Canterbury Regional Land Transport Plan - CAN TERBUR Y REGION AL COUNCI L Kaun iher a Taiao ki Waita ha - Environment ...
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CANTERBURY REGIONAL COUNCIL Kaunihera Taiao ki Waitaha Canterbury Regional Land Transport Plan Prepared by the Regional Transport Committee, a collaboration of the region’s councils and Waka Kotahi NZ Transport Agency 1 July 2021
State Highway 7, crossing the Hurunui River
Contents Foreword 4 Joint statement 7 Introduction 8 Our region 9 Economic factors 10 Impact of Covid-19 11 Landscape 12 Resilience and climate change 13 Our people 14 Expected growth 16 Transport systems 17 Road 17 Cycleways and active transport 18 Public transport 18 Public transport futures 19 Rail 20 Air 20 Sea 21 Transport and land use integration 22 Policy context 23 Core statutes 23 Other national policy context 24 Local and regional policy context 26 Strategic framework 28 Ten-year transport priorities 29 Fit with strategic context 35 Policies 36 Programme and funding 38 Business as usual activities 40 Regionally significant activities 48 Expenditure and revenue forecast 57 Monitoring indicator framework 60 Appendices 63 Glossary 80
Environment Canterbury Regional Land Transport Plan 2021–31
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Foreword
As the chair of the Canterbury Canterbury’s transport network develops
Regional Transport Committee over successive generations of planning
(RTC) I am pleased to present and replanning. The network provides us
this Regional Land Transport with access to economic, cultural and
Plan (RLTP). social opportunities and contributes to
making Canterbury a great place to live.
The Plan is comprehensively reviewed The current network has some enduring
every six years and we have taken a attributes:
strong collaborative focus with territorial
• It reaches deeply across our large
authorities and Waka Kotahi NZ Transport
region to keep communities
Agency to develop this plan for the
connected from the mountains to
region. Our aim has been to ensure the
the sea; ki uta, ki tai
plan reflects the Canterbury community’s
desired future for their transport • It is changing quickly to support
network, and that it will meet their growing urban populations in
ever-changing needs. Greater Christchurch
• It provides a safe way for people and
The Canterbury Regional Transport goods to be moved around our region
Committee is a statutory body established and beyond.
under the Land Transport Management
Act 2003. The Act requires Environment These enduring attributes need to be
Canterbury to appoint a councillor from supported in our planning as they lead
each territorial authority to the Committee, to improved economic, cultural and
as well as a representative from Waka social outcomes. However, there are
Kotahi. In Canterbury we value this serious challenges that impact the future
arrangement as it ensures local community effectiveness of our transport network:
aspirations are considered at the regional • The resilience of our network – with
level and communicated nationally. climate change, the resilience of our
network will continue to be tested
The Committee’s principal task is to
as extreme events occur at a more
identify key transport-related outcomes,
frequent rate. In the long term we
objectives and issues for the Canterbury
need to shift from a network that can
region and create a prioritised programme
recover, to a network that continues
of transport activities to address them.
to function during adversity
These are articulated in the Plan. This is
not an easy task as activities submitted by • The environmental impact of the
local councils and Waka Kotahi have been network – reducing transport related
identified through complex modelling to greenhouse gas emissions is part of our
identify the optimal activities for inclusion. responsibility as kaitiaki, in addition
to ensuring the transport network
continues to contribute to the well-
being of future generations.
Environment Canterbury Regional Land Transport Plan 2021–31
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In this Plan, we introduce headline targets: The Committee welcomes the opportunity
to reduce road deaths and injuries; to to collaborate with central government,
reduce transport emissions contributing councils outside our region, private sector
to climate change; to reduce impact on partners, our communities and all those
the road network by moving more of the affected, to improve transport outcomes
region’s ever-growing freight load by rail. in Canterbury and across the South Island.
The first two of these align the region to A joint statement from the South Island
national targets. The latter builds on our Regional Transport Committee Chairs
research showing that this modal shift is Group has been included in this Plan and
economically and environmentally astute highlights this need to work together.
for the South Island. Collaboration across the South Island is
particularly important as critical freight and
This Plan will be reviewed in three years’ visitor journeys cross regional boundaries
time. By that time, the Plan may need to and connect to both Stewart Island and the
respond to law changes, including resource North Island.
management reform, and new strategic
planning and climate change legislation. Finally, I want to thank all the people
But the challenges Canterbury’s transport who have worked hard to bring this plan
network faces – safety, resilience, together. Nā te rourou, nāku te rourou,
decarbonisation, demand, maintenance ka ora ai te iwi. With your food basket and
– are unlikely to change, irrespective mine, we all live well.
of changes to statutory roles and
responsibilities to tackle these matters.
The submissions received on the draft plan Peter Scott
recognised the importance of recalibrating Chair, Canterbury Regional
our transport planning to meet those Transport Committee
challenges. There was a high level of
support for the strategic objectives, key
targets and investment priorities. The
Committee thanks the organisations and
individuals that made submissions.
A core factor in achieving our collective
vision is to ensure our investment is
addressing the large-scale challenges
we face. Quarterly reporting against the
monitoring framework, to the Regional
Transport Committee, will support us to
monitor progress against the objectives
of the Plan and enable robust, evidence-
based investment decisions.
Environment Canterbury Regional Land Transport Plan 2021–31 Strategic Context 6 State Highway 1, Kaikōura Coast
Environment Canterbury Regional Land Transport Plan 2021–31
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Joint statement from the South Island
Regional Transport Chairs
The transport system provides the These shared priorities form the priorities
arteries and veins that bring life to of this group and are listed below.
our communities, support regional
prosperity and improve the overall Priority areas
wellbeing of the South Island. The
transport system connects our 1. Advocacy for transportation in the South
communities, allowing people to Island, including tracking how central
travel safely and efficiently across government investment, including
our diverse landscapes, and enables the National Land Transport Fund
the safe and efficient movement of and Provincial Growth Fund, is being
freight. It is imperative to ensure allocated across the country
the transport network is working 2. Resilience of the transport network
as effectively as possible. 3. Freight journeys across the South Island
The South Island Regional Transport 4. Tourism journey improvements across
Committee Chairs Group was formed in the South Island
2016 for this purpose. The Group seeks to 5. An enabling funding approach for
significantly improve transport outcomes innovative multi-modal (road, rail,
in the South Island through better inter- air, sea) solutions
regional collaboration and integration. 6. Explore opportunities for inter-regional
public transport.
The Group is focused on ensuring the South
Island stays at the forefront of Government
thinking. The formation of the Group
recognises that the South Island advocating
with one voice is more effective than seven
regions advocating independently on the
same matters.
This approach seeks to ensure that the
needs and aspirations of our South
Island communities are recognised and
understood by the Government.
We want to be seen by Government as a
group of 1 million people with a common
aspiration for our transport system.
Notwithstanding, each region in the South
Island has unique characteristics, but at
the same time, will share similar transport
priorities and challenges.
Environment Canterbury Regional Land Transport Plan 2021–31
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Introduction
The Canterbury Regional Land The aim is to have an agreed regional
Transport Plan (RLTP) sets out programme which contributes to shared
the current state of our transport prosperity – economic, social, cultural
network, the challenges we face, and environmental. In alignment with this
and the priorities for future requirement, the RTC defined a theme for
investment. The Plan sets out: the draft RLTP early in discussions:
• the context in which the transport A rising tide lifts all ships.
system operates
In developing the RLTP, the Canterbury
• the vision and strategic objectives RTC has considered the strategic direction
for the transport system provided by the Government through
• the priorities for investment – key the Ministry of Transport’s Outcomes
areas where further investment is Framework and the Government Policy
required in order to achieve the Statement on
vision and objectives Land Transport.
• a prioritised regional programme
The Committee has also been mindful
of transport activities.
of the planning and investment work
This RLTP was developed by the Canterbury completed by Waka Kotahi in Arataki, the
Regional Transport Committee (RTC). 10-year view of what is needed to deliver
The RTC is a joint committee of the on the government’s current priorities and
region’s councils1 as well as Waka Kotahi. long-term objectives for the land transport
Developing the RLTP is the primary role system. While this RLTP acknowledges the
of the RTC and is a requirement for each work completed to develop Arataki, our
region’s RTC across New Zealand. It is focus is on delivering a strongly regional
part of the nationwide process in which response – from our region, for our region.
local councils, regional councils and
This RLTP was developed during the
Waka Kotahi work together to identify the
COVID-19 pandemic. While the pandemic
problems and prioritise investment in the
creates uncertainties, it has not changed
land transport network.
our collective vision and objectives. We
The vision for Canterbury’s transport will continue to advocate hard at a national
network in this RLTP is to provide all level for the region’s transport needs to be
transport users with sustainable options acknowledged and met.
that move people and freight around and
through our region in a safe and efficient
way that enables us to be responsive to
future challenges.
Our work programme must consider
and include projects that benefit all of
Canterbury. While a local authority may
wish to advance a particular project,
we must look to the regional benefits that
flow from it.
1 Excluding Waitaki, which is part of the Otago Southland Regional Transport Committee.
Environment Canterbury Regional Land Transport Plan 2021–31
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Our region
Transport connects people to As technology, demographics and land
services, recreation opportunities, use change, our region needs to be able to
employment and education, evolve and deliver a sustainable, resilient,
and it contributes to our wellbeing multi-modal transport system for the safe,
as individuals, communities and efficient and effective movement of people
a region. and goods.
A successful land transport system The objectives of this RLTP reinforce
provides people with choice about the the need for a network that improves
way they travel. It moves people and the wellbeing of Cantabrians, enhances
freight safely, sustainably and efficiently, regional prosperity and provides better
contributing to prosperity. The system must freight transport options. The network
be resilient to external influences, including must also be resilient to a range of
natural and climate hazards. stresses, reinforce and contribute to road
safety goals, and facilitate sustainable
Our starting point for development of this transport choices.
RLTP is a region that is the largest in New
Zealand by land area, with 44,508 square We will achieve these objectives through
kilometres of disparate landscapes. The effective advocacy for our transport
Canterbury region is also very diverse, programme and through evidence-
being home to the second-largest urban based programmes proposed by regional
area in New Zealand – Greater Christchurch territorial authorities that identify and
– and also a number of largely rural prioritise investment.
districts with small populations. Our size
and diversity mean the issues for our urban
areas differ significantly to those faced by
less populated, rural or remote districts;
an uneven population distribution is a core
feature of Canterbury.
State Highway 8, Lindis Pass
Environment Canterbury Regional Land Transport Plan 2021–31
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Economic factors
Canterbury drives much of the South Based on Census 2018
Island’s economic and social activity.
For the year ended March 2018, Canterbury 72.5% of those in employment
generated 12.4% of the national GDP usually used a private or
and 57% of the South Island’s GDP. By company vehicle to get to work
comparison, its estimated population of within the Canterbury region
620,830 (as at 30 June 2018) was around
12.7% of the national total and 54.3% of 12.2% of people worked
the population of the South Island2. from home
Canterbury accounts for 19% of the total
4% walked or jogged to work
area farmed in New Zealand. Primary
production derives from a diverse range
of intensive dairy, sheep and beef, and While 6.2% of New Zealanders
cropping operations on the plains and hill in the 2018 census took public
country. Primary production has become transport to work, only 2.8%
of Cantabrians did
more dairy focused over the past 20 years,
which has contributed to increased freight
4% of Cantabrians chose to
movements on our rural roads as milk
bike to work compared with
must frequently be moved off farm,
2% nationally.
generally by truck.
Manufacturing is also a key component Of course, there is wide variation in
The Canterbury of the Canterbury economy, particularly these numbers across the districts in
economy transport and machinery equipment, and Canterbury, reflecting the diversity of the
has grown food and beverage products. Christchurch region. Christchurch City, with its higher
substantially is the manufacturing hub of the region, population density, has higher levels of
since 2000, with strengths in machinery and equipment public transport and active transport than
with regional manufacturing, and in chemical, minerals Canterbury as a whole – 5.6% of workers in
GDP growing and metal manufacturing. Christchurch cycled to work and 4% bused.
by 170 per cent
The Canterbury economy has grown While this cycling figure compares
over the period. substantially since 2000, with regional favourably with other large urban areas
GDP growing by 170% over the period. (4% in Wellington and 1% in Auckland),
This growth has had a flow-on impact on usage of public transport is lower (21.3%
the travel network – especially given the in Wellington and 11.1% in Auckland). In
prominence of primary production and addition, despite the higher use of public
manufacturing, sectors of the economy and active transport, the percentage of
that are reliant on the transport of people who use a car to get to work in
physical products. Christchurch is higher than in Canterbury
as a whole (76.1% for Christchurch and
Travel to and from work is a key driver of 75.6% for Canterbury). These figures
trips on Canterbury’s transport network. illustrate the continued need to focus
on mode shift in Canterbury’s larger
urban areas.
2
The 2018 estimate has been used for its consistency with available historic and projected population figures used
elsewhere in this document. For the most up to date subnational population estimates by district, please visit
nzdotstat.stats.govt.nzEnvironment Canterbury Regional Land Transport Plan 2021–31
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Impact of COVID-19
Tourism is another key aspect of the As this Plan was being prepared, COVID-19
Canterbury economy and provides a pivotal was creating significant uncertainty. The
role in the wider tourism offering of the economic and social impact of the global
South Island. Tourism spending in the pandemic and flow-on effects to our
region was $337 million in January 2020 transport network are unknown but could
(before COVID-19 travel restrictions began). be substantial. Nevertheless, we anticipate
Many of the visitors to Canterbury hire a car that there will be a shift in priorities and
to visit the region’s attractions. transport use in the short term. There may
also be longer-term impacts if the pandemic
Canterbury is a centre for knowledge results in structural shifts in the economy;
and innovation. The region is home to it is too early to tell whether this will occur
two universities (Lincoln University and and what the implications for the transport
Canterbury University) and one polytechnic network might be.
(Ara Institute of Canterbury). The main Ara
campus is in Christchurch City and there is Treasury forecasts showed immediate
also a large campus in Timaru. Canterbury significant impacts on output,
is also well supported with Research and employment, and flows of people and
Development agencies focused on land and goods. Certain industries – tourism, retail,
food production. There are seven Crown rental services, and transport – were
likely to be most impacted. International
Research Institutions (CRIs) carrying out
tourism, for example was expected to be
scientific research for the benefit of New
heavily reduced in 2020/21 at a minimum.
Zealand, each aligned with a productive
sector of the economy or a grouping of Other industries, such as agriculture, are
natural resources. reasonably insulated from the economic
impacts of the virus.
Transport plays a key role as an enabler
for each sector of the regional economy. Overall, Canterbury was expected to fare
Efficient and effective transport of people, slightly worse than the country as a whole
ideas, inputs and outputs is critical in due to its role as a gateway to international
supporting economic activity, keeping costs tourists. Canterbury has the third largest
down and contributing to international spend in the country, of which 40%
competitiveness. Maintenance of the comes from international arrivals. This
existing transport network, and additional impact would be offset somewhat due to
investment to respond to changes in how Canterbury’s sizeable primary sector, which
roads are being used, is therefore critical to was expected to perform comparatively well.
sustaining the region’s prosperity.
Forecasters expected reduced immigration,
international student arrivals and work visa
arrivals over the short-to-medium term.
This would have a significant impact on
Canterbury; Canterbury is highly reliant on
net migration for population growth, and
the region has the country’s second highest
number of temporary migrant workers.
An expected reduction in immigration
would slow growth and negatively impact
the construction sector in and around
Christchurch. It could also result in a
shortage of skilled migrants to help deliver
new infrastructure investments, such as
roads.Environment Canterbury Regional Land Transport Plan 2021–31
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Landscape
The Canterbury region extends from
Kēkerengū, north of the Waiau Toa/
Clarence River, to the Waitaki River
catchment in the south. East to west,
the region extends from the coast to
Kā Tiritiri o te Moana/Southern Alps.
Canterbury is home to:
NEW ZEALAND’S
HIGHEST
MOUNTAIN (AORAKI/
MOUNT COOK)
MORE
THAN 4700 LAKES
AND TARNS
Some of
the
country’s
most productive
farmland. 19%
of the total area
OVER 78,000 farmed in NZ is
KM OF RIVERS in Canterbury.
In acknowledging these features and
landscapes it is no coincidence that
tourism and primary production are key
regional economic contributors, both
of which require a resilient and safe
transport network to ensure
future success.Environment Canterbury Regional Land Transport Plan 2021–31
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Resilience and
climate change
Canterbury’s unique landscape creates Climate change will also lead to increasing
resilience issues for its transport network. exposure to risks associated with sea level
It has exposure to a number of risks, rise, coastal erosion and storm surges.
including flooding, earthquakes, Much of the region is low-lying, and key
and coastal erosion. transport corridors (including State
Highway 1 and the Main North rail line)
Canterbury Canterbury regularly experiences flooding are coastal. Disruption of these corridors
must adapt events, a natural hazard which includes has the potential for significant negative
its transport river flooding, surface flooding and impact, as shown by the 2016 Kaikōura
network so coastal inundation. These events can be quake.
that it is more particularly problematic in Canterbury
climate given our heavy reliance on bridges for Transport Emissions
resilient... river crossings on critical freight and
visitor routes. Of course, climate change means more
than needing to resolve these resilience
The region’s exposure to earthquakes is challenges. Canterbury must adapt its
well known. The 2010 and 2011 quakes transport network so that it is more
caused significant damage to the network climate-resilient, but it must also
in the Greater Christchurch area and the reduce its transport emissions.
2016 Kaikōura Earthquake ruptured more
than 24 faults, with the largest horizontal Transport is a source of greenhouse
displacement of 12m on the Kēkerengū gas emissions in New Zealand. In 2018
Fault and vertical displacement (uplift) emissions from transport were 16.6 mt
of 9m on the Papatea Fault. Along 110km CO2-e or 21.1% of all gross emissions.
of coastline, vertical movement ranged Moreover, transport emissions are growing
from subsidence of 2.5m to uplift of 6.5m. quickly – increasing by 89.7% since 1990.
Landslides continue to be an issue in
North Canterbury. This increase in emissions has been driven
by population and economic growth.
Greater resilience of Canterbury’s transport Since 1990 New Zealand’s population has
infrastructure is needed to secure regional increased by around 50% and GDP has
and national supply chains. These risks grown by more than 130% – the increase
place pressure on our transport links and in the number of New Zealanders and
have the potential to isolate districts or their improved prosperity has meant
communities; in many instances alternative more travel and freight movements, and
routes that must be used are indirect, therefore more emissions from transport.
resulting in extremely long detours, or are
unsuitable for certain vehicles (such as Growth in GDP and New Zealand’s
high-productivity motor vehicles). These population are expected to continue, but
impacts are well illustrated by the flooding emissions from transport cannot if New
of the Rangitata River in late 2019, which Zealand is to meet its targets under the
effectively cut the South Island in two. Paris Agreement and the Climate Change
Response (Zero Carbon) Act. Transport
Longer term, climate change will increase emissions need to be de-coupled from
this risk and extreme weather events that economic and population growth.
compromise the network’s security are
expected to become more frequent. The
changing climate is expected to increase
the vulnerability of the network.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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Our people
Nine territorial authorities are The Canterbury population on
affected by this Plan, including: 30 June 2018 was estimated at
• Kaikōura District 620,830. These figures informed the
(population 4,060 or 0.65%) development of the Plan, however,
further growth has occurred
• Hurunui District
since then. Approximately 82%
(population 12,950 or 2.09%)
of Canterbury’s population live
• Waimakariri District in the Greater Christchurch area
(population 61,300 or 9.87%) that encompasses Christchurch
• Christchurch City City, Waimakariri District and
(population 383,800 or 61.82%) Selwyn District. Uneven population PICTON
• Selwyn District distribution is a core feature of NELSON
(population 63,300 or 10.2%) Canterbury.
BLENHEIM
• Ashburton District
(population 34,600 or 5.57%)
• Timaru District TASMAN MARLBOROUGH
(population 47,600 or 7.67%)
• Mackenzie District
(population 5,100 or 0.82%) GREYMOUTH
• Waimate District HURUNUI DISTRICT
KAIKŌURA
(population 8,120 or 1.31%) KAIKŌURA DISTRICT
WEST
SELWYN DISTRICT COAST
WAIMAKARIRI DISTRICT
ASHBURTON DISTRICT CHRISTCHURCH DISTRICT
CANTERBURY
QUEENSTOWN
CHRISTCHURCH
TIMARU DISTRICT
MACKENZIE DISTRICT
TIMARU
MILFORD SOUND
WAIMATE
DISTRICT
Legend
CONNECTIONS
OTAGO
Nationally significant
Regionally significant
SOUTHLAND
DUNEDIN
KEY FLOWS
Freight & Tourism
Alternate route from SH1
Rail
International & domestic airport
INVERCARGILL Main sea port
Freight Hubs
Visitor DestinationsEnvironment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
15
Ngāi Tahu are tangata whenua in In the 2018 Census, residents in the
Canterbury. The region is home to region identified themselves as:
10 Ngāi Tahu papatipu rūnanga.
• Arowhenua
• Kaikōura
• Koukourārata
• Moeraki
• Ngāi Tūāhuriri
• Ōnuku
• Rāpaki
• Taumutu
• Waihao
• Wairewa
82 % European
Te Rūnanga o Kaikōura
9% Māori
3% Pacific
11% Asian
1% Middle Eastern/Latin
Te Ngāi Tūāhuriri Rūnanga American/African
Te Hapū Ngāti Wheke (Rāpaki) Te Rūnanga o Koukourārata 1% Other
Wairewa Rūnanga
Te Taumutu Rūnanga Ōnuku Rūnanga
Totals will not add up to 100% as people may belong to more
than one ethnic group.
Te Rūnanga o Arowhenua
Te Rūnanga o Waihao
Te Rūnanga o MoerakiEnvironment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
16
Expected growth Christchurch area, where the majority of
the population growth for the region is
Canterbury is a fast-growing area of the projected to occur.
country, with several of our districts
leading population growth in New Freight volumes are also expected to
83000
Zealand. Selwyn District is the second grow in Canterbury. The 2019 South
61300
fastest-growing territorial authority in Island Freight Study reported that freight
New Zealand, growing by 6.3% between volumes in the region are expected to
2006 and 2018. Waimakariri District increase from 40.3m tonnes in 2017
(3.5%) and Mackenzie District (3.2%) to 61.1m tonnes in 2042 – an increase
WAIMAKARIRI
experienced average annual population of 52%. The majority of this increase
DISTRICT
increases greater than either the was expected to be in road freight and
463500 national or regional averages between therefore place increasing strain on the
383800 Census 2013 and Census 2018. transport network in Canterbury and
also the rest of the South Island. Other
Stats NZ’s 2048 population projections sources of traffic, such as tourism, are
for the region show that Canterbury’s expected to continue to grow too
population is expected to reach around long term, after the impacts of COVID-19
CHRISTCHURCH 778,500, an increase of around 158,000 have waned.
CITY
people3. It is unknown what impact
COVID-19 will have on these projections. There will be other substantial changes
106500
over the next 30 years; much as 2021
63300
Most of this growth is projected to is very different to 1991, we expect that
occur in Greater Christchurch, with 2051 will be substantially different to
Waimakariri District growing by 21,700 now. The transition to a low carbon
people (a 35% increase), Selwyn District economy and increased automation,
SELWYN growing by around 43,200 people (a for example, will change what gets
DISTRICT
68% increase) and Christchurch City produced (and therefore freighted)
growing by around 79,700 people (a in Canterbury and how people travel
34600
41900 21% increase). Ashburton, Mackenzie to work and study. And, as noted
and Hurunui are also projected to above, climate change will increase
grow moderately, by around 7,300 the resilience challenges facing the
people (21%), 1,500 people (29%) and transport network and elsewhere.
1,950 people (15%), respectively. The
ASHBURTON populations in the other Canterbury Regardless of the changes to the
DISTRICT shape of Canterbury in the future, the
districts are projected to stay roughly
their current size. transport network will still be a critical
part of the region’s and the nation’s
12950 14900
This significant population growth infrastructure. In 30 years’ time there
will see more people making more will still be a need for a sustainable
trips across the transport network. and resilient transport network that
This growth is a key driver of the need can move people and freight safely
HURUNUI to invest in the transport system – and efficiently. This need has shaped
DISTRICT
steps must be taken now to minimise the 30-year vision for Canterbury’s
increased traffic volumes that transport network expressed in this
accompany population growth. Without RLTP: to provide all transport users with
5100 6600
significant investment and effective sustainable options that move people
transport choices, there will be more and freight around and through our
congestion, longer journey times and an region in a safe and efficient way that
increase in vehicle emissions. This will enables us to be responsive to future
be particularly evident in the greater challenges.
MACKENZIE
DISTRICT
2018 2048
StatsNZ subnational population projections (2018 base) 2018-2048 (accessed 17 May 2021 from NZ.Stat)
3Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
17
Transport systems
This section provides a Road
high-level overview of the
key transport systems’ Canterbury has 1,330km of State Highways
contribution to the and 14,636km of local roads. These roads have
network in Canterbury: been established over generations to provide
access to rural land, visitor destinations and
Road small and large settlements. These networks
are a mix of sealed and unsealed roads (38%
Public transport of the network is unsealed), mainly with
two lanes but in busier urban centres like
Christchurch, Ashburton and Timaru some of
Cycleways and the roads are four lanes to manage volumes
active transport efficiently and safely.
State Highway 1 provides the main north-south
Rail link. State Highways 7 and 73 link Canterbury
to the West Coast. Other key links are State
Highway 79, now the busiest route between
Air Christchurch and Fairlie, and State Highway
8, which carries visitors and freight to Central
Sea Otago and Queenstown.
LENGTH OF LENGTH OF
AREA
SEALED ROADS UNSEALED ROADS
km % km %
Kaikōura 83.6 0.8% 100.9 1.7%
Hurunui 620.5 6.2% 840.8 13.8%
Waimakariri 989.5 9.9% 607.2 10.0%
Christchurch 2074.3 20.8% 346.7 5.7%
Selwyn 1516.9 15.2% 1122.8 18.5%
Ashburton 1512.0 15.2% 1101.7 18.1%
Timaru 972.8 9.8% 749.7 12.3%
Mackenzie 223.1 2.2% 517.8 8.5%
Waimate 645.6 6.5% 693.1 11.4%
State highways 1331.8 13.4% 0.0 0.0%
Total 9970.1 6080.7Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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Cycleways and active Public transport
transport There are three key public transport systems
Transport is an important determinant of operating in Canterbury.
health. Increasing physical activity levels
MyWay is the and making active transport modes a safer,
Urban public transport services operate in
first service of its more accessible travel option can have a
Greater Christchurch and Timaru. In 2021
kind to operate the Greater Christchurch system has 250
profound impact on population health and buses and one ferry, together completing
in New Zealand. wellbeing, as well as reducing transport
Passengers around 2,000 trips each workday. There
emissions. are 26 urban bus routes that carry around
request a vehicle 1 million passengers each month. Delivery
using an app, A significant number of urban roads have
bicycle facilities within the same corridor, of public transport is collaborative across
website or by the four councils in Greater Christchurch.
either beside traffic lanes or separated
phoning and Christchurch City Council, Waimakariri
from them, alongside footpaths. Greater
specifying their Christchurch, for example, has invested District Council and Selwyn District Council
start and end heavily in cycleways, cycle paths and shared lead the management of public transport
points. paths following the Canterbury earthquakes infrastructure, parking assets, planning
and now enjoys over 50km of them. and policy within their jurisdictions, while
Environment Canterbury is the primary
These paths, together with footpaths, investor in public transport operations
play an important role in facilitating active and administers public transport service
transport; walking, cycling and the use of improvements.
micro-mobility devices such as e-scooters.
At the 2018 census, 4% of Cantabrians In 2020-2021, Timaru trialled an on-demand
public transport service – MyWay – which
chose to cycle to work and 4% walked or
has replaced much of the former scheduled,
jogged. $183m of investment in walking and
fixed route network. It is the first service of its
cycling is proposed through this RLTP.
kind to operate in New Zealand. Passengers
While common in urban areas, cycle paths request a vehicle using an app, website or by
and even footpaths are less common in phoning and specifying their start and end
rural areas. This can be a significant barrier points. The system identifies a nearby ‘virtual’
to the uptake of cycling and other types of bus stop (or an existing bus stop) for pick-up
active transport in rural areas. However, and drop-off, providing a much more flexible
there are many low cost, low risk initiatives service than traditional fixed-route services.
underway in the region to support an
Outside of Greater Christchurch and
increase in walking and cycling in rural
Timaru, rural public transport, in the form
areas. One major initiative in the RLTP as
of community vehicle trusts, has emerged.
an inter-regionally significant project is
These community-led initiatives make
the development of the Whale Trail across a vehicle available for booking and are
Kaikōura and Marlborough. partially supported, alongside fares,
by the regional council through a local rate.
Finally, subsidised door-to-door transport
services are available for people with
mobility impairments through the Total
Mobility scheme. The scheme is available to
people in Greater Christchurch, Ashburton,
Timaru and Waimate. Eligible individuals are
entitled to discounts that give them 50% off
transport fares with approved operators, up
to a maximum of $35 per trip.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
19
Public transport futures
The Greater Christchurch Partnership is The third package – Mass Rapid Transit – is
considering what further investments a transformational package that lays the
should be made to this system through the foundation for significant urban development
Public Transport Futures programme. This and land use changes and transformation
is in response to high growth and changing in transport accessibility. In 2021, work
travel demand in the sub-region, for which a is underway to identify and protect the
successful, evolving public transport network corridors and to enable policy changes that
has major and lasting benefits. support intensification and regeneration in
key areas.
The Public Transport Futures programme
consists of three packages: Foundations, The implementation of MRT is currently mode
Rest of Network, and Mass Rapid Transit agnostic and it is anticipated that the MRT
(MRT). The first two packages outline the business case will determine the timing
priority opportunity for improving Greater and methodology for MRT implementation.
Christchurch’s current public transport
network. The development of these two
packages was finished in late 2020; they
are now in the implementation phase with
Greater Christchurch councils’ Long-Term
Plans deciding the appropriate phasing
and timing of investment.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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Rail Air
Canterbury’s rail network plays an Air transport is critical for both tourism
important transportation role in Canterbury and the export of certain goods –
– especially for freight. The region has particularly high-value exports such as
around 650km of rail network, providing live seafood. Air links are also critical for
links to Picton along the Main North Line, receiving time-sensitive imports, such as
Dunedin and Invercargill along the Main certain medications.
South Line, and the West Coast along the
Midland Line. These lines are mainly used Christchurch International Airport is the
for moving containerised freight and logs. region’s largest airport and the nation’s
second largest. In normal circumstances
Tourism passenger services operate it operates numerous national, short-
between Greymouth and Christchurch haul and long-haul flights a day. The
and Picton and Christchurch (operating airport provides the South Island’s only
as the TranzAlpine and Coastal Pacific, direct access to long-haul destinations.
respectively). These form an important Canterbury also has a second airport,
part of the tourism landscape for the South Richard Pearse Airport in Timaru, which
Island, helping to funnel travellers from is owned by the Timaru District Council.
Christchurch to other parts of the country. The airport provides domestic/regional
services only.
Canterbury does not currently have
any commuter or general passenger
rail services.
Main North Line, South of Kaikōura.
Photo: KiwiRailEnvironment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
21
Sea
Lyttelton Port of Christchurch (LPC) $4.75b, and there was a significant 16%
provides handling and stevedoring services increase in export volumes to $5.63b, a
for containers and bulk cargoes. lift of nearly $800m. Container volume
was up nearly 3% to 437,413 Twenty Foot
The port anticipates cargo volumes Equivalent Units (TEU).
doubling over the next two decades,
after having doubled in the last decade. LPC operates two inland port sites in
Christchurch at Woolston and Rolleston.
2010 PrimePort (Port of Timaru) is Canterbury’s
second port. It handles container freight
and acts as a feeder to the Port of
2020 Tauranga. The facility is jointly owned by
Port of Tauranga and Port of Timaru. Bulk
cargo volumes reached 1.73m tonnes in
2040 2019, despite a 9% decrease in ship visits
to 436 over the year. Log exports and
fertiliser imports drove the increase in
The port handles a wide range of cargo for trade. PrimePort also operates an inland
many customers, from fishing and grain port in Rolleston.
to cement, cars and coal exports. In 2019,
Lyttelton’s import volumes grew to
Lyttelton Port, ChristchurchEnvironment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
22
Transport and land
use integration
The transport system is inextricably linked reliance on private vehicles, and provide
with land use. Land development, or associated social, environmental and
changes in how land is used, generates economic benefits to maximise wellbeing.
demand in the transport system – but The Government Urban Growth Agenda
development and land use changes are and National Policy Statement on Urban
often reliant on adequate supply from Development impact how we plan in urban
the system. Moreover, some transport areas for the future.
challenges, such as congestion and carbon
emissions, are sometimes better solved by In rural environments the interrelationship
better land use planning, urban planning between land use and transport systems
and policy settings, rather than transport plays out differently. Changes to land use,
infrastructure investment. such as a farm conversion, can have a
significant impact on the use of roads – in
Much of the region was designed with a terms of both volume and type of vehicle.
primary focus on private vehicle travel. A sheep and beef farm converting to
Developments were placed far away from dairy would likely result in an increase in
core public transport routes and designed trucks during the milking season, while a
in ways that do not encourage active conversion to forestry may result in fewer
modes (such as cul-de-sacs and curvilinear trucks (until the plantation is harvested).
streets, which reduce the number of
destinations that can be reached in a The location of a development also
given amount of time walking). influences feasible transport modes. A
major processing plant or an inland port
The Canterbury earthquakes serve to placed near to a rail line could look to use
illustrate the impact land use changes the rail network instead of the roading
can have on transport systems. Post- network. A development placed away
earthquake, public transport patronage from a rail line is unlikely to have rail as a
levels dropped significantly due to the shift feasible option due to the costs that would
of residents and businesses away from the be involved.
Central City – this dispersal made it less
likely that the network would be able to
effectively transport a person to where they
needed to go.
A key consideration for the Greater
Christchurch Partnership is the
development of a well-functioning urban
environment that enables the integration of
land use and transport planning to ensure
the creation of safe, accessible and liveable
urban areas. This includes the alignment
of access to a range of transport modes
and a joined-up network to reduce theEnvironment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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Policy context
This section describes the key the development of Council long-term
statutes and policy documents plans and infrastructure strategies, where
that have informed the RLTP the local funding share for transport network
strategic framework, 10-year investment is identified alongside other local
transport priorities and investment priorities. The LGA also sets out
programme as it has been consultation principles that are relevant for
developed. development of regional land transport plans.
Core statutes The Climate Change Response Act 2002
was amended by the Climate Change
The Land Transport Management Act Response (Zero Carbon) Amendment Bill
(LTMA) 2003 is the principle statute in 2019. Key provisions include setting
guiding land transport planning and a target to reduce net carbon emissions
funding in New Zealand. The purpose of the to zero by 2050. The transport sector
Act is to contribute to the aim of achieving will have a key role in contributing to
an affordable, integrated, safe, responsive achieving this target and the direction
and sustainable land transport system. The set at a national level has informed the
LTMA sets out the core requirements of development of this RLTP.
regional land transport plans and regional
public transport plans for every region. The Resource Management system
reform programme (RM reform) is
The Resource Management Act an ambitious plan to repeal the RMA
(RMA) 1991 aims to promote the and replace it with three new pieces
sustainable management of natural of legislation; a Natural and Built
and physical resources and provides Environments Act (NBA), a Strategic
the statutory framework for land use Planning Act (SPA) and a Climate Change
planning and the development of regional Adaptation Act (CAA). The objectives of
policy statements, regional plans and the reform are to better protect and restore
district plans. Land use planning can the environment, to be more enabling of
have a significant influence on travel development within natural limits,
choice and transport network demand, to greater recognise the principles of Te
and transport network investment can Tiriti o Waitangi, to better mitigate and
likewise shape land use patterns within a adapt to climate change, and to improve
region. This may be particularly the case in the efficiency and effectiveness of New
Greater Christchurch due to the recently Zealand’s resource management system.
released National Policy Statement on
Urban Development 2020. The Canterbury The reform programme aims to have the
Regional Transport Committee must NBA passed into law by the end of 2022 and
also take the Canterbury Regional Policy the SPA and CAA in 2023. Implementation
Statement into account during development and transition to the new system will
of the Canterbury RLTP. then be phased over several years. At this
point it is unclear how the new resource
The Local Government Act (LGA) management system will align and interact
2002 guides local government planning with the transport planning and funding
and the way Councils carry out their processes set out in the LTMA, including
functions. It includes provisions guiding the activities of this RLTP.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
24
Other national policy context
The Transport Outcomes Framework
takes a strategic, long-term, and integrated
approach to transport and makes clear what
Government is aiming to achieve through the
transport system in the long term. The five
outcomes are:
• Inclusive access: enabling all
people to participate in society
through access to social and
economic opportunities, such as
work, education, and healthcare
• Healthy and safe people:
protecting people from transport-
related injuries and harmful
pollution, and making active
travel an attractive option
• Environmental sustainability:
transitioning to net zero carbon
emissions, and maintaining or
improving biodiversity, water
quality, and air quality
• Resilience and security:
minimising and managing the
risks from natural and human-
made hazards, anticipating and
adapting to emerging threats,
and recovering effectively from
disruptive events
• Economic prosperity:
encouraging economic activity
via local, regional, and
international connections, with
efficient movements of people
and products.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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These outcomes are inter-related. To make network and road safety decisions, as
a positive contribution across the five well as targets and outcomes for 2030. It
outcomes, the transport system also needs to sets out the five areas of focus for the next
be integrated with land use planning, urban decade: infrastructure improvements and
development, and regional development speed management; vehicle safety; work-
strategies. The draft Canterbury RLTP has related road safety; road user choices; and
included these outcomes as the foundation system management.
of its strategic framework, to align with this
enduring long-term direction. The New Zealand Rail Plan outlines the
Government’s vision and priorities for
The Land Transport Management Act (LTMA rail. The vision for the rail network in
2003) requires the Minister of Transport to New Zealand is to provide modern transit
issue the Government Policy Statement systems in our largest cities, and to enable
on Land Transport (GPS) every three increasing volumes of freight to be moved
years. The GPS sets out the Government’s off the roads and onto rail. The investment
priorities for expenditure from the National priorities identified in the plan are: investing
Land Transport Fund over a 10-year period, in the national network to support growing
and how funding should be allocated. freight demand; investing in metropolitan
Regional land transport plans must be rail in Auckland and Wellington; and
consistent with the GPS, and Waka Kotahi enhancing inter-regional services. A new
must give effect to it with regards to land planning and funding framework for rail has
transport planning and funding. recently been introduced to better integrate
rail into the land transport system. The
The GPS 2021 outlines four strategic new framework allows rail to compete for
priorities for land transport: Safety, funding from the National Land Transport
Better Transport Options, Improving Fund alongside local road and state highway
Freight Connections, and Climate Change. activities, putting rail on a more equal
Arataki is Waka Kotahi’s 10-year view of what footing with other land transport modes.
is needed to deliver on the Government’s The Road Efficiency Group partnership is
current priorities and long-term objectives for evolving the current national classification
the land transport system. Arataki outlines system for roads (ONRC) to the One
the context for change, the step changes Network Framework (ONF). It will
...the transport in existing responses that it believes are introduce the importance of adjacent land
system also needed, and the levers Waka Kotahi will use, use and place functions in defining how
needs to be in partnership with others, to shape change. the network should look and feel at any
integrated It includes national, pan-regional and location. ONF provides an opportunity
with land use regional summaries. for more integrated delivery of regional
planning, urban The focus of Arataki in Canterbury is to outcomes. This is achieved through the
development, help create a safer, more resilient transport incorporation of end-to-end business
and regional system, that supports the movement of processes to support transport planning
development people and goods. In Greater Christchurch, through to the delivery of agreed outcomes.
strategies. the focus is to work with partners to ensure The Setting of Speed Limits Rule
future growth and the land transport Waka Kotahi has proposed a new speed
system are better integrated to support management planning framework to decide
changing community needs and delivery of speed limits on roads within each region.
the five step changes. Regional Speed Management Plans will be
Road to Zero – NZ Road Safety Strategy coordinated and consulted on at a regional
2020–2030 articulates the Government’s level once every three years. Road controlling
vision ‘a New Zealand where no one is authorities will no longer be required to make
killed or seriously injured in road crashes’, a bylaw or gazette to set a speed. Regional
guiding principles for design of the road transport committees will have new roles and
responsibilities in this process.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
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Local and regional
policy context
The Canterbury Regional Policy Top priorities, over the next 10 years, are:
Statement (CRPS) provides an overview
of the resource management issues in the • Improving our environment:
Canterbury region, and the objectives, Increase the number of people
policies and methods to achieve integrated using public transport and
management of natural and physical reduce the carbon footprint of
resources. These methods include public transport by shifting to
directions for provisions in district and zero emission vehicles
regional plans. The policy statement • Growing patronage:
became operative on 15 January 2013. Greater priority on high-
The CRPS gives direction to and is
implemented through Council District Plans + demand routes and a high-
quality travel experience. As
and Environment Canterbury’s Regional Plan. the population grows, rapid
transit may be added to
Our Space 2018-2048 is the document
improve travel times along key
that outlines land use and development
corridors to and from the city
proposals to ensure there is sufficient
development capacity for housing • Accessibility: Provide more
and business growth across Greater frequent public transport
Christchurch to 2048. It was developed services so that more people
by the Greater Christchurch Partnership, can get to workplaces,
which has worked collaboratively for more shopping, education and
than a decade on planning and managing recreation within 30 minutes
urban growth and development across
• Innovation: Trial and introduce
Greater Christchurch (Christchurch City,
new transport and technology
Waimakariri District and Selwyn District).
initiatives with lower
This Partnership brings together the
environmental impacts, greater
leadership roles of local government, Te
safety, and lower costs
Rūnanga o Ngāi Tahu, the district health
board, and Government agencies, and • Affordability: Expand
is guided by the vision, principles and the network at a rate the
strategic goals outlined in the Urban community can afford, with
Development Strategy (UDS). cost effective new services and
infrastructure that is financially
A key challenge within Our Space that sustainable for ratepayers.
directly impacts the RLTP centres on how
urban areas grow, through redevelopment Long-Term Plans are developed by
and new greenfield subdivisions, without Environment Canterbury and local
increasing the traffic congestion that would Councils every three years, with a 10-year
occur if current travel patterns do not outlook. They are a key planning tool for a
evolve as well. Council, describing the activities and the
community outcomes it aims to achieve,
The Canterbury Regional Public Transport
which transport systems need to support.
Plan 2018-28 sets out the public transport
system that Environment Canterbury, in
partnership with local councils in Greater
Christchurch and Timaru, proposes to fund
and operate.Environment Canterbury Regional Land Transport Plan 2021–31
Strategic Context
27
Long-Term Plans also identify transport The Greater Christchurch Mode Shift
activities that will feed into the RLTP for Plan is the first document to describe
funding from the NLTF. the sub-region’s integrated and cohesive
approach to delivering mode shift.
The Canterbury Mayoral Forum’s Plan It responds to a request from the
for Canterbury contributes to the Government for all high-growth urban
Government’s wellbeing aspirations for areas to produce regional mode
New Zealand. The vision of the Mayoral shift plans.
Forum for Canterbury is sustainable
development with shared prosperity, Mode shift entails encouraging people
resilient communities and proud identity. using single occupancy vehicles
Priorities and objectives relevant to the (one person per vehicle) to use
RLTP include shared economic prosperity, other forms of travel such as active
fewer trucks on roads (optimising transport and public transport, or rideshare,
of long-distance freight by rail and coastal to establish a foundation for future
shipping), and climate change mitigation transport technologies. Travel demand
and adaption. management encompasses mode shift
but also considers a wider range of
The Canterbury Mayoral Forum Plan for behavioural change, including the time
Canterbury (2020-2022) has consistently that people travel (peak/off peak), route
advocated for a multi-modal transport choice, and ways to reduce the need to
network that increases the region’s travel in the first instance.
resilience to natural disasters and
ensures the efficient movement of freight The Mode Shift Plan provides a baseline
within Canterbury and our national and of information that Greater Christchurch
international markets. currently holds. It recognises that there
is more work to do and the Partnership
Greater Christchurch 2050 will describe has aspirations to move Greater
the kind of place the sub-region should be Christchurch to respond positively
for future generations, and the actions that to meeting the challenges of climate
are needed over the next 30 years to make change and moving towards a net zero
it happen. It is being undertaken by the carbon economy. This Plan represents
Greater Christchurch Partnership. Decisions a firm first step for transport and can
made through Greater Christchurch 2050 be fed into the wider strategic planning
will help inform the development of of Greater Christchurch 2050 to form a
long-term work programmes and budgets more holistic plan for the future.
for partners in the Greater Christchurch
Partnership and will ensure the community The Plan will be valuable when
and economy are best placed to recover communicating with the Government
from the impacts of COVID-19. This work and wider stakeholders, and is designed
will also help reposition the urban area for to underpin and inform future planning
a more prosperous, inclusive, sustainable and investment decisions. Waka Kotahi
and resilient future. will recognise the Plan as if it were
a strategic case for any subsequent
business cases or funding.You can also read
