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Environment
and Climate Change Committee
18 August 2022
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Sustainable
access for a thriving future: Auckland's Transport Emissions Reduction Pathway
File No.: CP2022/11289
Te take mō te
pūrongo
Purpose of the report
1. To seek adoption of Auckland’s Transport Emissions Reduction
Pathway.
Whakarāpopototanga matua
Executive summary
2. The
Intergovernmental Panel on Climate Change (IPCC) is clear; global warming has
to be limited to 1.5 degrees Celsius to avoid the most catastrophic impacts of global warming,
and this is only possible with ambitious greenhouse gas emissions cuts.
3. Te
Tāruke-ā-Tāwhiri: Auckland’s Climate Plan was adopted by
council in July 2020 (ECC/2020/29). It is a 1.5 o C compliant plan that requires Auckland’s emissions to be reduced by 50% by 2030 and to reach
net zero emissions by 2050. Changing the way people and goods move around the
region is critical to achieving this goal, as transport is the largest source
of Auckland’s emissions, accounting for over 40% of the total.
4. As
a condition of its endorsement of the Regional Land Transport Plan (RLTP)
2021-31 (PLA/2021/61) in June 2021, the Planning Committee directed that a
Transport Emissions Reduction Pathway (TERP) be developed. This was deemed
necessary as the RLTP investment programme only resulted in minor reductions in
transport emissions by 2030, which is not in line with the requirements of Te
Tāruke-ā-Tāwhiri.
5. The
TERP sets out a pathway to reduce Auckland’s transport emissions by 64%
(relative to 2016) to around 1.75 mega tonnes of CO2e by 2030. The
64% figure originated in Te Tāruke-ā-Tāwhiri as part of its
modelled pathway to a halving of overall emissions by 2030. The TERP sets
formal strategic direction only for the council group, but requires all parts
of the transport sector to play their part.
6. Achieving
transport emissions reductions of this magnitude by 2030 requires every
available lever to be pulled as hard as is credibly possible. Mode shift,
electric vehicle uptake, reduction in car trips and every other lever are all
stretched to the limit of what is possible in eight years. For this reason,
only one pathway is presented.
7. Because it is such a crucial part of reducing emissions, there has
to be a rapid and complete transformation of the transport system – it
has to fundamentally change.
8. While
the challenge is huge, the solutions to rapidly decarbonise the transport
sector already exist and will help to achieve broader wellbeing goals. Many
other cities around the world have taken actions similar to those proposed in
the TERP as they transform their transport systems to be more affordable,
energy-efficient and safer for everyone.
9. Taken
individually most of the actions included in the pathway are not radical, they
are commonplace in a great many jurisdictions around the world. Once
implemented, transport in Auckland would be similar to many other cities where
much more travel by sustainable modes - and far less car-dependency - is
already the norm. Nevertheless, the scale of the task ahead should not be
underestimated, especially given Auckland’s relatively low starting point
in terms of public and active transport mode share and the historically low
density, dispersed urban form.
10. Over
70% of Auckland’s transport emissions come from light vehicles such as
cars, vans and utes, with over half of car trips being less than 6km. Many of
these short to medium-distance car trips are well-suited to shifting to
sustainable modes such as walking, cycling, micromobility and public transport.
The TERP requires that these modes are made as convenient, attractive and
affordable for as many people as possible in order to facilitate this shift.
11. Cars
will still be used, but the fleet will need to be much more emissions
efficient. More people using space-efficient and sustainable modes means that
freight, deliveries and people who still need to drive should experience more
reliable travel times.
12. The
TERP sets out eleven areas for transformation. Each transformation area
includes several strategic directions and detailed actions for implementation.
These represent an integrated set of actions that work as a package – a
selective implementation approach will not achieve the emissions goal.
13. The
TERP further considers what needs to be done to create a supportive transport
planning system and how barriers can be addressed, as well as what Auckland
Council and Auckland Transport will do to integrate the TERP into the transport
planning system.
14. The
pathway has been developed, and will be implemented, in the wider context of
increasing government action on climate change. While national-level targets
are less ambitious than Auckland’s pathway, the direction and actions set
out in the TERP and the government’s Emissions Reduction Plan (ERP) are
well-aligned. Auckland is better placed than other regions to contribute to the
government’s transport goals through accelerated mode shift. Auckland can
also more easily develop housing and jobs around locations with good public
transport, cycling and walking. Partnership with government is critical to
achieve shared outcomes.
15. The
TERP is a strategic document setting out what needs to be true in order to
reduce Auckland’s transport emissions by 64% (relative to 2016).
While it does not, in itself, require any budgetary allocation, the
implementation of the TERP will require a reconsideration of budgets and
priorities associated with the Auckland Transport Alignment Project (ATAP),
Regional Land Transport Plan (RLTP) and Long-term Plan (LTP).
16. Auckland
Transport will develop an implementation programme to deliver the TERP actions,
review the alignment of existing processes with the pathway’s outcomes,
and ensure those outcomes are embedded in future prioritisation and
decision-making processes. Work to implement some of the actions in the
pathway, however, can start immediately and does not need to wait for decisions
to be taken through these processes.
17. The
implementation of the pathway will require robust engagement with mana whenua,
mataawaka, communities and local boards.
18. Auckland’s
current car-dependent system is inherently inequitable, as it is challenging to
navigate for those without access to a car. More than one third of Aucklanders
cannot drive, while others are forced into car ownership even when they cannot
afford to do so. The TERP will rebalance the transport system to provide more
affordable and sustainable transport choices for people. Some specific actions
in the TERP, such as congestion pricing, will require additional mitigation to
avoid further inequities.
19. Ultimately,
the transition to a low-emissions and climate-resilient transport future is a
pathway towards improved wellbeing for all Aucklanders. The actions contained
in the TERP would mean more affordable transport choices, better access to
opportunities particularly for those who are underserved by a car-dependent
system, safer streets that promote independent travel for all ages and
abilities, increased levels of healthy physical activity, improved air quality
and reduced noise pollution, more congestion-free options, and more effective
use of limited public funds.
20. The scale of the emissions reduction challenge is enormous, but so
too is the significance of the moment. So much will need to change and only
eight years – less than 100 months – remain to make it happen. To
meet the target, Auckland cannot rely on incremental change; it needs
transformation.
Ngā tūtohunga
Recommendation/s
That the Environment and Climate
Change Committee:
a) note
that Auckland Council declared a climate emergency in 2019 and adopted Te Tāruke-ā-Tāwhiri: Auckland’s Climate Plan in
2020, which included a modelled 64% reduction in transport emissions as part of
a pathway to halving overall emissions by 2030.
b) adopt
the Transport Emissions Reduction Pathway, as set out in Attachment B of the
agenda report, to give effect to Te Tāruke-ā-Tāwhiri’s
required 64% reduction in transport emissions.
c) note the
Auckland Transport Board endorsed the Transport Emissions Reduction Pathway in
August 2022 as shown in Attachment D of the agenda report.
d) instruct
Auckland Council and Auckland Transport to embed implementation of the
Transport Emissions Reduction Pathway through all of their activities,
including future updates to key transport planning and funding processes such
as the Auckland Transport Alignment Project and the Regional Land Transport
Plan, and land use policy such as the Future Development Strategy and the
Auckland Unitary Plan.
e) note
that the actions identified in the Transport Emissions Reduction Pathway will
deliver significant co-benefits across multiple outcomes including safety,
equity, access to opportunities and environmental sustainability.
f) note that the Transport Emissions Reduction Pathway requires not
only a transformation in Auckland’s transport system, but also a
willingness from Aucklanders to take up the travel options that the pathway
requires.
g) note
that Auckland Transport will develop an implementation
programme to respond to the Transport Emissions Reduction Pathway, which will ensure it is embedded in Auckland Transport’s key
accountability measures, planning and prioritisation processes, and that the
programme will be provided to council for noting and reporting progress.
h) request
that for the implementation programme referenced in clause g), Auckland
Transport:
i) includes
a supporting mana whenua and mataawaka engagement plan
ii) seeks
the endorsement of the Environment and Climate Change Committee (or its
equivalent)
iii) reports
progress on the delivery of the implementation programme to the Environment and
Climate Change Committee (or its equivalent).
i) note
that Auckland Council and Auckland Transport will develop a proposed governance
and monitoring framework to oversee the implementation of the TERP, for
approval by the Environment and Climate Change Committee (or its equivalent) in
early 2023.
j) instruct
Auckland Council and Auckland Transport to engage fully with mana whenua and
mataawaka throughout all aspects of the implementation of the Transport
Emissions Reduction Pathway.
k) instruct Auckland Council and Auckland Transport to immediately
commence implementation of actions earmarked for delivery in the first two
years of the Transport Emissions Reduction Pathway, including advocating to
central government for supporting action.
Horopaki]
Context
Recap
21. Auckland
Council unanimously adopted Te Tāruke-ā-Tāwhiri:
Auckland’s Climate Plan in July 2020 (ECC/2020/29),
including a 64% reduction in transport emissions (against 2016 levels) modelled
as part of the target of halving overall emissions by 2030 and transitioning to
net zero emissions by 2050. The plan received very high public support, with a
record number of supporting submissions received from Māori,
Pasifika and rangatahi/young people.
22. In
June 2021 the Planning Committee endorsed the RLTP 2021-31 (PLA/2021/61).
As a condition of its endorsement the committee directed Auckland Council and
Auckland Transport staff to jointly develop a TERP. This work was deemed
necessary as the RLTP investment programme only resulted in minor reductions in
transport emissions by 2030, which is not in line with the requirements of Te
Tāruke-ā-Tāwhiri.
23. The
remit of the TERP is to set out what needs to be true in order to achieve a 64%
reduction in transport emissions by 2030.
24. The
proposed approach to the TERP’s development was approved by the
Environment and Climate Change Committee in August 2021 (ECC/2021/32). The
Committee also established a Transport Emissions Reference Group to provide
direction on the development of the TERP. There are nine members in the
reference group including three councillors, two representatives from the
Tāmaki Makaurau Mana Whenua Forum, one member of the Independent Māori Statutory Board, and three Auckland
Transport board members. The reference group met regularly on the TERP and
provided direction on the development of the pathway and final documents.
25. In December 2021 the Environment and Climate Change Committee
received a progress update on the TERP and approved a range of key
interventions for early implementation (ECC/2021/45).
26. Auckland Transport’s board endorsed the TERP at its meeting on
9 August 2022. The board’s resolutions are attached (Attachment D)
Global and national context
27. The climate is changing. The world is getting warmer because of
rising greenhouse gas emissions. Rising temperatures will affect crops, speed
up sea level rise, and cause more frequent and more extreme weather events,
both here and overseas. To lessen these global risks, cities need to reduce
emissions as fast as possible.
28. The
target to halve regional emissions by 2030 and the decarbonisation
pathway set out in Te Tāruke-ā-Tāwhiri
(including the modelled 64% reduction in transport emissions) were endorsed by the
C40 cities network. Achieving these goals is necessary to
keep global warming below 1.5° Celsius to avoid
catastrophic climate change.
29. Ongoing membership of C40 is dependent on Auckland’s
performance in the network’s periodic evaluation of its climate ambition
and its contribution to global climate action. Not
meeting the commitments made under C40 would potentially mean Auckland losing
its membership. This carries a significant reputational risk in a world where
business increasingly seeks to trade and invest in green economies, and cities
that are not seen as taking genuine climate action risk losing their
competitive advantage.
30. The TERP also functions in the wider context of increasing
government action on climate change. New Zealand is a signatory to the Paris
Agreement. The government has committed to the country achieving net zero
emissions by 2050 through the passing of the Climate Change Response (Zero
Carbon) Act 2019. There is cross-party support for the Act and the three
emissions budgets released by the government, which limit how much New Zealand
can emit over each of the three periods up to 2035. This means
government’s commitment to climate action will continue even if the
government changes.
31. The government’s Emissions Reduction Plan (ERP), which
describes how the government will deliver on the first emissions budget, was
released in May 2022. It sets
out a pathway to an approximate 41 percent reduction (on 2019 levels) in New
Zealand’s carbon emissions by 2035. Transport is expected to play a
crucial role in meeting this target.
32. While the national-level targets are less ambitious than those in
Auckland’s pathway, the directions and actions are well-aligned. Both the ERP and the TERP identify high levels of mode shift to
public and active transport as the most important factor in reducing transport
emissions. This is crucial as partnership between government and council is
fundamental to transforming the transport system.
33. The government expects Auckland to play a disproportionately large
role in contributing to national climate goals. This will be reflected in the
regional targets government agrees with council. Given its scale Auckland is
well placed to make a disproportionate contribution (relative to other regions)
by accelerating mode shift through both service improvements and the
development of housing and jobs in places with good walking, cycling and public
transport connections. The regional Vehicle Kilometres Travelled (VKT) reduction target for
Auckland will likely lessen, but not fully close, the gap between the national
target and the TERP.
Tātaritanga me ngā
tohutohu
Analysis and advice
Transport Emissions Reduction Pathway
34. The TERP
provides a pathway for the whole transport sector to achieve a 64% reduction in
transport emissions by 2030. It also provides formal direction that, if adopted,
Auckland Council and Auckland Transport must give effect to through all of
their activities, including updates of key planning and funding documents such
as ATAP and the RLTP, and land use policy such as the Future Development
Strategy.
35. A summary document
has also been created to assist with general communication and understanding of
the transition ahead (Attachment A). The summary sets out why a
reduction in transport emissions is urgently required, what the TERP is, the
essence of the pathway and what that means, what the next steps for council and
Auckland Transport are, and some things Aucklanders can do to reduce their own
transport emissions.
36. The primary
TERP document describes the pathway in full, including the scale of
transformation required, the high-level interventions required, and the changes
to the transport planning system needed to facilitate those interventions (Attachment
B). This document is aimed at agencies and partners such as Waka Kotahi,
Ministry of Transport and others.
37. Auckland’s
transport system is crucial to its response to climate change. It is the single
largest source of Auckland’s emissions, accounting for just over 40% of
the total. Over 70% of Auckland’s transport emissions comes from light vehicles
(e.g., cars, SUVs and utes) (Figure 1). Growth in light vehicles VKT is the
primary reason Auckland’s transport emissions have increased by 86% since
1990. Today, Aucklanders have one of the highest transport emissions per capita
in the world.
Figure 1 – Auckland’s transport emissions profile
38. Because it is such a crucial part of reducing emissions, there has
to be a rapid and complete transformation of the transport system – it
has to fundamentally change.
39. The
TERP is required because current investment plans, combined with confirmed
government policies that incentivise the uptake of lower emissions vehicles and
more efficient fuel mixes, are forecast to produce only a small reduction in
Auckland’s transport emissions by 2030 – around 6%, approximately
one-tenth of what is required. This is shown in Figure 2 as Baseline. The
Business-as-Usual line shows that with population growth and no planned changes
to the transport system, emissions would continue to rise.
Figure 2 – Pathway scenarios (2019
– 2030)
40. The Pathway
line in Figure 2 shows the enormous scale of change required to bridge the gap
between the baseline and a 64% reduction in transport emissions, to around 1.75
mega tonnes of CO2e in 2030.
41. Achieving a
two thirds reduction in transport emissions in the timeframes available will be
incredibly challenging. The transformation required means that:
· Light
vehicle VKT needs to reduce by half, requiring comprehensive alternatives to
private car travel. Around half of all car trips are less than 6km in length
and around half of all short trips (less than 2.5km) are taken by car. It
is these trips that represent the greatest opportunity for mode shift.
· A
huge increase in the uptake of walking, cycling, micromobility and public
transport is required to replace trips no longer taken by car.
· Cars
will still have a place in the system, but they must be more efficient, with a
higher proportion of the fleet being zero and low emissions.
· Trips
need to be shorter. This means land use must change so that people can more
easily access services and amenities close to where they are.
42. The pathway
requires an ambitious uptake of active modes and public transport by distance
by 2030. Taken together, this represents around 45 percent of distance
travelled by sustainable transport modes. The changes are summarised in the
table below.
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Trip share
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Mode
share by distance
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Mode
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2019
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2030
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2019
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2030
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Walking
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11%
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22%
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1%
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3%
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Cycling
and micromobility
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1%
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17%
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1%
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13%
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Public
transport
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4%
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23%
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4%
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29%
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43. The pathway
also requires a high uptake of Evs (32% of total VKT share by 2030) and
significant reductions in freight (45% by 2030), aviation (50% by 2030) and
shipping (50% by 2030) emissions.
44. Figure 3
below compares the distribution of the changes by transport mode in the current
state (2019) against the pathway (2030).
Figure 3: Pathway emissions profile
45. Combinations
of system settings were tested to assess their impacts on Auckland’s 2030
emissions profile. It is clear that every single system lever must be pulled as
hard as credibly possible. For this reason, only one pathway is presented. Two
other pathways were assessed – an even higher take up of electric
vehicles (Evs) or a more rapid transformation of Auckland’s urban form,
but neither were deemed possible by 2030.
46. EV supply and
high upfront costs were seen as a significant constraint. Furthermore, an
EV-focused pathway will not achieve other desired outcomes for Auckland,
including safer streets, more congestion-free options, and better use of
existing resources.
The transformation required
47. Eleven areas
for transformation are described in the TERP. Each transformation area includes
several strategic directions and detailed actions for implementation. These
changes represent an integrated set of actions that work as a package –
they are not a ‘pick and mix’ that can be selectively implemented.
48. The first 10
transformation areas are grouped in the same way as the government’s ERP
to better align central and local government efforts. They focus on the system
changes needed to enable low-emissions methods of moving people and goods
across the region. The 11th transformation area underpins all other
transformation areas and focuses on empowering Aucklanders to make sustainable
transport choices. Below is a summary of the 11 transformation areas.
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Reduce reliance on cars
and support people to walk, cycle and use public transport
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1. Supercharge
walking and cycling
The pathway requires a
ten-fold increase in distance travelled via walking, cycling and
micromobility by 2030. Replacing short car trips with these modes and better
connecting them with public transport can help to cut emissions quickly while
improving public health, lowering transport costs and making it easier for
children in particular to move around independently.
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2. Massively
increase public transport patronage
The pathway requires a
five to six-fold increase in bus, ferry and train patronage by 2030. This
equates to roughly one trip per person per day, similar to the levels
achieved in Auckland in the first half of the twentieth century. This
requires significant increases in the frequency, reach and reliability across
the public transport network to enable more Aucklanders to travel to far more
destinations throughout the region with ease.
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3. Prioritise and resource sustainable
transport
The pathway requires that
sustainable modes of transport such as walking, cycling and public transport
are prioritised in all aspects of the transport system, including funding,
policy and planning, project implementation, maintenance and enforcement.
Rebalancing the transport system to make it more attractive for Aucklanders
to choose sustainable modes of transport is essential. This also supports
more reliable movement of freight and service vehicles, and those who still
need to drive.
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4. Reduce travel where possible and
appropriate
The pathway requires that
Aucklanders reduce avoidable trips where possible, for example by going
online for services and working from home some days instead of commuting to
employment. Emissions-intensive air travel should also be avoided where
possible and long-term strategies of regional rail developed. New tools such
as congestion pricing can help make the transport system more efficient,
while generating revenue that can be reinvested into improving sustainable
transport options.
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5. Safe,
low-traffic neighbourhoods for people
The pathway requires that
Aucklanders can live, work and play locally, reducing the need for long
trips. This means neighbourhoods in existing and new areas should be
walkable, have a range of services and facilities that people can easily
access via sustainable transport modes, and be traffic calmed to improve
liveability and reduce rat-running. Public facilities should be located in
areas easily accessible by walking, cycling and public transport.
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6. Build
up not out
The pathway requires that
the average length of individual trips taken by Aucklanders reduces by 5% by
2030. This means supporting people to live closer to the things they need to
get to by addressing Auckland’s urban sprawl and enabling much more
good quality development to occur in areas with high accessibility, instead
of continued expansion into greenfield and rural areas to accommodate future
growth. Greenfield developments that are underway must prioritise sustainable
transport options to shape climate-positive travel behaviour.
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Rapidly adopt
low-emissions vehicles
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7. Electrify
private vehicles
The pathway requires that
32% of Auckland’s light vehicle fleet is electric by 2030. This is a
faster uptake of Evs compared to the government’s goal for 30% of the national light vehicle fleet to
be zero emissions by 2035. This means greater incentives from central
government are needed to support the uptake of these modes, focusing on
high-use vehicles such as commercial vehicles, taxis and shared fleets. It is
also important to ensure that increasing demand for electricity is met through
renewable energy.
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8. Enable
new transport devices
The pathway requires that
there is a greater uptake of low-carbon, space-efficient personal mobility
devices and vehicles, such as e-bikes, e-scooters and e-mopeds, by 2030.
These devices are powerful enough to replace car trips (allowing some
households to reduce the number of cars they own) and are more affordable
than Evs. These devices also pair well with public transport, if supporting
infrastructure is provided. Due to their speed, it is important that there is
safe separation from pedestrians to avoid conflict.
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Begin work now to
decarbonise heavy transport and freight
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9. Low
emissions public transport
The pathway requires that
the majority of the public transport fleet is low-emissions by 2030. This
means fully electrifying the rail network, purchasing only low-emissions
buses as the fleet expands, and accelerating the decarbonisation of the ferry
fleet.
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10. Efficient
freight and services
The pathway requires that
freight emissions are halved by 2030, relative to 2019 levels. 95% of
Auckland’s freight emissions are from road freight, with most of them
taking place within the region on light commercial vehicles and
small-to-medium sized trucks. These vehicles need cleaner fuels and tools to
make their journeys are efficient as possible. Auckland also needs
low-emissions zones and multi-modal freight hubs to support low-emissions
last-mile delivery.
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Empower Aucklanders to
make sustainable transport choices
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11. Empower
Aucklanders to make sustainable transport choices
The pathway requires
behaviour change and collective action to take advantage of the emissions
reduction potential of the transformed transport system. Aucklanders need to
feel empowered by the changes that are happening in the city and have a good
understanding of the sustainable transport options available to them. This
will help to translate the high-level of public support for climate action
into support for local changes and localised solutions. To enable this,
Auckland Council and Auckland Transport need to ensure its engagement methods
are fit-for-purpose to ensure meaningful engagement with Māori and
communities on the transport changes that are needed.
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49. The
transformation areas were chosen based on their effectiveness in reducing
emissions while improving multiple wellbeing outcomes. Their development was
informed by a body of international evidence that demonstrates their impacts. Attachment
C provides a summary of the global evidence base for the TERP and is
arranged by transformation area. Evidence from more than two dozen cities was
examined including plans, strategies and empirical evidence derived from actual
on the ground metrics and experience of delivering the kinds of actions set out
in TERP. This work deliberately included a range of diverse cities in terms of
urban form, socio-cultural characteristics and existing emissions profile.
50. The
transformation areas were further informed by discussions with mana whenua,
local boards, stakeholders and subject matter experts.
Broader wellbeing impacts of pathway
51. The
transition to a low-emissions and climate-resilient transport future is a
pathway towards improved wellbeing for all Aucklanders. By improving
sustainable transport options available to Aucklanders, electrifying the light
vehicle fleet, and decarbonising heavy transport and freight, the actions in
the TERP would result in noticeably safer streets that promote independent
travel for all ages and abilities, more affordable transport choices, increased
levels of healthy physical activity, improved air quality and reduced noise
pollution, less time stuck in traffic and more stress-free ways of travelling,
and more effective use of existing infrastructure and limited funds.
52. Climate
action also has strong public support. Over 90% of Aucklanders that made
submissions supported the ambition of Te Tāruke-ā-Tāwhiri. More
than two thirds of submissions from Aucklanders supported the Climate Action
Targeted Rate to combat the climate crisis. Public submissions on the RLTP
overwhelmingly support greater priority for actions that reduce transport
emissions. Climate action is also important to ensure Auckland retains its
liveability and attractiveness as a place where talent wants to live.
53. These
co-benefits are a departure from the high cost of a car-dependent transport
system, including the social cost of premature deaths and hospitalisation from
transport-related air pollution[1],
road crashes[2],
and physical inactivity[3].
Car dependency, coupled with Auckland’s projected growth,
puts Auckland on a path towards widespread congestion.
Addressing the inequities of the current transport
system
54. Auckland’s
car-dependent system is inherently inequitable, as it is most useful to those
with access to a car and challenging to navigate for those without. More than a
third of Aucklanders cannot drive, and are dependent on walking, cycling,
public transport, taxis and lifts from others. When travel choice is poor,
those without access to cars have to contend with longer and more frustrating
journeys, or do not make the trip at all, even for critical trips such as
visits to the doctor. Research shows that groups such as Māori, Pasifika,
LGBTQI+, low-income people, disabled people, older people, women and children
tend to experience the most transport disadvantage.[4]
55. A
car-dependent system also means some people are forced into car ownership in
order to participate in society, even when they cannot afford to do so. On
average, low-income households in New Zealand spend 28% of their budget on
transport, compared to 8% for high-income households. A more balanced transport
system that provides safe, affordable and sustainable transport choices will
insulate people from the high cost of running and maintaining a motorised
vehicle, while ensuring a good level of access.
56. The TERP
includes actions that will make sustainable transport options more affordable
and accessible to Aucklanders, such as incentives to increase the uptake of
e-bikes, fair fares, and low-cost shared EV trials. Other equity-related
actions include addressing people’s safety and security concerns while
travelling, implementing universal design guidelines, and better understanding
the travel needs and barriers of Auckland’s diverse populations.
57. Some specific
actions in the TERP, such as congestion pricing, require additional mitigation
to avoid further inequities. This means, for example, staging the delivery of a
congestion pricing scheme to focus on areas that are most accessible by public
transport, cycling and walking, as well as ring-fencing revenue generated back
into sustainable transport modes, particularly in areas that are without viable
alternatives to driving.
58. As an
immediate action, Auckland Council and Auckland Transport staff, with input
from partners and stakeholders, will jointly develop an equity assessment
framework to assess the equity impacts of TERP initiatives and inform
decision-making and prioritisation.
Implementing the Pathway
59. Given the
scale and pace of change required, implementation of the TERP must commence
immediately upon its adoption. The TERP sets out three sets of actions:
· actions
to deliver the pathway itself (organised around the 11 transformation areas).
These are sequenced so that actions in the first two years can generally be
taken without significant additional funding, though some re-prioritisation of
where existing funding is allocated may be required.
· actions
to create a more supportive transport system, including the way in which
funding is determined, allocated and prioritised. Partnership between the
Auckland Council group and government at both political and official levels is
required to deliver these actions.
· actions
to integrate the TERP into the existing transport planning system while
longer-term reform is undertaken. This means TERP outcomes such as emissions
reduction, mode shift and equity must drive upcoming updates to documents such
as ATAP, the RLTP and the Future Development Strategy, in a way that maximises
multiple co-benefits instead of treating these outcomes as competing
trade-offs.
60. Partnership
with government is key to all aspects of implementation. An important aspect of
this will be the jointly developed VKT Reduction Plan for Auckland. The
development of this plan was signalled as an action in the ERP and will be an
important factor in driving project selection and funding allocation decisions.
61. Auckland
Transport will prepare an implementation programme to deliver the pathway that
will include a review of the alignment of existing processes with the outcomes
of the pathway, and ensure these outcomes are embedded in their prioritisation
and decision-making processes. Progress on the implementation programme will be
reported back to the committee in 2023.
Governance and monitoring framework
62. A bespoke
framework to oversee implementation of TERP is required. Further work is needed
on any potential governance arrangements to support this oversight.
63. Staff
envisage that an implementation focussed governance group may be
required. The Transport Emissions Reference Group, with its wide
representation from elected members, mana whenua, Independent Māori
Statutory Board and Auckland Transport Board, provides a useful model for
this.
64. Governance
arrangements should also enable subject matter experts to have input into the
implementation of TERP. This may include expertise related to sustainable
transport, urban development, mātauranga Māori, health
and equity. Community support for the TERP is crucial to its success and the
governance arrangements should accommodate the ability for iwi, community
leaders and other disciplines to provide input.
65. A
robust and credible monitoring framework is also required as soon as possible
to track implementation and ensure accountability to elected members,
Māori and communities.
66. Further
advice, and a proposed governance, monitoring, accountability and reporting
framework, will be reported to the Environment and Climate Change Committee (or
its equivalent) post the 2022 local government elections.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
67. There have been concerted local and central government efforts
towards reducing emissions in recent years. Auckland Council unanimously
declared a climate emergency in 2019 and endorsed Te
Tāruke-ā-Tāwhiri: Auckland’s Climate Plan in 2020. Central government added decarbonisation to its Government Policy
Statement on Land Transport (GPS) in 2021 and released the first ERP in 2022,
which sets the national direction for government’s climate action for the
next 15 years.
68. Yet, Auckland’s transport emissions have continued to rise
– the region is not remotely on-track to meeting its climate goals.
Adding to the challenge is Auckland’s uneven recovery from the Covid-19
pandemic. Car traffic volumes are back to 2019 levels, but public transport
patronage is still much lower than 2019. Continuing down the path of
incremental improvements will not achieve the transformational change that
Auckland requires.
69. Achieving the scale of emissions reduction required in the
timeframes available (less than 100 months) will be extremely challenging.
However, unlike other sectors where reductions in emissions are needed,
reducing transport emissions does not depend on technological breakthroughs;
the key solutions are already known and they simply need to be implemented.
70. Moreover,
Auckland is not alone. Around the world, it is cities that are
leading the way in addressing the climate crisis. More than 2,000 other
jurisdictions have also declared a climate emergency. Along with Auckland,
these cities are now tasked with developing emissions reduction pathways to
give effect to their climate declarations and commitments. A great many of
these cities have already implemented, or are implementing, actions very
similar to those included in Auckland’s pathway. Some of these are
highlighted in the TERP evidence report (Attachment C).
71. Many of the
actions in the pathway will not only achieve and sustain transport emissions
reductions, but they will also improve quality of life for all Aucklanders,
including future generations.
Ngā whakaaweawe me ngā
tirohanga a te rōpū Kaunihera
Council group impacts and views
72. Auckland
Council funds Auckland Transport and directs it to act consistently with its
strategies, plans and policies, including the TERP. The council also appoints
the board of Auckland Transport and sets expectations via the Letter of
Expectations process.
73. The Auckland
Transport Board was represented in the Transport Emissions Reference Group,
which provided staff with oversight and direction on the TERP.
74. The Auckland
Transport Board endorsed the TERP in August 2022 (Attachment D).
Auckland Transport’s endorsement of the TERP is further supported by
several matters that, in reality, relate not only to Auckland Transport but
equally to Auckland Council. For example:
· that
the reduction in emissions rely on the willingness of people in Auckland to change
travel habits and take up the travel choices set out in the TERP;
· the
resources needed to develop the transport system required by the pathway;
· the
transformation in policies, priorities, funding frameworks and regulations that
will be necessary to support the transport system required by the pathway.
75. Implementation
of the TERP will require concerted action from multiple agencies. Auckland
Transport will be particularly critical to the success of implementation given
its key role in relation to many aspects of Auckland’s transport network.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
76. The TERP is a
strategic and region wide plan. Its actions are high-level and are not
area-specific. However, implementation of the pathway will have significant
impacts at the local level. Local boards have an important role to play in
advocating for specific improvements that support their communities to
transition to low carbon travel, and to communicate the changes required in a
way that resonates with local communities.
77. Local boards
have consistently been supportive of the need to reduce Auckland’s transport
emissions through the provision of sustainable transport choices and land use
planning that supports low-carbon transport.
78. Local boards
were briefed in October and November 2021 on the TERP, and local board chairs
were invited to a series of committee workshops in 2021 and 2022. A report on
the TERP was also submitted to local boards for formal feedback in April 2022.
79. Key feedback
themes from local boards on the TERP are:
· Strong
support for more frequent, reliable and affordable public transport, including
more frequent feeder buses and safer access to public transport stations and
stops. Public transport fares should be reduced or made free.
· Strong
support for safer and connected walkways, cycleways and greenways, and
programmes that support the uptake of active modes.
· To
achieve the TERP’s targets, more effort is needed to address parts of
Auckland that experience enormous growth pressures but remain highly
car-dependent due to the poor quality and availability of sustainable transport
options.
· The
transition to a low-carbon transport future needs to be equitable. A specific
concern is that congestion pricing could further disadvantage communities,
particularly people on low incomes, and needs to be supported by improved
alternatives to travelling by car.
· Subsidies
and incentives are needed to address the high upfront costs of e-bikes and Evs.
The lack of e-bike and EV charging provision needs to be addressed.
80. Successful
implementation of the TERP at a local level will require Auckland Transport to
urgently review how it currently designs, consults on, funds and implements
minor capital works, as recommended in the Independent Panel’s review of
Auckland Council’s Council Controlled Organisations.
Tauākī whakaaweawe
Māori
Māori impact statement
81. The
development of the TERP builds on the partnership between Auckland Council and
the Tāmaki Makaurau Mana Whenua Forum (the Forum) in developing Te
Tāruke-ā-Tāwhiri. A Tiriti-based partnership approach
strengthens Auckland’s climate response and enables Auckland to benefit
from the unique perspectives of te ao Māori.
82. The
TERP’s Māori engagement process included analysis of previous
feedback from mana whenua and mataawaka on relevant strategic plans, engagement
with the Tāmaki Makaurau Mana Whenua Forum, and reaching out to the chairs
of the 19 mana whenua entities in Tāmaki Makaurau and representatives of
mataawaka organisations. Staff also received direction from
the Independent Māori Statutory Board and Forum representatives in the
Transport Emissions Reference Group.
83. In general, there is strong support from mana whenua and mataawaka
for Auckland Council and Auckland Transport to deliver climate action, in
partnership with Māori. Key feedback themes are:
· There
is strong support for partnership between council and mana whenua to tackle the
climate crisis and achieve shared priorities.
· Responding
to Māori whānau and eliciting behaviour change will require a
different outlook that is centred around te ao Māori.
· Support
for mana whenua-led response to climate change as outlined in Te
Tāruke-ā-Tāwhiri.
· Support
targeted funds for iwi to enable mana motuhake when it comes to climate action.
· Māori
have complex travel patterns and tend to live in a range of localities, from
urban to rural. This means there cannot be a one-size-fits-all approach.
· Support
for a more equitable transport system that aims to increase access, choice and
affordability, particularly for lower income groups and those living outside of
the urban core.
84. The feedback
received has been incorporated into the TERP. The TERP includes the following
principles to guide implementation:
i. Mana whenua
exercise mana motuhake
ii. Mātauranga
Māori is embedded in our climate response
iii. Māori rights and
interests are protected
iv. Mana whenua and mataawaka
shape their own climate response.
85. The TERP also
sets the direction for future transport plans to be developed in partnership
with mana whenua, as well as for greater support and funding for Māori-led
low carbon transport solutions, recognising that mana whenua and mataawaka are
already taking action in this area.
86. Implementation
of the TERP needs robust engagement with Māori. This requires that council
and Auckland Transport improve current Māori engagement processes. The
TERP implementation programme will be supported by a mana whenua and mataawaka
engagement plan and appropriate resourcing.
87. Strong
Māori representation in the governance of TERP implementation is critical
to enable a Tiriti-based partnership and ensure that the implementation of the
TERP incorporates te ao Māori. The Transport Emissions Reference Group,
which included representatives from the Independent Māori Statutory Board
and the Forum, provides a useful model for the proposed implementation-focused
governance arrangements.
88. TERP
governance arrangements should also enable input from iwi and community
leaders, as well as subject matter experts on topics such as mātauranga
Māori, health and equity.
89. Staff will
seek the approval of the Environment and Climate Change Committee (which
includes representatives from the Independent Māori Statutory Board) for a
TERP implementation governance framework after the 2022 local elections.
Ngā ritenga ā-pūtea
Financial implications
90. The TERP is a strategic
document and does not, in itself, seek any budgetary allocation. Crucially, the
implementation of the TERP will require a reconsideration of budgets and
priorities associated with the Auckland Transport Alignment Project (ATAP),
Regional Land Transport Plan (RLTP) and Long-term Plan (LTP).
91. Systemic change, such as the TERP, requires a corresponding systemic
change in the funding landscape, where programmes and projects are no longer
viewed on traditional merits alone, but on how they contribute to a new
paradigm. The TERP requires that emissions reductions goals, and associated
wider benefits such as safety for all modes, must now be at the forefront of
funding decisions.
92. The
transformation required to achieve a 64% reduction in transport emissions means
funding for sustainable transport modes needs to increase significantly. This
means reallocating existing funding from projects that deliver poor emissions
reduction outcomes, and identifying new funding sources, such as the
government’s Climate Emergency Responds Fund (CERF)[5]. The opportunity cost of such
reallocation will be a consideration.
93. The costs of TERP are mostly upfront expenses, ramping up from year
two to 2030. These costs would most likely be borne by Auckland Council
and central government, and take the form of capital and
operating expenditure (resequencing and new). Benefits of the TERP likely arise
further down the track and over time, building up in scale towards 2030 and
beyond, and are mostly ongoing in nature. Accordingly, some benefits will
accrue to future generations only while others will have more immediate impact.
94. Some costs
that will likely result from the TERP are increased public transport operating
expenditure to account for higher levels of service, and bringing forward
infrastructure investments (e.g., active modes facilities and bus priority).
95. The TERP has
a strong focus on making better use of existing infrastructure to support a
faster rollout of the sustainable transport networks required to support
substantial behaviour change. This includes the use of road space reallocation
and tactical urbanism as appropriate. In general, these methods have a much
lower delivery cost than creating new stations, tunnels or links from scratch.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
96. The key risks and mitigations are set out below.
|
Risks
|
Mitigation update
|
|
Current
structures and processes do not enable the transformational change required
to achieve the pathway’s ambition.
|
The TERP instructs
council and Auckland Transport to take immediate action, as part of
implementation, to address the misalignment between current processes and the
scale of transformation required.
Council and
Auckland Transport will also develop a prioritisation framework (building on
the framework outlined in the TERP) to ensure council and government
resources are directed towards sustainable transport modes, and work with
government to align efforts in delivering shared ambition.
|
|
The changes
proposed in the TERP do not receive the public support they need to build
momentum for action.
|
As part of the
implementation of the TERP, it is critical that council and Auckland
Transport foster deep and ongoing engagement and partnership with mana
whenua, mataawaka, communities and businesses on the changes required.
Greater support for Māori, citizen and youth-led climate responses will
also be crucial to create buy-in and local ownership of climate action.
|
|
Implementation
of the TERP further perpetuates inequity, particularly for communities that
are already disadvantaged.
|
The TERP instructs
council and Auckland Transport to prioritise equity alongside emissions
reduction in strategic planning and decision-making. Providing realistic
alternatives to driving could benefit groups that are underserved by the
current transport system, but this requires an equity-first approach in the
implementation of actions and greater partnership with Māori, community
groups and other sectors. Data collection should be improved to better understand
the barriers faced by disadvantaged groups and enable monitoring of progress.
Council and Auckland Transport will develop an equity framework as an early
implementation action.
|
Ngā koringa ā-muri
Next steps
97. In early
2023, Auckland Council and Auckland Transport will report back to the
Environment and Climate Change Committee (or its equivalent) on the following
matters relating to TERP implementation:
· Implementation
programme, including mana whenua and mataawaka engagement plan, and prioritisation
framework
· Proposed
governance arrangements
· Monitoring
framework, including accountability and reporting mechanisms.
Ngā tāpirihanga
Attachments
|
No.
|
Title
|
Page
|
|
a⇩
|
Sustainable access for a thriving future
Auckland’s Transport Emissions Reduction Pathway (Summary Document)
|
27
|
|
b⇩
|
Sustainable access for a thriving future
Auckland’s Transport Emissions Reduction Pathway (Main Document)
|
39
|
|
c⇩
|
The global evidence base for TERP
|
119
|
|
d⇩
|
Auckland Transport Board resolutions endorsing the
TERP (9 August 2022)
|
145
|
Ngā
kaihaina
Signatories
|
Authors
|
Szening Ooi - Principal Transport Advisor
Robert Simpson - Manager Transport Strategy
|
|
Authorisers
|
Jacques Victor - GM Auckland Plan Strategy and
Research
Megan Tyler - Chief of Strategy
|
