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Auckland City
Centre Advisory Board
27 May 2020
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Queen Street Access for Everyone Pilot
update
File No.: CP2020/06464
Te take mō te
pūrongo
Purpose of the report
1. To advise the Auckland City Centre Advisory Board of planning for a
pilot of Access for Everyone principles on Queen Street, in accordance with
requests by the board and the Planning Committee.
Whakarāpopototanga matua
Executive summary
2. The
Auckland City Centre Advisory Board has previously supported the development of
Access for Everyone (A4E) concept, a fundamentally new way of managing
transport in the city centre.
3. The
A4E concept, as part of the City Centre Masterplan, was adopted by the Planning
Committee in March 2020 (Resolution PLA/2020/17). A Queen Street pilot was also
requested for implementation by March 2021.
4. Auckland
Transport (AT) will lead this pilot, due to the need for the pilot to maintain
key transport operational requirements on Queen Street including reliable bus
travel and safe crossings, with support from the Auckland Design Office,
Development Programme Office, New Zealand Transport Agency (NZTA) and AT
departments.
5. The
City Centre Targeted Rate Investment Portfolio has a budget of $2,500,000 for
the City Centre Business Case Development Programme (including Access for
Everyone Concept Investigation). Endorsement in principle is sought from the
board for an allocation of $600,000 to part-fund the Queen Street pilot
project.
6. Funding
is also being sought from NZTA’s new Innovating Streets contestable fund,
which was recently established to encourage trials of temporary street
treatments to improve walking, cycling and urban amenity.
7. The scope and objectives of the pilot are still being confirmed, but
will take the current Covid-19 emergency physical distancing arrangements as
the starting point. More details will be brought to the Auckland City Centre
Advisory Board as the pilot progresses through the co-design process.
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Ngā tūtohunga
Recommendation/s
That the Auckland City Centre
Advisory Board:
a) endorse
up to $600,000 from the City Centre Business Case
Development Programme (including Access for Everyone Concept Investigation)
budget to part-fund the Queen Street pilot project, in conjunction with
Innovating Streets investment
b) appoint
representatives to join a working group to the Queen Street pilot project
c) note regular updates on the Queen Street will be provided.
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Horopaki
Context
8. In July 2019, the Auckland City Centre Advisory Board supported (resolution CEN/2019/35) a budget allocation of $2,500,000
for City Centre Business Case Development Programme (including
Access for Everyone Concept Investigation). This budget sought to develop the
Access for Everyone (A4E) concept further and included the consideration of
trials.
9. The A4E concept, as part of the City Centre Masterplan, was adopted
by the Planning Committee in March 2020 (resolution PLA/2020/17) and at the
same time a Queen Street pilot was also requested for implementation by March
2021. The pilot will build upon the recently installed physical
distancing areas put in as emergency works in response to Covid-19. It is
therefore likely that the pilot will have been in place for some time ahead of
the March 2021 deadline.
Tātaritanga me ngā
tohutohu
Analysis and advice
10. After
discussions with Auckland Council teams, it was agreed that AT will lead this
pilot, for a number of reasons:
· AT
is undertaking the overarching business case for the implementation of A4E
· the
need for the pilot to maintain key transport operational requirements on Queen
Street (for example reliable bus travel, safe crossings, etc.)
· most
of the likely pilot elements (for example vehicle movement and parking
restrictions) are the responsibility of AT
· AT
has existing funding arrangements with NZTA, which will be useful for upcoming
funding opportunities
· AT
has project management resource available and sufficient initial budget to
commence scoping work.
11. The pilot
will be overseen by a steering group consisting of Auckland Design Office,
Development Programme Office, NZTA and AT staff. Initial involvement has also
been sought from Heart of the City, in a similar way to the recent High Street
pilot.
12. Endorsement
in principle is sought from the Auckland City Centre Advisory Board for pilot
to be part-funded from the City Centre Targeted Rate budget item: City Centre
Business Case Development Programme (Access for Everyone Concept
Investigation). The expectation is that $600,000 from the 2020/2021 allocation
will be needed. This funding will support the co-design and engagement process
with stakeholders, as well as contribute to the actual installation and on
monitoring of treatments (albeit the form and scale of these won’t be
developed until the co-design process). The funding would be capped at this
level.
13. Funding is
also being sought from NZTA’s new Innovating Streets contestable fund,
which was recently established to encourage trials of temporary street
treatments to improve walking, cycling and urban amenity. An application has
been made for $1 million but a decision by NZTA will not be made until June. This
funding will go towards the installation of treatments.
14. The
definitive scope and objectives of the pilot are still being confirmed. The
pilot is expected to cover the extent of Queen Street between Mayoral Drive and
Customs Street and require the retention of bus services currently diverted by
City Rail Link works. The key intent is to trial ways of reducing traffic on
Queen Street and improve the amenity for pedestrians, in a way that that
informs future investigations into a wider implementation of the A4E concept.
15. The pilot
will build upon the recently installed physical distancing areas in response to
Covid-19. These were completed as emergency works, however the pilot will be
transitioned in a streamlined workstream. It is expected that over time
elements of the temporary treatment will be improved in various ways to respond
to public feedback or business needs, including adjusting to the requirements
of the emerging post-Covid-19 situation.
16. The
expectation is that the pilot will result in:
· reduced
traffic on Queen Street
· improved
space and amenity for pedestrians
· more
reliable bus services
· maintained
access for business operations and users with disabilities.
17. The current
expectation is that the pilot will be a co-design process with local
stakeholders to come up with designs. As noted above, this will take the
current Covid-19 arrangement as the starting point.
18. More details
will be brought to the Auckland City Centre Advisory Board as the pilot
progresses through the co-design process. A funding agreement between AT and
the Development Programme Office will set out the detailed scope, timeframes
and deliverables. A commitment to utilise the City Centre Targeted Rate funds
will be contingent on a decision from NZTA on the allocation of Innovating
Streets funding, so that a full financial understanding can be made.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
19. The pilot,
being based on A4E principles, is intended to help work towards a Zero Emissions
Area (ZEA) in the Queen Street valley and support a move towards increased
take-up of electric vehicles and active transport options. This is result in
better air quality and support healthier streets.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
20. Both the
Auckland Design Office and Development Programme Office are part of the pilot
and have been involved in scoping the pilot to date with Auckland Transport.
The pilot is a core plank of advancing A4E, as part of the City Centre
Masterplan.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
21. The
Waitematā Local Board will be updated and kept informed of the pilot as it
progresses, and feedback will be sought from the board in terms of design
improvements or communications support.
Tauākī whakaaweawe
Māori
Māori impact statement
22. The project
team plans to engage with iwi as part of the co-design process, recognising the
valuable role mana whenua play in managing and developing the Queen Street
(Waihorotiu) valley.
Ngā ritenga
ā-pūtea
Financial implications
23. The City Centre Targeted Rate Investment Portfolio has a budget of
$2,500,000 for the City Centre Business Case Development Programme (including
Access for Everyone Concept Investigation). Endorsement in principle is sought
from the Board for an allocation of $600,000 to part-fund the Queen Street
pilot project. The funding would be capped at this level.
24. If Innovating
Streets funding is not secured, the project team would need to work with the
board to determine how best to apply the targeted rate budget to still achieve
the pilot’s objectives as best we can.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
25. Given the
complexity and high profile of Queen Street, one of the challenges is
transitioning from the Covid-19 response situation. A risk register is being
established and project governance will manage those risks, including the
ability to escalate issues to the existing City Centre and Waterfront Executive
Steering Group.
Ngā koringa ā-muri
Next steps
26. Pending
a decision from the Innovating Streets contestable fund, the Queen Street pilot
co-design process will commence.
27. The Auckland City Centre Advisory Board and the Waitematā Local
Board will receive regular updates on the Queen Street pilot.
Ngā tāpirihanga
Attachments
There are no attachments for
this report.
Ngā kaihaina
Signatories
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Author
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Daniel Newcombe – Manager Strategic Projects,
Central Access, Auckland Transport
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Authorisers
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Chris Morgan – Manager Strategic Projects,
Auckland Transport
John Dunshea – Lead Officer Support
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Auckland City
Centre Advisory Board
27 May 2020
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Update on Activities to Support Rough
Sleepers
File No.: CP2020/06462
Te take mō te
pūrongo
Purpose of the report
1. To
update the Auckland City Centre Advisory Board on support for people who are
sleeping rough and implications for addressing homelessness in the city centre.
Whakarāpopototanga matua
Executive summary
2. Homelessness is defined as living situations where people are
without shelter, in temporary accommodation, sharing overcrowded accommodation
or living in uninhabitable housing and have no other options to acquire safe
and secure housing.
3. Homelessness
has been a serious and growing issue in Auckland. However, the Covid-19
response has resulted in the provision of over 1,000 motel rooms nationwide,
including 494 rooms in Auckland providing accommodation for 536 people.
4. In addition, people in motel accommodation are receiving
wrap around support to meet their needs, both Covid-19 and non-Covid-19
related. The government has provided $107 million to enable this accommodation
and support to continue until early 2021 as part of a plan to transition people
who had been sleeping rough into safe and secure long-term accommodation.
5. This
support has been transformational, resulting in dramatic changes in the nature
and level of need and the services available for rough sleepers. It is critical
that the finalised Needs Assessment reflects this new landscape to accurately
identify the gaps in the system.
6. The
Auckland City Centre Advisory Board may wish to wait for the Needs Assessment
to make decisions on what additional support to offer. Alternatively, we have
identified the following topics areas where advice could be offered more
quickly if the Advisory Board wishes to provide funding in the short-term:
· provision
of public amenities, including lockers and showers
· support
improved access for people at risk of homelessness to affordable housing though
financial mechanisms and assistance, and/or strengthening financial and housing
literacy
· support
people who are at-risk or experiencing homelessness to participate in
developing, delivering and evaluating services
· facilitate/provide
recreation and community participation opportunities, including education,
training and employment
· strengthen
workforce capacity and capability to deliver effective, integrated services
· promote
communities that are stigma-free and inclusive.
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Ngā tūtohunga
Recommendation/s
That the Auckland City Centre
Advisory Board:
a) indicate
which opportunities, if any, the Advisory Board would like to receive
further advice on.
b) request
an updated timeline for the Needs Assessment be provided to the Advisory
Board at the July meeting.
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Horopaki
Context
7. Homelessness
is defined as living situations where people are without shelter, in temporary
accommodation, sharing overcrowded accommodation or living in uninhabitable
housing and have no other options to acquire safe and secure housing.
8. At the 2013 census, over 20,290 Aucklanders were considered homeless, a 26 per cent
increase since 2006. A conservative forecast predicted this would increase
to more than 26,500 people in Auckland by 2021. Figure 1 gives an
overview of homelessness in Auckland based on the 2013 census.
9. The 2013 census found that in the Waitematā local board area
nine per cent of dwellings were overcrowded and that 207 people were living in
boarding houses (the third highest in Auckland).
10. The
Ira Mata, Ira Tangata – Auckland’s Homeless Count in September 2018
estimated a minimum of 3,674 people living without shelter and in temporary
accommodation across the Auckland region. Of this, there were at least 128
individuals living rough in the Waitematā local board area, 38 per cent of
the regional total of rough sleepers counted.
11. Data from the 2018 census was delayed due to concerns about the
quality of the data. We have been advised that the release of data on
homelessness is imminent.
Figure 1:
Homelessness in Auckland, 2013 census
12. Homelessness
is caused by a range of interacting personal and structural factors as
illustrated in Figure 2 below. In recent years, as housing supply has become
more constrained, people with fewer personal risk factors have faced
homelessness.
Figure 2: Individual
and structural drivers of homelessness
13. Auckland’s
Māori and Pacifica communities continue to be disproportionately affected
and the crisis is increasingly affecting working families, women, children and
young people, and rainbow youth. The 2013 census found that nationally, 52 per
cent of homeless people were employed, in education or both.
14. The
nature and scale of homelessness varies across the Auckland region. It is most
concentrated and visible in the central city, the west and the south of the
region, but is also an emerging issue in other, more affluent areas.
Council has an important role to play
15. Central
government has legislative responsibility for the provision of public/social
housing and health and social services and is leading efforts to address
homelessness nationally.
16. In
August 2017 the Environment and Community Committee agreed that council’s
position on improving, ending and preventing homelessness in Auckland: that it
should be ‘rare, brief and non-recurring’ (ENV 2017/118).
17. They
agreed that council’s role is to strengthen established levers. This
includes leading and coordinating Kia Whai Kāinga Tātou Katoa -
Auckland’s regional, cross-sectoral homelessness plan. It also plays a
role using its planning and regulatory powers, close ties to local communities,
funding for seeding initiatives, and frontline staff who frequently engage with
people who are homeless.
18. Council
has been playing a ‘backbone’ agency role facilitating the regional
plan as part of a collective impact approach. Auckland stakeholders have
developed the Kia Whai Kāinga Tātou Katoa strategic framework and
identified (pre-Covid-19) priorities for 2020.
19. Central
government released the National Homelessness Action Plan on 13 February 2020.
The national and regional plans are closely aligned.
20. Council is also developing the Auckland Council Homelessness Action
Plan, which will outline the key measures council will undertake in its own
right to help make homelessness rare, brief and non-recurring (as opposed to
Kia Whai Kāinga Tātou Katoa, which focuses exclusively on
collaborative action within the sector).
Tātaritanga me ngā
tohutohu
Analysis and advice
21. A range of
initiatives were underway pre-Covid-19 to support people sleeping rough in
Auckland. This included the Inner City Auckland Homelessness Initiative, the
development of a by-name list (or Registry) and the assertive outreach service
funded by the Advisory Board.
22. The Covid-19
response has included support for people sleeping rough that has totally
transformed the operating environment and created new opportunities for the
sector.
Extensive support has been provided to rough sleepers as part of the
Covid-19 response
23. People
sleeping rough are at high risk of catching and transmitting Covid-19 due to
their living conditions, underlying health conditions and high level of
mobility. However, they have minimal ability to socially isolate while sleeping
rough.
24. The sharp
reduction in tourism caused by Covid-19 has created significant spare motel
capacity and the government has used this as an opportunity to house people who
had previously been sleeping rough.
25. As at late
April 1094 motel units had been secured nationwide, including around a third in
Auckland (some units will house more than one person but not all units will be
in use). In addition to safe accommodation, people have received regular meals,
access to medical care (both Covid-19 and non-Covid-19 related) and other
social support.
26. There has
been extensive outreach to ensure people sleeping rough are aware of, and able
to access the support that is available. The assertive outreach funded by the
Advisory Board played an important role in this. James Liston Hostel, which
received $2m from the Advisory Board to support their redevelopment, is also
providing important support, although on a more limited scale to enable
compliance with social distancing rules.
27. Between 27
March and 28 April 2020, 495 people were supported into emergency accommodation
in motels. It is estimated that around 70 to 80 per cent of people in the
Auckland region who had been sleeping rough are now in motels.
28. Those who
have declined accommodation have done so for a variety of reasons, including
addiction, lack of local accommodation or not wishing to be temporarily
separated from their pets. There is ongoing work to provide support for these
people and to identify accommodation that meets their needs.
29. One NGO has
described profound improvements in the health and wellbeing of people now
housed in motels, including people that had previously been resistant to
leaving the street. However, in some cases there have been issues with drug use
and compliance with social distancing rules.
30. The Covid-19
response has been enabled by extensive collaboration between NGOs, council and
central government. Some of the processes and systems set up in Auckland are
now being considered as models for operations in other parts of the country.
31. The
government’s National Homelessness Action Plan included a commitment of
over $350 million. In a pre-Budget 2020 announcement the government has
provided an additional $107.6 million to enable continued use of motels for accommodation
and wrap around support. Details of the funding will be provided in the Budget
on 14 May, but we expect around one third of the funding will be used in
Auckland.
32. In broad
terms we understand the funding will enable people currently housed in motels
to remain there until early 2021. During this period they will be provided with
wrap around support services and a path to long-term, safe, stable
accommodation.
Substantial changes to the Needs Assessment are required due to Covid-19
33. The Needs Assessment was commissioned as part of the Inner City
Auckland Homelessness Initiative. The objective was to describe the housing,
support and social needs of homeless people in the city centre, how
those needs are currently met, and to identify gaps in provision that should be
prioritised
34. An initial
report was completed by Lifewise in late 2019. Auckland Council’s
contribution to this cross-sectoral initiative includes further developing and
completing the Needs Assessment. Council’s Research, Innovation and
Monitoring Unit is leading this report.
35. To date the
Research, Innovation and Monitoring Unit has engaged with key stakeholders to
address concerns, and to strengthen awareness, understanding and support for
this work. They have reviewed and updated references in the original paper and
incorporated additional research and agency data. Ethics approval to consult
with stakeholders has been secured.
36. Further work
to complete the Needs Assessment will involve:
· continued
engagement with key stakeholders to ensure broad support for the work
· collating
and incorporating additional research and data newly collected from those
currently housed in motels as part of the Covid-19 response
· interviewing
key stakeholders to identify and prioritise service gaps
· a
workshop to validate and finalise the analysis.
37. The report
will be independently peer reviewed and submitted to the Inner City Auckland
Homelessness Initiative Governance Group for endorsement.
38. It will not
be possible to complete these steps until:
· the
Covid-19 response eases, and NGOs and central government agencies have the
capacity to engage
· Covid-19
recovery planning has progressed further, in particular clarity about the
national approach to securing long-term accommodation for people currently
housed in motels and the services that will be available to support them
· data
is available on those who have been housed in motels.
39. Our intention
is to start updating the Needs Assessment at the start of June 2020, subject to
the constraints above. We will provide the Advisory Board with a memo updating
the board on the timeline for the Needs Assessment at its July 2020 meeting.
There are still opportunities for the Advisory Board to support people
sleeping rough in the city centre
40. The Needs
Assessment will provide an up to date picture of priority gaps in the city
centre for the medium to long term. However, there are other options if the
Advisory Board wishes to make funding decisions in the short term. Staff are
currently undertaking exploratory work on the following topics and can provide
future advice to the board if requested.
Night shelter
41. The Advisory
Board has previously discussed funding a night shelter. Two groups are
currently developing proposals for night shelters in the city centre and staff
will continue to work with these groups. The final decision maker for these
proposals will be the Ministry of Housing and Urban Development.
42. At present
the vast majority of potential users of a night shelter are housed in motels,
which provide a safer and more supportive environment. For those who have
refused motel accommodation, it is not clear that a night shelter would be able
to address their concerns, such as enabling them to keep their pets.
43. As noted
above, the government has announced funding of nearly $0.5 billion to support
people who had been homeless before Covid-19 (across the full spectrum of
homelessness and including those at risk of becoming homeless). It would be
important that any initiatives funded by the Advisory Board are consistent with
the government’s activities as the lead agency and key funder.
44. One of the
critical success factors for a night shelter is having the right operating
model. For instance, Wellington Night Shelter is currently under review after
the organisation concluded its operating model was not fit for purpose.
Developing an operating model in the short term will be extremely challenging
given the very significant changes in the level of need and the available
services.
45. If the
Advisory Board wishes to fund initiatives in the short-term to support people
rough sleeping some options are outlined below.
Public amenities
46. Work has been
underway to address the perceived lack of public amenities in the Auckland city
centre. Better access to public toilets is being addressed through actions
including improved wayfinding and measures to reduce timeframes for repairs.
These measures will benefit people who are rough sleeping, but there are still
unmet needs around access to lockers and showers.
47. A proposal
has been developed for a two-year pilot of e-lockers in three locations in the
city centre, suitable for commuters, travellers and rough sleepers. However,
funding for this pilot has not yet been confirmed.
Kia Whai Kāinga Tātou Katoa Priorities
48. Kia Whai
Kāinga Tātou Katoa (the regional cross-sectoral homelessness plan)
identifies 22 focus areas. If the Advisory Board wished we could provide advice
on potential opportunities to progress work associated with one of these focus
areas, such as:
· support
better access for people at risk of homelessness to affordable housing though
financial mechanisms and assistance, and/or strengthening financial and housing
literacy
· support
people who are at-risk or experiencing homelessness to participate in
developing, delivering and evaluating services
· facilitate/provide
recreation and community participation opportunities, including education,
training and employment
· strengthen
workforce capacity and capability to deliver effective, integrated services
· promote
communities that are stigma-free and inclusive.
Begging
49. Our
engagement with NGOs, research and previous work undertaken by council
indicates that a large proportion of people begging in the city centre may not
be homeless. This means that initiatives to support people who are sleeping
rough are likely to only have a minimal impact on begging.
50. As part of
work to address anti-social behaviour, staff have begun exploring potential
initiatives to address begging, learning from other cities who have
successfully addressed this challenge.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
51. Addressing
homelessness will increase resilience as people who are experiencing
homelessness are likely to be more exposed to the effects of climate change,
such as increases in the number of hot days and the frequency of extreme
rainfall events.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
52. Council’s
support for people rough sleeping has been provided across the council family.
Council is currently engaging with the council family regarding actions to be included
in the Auckland Council Homelessness Action Plan.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
53. Auckland’s
local boards were engaged in the early phase of developing the regional,
cross-sectoral plan to understand the issues in different areas, identify
successful local initiatives and invite members to participate in developing
the plan.
54. Local
boards generally agreed that homelessness was either a prominent or emerging
issue in their area. They acknowledged boards were unaware of the scale of
‘hidden’ homeless and required more data on this form of
homelessness.
55. Council
is working with local boards who expressed an interest in incorporating
homelessness objectives and initiatives in their plans.
56. Staff will be
holding a workshop on the homelessness response with the Waitematā
Local Board on 27 May 2020 and will be able to verbally update the Advisory
Board on the local board’s views.
Tauākī whakaaweawe
Māori
Māori impact statement
57. The most
recent national homelessness statistics (2013) indicated that nearly 13,000
people identified as experiencing homelessness were Māori. Māori are
five times more likely to be homeless in New Zealand than the general
population.
58. In 2013 over
4,000 Māori in Auckland were estimated to be homeless - a greater
proportion than any other region. Ira Mata, Ira Tangata (the 2018 point in time
count of homelessness in Auckland) found that over 40 per cent of those
surveyed identified as Māori. This is consistent with early data from the
Covid-19 response.
59. Māori
experience additional complexities and risk factors relating to homelessness
and are affected by structural disadvantage, such as over-crowding. In 2013
there were 203,817 Aucklanders (35,594 households) living in overcrowded
conditions. After Pacific peoples, Māori are the second most affected
group in this category. Addressing homelessness is likely to deliver
significant benefits to Māori.
60. The
priorities and actions in this report include a focus on the needs of
Māori who are homeless and supporting Kaupapa Māori initiatives that
will contribute to the prevention of homelessness.
Ngā ritenga
ā-pūtea
Financial implications
61. Central
government has allocated nearly $0.5 billion as part of the National
Homelessness Plan and the Covid-19 response. We are working with central
government agencies to understand how this funding will be used in Auckland and
the implications for Council’s work to support people who are homeless.
62. The Needs
Assessment will provide an up to date picture of the current level of need,
available services and gaps in the system, including very high level costings
to address these gaps.
63. If the
Advisory Board requests further advice on opportunities to support people who
have been sleeping rough, this advice will include details of financial
implications.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
64. The key risk
is that Covid-19 has created an extremely dynamic environment in terms of both
the needs of people who have been sleeping rough and the services available to
them. To mitigate this risk we have identified options that would be valuable
for a broad range of communities and the option of deferring funding decisions
until the environment is more stable.
Ngā koringa ā-muri
Next steps
65. Council will
continue to work closely with NGOs and central government on Covid-19 and
post-Covid-19 support for people who have been rough sleeping.
66. If the
Advisory Board requests advice on opportunities to provide funding in the
short-term to support people who have been rough sleeping this will be provided
at the Advisory Board’s July 2020 meeting. We will also provide an update
on the timeline for the Needs Assessment at the July 2020 meeting.
Ngā tāpirihanga
Attachments
There are no attachments for
this report.
Ngā kaihaina
Signatories
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Authors
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Ben Brooks - Team Leader Community Policy
Tam White - Senior Governance and Relationship Advisor
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Authorisers
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Kataraina Maki – General Manager, Community
& Social Policy
John Dunshea – Lead Officer Support
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