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26. 2. 97
CITY SERVICES COMMITTEE
11 FEBRUARY 1997
A meeting of the City Services Committee
was held on Tuesday 11 February 1997 at 2.00 pm
PRESENT: Councillor Denis O'Rourke (Chairman),
Councillors Carole Anderton, David Buist,
David Close, Graham Condon, Ian Howell, Garry Moore and Ron Wright.
APOLOGIES: Apologies for absence were received and accepted from the Mayor and Councillor Gordon Freeman.
Councillors Carole Anderton and Ian Howell retired at 5.40 pm and were not present for clauses 14, 15, 16, 18.2 and 18.3.
Councillors David Buist and Garry Moore retired at 5.50 pm and were not present for clauses 15, 16 and 18.3.
The Committee reports that:
PART A - MATTERS REQUIRING A COUNCIL DECISION
1. CO-ORDINATING COMMITTEE FOR TRAFFIC SAFETY RR 4492
STRATEGY FOR CHILDREN
| Officer responsible | Author |
| City Streets Manager | Susan Cambridge |
| Corporate Plan Output: Road Safety page 9.6 text 8 |
The purpose of this report is to give information on the last meeting of the Traffic Safety Co-ordinating Committee and on the road safety awareness campaigns run by the Council.
(i) `SAFE CYCLING IN CHRISTCHURCH SCHOOLS: A STUDY'
The report on the study of the use of Safe Cycling in Christchurch schools is now available. A questionnaire was sent to 128 Christchurch primary and intermediate schools. Of these schools, 71
(55%) responded. Some of the main points in the study are that 43%
of the schools in the sample use Safe Cycling although only 7 of the schools use the entire course.
Limited time was a major factor in schools not using the course or only using part of it. Some schools had not heard of the Safe Cycling course. At some schools few students cycle to school.
The two main areas of assistance from the Council suggested by schools were provision of safe cycling trainers and provision of a set of cycles on a trailer.
The process of providing trainers funded by the Council is being addressed at present. A set of cycles and a trailer will be built over the next month using funding from the NZ Road Safety Trust.
(ii) CYCLE TRAINING IN SCHOOLS
A steering group has been set up to manage the process of finding the best way to deliver cycle training programmes in schools. The group is researching current cycling programmes in schools including the proposed up-dates to the Safe Cycling programme.
(iii) SCHOOLS TO BE TARGETED RR 4491
The Safe Routes to School Steering group has recommended that the next two schools to be targeted should be Casebrook Intermediate and Bishopdale Primary School.
In addition to these two schools, in response to the decision of the City Services Committee, Shirley Intermediate will be targeted. However, there is already a programme in place to address the concerns of students at the school. The role of the Safe Routes programme will therefore be to support the work being done there.
Recommendation: 1. That the Council write to the Minister of Transport and the Minister of Education seeking the inclusion of road safety in the compulsory part of the curriculum for primary and intermediate schools and recommend that funding for programmes be made available from road user taxes currently going into the consolidated fund.
2. That the Chairman and Cycle Planning Officer meet with the Primary and Secondary Schools Principals Associations to raise their awareness of the programmes proposed.
2. Cycle Projects RR 4510
| Officer responsible | Author |
| City Streets Manager | Alix Newman, Transport Projects Officer |
| Corporate Plan Output: Cycleway Planning/Implementation; p9.5.37 & 38 |
The purpose of this report is to advise the committee of the status of some current cycle projects and activities undertaken in support of cycle projects.
PROJECTS PROGRAMMED FOR 1996/97
The following details progress in the projects listed for 1996/97 capital works or other expenditure:
Cycleways Initiatives
So far this year this budget has been used to cover the costs of the promotional page being run in The Press newspaper once a month, and the promotional staff who have been contracted to help with its organising and selling of advertising. The page has had two "send in" forms since it has been running, and approximately 40 people have responded each time. The Press believe this to be a good level of feedback.
This budget has also been used to take on university students to conduct cycle counts, develop an inventory of our existing network, and do other data gathering activities which are vital to our long term network planning.
Waterloo Road
Stage One of the Waterloo Road Project. This off road cycle path on the south side of Waterloo Road from Racecourse to Carmen Road is on schedule for completion before the end of the financial year. In detailed design at the moment.
Islington Cycleway
Stage Two of the Waterloo Road Project. This proposed cycle path runs from Carmen Road to Brixton Street. This project will be put on hold for this financial year, as Southpower will be doing some major undergrounding work next financial year, and we can piggy back on their works programme.
Sockburn Overbridge
Programmed resealing of the bridge pedestrian/cycle path is complete.
Suva-Peverel
Carried forward from 1995/96. Project consists of designated cycle streets and a cycle path through Middleton Park. On schedule for completion before end of financial year.
Hinau/Puriri
The project to change the priority at this intersection in favour of the Hinau Street cycle corridor is being done in conjunction with a series of intersection developments in the area.
Prestons Road
The off road cycle path from Marshlands Road to Alpine View needs extensive redesign. This projects is delayed and cannot give completion date.
Ferrymead Cycleway Lighting
The lighting of the pathway around the yacht club car park has been completed.
Wairoa - Estuary Cycle Path
The cycle path from Wairoa Street in New Brighton, across the Bexley Reserve is on schedule, and will be complete before the end of the financial year.
Northcote School Cycle Path
The cycle path through Northcote School, connecting to Redwood Park, is complete.
Safe Routes To Schools
There is unlikely to be any demand for engineering work as part of the Safe Routes To Schools programme for this financial year. Subsequently, this money has been allocated to fill the funding requirement of the Northcote School cycle path, and the remainder will be used for the Hinau - Puriri work which is part of a safer route to university.
Cycle Parking Upgrade
The plan to install individual cycle lockers in the Lichfield Street car park is on schedule, and the project will be complete before the end of the financial year.
Marking
The marking budget has been allocated to the painting of cycle lanes on Tuam Street. This is anticipated to be a fairly expensive project as there is a lot of removal of existing markings to be done.
Signing
Budget is as yet, not fully allocated, however the cycle network inventory will probably require signing improvements and there are several other proposals which will be reported on as the ideas are more fully developed.
On-road Resurfacing
This item has yet to be fully allocated. The roading technical personnel intend to add this budget allowance to their own resurfacing moneys, and carry out a major resurfacing project on a significant cycle route when one is identified.
Central City
As yet unallocated, but a number of possibilities are under consideration, and will be reported as soon as possible.
Hagley Park
The sealing of some additional stretches of park pathway were completed last year.
Northcote - QEII
The off road cycle path between Philpotts and Hills Roads will complete the link right along the expressway. The work will be out for tender by the middle of the month.
McLeans Island
The widening of the cycle path along McLeans Island road has been stalled pending approval of the local Community Board. They are uncertain that the level of usage justifies the expense. Cycle surveys will be undertaken during the weekend to assess the level of recreational usage.
Papanui Cycleway Lighting
The lighting of the cycle path through St James Park has yet to be put out to tender, but is on track for this financial year.
OTHER PROJECTS UNDER ACTION
Tuam Street Cycle Lanes
The Tuam Street cycle lanes will be marked during February. Up to this time a survey programme has been developed so that the Council is able to assess how cyclists feel about the new layout in comparison to the unmarked roadway.
Hagley Park - Hospital Corner
Planning and operations staff are involved in developing a series of proposals which will improve access for cyclists into and around Hagley Park and Hospital Corner. The park's Curator has been involved in discussions so far and is very open to the idea of cycle improvements to the park area. The hospital is considering some proposals at the moment.
Riccarton Bush Cycleway
The Riccarton Bush Trust are planning to restoration of Riccarton House, and landscaping of its grounds. As part of their plans they have decided that the passage of a cycle path in front of the house is not in keeping with the nature of the area and its improvements, and they have suggested alternative pathways around the back of Riccarton House.
The Riccarton Bush cycleway is tremendously popular. Given this committee's interest in cycling, and the high level of use of the route, it would be useful for this committee to the view proposed route(s) with members of the Trust Board. In so doing, it should be possible reach to agreement and support of the route options, with out the need for extensive correspondence or potential misunderstandings of different positions.
It is therefore recommended that the City Services Committee conduct its next meeting in Riccarton House, and as part of the agenda, view the existing and proposed cycle routes with members of the Trust.
Railway Cycleway
The Railway Cycleway is a difficult issue. While the demand exists for a cycle route continuing from the north of the city down to the Riccarton area, the limited room on the rail reserve means the potential cycleway will have a very "caged" appearance to it. The Community Boards of the area are concerned that there are risks to the safety and security of the cycleway users, and local residents are concerned of safety issues with cyclists and pedestrians alongside their properties. The local Community Boards have tasked the Transport Projects Officer with developing a community consultation programme so that they can assess a wider range of community views, and decide from there.
NETWORK PLANNING
The process through which to develop a network plan is being written up at the moment. While it may seem to add an unnecessary lengthy delay to the plan to establish a formal process, one is actually necessary. In an age of consultation and accountability, the planning process will permit the reasons for various planning actions to be open to scrutiny, and provide some transparency in the decision making process.
CYCLE STEERING GROUP
The cycle steering group membership has changed to make the group smaller, and slightly more focused on cycle advocacy than it was before. The group will have a general role in relating cycling concerns to the council, commenting on cycle aspects of council projects and making recommendations where the council makes cycle policy decisions. A typical role for the steering group will be to comment on the proposed network design rules in the planning process. It is anticipated that the group would meet every three months.
The steering group membership is as follows
CYCLE HELMET WEARING
Since The Press promotional page has been running, a fair number of people have written in suggesting (some in strong language), that the Council should take a stand against compulsory cycle helmet wearing - it should be optional for adults and compulsory for children under 10. The reasoning that goes with this is that compulsory helmet wearing has caused a drop off in the number of cyclists - people who would resume cycling if the compulsion was removed.
The evidence generally from LTSA statistics indicates that helmet wearing has caused a corresponding drop in the number of cyclists, while the number of severe head injuries has also dropped.
The responses to these writers has been that the Council will stand behind the legislation of the day and encourage helmet wearing as part of its safety programmes.
The Committee resolved that:
(i) The Cycle Steering Group be a Sub-Committee of this Committee.
(ii) The City Services Committee meet in Riccarton House for their March meeting and view the existing and proposed cycle routes prior to the meeting with Trust members.
Recommendation: 1. That the Council endorse the compulsory wearing of cycle helmets by all cyclists.
2. That the six persons appointed as advocates for cyclists to the Sub-Committee be paid for meeting attendances at the rate paid for attendance by Councillors.
3. CASHMERE ROAD PEDESTRIAN SAFETY IMPROVEMENTS RR 4462
| Officer responsible | Author |
| City Streets Manager | Paul Burden, Area Traffic Engineer |
| Corporate Plan Output: Advanced Transportation Planning 9.6 text 12 |
The purpose of this report is to confirm the Council's plan to remove a painted pedestrian crossing and replace it with a pedestrian refuge island incorporating a flush median on Cashmere Road adjacent to a the children's playground near Valley Road.
This report was referred to the Committee by the Spreydon/Heathcote Community Board. The Board's recommendations are supported by the Committee.
INTRODUCTION
Construction has recently started on improvements to the pedestrian crossing facility on Cashmere Road adjacent the children's playground. The project involves the removal of the painted white lines associated with the existing pedestrian crossing, which will be replaced with a pedestrian refuge island located within a painted (flush) median. Also incorporated into the proposal is a recessed car parking and bus bay located on the river side of Cashmere Road (refer attachment 1).
This proposal was presented before this Board in September of last year as part of a report updating Board members on the progress of the City Streets Capital Works Projects in the Heathcote and Spreydon wards.
The Cashmere Residents' Association have recently expressed a concern at the intention to remove the painted pedestrian crossing outside the children's playground. The association want the white lines to remain and they are also requesting the reinstatement of the painted pedestrian crossing removed from outside the Johnny Martins Four Square shop on the corner of Cashmere Road and Valley Road approximately two years ago.
Construction of the pedestrian refuge island has been delayed until the matter is resolved.
Cashmere Road is a Minor Arterial Road and for this reason it will be necessary for the City Services Committee to deliberate on the matter. However it is important that this Board has the opportunity to provide City Services with a recommendation after considering the relevant factors behind the Council officers' decision to change the type of facility provided for pedestrians at both of these locations.
BACKGROUND
This Council has an on going safety improvement programme in place which has sought to improve the safety of pedestrians at recognised crossing points.
The programme is steadily being implemented with safety improvement works completed at a large proportion of the crossing points involved in the programme.
The normal process followed in implementing these improvements is to first establish the extent of pedestrian and vehicular activity at the site over the morning and afternoon peak periods. This information is then compared to the warrant criteria attached as supplementary information. If the activity is such that an existing painted pedestrian crossing is still necessary then the crossing is substantially upgraded. This involves road narrowing, floodlighting and belisha beacons if none existed previously.
If the crossing point is used by a school, which has not previously been operating a school patrol, then the children are trained by New Zealand Police in the use of a patrol utilising the new swing out signs. Some schools which are already operating a patrol using the old, hand held "lolly pop" signs are retrained using the swing out signs.
Where the activity does not meet the warrant criteria for a painted pedestrian crossing, recommended practice is to remove the painted crossing, if one exists, but still install safety improvements such as a road narrowing or a pedestrian refuge island.
Whilst this programme initially targeted crossing points adjacent to, or used predominantly by schools, it is intended that ultimately all crossing points in the City will be upgraded.
THE CASHMERE ROAD PROPOSAL
There is an established history of pedestrians wanting to cross Cashmere Road between Barrington Street and Hoon Hay Road. Pedestrians are travelling to and from land uses such as The Princess Margaret Hospital, The Four Square Supermarket, Cashmere High School, Cashmere Tennis and Bowling clubs and the children's playground as well as the Mormon Church and Cashmere View Hospital. The Council has recognised the need to address this demand.
The speed and volume characteristics of the traffic over this section of road are very similar and pedestrians are crossing at a variety of different locations. For this reason it was recognised that a comprehensive pedestrian safety scheme needed to be developed incorporating all the pedestrian focal points.
The first step in the implementation of this scheme was the construction of a pedestrian refuge island adjacent the Hospital linking an existing footbridge over the Heathcote river. This work was completed in early 1995 and was welcomed by the local community (refer attachment 2).
During mid 1995 an opportunity arose, as part of the reconstruction of Valley road, to further improve the safe passage of pedestrians across Cashmere Road. This was achieved by the removal of a painted pedestrian crossing outside the Four square supermarket and the installation of a refuge island (refer attachment 3).
As mentioned, the construction of another pedestrian safety improvement has recently commenced on Cashmere Road adjacent the children's playground (refer attachment 1). The intention is to remove the painted pedestrian crossing and replace it with a pedestrian refuge island. A recessed car and bus parking area is also being constructed on the river side of Cashmere Road with footpath connections to a second footbridge over the Heathcote river.
When considering the type of safety improvement to install at all three of these locations it was necessary to look closely at the relevant local factors. Cashmere Road carries a substantial amount of traffic (around 11,000 vehicles on average per day). Gaps in the traffic flow of sufficient length to allow pedestrians to cross in one go are infrequent during most times of the day. The low level of pedestrian activity associated with the existing painted pedestrian crossings, the failure to meet the minimum warrant requirements and the number of pedestrian related accidents in the vicinity are also significant factors (see technical details below).
In the light of these factors it is considered by the City Streets Unit that the safest improvement was to remove the painted crossings from adjacent to the Four Square shop and the children's playground, construct a central pedestrian refuge island at each of these locations and install an additional pedestrian refuge island opposite the Hospital. A painted (flush) median is incorporated into this proposal and will ultimately link all three refuge islands commencing at the Barrington Street roundabout. The refuge islands will maintain a consistent standard of treatment over this section of Cashmere Road. This is an important consideration in terms of driver behaviour particularly the level of awareness and expectation that a motorist has of a pedestrian crossing the road.
ADVANTAGES OF THE PROPOSAL
1. This proposal would allow pedestrians to cross the busy road in two parts requiring them to find a gap in one traffic stream at a time.
2. The occurrence of a gap of sufficient length to allow crossing to the middle is more frequent than with a zebra crossing and will allow pedestrians to cross the roadway with minimum delays.
3. The low pedestrian flow at all three locations gives motorists little expectation that pedestrians will cross Cashmere Road in front of them. Therefore when a pedestrian does cross motorists can be caught unaware. This generally results in sudden braking by drivers and can result in rear end accidents and pedestrians being injured.
4. Unaccompanied younger pedestrians also would no longer be lured into a false sense of security that painted pedestrian crossings often create.
5. The painted (flush) median provides added protection for pedestrians crossing the roadway at locations other than at the solid refuge islands as well as providing sheltered right turn facilities for traffic turning into private entranceways.
6. There will be continuity and consistency of treatment over the entire length of roadway resulting in safety benefits for all road users.
DISADVANTAGES OF THE PROPOSAL
1. The legal requirement of motorists to yield to pedestrians is removed.
2. Younger children and the elderly may not have the ability to judge a suitable gap in the traffic stream.
3. Visually impaired, disabled and intellectually impaired pedestrians often rely solely on motorists stopping to allow them to cross the road. Removing zebra crossings may result in these pedestrians requiring assistance if they need to continue using the crossing facility.
CONSULTATION
A publicity leaflet for each of the aforementioned pedestrian crossing point safety improvements was circulated to the local community. This entails the distribution of two to three hundred leaflets in the letter boxes of local residents.
There was a comparatively low number of public submissions made for each of the improvement projects. Feedback has been generally favourable for the changes to the pedestrian facility outside the playground. Some minor concerns were expressed by one resident over the positioning of the proposed refuge island which was to be located adjacent to a vehicle entrance to her property.
Following this consultation process the improvements adjacent to Princess Margaret Hospital and near the Valley Road intersection were constructed.
The third safety improvement is currently being constructed adjacent to the children's playground. This improvement has been questioned by the Cashmere Residents Association. It is my understanding that the Association became aware of the project after the consultation process was deemed complete. However it was considered appropriate to delay work on the project until their concerns can be resolved.
The specific concerns of the Residents Association are not entirely clear at this time. However, it is my understanding that there is scepticism over the safety of the refuge islands relating to the manner in which they are used by pedestrians. The Association is seeking the reinstatement of the painted pedestrian crossing outside the Four Square shop and the incorporation of the existing painted pedestrian crossing into the alterations outside the children's playground.
A meeting was held on site on 17 January 1997 with representatives of the Residents Association, myself and the Council's Traffic Operations Engineer, Brian Neill. The issues and views of both the Council Officers and the Association were thoroughly discussed. It is my understanding when leaving this meeting that the Association representatives were generally comfortable with the Council's intentions, with the addition of floodlighting for the proposed island at the playground. A subsequent letter following our meeting from Dr Harding, who first questioned the principles behind this project, would seem to reflect this view. When the other representatives present at the on-site meeting discussed the project with other members of the Association it appears that their stance has altered. A letter confirming their wish to see both painted pedestrian crossings retained has recently been received.
CONCLUSION
The changes that have been made, and those which are proposed, to the pedestrian crossing facilities along this section of Cashmere Road are in the interests of pedestrian safety and in accord with sound traffic engineering practice.
It is understandable that the Cashmere Residents Association are reluctant to see the painted pedestrian crossing removed. However, given the spread of pedestrian crossing points along this section of Cashmere Road, the flush median with pedestrian refuge island proposal (which is almost complete) offers the best protection for pedestrians crossing Cashmere Road in this area. Pedestrians often cross the roadway adjacent to or between the refuge islands. This proposal caters for all of these pedestrians movements resulting in improved safety over that offered by the former two painted pedestrian crossings.
Recommendation: 1. That the painted pedestrian crossing adjacent to the children's playground in Cashmere Road near Valley Road be replaced with a pedestrian refuge island and associated flush median as shown in attachment 1 accompanying this report.
2. That the pedestrian refuge islands near Valley Road be floodlit as suggested by the Cashmere Residents Association.
4. DRAFT 1997/98 PASSENGER TRANSPORT CAPITAL PROJECTS RR 4556
| Officer responsible | Author |
| City Streets Manager | Chris Kerr |
| Corporate Plan Output: New Assets : Signals, Signs and Shelters |
The purpose of this report is to inform the Council of recent changes to the process for funding capital improvement projects for passenger transport infrastructure.
INTRODUCTION
The Council is responsible for maintaining and improving the infrastructure required for the passenger transport network. In previous years requests for funding were submitted to the Canterbury Regional Council who, if they supported them, forwarded these to Transit New Zealand. In this way the Council received financial assistance for the upgrading of Bus Shelters.
The Transit New Zealand Amendment Act 1995 introduced changes to district and regional programmes and it is now apparent that passenger transport capital projects cannot be included in a regional programme. Regional programmes can only fund operational outputs under Section 3D of the Act.
At this stage Transfund have not confirmed the methodology for economic assessment of passenger transport capital projects, this is likely to be confirmed in the next two months.
It is appropriate that this Council consider any passenger transport capital projects it would like to support in its 1997/98 District Roading Programme.
PROPOSED PASSENGER TRANSPORT PROJECTS
The proposed projects for inclusion in the Council's 1997/98 District Roading Programme are :
| Cathedral Square Bus Terminus | $1,210,000 | This project is part of the overall Cathedral Square upgrading project. It is proposed to concentrate bus movements in to the north west quadrant of the Square with the construction of new bus shelters and information systems. This proposal will simplify the use of the passenger transport system and with the new shelters and significant improvements to bus information systems. |
| Bus Prioritisation and Information System | $240,000 | This project involves the use of transponders to provide bus priority at signalised intersections. This system will also allow real time monitoring along bus routes with potential for bus information signs at major bus stops providing information on time of arrival etc. |
| Bus Shelter Upgrading | $120,000 | This involves the continuation of the upgrading of bus shelters and is the second year of a five year programme. |
PROJECT PRIORITISATION
The three Passenger Transport projects have been scored utilising the new City Streets Prioritisation Process, the scores are :
The City Services Committee meeting in December 1996 agreed to a District Roading Programme totalling $11.5m. The above three additional projects total $1.57m. (Lincoln/Lyttelton/Wrights intersection upgrading ($500,000 and score = 1.49) and Hills Road four laning ($850,000 and score = 1.41), would have to be deleted from the 1997/98 Programme to keep within this total funding limit of $11.5m)
Recommendation: That the three passenger transport capital projects be supported for inclusion in the 1997/98 District Roading Programme for submission to Transfund.
5. Submission to Transfund: Financial Assistance
for Alternatives to Roading RR 4546
| Officer responsible | Author |
| City Streets Manager | Lucas Sikiotis, Transport Planning Manager |
| Corporate Plan Output: |
The purpose of this report is to inform the Committee about the options which Transfund propose for the funding of alternative projects to roading and to consider the recommended submission formulated in response to Transfund's request for comments this regard.
The tabled copy of a document entitled "Financial Assistance For Alternatives To Roading: Discussion Paper For Consultation November 1996" refers.
BACKGROUND
In terms of the Transit New Zealand Amendment Act (1995), Transfund New Zealand is empowered "to fund outputs that consider or develop efficient alternatives to the provision and maintenance of roading." Transit New Zealand developed draft procedures for the evaluation of alternatives to roading (ATR) which were released for comment early last year. Submissions are currently being analysed. The next stage of the process is to consider the basis for and level of funding for such projects. The tabled document presents the options for funding and seeks industry comments.
FOCUS OF THE DOCUMENT
An ATR project will usually involve a private operator providing a transport service and receiving revenue directly from users. Unlike the majority of roading projects where the project's total costs are considered and expressed as a benefit to cost ratio, procedures for ATR projects require the calculation of an Efficiency Ratio. The Efficiency Ratio considers the `funding gap' that needs to be covered by other parties for a private operator to provide a financially viable service. The Efficiency Ratio (ER) is calculated as follows:
ER is the project benefits (B) divided by the net costs to local, regional and central government (G):
ER = B/G
where: B = user benefits of alternative mode + road user benefits + accident cost savings + environmental benefits + other benefits
G = service provider's funding gap - savings in roading capital and maintenance costs.
The focus is on the operator's funding gap and 4 options are proposed for determining who should pay and in what proportions as the first part of the document ie Section 2 and Section 3 examines how much funding should the service provider be paid in total.
The following 4 options have been identified and are funding:
Two examples are used to illustrate the impact of each option on the funding proportions required from Transfund. In each case, with the exception of Option 4, the balance of the funding would be the responsibility of either the Regional Council and/or the Territorial Authority, but in general there is no clarity as far as the individual proportions that the latter two authorities would meet. This would depend on each individual case in point and be subject to negotiation between the Regional Council and the Territorial Authority.
DISCUSSION OF THE PROPOSED OPTIONS
An examination of the proposed methods of calculating the proportional contributions in each option, resulted in the following comments:
(i) Options 1 and 2
Option 1 is based on the current formula for the funding, of public transport by Transfund and is simply a 40% - 60% split; ie Transfund's financial contribution towards a qualifying ATR proposal would be 40% of the operator's funding gap. The balance of 60% becomes the responsibility of the Regional Council and Territorial Authority, requiring the two parties to negotiate their respective proportions.
Option 2 is similar, except that it is based on the current formula for the funding of roading projects by Transfund and is a 50% - 50% split; ie Transfund's financial contribution would be 50% of the funding gap. The balance of 50% again becomes the responsibility of the Regional Council and Territorial Authority, requiring the two parties to negotiate their respective proportions.
Options 1 and 2 have no rationale except for the fact that the proportions are based on those which have evolved historically in the process of National Government's funding of regional or local transport operations or projects. They both are very simple to calculate and therefore authorities would know Transfund's contribution up front. The major unknown, would be the Regional Council's and the Territorial Authority's agreed proportion of the balance in each case.
The results of the application of Option 4 to each of the two examples, which is based on determining each authority's expected benefits, offers some insight with respect to what proportion of the funding a Territorial Authority would be required to contribute. In essence, this would be roughly 1/3 of the balance in the case of a passenger transport ATR, although it would depend on the relative order of magnitude of the typical benefits, ie for example the ATR User benefits versus Road User benefits. In the case of a freight ATR, the Territorial Authority would generally be responsible for the entire balance of the funding gap.
(ii) Funding Distortion by the Application of B/C Cut Off Ratio
The ensuing argument applies to Option 3.
All benefits which would be realised by the authorities, with the exception of savings in roading capital and maintenance costs, are divided by the B/C cut off ratio, which for the 1997/98 financial year, is anticipated to be 4. It is argued by Transfund, that since ATR projects are to compete with roading projects for the same resources, the benefits of ATR proposals will be treated in the same manner as benefits in roading projects.
This in effect, reduces the actual benefits realised by the ATR proposal, by a factor of 4 (ie B/C cut off ratio).
This approach, and its application in Option 3, where Transfund pegs the maximum funding it is prepared to contribute, distorts the funding proportions in its favour.
In order to illustrate the impact of this, the two examples used in the paper have been re-calculated, setting the B/C cut off ratio equal to 1. (ie removing the reduction of the benefits by the B/C cut off ratio.)
Table 1: Passenger Transport: Refurbishment ATR
| Proportions in % | ||
| OPTION 3 | ||
| B/C = 4 | B/C = 1 | |
| Transfund | 19.2 | 100 |
| Regional Council Territorial Authority |
} } 80.8 |
} } 0 |
| Total | 100 | 100 |
It may be seen from Table 1, that Transfund's proportion with B/C cut off ratio = 1, is 100%. Clearly, by reducing its maximum contribution to 19.2% in using the relatively arbitrary B/C cut off ratio of 4, Transfund leaves the balance of the funding gap, ie 80.8% to the Regional Council and Territorial Authority.
Application in the case of the freight transport barge ATR example, reflects a similar picture but not as severe.
Table 2: Freight Transport: Barge ATR
| Proportions in % | ||
| OPTION 3 | ||
| B/C = 4 | B/C = 1 | |
| Transfund | 61.3 | 67.1 |
| Regional Council Territorial Authority |
} } 38.7 |
} } 32.9 |
| Total | 100 | 100 |
It is concluded therefore that Option 3 as proposed, would result in higher than necessary proportional contributions by both Regional Council and Territorial Authority. Option 3 is therefore dismissed as a viable choice for Territorial Authorities.
(ii) Sensitivity Analysis in Option 4
In the following analysis, the various benefits ie ATR User benefits, Road User benefits, Environmental benefits and the Savings in Roading Capital and Maintenance costs, are reduced in turn to a level which still maintains and Efficiency Ratio (ER) of 4 for each of the ATR proposals.
(a) Reducing the ATR User Benefits
A reduction of the ATR User benefits from $6.2 m to $3.361 m in the case of the passenger transport ATR gave the following result:
Table 3: Passenger Transport ATR
| Proportions in % | ||
| OPTION 4 | ||
| ATR User Benefits | $ 6.2 m | $ 3.361 m |
| Transfund | 15.4 | 21 |
| Regional Council | 58.3 | 43.1 |
| Territorial Authority | 26.3 | 35.9 |
| Total | 100 | 100 |
The ATR User benefits reduction had no impact on the freight ATR example.
(b) Reducing the Road User Benefits
A reduction of the Road User benefits from $4.6 m to $1.775 m in the case of the passenger transport ATR gave the following result:
Table 4: Passenger Transport ATR
| Proportions in % | ||
| OPTION 4 | ||
| Road User Benefits | $ 4.6 m | $ 1.775 m |
| Transfund | 15.4 | 2.9 |
| Regional Council | 58.3 | 17.8 |
| Territorial Authority | 26.3 | 79.3 |
| Total | 100 | 100 |
Table 4 illustrates that the Territorial Authority's contribution could climb significantly in the event of a lower Road User benefit ie where reduction in congestion levels and savings in accidents due to the alternative are relatively lower than shown in the given example.
The impact of the reduction in road user benefits in the freight ATR example, was insignificant.
(c) Reducing the Environmental Benefits
The reduction of the Environmental benefit produced only slight changes in the proportions and was considered insignificant for the purpose of this analysis.
(d) Reducing the Savings in Roading Capital and Maintenance Costs
A reduction in the savings in roading costs, from $3.744 m to $1.98 m in the case of the freight transport ATR gave the following result:
Table 5: Freight Transport ATR
| Proportions in % | ||
| OPTION 4 | ||
| Road Savings | $.3.744 m | $ 1.98 m |
| Transfund | 39.8 | 26.9 |
| Regional Council | 0 | 0 |
| Territorial Authority | 60.2 | 73.1 |
| Total | 100 | 100 |
Again, the calculations indicate a significant increase to the Territorial Authority where the saving benefit is reduced.
The conclusion which can be drawn from the aforementioned analysis is that the proportional contribution required from a Territorial Authority could conceivably be higher than 70% in Option 4. It is considered necessary therefore, to examine several other example case studies in order to properly assess the range of funding impacts on the various authorities before finally assessing the approach proposed in Option 4.
It is therefore recommended that in the interim and until such time a Transfund furnish this Council with further case studies, the current formula for roads viz Option 2, be adopted for establishing the funding proportions for ATR proposals.
ANSWERS TO THE QUESTIONS POSED BY TRANSFUND.
Section 2, of the Transfund document, requests that authorities wishing to make submissions, give consideration to answering a number of questions. These are handled as follows:
Question 1: Which of the four funding options for ATR projects outlined and analysed above do you prefer and why?
Option 2 is preferred for the reasons advanced in the DISCUSSION OF THE PROPOSED OPTIONS.
Question 2: Are the funding options fair across all types of ATR proposals?
There are too few examples to make this kind of judgement now, however it seems as though the approach proposed in Option 4, once more case study examples are available for scrutiny, would provide the best way forward.
Question 3: Can the funding options be readily applied to ATR proposals in your region or ones you are aware of?
Yes, at this stage it is proposed that Option 2 be applied. Possible proposals could include transport of logs to the port and the longer term development of passenger transport services beyond the city boundaries.
Question 4: Which options will give the most equitable funding split between the various agencies benefiting from the ATR proposal?
At this stage, Option 4 does this.
Question 5: Do you consider the funding options can be consistently applied in funding ATR proposals?
Options 3 & 4 would require a large degree of consistency across the country in the process of determining the variety of benefits which could arise from such projects. This would be difficult to achieve and therefore Options 1 & 2 would perform better in this respect.
Question 6: Should different options apply in different circumstances?
With the limitation of only two examples, it is not possible to make any conclusion in this regard.
Question 7: Are there any more suitable options you can think of?
As indicated in the discussion, consideration should be given to removing the effect of reducing the benefits by the B/C cut off ratio.
SECTION 3
Section 3 of the document considers Competitive Pricing Procedures, Calculating the Maximum Justifiable Funding, Determining the Minimum Required Funding as well as other service funding considerations such as the Form of Funding, Contract Duration and Changes in Provider Costs. These procedures refer largely to the tendering for service provider contracts. In normal circumstances, competitive tendering is argued as sufficient incentive to ensure market related pricing. Where monopolistic situations arise, negotiating contract price seems like the only option available and various approaches are debated. The document describes these practiced procedures and offers some argument supporting their ongoing application in some instances.
The process proposed for determining the maximum justifiable funding, is that which has been applied to the two examples under each of the 4 options. The comments offered in the discussion part of this item pertaining to the B/C cut off reduction in the benefits, are relevant here.
The City Council has little experience in dealing with these types of transport service provider contracts. It is recommended that the submission in this regard, be confined to the following general comment:
The Christchurch City Council is not at this stage in a position to make any firm judgement with regard to Section 3 of the document and its procedures. The arguments advanced are logical and the concerns raised are valid. However, it will be more appropriate for authorities dealing with transport service provider contracts, to make submissions for this Section. One concern would be to ensure that the proposed procedures do not stifle commercial opportunity and entrepreneurial spirit.
The submission has been forwarded to Transfund as submissions closed on 14 February 1997. Committee members were concerned that the paper from Transfund was highly technical and asked that the submission be forwarded with comment that a different approach should have been used in seeking submissions. Much staff time could be involved in justifying a project.
Recommendation: That the submission forwarded be endorsed by the Council.
6. CANADA GEESE CULL - BROMLEY RR 4521
| Officer responsible | Author |
| Waste Manager | Mike Bourke, Liquid Waste Manager |
| Corporate Plan Output: Liquid Waste Section |
The purpose of this report is to bring the Council up-to-date with events surrounding the proposed Canada Goose cull on 7 January 1997 at Bromley.
In February 1996 the Council gave permission to the North Canterbury Fish and Game Council to carry out a moult cull of geese on City Council land at Bromley to enable the Fish and Game Council to reduce the Canada Goose numbers towards the target numbers contained in the agreed Canada Goose Management Plan (refer recommendation of previous report attached).
There were conditions attached to the Council's permission which the Fish and Game Council fulfilled. One of these conditions was that the birds be trucked off site for slaughter and disposal. On advice from Professor Neville Gregory, Chair of Animal Welfare at Massey University the Liquid Waste Manager gave permission for the Fish and Game Council to dispatch the birds at the site and remove the carcasses for disposal. This was done for animal welfare reasons to reduce the stress on the birds that results from being loaded on to a truck and transported away. This permission was given the day before the cull and an amended consent obtained from the Ministry of Conservation (a condition of the cull).
It is understood that one or more opponents of the cull were camping on the Estuary frontage on the days preceding the cull to provide early warning to other opponents of the cull and the media that a round-up of the birds had commenced. As the round-up neared completion opponents of the cull successfully disrupted the round-up. Trespassers on Council land were requested to leave by the Farm Supervisor. The Police were then called to ask the trespassers to leave. The Fish and Game Council staff managing the operation then called off the proposed cull. Fish and Game Council staff then attempted to round-up a small number of geese from one of the oxidation ponds in order to demonstrate to the Ministry of Agriculture and Fisheries representative Mr Barbour the humaneness of the proposed method of despatching the birds. Before this demonstration could proceed the vigilant opponents reappeared and again disrupted this proposed demonstration. They refused to leave and the Police were again called and the cull was abandoned.
As a result of the adverse publicity and high level of media attention given to the unsuccessful attempt by the Fish and Game Council to carry out a cull, the City Manager in consultation with the Mayor formally withdrew the City Council's permission to the Fish and Game Council to carry out any cull on Council land.
The Fish and Game Council will now have to concentrate on other locations and methods to reduce the Canada Goose numbers in the Canterbury Area.
Recommendation: That discussions be held with the Fish and Game Council to find an improved process for control of Canada Geese in Canterbury.
PART B - ITEMS DEALT WITH BY THE COMMITTEE AND
REPORTED FOR INFORMATION ONLY
7. RESIGNATION - COUNCILLOR GORDON FREEMAN
Councillor Gordon Freeman submitted his resignation as a member of the Committee. Councillor Freeman is currently Deputy Chairman.
In anticipation of the acceptance by the Council of Councillor Freeman's resignation the Committee resolved to appoint Councillor Ron Wright, Deputy Chairman.
8. SIX MONTHLY REPORT ON TRAFFIC CONTROL:
CHRISTCHURCH POLICE DISTRICT
Inspector Garth Hames' report on traffic control carried out by the Christchurch Police within the Council area for the period ending 31 December 1996 was received.
Significant reductions in reported vehicle crashes when compared with equivalent periods in 1994 and 1995 were noted.
It was Inspector Hames' opinion that this significant reduction had been brought about by a change in public attitude brought on by publicity, compulsory breath tests, improved roads, checkpoints, speed cameras and other strategies which the city had implemented and which the community has supported.
The Committee meeting was the last attended by Inspector Hames prior to his retirement. Inspector Hames has given advice over a period of 15 years on behalf of the Ministry of Transport and more recently, the New Zealand Police. In wishing Inspector Hames well in his retirement, Committee members referred to the considerable support he has given to the Council projects and in particular the participation in community teams working through the Co-ordinating Committee for Traffic Safety.
9. VELO-AUSTRALIS INTERNATIONAL BICYCLE CONFERENCE RR 4297
The Chairman's report to the Committee on issues discussed at the conference was discussed further at the meeting. Photographs of traffic calming measures and cycleways shared with pedestrians were tabled. It was resolved that Councillor Denis O'Rourke's report be referred to the Cycle Sub-Committee for review and that recommendations be made to this Committee for improved cycle facilities in the city.
10. SPEED MANAGEMENT STRATEGY RR 4513
Progress on the implementation of the 1996 Speed Limit Review and plans for the monitoring and management of traffic speeds on roads in the city once new 60 km/ph and 80 km/ph speed limits are introduced was reported.
300 new speed limit signs will be appearing on roads and highways in the city over a two week period following the publishing of the required notices in the New Zealand Gazette. It is anticipated that this project will commence mid March 1997. It was resolved that the new speed traffic signs be larger than the current speed signs at the commencement of speed zones with more standard sized signs along routes where the speed limit is between 50 and 100 km/ph.
11. Special Events Bus Funding Proposal RR 4517
A proposal from Christchurch Transport Ltd for the Council to fund by way of promotion of public transport, free bus services to special events was submitted.
The City Streets Unit has a budget of $20,000 for operational "public transport initiatives" from which funding could be sourced.
It was resolved:
1. That the Council contract with CTL the provision of a free bus service for the open day at the Convention Centre and for the `Classical Sparks' concert on 8 March at a fee of $3,500 to be charged against the City Streets budget.
2. That provision be made in the City Streets 1997/98 Draft Budget for free bus services to significant Council promoted events; other events to be considered on their merits.
3. That temporary bus priority measures to assist these services be instigated where appropriate.
12. UNDERGROUNDING ISSUES RR 4555
Two seminars were held in late 1996 to discuss issues relating to the undergrounding of services. Provision has been made in the draft 1997/98 City Streets budget.
It was resolved that the draft 1997/98 Undergrounding Programme be confirmed.
13. LINCOLN ROAD IMPROVEMENTS RR 4566
The Committee was advised of current options for roading improvements on and around Lincoln Road and in the vicinity of the Westpac Trust Centre. This provided an opportunity to include an allocation in the draft 1997/98 budget. The four laning of Lincoln Road between Sylvan Street and Whitleigh Avenue has been included in the draft budget. The project would include cycleway and landscape improvements along with improvements to the Lincoln/Lyttelton/Wrights Road intersection.
It was resolved that a scheme for four laning Lincoln Road between Sylvan Street and Whitleigh Avenue be included in the Capital Works Programme to allow funding for the above scheme and that the Aldwins Road/Ensors Road intersection and the Hills Road improvements be postponed until justified by the project prioritisation process.
14. Greenwaste Collection RR 4519
The Committee was advised of progress on strategies identified in the 1996/97 compost facility business plan to increase quantities of greenwaste being diverted to the compost plant.
It was resolved that
1. Council Units be required to separate greenwaste wherever possible and that contractors have this requirement written into their contracts in future.
2. That the Waste Manager report on a more detailed action plan for greenwaste collection for the April City Services Committee meeting.
15. Waste Management Conference Issues RR 4520
The Waste Management Institute New Zealand 8th Annual Conference was held in Dunedin. This was valuable in providing up-to-date information on current waste management initiatives being pursued in New Zealand and overseas. The report was also referred to the Environmental Committee.
It was resolved that the Council obtain information on the success for waste minimisation of waste collection systems which use "stickers".
16. TREE MAINTENANCE AND REPLACEMENTS
Approval for the removal of significant trees and replacement planting in Lagan Street, Peebles Drive and Lower Styx Road was sought.
It was resolved:
1. That the problem Birch, Ash and Gum trees be removed from Lagan Street and replacement evergreen trees planted in the 1997 planting season.
2. That the Poplar trees in Peebles Drive be removed and replaced with more suitable trees.
3. That the Poplar trees in Lower Styx Road be removed and the site replanted with small regrowing trees.
17. SUPPLEMENTARY ITEM
CASHMERE ROAD PEDESTRIAN CROSSING SAFETY IMPROVEMENTS
The Chairman submitted the report from the Spreydon Heathcote Community Board and advised why the item was not on the agenda and why the matter could not wait for the next meeting.
It was resolved that the report be considered at the meeting on 11 February 1997.
18. ITEMS RECEIVED
The Committee received the following reports:
18.1 KEA SCHOOL PATROL CROSSINGS
18.2 COMMERCIAL WASTE MINIMISATION PROGRAMME FOR 1997
18.3 OLD LANDFILLS UPDATE
The meeting concluded at 6.15 pm.
CONSIDERED THIS 26TH DAY OF FEBRUARY 1997
MAYOR