There are many reasons to be concerned about the plan to add more road lanes across Auckland’s Waitemata Harbour: from the extreme cost of building such big tunnels and interchanges [$5-$6 billion and four times as much as just building rail tunnels], to the undesirable flooding of city streets and North Shore local roads with even more cars, to the increase in air pollution and carbon emission this will create, the loss of valuable city land to expanded on and off ramps and parking structures, to the impact on the harbour of exhaust stacks and a supersized motorway on the Shore, to the pressure this will put on the rest of the motorway system particularly through the narrow throat of Spaghetti Junction. It is both the most expensive and least efficient way to add capacity across this route, and if resilience is the aim then the double-down on reliance the motorway system rather works against this. This one project will simply crowd out any other changes we could make of scale in Auckland or the country for years; yet it changes almost nothing; it simply enables more vehicles to travel across a short point in the middle of the city, yet this is by no means an obviously good thing: The list of unwanted outcomes from the current proposal is so extensive that the benefits had better be so extraordinary and so absolutely certain in order to balance them all.
But perhaps there is no greater reason to not do it than that it simply won’t improve things for drivers.
Really? How can this be? As well the obvious problem with this project that it will add super capacity for a short stretch of the motorway network and therefore just shifts any bottleneck to the next constriction, particularly the extremely difficult to expand CMJ or Spaghetti Junction, there’s also a bigger structural problem with building more roads to fight traffic congestion. It can’t work. We all have experienced being stuck in traffic on a motorway and sat there wishing if only the authorities had just built an extra lane all would be sweet, well it would, wouldn’t it? However the evidence from all round the world shows that while that may help for a little while it never lasts, especially in a thriving city and especially if these extension starve the alternatives of funding, condemning ever more people to vehicle trips on our roads. Soon we’re stuck again wishing for another few billions worth of extra lanes all over again.
Here’s how it works; each new lane or route simply incentivises new vehicle journeys that weren’t made before; a well known phenomenon called induced demand. Road building is also traffic building, the more we invest in roads the more traffic and driving we get, and not just on the new road; everywhere. Traffic congestion is, of course, simply too much traffic, too much driving. Take for example the I-10 in Houston, the Katy Freeway. In that famously auto-dependent city they freely spent Federal money and local taxes disproportionately on just one way to try to beat traffic congestion, the supply side: ever more tarmac [Houstonians can boast the greatest spend per capita on freeways in the US]. The I-10 which began at six to eight lanes has just had its latest ‘upgrade’ to no fewer than 26 lanes! That ought to be more than enough in a flat city with multiple routes and only half the population Los Angeles. So what happened? According to recent analysis it has made driving this route significantly worse.
Traveling out I-10 is now 33% worse – almost 18 more minutes of your time – than it was before we spent $2.8 billion to subsidize land speculation and encourage more driving.
But hang on, those trips must need to be made, right, or people wouldn’t make them. Well in the absence of direct pricing it is hard to know exactly how valuable these new trips are. So first they really ought to price routes like the I-10 properly to reduce unnecessary journeys clogging up the valuable ones, like the truckies and trades [it is partially tolled now]. But the real problem in cities like Houston is the absence of any useful alternatives to driving [an earlier extension of I-10 took out an existing rail line!]. Providing those alternatives is how congestion is best dealt with. Not completely solved of course, that can only happen by collapse of the city economy like in Detroit, and no-one wants that solution. But traffic congestion can be made both manageable and, for many, no longer an issue, by providing them with attractive alternative options. And in turn this frees up the roads sufficiently for those who have to or prefer to drive. Especially when this is done in conjunction with direct price signals- road pricing; tolls or network or cordon charges.
Houston may be forever too far gone down this hopeless road but that doesn’t mean we have to follow it. Here is a description of the same problem in Sydney, with the solution:
Most people will take whichever transport option is fastest. They don’t care about the mode. If public transport is quicker they’ll catch a train or a bus, freeing up road space. If driving is quicker, they’ll jump in their car, adding to road congestion. In this way, public transport speeds determine road speeds. The upshot is that increasing public transport speeds is one of the best options available to governments and communities wanting to reduce road traffic congestion.
This is called the Nash Equilibrium [I would rather say better than faster; there are a number of variables including speed that inform our choices];
This relationship is one of the key mechanisms that make city systems tick. It is basic microeconomics, people shifting between two different options until there is no advantage in shifting and equilibrium is found. We can see this relationship in data sets that make comparisons between international cities. Cities with faster public transport speeds generally have faster road speeds.
Which brings us to the Waitemata Harbour. It currently has 13 general traffic lanes across two bridges, one walking and cycling lane on the upper harbour bridge, and some ferry services generally not competing with these crossings. The Harbour Bridge carries increasing numbers of buses from the hugely successful Northern Busway, the very success of which exactly proves the theory of the equilibrium described by Dr Ziebots above. In the morning peak the buses carry around 40% of the people without even a single dedicated lane on the bridge itself. And it is all the people using the busway that allow the traffic lanes to move at all. In fact NZTA argue that one of the main reasons for building a new crossing is the numbers and the size of the buses now using the current one.
The Upper Harbour Bridge is about become significantly busier because of the multiple billions being spent on the Waterview connection between SH20 and SH16, the widening of SH16, and the bigger interchange between SH81 and SH1 on the Shore. These huge motorway expansions will generate more traffic of course, but also will provide an alternative to driving across the lower Harbour Bridge.
What is missing anywhere between the North Shore and the city is a Rapid Transit alternative to these road lanes. Like Sydney always has had.
It is its [Sydney Harbour Bridge] multi-modality that makes it truly impressive, some 73% of the people entering Sydney on the Bridge from the Shore at this time are doing so on just one of the train lines and one bus lane; a fraction of the width of the whole structure. So not only does it shame our Harbour bridge aesthetically it completely kills it for efficiency too.
Auckland’s bridge was always only ever designed for road traffic, and should be left that way, the clear way forward is to add the missing Rapid Transit route as the next major additional crossing [after adding the SkyPath to the existing bridge].
In 1992 it [Sydney Harbour Bridge] was supplemented by a pair of two lane road tunnels that up the cross harbour tally for this mode to match the number coming over by train [bridge plus tunnels = 12 traffic lanes], but that wasn’t done until the population of the city had hit 3.7 million. The high capacity systems on the bridge saved the people of Sydney and Australia from spending huge sums on additional crossings and delayed the date they were deemed necessary by many decades. But anyway, because the additional crossing is just road lanes it only adds around 10% extra capacity to the bridge. To think that the government here and NZTA are seriously proposing to spend multiple billions in building a third Harbour Crossing in Auckland with the population only at 1.5m, but not only that but they are planning to build more capacity for the least efficient mode; more traffic lanes.
The good people at NZTA of course know this, but we just seem stuck in a bad habit of road building in a similar way as Houston is, because the money for motorway building comes from central government some people believe this makes it free, in a similar way that the highways in the US are largely funded by the Federal government, unlike public transport, which is more locally funded [Known as ‘path dependency’ and is well covered in the academic literature: Imran, Pearce 2014]. This means the pressure to evaluate the effectiveness of motorways over the alternatives is much weaker. Here is a slide from an NZTA presentation proudly proclaiming how much more traffic this massive project will generate:
Of course this growth can be met by a parallel Rapid Transit system instead. The success of the Busway here and the enormous uptake of the recently improved Rail Network show that Aucklanders are the same as city dwellers everywhere and will use good Transit systems when they get the chance. And two much smaller and therefore cheaper train tunnels have much greater capacity than the proposed six traffic tunnels. Twice as much in fact: the equivalent of twelve lanes and without adding a single car to city streets. Furthermore converting the Busway to a rail system, which is entirely possible, and depending on the system may even be quick and easy, means that buses can be completely removed from bridge freeing up more capacity there for general traffic; cars and trucks:
- Removing buses from the existing bridge would free up some capacity. 200 buses per peak hour ~= 1,000 cars ~= 60% capacity of a traffic lane. So a dedicated PT crossing provides car users with an extra lane (once you account for reverse direction). Not huge, but not negligible either.
- Mode shift: by providing a fast and more direct alternative route you will get mode shift, providing more space to the cars that remain. So you have more vehicle capacity and less demand = a real congestion benefit.
So compared to a new road tunnel where both crossings would need to be tolled, and simply generate more competing traffic for drivers through the whole city, the dedicated PT option would seem to be better even for motorists. The better, faster, and more attractive the Rapid Transit route the freer the driving route will remain; with more people choosing the car-free option: The higher the Transit utility; the higher the driving utility.
Of course while a rail crossing will be considerably cheaper to build than a road crossing it still needs a network either side of the harbour to make it useful. Are there good options for this? In fact there are a number of very good options, all with varying advantages and disadvantages that need serious investigation. And it is important to remember by the time this project is being built the public transit networks in Auckland will be considerably more mature. The City Rail Link will have transformed the newly electrified rail network to a central role in the city, it will quickly have doubled from 2015’s 15 million annual trips to 30 million and more. The New Bus Network will be functioning and with the new integrated zonal fare system meaning people will be used to transferring across routes and modes to speed through the city. The increase in bus numbers and population will make driving in the city less functional. There will certainly many tens of thousands more people in the city without their car, many with business or other reasons to travel across to the Shore. And importantly there will almost certainly be a new Light Rail system running from the central isthmus down Queen St and terminating downtown.
The quickest and cheapest to build will probably be to take the city Light Rail system through Wynyard Quarter and across the harbour, as outlined by Matt here. The busway can be most easily converted for this technology, as it is already designed for it. Furthermore being the only rail system that can run on streets it can also most easily include branches to Takapuna and even Milford to the east, and from Onewa up to Glenfield. This also has the advantage of balancing the existing city-side routes, unlocking a downtown terminus, not unlike the CRL does for the rail network.
What a North Shore light metro network map might look like.
Higher capacity and with the great advantage of cheaper to run driverless systems are is Light Metro like the massively successful SkyTrain in Vancouver. As described for Auckland here. However like extending our current rail system to the harbour it would require a more expensive city-side tunnel to Aotea Station for connection to city network. We know work has been done to prepare Aotea station for this possibility. Matt has also explored other variations here.
Perhaps the best answer for both the near term and the long term is to build tunnels that can take our new Light Rail vehicles for the years ahead but are also capable of being converted to the higher capacity Light Metro when the demand builds so much to justify the further investment of the city tunnel between Wynyard and Aotea Station. Bearing in mind the LR vehicles AT are planning for are high capacity [450pax ] and they can run in the cross harbour tunnels and the busway at very high frequencies. And that Light Metro systems can use track geometries much closer to LR than can conventional rail systems.
So in summary, the bane of the motorist and the commercial driver, traffic congestion, is best dealt with on the demand-side as well as the supply-side. We have spent 60 years just supplying more tarmac, and now it is time to get on with addressing the demand side: Building quality alternatives and providing clear incentives to fine-tune peoples choices.
And, just like road building, investing in quality Rapid Transit will grow the demand for more of it. It will also shift land use, incentivising agglomeration economies and greater intensification around transport nodes, as well as individual habits to suit this option more. What we feed, with infrastructure investment, grows. And vitally, inducing this sort of movement instead of driving is entirely consistent with other the demands of this century; especially our country’s new commitments to reduce our carbon emissions, and the use of our own abundant and renewably generated energy.
This project is both so expensive and potentially so valuable or so damaging that it needs a fully informed public debate about the possibilities. Gone are the days that NZTA can just keep building what its used to without real analysis of all alternatives, or that a politically expedient option sails by without serious evaluation. Because it can be transformed into a truly great asset for the city and the nation on this important route from the eye-wateringly expensive and clearly dubious idea from last century that it is now.
What’s clearly missing from this picture, especially once Light Rail fills ‘The Void’, and some form of rail goes to the airport?:
Body without a head: Official post CRL rail running pattern
This is a guest post by Christchurch resident and urbanist Brendon Harre. An earlier iteration of this post originally appeared at Making Christchurch
Is Christchurch a provincial market town, or a diversified commercial city?
Sheep sale, Addington, Christchurch, [ca 1920s]
Recently on the transportblog website Stu Donovan someone who I respect for his expert analysis and articles, wrote the following, as a comment about Auckland’s population growth.
…. I only wish central government policy-makers grasped that distinction. That while the rest of the country depends on good roads, Auckland city will increasingly depend on public transport and walking/cycling. That while the rest of the country depends on an efficient agricultural sector, Auckland depends on a diverse and innovative service sector….
Stu of course is allowed his opinion and I believe it comes from a good place. He loves the urban culture of Auckland and can see ways to improve it for all our benefit (a stronger Auckland strengthens NZ). The problem I have is the implication that the rest of the country doesn’t have or need an urban culture –that all they need from the government is some roads and an efficient agriculture sector.
For instance, I think Christchurch needs support to restore and grow its urban economy and this too would help New Zealand. In the 2013 census, Greater Christchurch’s population was 436,000. After a post-earthquake dip in 2011 and 2012, population growth has been strong at about 8,000 new residents per year and by the end of 2015 it is likely the metropolitan area has around 450,000 people. If growth drops down to a more typical increase of 4,000 to 6,000 per year then the city can expect to hit the ½ million mark by around 2025. This is a long way behind Auckland, which reached the ½ million mark in the 1960s, but by international standards it is significant.
If Christchurch was a city in the Nordic countries of Sweden, Finland, Norway and Denmark, then it would be the 6th largest city. Gothenburg in Sweden is the 5th largest city and has a population of 550,000. Tampere in Finland is the 6th largest city with a population of 317,000.
These cities are proud of who they are and would not accept being labelled provincial market towns. Gothenburg gives the world Volvo. While Nokia, which birthed the phone company of that name is a satellite town of Tampere. Mid-sized commercial cities, which is what Christchurch is, have more to offer than a nice leg of lamb or a surplus of milk powder. Of course you don’t even need to be a city to offer the world something more than raw commodities. Lego’s home town and still where Lego’s head office is located -is the small town of Billund in Denmark–population 6,000.
Denmark should be a fascinating place for New Zealand, because they have done something we in New Zealand struggle with. Before New Zealand was supplying the UK with food, Denmark had reconfigured its economy so that the UK would take all its bacon and butter. By 1900, 60% of Denmark’s exports were food items to the UK. Yet somehow in the intervening years Denmark has diversified their economy in a way that New Zealand has not. Perhaps, because Denmark embraced a diversity of new concepts, such as design, this has allowed them to progress their economy?
Further, Denmark has done it in a way that has given their people higher incomes and arguably at a lower environmental impact. I have asked various experts how Denmark has achieved this and nobody really has an answer. Most recently, I asked Michael Riddell former Reserve Bank economist and now blogger at CroakingCassandra.com. There seems to be no clear consensus on what New Zealand could be doing differently, although we both gave our opinions.
In Christchurch’s case it is slowly getting back its mojo from the devastating series of earthquakes five years ago. For instance, Canterbury has been the hub of outdoor design and manufacture since Fairydown, a Dunedin based sleeping bag firm created by the Ellis family in the 1920s was sold off to international interests in the 1980s. The next generation of the family set up Earth, Sea and Sky based in Christchurch, to be with other similar outdoor orientated companies. Earth, Sea and Sky have a philosophy of using local talent to create and make specialised garments here in our own back yard. Macpac a garage start-up done good, is another firm in the outdoor design and manufacture cluster. A recent entry into the outdoor equipment stable is a firm –Uprising Climbing Holds -that makes rock climbing holds and exports them to the world. After the central city YMCA climbing gym was knocked out of action the company built a new gym near the trendy Tannery shopping complex in Woolston. The gym as well as being a business in its own right has the important side benefit of providing research and development information on new holds for the company.
Uprising Boulder Gym owner Sefton Priestley in the climbing room where customers test new climbing holds.
On another track, Tait Communications is a genuine Christchurch based export success story –it makes radios for emergency services and for the likes of London’s buses. It has had a tough year; revenues have retreated from earlier highs of over $200m to about $160m-$170m. Despite this setback they remain optimistic, recently targeting Rio Olympic security concerns and achieving big increases in sales through that marketing route.
The $35 million Tait campus development is set on 11ha of land alongside Tait’s existing buildings and features the construction of an über energy efficient new headquarters for up to 350 of its Christchurch-based employees
These examples demonstrate the diversified strength of Christchurch’s commercial city that is independent of Canterbury’s farming hinterland.
In the normal course of events I would have shrugged off Stu’s comments. He expressed an opinion, I was able reply with an opinion, which got some favourable comments –so no harm done on transportblog, just some healthy debate.
My opinion which I wrote at the time being;
…. if NZ developed a post farming economy based around a diversified urban economy of agglomeration, affordable housing, good transport provision, attractive amenities for skilled workers and business etc, that is often discussed here on tranportblog, then Christchurch would be the biggest winner.
But I have noticed the ‘urban Auckland versus the rural rest’ opinion is quite widespread and being touted by some pretty influential individuals. I wonder if it is the spreading of these sort of cultural/political ideas that is holding us back?
The newly formed Committee for Canterbury chair Gill Cox recently had this to say.
Boiling it down, it starts with the economic truth that the fates of Christchurch city and its rural hinterland are absolutely intertwined. “Christchurch is a market town,” says Cox simply. “Christchurch would struggle even to have a reason for being if Canterbury were not there. The economic driver is not the city but the region.” This is why it ended up as the Committee for Canterbury rather than the Committee for Christchurch, he says. The divergence from the “committee for” movement’s city-based template was quite deliberate. Cox says before the earthquakes, Christchurch had become somewhat politically disconnected from this fact. It had dreams about being a world-class small city riding the high tech “knowledge-wave” — a mini-Copenhagen at the bottom of the world.
Of course, says Cox, Christchurch should still want to do its best on this score. But really, as a long-term strategy, it just pits the city against every other city….
Christchurch has to concentrate on its true natural advantages, says Cox. And when it comes to NZIER’s analysis, these are simply the two things that Canterbury can be a premium-quality food basket for the world, and that Christchurch can get a free ride in being the tourist and freight gateway for the South Island.
Again, news that is no surprise for those who are in business in Canterbury. But Cox says our politicians and the general public may not have the same tight focus on how the region’s bread is buttered….
Note how in Gill Cox’s opinion Christchurch is a market town not a city, that economic opportunities lie in rural not urban areas (with the exception of the city being a freight and tourist gateway) and that wanting to be a diversified economy like Denmark’s is ‘disconnected’ and ‘dreaming’.
I don’t think Gill Cox speaks for all businesses –I think many city-based businesses would be surprised about his bias. Gill Cox’s comment that the general public cannot focus on how the region’s ‘bread is buttered’, is in my opinion code for saying that the region’s economy should be directed by ‘experts’ such as himself and that democracy and debate is unnecessary. That there is no need for Canterbury to have a public conversation on how regional public resources should be allocated.
Gill Cox delivers Committee for Canterbury’s Case for Canterbury at November launch party.
If Gill Cox was just a chair of an obscure think tank then his opinion wouldn’t matter much, but he is one of six NZTA board members (the board can have up to eight members). The board is appointed by the Minister of Transport and is responsible for making independent decisions on allocating and investing funds from the National Land Transport Fund.
Transport as everyone knows on transportblog is one of the key determinants of how a city grows. NZTA is the key funder for new transport projects. Local authorities spend a lot of money on transport, but it is mainly on maintenance –they lack the financial resources to go it alone with new projects –the existing framework of local government taxation means local authorities have to co-operate with NZTA funding with regard to new projects. Unfortunately for the commercial city of Christchurch it has a funder who is completely dismissive of its needs. For example, with Gill Cox’s attitude what are the chances that Greater Christchurch will get commuter rail or any other rapid transport solution to solve its congestion problems, as has been proposed by Christchurch City Council?
Congested Christchurch streets
The NZTA has a history of being biased against Canterbury in the 2002 to 2012 period, when the NZTA significantly underspent in the region compared to elsewhere, the cynic in me says that will continue, at least for city residents and businesses, if not for the whole region. Recent per capita spending doesn’t look so bad for Canterbury. But considering the infrastructure deficit from a decade of under spending, the amount of earthquake damaged roads, the dispersal of residents post-quakes and the strong population growth (second fastest growing region in NZ). Then Canterbury is due for some high NZTA spending — will Gill Cox and his other Board members agree to that and if they do, which new transport projects will get funding?
I wonder if Gill Cox has read the research about how transport can improve a city’s productivity and income. Alain Bertaud in his paper –‘Cities as Labour Markets’ -compiled the following studies.
In Korean cities, a 10% increase in the number of jobs accessible per worker corresponds to a 2.4% increase in workers’ productivity.
Additionally, for 25 French cities, a 10% increase in average commuting speed, all other things remaining constant, increases the size of the labor market by 15 to 18%.
In the US, Melo et al. show that the productivity effect of accessibility, measured by an increase in wages, is correlated to the number of jobs per worker accessible within a 60-minute commuting range. The maximum impact on wages is obtained when the number of jobs accessible within 20-minutes increases; within this travel time, a doubling in the number of jobs results in an increase in real wages of 6.5%. Beyond 20 minutes of travel time, worker productivity still increases, but its rate decays and practically disappears beyond 60 minutes.
Both papers demonstrate that workers’ mobility –their ability to reach a large number of potential jobs in as short a travel time as possible, is a key factor in increasing the productivity of large cities and the welfare of their workers. Large agglomerations of workers do not insure a high productivity in the absence of worker mobility. The time spent commuting should, therefore, be a key indicator in assessing the way large cities are managed. (p. 24, 25).
Given the way people were re housed after the Canterbury earthquakes -being population fell in central/inner city areas and increased in distant peripheral satellite towns then it is likely that congestion and commuting times have increased. Also the number of jobs accessible by workers in 20 minutes has probably declined. This means Greater Christchurch’s economic potential has been setback and it will not be remedied until Canterbury receives a compensatory improvement in transport infrastructure.
On the issue of whether it is better to be a market town or a diversified commercial city, research from around the world shows that market towns have the lowest income when it comes to the different types of cities.
Note the small share of value added that agriculture (in black) contributes even in market towns. Cities are competitive diversified economies and to function at their best they need to be supported as such. Christchurch as a market town is the past. Christchurch as a modern, diverse, competitive commercial city is the future.
The Productivity Commission has put out a paper calling for submissions on Urban Planning, here. It’s a very wide ranging, going right back to first principles where they have discovered that:
Yet even among planners, there appears to be no agreed definition of “planning” or “urban planning”, and writers have struggled with whether a definition can be provided.
Despite this lack of theoretical certainty I think we all know urban planning when we see it, or perhaps more accurately its outcomes. Pleasingly the paper begins with a short history of Petone which is used to illustrate the accretive and accidental nature of city forming:
The changing nature of urban areas
Urban areas are dynamic, complex places. Land uses and neighbourhoods can change dramatically in response to economic, technological and demographic forces.
One example of this evolution comes from Easterly, Freschi and Pennings (2015), who explored how a single stretch of a New York City street changed over four centuries of development. Easterly, Freschi and Pennings concluded that it is “difficult for prescriptive planners to anticipate changes in comparative advantage, and it is easy for regulations to stifle creative destruction and to create misallocation.” (p. 1)
The town of Petone in Lower Hutt illustrates the diversity of influences that shape urban areas. [Below] provides an outline of its history, although inevitably many important details and events are overlooked. The transition of Petone – from a Māori village, to the intended site of a major colonial settlement, to a working-class industrial area, a run-down town, at various times a retail destination, and a desirable residential neighbourhood – show how unpredictable the evolution of our urban areas can be.
Given this surely accurate observation, shouldn’t any attempts at controlling the form of our cities in fact shy away from control but instead aim for incentivisation? Won’t nudging the direction of individual impulses be likely to be more effective that prescriptive programmes? And much less likely to result in unwanted unintended consequences, like out of control dwelling inflation. After all it appears that even the most egregious of city ordinances are well meant, no matter how much damage they do either indirectly or to other aims. And city building is full of contradictory impulses; for example nothing allows more retention [if not preservation] of older building than economic stagnation, yet surely it is fair to say there are few if any councils that would consciously pursue policies of economic ruin in order to bolster their worthy desire to preserve their city’s built fabric?
Another example is the whole history of auto-priority of the last 60 years across the developed world; so often expensive road and parking infrastructure was built with the very aim of reviving or maintaining the economic life of places, yes these investments simply reinforced their decline and unsuitability of these places for the brave new world of driving focussed city. For example Auckland’s City Centre only really began to recover from the flight of the motorway/sprawl era once Minimum Parking Regs were inverted- replaced with Maximums instead. Thereby nudging development and use of the city towards walkable proximate-focussed more intense land use. In fact MPRs must rank very high up the list of the most destructive yet well meant influences on city development, see this disastrous example from the sadly much governance-abused city of Christchurch; so prioritising ease of parking that the actual destination become untenable and disappears. Mandated parking oversupply is a form of urban self-harm so ubiquitous in mediocre conurbations that it’s become invisible: it’s the teenage cutting of city-management.
The question next becomes what scale of nudge is required to incentivise more productive city building and city using; nudge or shove? Denmark for example, has a 180% tax on new cars and one the highest bicycle usage rates in the world. These two things are surely not unrelated [see here for context, however]. Japan, Singapore, and Hong Kong all have the most widespread and financially successful urban, and in Japan’s case, inter city, Transit networks and all also have significant barriers to car ownership and use, as well as planning rules that enable more efficient land use. See here.
Here is the ProdComm’s quick history of the urban development of Petone:
The evolution of Petone
Prior to European settlement there was a large Te Āti Awa Pa at Pito-one. The New Zealand Company’s surveyor, Captain William Mein Smith chose the Heretaunga (Hutt) river valley for the site of their planned settlement “Britannia”, and the Company ships began arriving in January 1840. Relations between Māori and the settlers were positive in large part due to the hospitality and mana of local chief Te Puni. The grid street plan drawn up in England was soon abandoned. In March the river flooded the settlement, and a fire and earthquake followed in May. Britannia was largely abandoned by the end of 1840, with the settlers having moved to Pipitea/Thorndon, which Colonel Wakefield had long favoured for the settlement.
In 1847 there were probably no more than 20 settler households left, and it remained almost wholly deserted until 1875. The land was poor quality for grazing, and the Hutt River flooded at least annually. Pito-one Pa, with a population of 136, remained the largest and best-fortified pa in the Wellington area. In 1855 a major earthquake lifted the area, draining a portion of the lower valley.
In 1874 the Wellington-Wairarapa train line opened. A large railway workshop was built in Petone. That same year a butcher, James Gear, began to purchase and lease land around the Petone foreshore for a slaughterhouse. It was attractive for the cheap flat land, proximity to the harbour and railway line, and the small size of the local population to be offended by the waste and smell of the facility. In 1883 the company built a 380m long wharf, demolished in 1901. A large wool mill was established in 1886.
Petone grew rapidly, and was gazetted as a town in 1881. A series of factories and breweries were built. Schools, churches, newspapers, sports and social clubs were established in the 1880s, many of which survive today.
A local farmer, Edwin Jackson, sold portions of his land piecemeal with unsurveyed rights- of-way. The result was that by 1885 there was local concern that Jackson Street was an embarrassing series of dog-legs, of varying width along its length. Jackson Street was extended when the land was bought by the borough solicitor on behalf of the Crown in 1888. Blood and offal went straight into the harbour, attracting sharks, so Jackson built a swimming bath near the waterfront. Plans for a gasworks were abandoned in 1897, and the land that had been earmarked for this use was purchased by the council as a recreation ground. But the council declined to buy Jackson’s baths, and a ratepayers poll in 1901 also decided against a purchase, so they were closed.
By the early 1900s Jackson Street was the hub of Hutt Valley commercial activity, with notable stores such as McKenzies, McDuffs and Liebezeits. The Grand Theatre opened in 1916. But Jackson Street’s haphazard alignment was still a problem and between 1927 and 1938 the council widened and straightened Jackson Street, with buildings shifted back on rails or demolished.
New Zealand’s earliest state houses were built in Patrick Street from 1906, although they were sold in the 1930s. Council chambers were built in 1903 and a town clock in 1913. A new wharf was constructed in 1907. Industrialisation continued: Lever Brothers factory opened in 1919, Sunlight Factory in 1924, and a number of car plants in the 1920s and 1930s. Three out of every four cars in New Zealand were said to come from Petone up until the 1950s. The town produced many successful sportspeople and the Petone Rugby Club numerous All Blacks.
Petone, by local standards, was densely populated and heavily industrialised, ugly, grimy, lively and close-knit, more like an English industrial town than a New Zealand one. (Butterworth, 1988, p. 13)
But from the 1950s the area began to decline, as some industries closed and residents moved to the new suburbs of the Hutt Valley. A number of state housing flats were built from the 1950s to the 1970s on the eastern part of Jackson Street. The Borough Council designated an area north of Jackson Street as an industrial zone, and
[t]he result of this was that no one was allowed to improve their properties, which meant many fell into disrepair and were sold off to developers. It was impossible for young Petone people to get a loan to buy property in their hometown so many left for Wainuiomata or Upper Hutt. The town become a place of rented properties owned by absentee landlords. By the mid seventies and eighties Jackson Street was pretty much derelict. (Johnston, 2015, pp. 93-95)
The Council proposed building a ring road around central Jackson Street, to create a mall in the centre of town at a cost of $10 million and the demolition of 80 houses. But significant local opposition stopped the project, and many councillors were voted out.
Petone wharf took its last cargo in 1976. The Gear meatworks closed in 1981. Long- established stores closed and the council chambers were demolished in 1986. Deregulation of the New Zealand economy resulted in many of the remaining factories closing. Developers who were demolishing and rebuilding in Wellington regarded Jackson Street as a place of little commercial potential, so its old buildings were left untended. In turn, “this stagnation ironically preserved the historic CBD as a desirable social and economic centre” (Johnston, 2015, p. 177). Petone recovered in the 1990s as industrial land uses gave way to big box retailing in the west of Jackson Street. Petone again became a retail destination, and this benefited the smaller shops along Jackson Street. A burgeoning bar, café, gallery, and retail sector followed. In 1996 the Historic Places Trust recognised Jackson Street as an Historic Area, but this had no regulatory force. There were a number of battles between local heritage groups, developers and the council over the next decade.
The “character homes” of Petone and its proximity and transport links to Wellington made Petone a desirable residential neighbourhood. A number of apartments were built or converted, consistent with council design guidelines. In 2014 it was announced that many of the state housing flats on the eastern part of Jackson Street were to be demolished, but the Patrick Street cottages survive and are protected. The Grand Theatre, which closed in 1964, was used as an electrical shop, furniture business, and in the 1990s was converted to an apartment complex with boutique shops below. Today, the site of the Gear meatworks is a supermarket, and Petone wharf is a popular fishing location, with fewer sharks than in the past.
Source: Butterworth, 1988; Johnston, 1999, 2009, 2015.
This is AT’s official future vision for the Rapid Transit Network in Auckland. I feel the need to show this again in the context of a number of uninformed views about the CRL popping up again, as one of the chief misunderstandings is to treat the City Rail Link as a single route outside of the network it serves.
All successful transport systems are designed through network thinking and not just as a bunch of individual routes, this is true of our existing and extensive motorway network just as it is true for our rapidly growing Rapid Transit one. The Waterview tunnel is not being built just so people can drive from Mt Roskill to Pt Chev, and nor is the CRL just to connect Mt Eden to downtown.
The CRL is but one project on the way to a whole city-wide network, as is clearly shown below, and as such it doesn’t do everything on its own.
But then having said that because it is at the heart of the current and future city-wide network it is the most crucial and valuable point of the whole system. That is true today and will continue to true for as long as there is a city on this Isthmus. In fact it is hard to overstate the value of the CRL as by through-routing the current rail system it is as if it gives Auckland a full 100km Metro system for the cost of a pair of 3.4km tunnels and a couple of stations. This is simply the best bargain going in infrastructure in probably any city of Auckland’s size anywhere in the world and is certainly the best value transport project of scale in New Zealand. Because it is transformational* for the city and complementary to all our existing systems, especially the near complete urban motorway network.
Additionally the capacity it adds to the region’s whole travel supply is immense: taking up to 48 trains an hour this can move the equivalent of 12 motorway lanes of car traffic. All without flattening any place nor need to park or circulate those vehicles on local roads and streets. And all powered by our own renewably generated electricity. This is how the city grows both in scale and quality without also growing traffic congestion.
This map will evolve over time as each addition is examined in detail. For example I expect the cost-effectiveness and efficiency a rail system over the harbour, up the busway and to Takapuna to become increasingly apparent well before this time period. In fact as the next harbour crossing, so we are likely to see that in the next decade, otherwise this is that pattern that both the physical and social geography of Auckland calls for. Additionally Light Rail on high quality right-of-ways, although not true Rapid Transit, will also likely be added in the near term.
Welcome to Auckland: City.
* = transformational because it substantially changes not only our movement options, the quality of accessibility between places throughout the city and without the use of a car, but also Auckland’s very idea of itself; we have not been a Metro city before: It is doing things differently.
Matt suggested adding this more recent version. I agree this is a good idea, it shows just how quickly ideas are changing in Auckland right now. This is a very fluid and exciting time for the city as the new possibilities are becoming acknowledged by all sorts of significant players. It remains my view that extending our existing rail system is better for Mangere and the Airport, but that taking AT’s proposed LR across the harbour in its own new crossing is a really good option:
And just this morning we get wind of these very big changes for those making plans for Auckland. It looks like the funding roadblocks [pun intended] for the necessary urban infrastructure that the growing and shifting Auckland needs may be melting away….?
The big winners from investment in high quality urban Transit are of course drivers. They benefit from all the people making the rational decision to choose other ways to get around freeing up the roads for those who need or choose to drive. The numbers choosing to make this shift depends on the quality of the alternatives, as is shown by the huge and ongoing rise in ridership in response to the upgrade of the rail network this decade. A boom in uptake that completely caught officials and transport professionals by surprise. Here is the Ministry of Transport report to the Minister as recently as October 2014:
And of course the road freight industry should understand this too; their productivity will rise with every switch from driving to alternative systems in cities. 77% of all vehicles are private cars, so enabling a reduction in private car use, especially at the peaks, is likely to be more cost effective way of speeding truckies and tradies than spending 10 of billions on more roads which simply incentivise more private driving on all roads. Especially as this spending squeezes out opportunities to invest in complementary networks. This is the contradiction at the heart of the RoNS model, especially for urban areas; using all available funds to induce more driving, because traffic is congested.
Auckland needs better alternatives to driving not alternative roads to drive on. For drivings sake.
From this morning’s Herald, Drive. Dr Anil Sharma, Porsche enthusiast:
We get frustrated today at the amount of auto-dependant development that continues to happen in Auckland (and other places around NZ). This is especially as we know the impacts this form if development has on communities and individuals. Many might think that we’re only now realising the impacts however that’s not the case. This video (two parts) from 1978 sounds like the sort of thing we still say today.
We are all having quite a bit of trouble taking all the transport institutions seriously over RTN designations and intentions. The failure for any action to have been taken over a route through Mangere and the Airport over the last decade, and the constant reductions of any available space for a rail ROW there, or at least one not prohibitively expensive, make all the assurances we hear increasingly hard to believe.
Now we are expected to have no concerns at all about a process which shows every sign of just being another massive state highway with a little pretend drawing of a train in the sump of a massive road tunnel.
Tommy Parker confirmed today that buses on the bridge are to be the RTN solution, ie what there is now.
Our view is that this puts the cart before the horse. NZTA should not be starting with a solution without any clear description of the problem. We do not see why it needs a designation over a stretch of water to analyse what may be missing across here. Although it is not the designation that is the problem, but the lack of a needs focused, creative, and open minded analysis that troubles us.
As to us it is clear that what is missing from the existing bridges is a real RTN route [assuming SkyPath happens]. Therefore we expect to see real exploration of what delivering rail only tunnels [or bridge] would do to shape demand here. A rail system would certainly be higher capacity than road tunnels, and, well planned, would also likely be much cheaper and stageable. Adjacent rail systems do add resilience as the TransBay Tunnels did in Loma Prieta earthquake of 1989 in San Francisco. And not do have all of the disbenefits of the massive increase in vehicle numbers throughout the whole city [congestion!] that more traffic lanes will.
We know than any additional road capacity here would be a total disaster for the city, which we are currently de-carring, and the CMJ which is already full, and the North Shore local roads. We also know, and NZTA almost brags about this [see below], the main outcome would be a traffic inducement on a massive scale:
This is ‘decide and provide’ in a bad way, a huge programme of traffic creation; $6 Billion to get people out of buses and into the driver’s seat. What ever we build across this route will be used; what an amazing opportunity to choose to shape both demand and the city in a wholly positive way.
However the fact that NZTA is not currently allowed to spend on rail capex, and anyway really is mainly a State Highway provider and then is not calling for any outside expertise to explore rail systems is also not encouraging:
It is our view that both a driverless Light Metro system, or a continuation of AT’s proposed Light Rail network across the Harbour, to Takapuna and up the Busway, need to be properly explored as the next possible crossing over the harbour. As they are likely to achieve all of the aims NZTA and AT are charged with delivering for the city much more completely and at a lower cost than any additional traffic lanes and without any of the disbenefits.
– the economic benefits of true spatially efficient urban transport system linking the Shore to city and the isthmus RTN
– make a massive transformational shift to public transport
– real carbon and other pollution reductions of scale from a 100% electric system
– huge place benefits, including a real reduction in city car and bus numbers
– no additional massive costs on approach roads
– resilience of additional systems as well as route
We would like to meet with NZTA at the highest level to discuss this further.
We are extremely concerned that institutional momentum is building for a very very poor outcome for the city and country and are determined to improve this process.
We look forward to your reply,
Last week the latest iteration of the National Land Transport Programme was announced. This is largely a business as usual plan, dominated by the big spend on a few massive state highways projects. However there are a few things to be celebrated, especially for cycling, and even more in the language and thinking in the supporting documents. This was repeated at the launch too, especially in the words of NZTA CEO and AT Board representative Geoff Dangerfield, and NZTA Auckland/Northland Regional Director Ernst Zöllner.
The high level aims are all strong and commendable. The focus on ‘economic growth and productivity, safety, and value for money’ are incontestably valuable. If they were to add ‘resilience, energy security, and environmental performance’ it would probably be a perfect list. But of course this is really set by the Government Policy Statement.
Dangerfield was his usual clear and persuasive self, setting a high level context and skilfully bating away questions. Zöllner was particularly articulate about both the dynamic nature of the situation in Auckland and the unformed quality of Auckland’s PT networks; especially the incomplete nature of the core Rapid Transit Network. Both noted the strong growth of PT ridership numbers, which will see a rise in the PT opex spend.
Here’s what the agency says about the Transit and Active modes, in the Providing Transport Choices document:
All incontestable good sense, and exactly the sort of points regular readers here would recognise, especially the emphasis on the value of the high quality own-right-of-way Congestion Free networks of rail and dedicated busways.
People using public transport on high-quality public transport services with a dedicated right of way, like the Auckland Northern Busway or metropolitan rail networks, can now enjoy fast, efficient journeys on comfortable modern buses and electric trains, while freeing up road space for other people and freight.
There remains, however, some considerable daylight between this analysis and the actual projects being funded. This is especially the case with the comparatively tiny sum of $176m for Public Transport Capital Works in Auckland out of a total $4.2 billion spend over the three year period in the region [~4%] and $13.9 billion nationally. This sum [half of which is from the Council’s Transport Levy] will bring much vital kit, like the Otahuhu, Manukau City, and Te Atatu bus interchanges. But is a long way from fixing those big gaps in the RTN network. In response to my questions on this they quite reasonably countered that some funding for bus capex is in other budgets, notably under the AMETI programme, as part of the North Western massive highway works, and the Northern Busway extensions.
However the two Busway sums do not result in the construction of even one metre of additional RTN. For the Northern Busway the previous minister deleted construction of the proposed extension from the accelerated motorway package [a loan to be met from future NLTF], so all we are left with is ‘future proofing’ and no one can ride on a busway that has only been future proofed for. On the Northwestern we do get the improvement of bus shoulder lanes and a station at Te Atatu; but no RTN. AMETI is the best of the bunch, but that’s only if the proposed BRT does happen instead of the place-ruining flyover that appeals more to some entitled voices there.
Then we come to the great problem that the National Land Transport Fund is barred from investing in rail infrastructure yet Auckland is now showing the huge value of using this separate network for moving increasing numbers of people completely outside of traffic congestion. And some RTN routes are clearly best served by rail. Just as well the Council has the courage to just get on with the CRL first stage by itself so at least this vital gap at the heart of the RTN is getting a start.
The case for near term investment in PT and especially for completing the RTN can be summarised thus:
- current demand growth of 20+% on Auckland’s Rapid Transit Network,
- the RTN is showing improved operating cost effectiveness as it grows,
- the strongly voiced value the agency sees in quality PT networks especially their positive effects on traffic congestion and economic growth,
- the well known relationship between what is invested in and what then grows in use plus the positive externalities of increased PT use,
- and the observed sub-optimal nature of the city’s current PT networks in both quality and extent, ie the clear opportunities for improvement.
So despite the good work being undertaken by many in all our transport agencies: NZTA, AT, and MoT, there seem to be structural problems that are leading to important opportunities
being missed in our only city of scale
. It is this context that I wrote to NZTA Auckland and Northland Director Ernst Zöllner with concerns about two specific projects that embody these issues. As this post is already quite long I will run the letter tomorrow morning in a follow-up post…
The Public Transport offer in Auckland has a long way to go, but on some routes, especially in the inner city, it can be not only the quicker but also more pleasant option than driving, particularly once the hassle and costs of parking are considered. We look forward to this advantage being spread out to more areas and for more people as the Electric Trains, the New Bus Network, Proper Buslanes, and Integrated Fares roll out over the next couple of years.
Yet there is still the issue of people’s mindset. I understand this well as it wasn’t until I returned from living in Europe that I just didn’t unthinkingly reach for my car keys to undertake even the shortest or most ill-suited of journeys in Auckland. But also over that time PT services have improved from almost completely useless to on many occasions pretty handy. The Rapid Transit system is at last reaching utility as can be clearly seen by consistent rise in uptake, but there are also bus services like the Inner Link that I now use regularly because, once armed with a HOP card, it is often the best option for many journeys. Frequent enough, and a great place to check my messages between commitments, or just stare out into the city sailing by, perhaps even thoughtfully. It can also be pretty social:
Ride Social: On the Inner Link
My partner and I have recently had two instances that are deeply illustrative of how far many Aucklanders have to go with their car addiction. An addiction born of the environment; as for so long only one means of movement was well supported.
Both times we were happily bussing it, only to be dragged off into relatively unpleasant and time wasting car experiences by people determined to do us a favour and generously save us from perfectly efficient and enjoyable Transit trips.
The first, after a dinner out we were dragged, past our bus stop, into the limitless helllhole that is the SkyCity car dungeon, our hosts struggling to find their car on the bizarre sloping and labyrinthine parking floors, paying an absolute fortune to release it once found, seriously taking way longer and much less pleasantly than hanging on Albert St on a clear evening, even for the relatively roundabout 020.
It was very kind of our friends but I really really would have rather had the bus trip home. The conversation, thereafter, became all about how vile SkyCity is as an experience and how expensive the parking was; which was an order of magnitude higher than our combined busfares.
The second, Maria was on Ponsonby Rd buying flowers en route to the hospital (Bhana Bros; what will we do without you?), only to bump into a mutual friend who insisted on driving her to Grafton. What ensued was a longwinded driving/parking hopeless nightmare. Compared to taking the Link, as she’d intended [directly point to point; unlike the drive], or riding, as I usually do to get to the hosp. and there’s been a lot of that over last few years, what a stupid way to cover that route! Yet this person wouldn’t have a bar of it, absolutely full of how she’d saved Maria from some kind of malady and done her a great favour…. But it actually made her late for her next appointment and robbed her of a contemplative moment on the bus.
I had a similar experience not too long ago. Drinking near Britomart late at night, group decides to go to a bar in Ponsonby. They start the inevitable horse trading of who is driving what and where and whose car I have to go in the boot of. I say bugger that and announce I’m catching a bus, the rest look at me like I’m insane. Basically begging me to cram into their car which is parked in some building like they are saving me from some huge hardship. Me and one other get the Link up no worries, and are well onto our second drink before the rest arrive complaining about nowhere to park etc. All absolutely flabbergasted we got there faster on a bus. One person didn’t believe us and said we must have run straight to a taxi. Anyway, who wants to be driving when bar-hopping?
I get this totally because if you don’t use PT at all you sort of don’t see it, except as that thing blocking your way when driving, also you don’t know how it works, where to catch a service or how long it might take, or what the hell a HOP card is. And it also means you pretty much always have your car with you piling up parking charges or nagging you about the wisdom of having that drink. I really do feel much freer in the city without my car, free to change plans, free to socialise. In the city the car is a burden.
And continued improvements to services are baked into the pie, especially now the the Transport Levy is in place. Although it is extension to the Rapid Transit Network that would be truly transformative. Here is the coming spread of the Frequent Network:
Those that still only ever think of driving are clearly the majority in Auckland but there is a considerable upside to this observation because as the kinds of improvements that are available in only some places become more widespread it means that there are many more Aucklanders who will discover this advantage and add using these services to their options for movement. When and where it makes sense to.
The data supports the idea that this is already happening as the transit trips per capita figure keeps steadily advancing despite the rising poulation. It is now at 50.5 PT trips per capita from 44 in 2011, still very low compared to similar cities
, and reason enough to expect ridership to keep climbing. As long as Auckland Transport keep improving services measurable.
But also thinks of new ways of getting HOP cards into more new hands. Events where PT journeys are part of the ticket price are currently the main way that AT are doing this. But with Fare Integration I think its time they started approaching major employers near good services to include HOP cards in renumeration packages. And for the government to revisit Fringe Benefit Tax rules for both PT and car parks.
Yesterday the Architectural Centre in Wellington have launched a fund raising campaign to fight NZTA’s continued waste of our money on expensive lawyers for their hopelessly unimaginative and retrogressively conceived Basin flyover project. Here’s the Give-A-Little site with a recap of the situation.