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Auckland City
Centre Advisory Board
27 March 2019
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Downtown Infrastructure Delivery
Programme - March 2019 update
File No.: CP2019/03708
Te take mō te
pūrongo
Purpose of the report
1. To
receive an update on the Downtown Programme, and to respond queries previously
raised by the Auckland City Centre Advisory Board.
Whakarāpopototanga matua
Executive summary
2. Downtown
Programme works are underway, with the relocation of utilities along Quay
Street beginning in December 2018. These works will enable the main physical
works associated with piling for the seismic improvements of Quay Street and
the Quay Street public realm enhancements to commence May 2019 (subject to
consents). Works relating to the ferry basin redevelopment commence June 2019
(subject to consents).
3. The
programme of works is scheduled to be complete by December 2020, in advance of
the America’s Cup event in 2021. These timeframes are tight and subject
to approval of resource consents within the predicted timeframes. Challenges to
the consenting process represent a risk to begin able to deliver one, or a
number of the projects, by December 2020.
4. The
temporary traffic management arrangement along Quay Street will be in place for
the duration of the works through to December 2020. The transport network
implications of the works and the temporary traffic management arrangements are
being managed in conjunction with Auckland Transport on a whole of network
basis. Auckland Transport will provide an update on management of the city
centre transport network to the board on 22 May 2019.
5. During
the works period, traffic flows along Quay Street are being maintained at
pre-construction levels, accounting for disruptions on other parts of the
network. At the completion of work, traffic volumes along Quay Street are
predicted to drop by between 40 to 50 per cent along the corridor. This will be
facilitated by changes at the Tangihua intersection and improvements to the
Customs Street light phasing, as well as changes to the wider city centre network.
6. Auckland
Transport have undertaken a strategic review of the proposed Britomart East bus
interchange, and in conjunction with Auckland Council, it has been agreed that
the proposal for a bus interchange on Quay Street between Commerce Street and
Britomart Place is not in line with the aspirations and vision for the downtown
waterfront area. Future option identification and assessment work for bus
facilities in the Britomart East area will therefore discount options that
include bus stops in Quay Street between Commerce Street and Britomart Place
and also the installation of a roundabout at the Quay Street and Commerce
Street intersection.
7. Auckland
Council and Auckland Transport will refresh the Downtown Framework to account
for this change in strategic direction. This will include assessing how this
area could function from a public realm perspective, the interaction with
Britomart Precinct and the future development of the Admiralty and Marsden
breastworks in line with the Port 30 Year Masterplan.
8. A
workshop on the future development of Queens Wharf has been scheduled for 22
May 2019. The workshop is proposed to cover Queens Wharf role within the
context of the other public spaces, how its future vision and use integrates
with the wider waterfront outcomes, the process for reaching an agreed concept
design, and the interdependencies constraining its timeframes for delivery.
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Ngā tūtohunga
Recommendations
That the Auckland City Centre
Advisory Board:
a) receive
the updates on the Downtown Programme, Britomart East bus interchange, and
the Quay Street East amenity
b) note
that Panuku will provide an update on the Queens Wharf Masterplan at a 22 May
2019 Auckland City Centre Advisory Board workshop
c) note
that Auckland Transport will provide an update at the board’s 22 May
2019 meeting on the holistic management of the city centre network in
response to the works being undertaken within the city centre.
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Horopaki
Context
9. Over
the next ten years, the Downtown Programme will create a welcoming destination
along the water’s edge that is recognisably Tāmaki Makaurau. The aim
of the programme is to create a space that strengthens people’s
connection with the Waitematā Harbour. Residents, workers and visitors
will enjoy a safer, more attractive, people-focused environment in which to
move, rest and meet.
10. The programme of works responds to the combined Central Wharves
Strategy, Waterfront Plan 2012 and City Centre Master Plan 2012 implementation
strategy endorsed and agreed by the Governing Body in September 2017.
11. It is
recognised that there is significant benefit to accelerating key elements of
the 10+ year development programme in line with upcoming events such as the
America's Cup and the Asia-Pacific Economic Cooperation 2021 Leaders' Week
scheduled to be hosted by Auckland in 2021. These represent key milestones in
the agreed development programme. It has been determined that the proposed
downtown programme of works should be prioritised for delivery prior to 2021.
12. Accelerating
key projects within the programme means that by 2021, Aucklanders will see Quay
Street become a revitalised waterfront boulevard. The result will be a vibrant
and attractive downtown area for residents and visitors to enjoy.
13. In
response, a single programme of works was agreed at all levels across the
council family to deliver on the outcomes. The delivery of the Downtown
Infrastructure Development Programme is led by Auckland Transport and involves
several entities belonging to the Council family, including Auckland Council
and Panuku Development Agency. The Downtown Infrastructure Development
Programme consists of seven projects identified for delivery by December 2020.
These projects are:
· Quay
Street seismic enhancements
· Quay
Street public realm enhancements
· Ferry
basin redevelopment
· Downtown
bus interchanges (Lower Albert Street and Britomart East)
· Downtown
public spaces
· Galway
Street streetscape enhancement – stage three.
Tātaritanga me ngā
tohutohu
Analysis and advice
Progress to date
14. Construction
on Quay Street began on 27 December 2018, to relocate utility services. The
delivery of this phase is the first part of major works associated with the
Downtown Programme.
15. The
temporary traffic management arrangement associated with the utilities works
will be maintained for the duration of the works through to the end of December
2020.
16. In May
2019, major construction work is planned to start on the seismic strengthening
of Quay Street, the streetscape enhancements and the ferry basin redevelopment,
subject to applicable consents being granted. The Downtown Programme is seeking
consents to enable this delivery. Consents relating to projects within the
programme are at various stages of delivery, as detailed below:
· Contracts
awarded:
o utilities
relocation (currently underway)
o Quay
Street strengthening – Queens Wharf to Marsden Wharf (scheduled to start
construction in May 2019)
· Awaiting
hearings (March 2019):
o Quay
Street strengthening – Ferry Basin
o Quay
Street strengthening – Princes Wharf
o ferry
basin redevelopment
· Awaiting
decision by commissioners:
o mooring
dolphin (expected end of March 2019)
· Awaiting
lodgement
o early
March 2019 – Quay Street enhancement
o April
2019 – Downtown public space
o April
2019 – Quay Street strengthening – ferry building
o under
review – Britomart East bus interchange.
17. Delivery
of the full programme of works is scheduled for December 2020. However, this is
dependent on resource consents being granted in line with programme, and confirmation
of the construction programme by the council’s construction partner. The
construction programme is expected to be finalised in April 2019, however risks
surrounding consent timeframes will remain until approximately September 2019.
18. Should
resource consents not be granted or are appealed, this will put a number of
projects within the programme at risk of delivery ahead of December 2020.
Transport Implications
Holistic
management of the transport network
19. Auckland Transport actively manages the network from the Auckland
Transport Operations Centre (ATOC), monitoring and optimising signal timings in
real time. Management of the network takes into account and responds to the
various changes caused by projects across the whole city centre, including the
changes to Quay Street and those as a result of City Rail Link construction
work.
20. Since
2012, vehicle volumes in and out of the city centre have remained constant. The
significant growth in people accessing the city centre that has been recorded
has been enabled through public transport and active modes. Projects like City
Rail Link and light rail will continue that mode-shift, providing more
convenient travel options.
21. At
a network level, these modes are prioritised as the most effective way to keep
Auckland moving, and these priorities inform the management of the network in
response to the construction activities currently underway across the city.
22. At the 22 May 2019 board meeting, Auckland Transport will provide a
comprehensive update to the Board on the management of the strategic network
and how it takes into account construction activities across the city, as well
as the future operating state of the network once planned works are completed.
Response
to the Downtown programme of works
23. The
Quay Streetscape works will transform Quay Street from vehicle dominated to a
people-focused harbour edge place. As part of this, a significant increase in
pedestrian movement through and across the corridor is predicted with increased
public transport usage, bike, bus, ferry and rail, and an increase in tourists.
24. A
reduction in the number of general traffic lanes to one east-bound lane and one
west-bound lane will be provided in response. The reduction in traffic lanes is
predicted to result in traffic flows on Quay Street reducing by between 40 to
50 per cent along the corridor.
25. Traffic
flows into and out of Princes Wharf, Queens Wharf, the Britomart Precinct and
Te Wero Bridge (Viaduct) are assumed to remain relatively constant (as
currently today). This is in line with long-term strategic transport plans for
the city centre.
26. With
a new Lower Albert Street bus interchange, increased bus patronage will result.
Bus stops on both the western and eastern sides of Lower Albert Street are
complemented with the provision of bus lanes on Quay Street in both directions.
27. Operating
clockwise on Quay Street, the Northwestern services will utilise the eastern
side of Lower Albert Street, with the Northern Express buses operating
counter-clockwise, as they currently operate today.
28. Customs
Street is constrained around Lower Albert Street intersection by City Rail Link
work, so through-traffic is not expected to fully shift from Quay Street onto
Customs Street, until late 2020 when this section of City Rail Link work is
completed.
29. We
are maintaining through-traffic capacity on Quay Street using the following
tools:
· a
consistent traffic management layout is now in place
· some
restrictions on turning movements into and out of side streets.
· the
closure of some pedestrian crossings
· active
monitoring of intersections and adjustments to traffic light phasing
· city
centre wide traffic modelling to understand the impact of a construction-state
Quay Street, as well as an end-state Quay Street with reduced traffic volumes.
30. From
late 2020, with the delivery of Quay Street enhancement, Customs Street will be
prioritised as the route for through traffic. This involves:
· changes
to the Tangihua Street and Quay Street intersection, that will divert traffic
away from Quay Street
· traffic
light phasing changes on Customs Street and possible changes to side street
access and egress
· reduction
in bus movements on Customs Street.
31. In
the long-term, Auckland Council’s Access for Everyone concept and the
later delivery of light rail will simplify the operation of the Customs Street
and Queen Street intersection with the removal of private vehicle
through-traffic from Queen Street onto Customs Street.
Britomart East bus interchange
32. Providing
more opportunities and better opportunities for people to access the city
centre via public transport and active modes is a key outcome aligned with the
council organisation’s vision for the city centre and is a key outcome
for the Downtown Programme. The programme is also striving to deliver great
public amenity and urban design outcomes which integrate with the need to improve
access to the city centre.
33. To ensure
that Auckland Council and Auckland Transport are delivering on an outcome that
is best for Auckland, the Britomart East bus interchange project was put on
hold in November 2018 to review and update the fundamental outcomes associated
with this project.
34. As a
result of this review, and through discussion between Auckland Transport and
Auckland Council, it has been agreed that the proposal for a bus interchange on
Quay Street between Commerce Street and Britomart Place is not in line with the
aspirations and vision for the downtown waterfront area as set out in the City
Centre Masterplan and would not deliver an outcome that is best for Auckland.
35. As such,
future option identification and assessment work for bus facilities in the
Britomart East area will discount options that include bus stops in Quay Street
between Commerce Street and Britomart Place and also the installation of a
roundabout at the Quay Street and Commerce Street intersection. Options
including bus stops or bus layover on Quay Street between Britomart Place and
Tangihua Street will however still be considered. It should be noted that bus
movements may still be required on Quay Street between Commerce Street and
Britomart Place.
36. This is
seen as a positive outcome and acknowledges the importance of connecting the
city with the waterfront through good quality public realm outcomes.
37. The
Britomart East bus interchange project team are now working through the
development of long list options which will be assessed through the business
case process. This will take into account the importance of connections to
other modes and the quality of the public realm connecting them.
Quay Street East amenity
38. In light
of the change in strategic direction with respect to the section of Quay Street
between Commerce Street to Tangihua Street (Quay Street East), Auckland Council
and Auckland Transport will refresh the Downtown Framework to account for this.
This will include assessing how this area could function from a public realm
perspective, the interaction with Britomart Precinct and the future development
of the Admiralty and Marsden breastworks in line with the Port 30 Year
Masterplan.
39. Through
the process of refreshing the Downtown Framework, an agreed reference design
for Quay Street East will be developed for delivery as part of the next phase
of development in the Downtown Precinct. It should be noted that the delivery
of this section to Quay Street is subject to requisite funding being made
available through the Long-term Plan process.
40. To ensure
that the proposed enhancement of Quay Street between Lower Hobson Street and
Commerce Street can function as intended, the project scope includes interim
work between Commerce Street and Tangihua Street to establish the desired
traffic conditions, by reducing the number of lanes and the volume of traffic
on Quay Street. This interim work includes changes to line
markings and alterations to the Tangihua intersection to re-direct
through-traffic to Customs Street East. Consideration will be given to
enhancing the quality of interim work given the likely period required to
realise the long-term vision for Quay Street East.
41. Opportunities
to activate the southern Quay Street footpath between Commerce Street and
Britomart Place are also being investigated for the construction period.
Queens Wharf Masterplan
42. The
development of Queens Wharf into a public oriented space that provides for
quiet relaxation as well as a number of other public use functions is a key
component of the overall development strategy for the downtown waterfront
precinct, in line with the vision set out in the Waterfront Plan and City
Centre Master Plan.
43. The
current programme of works for the downtown precinct is based on the Downtown
Framework 2014 plan, which considers the role of Queens Wharf in the future and
how it would interact with and complement development in the rest of the
precinct. While design development for Queens Wharf has not progressed past the
general organising of ideas set out in the Framework, there is sufficient
detail to plan and programme the various developments currently underway.
44. Given the
high-level of interest in the development of Queens Wharf, a dedicated workshop
with the Auckland City Centre Advisory Board on the future development of
Queens Wharf has been scheduled for 22 May 2019. The workshop will be led by
Panuku, as the agency leading on the wharf’s development. Subject to
feedback from the board, the workshop is proposed to cover Queens Wharf role
within the context of the other public spaces, how its future vision and use
integrates with the wider waterfront outcomes, the process for reaching an
agreed concept design, and the interdependencies constraining its timeframes
for delivery.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
45. The
downtown programme of works was approved through the Planning Committee in
September 2017, and is supported by the Auckland Council group. The works are
seen as a key programme to be delivered by December 2020, in time for the
America’s Cup. The programme is made up of a number of projects funded by
both Auckland Council and Auckland Transport, and represents an integrated
approach to delivering outcomes for Auckland.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
46. Auckland’s
city centre falls within the Waitematā Local Board boundaries. Local board
engagement in the development of the downtown programme has included cluster
meetings, individual board workshops and presentations, responding to questions
for additional information, and responses to concerns that individuals have
raised with their local board. Engagement has been ongoing since March 2018.
47. A number
of workshops have been held with Waitematā, Waiheke and Ōrākei
Local Boards on a project by project basis, with the most recent workshop
sessions for these boards occurring in early 2019.
48. Local
board concerns have focussed on connectivity of public transport services,
particularly for users transferring between ferry and bus services and those
using the Lower Albert Street bus interchange.
49. Feedback
has been provided regarding levels of service/amenity for ferry and bus users,
with a request that design enhance access and mobility for people of all
abilities. In particular, Waiheke Local board provided testimony from health
workers about the importance of convenient and accessible connections to the
hospital using the bus. Waitematā Local Board have expressed interest in
the gradient of ferry gangways. Franklin Local Board highlighted the need for
shelter for those waiting for ferries, given the likely walking distance for
constituents using Pine Harbour Ferry.
50. The
co-existence of cruise ship-related traffic and ferry passengers has been
raised as a concern by Waitematā Local Board, with further information
sought on how this will be managed. Waitematā Local board have also
expressed interest in environmental outcomes, e.g. through the future-proofing
of ferry berths to enable electric ferries.
Tauākī whakaaweawe
Māori
Māori impact statement
51. The
Downtown Programme has taken a partnership approach to working with mana whenua
and ensuring their involvement in the development of the programme and project
outcomes. Mana whenua have been involved in the design development of the
programme since early June 2018, and a mana whenua working group meets weekly
to progress design development.
52. Engagement
with mana whenua has been at both the programme level, developing strategic
outcomes, and the project level, developing detail in response to the strategic
outcomes. This has enabled a much more authentic partnership with mana whenua,
resulting in more engrained Māori outcomes included in the wider
programme. This partnership has been facilitated via Auckland Transport’s
Central Tipu.
Ngā ritenga
ā-pūtea
Financial implications
53. The
budget for the Downtown programme has been agreed through the Long-term Plan 2018-2028
process. Funding sources in addition to Long-term Plan funding include Regional
Land Transport Plan funding (including New Zealand Transport Authority
funding), city centre targeted rate funding, and third-party funding from the
sale of Queen Elizabeth Square in the case of the Downtown public spaces
project.
54. Projects
are being managed within their allocated budgets, and the programme is not
seeking additional funding.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
55. Key
risks are associated with delays to the delivery programme, and
interdependencies with other projects within the programme of works.
Interdependencies are being managed at a portfolio level through the City
Centre Portfolio Steering Group, and at a programme level through strong
relationships with interfacing programme’s of work.
56. There
is very little float within the consenting programme, and there is a risk that
challenges to successful resource consents will mean that certain elements of
the programme of works cannot be delivered ahead of December 2020. The
programme team are working with key stakeholders to identify and manage issues
associated with the programme of works.
Ngā koringa ā-muri
Next steps
57. The
Downtown Infrastructure Development Programme will provide a further update to
the board in May 2019.
Ngā tāpirihanga
Attachments
There are no attachments for
this report.
Ngā kaihaina
Signatories
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Author
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Simon Oddie – Principal Programme Manager.
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Authoriser
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John Dunshea - General Manager Development Programmes
Office
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