DRAFT Auckland Regional Land Transport Plan 2021-2031
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DRAFT Auckland Regional Land Transport Plan 2021-2031 R AFT D
DRAFT Auckland Regional Land Transport Plan 2021–2031
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DRAFT Auckland Regional Land Transport Plan 2021–2031
Contents
01. Context 3
02. Purpose and scope 11
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03. Funding 17
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04.
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Auckland’s transport challenges 21
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05. Responding to Auckland’s challenges 35
06. Inter-regional priorities 63
07. Measuring outcomes 69
08. Funding and expenditure 77
09. Consultation and feedback 83
10. Appendices (See supporting document)
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DRAFT Auckland Regional Land Transport Plan 2021–2031
01.
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Context D
Auckland, Tāmaki Makaurau, is home to 1.7 million people
– one third of all New Zealanders – and is forecast to grow
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by another 260,000 over the next decade, reaching around
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2.4 million by 2050. This rapid population growth presents
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a number of challenges in our quest to be a liveable,
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climate-friendly and productive city.
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Growth represents opportunity but Evidence tells us that Aucklanders Ultimately Auckland needs a
when combined with Auckland’s like the improved experience, well-coordinated and integrated
challenging natural setting and particularly on rapid and frequent approach to help people and
urban form the outcome has bus and train services where the freight get around quickly and
been increased congestion and number of trips has almost doubled safely – one that significantly
limited connectivity. When we in 10 years. In 2019, Tāmaki reduces harm to the environment
add in housing affordability, a Makaurau achieved a milestone and where there are multiple
global climate emergency and with more than 100 million public transport choices.
the Covid-19 health pandemic, transport boardings made – the
This draft Auckland Regional Land
Auckland has a lot to contend with. first time that number had been
Transport Plan 2021-2031 (2021
achieved since the early 1950s, but
Over the past 20 years, Auckland’s RLTP) outlines our proposed
we need many more Aucklanders
civic leaders and Central response to these challenges
to access better transport choices.
Government have significantly over the next 10 years.
boosted investment in transport More than a third of Aucklanders
and significant effort has gone into live within 500 metres of a frequent
providing Aucklanders with more public transport service, yet the
choices about how they travel majority of us still choose to use
around the region. A committed our private motor vehicle for most
effort has been made to improve of our trips.
bus, train and ferry services and
develop better infrastructure for
those who walk and want to use
a bike.
3
DRAFT Auckland Regional Land Transport Plan 2021–2031
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The big picture – what has changed Recently, the Climate Change Commission (CCC) issued
the 2021 Draft Advice for Consultation. Transport
since the last RLTP features strongly with advice to decarbonise the light
While it’s only been three years, a lot has happened that vehicle fleet, step up to challenging growth targets for
makes updating the Auckland Regional Land Transport public transport, walking and cycling, and reduce the
Plan 2018 -2028 (2018 RLTP) necessary. need to travel through remote working practices.
The 2018 RLTP represented a step-change in transport In 2019, an additional 16,600 cars (330 per week)
investment for Aucklanders, with a transformational were registered in Auckland, adding to congestion,
programme to tackle existing and future transport contributing to increased emissions, clogging freight
problems. The introduction of a Regional Fuel Tax (RFT) movements and costing time and money.
and a $28 billion package to deliver 14 large-scale The road transport system contributes to 38.5 per
infrastructure projects provided the region with certainty cent of Auckland’s emissions and the final advice
and sparked accelerated momentum. and Central Government’s response to it is critical
to tackling climate change.
Focus on climate
Aucklanders tell us they are supportive of tackling
Late 2019 Auckland Council declared a climate
climate change yet the way to successfully execute
emergency, with strong pledges to introduce
the transition is both complex and unclear. It must
improved fuel emissions standards and accelerate the
be tackled using both a systems and evidence-based
decarbonisation of Auckland’s public transport bus
approach, and results in equitable outcomes.
fleet. In July 2020 the council unanimously passed the
Te Tāruke-ā-Tāwhiri: Auckland’s Climate Plan, which
boldly aims to halve Auckland’s greenhouse gas (GHG)
emissions by 2030. The plan’s main transport actions are
to encourage mode switch to public transport and active
modes, decarbonise AT-contracted buses, and advocate
to Central Government for policies to support lower and
zero-emission vehicles.
Context 4
DRAFT Auckland Regional Land Transport Plan 2021–2031
Context cont.
The Impact of Covid-19 Review of Auckland Council
The team of five million has done a great job to date Controlled Organisations
managing the risks of Covid-19. As a result the economic In 2020 the Independent Review of Auckland
impacts have been less than many initially anticipated. Council Controlled Organisations (CCOs) highlighted
The transport response has also been very good when opportunities to improve responsiveness as well as the
compared with international comparators1 and as a delivery of minor projects. Another key recommendation
consequence use of buses, trains and ferries has been from the review was that Auckland Council and AT work
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much better than almost all other international cities2. with the Ministry of Transport (MoT) and Waka Kotahi
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But Covid-19 has changed the way we work. The rise NZ Transport Agency (Waka Kotahi) to streamline
of office meeting software such as ‘Zoom’ and ‘Teams’, funding processes. This goes to the heart of delivering
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has significantly impacted transport in Auckland, with the transport system Auckland needs at greater pace.
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major structural shifts in the need to travel for work
purposes. People travelling on buses, trains and ferries Transport system progress
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less frequently, with some returning to the perceived
Safety
‘safety’ of private motor vehicles.3 As a result, Covid-19
has severely impacted key cash revenue streams in Consultation on the draft 2018 RLTP attracted
the last year. As a result, Auckland Transport (AT) has 18,091 submissions and showed that Aucklanders
had to rely on greater funding support from Auckland were firmly behind greater investment to make the
Council and the Covid-19 Response and Recovery roading network safer. While much more needs to be
Fund to maintain services, and top-up reduced capital done, this investment has helped to reduce the number
expenditure through the ‘shovel-ready’ programme. of deaths and serious injuries (DSI) across Auckland’s
transport system.
Covid-19 has also impacted some parts of our
community harder bringing social equity into greater In 2017, 813 people died or were seriously injured on
focus. It’s raised the need for a continued focus on Auckland roads. Provisional numbers for 2020 show a
sustainable procurement practices and a heightened continued decline since then, with 539 DSI for the year
response to Māori, Pasifika and low income communities. ending 31 December 2020. This represents a 33.7 per
cent reduction, minimising the burden of road trauma
The economic response to Covid-19, has led to lower
on whanau and saving hundreds of millions of dollars
interest rates fueling house prices. Transport through
in socio-economic costs to New Zealand.
the provision of supporting services can be an enabler
of more housing supply and can help shape the type of This programme is showing promising early signs but
housing that is built. In 2021 housing affordability and there is still more opportunity to do better. Auckland
funding to provide roads for light vehicles, freight, buses continues to have one of the highest rates of pedestrian,
and people on bikes, as well as train and ferry services cyclist and motorcyclist road deaths in the world and,
to support housing growth at the scale required, remain following the second Covid-19 lockdown in Tāmaki
challenges to be solved. Makaurau with less traffic on our roads, we saw the
average speeds at which people travel in their cars
increase, along with a significant uplift in DSI. Eleven
people died during the last two months of 2020 and
a further seven people died on Auckland’s road
network in February 2021 alone.
1
AT’s Covid-19 Response: A Review, January 2021, Draft for Discussion – An independent review completed by PwC
2
Covid-19 Ridership Evolution, March 17, 2021 pepared by UITP
3
AT RLTP Public Preferences Study, January 2021
5 Context
DRAFT Auckland Regional Land Transport Plan 2021–2031
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Rapid and frequent train and bus services
Aucklanders have voted with their feet since the
Britomart Train Station opened in 2003 and the Northern
Busway opened in 2008. Use of these rapid transit
A third track between Wiri and Westfield is also
progressing. This will allow express train services
between the south and the city centre and unlock
more freight capacity from the Ports of Auckland
to distribution centres throughout Auckland and
networks has substantially increased, indicating that
other regions.
rapid and frequent public transport is critical. Annual
train patronage increased 755 per cent (from 2.5 Changes to rail legislation will also benefit Auckland by
million in 2003 to 21.4 million in 2019) while annual bus aiming to address longstanding rail funding issues and
patronage increased from 43.6 million in 2008 to 73.1 arrest the ‘managed decline’ of rail infrastructure.
million in 2019. As a result of broad scale effort, over
$7.5 billion of new rapid transit projects are now either
in construction or are in detailed design.
Since 2018, more electric trains have been delivered
and more pieces of the Rapid Transit Network (RTN) are
progressing: construction of the transformational City
Rail Link (CRL), Eastern Busway, Puhinui Interchange to
Auckland International Airport rapid bus services and
Northern Busway extensions, as well as design of the
Northwest Bus Improvements along State Highway 16
and electrification of the rail network from Papakura
to Pukekohe.
Photo of Auckland’s Nelson Street motorway off-ramp during Covid Lockdown 1 courtesy of Nigel Horrocks
Context 6
DRAFT Auckland Regional Land Transport Plan 2021–2031
Context cont.
The bus and ferry network Safe cycleway infrastructure and shared paths
Auckland’s modern bus fleet does the heavy-lifting in New safe cycleway infrastructure and shared paths have
terms of public transport services. Coupled with the been built and progress is being made on the remaining
rollout of more dedicated bus and transit lanes that have elements of the Urban Cycleway Programme such as Te
increased productivity of key arterial roads, a regionwide Ara Ki Uta Ki Tai (Glen Innes to Tāmaki Shared Path).
new bus network was rolled out in 2018, it doubled
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The following projects are currently progressing:
the number of Aucklanders who have nearby access
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to frequent bus services. Herne Bay to Westhaven Cycleway
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Early steps have also been taken to decarbonise the 2020/21
Victoria Street Cycleway
Completed
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bus fleet. Battery electric buses have been trialled and
new electric fleets commissioned on Waikehe Island, Murphys Road Corridor Improvements
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on services between Puhinui and the Airport, and are Northcote Safe Routes
soon to be introduced on City Link services running Cycleway - Bridge section
2020/21
between Karangahape Road and Wynyard Quarter via
To be Karangahape Road Streetscapes Upgrade
Queen Street. completed:
Tāmaki Drive Cycleway and Flood
A smaller but still important transport task is undertaken Resilience Project - Separable Portion 1
by ferries. The new ferry basin being built in Downtown
Auckland will be the jewel in the crown of the ferry Eastern Busway Stage 1 Shared Path
network. In the mid to longer-term we believe further New Lynn to Avondale Shared User Path
improvements for ferry customers are an important part
Glen Innes to Tāmaki Drive Shared Path
of Auckland’s transport future. 2021/22:
- Section 2 (delivered by Waka Kotahi)
Planned
Fare initiatives and promotions Links to Glen Innes Cycleway - Package 1
Investment in new infrastructure and services has been Tāmaki Drive Cycleway -
supported by new public transport (PT) fare initiatives Separable Portion 2
such as Child Fare Free Weekends, discounted off-peak
fares and ferry fare integration. Waitemata Safe Routes
Cycleway - Section 1
AT has repeated the free public transport initiatives first
2022/23: Great North Road Cycleway
introduced in 2018: The ‘Home Free’ promotion held
on the last Friday evening before Christmas, promoting Planned Links to Glen Innes Cycleway - Package 2a
PT and, with the support of the New Zealand Police,
Glen Innes to Tāmaki Drive
discouraging drink-driving, was repeated in 2019 Shared path - Section 4
and 2020.
Waitemata Safe Routes
Cycleway - Section 2
2023/24:
Planned Links to Glen Innes Cycleway - Package 2b
Point Chevalier to Westmere Cycleway
There has been a 16 per cent increase in trips on bikes
since 2016 and this will accelerate once the Urban
Cycleways Programme (from the inner west to Glen
Innes, and the Northern Pathway cycling project from
Westhaven to Akoranga, near Takapuna) is completed.
7 Context
DRAFT Auckland Regional Land Transport Plan 2021–2031
Roading Over the last three years we’ve seen parts of the
construction industry struggle. It’s clear that New
Over the past three years there has been significant
Zealand needs a construction industry which is
capacity improvements on our state highways to the
financially sustainable and safe. Auckland is just one
northwest and south of Auckland. Similar improvements
of a cluster of cities in Australasia investing heavily in
are underway between Puhoi and Warkworth.
transport and hence, the way we procure, share risk and
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Roading optimisation projects including the introduction partner with industry is crucial to bringing this plan to life
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of transit and dynamic lanes (on Whangaparaoa and addressing the issues that are being tackled through
Road and Redoubt Road) have reduced travel times the Construction Accord.
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for locals and boosted productivity, and multi-modal
Looking to the future
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roading projects (such as Murphys Road, Medallion
Drive Link and Matakana Link Road) are help to unlock
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The experience we give customers, whether making a
housing developments.
trip in a car, in a truck, on a bike, bus, train, ferry or on
Congestion in some parts of the region is affecting foot, are at the heart of a successful transport system.
the productivity of the arterial roading network, which An efficient, safe, connected transport network is critical
impacts freight movements and private journeys. to shape land use, get everyone where they want to
Intersection improvements have been made at Great go, deal with freight and encourage more sustainable
South Road/Church Street, Ti Rakau Drive/Gossamer transport choices, as well as serving as a catalyst for
Drive, and Favona Road/Savill Drive. a more compact city.
In early 2020, Central Government announced the For the last 15 years transport agencies have worked
transfer of some RFT-funded projects and other projects to maintain a growing stock of existing and new
to the New Zealand Upgrade Programme (NZUP). The infrastructure. There is still more to come (including
programme brings large-scale investment forward additional Waitemata Habour connections and rapid
through Waka Kotahi in multi-modal roading projects transit) but funding is limited and decisions are required
such as the Mill Road corridor in the south (to provide in terms of priority projects.
resilience and enable housing development) and Penlink
New Zealanders are beginning to see the consequences
on the Whangaparaoa Peninsula, as well as the Northern
of existing infrastructure failing and are quickly
Pathway and new train stations in Franklin.
understanding it needs to be looked after. The 2020
Value for money and financial sustainability closure of the Auckland Harbour Bridge (which led
to significant reductions in lane capacity for close to
There has been a significant escalation in programme three weeks), rail track problems, and issues with water
costs. As well as land costs, which are quickly escalating, infrastructure have all highlighted the impact and
real effort has been made to ensure workers, such as disruption that can occur when assets are damaged by
bus drivers, enjoy wages and conditions which make weather or inadequate maintenance and renewals.
the industry attractive to work in. The demand for more
services over time will mean more front-line staff are We must look after transport assets on behalf of the
required to make our transport system work. region. Auckland does not have the same economies
of scale as some other like-minded cities, so a focus on
innovation, technology, value for money and integrated
planning is key to deliver what our people want.
Context 8
DRAFT Auckland Regional Land Transport Plan 2021–2031
Context cont.
This draft RLTP builds on the and the Northern Pathway, these Now more than ever, we need all
2018 plan, but seeks to speed programmes will deliver a step- those involved in setting the policy
up progress. It has a greater change and will all come on- and regulatory framework, whether
emphasis on looking after the stream in the first five years of this at a Central Government or local
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region’s transport assets, safety RLTP period. government level, to step up to
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and climate change. the some significant challenges
In the second half of the decade
in delivering an effective and
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The need for sustained investment a range of new programmes will
efficient transport system in the
in transport infrastructure, built gather momentum – projects and
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public interest. This needs to be
as soon as possible, is a top programmes such as Connected
done in a way which recognises
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priority. As underpinned by Communities, service-led
that the transport system of
Central Government in its Covid-19 improvements on the Airport to
Tāmaki Makaurau serves a diverse
response, there is also a real Botany rapid transit route, and
range of communities in what is
opportunity for infrastructure investment in renewals will really
New Zealand’s largest and fastest
works to generate jobs and come into focus.
growing region. What works in
help New Zealand recover from
The link between technology rural New Zealand may not be
Covid-19. Providing safe travel
and transport is more and more fit for purpose in Auckland and
choices for our residents and
obvious. Covid-19 highlighted the vice-versa.
visitors, and better accommodating
value of previous investments in
our daily lives and special events, There are a number of
AT HOP and the AT Mobile app for
is another. opportunities to bring transport
example, and we are increasingly
policy and regulation in line
Transport in Auckland over the seeing the role technology can play
with the needs of Auckland’s
next 10 years might be viewed as in making our roads safer (through
transport system. Whether it be
a decade of two halves. In the first the likes of red light cameras)
safety outcomes by improviding
half we plan to finish what is already and more productive (dynamic
the deterrence framework,
underway. There are some very big laning). E-scooters and e-bikes for
roading productivity outcomes
construction projects - the CRL, hire and car-sharing schemes are
and the existing ways in which
Eastern Busway, Northern Busway further evidence of how technology
Aucklanders pay for use of their
extension, Puhinui to the airport is enabling changes in the way
roads, parking or climate change,
and Matakana Link Road. KiwiRail we travel. Ongoing investment
our future transport regime must
is advancing with electrification of in technology with a focus on
look different.
rail services between Papakura and transport customers is an important
Pukekohe. A little further behind is piece of the puzzle in delivering a
interim bus improvements to the better transport system.
Northwest. Along with completion
of the Urban Cycleway Programme
9 ContextDRAFT Auckland Regional Land Transport Plan 2021–2031
For the first time this draft RLTP includes a
programme of activities targeted at policy
and regulatory interventions which will
provide Aucklanders with better outcomes
from their transport system.
Population growth and the reliance A better transport system depends The $31.4 billion ATAP 2021
Aucklanders have on their motor upon regulation and policy, and investment programme for
vehicles means it’s essential to have this draft RLTP outlines a proposed Auckland is historically significant
conversations with other agencies plan for policy advocacy and and substantial in the Covid-19
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about potential interventions to policy change. In many cases such impact context. So much, like CRL
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contribute to meeting Auckland change requires political assent, or the Eastern Busway, is already
and New Zealand’s climate change and so the plan is clear about where underway or core to the everyday
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targets. We are already investing in change must be driven from and activities to keeping Auckland
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low-emission buses, electric trains, the outcomes sought. It’s crucial moving. Having so much already
completing scheduled cycle, bus that the full range of tools is being in construction or well advanced
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and rail projects, creating low- used to deliver value for money for in project development is a good
emission vehicle zones, introducing ratepayers and taxpayers. thing – it’s a sign of progress. On
charging stations for electric the downside it leaves limited room
The primary purpose of this draft
vehicles (EVs), and promoting for new or additional investments.
RLTP is to inform Aucklanders
cycling and walking. However there
about the intended programme After operations, maintenance,
is the potential to achieve so much
of activities and seek feedback renewals, committed and essential
more with financial incentives to
on whether it best meets current capital works, $2.1 billion is
purchase EVs, the increased use of
needs and future aspirations in the available for new investments to
biofuels, and improved vehicle fuel-
context of the resources available, deliver on the transport outcomes
efficiency standard regulations)
according to objectives defined in Aucklanders want. Any new
There have been clear recent
ATAP 2021 by Central Government investment can only be progressed
signals that Central Government is
and Auckland Council. Should the late in the decade when the funding
considering some of these changes.
results of consultation suggest the demands of big transformational
Road pricing (or congestion draft RLTP needs to be changed projects (such as CRL and the
pricing) is another important area in a substantial way then we Eastern Busway) ease off, or if
of regulatory change. The current would need to discuss this with additional funding above and
way Aucklanders pay for using their Central Government. beyond that signalled in ATAP
roads does not incentivise them becomes available.
to be used in the most productive
way, or support climate change
outcomes.
Context 10DRAFT Auckland Regional Land Transport Plan 2021–2031
02.
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Purpose and scope
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The Regional Land The vast majority of publicly funded land transport activities in Auckland are
contained in the RLTP, including:
Transport Plan
• Transport planning and investment in improvements for customers
The main purpose of the RLTP is
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to set out the Auckland region’s • The road network, including state highways
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land transport objectives, policies • Road safety activities delivered in partnership by AT, Waka Kotahi, and
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and monitoring measures for the New Zealand Police
the next ten years. It includes
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the land transport activities of • Public transport (bus, rail and ferry) services
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Auckland Transport (AT), Waka • Improvements to bus stops, rail stations and ferry wharves, and the
Kotahi, KiwiRail, City Rail Link creation of transport interchanges and park and ride facilities
Ltd (CRLL) and other agencies,
and must be prepared every six • Footpaths, shared paths and cycleways
years in accordance with the Land • Management and improvement of rail track infrastructure by KiwiRail
Transport Management Act 2003 and CRLL
(LTMA).
• Parking provision and enforcement activities
The RLTP must be consistent with
the GPS and take into account a • Travel demand management.
range of other matters, including
likely funding from any source The RLTP does not cover transport activities carried out by private entities,
and any relevant national and such as private developers or Auckland International Airport Ltd (AIAL) or,
regional policy statements. RLTP for example, the important role that New Zealand Police play in keeping our
development is also expected roads safe.
to align with guidance provided The Regional Transport Committee (RTC), which comprises the AT Board
by Waka Kotaki, which includes and representatives of Waka Kotahi and KiwiRail, is required to prepare a
setting out specific problem new RLTP every six years, and to review it during the six months prior to
statements, challenges, expected the end of the third year of the plan to ensure it is relevant, aligned with the
outcomes and funding priorities. strategic context, and responds to the GPS.
Additional steps are being taken in the development and approval of
this RLTP to reflect the Review of Auckland Council’s Council Controlled
Organisations (CCOs) which recommends:
AT and the council jointly prepare the regional land transport
plan, the draft of which the council endorses before going to
the CCO’s board for approval.4
4
Report of Independent Panel (2020). “Review of Auckland Council’s council-controlled organisations”, P4.
11DRAFT Auckland Regional Land Transport Plan 2021–2031
Objectives and intents elaborated
Auckland Transport though Future Connect Informs ATAP
Auckland Plan
Alignment Project
2050
(ATAP)
Long-term Challenges
Informs ATAP 2020 Future Connect and Outcomes Guide
Update budget development
RLTP to address issues and opportunities
identified by Future Connect
Guides land transport
investment
Government
Regional Land
Policy Statement consistent with Auckland
Transport Plan
on Land Transport Long Term Plan
(RLTP) Investment plans developed
(GPS) incorporated in
within Council funding
availability
Projects for Waka Kotahi NZTA
assessment/NLTP funding
consideration
National Land
New Zealand
consistent with Transport Policy and Strategic context
Rail Plan
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Programme Investment Programme
(draft) Statutory Plan / Investment Programme
(NLTP)
Investment
Programme
Policy context
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Rail Network
D AF Since 2015, ATAP has delivered a series of strategic
reports and develops an indicative ten-year package of
The figure above provides an overview of how the RLTP transport investments for Auckland (the ‘ATAP package’)
interacts and aligns with strategic policy documents, and on a regular basis. This package informs statutory
Central Government and Auckland Council investment processes including the National Land Transport
programmes. Programme (NLTP) and this draft RLTP.
Key planning documents and other information that In 2020, Central Government and Auckland Council
have guided the preparation of this RLTP are briefly requested that the ATAP 2018 package be updated
described below. to reflect:
he 2021 Auckland Transport
T • The impacts of Covid-19, including the impacts
Alignment Project on Council and government revenue
In 2015, the New Zealand Government and Auckland • The New Zealand Upgrade Programme (NZUP)
Council joined up to address Auckland’s transport of transport investment in Auckland
challenges and ensure the opportunities of a growing • Climate change and mode shift as increasingly
and diverse region are maximised. This strategic significant policy considerations
approach to transport was agreed through the Auckland
Transport Alignment Project (ATAP). • The need to provide direction to the upcoming round
of statutory planning processes including the RLTP,
ATAP includes a cross-agency partnership including the Auckland LTP, the GPS and the NLTP
the MoT, Waka Kotahi, KiwiRail, the Treasury, Auckland
Council, AT and the State Services Commission, and • Emerging priorities for urban development
decision-making with respect to ATAP rests with the (such as housing) in Auckland.
New Zealand Government and Auckland Council.
Purpose and scope 12DRAFT Auckland Regional Land Transport Plan 2021–2031
Purpose and scope cont.
Central Government and Auckland Council also ATAP and the RLTP
agreed a revised set of objectives for the ATAP 2021
The terms of reference for ATAP 2021 were explicitly
as follows:
intended to provide direction for the RLTP, along with
• Enabling and supporting Auckland’s growth, focusing other relevant statutory documents. In line with that
on intensification in brownfield areas, and with some direction, the ATAP process involved a detailed and
managed expansion into emerging greenfield areas. extensive technical assessment of potential investment
options and has provided a solid foundation for the
• Providing and accelerating better travel choices for
development of this draft RLTP.
Aucklanders
The agreed ATAP objectives, funding assumptions and
• Better connecting people, places, goods and services
investment programme underpin this draft RLTP.
• Improving the resilience and sustainability of the
• The ATAP agreed objectives reflect the GPS and
transport system, significantly reducing the GHG
Auckland Plan.
emissions the system generates
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• This RLTP has been developed on the basis that
• Making Auckland’s transport system safe by
the ATAP partners will continue to work together
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eliminating harm to people
to realise the funding required to deliver the ATAP
A
• Ensuring value for money across Auckland’s transport package and make policy initiatives set out in the
system through well-targeted investment choices. ATAP report. Specifically, that will mean making
R
changes to the way current funding rules are applied.
D
As discussed in later sections, this is critical to
One particular benefit of ATAP for Aucklanders realising the full ATAP programme.
is a dramatic increase in the funding available • ATAP 2021 , which has been agreed by Cabinet
for transport investment. Because of the and Auckland Council, is seen as delivering the best
lead times for new infrastructure projects the possible outcomes, so long as it is accompanied by
noticeable benefits of this will become more the policy changes identified in this draft RLTP.
apparent over the next three to four years.
For more information on ATAP 2021 visit www.transport.
govt.nz/area-of-interest/auckland/auckland-transport-
alignment-project
13 Purpose and scopeDRAFT Auckland Regional Land Transport Plan 2021–2031
The Auckland Plan 2050 The plan aims to achieve the following outcomes:
The Auckland Plan 2050 is a long-term strategy for • Belonging and participation
managing Auckland’s growth and development over the • Māori identity and wellbeing
next 30 years. It considers how we will address the key
challenges of high population growth and environmental • Homes and places
degradation, and how we can ensure shared prosperity • Transport and access
for all Aucklanders.
• Environment and cultural heritage
The first Auckland Plan was produced in 2012 and
included a highly detailed series of objectives and • Opportunity and prosperity.
targets. The Auckland Plan 2050, adopted in June 2018, Transport contributes to achieving all six outcomes,
is a more streamlined spatial plan with a simple structure with the strongest links to ‘Transport and access’.
and clear links between outcomes, directions (how to
achieve the outcomes) and focus areas (how this can
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be done).
AF
Aucklanders will be able to get where they
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want to go, more easily, safely and sustainably.
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Focus
Areas Make better use of existing transport Directions
networks
Target new transport investment
to the most significant challenges Better connect
people, places,
goods and
services
Maximise the benefits from transport
technology
Increase genuine
Make walking, cycling and public transport travel choices for
preferred choices for many more Aucklanders a healthy, vibrant
and equitable
Auckland
Better integrate land-use and transport
Maximise safety
and environmental
Move to a safe transport network, protection
free from death and serious injury
Develop a sustainable and
resilient transport system
Purpose and scope 14DRAFT Auckland Regional Land Transport Plan 2021–2031
Purpose and scope cont.
Future Connect 2021-2031 Other relevant documents
Future Connect is a ten-year system planning tool for The Land Transport Management Act 2003 sets out
Auckland’s integrated transport system. It sets out the planning, funding and operating framework for
strategic networks for each transport mode, outlines New Zealand’s land transport infrstructure and services,
the deficiencies and opportunities expected in the next including roading, public transport, the rail network and
decade, and identifies Indicative Focus Areas for further traffic safety.
investigation as future projects. The Strategic Case
The Government Policy Statement on land transport
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summarises the problems facing Auckland’s transport
(GPS) sets out the government’s National Land
system, system objectives and performance measures.
F
Transport Fund (NLTF) expenditure priorities over
It has been developed by AT in partnership with Waka the next 10 years. The GPS 2021-2031 is guided by
A
Kotahi and Auckland Council in collaboration with Mana four strategic priorities: Better Travel Options, Safety,
R
Whenua, and in consultation with MoT, KiwIRail and Improving Freight Connections, and Climate Change.
Kainga Ora and major stakeholder groups such as the
D
The National Land Transport Programme (NLTP) is a
Freight Reference Group, Tāmaki Makaurau Road Safety
three-year programme that sets out how Waka Kotahi
Governance Group, Bike Auckland, NZ Automobile
invests land transport funding on behalf of the Crown
Association and Living Streets Aotearoa.
to create a safer, more accessible, better connected and
more resilient transport system.
The Regional Public Transport Plan 2018-28 (RPTP)
E CONNE sets out AT’s policies, guidelines and activities for the
TUR C
F r network pla T
U delivery of Auckland public transport focused over a
three-year period with a ten-year horizon.
Ou n
The Auckland Long-Term Plan 2018-28 (LTP)
underpins AT’s RLTP programme by providing
committed funding and enabling AT to secure support
from Waka Kotahi.
Te Tāruke-ā-Tāwhiri: The Auckland Climate Plan
sets a pathway to rapidly reduce GHG emissions
(50 per cent reduction by 2030) and help prepare
Auckland for the impacts of climate change. Transport
is one of eight priorities, and road transport accounts for
Ou
r inv R LT P t plan about 37 per cent of Auckland’s total emissions in 2018,
e st m e n of which about 86 per cent relates to travel by road.
15 Purpose and scopeDRAFT Auckland Regional Land Transport Plan 2021–2031
The Climate Change Response (Zero Carbon) The Rail Network Investment Programme (RNIP)
Amendment Act 2019 provides a framework by which is a three-year investment programme and a ten-year
New Zealand can develop and implement clear and forecast for the rail network, developed by KiwiRail. The
stable climate change policies that ensure New Zealand draft NZ Rail Plan and the GPS guide the development
has net-zero GHG emissions by 2050 and prepare for, of the RNIP, which needs to be reflected in the RLTP. The
and adapt to, the effects of climate change. RNIP will be funded from the Rail Network activity class
and the Public Transport Infrastructure activity class for
Vision Zero for Tāmaki Makaurau is a transport safety
metropolitan rail activities, supported by Crown funding.
strategy and action plan to eliminate deaths and serious
T
injuries (DSI) on Auckland’s transport network by 2050. Arataki 2020 is Waka Kotahi’s ten-year view of what is
F
It is a partnership between AT, Auckland Council, NZ needed to deliver the government’s current priorities and
A
Police, Waka Kotahi, ACC, Auckland Regional Public long-term objectives for the land transport system.
Health Services and the MoT.
R
The Auckland Freight Plan 2020 identifies the critical
The National Policy Statement on Urban Development challenges for freight movement, desired outcomes,
D
2020 (NPS-UD) seeks to ensure that new development and includes an action plan to achieve them. It has
capacity enabled by councils is of a form, and in been developed by AT in partnership with Auckland
locations that meet the diverse needs of communities Council, Waka Kotahi and key freight stakeholders,
and encourage well-functioning, liveable urban including MoT, KiwiRail, Ports of Auckland, Auckland
environments. Airport, the Automobile Association, the National Road
Carriers Association, Mainfreight and the Road Transport
The draft NZ Rail Plan 2019 is a non-statutory planning
Association NZ.
document to guide investment in the rail system over the
longer-term. It sets out the Government’s strategic vision The AT Māori Responsiveness Plan (MRP) outlines
and investment priorities and describes the changes operational-level actions to enable AT to fulfil its
made to the Land Transport Management Act to enable responsibilities under Te Tiriti o Waitangi – the Treaty
KiwiRail to access the NLTP. It also identifies the two of Waitangi - and its broader legal obligations in being
investment priorities for a resilient and reliable network, more responsible and effective to Māori.
both of which are relevant to Auckland – Investing in the
Auckland Council Local Board Plans are developed
national rail network to restore rail freight and provide
by the 21 local boards across Auckland. Each local
a platform for future investments for growth, and
board plan includes outcomes related to transport and
investing in metropolitan rail to support growth in
specific actions the relevant local board wishes to see
our largest cities.
progressed.
Purpose and scope 16DRAFT Auckland Regional Land Transport Plan 2021–2031
03.
R AFT
Funding D
Over the last three Auckland faces significant challenges in funding its critical infrastructure,
including its transport network. The population has grown on average by
years Auckland 1.8 per cent annually over the past 10 years and is expected to increase a
Council and Central further 260,000 (1.5 per cent each year) by 2031.
T
Government have Growth at this level requires additional capacity on the transport network.
F
invested more in Where the growth is in greenfield areas (future urban areas), new roads,
A
new stations, public transport, walking and cycling infrastructure and new
transport than ever services are required. In brownfield areas (existing urban areas), population
R
before in an effort to growth puts pressure on the roading network, adding to congestion, as well
D
address Auckland’s as creating capacity constraints on the public transport network. In addition,
population growth increases the rate of deterioration of roads and other
infrastructure deficit. transport assets, which increases the cost of maintenance and renewals.
Commitments to
investment have How transport is funded in Auckland
more than doubled Transport activities in Auckland are traditionally funded by Auckland Council
since 2015. (rates, development contributions and debt) and Central Government
(through funding from the NLTF other Crown allocations for rail projects
including the CRL), and user pays service charges (e.g. parking fees and
public transport fares).
The level of future transport investment required for Auckland to meet its
strategic transport objectives has meant a need to move beyond these
funding arrangements.
One significant new source of funding has been the Regional Fuel Tax
(RFT). From 1 July 2018, a 10-cent per litre tax on petrol and diesel has
applied in Auckland through the Land Transport Management (Regional
Fuel Tax Scheme – Auckland) Order 2018. The collection of the RFT allows
Auckland Council to fund transport projects with positive economic, social,
environmental and safety impacts.
At the end of January 2021, over the first three years of its existence,
approximately $220 million of money collected through RFT has been
invested in transport projects. One of the advantages of the RFT scheme
is that when it is combined with other funding from Auckland Council and
Central Government (such as Waka Kotahi’s NLTF), it has enabled over
$565 million in investment that would not otherwise have got underway,
for example ,the Downtown ferry terminal redevelopment, Puhinui
Interchange and safety projects.
17DRAFT Auckland Regional Land Transport Plan 2021–2031
R AFT
D
The timing of RFT collection does not align with when it is spent. This was not
unexpected and reflects the fact that at the time it was created the RFT could
only be applied to new projects (as opposed to projects already progressing),
additional funding from matching funds (Auckland Council contribution and
NLTF) and the need to support the scale and pace of expenditure of many
of the projects once they moved into construction. The following graph sets
out the expected timing of collection and expenditure and the total transport
investment enabled by RFT.
RFT revenue and investment
700
600
Forecast
500
400
$ Million
300
200
100
0
2019 2020 2021 2022 2023 2024 2025 2026 2027 2028
Year ending 30 June
Actual RFT revenue Actual RFT revenue
Actual RFT funding spending Actual RFT funding spending
Actual expenditure enabled Actual expenditure enabled
In January 2020, the Government announced NZUP, including a $3.48 billion
package of investments for Auckland that allows earlier delivery of already
planned road, rail, public transport and walking and cycling infrastructure.
In July 2020 as part of its Covid response, the Government announced
its ‘Shovel Ready’ initiatives, providing funding for a number of transport
projects that might otherwise struggle to be completed (such as Puhinui
Interchange and the Downtown Ferry Terminal) or could be started quickly,
created jobs and benefitted the region. The Northwest Bus Improvements
will see faster and more reliable bus services along SH16 and there will be
improved station and stop facilities at Westgate, Lincoln Road and Te Atatu
as a result of this funding.
The Government has also provided special purpose vehicles (SPVs) to allow
funding of specific new growth-related projects, such as infrastructure for the
Milldale development at Wainui. It’s likely more of this funding approach will
be required going forward.
Funding 18DRAFT Auckland Regional Land Transport Plan 2021–2031
Funding cont.
Planned transport Funding sources by broad category
funding for Auckland
Fuel excise duty, Rates, Development
The ATAP 2021 Agreement General
Road user charges, Contributions,
between Auckland Council and the taxation
Vehicle licensing Regional Fuel Tax etc
Government signals $31.4 billion
Waka Kotahi NZTA Auckland Council Government
of funding for a programme of
specified transport investments in
Auckland over the next 10 years,
endorsed by Cabinet and Auckland
Council. This is an increase of $3.4 State highways Co-funded Non co-funded City Rail NZ Upgrade
billion when compared with that Light rail AT services AT services Link Programme,
and projects and projects Covid Response
signalled in the 2018 RLTP. A Rail and Recovery
further $4.6 billion of direct user infrastructure Fund
pays fees, such as parking revenue
and public transport fares, supports
the investment being made in the
day-to-day transport services TRANSPORT FUNDING 2021-2031
ATAP FUNDING
(INCLUDING DIRECT USER CHARGES)
delivered by AT.
Auckland Council for AT Operations $ 3.4 billion
T
Auckland Council for AT Capital $ 5.5 billion
F
Auckland Council for CRL $ 1.3 billion
A
National Land Transport Fund $ 16.3 billion
R
Crown funding for CRL $ 1.3 billion
D
Crown funded NZ Upgrade Programme $ 3.5 billion
Crown funded COVID-19 Response and Recovery Fund $ 0.1 billion
Subtotal: ATAP Agreed Funding $31.4 billion
AT User Pays Fees (PT fares, parking fees) $ 4.6 billion
Total Transport Funding 2021-2031 $36.0 billion
Consistent with the ATAP agreement, the RLTP assumes that the NLTF will
provide $16.3 billion between 2021 and 2031. The delivery of the programme
in this RLTP depends on the availability of the funding set out in ATAP 2021
and, critically, ensuring that it is allocated according to the agreed ATAP
programme. This is most important for AT’s elements of the ATAP / RLTP
programme, which depend on financial assistance from Waka Kotahi.
ATAP has identified around $11.4 billion of capital projects that would be
delivered by AT. Of these, AT considers that around $400 million – relating
to level crossings, school speed management, and Hill Street Intersection
Improvements - should be fully funded from the NLTF, although the
funding arrangements for these are not finalised. Implementation of the PT
Concession Card (Community Connect) trial will be fully funded by the Crown.
This leaves an AT capital programme of around $11 billion to be co-funded by
Auckland Council and NLTF. Auckland Council has committed $5.5 billion in its
LTP and has assumed an average 50:50 funding split to reach the $11 billion
figure. In practice, the matching co-funding from Waka Kotahi can vary, as
individual projects are assessed for subsidy through a business case process.
The share of AT’s capital funding from the NLTF over the past three years has
been less than 50 per cent.
19 FundingDRAFT Auckland Regional Land Transport Plan 2021–2031
The ATAP Parties have agreed to re-examine the result in an average funding split of 50:50 between
funding arrangements for AT, as without a change to Auckland Council and the NTLF, which is the same
these arrangements, AT will simply not be able to deliver funding split that Auckland Council has assumed in
the programme set out by ATAP and presented in this its draft LTP5.
RLTP. However, changes may take time to implement,
Category Three projects, although still very important,
and still may not achieve the level of co-funding assumed
are the lowest priority in the programme, and will be
in this RLTP. We have decided, therefore, to present the
the first to be deferred if assumed funding levels are
implications of these different co-funding scenarios in
not achieved.
the draft 2021 RLTP.
Although changes to Waka Kotahi funding approaches
Depending on the funding scenarios above, we will
are needed to deliver the total ATAP programme,
prioritise according to the categories below.
including AT projects, the overall Waka Kotahi funding
Category One (Committed and Essential) allocation remains within the $16.3 billion signalled for
projects are funded under the first ‘business as usual’ Auckland within the GPS.
subsidy scenario
As part of the ATAP agreement, it is expected that the
This scenario is based on the assumption that AT allocation to the Local Road Maintenance Activity Class
continues to receive the NLTP subsidy at past rates in the 2024 GPS will need to be increased in the context
across its capital programme, (historically around a of broader trade-offs and affordability. This is to ensure
59:41 funding split between Auckland Council and the sufficient funding is available to cover the increase in
NLTF). This would provide a capital funding envelope for renewals included within this programme.
T
AT projects of around $9.3 billion, which is $1.7 billion
less than the preferred allocation to AT in the agreed
Funding for operations
F
ATAP programme. In addition to the above, there are also challenges
A
around the availability of operational funding. AT has an
Category One projects reflect the highest priorities
operating budget of $7.4 billion, not including user pays
R
and are included in the ATAP Recommended
fees such as public transport fares.
Programme’s Committed and Essential category.
D
AT estimates that around $7.9 billion is needed to
Category Two (Discretionary)
implement the planned bus and ferry services over 10
projects are funded under the ‘51 per cent for all eligible
years. The likely impacts on public transport services of
projects’ scenario
not receiving this additional funding of $500 million are
This scenario is based on the assumption that all set out in section 7.1 under Train, Bus and Ferry Services.
of AT’s eligible projects and programmes receive the AT is discussing its operational funding with the Council.
full 51 per cent NTLF financial assistance rate (at the The Council will make its final decisions on its share of
cost levels included in this RLTP). Historically, this has funding when it has completed its consultation on the
not always occurred. Under this scenario, the expected 2021 LTP.
level of funding for AT’s capital programme increases
to around $10.4 billion. Relationship with Auckland Council’s Long
Term Plan
Category Two projects reflect the second highest
priority within the programme. RFT projects in This plan has been developed while Auckland Council’s
Category Two will be the highest priority. draft LTP is being consulted upon. The funding amounts
detailed here have been based upon assumptions
Category Three (Additional funding required)
provided to us which are subject to change up until the
projects are funded under the ’full ATAP
Long Term Plan (LTP) itself has been approved – likely
programme’ scenario
to be in May or June 2021.
This scenario assumes that Waka Kotahi is able to use
discretion within its funding rules to enable the full
funding of the AT programme, included in ATAP, for
example, by applying a higher financial assistance rate
for nationally significant rapid transit projects being
delivered by AT (such as the Eastern Busway). Under
this scenario, the expected level of funding for AT’s
programme would be $11 billion. This equates would
5
Although it is important to note that the funding level would be reached by some AT projects receiving a higher than normal financial assistance
rate to compensate for projects that do not receive any subsidy. There is no expectation of a 50:50 funding subsidy on every project.
Funding 20DRAFT Auckland Regional Land Transport Plan 2021–2031
04.
R AFT
Auckland’s transport
challenges
D
Auckland faces FOUR KEY PROBLEM STATEMENTS HAVE BEEN IDENTIFIED:
T
significant transport
F
Climate change and the environment – Emissions
challenges now and and other consequences of transport are harming
A
into the future. the environment and contributing to the transport
R
system becoming increasingly susceptible to the
These reflect the region’s
impacts of climate change.
D
substantial ongoing population
growth, a challenging natural
setting and historical approach
Travel options – A lack of competitive travel options
to land use, along with a legacy
and high car dependency as the city grows is
of under-investment (particularly
limiting the ability to achieve the quality compact
in public transport and cycling),
urban approach for Auckland.
ageing roads and transport
facilities, and global threats like
Covid-19 and climate change.
A key part of developing this draft Safety – The transport system has become
RLTP has been the upfront effort increasingly harmful and does not support better
that has gone into defining the health outcomes.
problems that need to be solved.
Access and connectivity – Existing deficiency
in the transport system and an inability to keep
pace with increasing travel demand is limiting
improved and equitable access to employment and
social opportunities.
A second part of the process to develop this draft RLTP has been ensuring
clarity on what benefits need to be delivered over the next 10 years.
The following pages discuss Auckland’s transport challenges, while
the next section identifies the proposed responses. The challenges are
structured using the problem statements outlined above, and draw on
the ILM ‘expected outcomes’ and ‘benefits of investment’.
21DRAFT Auckland Regional Land Transport Plan 2021–2031
Climate change and the environment
Emissions and other consequences of transport are harming the
environment and contributing to the transport system becoming
increasingly susceptible to the impacts of climate change
Climate change and GHG emissions Climate-related targets
T
There is a growing global, national and local need to SOURCE REDUCTION ON 2018
F
urgently address the threats posed by climate change 2030 2035
A
through reducing greenhouse gas (GHG) emissions.
The scientific evidence is compelling. In New Zealand Auckland Climate Plan
R
the Climate Change Response (Zero-Carbon) Act was – Region 50% –
D
enacted in 2019, which requires national GHG emissions – Transport scenario 64% Reductions
to be net-zero6 by 2050. In June 2019 Auckland relative to
2016-
Council declared a climate emergency, followed by
the endorsement in July 2020 of Te Tāruke-ā-Tāwhiri: National target under the
Auckland’s Climate Plan, which aims to halve Auckland’s Climate Change Response Act
GHG’s by 2030. – National -18% 36%
Tackling climate change will require a very significant – Transport goal -19% 47%
change to the way we travel around our region although Reductions
the timing and the detail of how this change might relative
unfold are still to become obvious. to 2018
Climate change targets
Auckland’s emissions and road transport
Development of the RLTP through ATAP occurred with a
strong awareness of Central Government climate change The scale of the challenge presented by achieving either
legislation and Auckland Council climate change targets. the Auckland Council or legislative targets is large and
Auckland Council, (through its C40 obligations7 and the in Auckland the challenge is far greater than the scale
Auckland Climate Plan) has committed to a 50 per cent of the change required for the rest of New Zealand.
reduction in emissions by 2030 – the amount required to In 2018, Auckland’s total emissions were 11,500 kilo-
keep the planet within 1.5°C of warming by 2100. tonnes , which is around 15 per cent of New Zealand’s
total emissions. Road transport is around 5.5 per cent
The Auckland Climate Action Plan outlines an indicative of NZs total emissions. Given the scale of Auckland’s
scenario of how that might be achieved (which assumes contribution to New Zealand’s transport emissions,
a 64 per cent reduction in transport emissions) and a failure to make substantial emissions reductions in
series of actions. Auckland will severely limit New Zealand’s ability to meet
it’s climate change targets.
The Zero Carbon Act has a draft 2035 target of a 36 per
Road transport has consistently been Auckland’s
cent reduction and a 2050 target of net-zero emissions.
largest single source of GHG emissions at 38.5 per
These targets do not have sector-specific targets but
cent in 2018. The overwhelming majority of these
supporting analysis suggests the following reduction
emissions (80 per cent) come from private motor
goals for the transport sector.
vehicles and light commercial vehicles. Heavy vehicles,
or freight and buses, account for 20 per cent of land
transport emissions.
6
Net zero emissions, also known as “carbon neutrality”, is where the all GHG emissions produced by an entity (such as a country, city, or organisation)
are fully sequestered or absorbed (typically by trees). That is, the amount emitted equals the amount absorbed.
7
C40 is a network of the world’s mega-cities committed to addressing climate change.
Auckland’s transport challenges 22You can also read
