highway from Wellington once a day. This can limit access
1 have been significant pre and post the M2PP to opportunities for communities as services
Expressway. often do not arrive or leave Wellington at a time
they are needed.
However, the speed of progress of the O2L projects
may determine impacts on the local road networks Similarly, the lack of investment in the rail network
such as bottlenecks in the North of the district and can have implications on the ability to increase
the potential to enable better cycleway, walkway freight movement on the rail network. The new
and bridleway networks to Horowhenua. Expressway projects and Transmission Gully
support freight movements through Kāpiti,
2016 2017 2018 however, improvements in rail are also needed.
Paraparaumu As an example, a freight hub has been proposed
25,527 26,050 12,172 for Palmerston North, which will use the Kapiti
South of Coastlands
Waikane North Line for access into Wellington / the Wellington
22,090 23,051 11,870 Region. This needs to be supported by appropriate
of Elizabeth Street
infrastructure improvements with a high level
of integration with land use if rail freight is to
Connectivity is key, and users want to be able to provide a viable means to reducing road based
move around the network easily (especially with and encouraging rail-based freight.
so many new assets). Whilst the RONS projects
have improved North-South connectivity through Access to the airport is also important if we are
the District, there still exists the need to invest to support air based domestic and freight travel,
in East-West connections, and to ensure that and Kāpiti is to provide a competitive alternative
the local road network interacts efficiently and to Wellington Airport for long distance travellers
effectively with the new Expressways. Without and freight movements to and from Kāpiti. Kāpiti
these connections the town centres will become Road, from which the airport is accessed, is one
vulnerable and congestion will continue to increase of the most congested on the network and east
on the local road network. west connectivity needs to be improved to support
the airport.
4.2.2 Parking Bus transport is also limited, particularly in the
In Waikanae and Paraparaumu town centre north of the District, and usage has steadily declined
parking pressures are being experienced, between 2014 and 2019. This is concerning from the
particularly with demand from train commuters point of view of being able to maintain these services
as a result of limited rail services to the north. in the future but also for encouraging mode shift
The Greater Wellington Regional Council have and providing transport options.
increased Park and Ride provision along the
Kāpiti Coast District Council | Sustainable Transport Strategy 13Kapiti Public Transport Network
Map updated April 2018
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3 www.metlink.org.nz/assets/Uploads/untitled.pdf
14 Kāpiti Coast District Council | Sustainable Transport StrategyBarriers to use can include: increases in the usage of cycleway / walkway /
bridleway trails between 2018 and 2019, this is
• the need for improved infrastructure;
partly as a result of limited connectivity between
• slower journey times compared the cycleway / walkway / bridleway network and
to using cars or the Park and Ride; urban areas. town centres, public transport
interchanges. This forces the user to think
• the need for infrastructure to support
“Now What” and either risk safety issues or
bus usage, such as bus shelters;
abandon cycling as a viable mode.
• affordability;
Car dependent low density urban form is
• lack of integration between modes; and increasingly unsustainable and difficult to service.
Travel by private vehicle has been the major
• poor facilities such as bus stops and toilets.
emphasis for the transport investment. As the total
Without improved connectivity, integration and space available has reached a limit, the response
service improvement, public transport usage may has generally been to increase road corridor
also decline further over time. Buses require a capacity to reduce constraints on vehicle use.
level of patronage to maintain viability; unless the This, and the pattern of land use, has influenced
declining trend is reversed services could be scaled the form of transport networks and the level of
back or lost. Whilst passenger rail boardings have investment in other modes.
increased by almost 1 million in the five-year period There is also a regional form where some key
between 2014 and 2019, capacity issues and a lack social and education services are located outside
of connectivity at either end of the rail journey could the district. Coupled with limited transport options,
inhibit future growth. this has meant a heavy reliance on private vehicle
transport to reach economic, social, cultural and
4.4 environmental opportunities, and more people
Reliance on the Private Car travel to work outside the District than travel in.
Many journeys to work and school are either made
Travel to Work
5
in their entirety by private car, or include a transfer
from the private car to another mode. This shows
that we have some way to go in encouraging and
supporting mode choice.
Whilst some decisions around travel patterns
are personal for reasons such as safety, weather, 51.3
and perceived or actual convenience, these travel
patterns are also driven by the level of investment 12.5 12.8 3.5 12.7 3.4
0.9 1.6 1.1
in the transport network.
Worked at Home
Drove a Private Car, Truck, or Van
Drove a Company Car, Truck or Van
Passenger in a Car, Truck or Van or Company Bus
Public Bus
Train
Bicycle
Walked or Jogged
Ferry
Other
The lack of integration and connectivity within and
between modes is a barrier to their use and is
impacting the use of alternatives to the private car.
As an example, limited integration between bus
services and passenger rail services is encouraging
Park and Ride usage and car based travel.
Similarly, whilst significant investment in active
modes has been seen in the development of
cycleways, walkways and bridleways through
the Stride and Ride4 programme, key links are
still missing. Monitoring has only shown small
4 www.kapiticoast.govt.nz/your-council/projects/getting-around-kapiti
5 www.stats.govt.nz/tools/2018-census-place-summaries/kapiti-coast-district#transport
Kāpiti Coast District Council | Sustainable Transport Strategy 15In addition 36.3%6 of the working population 4.5
commutes outside of the District, and the nearest
hospitals are located in Poririua and Wellington. Demographics and
More people also travel out of Kāpiti than into Kāpiti Demographic Change
for work and private vehicles also represent the
Demographics can influence travel patterns, and
most heavily used mode for travel to work, with
the ability to move around easily can be impacted
buses being the lowest.
by health, age and affordability. Projections show
Many of Kāpiti’s schools were not designed or a change in household composition over time with
located with the level of car use currently being increases in the older population and younger age
experienced in mind. The main means of travel to groups, and smaller households.
education is by car, although travel by school bus or
Therefore, as population grows so too will the
on a public bus is higher than people travelling for
vulnerable road users and transport disadvantaged.
work. As well as causing congestion, which impacts
For example:
across the road network, car trips to school can
cause problems for the schools themselves. Traffic • older people can have particular mobility
and parking, local air pollution, the safety risks issues requiring a number of different
to child pedestrians and cyclists, and a decline in responses ranging from planning for mobility
children’s health and fitness are as a result of aids in developing the pedestrian network to
high vehicle use. aiding access to key services;
The quality of infrastructure and limited off road • safety will be important in protecting
facilities is also a barrier, particularly for vulnerable vulnerable road users and planning
transport users. The network still requires for the network; and
investment in maintenance and new infrastructure
• those on lower incomes that have limited
to improve user experience. Mode choice has been
access to public transport are isolated
impacted by the design of new developments,
and unable to access social and economic
with some new large-scale developments being
opportunities.
incapable of accommodating conventional buses.
Concern over personal safety as a result of poor Younger and older people make up a significant
design can also impact on a person’s choice to proportion of pedestrian and cyclists. Pedestrians
seek alternatives to the private car. and cyclists are the most vulnerable users of the
transport network, and are over represented in
accident statistics. The transport network needs
to better suit the needs of these age groups,
Kāpiti Workforce 7 particularly since older people are increasingly
able to remain mobile as a result of changing
technologies, such as mobility scooters, and
micromobility such is increasingly attractive to
younger people as a result of new transport
modes including electric scooters.
88
The lack of cheap and reliable access to regional
health and social services that are located outside
the District is a pressing issue and is especially
12 problematic for the large elderly population,
the mobility impaired and the Māori population.
Live and Work Live outside, but work A report published by the Ministry of Health
within the District within the District
identified that whilst the gap between Māori
and non-Māori is narrowing, there have also
6 archive.stats.govt.nz/datavisualisation/commuterview/index.html?_ga=2.213191572.1664153304.1591654619-63101943.1571179981
7 archive.stats.govt.nz/datavisualisation/commuterview/index.html?_ga=2.213191572.1664153304.1591654619-63101943.1571179981
16 Kāpiti Coast District Council | Sustainable Transport Strategy4.6
Safety
There is an Accident and Medical service
Current road safety indicators are worsening and
available in Paraparaumu, and an urgent
vulnerable users need to be kept safer. Some of the
care unit in Waikanae, but these are not
network has been identified as high-risk, with the
24-hour facilities and families and carers
top seven road safety issues including:
still have to travel to Wellington, Kenepuru
and Palmerston North hospitals. Limited • pedestrian safety;
local services provide transport direct
• cyclist safety;
to Kenepuru or Wellington hospitals but
these are user pays and, therefore, pose • motorcyclists;
a barrier for patients . The only available
• young drivers;
public transport service to Palmerston North
hospital for Ōtaki residents is traditional • intersections;
public transport.
• excessive speed; and
• mature road users.
been areas where improvements have been In particular, Kāpiti had the second highest
more marked for non-Māori than for Māori such personal risk to motorcyclists and third highest
as “hospitalisation and mortality for adults aged risk to pedestrians compared to similar districts.
35 years and over in all types of cardiovascular The 2018/19 annual report shows that accidents
disease”8. This identifies the importance of being have increased in the last five-year period when
able to access key healthcare services. Similarly, compared to the previous five years, despite the
affordability can impact on the ability to reach key implementation of safety improvements on the
educational and employment opportunities. In 2018 network and education.
the unemployment rate was 6%9, which is higher Accidents are spread across the network and
than the national average. In 2013 Māori population range from minor injuries to fatal accidents. NZTA
also had a higher level of unemployment than identify personal and collective risk to road users10.
non-Māori and so reflects the importance of The collective risk identifies corridors with a high
reducing transport disadvantage and providing number of fatal or serious crashes, whilst the
access to economic and cultural activities. personal risk identifies serious risk to road users
In 2018 census, 14.7% of the population identified of fatal or serious crashes on corridors.
as Māori or Māori descent in Kāpiti (compared to Accidents can be attributed to both human error
12.3% in 2006) and 4.3% spoke Māori compared and the physical transport network. At a human
to 4% in New Zealand. As Te Reo Māori forms a level accidents occur for a number of reasons such
central part of Māori identity and adds value to as loss of control, loss of concentration, overtaking,
the economy, access to community infrastructure, conflict during turning manoeuvres, collisions
employment, and educational opportunities where during merging. Older and younger people are
the use of Te Reo is promoted and taught should particularly vulnerable. This can be as a result of
be actively encouraged. health issues and a lower level of concentration
or awareness of road safety principles, but a lack
of mode separation can also present physical and
emotional barriers to active modes.
8 www.health.govt.nz/publication/wai-2575-maori-health-trends-report
9 www.stats.govt.nz/tools/2018-census-place-summaries/kapiti-coast-district#ethnicity-culture-and-identity
10 roadsafetyrisk.co.nz
Kāpiti Coast District Council | Sustainable Transport Strategy 17Urban and rural roads are of equal concern There is a need to ensure that the transport system
but the quality of some of the rural roads can can not only accommodate future growth and
present particular challenges. Kāpiti has 13.3km changes to land use patterns, but also have the
of unsealed roads and several rural roads which ability to deal with higher levels of demand as
are narrow and have sight visibility issues that a result of unexpected problems.
can impact on road safety. Of particular note are Being a coastal district, Kāpiti is vulnerable to the
Paekākāriki Hill Road and Akatarawa Road, which impacts of, and resilience to, climate change and
cross administrative boundaries and will require sea level rise, as well as other major events such
joint working with NZTA and the adjoining territorial as earthquakes and land-slides. More extreme
authorities to address safety issues. The quality weather conditions can also cause damage due to
of the urban network can also create road safety slips and washouts, as well as localised flooding,
problems as a result of the need for increased which place pressure on limited resources.
maintenance and the presence of hazards.
With the level growth anticipated in Kāpiti and
These safety issues are of concern, especially the wider Wellington Region this will become an
given the increase in young and old age groups increasing problem unless Kāpiti develops a more
and without action serious harm on the roads will sustainable transport network and integrates
continue. There is a need to ensure that Kāpiti climate change planning into future decision
takes account of the needs of all communities making. Therefore, the transport network must
in the decision making processes to ensure that respond to the outcomes of the Climate Change
this trend does not continue as the network and and Coastal Strategies.
population grows.
Energy and other resource costs may also have
Similarly, the gaps in the pedestrian and cycle impacts on community resilience, including:
network that can have a negative impact on safety.
• Impacts on the community’s ability
The Expressway paths for example can provide a
to access goods and services; and
utility and recreational function, and their off road
nature appeals vulnerable and less confident road • Potential shortages of fuel on a
users, however, they need to connect effectively and temporary or longer term basis.
safely into key destinations. There are also limited
segregated and off-road facilities in other areas, 4.8
particularly in the north of the District that needs
to be addressed if safety is to be improved.
Climate Change
The transport sector remains a significant
4.7 contributor to greenhouse gas and noxious
emissions, and light vehicle emissions are
Resilience the fastest growing of these. Not only can this
Increasing occurrence of severe weather related have health implications but climate change is
events and coastal erosion is affecting some exacerbating existing problems on the network
structures and challenging network resilience. including damage to the network as a result of:
Resilience in the transport network means the • increased flooding and ground water;
ability to continue to function at an acceptable
• greater storm intensity;
level and ensure access to essential services after
a disruptive or major event. At a more personal • sea level rise and coastal erosion; and
level, resilience in the community means the ability
to gain and maintain access to key services and • warmer temperatures.
places that are centred around ensuring wellbeing Transport is currently responsible for about 57%
including Marae’s and civil defence centres. of carbon dioxide emissions in New Zealand. The
private car is the most significant contributor to
18 Kāpiti Coast District Council | Sustainable Transport Strategyland based travel emissions but the use of diesel 4.10
trains between Ōtaki and Wellington, and buses
running on fossil fuel also play a part. Amenity
The Climate Change Zero Carbon Act11 requires the Decisions on land use and transport can affect
government to develop and implement policies for the amenity, attractiveness and safety of areas.
climate change adaptation and Kāpiti will need to In Kāpiti there is a desire to maintain character,
respond to these. Kāpiti Coast has also declared amenity and environmental quality.
a Climate Change Emergency which recognises The RMA defines amenity as being “those natural or
the significant costs associated with coastal erosion physical qualities and characteristics of an area that
and climate change such as inland flooding in contribute to people’s appreciation of its pleasantness,
the District.
aesthetic coherence, and cultural and recreational
attributes12”. The physical and visual attributes of
4.9 the transport network can have positive or negative
The Environment impacts on the experience of a place. A high quality
Travel and transport systems can impose network is important to the community and the
significant harm to the environment and, without allocation of space within the road corridor can
action, will mean that the principle of Tino have an effect on local economies and the viability
Rangatiratanga (particularly Kaitiakitanga) is of town centres.
not achieved through adequate environmental The town centres are vulnerable to change and
protection. It is important that the range of the new travel patterns resulting from the RONS
effects on key resources such as biodiversity and projects removes passer-by traffic, which can
ecology, air, water, soil, noise and land take are impact on economic viability. The lack of quality
identified, and informed choices are made about town centre design is resulting in a lost opportunity
addressing adverse effects to the environment.
to catalyse growth, and the lack of main streets is
The implications of uncoordinated development on
resulting in economic and retail activity occurring
those parts of the environment that are less able to
outside the region or district. The challenge will
cope with change should be considered.
be to lock in the benefits of the RONS projects
Unless it is planned appropriately and effects and enhance the town centres.
are avoided, remedied, or mitigated, transport
infrastructure can cause effects at both the 4.11
construction and operation stages. Impacts on
the water and soil can arise from the increased
Affordability
potential for erosion as a consequence of Access and transport activities are funded
earthworks, contamination in run off, air pollution by a combination of:
and the emission of greenhouse gases, and impacts
on flora and fauna and people can be caused by • rates funding,
destruction of natural habitats, and noise. • subsidies from NZTA for maintenance,
Decisions on land use and the relative priorities • school travel plans renewals
between modes can also impact on the environment. and capital works;
As an example, building a road rather than looking
at improved infrastructure to support alternatives • Greater Wellington Regional Council
to the private car, and not requiring connectivity of for public transport and;
new developments that supports mode choice can • New development.
impact on the quality of the environment.
Any decisions on transport investment and
programme development will need to be made
within the context of funding constraints. Council’s
focus is on achieving a balance between delivering
11 www.mfe.govt.nz/climate-change/zero-carbon-amendment-act
12 www.legislation.govt.nz/act/public/1991/0069/latest/DLM230265.html
Kāpiti Coast District Council | Sustainable Transport Strategy 19affordable rates, minimising borrowings and Many transport projects, including new
optimising capital expenditure whilst still infrastructure and maintenance, attract funding
delivering against what the community needs assistance rates from NZTA but Councils have
and what is required to operate a safe and to fund their share, usually around 50%. There is
efficient transport network. capacity to support growth if the transport network
supports sustainable approaches but growth brings
As well as ensuring the development of new
with it higher costs for infrastructure delivery,
infrastructure to support growth, Council needs to
operation and maintenance.
address shortfalls with the existing infrastructure,
including required maintenance and renewals,
that create barriers to transport opportunities.
Summary of Key Challenges
Challenge Why is this an issue Effect of no action
Growth Growth is exacerbating existing • Existing transport issues and challenges
transport challenges. will continue to worsen over time.
A network under Poor connectivity coupled with • These conditions worsen over time
pressure growth is impacting on: and infrastructure will deteriorate.
• level of service such as congestion
and reliability, particularly on east
west arterial routes;
• access to goods, services
and recreational facilities;
• mode choice; and
• economic viability and amenity
due to parking problems.
Service provision / • Effects mode choice; and • Services become increasingly
lack of access vulnerable over time; and
• Limits access to essential social,
economic and service facilities. • Increasing pressure on the
roading network.
Reliance on the • Effects mode choice; and • Increasing pressure on the
Private Car roading network;
• Limits access to essential social,
economic and service facilities. • Travel patterns will not change; and
• Land use patterns can be affected.
Demographic Change • Effects mode choice; • Number of people with
limited access will increase;
• Limits access to essential social,
economic and service facilities; • Travel patterns will remain
and unchanged; and
• Vulnerable road users are • Safety statistics will worsen over time.
increasing.
20 Kāpiti Coast District Council | Sustainable Transport StrategyChallenge Why is this an issue Effect of no action
Safety • Safety statistics are worsening; • Serious harm will continue.
and
• Vulnerable road users are at risk.
Need to Improve • Important to ensure access • Damage will occur;
Resilience to essential services after a
• The transport network will not be
disruptive or major event;
able to respond quickly to unplanned
• Kāpiti’s transport network is events; and
vulnerable to climate change, sea
• Communities will be at risk or lose
level rise and natural events such
access to key services.
as land-slides and earthquakes;
Climate Change • Transport is a significant • Impacts of climate change
contributor to greenhouse gases; will worsen over time.
• Climate change is exacerbating
existing problems which affect
the transport network including:
• increased flooding and
ground water;
• greater storm intensity;
• sea level rise and coastal
erosion;
• warmer temperatures.
Environmental • Decisions that do not take • Environment degrades over time.
Impacts account of the effects of transport
infrastructure impact on
biodiversity, air and water quality,
soil, ecology and biodiversity.
Amenity • Lack of quality town centre • Amenity and viability in town
design is resulting in a lost centres will worsen, and economic
opportunity to catalyse growth development may decline.
and encourage mode shift; and
• Lack of main streets is resulting
in economic and retail activity
occurring outside the region
or district, and increasing the
need to travel.
Affordability • Decisions on transport • Impact on balance between
investment and programme delivering affordable rates, minimising
development will need to be borrowings and optimising capital
made within the context of expenditure.
funding constraints; and
• Funding assistance rates from
NZTA usually cover only 51%
of the cost, and Council must
find its share.
Kāpiti Coast District Council | Sustainable Transport Strategy 21Summary of Key Challenges
Interregional
Lack of connectivity to
Levin and Palmerston
North, where many Ōtaki
residents look to for
essential health services
and employment.
Regional
East West Connectivity between Kāpiti Ability of the commuting workforce to
and Poririu, and Kāpiti and Upper travel to the Hutt Valley influenced by
Hutt as both Akatarawa Road and investment decisions on the Petone to
Paekākāriki Hill Road are narrow and Ngauranga Gorge scheme and State
have poor sight lines / poor safety Highway 58.
records.
Districtwide
Lack of Lack of Revocation of Old Capacity on Parking
integration integration State Highway 1 train services. issues
between between on and and the need to
modes. off road cycle lock in the benefits
and pedestrian this provides in the
activity. town centres.
Ōtaki
Poor rail connectivity Limited bus services. Poor East-West Need for improved
North and South. Connectivity cycleway, walkway,
bridleway
infrastructure.
Paekākāriki
Relationship Bus services limited
between TG and Old to one per week to
State Highway 1 Paraparaumu and
interchanges. Kapiti Health Centre.
Paraparaumu
Congestion. Poor connections to
the railway station for
pedestrians and cyclists.
Waikanae
Problems across North / South connectivity Poor connections to
the railway line and to Waikanae as a result of the railway station for
congestion around the lack of full interchanges pedestrians and cyclists.
Elizabeth Street. on the M2PP and PP2O
Expressways.
22 Kāpiti Coast District Council | Sustainable Transport Strategy5.0
Outcomes and Vision
5.1 Outcome 3: Supporting a
Outcomes Vibrant and Thriving District
The town centres and local businesses are
Council aims to enhance community connectedness
supported by the transport network, parking
through the creation of a well-planned physical
management strategies and projects, and people
transport system that allows for the reliable,
and goods can easily and reliably move around.
efficient and safe movement of people and goods.
There is a need to prioritise infrastructure spending Objective 4: Climate Change
and ensure that new developments contribute
The transport network and our investment decision
towards solutions rather than add to existing
making will actively address to and seek to mitigate
pressures. The following outcomes reflect what is
the causes and effects of climate change.
desired in Kāpiti and emphasise the need to ensure
a complete and integrated transport network which Outcome 5: The Environment
serves all communities.
There will be a transport system that establishes
Outcome 1: Improved Access, kaitiakitanga as a guiding principle, and avoids
remedies or mitigates effects on the environment.
Connectivity and Integration
In Kāpiti communities will benefit from a transport Objective 6: Amenity
network and travel service that offers the widest
possible choice, giving access to essential civic The design of the network reflects its form and
and economic centres, social infrastructure and function and proposals will create coherent, safe,
recreational opportunities. Transport and land high quality and attractive places.
use will be better integrated and the design of
new development will support good transport
Outcome 7: Affordability
connections internally and to the wider Investment decisions will ensure value for money.
transport network. Transport infrastructure developments, renewals
In identifying transport solutions no mode should and upgrades will be undertaken efficiently and
have priority over any other. Delivery programmes effectively to ensure we obtain maximum external
will not start on the premise that road building funding, optimise rates funding and sustain
will be the most efficient way of enabling people economic activity. Travel will become more
and businesses to access the goods and services affordable for all users.
that matter to them. Space will be allocated on the
network to match the needs of all user groups so
people can easily get around the district by their
5.2
preferred means, and have an enjoyable journey. Vision
Outcome 2: Safe and To achieve an attractive, well
Resilient Communities connected, responsive, safe, and
By adopting a vision zero and safer systems13 environmentally friendly transport
approach people feel safe using a mode of their system that enables mode choice.
choice. At the same time the health and wellbeing
Whilst all outcomes are linked to key challenges
of communities is improved as a result of increased
some will be more be more relevant than others,
activity, improved access to key social infrastructure
and the ability to appropriately manage the effects most relevant connections are shown on the
of and respond to transport based emissions. Strategy on a Page. Improving connectivity and
integration for example will reduce the need to
Kāpiti will be able to respond quickly and restore
travel by the private car and encourage mode shift.
essential transport connections after a disruptive
event including natural disasters, accidents and In turn this addresses the challenges that arise as
major entertainment events. Resilience will be a result of growth and demographics, as well as
built into the network including alternative routes improving the environment and amenity.
and effective and reliable options for mode choice,
as well as ensuring construction standards and
emergency measures are in place to ensure
that damage is as limited as possible and
recovery is swift.
13 www.transport.govt.nz/multi-modal/keystrategiesandplans/road-safety-strategy/vision-zero-and-the-safe-system/
Kāpiti Coast District Council | Sustainable Transport Strategy 2324 Kāpiti Coast District Council | Sustainable Transport Strategy
6.0
Focus Areas
The Challenges identified in section 4 6.1
of this strategy and the Long Term Focus Area 1:
Plan (LTP) performance measures The Transport Network
identify there are some areas where The physical form of the transport network
we continue to need to prioritise will have major impacts on transport choice.
The transport network will need to develop in
infrastructure spending, as well as
a way that:
ensuring that new developments
• increases the connectivity of communities;
contribute towards solutions rather
• integrates transport modes;
than add to existing pressures.
• improves access to the District centres,
Balancing the ability for Council to maintain recreation areas, school services and
the current roading network and fund renewals, employment opportunities;
while meeting future growth needs, is an ongoing
challenge, given the size and scale of the assets • increases mode choice;
and limited funding sources. Neither does it wholly • improves safety, particularly for
address other key areas of performance such as vulnerable road;
resilience, amenity, accessibility and safety. The
focus areas identify what is needed in order to • ensures resilience; and
accomplish the vision and outcomes contained • delivers high quality design that
within this Strategy. respects the environment and amenity.
6.1.1 Improved Connections
and Mode Choice
Council aims to enhance community
connectedness through the creation of a
well-planned physical transport system that
allows for the reliable, efficient, and safe
movement of people and goods. The One Road
Network Classification indicates the relative
importance of streets and “divides New Zealand’s
roads into six categories based on how busy they
are, whether they connect to important destinations,
or are the only route available14”. In this respect it
identifies the current state of play but does not
currently consider how these roads could be used
in the future, for example, if a greater proportion
of trips were made by alternatives to the private
car. Decisions on allocation of space within the
road corridor can assist with mode shift, relieve
congestion, and improve access to services and
the One Network Framework will “Provide a clear
line of sight between transport interventions and
the customer service levels and community
outcomes to be useful for strategic, operational
and tactical activities15”.
14 www.nzta.govt.nz/roads-and-rail/road-efficiency-group/projects/onrc
15 www.nzta.govt.nz/roads-and-rail/road-efficiency-group/projects/one-network-framework/
Kāpiti Coast District Council | Sustainable Transport Strategy 25You can also read
