28. 5. 97

CITY SERVICES COMMITTEE

13 MAY 1997

A meeting of the City Services Committee

was held on Tuesday 13 May 1997 at 2.00 pm

PRESENT: Councillor Denis O'Rourke (Chairman),

Councillors Carole Anderton, David Buist,

David Close, Graham Condon, Carole Evans,

Ian Howell and Ron Wright.

APOLOGIES: Apologies for absence were received and accepted from the Mayor, Ms Vicki Buck and Councillor Garry Moore.

Councillor Close was absent from 4.00 pm until 5.20 pm, and was not present for part of clause 1, clauses 10, 11, 12, 13 and part of clause 14.

Councillor Buist was temporarily absent from 4.10 pm until 4.17 pm and was not present for part of clause 1. Councillor Buist retired at 5.56 pm and was absent for part of clause 19 and all of clauses 4, 5, 6, 13, 14, 15, 16 and 17.

Councillor Howell was temporarily absent between 4.31 pm and 4.38 pm, and retired from the meeting at 4.50 pm. Councillor Howell was present for part of clauses 1 and 10, and all of clauses 7, 8 and 9.

Councillor Condon was absent from the meeting from 4.38 pm until 5.57 pm and was not present for part of clause 1, all of clauses 2, 3, 9, 10, 11, 12, 18 and part of 19.

Councillor Anderton retired at 5.37 pm, and was not present for clauses 4, 5, 6, 13, 14, 15, 16, 17, 18 and 19.

Councillor Evans retired at 5.38 pm and was not present for clauses 4, 5, 6, 13, 14, 15, 16, 17, 18 and 19.

The Committee reports that:

PART A - MATTERS REQUIRING A COUNCIL DECISION

1. SPEED LIMITS OUTSIDE SCHOOLS RR 5184

Officer responsible	Author
City Streets Manager	Brian Neill, Traffic Operations Engineer
Corporate Plan Output: Traffic Signs and Markings

The purpose of this report is to provide an update the Committee on progress made towards resolving the issue of speed limits outside schools and to address the particular concerns of Addington, Sydenham, Waltham, Marshland and Ouruhia schools.

These matters were also reported to the Spreydon/Heathcote and Shirley/Papanui Community Boards.

INTRODUCTION

At the 8 April 1997 meeting, Ms Karen Nairn, Chairperson of the Board of Trustees of Addington School, along with Betty Chapman and children of the Marshland School led a deputation to the Committee about the speed of traffic past their respective schools. They sought assistance to improve traffic and pedestrian safety at the school gate. Both schools were concerned about the posted speed limits along the road fronting their schools.

This was seen by the schools to be a problem in that the number of vehicles already travelling too fast past the school gate may in fact worsen with the new speed limits.

The Addington School also led a deputation to the Spreydon/Heathcote Community Board on the same day as the presentation to the Committee. The school sought the Council's assistance in achieving the following:

1. A mandatory 50 km/h speed limit outside schools and that this speed limit be enforced.

2. A "slip way" constructed at the Brougham Street entrance to Addington School so that cars can safely leave and return to the flow of traffic.

3. Improved signage to advise motorists of where schools are.

4. The placement of speed cameras outside schools.

DISCUSSION

Unfortunately, due to the recent school holiday, it has not been practicable this month to advance all of the questions raised by the schools to a point where outcomes can be reported to the Council. However, a great deal of preliminary work has been carried out and discussions initiated between Council officers, Transit NZ (for Brougham Street matters) and the schools concerned. Some survey work has been undertaken and improvements to the "children" warning signs on the Brougham Street approaches to Addington School carried out.

While this report is, in the main, dealing with the vehicle speed issues, there are many other aspects of road safety at the school gate that need to be addressed by the Council. There has always been a strong liaison between the schools, traffic engineers and police education officers concerning traffic safety outside schools in the city. It is proposed to expand the Council's involvement in road safety at schools through projects such as the "Safe Routes to School" and a more recent initiative "Safety at the School Gate".

A comment will be made on this proposal later in the report.

ADDINGTON SCHOOL

The specific issues raised by Addington School are addressed in this report. However, it has not been practicable, in the time available since the last meeting of the Committee, to make any recommendation at this time.

Discussions are ongoing between the Council, Transit NZ and the school with a view to deciding on the correct course of action with respect to providing a safer entrance off Brougham Street. Sketch plans have been prepared with alternatives for treating the school entrance in a way that vehicle manoeuvres can be made less hazardous both for the drivers involved and passing traffic. It should be possible to report on options complete with costings at the June meeting of the Committee.

There are two combined vehicle/pedestrian entrances into the school and one pedestrians only entrance. Children do not generally cross Brougham Street other than at the traffic signals at the Selwyn Street and Collins Street/Simeon Street intersections. The major concern therefore is for entranceway and traffic management outside the Brougham Street combined vehicle/pedestrian entrance to the school. Discussions with the school are also underway concerning the reconstruction of the kerbs, channels and footpaths in Somerset Crescent adjacent to this vehicle/pedestrian entrance to the school.

The other concern is for the "intimidation factor" faced by not only school pupils but all pedestrians using the signal controlled crossings at the Selwyn Street and Collins Street/Simeon Street intersections. As reported to the Committee in April, work is underway to make these signals as safe as possible for pedestrians crossing the state highway. Although these improvements will provide time for pedestrians to safely step onto the roadway before the lights turn green it is not practicable to eliminate the "intimidation factor" created by large trucks and other vehicles queuing at the signals waiting for pedestrians to cross.

Transit NZ have installed larger "school" warning signs on the Brougham Street approaches to the school. The height and positioning of the signs was questioned at the April meeting of the Committee. As a result the signs on the south side of the roadway were relocated to avoid conflict with trees and shrub growth; the new signs on the north side of the roadway have been repositioned at the correct height. The new signs provide maximum impact for drivers approaching the school's entrance.

SYDENHAM SCHOOL

The main entrance to Sydenham School is in Buchan Street. Although the school fronts onto Brougham Street there does not appear to be any traffic generated problems associated with the state highway.

The main concern is for pupils crossing at the traffic signals at Colombo Street. Although the "intimidation factor" is also present at this intersection traffic congestion ensures that speeds are quite a lot lower than at the Selwyn Street and Collins Street/Simeon Street intersections. Some work has already been carried out at the junction to shorten the distance pedestrians need to travel when crossing Brougham Street. Further studies are required to identify any additional work that can be carried out to improve the signal facilities for children travelling to and from the school.

WALTHAM SCHOOL

Waltham School is located on the corner of Hastings Street East and Waltham Road. This is one block south of the Brougham Street/Waltham Road intersection. The state highway has no direct influence on traffic past the school gate.

The main entrance to the school is in Hastings Street and the school currently operates a school patrol on the pedestrian crossing on Waltham Road south of Hastings Street East. There is also a pedestrian crossing outside the school in Hastings Street East.

The traffic speed issue on Brougham Street is similar to the one adjacent to Sydenham School in that some pupils need to cross Brougham Street at the traffic signals. The "intimidation factor" is going to always be a problem for pedestrians crossing at any set of traffic signals along Brougham Street. As with Sydenham School further studies will need to be made to ascertain whether any improvements can be made to the signals at Waltham Road to assist pupils of Waltham School.

MARSHLAND SCHOOL

The speed limit along Prestons Road past the Marshland School's main entrance was increased from 70 km/h to 80 km/h on 18 March 1997. This alteration to the speed limit was undertaken to rationalise the mix of 70 and 100 km/h limits along Prestons Road to create a more uniform speed environment. Careful posting of the speed limit signs indicating the 80 km/h limit has ensured that motorists do not increase speed through this area unnecessarily. Unfortunately we do not have any "before" traffic speed data directly outside the school. However, at a monitoring station west of the school between Hills Road and Walters Road traffic speeds (in the former 100 km/h zone) have shown a decrease since the new 80 km/h limit has been posted.

A considerable amount of work has been carried out on the roadway outside Marshland School to improve facilities for pedestrians, cyclists and people parking in the area to set down and collect pupils both before and after school. The school has been appreciative of the efforts made by the Council but is still concerned about the speed of traffic at the school gate and is seeking further assistance to make the road safer for people crossing.

As reported to the Shirley/Papanui Community Board a safety audit team comprising officers from the City Streets Unit, NZ Police Education Unit and the LTSA have met to review the existing facilities outside both the school and the nearby Ouruhia School with a view to improving safety. Both schools are being kept informed of progress on this matter and will be fully involved in the decision making process.

OURUHIA SCHOOL

Ouruhia School is located on Turners Road approximately 300 m east of the Marshland Road intersection.

The speed limit outside this school was not altered as part of the recent Christchurch City speed limit review. Turners Road has an open road speed limit (100 km/h). The speed limit on nearby Marshland Road was reduced from 100 km/h to 80 km/h on 17 March 1997. The new signs in Marshland Road and around the corner in Turners Road have highlighted the fact that the maximum speed allowed past the Ouruhia School is 100 km/h.

Following the collision between a motor vehicle and a pupil of the school, discussions were held between the Papanui/Shirley Community Board Chairperson, Council Officers and the Police as to improvements that could be made to lessen the hazards faced by people crossing the roadway at the school gate. This matter is also being addressed by the audit team. The school has been informed of the Council's concerns about safety at the school gate and will be a party to any proposal to improve traffic management outside the school.

SPEED LIMITS

As indicated earlier in this report the speed limit along Brougham Street has recently been raised from 50 km/h to 60 km/h and along Prestons Road outside Marshland School, from 70 km/h to 80 km/h. The Brougham Street speed limit is gazetted under a Transit NZ Bylaw and was part of the 1996 review of speed limits in Christchurch City. The 80 km/h is a bylaw speed limit administered by the Christchurch City Council. As part of the agreed speed limit strategy, monitoring of the new speed limits is seen as being an important part of the process involving the speed limit regime for the Christchurch City area.

Observations to date indicate that drivers have responded to the new limits in a positive manner in response to the Council's extensive publicity campaign for the new 60 km/h and 80 km/h speed limits. Although it has only been a little over a month since the new limits were posted it has been possible to carry out some monitoring on Brougham Street.

Tabled are copies of a table and graphs indicating the initial speed limit trends along the section of Brougham Street between the Collins Street/Simeon Street and Selwyn Street intersections. This information gives a good indication of what is happening on Brougham Street outside Addington School.

A pleasing aspect of the data so far collected is that the speed profile appears to have changed in that drivers are now travelling at a more uniform speed which is, in turn, slightly lower than was the case before the change. Of some significance is the trend for very few vehicles to be exceeding 80 km/h.

The speed/time of day graphs also indicate the time of day when children are likely to be crossing the roadway. Speeds both before and after the speed limit change are consistently on the low side during these periods due to higher traffic volumes during these periods of the day and, (perhaps) an awareness by many drivers that school children are likely to be travelling to school at that time.

The NZ Road Transport Association has indicated that drivers of heavy motor vehicles travelling along Brougham Street are pleased with the new speed limits. Safety has been improved for truck drivers in that prior to the speed limit change they were witness to many risky overtaking manoeuvres by car drivers which often forced them to brake heavily when approaching traffic signals at the various intersections along the route. Our observations so far suggest that a positive factor of the rationalising of the speed limits on four laned arterials has resulted in more uniform speed. Along Blenheim Road/Main South Road and Brougham Street marked improvements have been noted. However, this effect is not so noticeable along Yaldhurst Road where there are fewer trucks and traffic volumes are relatively low.

There is a need to continue monitoring traffic speed along the roads involved in the rationalisation of speed limits in the city with assistance from the New Zealand Police. The "policing factor" is considered very important if we are to follow the objective of the speed management strategy. A copy of a letter to the District Commander NZ Police concerning the speed problem outside schools and the speed management strategy for Christchurch City is tabled.

CONTROLLING TRAFFIC SPEEDS OUTSIDE SCHOOLS

Outside most schools in the urban areas in the city there is a noticeable decrease in the speed of traffic passing by when children are crossing the road both before and after school. Unfortunately there are problems outside schools fronting four lane arterial roads and in rural areas where traffic speeds are often considerably above the 50 km/h urban limit. The concern therefore is that drivers may often pass by schools at different speeds in different areas when in fact they should be exercising the same care no matter what the locality and speed environment.

This is very hard to quantify. However, the Council has rightly identified the need to change the speed culture of motorists in the city especially outside schools and in other areas where there is a likelihood that pedestrians may be crossing the roadway.

If traffic is travelling at 50 km/h or below when approaching a school crossing point the hazard for pedestrians crossing the road is lessened.

There is merit in the suggestion that safety would be improved if all drivers were required to travel within the school zone (defined by permanent warning signs) at a speed not exceeding 50km/h at times when there is a likelihood of them encountering children crossing the roadway. This could be achieved by a rule that would require drivers to proceed at a speed not exceeding 50 km/h when, for instance, a school patrol is actually operating at either a "Kea" or zebra pedestrian crossing site. The normal speed limit for the road in question would apply at all other times.

Rural areas would benefit most by such a driving rule. Safety would be improved if a rule brought about a speed culture change at the critical time children are travelling to and from school. On arterial roads in urban areas, where traffic often exceeds 50 km/h, similar safety benefits should be accrued.

A great deal of work would need to be done on this proposal if the driving rules are to be changed. This idea would need the cooperation of all authorities and the Government if the law is to be changed.

There have been many approaches to the Council and questions raised by Councillors suggesting that improved warning devices need to be available to lessen the hazards faced by children crossing the roadway and entering the school gate. Flashing lights and brighter signs have been suggested (and trialed) but with little real success both in New Zealand and overseas; a driver rule change may be the better option.

The warning devices for the new "kea" school patrol crossings have had a positive effect on approaching traffic. The bright orange "flag" signs are quite outstanding and add to the visibility of the school crossing point. If driving rules were altered to bring in a mandatory 50 km/h speed limit in areas where school patrols are operating or where signs are erected to this effect, safety at the school gate could be enhanced.

Posted speed limits are unlikely to have a long term effect on driver behaviour particularly if they only apply to school zones but operate (as in some states in Australia) 24 hours a day. The imposition of a driving rule that requires drivers to reduce speed to 50 km/h within school zones provided appropriate warning devices are posted should be a more viable option. This would be particularly relevant to the situation outside Marshland and Ouruhia Schools.

SAFETY AT THE SCHOOL GATE

As indicated in the introduction to this report there is a need to coordinate activities involving the safety of children travelling to and from school and the management of traffic (including pedestrians) at the school gate. The

Spreydon/Heathcote Community Board's initiative with the Parking Operations Unit to provide a resource for identifying problems at schools within the Spreydon and Heathcote wards has been welcomed by the NZ Police Education Officers and the City Streets Unit's Area Traffic Engineers. Tim Aston who has been working on this project for some months has completed his initial report which will be presented to the Spreydon/Heathcote Community Board in June. Mr Aston has been working with the various Council Units and is employed by the Parking Operations Unit. The management of parking outside schools is a major problem and contributes to the hazards faced by pupils travelling to and from school.

City Streets, Parking Operations, NZ Police Education and the Council's Children's Advocate have met to discuss the possibility of forming a team to coordinate activities that will result in improvements to road safety at the school gate. Programmes such as "Safe Routes to School" are to be encouraged and a means of carrying out work to survey a greater number of schools in the future will be one of the objectives of this team.

It is proposed that once the composition of the team has been decided upon and the objectives established a steering group will be set up to oversee the work. A likely outcome is that the team will report regularly to the coordinating committee for traffic safety.

LAND TRANSPORT SAFETY (SETTING OF SPEED LIMITS) SUBMISSION

The Committee will be aware of the submission made to the Land Transport Safety Authority concerning the proposed rule (54001) for the setting of speed limits. Councillor Close worked closely with the Traffic Operations Engineer on the final submission which, it is understood, is one of only 30 received on the red draft of the proposed rule by the Rules Team from the LTSA. Councillor Close, in his role of President of TRAFINZ, promoted a questionnaire on the proposed rule to all member Councils, the results of which were also forwarded to the LTSA.

In the submission the fact that rules should be developed to cover the situation outside schools where speed limits are greater than 50 km/h was highlighted. It is our intention that this be discussed widely and subjected to scrutiny at national forums such as TRAFINZ and the LTSA Traffic Management Workshop later in the year.

CONCLUSIONS

The matters raised by Addington, Sydenham, Waltham, Marshland and Ouruhia Schools with respect to speed limits and safety at the school gate

are being addressed. Ongoing representations will provide a direction for developing solutions to the problem of vehicle speeds in the vicinity of schools in the city.

Mrs Yvonne Palmer and Mr David Dobbie, representing the Burwood/Pegasus and Shirley/Papanui Community Boards, and the Community Managers' Forum, addressed the Committee concerning speed limits outside schools. They requested that the Committee investigate the possibility of restricting the speed limits outside schools during the "drop off" and "pick up" hours, to at least 40 km/ph, and incorporating the use of flashing lights at these times. The suggestion was made that school traffic education funding at a metropolitan level could be considered by the Council. The involvement of parents in the enforcement of parking restrictions outside schools, was also suggested.

Recommendation: That the stopping of vehicles be prohibited at any time on the south side of Brougham Street commencing at a point eight metres west of the western boundary of Addington School, and extending in an easterly direction for a distance of 20 metres.

2. PROPOSED STATIC SPEED CAMERA SITE:

NORTHCOTE ROAD RR 5081

Officer responsible	Author
City Streets Manager	Malcolm Taylor, Engineering Officer
Corporate Plan Output: Street Markings and Signs p 9.5 text 38

The purpose of this report is to inform the Council of the NZ Police's proposal to install an additional static speed camera site in Northcote Road between Lydia and Paprika Streets.

A consultative team of officers from the NZ Police, LTSA, AA NZ and the Christchurch City Council considered a number of possible sites. A copy of a letter from the NZ Police seeking Council approval for this camera site is tabled.

This section of Northcote Road was chosen for safety reasons as it has a high concentration of speed sensitive crashes recorded on it. The site will be useful in checking the speed of vehicles using this section of the ring road route; a mobile camera site is located further along the route in Waimairi Road.

Main Road causeway and Riccarton Avenue were two sites considered by the Team but discarded on technical grounds.

Both the Fendalton/Waimairi and Papanui/Shirley Community Boards have expressed their concerns at vehicle speeds on this section of road. Casebrook Intermediate and the Northcote Kindergarten both have direct access to Northcote Road.

The NZ Police consider that outside No 126 Northcote Road would be the best location technically for the installation and have obtained the adjacent landowners' permission. A list of other static and mobile camera sites is tabled.

Recommendation: That the Council endorse the proposal to install a static speed camera outside No 126 Northcote Road.

3. RICCARTON ROAD TRAFFIC MANAGEMENT PLAN

- DEFINITION OF OBJECTIVES AND PRIORITY RR 5218

Officer responsible	Author
City Streets Manager	Paul Roberts, Transport Planning Engineer
Corporate Plan Output: Advanced Transport Planning

The purpose of this report is twofold: firstly to update the committee on the progress of the above study and secondly, to obtain approval of a list of objectives and their priority to assist in formulation and assessment by the consultant of alternative strategies in Stage 3 of the study.

BACKGROUND

The study was commissioned following a resolution by Council:

1. "That the preparation of a comprehensive traffic management plan be undertaken, encompassing the full length of Riccarton Road and its environs, incorporating public transport options, traffic flow, pedestrian safety, parking and main street landscape enhancement"; and

2. "That full public consultation with input from all interested parties, including business and residents' groups and the Community Board/s, be an integral part of this process".

The (main) Study Area encompasses the full length of Riccarton Road and its environs. An outer study area which covers the area bounded by and inclusive of Blenheim Road, Peer Street, Fendalton Road and Deans Avenue is to be included if there are exceptional considerations with significant impact on or from the Study Area.

STAGES OF THE STUDY

The approved brief envisaged a study conducted in 3 main stages:

Stage 1, now essentially complete, has involved a Problem Assessment. This involved identifying what the main problems are (actual and perceived), where and when the problems are most concentrated, who can be regarded as suffering the worst impact of transport problems and key linkages between the problems.

The consultant has prepared a draft report on this stage of the study which was presented at a seminar on Friday 11 April 1997 to the City Services sub-committee set up to oversee this study (comprising all members of the City Services committee).

Stage 2, involves a Prioritisation of Objectives. Taking account of the findings of Stage 1, the Consultant was required to suggest what the objectives of the Traffic Management Plan should be and recommend a priority for these objectives. The objectives and their priority were then to be reviewed and recommended to the Council by the City Services Committee after consultation with the relevant Community Board(s).

Stage 3 requires the consultant to Develop and Assess Alternative Strategies. This involves identification of alternative strategies, a technical assessment of their likely impact on the problems (from Stage 1) including broad costs and benefits, and providing an informed assessment of the relative merits of each alternative in meeting the stated objectives (from Stage 2). The consultant will then present the alternative strategies to the community (including a presentation to City Services, a presentation to Community Board(s) and the general public who may be interested), and circulation of a brochure to elicit a response from local and non-local users.

The above work will lead to a recommendation of a preferred strategy by the consultant to the City Services Committee and the strategy recommended by City Services will then be put to Council for approval. The consultant will then develop the approved strategy into the Traffic Management Plan.

STATEMENT OF OBJECTIVES AND PRIORITY

At the seminar on 11 April the City Services sub-committee, after hearing a summary of the problem assessment from the consultant, discussed what the objectives of the study should be together with their relative priority. The sub-committee favoured preparation of two schedules to reflect the differences between the Commercial and Residential areas within the study area. The consultant indicated his willingness to adopt this recommendation.

The attached table (Attachment 1) indicates the recommendations of the sub-committee. Also shown in this table are the recommendations of the consultant, based on a purely technical assessment.

As noted above, the approved brief identified that the Riccarton/Wigram and Fendalton/Waimari Community Boards were also to be consulted prior to a recommendation to Council from the City Services committee (ie via this meeting).

On 7 May the Riccarton/Wigram board considered a report from its traffic sub-committee detailing their recommendations for a priority ranking, and have endorsed these. The attached table (Attachment 1) also includes the priority for objectives recommended by this community board sub-committee.

The Fendalton/Waimari Board considered the matter at its meeting on 8 May and endorsed the City Services Committee's recommendation.

An oral report by the author was made to the 13 May meeting of the City Services Committee on the recommendations from the above meetings of the two Community Boards.

The value in prioritisation comes when considering on a rational basis the relative merits of the alternative strategies, because it is unlikely, indeed impossible, to meet all objectives fully, given that some objectives are contrary and others may be linked in a positive way. This may be seen on the attached table. Solutions to meet the objective of a reduction in the environmental effects (of traffic) in residential parts of the study area (Consultant's recommendation priority 3), will also, presumably, contribute positively to achievement of an objective to improve parking, although this is specifically ranked lower). Likewise, enhancement of the arterial function might best be achieved through improved public transport facilities.

It may be apparent that in fact the table does actually include some confusion between `objectives' and the means by which the objectives can be achieved.

Further discussion of the priority list of objectives was undertaken by the City Services Committee, taking account of the opinions expressed by both the consultant and the relevant community boards.

It must be also be noted however that in Stage 3 the consultant will in fact identify several options (or strategies) which will obviously reflect a range of priorities.

Mrs Helen Broughton and Mr Mike Mora representing the Riccarton/Wigram Community Board, presented the Board's list of priorities for the Riccarton Road Traffic Management Plan. A copy of this list (tabled) was circulated to the meeting, and members noted that the order of priorities differed from that of the City Services Committee in that it included "Improve Public Transport" as the Community Board's sixth objective. The Committee gave due consideration to the opinions expressed by the Community Board, and debated the matter further when considering the report from the City Streets Unit.

Recommendation: That the priority list of objectives (Attachment 1) established at the Committee's seminar held for the purpose, be amended by the addition of another objective in priority 2 under both commercial and residential, being "Improve pedestrian facilities", and subject to that amendment the Committee's list be adopted.

4. ROAD MANAGEMENT OPTIONS FOR REFORM RR 5187

Officer responsible	Author
City Streets Manager	Lucas Sikiotis
Corporate Plan Output: Planning

The purpose of this report is to inform Councillors about the Ministry of Transport's (MOT's) intention to review and rationalise the current legislative regime within which roading authorities manage roads and traffic. This report also invited Committee members to guide and participate in the discussion process and debate regarding the proposals made in the MOT's paper, in order to formulate a submission to the Ministry by 31 July 1997.

A copy of the MOT's paper entitled "Road Management: Options for Reform," is tabled.

The paper suggests that a new road management regime should be capable of delivering a road network which offers safe and efficient access to individuals and businesses. It advances five new options for a future legislative framework which range from a totally prescriptive option through to a non-prescriptive option. Each option is briefly described and some of the pros and cons from the Ministry's perspective are discussed, based on experiences of similar option models applied to other modes of transport.

If authorities believe that a combination of features from several of the proposed options would achieve the overall objective of safety and efficiency they are encouraged, in their submissions, to go beyond the limits imposed by the said options.

The failure of the current complex legislative regime to place a clear and binding duty on infrastructure managers is cited as the main driving force behind this initiative to rationalise the legislation. Several other related reasons are also put forward justifying the need for reform.

The paper also attempts, from the MOT's perspective, to set up an assessment framework, with assessment criteria, to assist the process of option evaluation. While this idea is supported and a similar approach recommended for the evaluation of those options which the Council supports, some of the criteria and the rating system need attention and refinement in order to effectively capture the Council's concerns and objectives.

Examination of the paper and some of its proposals reveals that the promulgation of new legislation and its administration in terms of these options could have some far reaching and significant implications on the Council. These could be: new responsibilities in the provision of roading infrastructure to higher standards; upgrading of road markings and signs; appointing officers with clear accountability to ensure compliance to new safety standards; ensuring that roading assets are maintained to a higher minimum standard; etc.

The implications for other smaller territorial authorities are likely to be even more significant, given the practical limitations of their resources and expertise. Officers from the Canterbury area territorial authorities (including an officer from this Council) have met to discuss this issue and plan to pool their resources to assist in the formulation of their submissions.

In order to understand the range of possible consequences of the intended legislative reform and to formulate a well informed, timely and relevant submission from this Council, the following actions are suggested:

The constitution of a Sub-Committee, possibly the existing Land Transport Sub-committee, with the support of Council officers, a legal adviser and possibly a consultant, to set up and lead a meaningful process for technical debate and input.

The convening of a half-day seminar for Councillors and senior officers to consider, debate and formulate acceptable options for road management.

The preparation of the submission and all support documentation.

Recommendation: 1. That the contents of the report and the tabled paper entitled "Road Management: Options for Reform," prepared by the Ministry of Transport, be received.

2. That the Land Transport Sub-Committee, with the support of Council officers, a legal adviser and a consultant, establish a process for technical debate and input.

3. That a half-day seminar be held for Councillors and senior officers to consider, debate and formulate acceptable options for road management.

4. That the Sub-Committee draft a report and a submission for recommendation to the City Services Committee, the Council and onward submission to the Ministry of Transport, by 31 July 1997.

5. DISCHARGE CONSENT FOR EFFLUENT FROM RR 5182

CHRISTCHURCH WASTEWATER TREATMENT PLANT

Officer responsible	Author
Waste Manager	Walter Lewthwaite, Wastewater Engineer
Corporate Plan Output: Liquid Waste

The purposes of this report are:

to bring Councillors up to date with progress on seeking a new consent to discharge effluent from the main Christchurch Wastewater Treatment Plant, and

to seek approval to delegate authority to act to three Councillors designated to represent the Council on the Public Consultation Working Party.

BACKGROUND

Effluent from the treatment plant has discharged to the estuary since the plant was built in the early 1960's. The consent for this expires at the latest in 2001, or it could be as early as 1999 if a Regional Coastal Policy Statement is brought into operation by that time. In August 1996 the Council approved a process of investigation and consultation leading to an application for a new consent. That process was designed to meet the requirements of the Resource Management Act. Councillors O'Rourke, Evans and Wright were nominated to represent the Council on a public consultation working party that was set up late in 1996.

PROGRESS TO DATE

1. In August 1996 consultants Beca-Steven presented a report to the Council on options for upgrading the treatment plant and recommended as a minimum that a budget of $30 million be allowed over a period from 1997/98 to 2005/06. The Council has accepted that as a budgetary planning figure, while recognising that the discharge consent process might lead to a more expensive option.

2. Facilitator Gay Pavelka was engaged to lead the process of consultation. Under her direction and following a widely advertised public meeting in November 1996 a working party of 18 people has been set up. This group includes the three Councillors and two Council staff, plus representatives from industry and commerce, estuary and recreational groups, residents' groups and community boards, statutory authorities (Regional Council and Department of Conservation), health interests, and two individuals with particular technical expertise. Councillors will recall a special report presented at the February meeting of the Council where the Council endorsed the key role of this working party. The following resolutions were passed:

That the Christchurch City Council recognises the integrity, independence and important role of the Working Party in determining appropriate options for wastewater discharge from the Christchurch plant. The Council will give serious consideration without prejudice to the issues raised and to adoption of recommendations of the Working Party.

3. One round of public consultations was held between 12 February and 3 March 1997, targeted at four special interest groups, and another round of meetings was held in early April using the expertise of the working party to address three key areas of concern: odours, issues, and options.

4. Two consultations have been held with Maori representatives on specifics of the consent and another on more general Resource Management Act issues. Council staff are currently preparing a "Cultural Audit" proposal for consideration by Ngai Tuahuriri Runanga.

5. Currently a brief is being prepared for commissioning a report on issues and options related to the discharge and it is hoped to have this ready in May to invite consultants to put in proposals for a study.

The currently expected programme of activities is tabled.

INVOLVEMENT OF COUNCILLORS

The process approved in August 1996 stated that the Council would approve the issues and options brief and selection of consultants. However it is now recommended that authority for this be delegated to Councillors O'Rourke, Evans, and Wright, the three Councillors nominated to represent the Council on the working party.

The reasons for this are that:

1. with the reviews required by the Working Party process it would now be very time consuming to have to report these steps through Council meetings.

2. the Councillors concerned have built up familiarity and expertise on the subject to act on behalf of the Council on the specific points requested.

Recommendation: That the Council delegate to Councillors O'Rourke, Close, Evans and Wright the authority to recommend to the Council the brief for the discharge consent issues and options study, and the authority to approve the selection of consultants to do this study.

6. REFUSE COLLECTION FROM PRIVATE RIGHTS OF WAY (LANES)

RR 5180

Officer responsible	Author
Waste Manager	Simon Collin
Corporate Plan Output: Solid Waste

This report follows from the Annual Plan Working Party's recommendation that additional funding be provided in the 1997/98 budget for the extension of refuse collection services down additional private lanes.

Its purpose is to provide a detailed proposal on how such an extension of services may be managed.

BACKGROUND

The issue of collection of refuse from private lanes has arisen a number of times since the amalgamation of Christchurch's local authorities into a single entity. One of the principal reasons that the issue has kept resurfacing is the inequity of the existing situation. The Council decided shortly after amalgamation that those people living in private lanes that enjoyed a refuse collection serviced prior to amalgamation should continue to receive this service. Thus 32 lanes from the old Heathcote and Paparua districts have continued to have refuse collected from private lanes (at a cost of approximately $12,500 per annum to the Council). Residents in other parts of the city living in private lanes and aware of this inequity have lobbied Councillors and staff from time to time in an effort to have the
policy changed. They have not met with any success in the past due to both the cost implications of increasing the service and difficulties in determining precisely which lanes should be collected from. The factors involved in this are discussed below.

PARAMETERS TO BE CONSIDERED

Access

Currently the lanes that are collected from are serviced by a small non-compacting truck of 3 tonne carrying capacity. Using this vehicle, it costs $1.20 per household per week to collect the refuse compared to 0.34 cents per household per week for the collection elsewhere. While the per unit costs may go down with an increased number of lanes, it is considered that any new lane to be collected from should be able to be serviced by such a truck. If not, then either runners would have to go down the lanes to pick up the refuse, or a smaller truck/van would need to be used. Both of these alternatives have the potential to significantly increase the premium paid over the normal collection of 34 cents per household per week.

To provide access to such trucks it is proposed that:

* Lanes be at least 3.0m kerb to kerb (or fences).

* Grades be not steeper than 1 in 5.

* Overhanging trees/shrubs must not impede the trucks' ability to go down the lane.

* The truck must be able to drive down the lane, turn comfortably (ie without unreasonable risk to fences/letter boxes etc) and drive out again.

* The issue of residents' parked cars preventing access also needs to be addressed. It is proposed that if this occurs, the contractor will not be required to collect the bags on that occasion, but would instead apply stickers to bags advising why the bag was not collected. It is further proposed that if this occurs on more than two occasions then the service should be suspended. Residents applying for the service would be required to accept these conditions in writing before the service commenced.

Number of Houses

The current criteria for NZ Post delivering mail to private lanes is that there must be a minimum of five dwelling units whose legal access is down the lane and it must be fully formed and sealed. (This is also the criteria currently used by the Council for allowing private lanes to be named.) It is proposed that the same criteria be used for the refuse collection service.

Length of Lane

It is proposed that lanes should be at least 80 m long (measured from the street boundary to the boundary of the last house in the lane) Lanes shorter than this will have most of the dwellings close enough to the street frontage so that owners have to carry bags not much further than from an average suburban section.

Damage to Property

Damage to property - eg lawns, letterboxes, fences etc caused by the collection truck would need to be covered in the normal way by the contractor's public liability insurance. However damage to the road surface (which is usually engineered in private lanes to a lower standard than roads) or its foundation may occur just by having a truck regularly traversing and turning at the end of the lane. This damage must remain the responsibility of the lane residents (as is all other lane maintenance) and it is therefore proposed that any new lane collection service must be unanimously supported by all lane residents with this understanding clearly stated. Residents would be required to collectively agree in writing to indemnify the Council against claims for such roading repairs

Administration of Selection Criteria

There is an unknown number of private rights of way (lanes) within the city although it is estimated to be in the order of 4000. With the need to apply the selection criteria discussed above it is clear that assessment of lanes will have to be made on a one by one basis.

It is thought that this could be most effectively managed by the local community board with residents applying to have the service commenced through a local Service Centre Technical Officer. A Council officer would investigate the lane for acceptability and recommend to the Community Board to either accept or reject the application. Subject to the residents signing to accept the conditions the collection contractor would then be notified and the service commenced and not be stopped unless either (a) problems occurred with access to the lane or (b) any one resident applied to the service centre to have it stopped. It is proposed that the community board would have discretion to both (a) turn an application down (for good reasons) even though all the criteria above have been met and (b) make a recommendation to the City Services Committee that an application be approved even though all the criteria have not been met.

General

* The proposal being considered is that the extension of services will apply to dwellings that are down legal rights of way. It is not therefore being proposed to extend the service to developments that are sited on a single block of land.

* The provisions would normally exclude developments such as motels from being eligible for the new service, but the discretionary powers would allow community boards to recommend that developments such as old peoples villages can be included in the new service.

* Private lanes increase in number each year. There were about 180 new ones in the 1995/96 year. Costs are therefore likely to continually escalate in this area.

* The budget provision for the 1997/98 financial year for this additional service is modest ($32,000) and will only accommodate a limited number of new lanes.

* A start to the expanded lane collection can be made in August 1997. Those residents who have been asking for the new service would be advised to make a formal application through their community board prior to that date. Further approvals would continue through 1997 and subsequent years. Advertising the response to the new service can be assessed.

Summary

The following lane qualification criteria are proposed:

* Lanes to be at least 3.0m wide.

* Grades of lanes to be not steeper than 1 in 5.

* Three tonne capacity truck (dimensions to be specified) must be able to negotiate lane.

* Five or more houses to be down the lane.

* Lane to be longer than 80m.

* Applications from residents to be unanimous and on the clear understanding that they are responsible for wear and tear on the lane.

* Applications to be administered through service centres/community boards.

* Service to be commenced in the 1997/98 financial year.

Timetable

Date of Public Notice: June 1997

Commence approval of applications: July 1997

Start new service: August 1997

Recommendation: That the extension of the refuse collection service down private rights of way (lanes) be approved by the Council in accordance with the criteria set out above.

PART B - REPORTS FOR INFORMATION

7. DEPUTATIONS BY APPOINTMENT

(a) RICCARTON ROAD TRAFFIC MANAGEMENT PLAN

As indicated in clause 3, the Committee received deputations from Mrs Helen Broughton and Mr Mike Mora, who submitted the Riccarton/Wigram Community Board's list of priorities for the Riccarton Road Traffic Management Plan for the Committee's consideration.

(b) BUCHANANS/RACECOURSE ROAD INTERSECTION

The Committee received deputations from Messrs Stephen Shimmin and Bob Shearing, representing the Riccarton Park Residents' Association on the proposed improvements at the intersection of Buchanans/Racecourse Roads. Alternative proposals drawn up by the Residents' Association were circulated to the meeting and discussed in conjunction with the report from the City Streets Unit. (Reported in Part B, Clause 8).

(c) SPEED LIMITS OUTSIDE SCHOOLS

As advised in clause 1, the Committee received deputations from Mrs Yvonne Palmer and Mr David Dobbie, (representing both the Burwood/Pegasus and Shirley/Papanui Community Boards and the Community Managers' Forum) on speed limits outside schools.

8. BUCHANANS/RACECOURSE ROAD INTERSECTION

The Committee was advised that the Buchanans/Racecourse intersection presently has a safety problem due to east bound traffic on Buchanans Road failing to give way to vehicles travelling north along Racecourse Road. Intersection improvements are proposed to change the priority which will improve safety and reinforce the roading hierarchy. The Committee gave consideration to the plans presented by representatives of the Riccarton Park Residents' Association as part of their deputation. It was suggested a "cheese block" system incorporating the residents' proposal be trialled for two or three months.

The Committee decided that the proposals for the intersection be referred back to the officers for a further report, to include (a) the proposal put forward by the residents, (b) other ways to accomplish the residents' concerns, and (c) consideration of the installation of a roundabout at this intersection.

9. RACECOURSE/YALDHURST ROADS INTERSECTIONS

A report from the City Streets Unit drew the Committee's attention to a right of way and traffic lane problem at the Racecourse/Yaldhurst Road intersection. The Committee decided to endorse the Riccarton/Wigram Community Board's desire to seek public opinion of a proposal to construct a seagull island in Yaldhurst Road at the Racecourse intersection, and that the matter be researched by the City Streets Unit and reported back to the City Services Committee in due course.

10. PEDESTRIAN POINT CROSSING GUIDELINES

The Committee was provided with an update on progress towards the establishment of a set of guidelines for pedestrian crossing points in the city. The Committee received the initial report from consultant, Stephen Abley (who has been retained to research the subject and provide final copy for the proposed guidelines) and requested that regular reports be submitted to the City Services Committee.

11. REVIEW OF CONDITIONS FOR MOBILE AND TRAVELLING SHOP LICENCES

This report from the Traffic Operations Engineer was to gain the Committee's endorsement of the criteria relating to the prohibition of mobile and travelling shops operating on certain roads in the city. An updated list of roads affected by this policy will be attached to and become part of the general conditions of licence for all mobile and travelling shop licences issued by the CCC.

The Committee decided that Linwood Avenue (Hargood Street/Humphreys Drive) be an exception, that the Committee endorse the criteria and list of restricted roads for mobile and travelling shops, and that the list of restricted roads be forwarded to the Environmental Committee for inclusion in future licences for mobile and travelling shops.

12. POLICE REPORTS

The Committee received four reports from Inspector Jim McKee of the NZ Police. These reports covered:

(a) Operation Restraint: 10-23 March 1997

(b) Operation Centrum: 21-22 March 1997

(c) Speed Management Strategy; and

(d) Nine Month Report on Traffic Control for Christchurch Police District

13. TRAFFIC MANAGEMENT IN SHIRLEY MALL AREA RR 5152

This report, from the City Streets Unit, informed the Committee on the progress of the traffic management measures proposed in a report submitted to the March meeting of the Committee. It was noted that a publicity leaflet is being prepared for public distribution showing the traffic management measures proposed to be undertaken in the area. The Committee received the information.

14. UPPER BINGS DRAIN CLOSURE RR 3497

The purpose of this report, from the Water Services Manager, was to seek approval for the closure of a short, open section at the top end of Bings Drain in Madras Street. The drain will be replaced by private drains on individual properties.

The Committee decided:

1. That the Water Services Unit advise land owners that the existing open drain will be discontinued as a Council drain under section 28(g) of the Christchurch District Drainage Act 1951 but shall remain in the interim and be maintained by the Council until all properties drain into Madras Street.

2. That the owners of properties on which there is new development be required to provide drainage from their land and buildings to the kerb, and to intercept water from Bings Drain upstream of their property and convey this water to the kerb.

15. ANTIGUA WEIR RR 4645

A report from the Water Services Manager advised the City Services Committee of a proposal to carry out repairs and improvements to the Antigua Weir.

The Committee decided that the Water Services Unit continue to finalise a design for repairs and improvements to the Antigua Weir.

16. CULL OF CANADA GEESE RR 5181

The purpose of this report was to address a further letter from the North Canterbury Fish & Game Council seeking permission to carry out Canada goose population control on Council land during December 1997 and January 1998.

The Committee decided to request an updated report on this matter for the June/July City Services meeting.

17. KERBSIDE REFUSE AND RECYCLING COLLECTION CONTRACT

REGISTRATION OF INTEREST FOR TENDERERS RR 5178

Councillors were provided with information about the registration of interest for tenderers for kerbside refuse and kerbside recycling collection contracts. An updated timetable for the tendering procedure was tabled.

The seven successful registrants are all either significant players in the world refuse/recycling market, (Carter Holt Harvey, Waste Control New Zealand, Waste Management New Zealand, Onyx New Zealand, and Enviro Waste), or local operators with sufficient experience in collecting refuse/paper in Christchurch (Works Operations and Waste Control). The registrants have been kept informed of the delays in tendering as they have occurred, and will be provided shortly with a copy of the updated kerbside programme.

The Committee received the information.

PART C - REPORT ON DELEGATED DECISIONS

TAKEN BY THE COMMITTEE

18. "SAFE CYCLING" TRAINING RR 5154

The Committee resolved that the "Safe Cycling" training programme be approved.

19. SAFE ROUTES TO SCHOOL RR 5155

The Committee resolved:

1. That the programme for "safe routes to school" be adopted.

2. That additional funding be sought for "safe routes to schools" for the 1997/98 financial year.

20. WHITTINGTON AVENUE TREES RR 4995

The Committee resolved that the removal of the existing trees in Whittington Avenue be approved and that they be replaced with trees suitable to the environment.

21. PAPANUI ROAD/ONSLOW STREET VEHICLE ENTRANCES TO COURT CAMELOT RR 5238

The Committee resolved that the parking limit lines be provided in the vicinity of the entrance/exitways to Camelot Court on both Papanui Road and Onslow Street, as requested by the Fendalton/Waimairi Community Board.

The meeting concluded at 6.46 pm.

CONSIDERED THIS 28TH DAY OF MAY 1997

MAYOR

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