Central Dunedin Speed Restriction Health Impact Assessment Report

2010

Table of contents Page numbers Table of figures...... 3 Glossary ...... 4 Executive Summary...... 5 1. Introduction ...... 10 1.1 Statement of proposal...... 10 1.2 Aim of HIA ...... 10 1.3 Genesis of the project...... 10 1.4 HIA team...... 11 1.5 Reports contents ...... 11 2. Health Impact Assessment...... 12 2.1 What is Health Impact Assessment? ...... 12 2.2 The determinants of health ...... 12 2.3 Why are we using the HIA tool? ...... 12 2.4 How are we using the HIA tool? ...... 13 3. Background ...... 14 4. Community profile ...... 15 5. Discussion piece on traffic engineering ...... 19 5. 1 Fundamentals of traffic management ...... 19 6. Screening and scoping...... 20 6.1 Screening ...... 20 6.2 Scoping...... 20 6.3 Scope of the HIA ...... 20 6.3.1 Timeframe for the HIA process ...... 21 6.3.2 Aims and objectives of the HIA ...... 21 6.3.3 The identified determinants of health ...... 21 6.3.4 The population groups most affected...... 22 6.3.5 Budget ...... 22 7. Summary of literature review ...... 23 7.1 How does traffic speed influence health and well-being? ...... 23 7.2 How does a 30km/h speed limit reduce the severity and number of crashes?...... 24 7.3 How does a 30km/h speed limit impact on physical activity?...... 25 7.4 How does a 30km/h speed limit impact on social capital?...... 26 8. Appraisal...... 27 8.1 Appraisal workshop process...... 27 8.2 Extra appraisal meetings ...... 27 8.3 Overall findings of appraisal workshops and subsequent appraisal meetings...... 28 9. Recommendations ...... 29 9.1 Recommendation process...... 29 9.2 Set of recommendations...... 29 10. Evaluation ...... 32 10.1 Evaluation framework ...... 32 10.2 Conducting the evaluation...... 33 Appendices...... 34 Appendix 1. Screening questions and answers...... 34 Appendix 2. Community profile ...... 36

Central Dunedin Speed Restriction HIA Report 1 Appendix 3. Scoping workshop ...... 44 Appendix 4. Literature review...... 47 Appendix 5. Appraisal workshop ...... 67 Appendix 6. Extra appraisal workshops ...... 71 Appendix 7. Extra appraisal workshop meeting notes...... 76

Central Dunedin Speed Restriction HIA Report 2

Table of figures Page numbers

Figure 1. Geographical location of proposed 30 km/h zone...... 6 Figure 2. Speed profile...... 16 Figure 3. Percentage of vehicles exceeding speed limit ...... 17 Figure 4. Percentage of vehicles exceeding speed limit - Moray to Dowling St...... 18

Please note there are also attachments included with this document, they are;

Attachment 1 Map of zone, illustrating schools, recreational areas etc Attachment 2 Pedestrian injuries in central city crash sites and injury type Attachment 3 HIA zone dwelling types Attachment 4 Meshblock population, census 2006 Attachment 5 Deprivation deciles illustrating inequalities within the area Attachment 6 Residence of students attending Kavanagh College, Otago Girls’, Otago Boys’, St Joseph’s Cathedral and St Hilda’s Collegiate by meshblock Attachment 7 Photo illustrating pollution on internal shop wall CAS Data Attachment 8a Road traffic accidents by road user age Attachment 8b Road traffic accidents by road user and time Attachment 8c Hourly time versus road user Attachment 8d Road Traffic accidents – by road user and day/night

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Glossary

Appraisal Identifies the relevant determinants of health and uses specific workshops tools to identify potential health impacts. Barnes Dance A type of pedestrian crossing whereby all traffic stops and pedestrians are able to cross the intersection in any direction, including diagonally. Also known as a scramble crossing or diagonal crossing. Central City An integrated ‘place based’ strategy for the central city area, to Strategy identify an integrated package of actions that can be used to revitalise that centre economically and socially and improve connections and shared spaces. Determinants of Health is determined by a continuum of influences ranging from health age, sex and heredity factors, through to individual behaviours, and the social, cultural and economic contexts in which people live their lives. Health Impact A formal process which predicts the potential effects on health, Assessments and aims to mitigate and improve health outcomes by providing (HIA) evidence based recommendations. Modal shift Transition phase from one mode of transport to another. Scoping Highlights the key issues that need to be considered to define and shape the HIA. Social capital Refers to the connection within and between social groups. Social capital is a public good, calculated on the benefits to society that accrue through individuals being part of a network of mutual acquaintance and connection. Screening Initial selection process to assess a policy’s suitability for HIA.

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Executive Summary

Background information This report presents the process and findings of a Health Impact Assessment (HIA) on a proposal by Dunedin City Council (DCC) to extend the 30km/hr speed limit zone within the central city. The work was initiated and co-funded by the DCC. The DCC led the HIA, in partnership with Public Health South (PHS) and with guidance from Impact Assessment Specialist, Martin Ward.

Dunedin City is the second largest city in the South Island, with a population of 122,000. The city has a relatively static population although the University has had significant growth with tertiary student enrolments, nearly doubling over the last twenty years. Tertiary students make up nearly 20% of the Dunedin community with almost 80% of all Dunedin 20 to 24 year olds being tertiary students. The city has a smaller proportion of children than New Zealand’s national rate, yet similar to national demographics Dunedin’s population is ageing – a trend that is set to continue.

Dunedin’s city centre retains a ‘main street’ format, with the main street being George Street. George Street forms a central spine along which shops and businesses are located, with overflow onto neighbouring streets. The city centre contains offices, residential and commercial accommodation, retail, restaurants, cafes and services such as the hospital and Police. On the perimeter of the core central city is several schools and childcare facilities.

The area experiences high pedestrian and vehicle traffic movement. In addition many crashes occur within the city centre. Dunedin has a markedly high rate of traffic crash injury at 554.5 per 100,000 compared to the national rate of 352 per 100,000. This rate of injury falls disproportionately across population groups affecting cyclists, pedestrians and the elderly more.

The DCC is developing a Central City Strategy (CCS). The purpose of the CCS is to produce an integrated ‘place based’ strategy for the central city area. Place-based strategies aim to identify an integrated package of actions that can be used to revitalise that centre economically and socially and improve connections and shared spaces. The HIA of the proposed expansion to the 30km speed limit zone will assist in the identification of issues and opportunities for the CCS.

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Figure 1. Geographical location of proposed 30 km/h zone

Central Dunedin Speed Restriction HIA Report 6 The HIA

This HIA examined the implications of a draft proposal to extend the 30km/hr urban speed zone in the central city area of Dunedin. The HIA looked at the effects, both positive and negative, on the following determinants of health and well-being: physical activity, social capital and personal safety. Potential effects were considered for three priority groups: the elderly, youth and the general pedestrian population.

The geographical scope of the HIA is approximately from Union Street in the north, to the Oval in the south; from Smith Street in the west to Anzac Avenue in the east. Within this area the proposed 30km/hr reduced speed zone is bounded by Queen’s Gardens, Cumberland Street, Frederick Street, Filleul Street, Smith Street and Rattray Street (Figure 1). The two one-way system will not included in the area.

The process included a scoping workshop, a community profile, a literature review and an appraisal workshop. Evidence gathered during this process was used to inform the recommendations. A separate evaluation process ran alongside the HIA.

HIA findings Overall the HIA found that the proposal to extend the 30km/hr zone would result in an increase in levels of personal safety and social capital. There was also evidence to suggest that levels of physical activity would rise if certain other factors were brought into play. These were the creation of pedestrian-only zones and design of the area to ensure pedestrians were sheltered from rain when waiting to cross the road. There was evidence to suggest that noise and exhaust emissions from passenger transport vehicles were hindering physical activity and levels of engagement in community activities and public affairs in the zone. Passenger transport vehicles were regarded as “noisy”, “smelly” and “off-putting” for pedestrian traffic and potential users. This was of concern as we are seeking to encourage modal shift away from single occupancy vehicle use and towards walking, cycling and passenger transport.

There was support for the proposal to extend the 30km/hr zone from all of the groups interviewed at the appraisal stage of the HIA.

The HIA process resulted in the following recommendations being formulated based on the evidence gathered in the HIA.

Recommendations

Recommendations to the Dunedin City Council:

Recommendation 1 That the extended zone be implemented by the Dunedin City Council as part of the Central City Strategy.

Recommendation 2 That a range of engineering and other measures that encourage pedestrian use and increase their safety are implemented by Dunedin City Council e.g. Barnes Dances; wider pavements; raised carriageways, with emphasis on entry treatments.

Central Dunedin Speed Restriction HIA Report 7 Recommendation 3 That Dunedin City Council investigates the opportunity/need to have more “intensive” measures in areas with high crash rates taking account of time distributions e.g. outside Meridian. That in relation to this, Dunedin City Council takes into account the different traffic profile of St Andrew Street.

Recommendation 4 That Dunedin City Council considers the introduction of traffic management measures to encourage smooth traffic flow in order to reduce emissions. That in support of emission reduction, Dunedin City Council investigates methods of managing destination versus through traffic.

Recommendation 5 That the Dunedin City Council increase pavement width and amenity to improve access, social interaction and usability.

Recommendation 6 That the Dunedin City Council uses a range of methods to support and encourage walking and cycling in the area, e.g. by providing safe and convenient crossing points in suitable locations, providing facilities at destinations e.g. cycle parking, reallocating road space to cyclists and pedestrians, urban design and amenity improvements that make cycling and walking more appealing and enjoyable, including public art, inlaid mosaics, sculpture and so on.

Recommendation 7 That the Dunedin City Council considers an extension of the zone to increase safety for school children in/around View Street, Smith Street and York Place.

Recommendations to the Otago Regional Council:

Recommendation 8 That the Dunedin City Council and the Otago Regional Council work together to consider alternative passenger transport routes in the central area (to help reduce emissions) and provide more “hub” based approach to services for ease of use.

Recommendation 9 That the Otago Regional Council amends bus contracts to increase penalties for not conforming to requirements for noise and exhaust emissions and/or require passenger transport vehicles to elevate the exhaust.

Recommendations to the Ministry of Health, Ministry of Transport, New Zealand Transport Authority, Ministry for the Environment and Environmental Protection Agency:

Recommendation 10 That the Ministry of Transport and NZTA separate noise and exhaust emission standards for the passenger service vehicles from those for heavy vehicles in New Zealand.

Recommendation 11 That the Ministry of Health/Ministry for the Environment/Environmental Protection Agency/NZTA and Ministry of Transport work together to devise a more stringent set of passenger transport emission standards. This revised set should be suitable for use in those areas of high pedestrian density.

Central Dunedin Speed Restriction HIA Report 8 Recommendation 12 That the Ministry of Transport research safety and amenity benefits arising from the introduction of 30km/hr zones in both central city shopping areas and school zone areas and develop a New Zealand evidence base of health and well-being effects of the introduction of 30km/hr speed limits.

Recommendation for Public Health South and Dunedin City Council:

Recommendation 13 That an investigation into the value of a Memorandum of Understanding between Dunedin City Council and Public Health South whereby projects of interest are identified early on for potential HIAs be undertaken.

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1. Introduction

This report contains an outline of the processes and outcomes of the Central Dunedin Speed Restriction HIA (the HIA) which was undertaken between January and June 2010.

1.1 Statement of proposal The HIA assesses both positive and negative impacts on community health and well- being of an expansion to the existing 30km/hr speed limit zone, within the Dunedin central city area.

The HIA process identifies whether the effects of the proposal will have impacts on the community, with a focus on vulnerable groups in particular, and how severe these will be.

The findings of the HIA will contribute to the pool of research being assembled by the DCC, and provide specific recommendations to improve the proposal. The HIA will also help embed the HIA process within the organisation and assist with the prioritisation of future projects in the city centre by informing the Central City Strategy (CCS). The purpose of the CCS is to produce an integrated ‘place based’ strategy for the central city area. Place-based strategies aim to identify an integrated package of actions that can be used to revitalise that centre economically and socially and improve connections and shared spaces. The HIA of the proposed expansion to the 30km speed limit zone will assist in the identification of issues and opportunities for the CCS.

1.2 Aim of HIA The overall aim of the Central Dunedin Speed Restriction HIA is for the DCC to complete a quality HIA in partnership with PHS on the proposal to extend the 30 km/hr speed zone.

1.3 Genesis of the project The subject of this HIA was identified during a conversation between the Transportation Operations Department of the DCC and Iain McCauley, Principal Adviser/Scientist at the Ministry of Transport. During which it was realised that there was no evidence on the effects on health and well-being due to a reduction in speed limits, within New Zealand (NZ). Staff members of both the DCC and PHS had completed HIA training and were keen to collaborate on the production of a meaningful contribution to knowledge of public health in NZ.

Central Dunedin Speed Restriction HIA Report 10 1.4 HIA team The DCC initiated the work which was partly funded from the Ministry of Health’s HIA Support Unit ‘Learning by Doing’ fund. The DCC led the HIA in partnership with PHS which contributed in-kind. The HIA team consisted of;

Charlotte Flaherty – Travel Co-ordinator, Transport Operations, DCC Sarah Weller – Senior Planner, Transport Operations, DCC Steve Miles – Principal Urban Designer, DCC Diana Munster –Transportation Operations, DCC Emma Lynch – Public Health Researcher, PHS Faola de Montgomery – Mental Health Promotion Advisor, PHS

Evaluator Emma O’Neill - DCC

Martin Ward – Impact Assessment Specialist

1.5 Reports contents This report contains information about stages in the HIA process including the screening stage, the statement of proposal, the scope of the project and the scoping and appraisal workshops. It also records the process and information collected during the creation of a community profile and a literature review. It presents a general outline of the HIA process and places HIA in a global context. This report identifies the benefits to this project of the inter-agency collaboration and inclusion that is a trademark of the HIA process. This report seeks also to record the ‘Learning by Doing’ process, highlighting successes and learning points.

The information contained in this report will be used to identify key issues for the DCC Planning and Transportation Departments and will ultimately inform the Central City Strategy.

Central Dunedin Speed Restriction HIA Report 11 2. Health Impact Assessment

2.1 What is Health Impact Assessment? Health Impact Assessment (HIA) is a tool endorsed by the World Health Organisation. It is widely used throughout Europe. HIA has been used in New Zealand for a number of years and in particular since 2005.

HIA is applied to draft proposals and uses a collection of tools to predict the health impacts and consequences and to ascertain whether the positive impacts can be amplified and the negative impacts mitigated against. HIA also helps organisations to identify whether the possible effects of the policy affect one group more than another and helps provide clarity around planning to meet a diversity of needs.

HIA helps to encourage a longer-term focus, rather than short-term, and fosters interagency collaboration and inclusion. The aim is to deliver evidence-based recommendations to inform the decision-making process.

2.2 The determinants of health Health and well-being are not determined solely by the health sector. In fact, these ‘curative’ services are the tail-end of a long chain that includes education, employment, poverty and inequality, all of which affect both health and well-being. Individual lifestyle factors (such as, whether or not people smoke; consume adequate amounts of fruit and vegetables; or are physically active) are just one part of a continuum of influences on public health and well-being, with the environment in which people live and the services they have access to, as well as broader social and economic factors, all having a crucial effect. Individual choices are fundamentally determined by the wider environment in which the individual exists.

Broad social and economic environments make a major contribution to well-being (National Health Committee, 1998). These broad environments include type of governance, employment rates, general economic conditions and social support structures. It can be difficult to determine the impact of each determinant as they are inter-related and occur simultaneously. However it is already well understood that the transport system impacts on many of the determinants including social connectedness, physical activity and personal safety. Traffic speed and density have a direct impact.

2.3 Why are we using the HIA tool? There is growing international understanding that traditional land-use and transport planning has led to motorised transport dependence and unhealthy, unsustainable cities (Barton and Grant, 2008). The changing global context, including climate change, oil price fluctuations and inactive related diseases, has major implications for human well-being and, in particular, for how we think about transport.

At a strategic level, there is an increasing recognition that the transport sector must contribute to environmental, health and social objectives; however European and

Central Dunedin Speed Restriction HIA Report 12 North American commentators note that existing planning tools are not designed for the new agenda and that changes in the technical aspects of the process are lagging changes in the planning goals. New tools and processes are therefore required to produce a more radical change in transportation planning: tools and processes that put people and not cars at the centre of the planning process. HIA is one of those tools.

2.4 How are we using the HIA tool? Many of the HIAs undertaken in NZ have focussed on transportation. In a global context, transport related HIAs have mostly been initiated and funded by the health sector rather than the transport sector. In the case of the Central Dunedin Speed Restriction HIA Report the initiative was that of DCC City Planning and Transportation Departments with funding from the Ministry of Health ‘Learning by Doing’ Fund and in-kind funding from both the DCC and PHS.

There are clear links between transport practices and the determinants of health. A review of the literature on HIAs (NZTA Research Report 375) suggests that input from public health experts at an early planning stage, before a draft policy or project plan is available, may be the best way to ensure that potential effects on health and well-being are considered. The DCC is doing just that as evidence from the HIA will inform the DCC’s nascent CCS.

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3. Background

Dunedin is the second largest settlement in the South Island of NZ and the city centre has high traffic flows, both vehicular and pedestrian. Dunedin’s traffic crash injury is at a significant level being 554.5 per 100,000 as opposed to the national rate of 352 per 100,000 (Ministry of Social Development, 2009).This rate of injury falls disproportionately across the population affecting cyclists, pedestrians and the elderly more as a group.

The DCC's decision to carry out an HIA was a direct result of funding being made available by the Ministry of Health; an awareness of HIA through staff trainings; and a renewed level of interest by DCC in the future of the central city area based on feedback received through Community Plan submissions. The general condition of the city centre is serviceable but there is increasing evidence that paving is beginning to wear out in heavily trafficked areas and it cannot be cost effectively patched up in the longer term without impacting further on amenity.

Although a programme of work had yet to be confirmed, ongoing internal discussions in DCC recognised the influence of traffic and parking on pedestrian circulation and ambience in the central city area. It was also recognised that there was a need to improve the level of consultation with the community and provide more robust support for DCC's decision making in the public arena.

HIA was of particular interest to DCC for the following reasons:  To trial HIA methodology as an analytical tool for supporting revitalisation projects generally.  Identifying wider potential health benefits of any changes beyond accident reductions.  Understanding the impact of changes on particularly vulnerable groups within the community.  Creating opportunities to engage with and establish good relations with key stakeholders before any broader programme of work was considered.  Applying lessons learned from the findings of this HIA to other parts of Dunedin.

The DCC decided to apply for HIA funding and was successful in qualifying for a funding on the condition it worked closely with PHS.

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4. Community profile

In order to progress with the HIA it was necessary to profile the community that used/lived in the central city area, i.e. the zone under consideration. The following is a summary of the community profile. The complete version of the community profile can be found in Appendix 2.

Tertiary students make up nearly 20% of the Dunedin community and nearly 80% of all Dunedin 20 to 24 year olds are tertiary students. The city has a smaller proportion of children than NZ overall but an inflated rate of young adults. Like the national population, Dunedin’s population is ageing – a trend that is set to continue (Monitoring Population, August 2002). The city has a relatively static population although the University has had significant growth with tertiary student enrolments in Dunedin nearly doubling over the last twenty years.

Travel to work data from the 2006 census shows that the total number of people working in the zone is just over 10,000.

Active travel modes, such as passenger transport, cycling and walking, are used by approximately 2,271 people (Census, 2006). Of these, walkers form the largest group, totaling 1,332.

The city centre still retains a ‘main street’ format, with the main street in this case being George Street. George Street forms a central spine along which shops and businesses are located, with overflow onto neighbouring streets.

The zone (figure 1) includes retail premises, offices, other workplaces, restaurants, bars and cafés and some residential and commercial accommodation properties. It also includes public facilities (such as the library and Community House which houses offices of a range of not-for-profit organisations) and entertainment destinations (both for adults and teenagers). There are a sizeable number of dental surgeries, accountants and lawyers firms. The University is located to the north of this area, resulting in large numbers of students traversing the area. The location of schools means several schools sit just outside the boundaries of the area with a combined total of 1800 school students either in the area or in the immediate vicinity. There are three main shopping malls which can be accessed from George Street. Dunedin Hospital, Dunedin Police headquarters and St John Ambulance headquarters are located within the zone.

Traffic is able to move in both directions along George Street and neighbouring streets. There is some on street parking along George Street and surrounding areas, including free short term parking e.g. P5 parks, disabled parks, taxi stands, motor cycle parks, bus stops loading bays and paid parking administered through Pay and Display meters. Of those who work in the zone around 7,000 drive to work. It is unlikely that all of these drivers park within the study area – it is expected that parking is distributed through the study area in off-street car parks, and in the surrounding area both on and off street.

The area is used by a large number of vehicles on a daily basis, these comprise of: those vehicles in transit through the area; public buses with many bus stops located

Central Dunedin Speed Restriction HIA Report 15 in the area; taxis; couriers; delivery vans; and vehicles whose occupants wish to park in the area for shopping, visiting the library etc; bicycle users also cycle through the area for the reasons listed above.

There is significant foot traffic in George Street and the central city area, including workers, University students, school students, shoppers an tourists. These pedestrians are travelling to and from work and school or to visit facilities such as the library, bank, retail stores or restaurants/cafes. At night-time pedestrians are likely to visit bars, restaurant, cinemas and theatres. Some are using the central city area as a route to another destination. The central city area is the drop off point for tourists from the cruise ships – these ships arrive with a regular frequency throughout the year and deposit a large number of tourists within the city centre.

Assessment of 30km speed limit in George and Princes St The conflict between large numbers of pedestrians and vehicular traffic meant that in 2005, DCC implemented some changes designed to improve safety for pedestrians and reduce delays to passenger transport that were being caused by vehicles waiting to turn into side roads. A 30km/hr zone was introduced along Princes and George Street, the only accompanying physical changes were adjusting signal phases conducive to 30km speed, and installing 30 km signs to indicate the change in speed limit. In addition, turning bans were introduced at several intersections, to improve the flow of traffic along George Street It is worth noting that George Street had some pre-existing traffic calming, whilst Princes Street did not.

Four years after the speed limit change there has been: - a 30% reduction in all crashes - a 50% reduction in serious and fatal crashes - a 35% reduction in injury crashes - and, an overall reduction in speed of ~ 2km has been achieved.

An analysis of traffic volumes and speeds was carried out using data collected from the study area in March 2010. The speed profile below shows the results for George Street (between Hanover Street and St. Andrew Street intersections).

Direction Time Max (km/h) Mean 85th% >30km/h (km/h) (km/h) (%) Northbound 8am-5pm 56 26 32 24 5pm-8am 66 31 38 58 All day 66 28 35 38 Southbound 8am-5pm 55 26 32 22 5pm-8am 65 30 37 51 All day 65 28 34 34

Figure 2. Speed profile

Central Dunedin Speed Restriction HIA Report 16 It is evident from this table is that the average speed during the daytime in both directions is 26km/h. During the day, on average 23% are travelling faster than 30km/h – the percentage exceeding the speed limit is quite significant.

During the night (5pm – 8am), the average speed is slightly higher than during the day, at 30 km/h. The percentage of vehicles exceeding the speed limit is again significant being 58% of all northbound and 51% or all southbound traffic.

Figure 3 illustrates the percentage of vehicles exceeding the speed limit according to the time of day, and whether it is a weekday or weekend. The number of vehicles travelling faster than 30km/h peaks at around 5am, and then steadily declines to around 15% between 12pm and 4pm.

Hanover to St Andrew ‐ NBD 100 90 80 30km/h 70 60 50 40 exceeeding 30 20 10 Percent 0 0000 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1200 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300

Weekday Weekend

Figure 3. Percentage of vehicles exceeding speed limit

A similar pattern was observed at other sites on George Street. However, different results were obtained from Princes Street (Moray Place to Dowling Street section), where it was found that during the day 62% of vehicles travelling in a northbound direction were exceeding the speed limit, as were 39% of those travelling southbound. Vehicles are clearly travelling faster along this section of road.

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Figure 4 shows a much flatter profile than the previous graph for George Street – although this was only observed for vehicles travelling northbound – the southbound pattern was more similar to George Street. The graph illustrates that vehicles consistently travel at speeds faster than 30km/h regardless of time of day, with the lowest level of speeding experienced on weekdays at 8am, and the highest percentage of drivers speeding on weekdays at 1am.

Moray Pl to Dowling St ‐ NBD 120 100 30km/h

80 60 exceeeding 40

20 Percent 0 0000 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1200 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300

Weekday Weekend

Figure 4. Percentage of vehicles exceeding speed limit - Moray to Dowling St

To some extent the speed of vehicles on George Street appears to be self-regulating, particularly during the day time. Congestion reduces vehicle speeds as does the relatively narrow environment with parking available on both sides of the road. The drop over the lunchtime period could well be linked to increased pedestrian activity at this time of day. These effects do not seem to be so noticeable on Princes Street.

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5. Discussion piece on traffic engineering

Previous experience with the implementation of the existing 30km/hr zone in the central city and evidence from elsewhere suggested that for the 30km/hr reduced zone to work there would need to be substantial engineering of the area. Simply putting signs in place would have minimal effect and could invalidate the work put into producing the HIA.

Reducing speed is known to reduce the injury severity and survivability for vulnerable users in particular. The most effective way of reducing the traffic speed is by changing the road environment to reflect the desired speed (in this case 30km), through kerb build-outs, traffic platforms etc. This would result in traffic naturally travelling at 30km/hr, and then the area can then be formally made into a 30km speed limit area (following NZTA setting of speed limits rule), which means that this speed limit can be enforced by Police.

Senior Transportation Planner for the DCC, Lisa Clifford, contributes the following to the discussion.

5. 1 Fundamentals of traffic management

Road networks have two functions: 1) As through Routes: To facilitate the movement of people and goods for one location to another 2) To provide access within the area: To facilitate access to land adjacent to the roads in the networks (by foot car or bike).

The management of traffic on particular roads depends upon the function of the road within the network. One of the biggest problems in regards to roading is the lack of clarity over road hierarchy. For instance, is the primary function of the road to move traffic through an area or provide access to an area?

The problem stems from the conflict that exists between the movement and access functions. Vulnerable users especially young pedestrians and cyclists are over- represented in accidents on such roads (“collectors/distributor roads’). The roads within the HIA area fit in this category. Methods to change this include:

1) Constraining and changing the behaviour of vulnerable road users 2) Constraining and changing the behaviour of the vehicle drivers 3) Modifying driver behaviour and expectations by adapting the physical environment.

Traffic management involves pursuing the third option; the other two involve education and enforcement. Traditional traffic management has generally focused upon altering the flow rate, whereas traffic calming is aimed primarily at altering the speed. This supports the idea that signs alone are not as effective at altering speed. If a road is wide and clear, the tendency is to drive faster. It should be noted that traffic calming is often seen as more than a road safety improvement measure; it is often a means of restoring a proper balance between motor vehicles and the community.

Central Dunedin Speed Restriction HIA Report 19 6. Screening and scoping

6.1 Screening A screening meeting was convened in March 2010.

The following people were present: Steve Miles Principle Urban Designer, City Planning, DCC Sarah Weller Senior Planner, Transportation Planning, DCC Emma Lynch Public Health Researcher, PHS Charlotte Flaherty Travel Co-ordinator, Transportation Operations, DCC Martin Ward Impact Assessment Specialist.

The group considered a series of questions (listed in Appendix 1) and, on the basis of the answers, concluded that there was likely to be a range of positive and possibly some negative impacts on the health and well-being of the population.

It was not clear what level of benefit would be delivered by a reduction to 30km/hr in the central city area. Hence the group considered that using the HIA tool would better inform the decision-making process.

6.2 Scoping A scoping workshop was held in Dunedin on Friday 26 March 2010.

Scoping workshop attendees were as follows:

Anna Johnson City Planning Manager, DCC Steve Miles Principal Urban Designer, DCC Sarah Weller Senior Planner, Transportation Planning, DCC Charlotte Flaherty Travel Co-ordinator, Transportation Operations, DCC Diana Munster Transportation Operations, DCC Meryl Donaldson Research and Monitoring Officer, City Planning, DCC Emma O’Neill HIA Evaluator, DCC Colin Hillerby Parking Officer, Parking Enforcement, DCC Emma Lynch Public Health Researcher, PHS Faola de Montgomery Mental Health Promotion Adviser, PHS Iain McAuley Principal Adviser/Scientist, Ministry of Transport Sgt Tania Baron Strategic Traffic Unit, Police Janice Burton PHS, Invercargill (observing) Martin Ward Impact Assessment Specialist.

6.3 Scope of the HIA The scope of the HIA provides information on the following key requirements:

1. Timeframe 2. Aims and objectives of the HIA 3. The determinants of health identified by the project as worthy of increased focus 4. Those populations identified by the scoping workshop as being most likely to feel the effects of proposal

Central Dunedin Speed Restriction HIA Report 20 5. Budget and other resources

These requirements were discussed and decided upon at various meetings leading up to the scoping workshop.

6.3.1 Timeframe for the HIA process Feb March April May June Deliver evaluation time ● frame Screening and Scoping March 26● Scope report ● Lit research ● Speed survey ● ● Community Profile ● Appraisal 1 ● Appraisal 2 ● Draft report ● Final report ● Evaluation ●

6.3.2 Aims and objectives of the HIA

Aim

 The overall aim of the Central Dunedin Speed Restriction HIA is for the DCC to complete a quality HIA in partnership with PHS on the proposal to extend the 30km/hr speed zone.

Objectives  To develop capacity in Dunedin for HIA  To lay foundations for more systemic use of HIA-referenced approaches to transport planning on a routine basis  To identify, by seeking evidence from informed individuals, the positive and negative impacts of the proposal on selected populations groups  To identify measures to enhance the positive effects and mitigate the negative effects  To prepare a better proposal using the evidence produced by the HIA process

6.3.3 The identified determinants of health The scoping workshop reviewed information collected for on the community profile and the literature review (working document). A key finding was that Dunedin has a high rate of injury 554.5 per 100,000 as opposed to the national rate of 352 per 100,000. This injury falls disproportionately across the population affecting cyclists, pedestrians and the elderly more as a group.

At a meeting to discuss the determinants of health in regards to traffic speed, the discussion brought three key determinants of health to the fore. These were agreed as:

Central Dunedin Speed Restriction HIA Report 21

 How does a 30km/h speed limit reduce the severity and number of crashes?  How does a 30km/h speed limit impact on physical activity?  How does a 30km/h speed limit impact on social capital?

These determinants then became the focus for the literature review, as well as an overarching questions being:

 How does traffic speed impact on health/well-being?

6.3.4 The population groups most affected The populations determined by the scoping workshop to be most affected by the proposal were the elderly, youth and visitors to the city centre (tourists, pedestrians, cyclists). It was also agreed that the pedestrian population was the population of most interest to the HIA, as they can be used both as a measure of the economic health and vitality of the central city area and as a “canary in the coal mine”.

The community profile highlighted that the city centre was an area frequented by many residents: many of the key activity areas for the elderly and youth are located in the city centre (hospital, library, night-time recreational facilities, retail activity areas). The profile also described an area where tourists were dropped off en masse from cruise ships.

The selection of the population groups was validated at the appraisal workshop stage when representatives of the groups detailed their experiences in the city centre.

6.3.5 Budget The budget the steering team submitted to the Ministry of Health ‘Learning by Doing’ funding application was used as a framework for the budget.

Six sources of income/support/resources were identified for the HIA, the first five are Ministry of Health, DCC (being City Planning, Transportation Planning and Transportation Operations) and PHS. The sixth source of support was the Ministry of Transport. Iain McCauley from the Ministry was on the steering group of Applying HIA to Land Transport Planning, attended the scoping workshop and peer reviewed the literature review.

Additional funding was provided by the Transportation Planning Department at the DCC for the traffic measurements and analysis.

Time diaries were kept in order to measure contributions. City Planning created a spreadsheet for measuring the HIA work.

Central Dunedin Speed Restriction HIA Report 22 7. Summary of literature review

Traffic speed greatly influences the health and well-being of individuals and communities. This literature summary does not attempt to address all the potential influences, but highlights those which consistently arise within the literature. Both national and international experiences of speed reductions were drawn upon, and where possible 30km/h speed zones were evaluated.

7.1 How does traffic speed influence health and well-being?

The major areas of health and well-being influenced by traffic speed include:

 Severity and number of crashes  Physical activity  Social capital i.e. participation in community activities and public affairs (the above three bullet points above are comprehensively discussed in 7.2, 7.3, and 7.4).  Physical, mental and emotional well-being o Based on the findings of other 30km/h zones, there would be little or no effect on travel time. o Literature supports the view that after an initial period of exposure and education the majority of users (including drivers) are supportive of the decrease in speed. o The benefits to pedestrian well-being are substantial, with a decrease in traffic speed increasing pedestrian perceptions of safety. o Traffic speeds over 30 km/h have been shown to restrict children’s freedom (e.g. by being driven to school) and are predicted to have an effect on the child’s physical health, mental development, autonomy and impinge on their ability to navigate unfamiliar environments later in life (Huttenmoser, 1995; Whitzman, 2007; Plowden, 1996). It is suggested that children’s emotional and intellectual development accelerates in more walk-able and mixed use communities Hertzman, 2002; Gilbert & O’Brien, 2005). This is probably due to a combination of increased opportunities for physical activity, independence and community cohesion.  Economic Development o From a retail perspective, reduction and/ or the removal of traffic has been found to increase retail turnover. o At an individual level there are direct health gains if active transport is adopted, as increased physical activity is a protective factor for many diseases and therefore ensures economic productivity i.e. low number of sick days, ability to hold down a job. Indirect economic health gains include, decrease costs of running a vehicle, less noise and air pollution, and a reduction in crashes, which has economic cost in regards to injury and sickness. However, it is problematic to quantify such economic health gains due to the various scales of traffic calming measures.  Environment o Air and noise pollution generated from traffic is a significant health concern. Air pollution o Delepierre (2008) argues that lowering the speed limit reduces air pollution in two ways, firstly by decreasing the number of cars on the road, and secondly by resulting in calmer driving patterns due to engineering methods (i.e. replacing traffic lights with roundabouts).

Central Dunedin Speed Restriction HIA Report 23 o The New Zealand Transport Authority (2007) predicts that there are approximately 500 premature deaths per year due to vehicle emissions Other New Zealand research has estimated that the rate of mortality attributed to vehicle emissions would be 200 premature deaths for adults over the age of 30 years; this is slightly less than traffic accidents (Fisher et al., 2002). o There is limited information on air pollution due to vehicle emissions within Dunedin’s central city. Noise pollution o In Dunedin’s central city the ambient background noise is 60 – 70 dB (personal communication Dunedin City Council noise control officer). This is consistent with what would be expected for a 50 km/h speed limit (NPC - Noise Pollution Clearinghouse, n.d) and is above the sound levels (55- 65 dB) which are seen to lead to serious annoyance (Babisch, 1998). o Noise emissions may have a large impact on Dunedin residents, as many people come into the city centre and hence are often exposed. o Implementing a 30km/h speed limit has been found to reduce transport noise by 2dB and if combined with other calming measures transport noise can be reduced by a further 4dB (den Boer & Schroten, 2007).

The literature review focussed on three key determinants; safety, physical activity and social capital, these were expanded on using three further research questions.

7.2 How does a 30km/h speed limit reduce the severity and number of crashes?

 Speed is the single most important contributor to road fatalities. Reducing the speed limit has been universally found to reduce the severity and number of crashes.  Dunedin has the highest national rate of pedestrian’s injuries. In 2008 the injury rate was 554.5 per 100,000, this far exceeds the national rate of 352 per 100,000 (Ministry of Social Development, 2009).  Within the proposed 30km/h speed zone there were a total of 242 road user injuries in the 5 year period from 2004-2009 inclusive  Trends include 20 locations with four or more injury crashes within a 30 metre radius. Distribution by age (in 5 year bands) shows that 15-24 year olds accounted for 93 or 38% injuries, with 24-34 year olds accounting for 18% injuries. In terms of time (4 hourly blocks) the peak injury period was between 12 and 4pm where 82 (43%) of injuries occurred. See Attachments 8a, 8b, 8c, 8d.  Literature highlights the disparity experienced amongst our vulnerable communities when involved in a crash, such as; motorcyclists, then cyclists are at most of risk of injury or death; child pedestrians followed by elderly are most likely to be hospitalised; and those between 15 and 17 years are over- represented in injury and deaths as drivers, passengers and pedestrians. Ethnicity disparities can be illustrated with Māori and Pacific Islanders being at a greater risk of motor crashes per kilometre1 travelled and being twice as likely to be injured as pedestrians than New Zealand Europeans (Ministry of Transport, 2009; Land Transport Authority, 2000; Ministry of Transport, 2008).

1 Per kilometre travelled provides an accurate measure of exposure rates, while per population provides an overview of the public health issue.

Central Dunedin Speed Restriction HIA Report 24  There are also socio-economic disparities, a cohort study with 10,000 participants found that those in the lowest quartile of occupational status were four times as likely to experience a driver injury compared to those in the highest quartile, and those with less than two years of secondary school education were twice as likely to suffer driver injuries compared to those with tertiary education (Whitlock, et al., 2002).  As the health burden associated with traffic falls unevenly across the population, those that would be most likely to benefit from a speed reduction are our vulnerable user groups.

7.3 How does a 30km/h speed limit impact on physical activity?

 Physical activity can be improved through active transport modes.  Being physically active provides a great deal of benefits, both to the individual and the community. In a random sample of Danish women and men, cycling to work was found to reduce all cause mortality by 40% (Andersen et al., 2000).  There are also economic benefits associated with being physically active (through active transport). A recent New Zealand review suggested that per capita benefits range between $2,488 and $3,270 per annum due to a reduction in morbidity, mortality and loss of Disability Adjusted Life Years (Genter et al., 2008). This is exclusive of other benefits such as fuel saving and roading costs.  Within Otago walking is the most popular form of physical activity for 70.9% of people (SPARC, 2008). In 2006, the New Zealand census illustrated that 8.7% of Dunedin residents travelled to work by walking, 1.5% by bicycling and 65.1% by private motor vehicle. Walking exceeded the national rate of 5.3% and cycling and use of private motor vehicle were on a par with the national rates at (1.9%) and (64.2%) respectively. (Statistics New Zealand, 2007).  Studies predominantly evaluate individual factors in prohibiting active transport modes.  Studies which do factor in vehicle speed point to a lack of certainty that lowering speeds will lead to a modal change (Grundy, 2008; Ogilvie, 2004), whereas hazards associated with the road transport environment have been consistently and strongly identified as a principal constraint on walking and cycling. The Netherlands, Germany, Denmark and Japan have achieved relatively high rates of active transport due to transport strategies which focus on a range of speed reduction initiatives (Pucher & Beuhler, 2008) and social endeavours including changing of social norms and lessening the perceived risk of engaging in active transport (Garrard, 2008; Davies 2010).  A review by Saelens & Handy (2008) of the built environment found that transport options that slow and spread traffic increase street connectivity, safety for cyclists and make walking more feasible, safer and more attractive. This however is not evidence of a causal relationship. While international experience suggests that there is strong and consistent evidence that traffic hazards (including vehicle speed) are a major constraint on active transport speed reduction is not the only change needed to increase safe active transport, but merely a key component (Saelens & Handy, 2008; Pucher & Beuhler, 2008; Davies, 2010).

Central Dunedin Speed Restriction HIA Report 25 7.4 How does a 30km/h speed limit impact on social capital?

Social networks may be based on spatial proximity, for example neighbourhoods, or on shared interests i.e. sports or cultural groups. Social capital provides contacts, resources, skills, influence, reassurance, mutual support and is shown to be associated with good health, low crime, higher educational achievement, economic growth and other positive benefits (Gray et al., 2006).

 Communities highly dependent on the motor vehicle pose mobility barriers for children, the elderly, those without vehicles, and people with mobility impairments. Accessible, walkable, safe neighbourhoods with mixed land use, public transport options, and recreational facilities encourage people with limited mobility to remain involved in community activities (Younger et al., 2008).  Research has indicated that when traffic is slowed through traffic calming measures, there are improvements in quality of life and improved safety and mobility for pedestrians and cyclists (Appleyard & Lintell, 1972; PHAC, 2003).  The Victorian Transport Policy Institute (2009) conducted a systematic review of road and traffic conditions and demonstrated that the greater the road size and traffic speed, the greater the degradation of the non-motorised traffic environment. The security and attractiveness of walking conditions, including the quality of footpaths, crossings, minimal volumes and speed of motor vehicle traffic, and the presence of other pedestrians is of particular importance for community cohesion.  Furthermore, McDonald (2007) found higher rates of children walking to school in more cohesive neighborhoods (after controlling for other factors such as income and land use). This greater level of walking and social interaction in turn contributes to improved physical and emotional health (Frumkin et al., 2004).

Please refer to Appendix 4 for a full version of the literature summary including references.

Central Dunedin Speed Restriction HIA Report 26

8. Appraisal

8.1 Appraisal workshop process

The appraisal workshop was held at the Clifford Skeggs Gallery on Wednesday 5 May 2010.

Attendees heard what an HIA aimed to do. They heard how the 30km/hr zone could be achieved, a summary of the literature findings and data about crash statistics. It was also explained that although a section of George Street currently has a speed restriction of 30km/hr, the zone in questions would have a larger geographical area and would include more traffic calming measures/ design than the existing speed signs.

Attendees then broke into their respective groups to discuss the following questions:

Q1. Consider the effects of a speed reduction to 30 km/hr on physical activity? Positive/ negative Q2. Consider the effects of a speed reduction to 30 km/hr on community activities and public affairs? (social capital) Positive/ negative Q3. Consider the effects of a speed reduction to 30 km/hr on personal safety? Positive/ negative

For a complete list of appraisal question and findings, please refer to Appendix 5.

The group discussing “elderly and visitors” had representatives from: Disability Information Service Grey Power Living Streets Citibus Transportation Planning DCC PHS HairRaiser Tours Guided Walks Transportation Operations Age Concern New Zealand Transport Agency.

The group discussing “youth, pre-schoolers and visitors” had representatives from: Spokes Dunedin Living Streets University Proctor Campus Watch York Place Preschool Urban Design Youth Action Council DCC PHS.

8.2 Extra appraisal meetings

DCC and PHS subsequently contacted those who had been unable to attend the appraisal workshop and visited them to ascertain their evidence on the proposal.

This included young people, being; School Students Youth Action Council

Central Dunedin Speed Restriction HIA Report 27 And the business community, being; Presbyterian Support Amcal Pharmacy Craic Irish Tavern Miracle Baby Store Pasha Restaurant

The process of collecting the extra evidence and findings are listed in Appendix 6.

8.3 Overall findings of appraisal workshops and subsequent appraisal meetings

A summary of the more frequently identified positive impacts of the proposal on all the determinants of health  Increased numbers walking.  Reduced serious pedestrian injuries.  Increased confidence in crossing especially with Barnes dance.  Would like to see traffic free areas.  More attractive to visitors who would then be more likely to come to the area and walk around.  Could become a destination space if given the “full treatment” perceptions of personal security may increase with concomitant sense of freedom, also increase socialising, time spent shopping.  More people about makes it safer from assault, bag-snatching and also from motor vehicle injuries.  Less boy racers, area would be less intimidating.  Increased safety for other modes (mobility scooters, wheelchairs, skateboards etc).  Increased numbers walking to school as safer.  Displacement of traffic, would result in one-way system becoming congested.  Alternative forms of transport become more attractive e.g. cycling/walking.  Current bus system a disincentive to undertake physical activity.  Reduced air pollution – better air quality.  Reduced noise – better quality of amenity.

A summary of the more frequently identified negative impacts of the proposal on all the determinants of health  Less safe if car parking was alongside pedestrian pavements.  Perception of safety leads to jay-walking, more “unsafe” crossing behaviour.  Increase in accidents if timetables not adjusted for 30km/hr zone (bus drivers, couriers hurrying to meet deadlines).  Crowded spaces harder to negotiate and more pavement injuries.  Higher crash rate involving older drivers in zone (more drive in as perceived safer).  Transition zone area needs clear signage and effective lighting.  Require education, can’t be a stand alone strategy.

For the complete notes of questions and responses refer to Appendix 5, 6 and 7.

Central Dunedin Speed Restriction HIA Report 28

9. Recommendations

9.1 Recommendation process

The recommendations meeting took place on Wednesday 16 June 2010 at the DCC.

Those present included; Charlotte Flaherty – Travel Co-ordinator, Transport Operations, DCC Sarah Weller – Senior Planner, Transport Operations, DCC Steve Miles – Principal Urban Designer, DCC Emma Lynch – Public Health Research, PHS Faola de Montgomery – Mental Health Promotion Advisor, PHS Martin Ward – Impact Assessment Specialist

Diana Munster (last half hour) - Transportation Operations, DCC

Evaluator Emma O’Neill - DCC

Discussion began by highlighting the emerging issues that had been identified during the appraisal workshop and the additional appraisal meetings.

This included:  Both young and old were positive about the suggested 30km/hr  Traffic free zones were mentioned, especially outside the meridian shopping centre  Busses were of concern, due to air and noise pollution  Perception that injuries would decreases as it would be safer to cross the road

It was suggested that the first recommendation should be specific to speed and how to manage speed. Both design and traffic management factors would be used to control speed. The design factors could include pedestrianisation of certain areas through business hours, with these areas being open to traffic in the evenings.

The group formulated several sets of recommendations for specific agencies:

9.2 Set of recommendations

The HIA process resulted in the following recommendations being formulated based on the evidence gathered in the HIA.

Central Dunedin Speed Restriction HIA Report 29

Recommendations to the Dunedin City Council:

Recommendation 1 That the extended zone be implemented by the Dunedin City Council as part of the Central City Strategy.

Recommendation 3 That Dunedin City Council investigates the opportunity/need to have more “intensive” measures in areas with high crash rates taking account of time distributions e.g. outside Meridian. That in relation to this, Dunedin City Council takes into account the different traffic profile of St Andrew Street.

Recommendation 5 That the Dunedin City Council increase pavement width and amenity to improve access, social interaction and usability.

Recommendation 7 That the Dunedin City Council considers an extension of the zone to increase safety for school children in/around View Street, Smith Street and York Place.

Recommendations to the Otago Regional Council:

Central Dunedin Speed Restriction HIA Report 30 Recommendations to the Ministry of Health, Ministry of Transport, New Zealand Transport Authority, Ministry for the Environment and Environmental Protection Agency:

Recommendation 10 That the Ministry of Transport and NZTA separate noise and exhaust emission standards for the passenger service vehicles from those for heavy vehicles in New Zealand.

Recommendation 12 That the Ministry of Transport research safety and amenity benefits arising from the introduction of 30km/hr zones in both central city shopping areas and school zone areas and develop a New Zealand evidence base of health and wellbeing effects of the introduction of 30km/hr speed limits.

Recommendation for Public Health South and Dunedin City Council:

Central Dunedin Speed Restriction HIA Report 31

10. Evaluation

This HIA was partly funded by the Ministry of Health HIA Support Unit under the ‘Learning by Doing’ fund. Evaluation is a key part of all HIAs funded by the Support Unit. Because the HIA process is indeed ‘Learning by Doing’ the evaluation allows both the participants and the funders to look closely at the process and see where the greatest learnings have occurred.

10.1 Evaluation framework

The evaluation will include an assessment of the acceptability and effectiveness of the HIA process and its short-term impacts in terms of the extent to which the HIA’s recommendations are adopted by the traffic planners and the Planning and Environment Committee of the DCC.

The evaluation will use formative, process and impact evaluation of the HIA.

The HIA team has the following evaluation objectives: a) Refine and improve the HIA using formative evaluation to describe the background to and actual HIA process including its participants b) To determine, in terms of process:  If the objectives of the HIA were met  The strengths of the HIA process  The constraints of the HIA process  Possible ways the HIA process could have been improved  The resources used throughout the HIA process and whether they were used effectively c) In terms of impact:  The impact of the HIA on the decision-makers  If the HIA added value to the planning process? If so in what ways?  Whether the draft plan was changed as a result of conducting the HIA  If the recommendations were / weren’t taken on board and why / why weren’t they and the consequences of this  Any unintended consequences (negative or positive) that resulted from the HIA d) With regards to overall issues the evaluation aimed to identify:  What key lessons can be taken from the HIA for the DCC and other potential users of HIA  Whether and how HIA can be built into the DCC’s planning and development processes

Central Dunedin Speed Restriction HIA Report 32 10.2 Conducting the evaluation

The process of finding an evaluator was timely. It was finally decided that Emma O’Neill of City Planning, DCC would undertake the evaluation. Emma was not an experienced evaluator but would be mentored by Richard Morgan of the University of Otago. The evaluation report will be available in September 2010. This report will be accessible online through the HIA Support Unit web page and available from DCC.

Central Dunedin Speed Restriction HIA Report 33 Appendices

Appendix 1. Screening questions and answers

Q. If the 30km/hr speed restriction proposal were to proceed would there be positive and/or negative well-being impacts?

 The most immediate positive impact would appear to be a reduction in number and severity of road crash injuries.  A negative impact was the possibility that road crash injuries could increase to begin with because pedestrians might assume a level of safety and behave in relatively cavalier manner.

Q. Are positive and/or negative health impacts likely to affect a large number of people?

 The reduction in speed would reduce the risk for a large number of people but would reduce the actual event of a road injury for only a small number of people.  If the noise decreased (which would be the case only if traffic signal phasing was changed) it would have a positive health impact on a large number of people.

Q. Are the potential effects likely to change death, disability or hospital admission rates?

 First search of literature indicates that there is a significant reduction in crash severity where 30km zones have been implemented. Q. Are these effects disproportionately greater for Māori/Pacific Island populations? We have no evidence as yet. Q. Are these effects disproportionately greater for the disadvantaged and those from low decile areas (which form part of and intersect with the study area)? We have no evidence as yet. Q. Are these effects disproportionately greater for youth and elderly populations? We have no evidence as yet.

Q. Is there uncertainty about potential health/well-being benefits?

 Yes – there is uncertainty in the information we’ve collected so far and we have to make assumptions.

Q. Are there public or community concerns?

 The DCC Resident’s Opinion Survey (an annual survey of 4,500 (30.2% response rate) residents conducted within the Dunedin area) reveals that there was concern about the suitability of the road network for cyclists within Dunedin.  Pedestrian advocates group Living Streets Dunedin has raised concerns about quality of experience for Dunedin’s pedestrians in the central city area.

Central Dunedin Speed Restriction HIA Report 34

Q. Is there support from the policy makers?

 The policy team commissioned the HIA and policy staff from Transportation Planning and City Planning are participating in it.

Q. Is there support from the decision-makers for the HIA?

 Decision-makers were behind a move to reduce the speed to 30km/hr in a section of George Street in 2004.

Central Dunedin Speed Restriction HIA Report 35 Appendix 2. Community profile

1. The HIA zone and its users

The DCC is looking at extending its 30km/hr zone throughout the central business district as part of its Central City Strategy.

1.1 Where Boundaries of the zone under consideration for the Dunedin HIA on the proposed change to speed limit as part of the CCS are detailed in Attachment 1.

1.2 What and who The zone includes retail premises, offices, restaurants, bars, cafés and some residential and commercial accommodation properties. It also includes public facilities (such as the library and Community House which houses Citizens Advice, Volunteering Otago, Alzheimer’s Society etc) and entertainment destinations (both for adults and teenagers). There are a sizeable number of dental surgeries, accountants and lawyers firms. Several schools sit just outside the boundaries of the area and school children traverse the area on a regular basis.

Figure 1 presents the Inner City Occupier Survey Area: this is broken down into occupied space by tenant category in the graphs below.

t t

S T S r ai er d P t i W lo R e l d S i S U e t ni e a t o e n lk w S h S d i M l t l s A M r T l t R k a t lb e r a a n S lr c y S s t t o e S t t S e t S s T w W e t t t S s u e l o u a S d S te a h B t r S R y t a t t t l A t y r o O S S t w t o S C g e n C o o v a n i e A t i R r e F i c e A t F za a y e re d R n t d y A M S R H er t E S ic in S r k H te h d in St e a e S e rv y St g e g a Parr h n t t r g t Parry St S i S r S o St e t Parry t H t T l S o S e H ig n u a L l o G n h e S d e ov t K n l e i et St v o l r agn i e L i S M lg n St t t e o S F t L u S rba ill r t a rg S S Sc Ca W t g ic Q t t kliff ue n S e S R en i S t os /Ro LSR d s S ss K r t w a t t t o a r W A S l S r t P e k k r a a n r h S o t r Y H o o i G t a e B t i s S t t m S a S S S h w t S t e c T l e d a e h d t i n e n L n ys S n s d a M r l on a a t R S t l u u r a t r t A D ttra C S J l s Pl y e is n k St CA b D o e or t e n e Y S m u t w v C Q d ie l u o t r S V P n R E y C t S r lm a S R or S t tt d u o t i w M s a h n y S a t t r r r r S t Du D u F A n o h r B ca w ig B u n lin s R S g H a o uss t St c el m ell St r l St o Cressw a C h H T l Q F P te a ue llis St a r e i Wi g n s res n k s o G h an S M ar t C d o t a e S ns t n n t C t S Serpentine Ave s r e S f r d S d t a r R h t S i t o r S f l o d t e W n S w a la h g er ig a M th H r o t u V L S t C S S n rd f Legend fo r E W f t A ta a Birch S n S h lv i d ll a ia t W S t CENTRAL ACTIVITY AREA S m ll D o S r St o t M r LSR hite s S a s W ueen C o n/Q t a e St n nto i c is LARGE SCALE RETAIL ZONE Egli t vo S la n r M i Je t n r t t d e P W S l S

l l E S P v r r g i h e o l l t n e i a l a e n e t M n t W r S P o o f S l e e n se l S y R t ley h g c n C L S t Rd d t t le d o e i G R e lo th c t G K l pa h S s o e id r rd C Ne a p S on b h n e t S to a e e t r lli t o s S S P S t t

Source: DCC CBD Occupier Survey, 2008 Figure 1. Dunedin Inner City Occupier Survey Area

Please note difference in the boundary to HIA zone, includes data from the surrounding large scale retail zone.

Central Dunedin Speed Restriction HIA Report 36 Figure 2 presents the distribution of occupied space within Dunedin’s inner city area by tenant category, using Australia NZ Standard Industrial Classifications (ANZSIC). Tenants operating in the retail trade category clearly dominate the total occupied stock within Dunedin’s inner city area, occupying close to 168,000 square metres of space, or 25.2%. Property and Business Services is the second most dominant category, occupying just over 102,000 square metres of space, or 15.3%, followed by the residential category occupying over 52,000 square metres, or 7.9%.

Wholesale Trade Manufacturing 3.0% 2.7% Transport & Storage Other 4.2% 1.7% Accommodation 4.7% Retail Trade Health & 25.2% Community Services 4.6%

Finance & Insurance 4.6% Property & Business Services Cafes, Bars & 15.3% Restaurants 5.9% Residential Personal & Other 7.9% Cultural & Services Government Recreational Services 6.2% Administration & Defence 7.5% 6.5%

Source: DCC CBD Occupier Survey, 2008 Figure 2. Proportion of Total Occupied Stock by Tenant Category

Tenants in the property and business services category dominate Dunedin’s office market (Figure 3), accounting for 53.7% of total occupied office space, which equates to just over 96,000 square metres. Finance and insurance is the second most dominant category, occupying just under 25,000 square metres of office space, or 13.9%, followed by the government, administration and defence category occupying over 17,800 square metres, or 10%.

Central Dunedin Speed Restriction HIA Report 37

Retail Trade 1.7% Cultural & Recreational Transport & Storage Services 1.1% 2.6% Other Health & Community 1.6% Services 6.7%

Personal & Other Services 8.9%

Property & Business Services Government 53.7% Administration & Defence 10.0% Finance & Insurance 13.9%

Source: DCC CBD Occupier Survey, 2008

Figure 3. Proportion of Total Occupied Office Stock by Tenant Category

Attachment 6 shows where students from the schools abutting the zone live by meshblock and gives an idea of whether they traverse the area to reach their respective schools. The number of students at surrounding schools is illustrated in Table 1.

Table 1. Number of pupils at nearby schools

Name of School Date of Roll Number of pupils Number of pupils geo-coded Otago Boys High March 2009 829 769 School Otago Girls High March 2009 803 782 School St Hildas March 2009 416 387 Kavanagh College March 2009 850 819 St Joseph’s July 2009 147 143 Arthur Street March 2009 124 121 Total 3169 3021

1.3 Residential information

Information about residential properties in the HIA zone shows that the majority of these (154) are flats (see Attachment 3). In addition there are 51 commercial accommodation units, which includes hotels, backpackers etc. The residential meshblock population for the area in question is 675 as at census 2006, this would exclude those in hotels etc (see Attachment 4).

Central Dunedin Speed Restriction HIA Report 38 The NZ Deprivation Index 06 is a measure of the relative socio-economic deprivation level of the population. It is calculated at the meshblock level (small geographic areas) from 9 variables of Census 2006, incorporating household income, benefits, home ownership, support, employment, qualifications, living space, access to telephone and access to a car. The proposed boundary includes areas in deciles 5 to 8, while surrounding areas are mainly deciles 7 to 10. The area to the northwest of the boundary is deciles 1 to 4 (decile 1 indicates the least deprived tenth of the NZ population, and decile 10 the most deprived tenth of the NZ population).

Deprivation deciles for the proposed zone are shown in Attachment 5.

2. Activity

2.1 Daily traffic

The central city area hosts a large number of pedestrian traffic on a daily basis. These pedestrians are travelling to and from work and school. They are travelling to the library, bank and to shop and eat in the retail area. At night-time they are walking to bars, restaurant, cinemas and theatres. Some are using the central city area as a route to another destination.

The area is also used by a large number of vehicles on a daily basis including those vehicles in transit through the area, public buses, taxis, courier and delivery vans and those vehicles whose drivers wish to park in the area for shopping, visiting the library etc. Bicycle users also cycle through the area for the reasons listed above.

2.2 Travel to work Using travel to work data from the 2006 census, Table 3 shows how each person that works in the Stuart St – Frederick St area unit, and the High St – Stuart St area unit travelled to work on census day.

From Table 3 it can be seen that the total number of people working in this area is just over 10,000. Of these, around 7,000 drove to work. It is unlikely that all of these drivers would have parked within the study area – it is expected that parking would be distributed through the study area in off-street car parks, and in the surrounding area both on and off street. These people would then walk to their workplace, and at this stage in their journey form part of the ‘pedestrian’ population. A small number (759) were a passenger in vehicle (ridesharing).

Active travel modes, such as passenger transport, cycling and walking, were used by 2,271 people. Of these, walkers formed the largest group, with a total of 1,332.

Central Dunedin Speed Restriction HIA Report 39

Table 3. Method of travel to work in each central area unit (note, boundaries very close to but slightly different to those of the study area)

Workplace Worked Drove Drove Passenger Public Motor Bicycle Walk TOTAL address at home private company in vehicle bus cycle or jog vehicle vehicle Stuart St – 87 4182 441 531 453 48 198 954 6894 Frederick 1% 61% 6% 8% 7% 1% 3% 14% St High St – 81 2118 207 228 201 12 87 378 3312 Stuart St 2% 64% 6% 7% 6% 3% 11% Total 168 6300 647 759 654 60 285 1332 10206 2% 62% 6% 7% 6% 1% 3% 13%

2.3 Data from the Otago Regional Council showing use of passenger transport

Figures 5, 6, 7 and 8 illustrate bus patronage within Dunedin City. To minimise small scale variation, i.e. seasonal influences, the data has been aggregated for the last 2 years. Due to issues surrounding commercial sensitivity with bus contracts the Y axis does not illustrate values. Hence the data can only be used to illustrate trends in patronage.

Bus patronage is greatest during the week days (Figure 5). Adults are by far the greatest users by approximately 3 fold; this is followed by children, super gold car users and beneficiary patrons.

Figure 5. Weekday Bus Patronage

Within the weekday there are also clear trends over the 24 hour period (Figure 6). Adult and child patronage peaks between 7am and 8am and similarly peaks again between 3pm and 5pm. This is likely to reflect travel to school or work. Amongst beneficiaries and super gold cards patronage seems to be consistent between the hours of 9am and 4pm, this may be due to the travelling restrictions of the gold card.

Central Dunedin Speed Restriction HIA Report 40

Figure 6. Bus patronage at time of the day

Bus patronage during the public holidays and weekends is considerably less than weekday travel (Figures 7 and 8). Similarly adults are the most likely users, followed by children, beneficiaries and super gold card holders.

Figure 7. Public holiday bus patronage

Figure 8. Weekend bus patronage

Central Dunedin Speed Restriction HIA Report 41

As stated previously, commercial sensitivity means that we can not provide actually numbers of how many people are travelling by bus. However, the graph below (Figure 9) provides patronage for the contracted services only. As the data does not include the non contracted services it underestimates the total population which will be using the bus services. Furthermore, the data includes both the trip into the city and then the return journey, which will overestimate patronage.

Figure 9. Patronage for contracted services

2.4 Crash statistics

Road injuries are presented as injuries per population, injuries per distance travelled, and per time spent travelling. As previously discussed, Dunedin has one of the highest injury rates per population, it also has one of the highest if not the highest rate of traffic crashed per vehicle kilometre travelled. For example in Dunedin on local urban roads Dunedin has a traffic crash rate of 78 per 100 million vehicle kilometres travelled, this is double the national rate of 36. In regards to causalities per 100 million vehicle kilometres travelled along local urban roads, again Dunedin significant exceeds the national rate (of 46) having a rate of 110 (LTNZ - Dunedin City Road Safety Report 2003-2007, 2008, pg.9). Many of these crashes occur within the HIA zone (see, Attachment 2).

2.5 List of attachments

The below attachments provide additional information which contributed to the community profile and this report.

Attachment 1 Map of zone, illustrating schools, recreational areas etc Attachment 2 Pedestrian injuries in central city crash sites and injury type Attachment 3 HIA zone dwelling types Attachment 4 Meshblock population, census 2006 Attachment 5 Deprivation deciles illustrating inequalities within the area Attachment 6 Residence of students attending Kavanagh College, Otago Girls’ , Otago Boys’, St Joseph’s Cathedral and St Hilda’s Collegiate by meshblock (source: Ministry of Education) Attachment 7 Photo illustrating pollution on internal shop wall CAS Data

Central Dunedin Speed Restriction HIA Report 42 Attachment 8a Road traffic accidents by road user age Attachment 8b Road traffic accidents by road user and time Attachment 8c Hourly time versus road user Attachment 8d Road Traffic accidents –by road user and day/night

Central Dunedin Speed Restriction HIA Report 43

Appendix 3. Scoping workshop

Clifford Skeggs Gallery, 5 May 2010

1.1 Present

Sandra Rasmussen, York Place Preschool Andrew Smith, HairRaiser Tours Guided Walks

Jo Millar, Grey Power Graeme Rice, Education Advisor, NZTA

Hank Weiss, Spokes Dunedin Sarah Weller, Senior Transportation Planner, DCC;

Judy Martin, Living Streets Diana Munster, Traffic Engineer, DCC

Janet Brady, Living Streets Emma Lynch, Public Health Researcher, PHS

Michael Laufiso, Youth Action Council Faola de Montgomery, PHS

Simon Thompson, University Proctor Campus Martin Ward, Impact Assessment Specialist Watch John Marrable, Disability Information Service Charlotte Flaherty, Travel Co-ordinator, DCC

Allen Lawless, Citibus Emma O’Neill, HIA Evaluator, DCC

Toni Paterson, Health Promotion Co-ordinator Age Steve Miles, Chief Urban Designer, DCC Concern

1.2 Invited but did not attend

Tania Baron, Strategic Traffic Unit, Police Lloyd Kan, Amcal Pharmacist, Octagon

Jan Craig, Centre City Community Constable Samantha Cadman & Harriet Moir, Miracle Baby Shop Colin Hillerby, Parking Enforcement Raewyn & Gaynor, volunteers at St Andrew St Op Shop Lizzie Rudd, Student Council, Otago Girls’ High Neill Ballantyne, Youth Action Council Rep School Andrea Elvines, Teacher, Arthur Street Primary School (walks children to swimming lessons and back weekly)

1.3 Introduction

The meeting opened at 12.30 pm with lunch and conversation.

At 1.00 pm the group was seated and introductions began. Martin Ward detailed the HIA process, explaining that a community profile had been drawn up for this workshop and that this had led us to select the group of people in the room as being able to inform us using the best evidence and experience.

Central Dunedin Speed Restriction HIA Report 44

1.4 Proposal to extend the 30km/hr speed zone

Steve Miles then presented the proposal to extend the 30km/hr speed zone. His power-point presentation detailed the environmental changes that would have to be made in order to ensure that a 30km/hr speed limit was adhered to naturally and did not become an enforcement issue. The changes he detailed included: - Widening of pavements - Barnes dance or scramble crossings (where all pedestrians cross together) - Narrowing of carriageway using design such as central medians

Steve said the aim of the proposal was to have cars moving through a pedestrian environment rather than pedestrians moving through a car environment. The proposal aimed to be traffic neutral i.e. having the least impact possible on traffic flow. The positives would be that walking would be more enjoyable, the downside would be a small loss of parking.

Andrew Smith of HairRaiser Tours identified a problem with tourists whereby they would edge out onto the road between parked cars, looking the wrong way and exposing themselves to danger from oncoming traffic. Allen Lawless of Citibus commented that the existing narrowing of George Street meant pedestrians darted randomly across the road, presumably because they felt safer.

1.5 Findings of literature review Emma Lynch and Faola de Montgomery then presented the findings of the literature review. The literature review initially asked how traffic speed impacted on health and found that it had a wide range of influences including: road injuries, social connectedness, active lifestyles, equity, economic development, environment and emotional well being. They narrowed the study down to three key determinants: the number and severity of crashes; the level of physical activity; social capital.

Findings showed: that with regard to severity and number of crashes: • 5% speed reduction equals a 20% decrease in fatalities. • Cyclists/pedestrians 8 × more likely to die if hit at 50km compared to 30km. • Dunedin 14% fatalities are cyclists/ pedestrians. • Dunedin exceeds national injury rate. • Certain user groups benefit more.

With regard to impact on levels of physical activity: • Using active transport (walking or cycling) leads to improved health. • Inappropriate vehicle speed is the greatest barrier to active transport. • Other key barriers are erratic behaviour, traffic volume and poor road design.

With regard to impact on social capital • Being part of a network of social contacts is good for your mental health. • Roads and traffic are physical and psychological barriers to contact. • Inappropriate traffic speed inhibits social contact. • People who live in areas which are more walkable have higher social capital than those residing in car orientated areas.

Central Dunedin Speed Restriction HIA Report 45

1.6 Road injury and crash stats Diana Munster presented her findings. This included:  Dunedin has the -  highest rate of pedestrians seriously injured & killed.  second highest rate pedestrians injured.  increasing pedestrian injury rate.  ~1/3 pedestrian injuries occur in the very small central city area.

Pedestrians don’t spend much time on the road, yet they account for:  20% casualties  35% serious and fatal injuries  mostly 15-24yr olds  very young & elderly also vulnerable. In urban areas a restriction of speed of 10kmph could reduce fatalities by 40%. She concluded that lowering the speed would lead to fewer serious injuries and that when people feel safe they walk more, shop more, engage more in social activity.

Sandra Rasmussen (York Place Preschool) commented that Dunedin’s cool climate meant that more people would drive, the size of the city meant that distance wasn’t a barrier if you were in your car.

Graeme Rice (NZTA) said that the aim of the Government’s 2006 Transportation Strategy was to create a critical mass of pedestrians with a resulting increase in safety.

Jo Millar (Grey Power) said the poor bus service (restricted evening and holiday services) forced people to use their cars. Steve Miles (DCC) and Graeme Rice said that modal shift2 was not something the ORC (bus provider) could do alone.

2 The term modal shift is in reference to changing transport habits/means, i.e. instead of driving a vehicle one would walk or cycle, thus resulting in a modal shift.

Central Dunedin Speed Restriction HIA Report 46 Appendix 4. Literature review

Research questions How does traffic speed influence health and well-being? Does a 30km/h speed limit reduce the number and severity of traffic crashes? Does a 30km/h speed limit impact on physical activity? Does a 30km/h speed limit impact on social capital?

1. Question One: How does traffic speed impact on health/well-being?

Key findings  Reducing traffic speed decreases the number and severity of traffic crashes  Travel times are unlikely to be affected  Literature supports the view that after an initial period of exposure and education the majority of users are supportive of the decrease in speed  Economic benefits are likely to result  Active transport improves health and well-being  It is problematic to illustrate a direct link between traffic speed and physical activity  Vehicle emissions and road traffic noise are likely to reduce if the 30 km/h zone is enlarged  The health burden associated with traffic falls unevenly across the population

There is a considerable amount of literature which correlates traffic speed to health outcomes. This section will briefly discuss such interactions and key relationships will be later expanded upon.

Road injuries and fatalities One relationship which numerous authors draw attention to is the correlation between traffic speed and road fatalities (Crombie, 2002; Mackie, 2009; Ministry of Social Development, 2009; PHAC, 2003). Although traffic mortality rates have fallen since 1986, New Zealand has a relatively high fatality rate at 8.6 per 100,000 people (Ministry of Social Development, 2009) compared to Australia at 6.85 per 100,000 in 2008, United Kingdom at 5.39 per 100,000 in 2008 and Sweden at 5.2 per 100,000 in 2007 (Monash University, 2010).

Injury rates are also significant within New Zealand. In 2008, the injury rate associated with traffic crashes was 352 per 100,000; Dunedin far exceeds national levels at 554.5 per 100,000 (Ministry of Social Development, 2009). There is strong evidence which shows that reducing speed decreases the number and severity of collisions (Delepierre, 2008; PHAC, 2003). Accordingly, Elvik’s (2001) meta-analysis found that traffic calming schemes had a mean effect of reducing crashes by 15%. Grundy et al. (2009) found that 20mph zones were associated with a 41.9% reduction in road casualties, with substantial decreases in fatal or serious casualties and a clear reduction in child casualties and injuries. Such findings from traffic calming studies illustrate various degrees in the reduction of traffic crashes and road injuries.

Inequalities - road injuries and fatalities The health burden associated with traffic falls unevenly across the population (Ministry of Transport, 2009; Land Transport Safety Authority, 2000; PHAC, 2003). The literature highlights the disparity experienced amongst our vulnerable

Central Dunedin Speed Restriction HIA Report 47 communities, such as; motorcyclists, then cyclists are at most of risk of injury or death; child pedestrians followed by elderly are most likely to be hospitalised; and those between 15 and 17 years are over-represented in injury and deaths as drivers, passengers and pedestrians. Ethnicity disparities can be illustrated with Māori and Pacific Islanders being at a greater risk of motor crashes per kilometre3 travelled and being twice as likely to be injured as pedestrians than New Zealand Europeans (Ministry of Transport, 2009; Land Transport Authority, 2000; Ministry of Transport, 2008).

There are also socio-economic disparities, a cohort study with 10,000 participants found that those in the lowest quartile of occupational status were four times as likely to expe rience a driver injury compared to those in the highest quartile, and those with less than two years of secondary school education were twice as likely to suffer driver in juries compared to those with tertiary education (Whitlock, et al., 2002). This may be explained by vehicle types, for example, low socio-economic groups might own vehicles with less safety features than higher socio-economic groups. Similarly, socio-economic trends are illustrated in children (Shaw et al., 2005). Exposure may contri bute to such differences , for example children aged between 5 to 9 years who reside within the lowest household income bracket cross the road 50% more than children in middle and higher household income brackets (Roberts, Keall & Frith, 1994).

Social connectedness The relationship between traffic and social connectedness is complex (PHAC, 2003). Transport is a way of connecting communities but it can also contribute to social isolation. A study undertaken in San Francisco comparing three similar streets with different traffic speeds found that perceived ‘liveability’ decreased with an increase in traffic flow (Appleyard & Lintell, 1972). The ‘liveability’ of an area can be seen to contribute to social connectedness. Such findings are found elsewhere with major arterial routes dividing communities. Such roads not only create physical barriers, but impinge upon community networks and social cohesion (PHAC, 2003). This is clearly indicated in a cross sectional survey undertaken amongst 11 to 16 years olds in Wales. Results showed that there were less positive perceptions of safety, friendliness, appearance, play facilities and helpfulness if they resided on busy roads independent of socio-economic status (Mullan, 2003).

As research indicates that high speeds negatively impinge upon social connectedness it is important that we understand the benefits of a lower speed limit. Traffic calming measures are found to enhance a sense of community, increase social interaction, contribute to a fall in crime (Delepierre, 2008) and overall increase quality of life (Mullan, 2003; PHAC, 2003).

Emotional Wellbeing The influence of the 30km/h speed zone on user’s mental and emotional well being will vary. Driver frustration While Dunedin’s city centre only rarely experiences congestion, congestion has been found to lead to frustration, as drivers are unable to drive at a speed consistent with their desire (TAG, 2003). Enforcing the 30 km/h speed zone more widely than at

3 Per kilometre travelled provides an accurate measure of exposure rates, while per population provides an overview of the public health issue.

Central Dunedin Speed Restriction HIA Report 48 present may have a similar effect if drivers perceive a loss of control - a major factor in determining stress levels (Hennessy & Wiesenthal, 1997). The Ministry of Transport 2009 Speed Survey (of over 16,000 cars) found that 61% of cars were traveling over the speed limit – although this is the lowest since the inception of the survey when in 1996, 82% of cars were speeding and mean speed was 56.5km/h. In 2009, the mean speed traveled in a 50 km/h zone in Otago was 51.4 km/h.

This sense of frustration is usually, if present, a temporary phenomenon and literature supports a view that after education and an initial period of exposure to the idea, the majority of users are supportive of the decrease in speed (RTA, 2000; Fildes et al., 2005; ATSB, 2006; Auckland City Council, 2009 cited in Woodward, 2009; Plowden, 1996). This may be due to educated drivers recognising the risks involved in higher speeds, and weighing the perceived benefits of speeding over the perceived problems that could result (WHO, 2008).

Travel time Based on previous studies, the implementation of a 30km/h zone within the city centre would have little or no effect on travel times (OECD, 2006; Plowden 1996). With a total length of less than two kilometres, average speeds above 40 km/h within this zone are impractical. In addition speeds on peripheral and major through-routes would be unaffected by the implementation, as the difference between a steady 40 and the previous 50 km/h (pre zone extension) over 1 kilometre is calculated to be only 18 seconds. This is due to the traffic flow depending not on speed traveled between intersections, but primarily on intersection capacity (Archer et al 2008). Literature also suggests that drivers often misperceive the savings in time gained by driving faster, particularly on shorter journey lengths. This suggests a general lack of knowledge by drivers regarding the relationship between choice of speed and the effect this has on travel time under different traffic conditions (e.g. level of congestion) in urban areas (Archer et al., 2008; Litman, 1999).

Pedestrians A sense of fear about motor vehicle crashes can affect people’s quality of life, limit people’s freedoms and choices, erode spiritual wellbeing (Garrard, 2008) and be a major barrier to active transport (Daley et al., 2007; Plowden, 1996). Speed reductions are found to improve people’s perceptions of safety and thus it is likely that behaviour may change independent of changes in actual risk of injury. The United Kingdom Government recognises that the most important obstacle to encouraging walking is inappropriate vehicle speed (UK Dept. of Env., 2000), as the speed of traffic is a major factor in determining the attractiveness of active transport (Transport for London, 2005). To illustrate residents’ attitudes to road danger and pedestrian activity, two years after traffic calming schemes were implemented in Scotland, 2,000 drivers and residents were surveyed, of those surveyed 5% to 69% thought pedestrian safety had been improved (Ross Silcock Limited and Social Research Associates, 1999).

Ambient traffic speeds over 30 km/h have been shown to restrict children’s freedom (e.g. by being driven to school) and are predicted to have an effect on the child’s physical health, mental development, autonomy and impinge on their ability to navigate unfamiliar environments later in life (Huttenmoser, 1995; Whitzman, 2007; Plowden 1996). Hertzman (2002) and Gilbert and O’Brien (2005) suggest that children’s emotional and intellectual development accelerates in more walk-able and mixed use communities. This is probably due to a combination of increased opportunities for physical activity, independence and community cohesion.

Central Dunedin Speed Restriction HIA Report 49 Increased perceptions of safety among pedestrians due to lower traffic speeds may lead to pedestrians crossing the road away from controlled crossing sites. The search of available literature was not able to locate any evidence of this, but it cannot be discounted.

Active lifestyles There are a host of activities which contribute to physical activity; one of these is active transport methods. The health benefits associated with engaging in active transport, i.e. due to increased physical activity, include it being a protective factor against cardiovascular disease, certain cancers, obesity, depression and type 2 diabetes (Genter et al., 2008) Active transport may therefore have a role in reducing the risk of chronic diseases in New Zealand. While not robust data, as further research is required to determine if this relationship is causal, Wen et al. (2006) outlines that those who drive to work are less likely to achieve recommend levels of physical activity.

Studies which review the link between reduction in traffic speed and increased physical activity have had divergent findings. One systematic review on promoting cycling and walking looked at different initiatives to change transport modes; for example, financial incentives, educational campaigns and engineering methods. Out of the six engineering initiatives that were reviewed, there was little evidence to suggest that such interventions greatly altered transport modes (Oglivie et al., 2004). Oglivie et al. (2004) argue that to increase physical activity one must address factors of personal relevance and engage people in the process rather than solely raising awareness or imposing changes to the physical and/or economic environment.

Heath et al. (2006) and Morrison’s (2003) systematic reviews drew similar conclusions, showing a lack of evidence suggesting that transport interventions resulted in a change in transport modes and subsequently improve health. While there is a lack of evidence amongst systematic reviews, this does not mean that individual projects have not succeeded in a shift towards active transport. Ball et al. (2009) comment that it is important that residents have the opportunity to select from a range of safe options, as evidence shows that if we plan for cars, we get more cars.

Handy (2004) has similar findings, but argues that although changing community design may not increase physical activity, suitable community design does increase the opportunities for exercise, as safety is enhanced. Other studies illustrate similar results with a decrease in traffic speed increasing child safety (Dowswell et al.,1996; Stevenson et al., 1995; Tester et al., 2004). Handy (2004) goes on to state that parents would be more likely to allow children to walk, bike or play in the neighbourhood if lower speed limits were introduced, thus indirectly influencing physical activity. Similarly NZTA has found that active transport to school is encouraged by measures such as traffic calming techniques, speed limits and safe intersection crossings (Mackie, 2009). Such research is mirrored internationally and illustrates that improving traffic safety is an important factor in providing the opportunity for modal change (Crombie, 2002; Heath, 2006). Such indirect examples are one way of representing the link between traffic speed and physical activity.

Central Dunedin Speed Restriction HIA Report 50

Economic development Retail While this study is not concerned with the effect of total denial of vehicular access to the proposed zone, preventing vehicle access has been found to increase retail turnover for those in the zone (Roberts, 1998; Plowden 1996). Subsequently this has resulted in increased rental income and occupancy rates (Iranmanesh, 2008) which Hass-Klau (1993) comments benefits landlords. Increased retail turnover may be due to the fact that pedestrians do not have to be fearful of vehicles (Iranmanesh, 2008) or perhaps adequate provisions for pedestrians makes centres more attractive and thus increases trade (Sustrans, 2003; Sustrans, 2006). Taking this information and applying it to a decrease in speed correlates to the findings of Delepierre (2008) who draws similar conclusions regarding traffic calming measures having a positive influence on retailing. However Hass-Klau (1993) highlights the importance of planning such schemes as there can be some negative effects on shops along the fringe of the area and a decrease in retail during the transition stage.

Individuals – direct health gains Some traffic calming schemes have lead to noticeable increases in alternative transport modes (Wetzel, 2004). Changes in transport modes may increase physical activity, which is advantageous for the individual and for economic productivity. For those who shift from passive to active transport, research on health benefits show that for cycling there is a health benefit of 15-60cents per kilometre and 44cents-$1 for walking (Genter 2008)4.

Increasing personal active transport may be a suitable way to improve ones health. Studies have estimated that increasing ones health from ‘poor or fair’, to ‘good or excellent’ increases annual earnings by 10-30% (Davis et al., 2005).

Individuals – indirect health gains A decrease in speed within the central city has economic gains for drivers, pedestrians and cyclists. In urban environments where vehicles are required to slow or stop at intersections and then accelerate again, lower overall speeds (due to reduced acceleration and deceleration) offer the best fuel usage (Haworth & Symmons, 2001; Fildes et al., 2005). For example, speed reductions of 10 km/h in the inner city results in fuel consumption savings of 15% to 20% (Frey, 2003).

If transport modes shift away from the motorcar then other economic benefits could include, a decrease in the associated costs of running a vehicle, less air or noise pollution and a reduction in crashes, all of which are economically advantageous to the individual (Litman, 1999). However it is problematic to quantify such economic advantages due to the various scales of traffic calming measures (Litman, 1999).

Population health gains In regards to population benefits, Transport for London (2003) have estimated that introducing 20 mph zones on 60% of the borough road network (8,000 km) would cost £230 million, but save an estimated £313 million in casualties prevented in the first year, a return of £1.36 million. If the lifetime of engineering works is 15 years and minimal maintenance is required, the return on investment would be nearer 20:1(Slower Speeds Initiative, 2006).

4 In a transport cost-benefit analysis, the Land Transport NZ Economic Evaluation Manual (EEM2, 2005) has health benefits at 40 cents per kilometre for new pedestrians and 16 cents per kilometre for cyclists. Research commissioned by Land Transport NZ (BECA 2007) reassessed the benefits associated with moving a person from inactive to active health status at 80 cents per kilometre for walking and 40 cents per kilometre for cycling.

Central Dunedin Speed Restriction HIA Report 51

Environment Vehicle air emissions and health Poor air quality is associated with various adverse health conditions, and is a contributing factor for premature mortality. Levels of exposure to air pollutants vary according to traffic volume, traffic speed and different transport modes.

Continuous, long term exposure to air pollutants increases morbidity and mortality particularly among those vulnerable, e.g. the elderly, the very young, and people with existing respiratory conditions. It has been estimated that between 3 and 22 premature deaths per annum in Dunedin are attributable to PM10 emissions from vehicles, depending on the PM10 threshold for mortality effect (Fisher et al., 2002). However, limited vehicle emission monitoring means findings vary. New Zealand research has estimated that the rate of mortality attributed to vehicle emissions would be 200 premature deaths for adults over the age of 30 years, this is slightly less than traffic accidents (Fisher et al., 2002) while the Ministry of Transport exceeds this estimate and predicts that there are approximately 500 premature deaths per year due to vehicle emissions (New Zealand Transport Authority, 2007).

Air pollution and vehicle speed Fuel usage is illustrated by a bell curve, with fuel usage increasing at higher and lower speeds spectrum, however driving patterns fluctuate and hence fuel consumption changes. Delepierre (2008) argues that lowering the speed limit reduces air pollution in two ways, firstly by decreasing the number of cars on the road, and secondly by resulting in calmer driving patterns. Utilising calmer driving methods does not necessarily equate to lower speeds as Delepierre (2008) later draws on the importance of engineering methods (such as, replacing traffic lights with round-abouts) as a necessary adjunct. Other studies draw similar conclusions for example Hoglund (1994) found that replacing traffic lights with round-abouts ensured traffic travelled at a constant speed and emissions were reduced. The findings of Coehl et al. (2005) were similar, as the implementation of traffic lights along highways reduced traffic speed, but significantly increased vehicle emissions. Such research makes it problematic to conclude that low speed limits will reduce vehicle emissions but highlights the importance of traffic travelling at a constant speed.

It should be noted that as Dunedin’s 30km/h proposal covers only a small percentage of the city, the overall health benefits in regards to emissions may not be quantifiable.

Noise emissions and health Noise pollution in another environmental factor associated with transport which is a significant public health issues.

The maj ority o f vehicles travelling through the centre are light motor vehicles, as heavy motor vehicles travel outside of the proposed area. Currently, in the central city the ambient background noise, on an average working day, is 60 – 70 dB (DCC noise control officer, pers.comm 02/10); consistent with what would be expected for a 50 km/h (32 mph) speed limit (Noise Pollution Clearinghouse, n.d). This is above the sound levels (55-65 dB) which are seen to lead to serious annoyance (Babisch, 1998). In view of the wide exposure, as many people come into the central city, noise emissions may have a large impact on the population.

Noise and vehicle speed

Central Dunedin Speed Restriction HIA Report 52 Implementing a 30km/h speed limit has been found to reduce transport noise by 2dB and if combined with other calming measures transport noise can be reduced by a further 4dB (den Boer & Schroten, 2007). The indirect health effects associated with excess transport noise include impaired communication, disturbed sleep, impaired school and work performance, annoyance, depression, aggression (PHAC, 2003), some association with hypertension (Leon Bluhm et al., 2007) and although evidence is contradictory, cardiovascular risk may increase (Babisch, 1998 Bodin 2009).

While motor vehicle noise (due to engine, wind and road-contact), is the most significant source of noise pollution in urban areas (Kallberg and Toivanen, 1997, cited in Fildes et al., 2005) and these sources of noise reduce with speed (den Boer & Schroten, 2007), the time of greatest noise from a motor vehicle is during acceleration, climbing an incline and aggressive driving (fast acceleration and braking). Therefore a reduction in speed is an effective and cost efficient means of reducing noise (NPC, n.d).

Inequalities –air and noise emissions Residents in areas of high deprivation are less likely to own a vehicle, and those who own the least number of cars are exposed to the most air pollution (PHAC, 2003). This is probably a factor of exposure, i.e. walking, waiting for public transport etc. Similarly if on e lives alongside a main road, air pollution is greater than for those residing on minor roads (Kingham, 2008). There are similar inequalities experienced with noise, for instance noise pollution is likely to be greater in areas of high deprivation as housing is often clustered around main roads (PHAC, 2003).

Research both overseas (Van Wijnen, 1995) and locally has found air pollution exposure is highest amongst motor vehicles. Air pollution research undertaken in Christchurch has found that cyclists travelling in the traffic stream are exposed to 25% more carbon monoxide than cyclists travelling 2m from the carriageway and that carbon monoxide levels in cars are 50% higher than those experienced by cyclists, 80% higher than bus passengers and 400% higher than train passengers (Williams, 2010). This may be a factor of congestion, as during congestion the exhaust pipe of the car in front is near the air vents of the car behind.

As exposure to air and noise pollutants affects individuals differently those with pre- existing health conditions are likely to be the most affected, thereby increasing inequalities. Therefore to ensure that policies do not further disadvantage vulnerable communities is it vital that all affected groups are involved in the process. This buy-in, according to Heath et al. (2006), Litman (2007) and Oglivie et al. (2004) enhances the success of any policies or planning.

Central Dunedin Speed Restriction HIA Report 53 2. Question Two: Does a 30 km/h speed limit reduce the severity and number of crashes?

Key findings  Decreasing vehicle speed from 50 km/h to 30 km/h will result in significant reductions in crash severity particularly for pedestrians.  The number of crashes is also highly likely to be reduced in these circumstances.

Speed is the single most important contributor to road fatalities; an aggravating factor in all crashes and contributes to the severity of crash outcomes regardless of the cause (WHO, 2008). Speed reductions and less speed variance can lead to better distance keeping between vehicles, better attention to the traffic environment and better behaviour towards pedestrians (Litman, 2007).

V ehicle versus pedestrian crashes A reduction in the average speed of approximately 5% would yield a reduction in fatalities by as much as 20% (Archer et al., 2008). Other research has indicated that a 1 km/h reduction in average speed under normal traffic conditions would provide a 2 - 4% reduction in crashes on medium speed urban roads (Taylor, 2000; NZTA, 2009). The probability of a pedestrian or cyclist being killed is eight times higher if the collision speed is 50 km/h versus 30 km/h (Archer et al., 2008).This is the same as stating that the chances of a pedestrian surviving a crash at 50kph is 50%, while the chance of a pedestrian surviving a crash at 30km/hr is 90% (Road and Traffic Authority 2000).

The Power Model (below) for the relationship between speed at impact and resultant percentage fatality probability in the event of a pedestrian-vehicle crash demonstrates that lower mean vehicle speeds at impact lead to less serious injuries.

Figure 1. The power model Source: WHO, 2008.

However, as an Australian study (Archer et al, 2008) points out, reducing posted speed by 10 km/h during peak traffic conditions where congestion is high is unlikely

Central Dunedin Speed Restriction HIA Report 54 to result in any significant direct safety benefits. Reductions are thus most effective at medium congestion when the traffic is periodically able to travel at or near the limit (Noland & Quddus, 2005).

In New Zealand, between 2004 and 2008, 50 cyclists were killed and nearly 2,000 cyclists required hospitalisation due to motor vehicles on public roads (only police reported crashes). In 2008, 31 pedestrians were killed, 261 pedestrians were seriously injured, and 678 pedestrians suffered minor injuries in police-reported crashes on New Zealand roads. The total social cost of these pedestrian-vehicle crashes was approximately $342 million - about nine percent of the social cost associated with all fatal or injury crashes in 2008 (Ministry of Transport 2009c).

In Dunedin, pedestrians and cyclists account for 14% of all road fatalities (NZTA, 2009). These crashes most often occur while a pedestrian is crossing the road at uncontrolled points (LTSA, 2000; Kjellstrom & Hill, 2002). Within the proposed lower speed zone there have been 20 sites with four or more injury crashes since 2004 – totaling 342 crashes (NZTA, 2009). Although the data utilised is not precise, the majority of these sites appear to be at uncontrolled intersections or within several metres of controlled intersections.

The literature indicates that certain groups of pedestrians are more likely to benefit from improved safety through speed reduction, particularly children. The ability of children to cope with traffic is severely limited in their first nine or ten years (OECD 1998). An Auckland study showed that areas with vehicle speeds greater than 40 km/h were associated with significantly increased risk of injury to child pedestrians (Roberts, Norton & Taua, 1996). Similarly, another study found that the introduction of 20 mph zones is associated with a 41.9% reduction in road casualties among children, after adjustment for underlying time trends. In this study the percentage reduction was greatest in younger children and greater in the fatality/serious injury category than for minor injuries. In addition there was no evidence of casualty migration to areas adjacent to 20 mph zones, where casualties also fell slightly by an average of 8% (Grundy, Steinbach et al., 2009) Other studies support this data (Pilkington, 2000; Archer et al, 2008).

The proposed 30km/h zone comprises of three deciles, with 1/3 being decile 6, 1/3 being decile 7 and 1/3 being decile 8; nearby there are decile 9 blocks5 (Crampton, 2000). It is known that the lower the socio-economic status, the greater the pedestrian exposure to road traffic. This may be due to lower rates of car ownership or cheaper housing located on main roads - within the proposed area there are 174 dwellings (Statistics New Zealand, 2007). Pedestrian numbers are also likely to be high due to the close proximity of the university, hospital, shops and schools (approximately 15) within the adjoining area. A study in Auckland found that the proportion of children who walked home from school in the lowest socio-economic stratum (63.5%) was over twice that in the highest socio-economic stratum (25.2%), and a significantly higher proportion of Māori (61.2%) and Pacific Island children (74.6%) walked home from school compared with European counterparts (29.4%) (Roberts & Norton, 1994). Although Japanese imports may have increased car ownership, earlier imports are unlikely to have safety features and may increase the severity of injuries sustained if involved in a crash.

A number of studies suggest that greater respect of the 50 km/h speed limit by drivers in urban areas would, in itself, significantly reduce the number of crashes to vulnerable road users (Varhelyi, et al., 2002; Roberts, et al., 1995). In a UK study

5 Deciles range from 1 to 10, 10 represent the most deprived area.

Central Dunedin Speed Restriction HIA Report 55 about 70% of motorists exceed the present 30 mph (48 km/h) urban speed limit (HMSO, 1999). While not robust data an Australian survey found that 85% of Australians admit to speeding (Coredata, 2007) and a survey in New Zealand found that 40% of New Zealand male drivers and 32% of female drivers admit to being knowingly exceeding the speed limit, at least half the time (AA Insurance, 2009). Although the percentage of drivers who routinely exceed the posted speed limit in urban areas has dropped from around 81% in 1996 to 64% in 2008, the majority still exceed the speed limit (Ministry of Transport 2009).

Plowden (1996) indicates that in some areas where no traffic speed changes have been implemented, there has been an overall decline in fatal and non-fatal pedestrian and cyclist injuries in recent years. Although thought to be a result of improved safety, this may be due to crashes involving vulnerable road users being under-reported, or that there are lower volumes of cyclists and pedestrians leading to lower number of crashes. Lower volumes of pedestrians and cyclists increases the risk of involvement in crashes due to the safety in numbers principle. An example of this is seen in Graz, Austria where cycling increased by 17 - 25% between 1979 and 1991, with only a limited change in injuries involving cyclists observed (Oja, 1999). In 1992 a city wide 30km/h restriction was instigated in Graz.

Vehicle versus vehicle crashes When considering traffic crashes involving two or more cars, the greater the speed the greatest the stopping distance required and hence an increase in traffic crash frequency and severity. Furthermore, the greater the speed the more likely that the driver will lose control of the vehicle; fail to anticipate oncoming hazards in good time and cause other road users to misjudge the speed of the vehicle (WHO, 2008).

A review on speed limit changes from several countries (South Africa, Belgium, Finland, France, UK, Germany, USA and New Zealand) found that when the speed limit was reduced there was a reduction in all road crashes, ranging from 8% to 40% (European Commission, 1998). As seen in Table 1, when crashes between vehicles do occur at 30 km/h the severity is less than a crash at 50 km/h.

Table 1: Chance of death at different impact speeds Collision type Probability of death 10% 30% 50% Pedestrian hit by a car 30km/h 40km/h 45km/h Driver with a side impact collision with a another 50km/h 65km/h 75km/h vehicle Driver with a front impact collision with another 70km/h 95km/h 105km/h vehicle

Source: Ministry of Transport, 2009

3. Question Three: Does a 30 km/h speed limit impact on physical activity?

This section considers whether the proposed 30km/h speed limit will change transport modes and in turn impact upon the amount of physical activity undertaken by Dunedin residents.

Key findings

Central Dunedin Speed Restriction HIA Report 56  Being physically active brings demonstrable health benefits – which can be achieved through, or contributed to by, active transport.  Health benefits in turn produce economic benefits via reductions in morbidity, mortality etc.  Much of the available research on factors contributing to increasing or maintaining physical activity makes little reference to the potential role of vehicle speed.  While the available evidence is mixed, there is some indication that speed limit reduction may contribute to increased levels of physical activity/active transport.  Countries which have achieved high levels of participation in active transport have implemented integrated traffic initiatives which include speed reduction initiatives.

Health benefits of physical activity/active transport Research shows that being physically ‘active’ (including through active transport) brings measurable health benefits.

The health benefits of being physically active include:  Increases in life expectancy, physical fitness, energy, mental health, cognitive functioning and social connectedness (Bull et al., 2004)  Contribution to independent living for older adults (Bauman, 2004)  Children performing better academically (Dwyer et al., 2001)  Adults in the workforce having lower rates of absenteeism and increased job satisfaction (Parks & Steelman, 2008)  People less likely to become overweight or obese, develop cardiovascular disease, type 2 diabetes, colon cancer, breast cancer, osteoporosis and depression (Bull et al., 2004)

Active transport addresses the principal constraint on physical activity; namely lack of time, by combining exercise and travel time. Nearly all people are pedestrians at some time, and walking is the most popular activity undertaken for exercise, recreation or sport in New Zealand (SPARC, 2008). This holds true for Otago, with walking being the most popular form of physical activity for 70.9% of people (SPARC, 2008). In 2006, the New Zealand census illustrated that 8.7% of Dunedin residents travelled to work by walking, 1.5% by bicycling and 65.1% by private motor vehicle. Walking exceeded the national rate of 5.3% and was on a par with cycling (1.9%) and private motor vehicle (64.2%) (Statistics New Zealand, 2007).

The health benefits of active transport occur in the absence of, but also in addition to, occupational and leisure time physical activity. Accordingly, active transport has been shown to produce population health benefits, for example an asso ciation with decreased risk of coronary heart disease (Hu et al., 2007). In a random sample of Danish women and men cycling to work was found to reduce all cause mortality by 40% (Andersen et al., 2000); and, for adults with diabetes, walking more than two hours a week was associated with 39% lower all cause mortality and 34% lower CVD mortality (Gregg et al., 2003).

Research has also considered the economic benefits of being physically active (including through active transport). A recent New Zealand review suggested that per capita benefits range between $2,488 and $3,270 per annum (Genter et al., 2008) due to a reduction in morbidity, mortality and loss of DALYs (Disability Adjusted Life Years). This is exclusive of other benefits such as fuel saving and roading costs.

Central Dunedin Speed Restriction HIA Report 57

Relationship of vehicle speed with physical activity/ active transport The role of vehicle speed as a factor in active transport behaviour has received relatively little attention, and is not included in many audit tools which are used to assess the ‘walkability’ and ‘bikeability’ of specific locations (Moudon & Lee, 2003). Research on walking and cycling as a mode of transport has predominantly focused on individual factors such as motivation, skills, opportunities, and social norms, in addition to environmental factors such as urban form, aesthetics and transport systems (Aytur et al., 2007; Aytur et al., 2008; Owen et al., 2007; Saelens et al., 2003). A recent review conducted by the UK National Institute for Health and Clinical Excellence, with similar objectives to the current study, commented upon both the scarcity and lack of rigour of relevant research studies (Killoran et al., 2006).

Studies which do factor in vehicle speed point to a lack of certainty that lowering speeds will lead to a modal change (Grundy, 2008; Ogilvie, 2004), whereas hazards associated with the road transport environment have been consistently and strongly identified as a principal constraint on walking and cycling. The Netherlands, Germany, Denmark and Japan have achieved relatively high rates of active transport due to transport strategies which focus on a range of speed reduction initiatives (Pucher & Beuhler, 2008) and social endeavours including changing of social norms and lessening the perceived risk of engaging in active transport (Garrard, 2008; and Davies 2010). In these countries, an increased rate of active transport was associated with lower rates of transport fatalities and injuries for pedestrians, cyclists and other road users (Pucher & Dijkstra, 2003; Jacobsen, 2003), possibly due to both safety in numbers and increased social awareness.

Evidence is inconclusive with some studies demonstrating that traffic calming can lead to small self reported and observed increases in walking and cycling (including children’s play) both in the short and in the long term. Community reported outcomes of various traffic calming endeavours include increased neighbourly interaction, improved perceptions of pedestrian safety, improved neighbourhood appearance, reduced crime risk, and increases in walking and cycling (Scottish Office, 1999; Department of Transport, Local Government and the Regions, 2001; (Babtie Group, 2001). Increases in walking and willingness to allow children to exercise outside,. reductions in noise emissions and improvements in physical health. (Morrison et al., 2004). Other studies report either no significant change in self reported and observed levels of walking or cycling, or slight declines in walking and cycling in the short and long term (NICE Public Health Collaborating Centre, 2006).

A more recent review by Saelens & Handy, (2008), of the built environment found that transport options that slow and spread traffic increase street connectivity, safety for cyclists and make walking more feasible, safer and more attractive. This however is not evidence of a causal relationship. While international experience suggests that there is strong and consistent evidence that traffic hazards (including vehicle speed) are a major constraint on active transport speed reduction is not the only change needed to increase safe active transport, but merely a key component (Saelens & Handy, (2008; Pucher & Beuhler, 2008; Davies, 2010). Variables such as demographics, location, and the nature and extent of the traffic calming measures are also important. Policies which promote walking and cycling but fail to reduce danger or ensure complete networks will not achieve a modal shift away from the private motor vehicle (Slower Speed Initiative 2006).

Central Dunedin Speed Restriction HIA Report 58 Care must be taken in using overseas data out of context.Taking the example of Graz mentioned earlier, bicycle trips were increasing prior to the inception of the speed restrictions (Hoenig 2000) whereas in New Zealand they have been declining over the same time period. Direct comparisons may not be relevant.

4. Question 4: Does a 30km/h speed limit impact on social capital?

Key findings  Increases in social wellbeing are directly related to the level of social capital6  Transports systems can act to increase or conversely decrease social capital  Areas which are ‘walkable’ have higher social capital than those which are car orientated  The proposed increase in the 30km/h area is therefore likely to increase social capital amongst users

Social capital encompasses the idea of exchanging goods or services in a social relationship; social networks or participation and trust between people (Currie & Stanley, 2008). Social networks may be based on spatial proximity, for example neighbourhoods, or on shared interests i.e. sports or cultural groups. Social capital provides contacts, resources, skills, influence, reassurance, mutual support and is shown to be associated with good health, low crime, higher educational achievement, economic growth and other positive benefits – i.e. social well being (Gray et al., 2006).

High levels of social capital are thought to promote health directly and safeguard against the adverse effect of stressors. Good social networks are particularly important for vulnerable groups such as older people and children, as strong social network can reduce the risk of depression and susceptibility to infection (Quigley et al., 2006). Conversely limited social contact has been linked to an increase in all causes of mortality; with those with limited social contacts being at more than twice the risk of those with many contacts (Quigley et al., 2006).

The influence of transport on social capital is complex. Transport provides an important means of contact between family members, friends, members of voluntary organisations and communities. Private car ownership has been shown to have a positive association with more and better paid employment opportunities (Cervero et al., 2002; Gurley & Bruce, 2005). Conversely time spent alone in vehicles can translates directly into a loss of social capital. Each additional te n minutes spent in daily commuting time has been said to cut involvement in community affairs by 10% (Putnam, 2000).

Less is known about the impact of car ownership on the frequency and duration of social contacts, but research seems to suggest that exclusive reliance on private car travel is associated with more asocial and sedentary lifestyles especially in suburban residents compared to central city dwellers (Farber & Paez, 2009). At the same time roadways and traffic act as physical and psychological barriers to contact (Quigley et al., 2006).

Communities highly dependent on the motor vehicle pose mobility barriers for children, the elderly, those without vehicles, and people with mobility impairments.

6 “Social wellbeing” is defined as the parts of an individual’s life that contribute to their happiness, welfare and quality of life, whereas “social capital” is a public good, calculated on the benefits to society that accrue through individuals being part of a network of mutual acquaintance and connection.

Central Dunedin Speed Restriction HIA Report 59 Accessible, walkable, safe neighbourhoods with mixed land use, public transport options, and recreational facilities encourage people with limited mobility to remain involved in community activities (Younger et al., 2008, p. 519). Therefore, to maximise social capital within the city, public areas need to be invested in, motor vehicle traffic need to be managed and the needs of people and other transport modes should be catered for (Kenworthy, 2006).

People living in neighbourhoods which are ‘walkable’ score higher on measures of social capital than counterparts living in car dependent neighbourhoods (Kavanagh et al., 2005). Safe pathways to walk and cycle are essential; however this will also depend on the distance to employment and facilities (Capon & Blakely, 2007). The severance effect of motorised traffic also reduces access to health promoting facilities for pedestrians and cyclists, such as walkways or cycle paths. Other research has indicated that when traffic is slowed through traffic calming measures, there are improvements in quality of life and improved safety and mobility for pedestrians and cyclists (PHAC, 2003).

A benchmark study considered the impact of traffic flow on community connectedness and found that the number of social contacts residents had, and the perceived ‘liveability’ of the street was inversely proportional to the traffic flow (Appleyard & Lintell, 1972). More recently the Victorian Transport Policy Institute (2009) conducted a systematic review of road and traffic conditions and demonstrated that the greater the road size and traffic speed the greater the degradation of the non-motorised traffic environment. The security and attractiveness of walking conditions, including the quality of footpaths, crossings, minimal volumes and speed of motor vehicle traffic, and the presence of other pedestrians is of particular importance for community cohesion. Litman (2009) elaborates upon this to outline that neighborhood social ties were negatively correlated with auto- dependence, suggesting that use of alternative modes increases community cohesion. McDonald (2007) found higher rates of children walking to school in more cohesive neighborhoods, (after controlling for other factors such as income and land use.) This greater level of walking and social interaction in turn contributes to improved physical and emotional health (Frumkin et al 2004).

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Central Dunedin Speed Restriction HIA Report 66 Appendix 5. Appraisal workshop

1. Timeframe for the appraisal workshops

Appraisal workshop was held on the 5 May, 2010, 12.30 pm – 4.30 pm, at the Clifford Skeggs Gallery.

April 5-9 April 12-16 April 19-23 April 26-30 May 5

Book Clifford Skeggs ● Gallery Invitation list ● Scoping Report ●● ● ● ● Background paper for ● invitees (10 pages) based on Scoping Report)Scope report Invitations out follow ups ● ●●● in red Finalise presentations ●●● for Appraisal workshop Book catering for ● workshop Appraisal Workshop ● Follow ups ●

2. Attendance

The group discussing “elderly and visitors” had representatives from:

Age Concern Grey Power Living Streets Disability Information Service Citbus Transportation Planning Dunedin City Council Public Health South HairRaiser Tours Guided Walks Transportation Operations New Zealand Transport Agency

3. Questions asked regarding elderly and visitors

The group answered the following questions: Q1. For the elderly and visitors consider the effect of a speed reduction to 30km/hr on physical activity

Positive:  increase numbers walking (covered crossings would help too) (3,3);  increase confidence in crossing (0,2), especially with Barnes dance (3,3);  if bus access were improved for all including those with wheelchairs and mobility scooters (0,0);  more attractive to visitors who would then be more likely to come to the area and walk around (3,3);  perception that the bus service was slower may encourage walking (0,0).

Central Dunedin Speed Restriction HIA Report 67 Negative:  less safe if car parking was along pedestrian pavements (3,1);  perception of safety leads to jay-walking (1,3);  increase in accidents if timetables not adjusted for 30km/hr zone (bus drivers, couriers hurrying to meet deadlines).

Q2. For the elderly and visitors consider the effect of a speed reduction to 30km/hr on community activities and public affairs

Positive:  If the environment as w ell is attrac tive (a design package) (3,3);  may influence access to key buildings/activities (eg easier to cross Gt King St/Moray Place to access Co mmunity House) (2,3);  could become a destination space if given the “full treatment; perceptions of personal security may increase with concomita nt sense of freedom.

Negative:  May decrease involvement if parking was lost; if pedestrian-friendly areas increased congestion on the footpath and the “nois y youth fraternit y” (2,0).

Q3. For the elderly and vis itors conside r the effect of a speed re duction to 30km/hr on personal safety

Positive:  reduction in serious p edestrian inju ries; more peo ple about mak es it safer from assault, bag-sn atching and also from moto r vehicle injur ies; fewer serious injuries in motor vehicle crashes involving older drivers (3,2);  safety increase for other modes (mobility scooters, wheelchairs, skateboards etc) (2,1);  more use of mobility scooters if “charging” stations involved in design package; more money in circulation (less spent on injury treatment).

Negative:  perception of safety leads to more “unsafe” crossing behaviour (2,3);  crowded spaces harder to negotiate and more pavement injuries (2,2);  higher crash rate involving older drivers in zone (more drive in as perceived safer); transition zone area needs clear signage and effective lighting (3,3).

They then indicated severity (significant or not) and scale, 1, 2 or 3.

4. Attendance

The group discussing “youth and pre-schoolers and visitors” had representatives from: Spokes D unedin Living Streets Youth Action Council University Proctor Campus Watch York Place Preschool Dunedin City Council Public Health South

Central Dunedin Speed Restriction HIA Report 68 5. Questions asked regarding youth and visitors

This group answered the following questions:

Q1. For the youth, pre-schoolers and visitors consider the effect of a speed reduction to 30km/hr on physical activity

Positive:  More walking to school as safer (2.2);  more bus use by young mothers if easier to cross road with pushchair (1,2);  network displacement of traffic onto one-way system (3.3);  alternative forms of transport become more attractive eg. Cycling/walking (3,1);  reduction in pollution – better air quality (2,3;  reduction in noise – better quality of amenity (2,3);  improved amenity/ more attractive environment (easier to design)(2,3);  Broader scope of benefits delivered other users (other modes of transport) (2,2);  greater diversity of activities e.g. easier to close streets off temporarily)(2,2).

Negative:  Network displacement of traffic out of zone onto neighbouring/surrounding streets (3,3);  more pollution and congestion ifs created? (2,3).

Q2. For youth, pre-schoolers and visitors consider the effect of a speed reduction to 30km/hr on community activities and public affairs

Positive:  Good speed for cruising (1,1);  encourage socialising (1,2);  encourage informal crossing (3,2);  decrease in antisocial behaviour (1,2).

Negative:  None.

Q3. For youth, pre-schoolers and visitors consider the effect of a speed reduction to 30km/hr on personal safety

Positive:  less severe injuries (3,3);  fewer crashes in long term (3,3);  if critical mass reached safer for pedestrians (2,1);  easier for young people to asses risk at crossings ( 3,3);  reduction in pollution/noise(3,1);  safer for passengers/drivers (young) (3,1).

Central Dunedin Speed Restriction HIA Report 69 Negative:  More risk-taking behaviour (3,2);  in short term more injuries (no grading of severity or scale); if more cycling with narrower carriageways more cycle/car-door interactions(3,1);  network displacements if through traffic onto surrounding streets may increase likelihood of unanticipated risks to young cyclists using other roads (2,2).

They then indicated severity (significant or not) and scale, 1,2 or 3.

6. Those unable to attend

A number of people with evidence and experience of youth activity and business activity in the zone were unable to be present at the appraisal workshop. Arrangements were made to talk with the Youth Action Council to capture evidence from young people and interviews with business people who were unable to attend the workshop were also arranged (see, Appendix 6).

Central Dunedin Speed Restriction HIA Report 70 Appendix 6. Extra appraisal workshops

1. Process There were several groups that were under represented at the appraisal workshop, these were; - students and young people - members of the business community.

They had been contacted by telephone and invited by email to attend, but had been unable to make the appraisal workshop.

1.1 School students We used a different route to contact the school children (DCC Enviroschools Co- ordinator) and got a response suggesting they were available for an after school meeting. This was arranged for the 27 May 2010, and was attended by three Queens High School students.

1.2 Young people We used the Youth Action Council to contact young people and we spoke to a meeting at the Youth Action Council on the 18 May 2010, three youth councillors were present.

1.3 Business Community It was important that we got feedback on the proposal from the business community so a further email was sent to; - Chrissy Anderson at Presbyterian Support - Lloyd Kan of Amcal Pharmacy in the Octagon - Clare Grenfell of The Craic Irish Tavern in the Octagon - Samantha Cadman and Harriet Moir of Micracle Baby shop in St Andrew Street.

This suggested a meeting date four weeks in the future to give enough time. There was only one reply to this email and it was to say this date didn’t suit.

I had previously made contact with the owner of Alibi (Grant Ellis) and been told by him that he wasn’t interested in attending.

The email invitation was followed up by a personal visit to arrange a time that suited the business community best. Using this method interview times were set with Samantha Cadman and Harriet Moir (Miracle) and Lloyd Kan (Amcal). An interview date with Chrissy Anderson (Presbyterian support) was arranged via email and telephone calls. Clare Grenfell (Craic) was not at work when we called in and was unavailable when I made a follow-up telephone call. We decided to choose another member of the business community and selected Paul Martin of Paasha Turkish Café. Further meetings were arranged with Chrissy, Paul, Harriet and Samantha and Lloyd on dates between 31 May and 10 June 2010. These were all successfully concluded.

Our last meeting with Chrissy Anderson revealed another person to contact: Mandy from the Fix – as at the time of these notes we have not contacted Mandy I have since ascertained that the Fix is outside the boundary of the area.

Central Dunedin Speed Restriction HIA Report 71 2. Criteria for selection of business community members

 We were looking for people who had a client profile that matched those identified by our Scoping Workshop as being our target groups.  We were also looking for businesses where staff had a good view of the street and were aware of movement and happenings on the street.

Chrissy Anderson, Presbyterian Op Shop in St Andrew Street - customer profile – students and the elderly - street frontage

Paul Martin, Paasha Turkish Café on St Andrew Street - customer profile – general visitors and night time visitors - street frontage

Lloyd Kan, Amcal Pharmacy in the Octagon - customer profile - elderly - main road frontage of the Octagon

Samantha Cadman and Harriet Moir, Miracle Baby Shop on St Andrew - customer profile - young children and mothers - street frontage

3. Summary of findings

The add i tional appraisal meetings occurred on a ‘one to one’ basic. with the group of interest. This format meant that we were able to explore their ideas more thoroughly. The arisi ng themes were;  Participants in all groups mentioned that they would like to see traffic-free areas  Buses were a disincentive for people to undertake physical activity in the area and impacted on community activity because people were reluctant to expose themselves to the emissions (both noise and fumes). This was clearly illustrated by a photo taken of a shop wall. The dirt on the wall was contributed to the emissions from outside (they had an open door policy) (Attachment 7)  Boy racers were identified as intimidating. Both school students and the elderly felt that a reduced speed limit would reduce boy racer activity  St Andrew Street has a different function compared to other central streets. This street is central to traffic that is passing through the city (signed off the one-way through St Andrew). It is also used by heavy vehicles and emergency services and as such it was felt further investigations as to treatment of this street were merited  Pedestrian behaviour in the section of George Street containing the malls differed to behaviour in other sections of George Street and surrounding streets. Pedestrians were motivated to cross backwards and forwards and did so in anticipation of traffic giving way to them. Investigation of the treatment of this part of the zone was also worthy of merit  Importance of education, so that the public knew what was happening and understood why it was essential to encourage compliance and acceptance.

Central Dunedin Speed Restriction HIA Report 72 3.2 Complete version of points raised at extra appraisal workshops

3.2.1 Physical activity Positive:  Urban Design  traffic-free zone would encourage physical activity  Octagon traffic-free would make city more attractive  St Andrew and Hanover would increase shopping in and between malls (could also be an attraction and increase community participation)  Extend footpaths and verandas for shelter  Wide verandas would encourage physical activity - watch you don't detract from heritage  Wide footpaths would encourage physical activity  30km/hr good for foot traffic

 Buses  Shuttle along George Street from edges would encourage people to walk  Free shuttle would be good for elderly would increase their physical activity  Move buses out of main street to encourage people to walk  Park and walk on edge of zone central bus exchange (warm, dry, tv) would encourage people to take bus - passing foot traffic is life blood of retail  Having street full of bus stops (with associated noise, fumes etc) discourages people from walking in town

 Traffic design  Allowing time for people to cross at lights (phasing too short at present) would encourage physical activity  Adjusting traffic light phasing for pedestrians (so they weren't waiting to cross on a traffic free road) would encourage physical activity  Pedestrian and zebra crossings in George Street would encourage people to cross between malls, drivers unsure as to what to do at present (twice)

 General  Upgrading of toilets would encourage physical activity  Bicycles  Bike lanes in George Street would encourage activity, could be used by skateboarders too  Numbers of skateboarders and cyclists would increase  Bike lanes separate from cars would encourage cycling  Not safe to cycle at present - road design might help  Bicycle library would encourage physical activity  Night-time: Would walk more as a result of fewer drag racers cruising though town; would want to go to town more

Negatives:  More skateboarders on pavement

3.2.2 Social connectedness (Social capital)

Central Dunedin Speed Restriction HIA Report 73

Positives:  Traffic-free areas  Traffic-free in the Octagon would be great/ would act as hub with events more frequently (3)  Traffic-free Octagon would generate more activity/events/youth meeting place which would enhance community – markets would be good for tourism and would give Dunedin a better image  Traffic free Octagon would need careful management to ensure it didn’t become dominated by one group – perhaps design zones for different ages e.g. rose garden for older people  If outside Meridian was traffic free it would be great as a good cross section of people move around there  Some areas blocked to traffic might help  30km/hr more pleasant for those living in area  If 30km/hr may get reduction in number of rides from parents into town which might mean more walking which would lead to cleaner environment and increased social capital  Need events so that people come into town

 Urban design  Big wide footpaths would encourage people to get out and about  Upgraded toilet facilities would encourage people to get out and about

 Buses  Buses out of main street would open up parking and encourage more people to town  Move buses out of main street to encourage people to town  Pollution and bus noise discourages people  Having street full of bus stops (with associated noise, fumes etc) discourages people from walking in town

 Traffic design  Phasing lights to be better for pedestrians would encourage more people to come into town

 Night-time  Lower speeds would generate more foot traffic at night - currently won't come into town as too scary

Negatives:  For youth would only work if traffic free, boy racers, who are very intimidating, would move elsewhere

3.2.3 Personal safety

Positive:  Most customers are on foot, a lower speed limit would increase their safety  Safer crossing of street  Reduce crash rates  Injuries less severe  Safer for schoolchildren to cross (twice)

Central Dunedin Speed Restriction HIA Report 74  Buses  Terrible fumes from traffic and buses - fumes go into shops (we have collected photographic evidence of this)  Move buses off main road to increase safety  Buses out of main street would mean less noise and pollution  St Andrew Street is main thoroughfare used by emergency services and trucks bypassing  Town centre town not safe at the minute because of number of deliveries, traffic movements etc  Lower speeds would generate more foot traffic at night - currently won't come into town as too scary  Need education campaign (twice)

 Traffic design  Extend 30ph to school zone to improve safety for school children  Increase period of safety for pedestrians with regard to approaching cars (Scale 3);  Barnes dance crossing would increase safety (3,3);  Note: students suggest a need for more crossings in Octagon area.  Would make it safer on corners (at junctions)  Traffic lights need to be really clear – difficult for peds at present with right/left-hand turning  Phasing of lights and Barnes dance would make it safer for elderly in particular  Barnes Dance would improve safety for everybody  Phasing of lights to stop jay walking (mentioned twice)  The lights need to be phased, too quick for elderly to safely cross.  Barnes Dance would improve safety – perhaps stop jaywalking

Night time  30km/hr would be safer for drunks/safer for drunken students, especially by Monkey bar  Boy racers and drunks are intimidating at night  Old people intimidated outside Time zone at present – they cross road to avoid the teenagers who group there  Fewer boy races would mean it was not so intimidating (and better for elderly too)

Attachment 7 illustrates the extent of smut/grime on internals walls of a premise near traffic lights on intersection George St/Octagon corner.

Central Dunedin Speed Restriction HIA Report 75 Appendix 7. Extra appraisal workshop meeting notes

The letter sent to selected business community and youth stated;

Dunedin Traffic Health Impact Assessment on extending 30km/hr reduced speed zone

Than k you very much for agreeing to take part in the Appraisal part of the Health Impa c t Asse ssment on the proposal to extend the 30km/hr zone in the central city area.

We have invited you to take part because your organisation/business premises are situated within the proposed zone and your customer profile fits with those we have identified as being most likely to feel the effects of the proposal.

Some information which you may find useful when we come to record your evidence is contained below.

Findings of literature review Findings showed: that with regard to severity and number of crashes • 5% speed reduction equals a 20% decrease in fatalities. • Cyclists/pedestrians 8 × more likely to die if hit at 50km compared to 30km. • Dunedin 14% fatalities are cyclists/ pedestrians. • Dunedin exceeds national injury rate. • Certain user groups benefit more; With regard to impact on levels of physical activity: • Using active transport (walking or cycling) leads to improved health. • Inappropriate vehicle speed is the greatest barrier to active transport. • Other key barriers are erratic behaviour, traffic volume and poor road design; With regard to impact on social wellbeing • Being part of a network of social contacts is good for your mental health. • Roads and traffic are physical and psychological barriers to contact. • Inappropriate traffic speed inhibits social contact. • People who live in areas which are more walkable have higher social capital than those residing in car orientated areas.

Information on road injury and crash stats Nationally: • Dunedin has the highest rate pedestrians seriously injured & killed • 2nd highest rate pedestrians injured • increasing pedestrian injury rate • ~1/3 pedestrian injuries occur in the very small central city area Pedestrians don’t spend much time on the road yet they account for – 20% casualties – 35% serious and fatal injuries • Mostly 15-24yr olds • Very young & elderly also vulnerable

Central Dunedin Speed Restriction HIA Report 76 In urban areas a restriction of speed of 10kmph could reduce fatalities by 40 per cent. Our conclusions is that lowering the speed would lead to fewer serious injuries and that when people feel safe they walk more, shop more, engage more in social activity.

We are seeking your views on the following questions:

 For youth, visitors and the elderly consider the effect of a speed reduction to 30km/hr on physical activity  For youth, visitors and the elderly consider the effect of a speed reduction to 30km/hr on community activities and public affairs  For youth, visitors and the elderly consider the effect of a speed reduction to 30km/hr on personal safety

Mark Significance (severity) and Scale (how any people will be affected using a 1-3 scale. If you have any further thoughts on these questions please email Charlotte on [email protected], or call 03 474 3499 (direct line).

Notes taken from extra appraisal workshops

1. Miracle Baby Shop, St Andrew Street

3 June 2010 Present: Harriet Moir, Samantha Cadman and Amanda Davies (Miracle) and Emma and Charlotte

1. The effect of a speed reduction to 30km/hr on physical activity  A lower speed limit would increase the amount of physical activity  Meridian Mall situation encourages jay-walking (no defined crossing points) lower speed would increase safety  If either or both of the Octagon and George Street (between St Andrew and Hanover) were designated pedestrian-only it would increase physical activity levels.  Lower traffic speed would be good for children and increase their activity levels  St Andrew is a thoroughfare and danger levels reduce physical activity

2. The effect of a speed reduction to 30km/hr on community activities and public affairs:  Traffic free Octagon would need careful management to ensure it didn’t become dominated by one group – perhaps design zones for different ages e.g. rose garden for older people  Centra l city has a good mix of socio-economic status, lower speed limits would be good for poorer end.  If outside Meridian was traffic free it would be great as a good cross section of people move around there.  Might have some effect on retailers, need to have parking for quick stops

Central Dunedin Speed Restriction HIA Report 77 3. The effect of a speed reduction to 30km/hr on personal safety  Most customers are on foot, a lower speed limit would increase their safety  Lower speed limit would increase safety  St Andrew is a thoroughfare and danger levels and street use need to be considered (at present drivers don’t think of the central city area as “pedestrian” just part of a route A to B)  The lights need to be phased, too quick for elderly to safely cross.  Barnes Dance would improve safety – perhaps stop jaywalking  Old people intimidated outside Timezone at present – they cross road to avoid the teenagers who group there.

Suggestions and comments:  Traffic-free between Hanover and St Andrew  Octagon traffic-free – with events would be great for town more people would come into town  Need events/festivals and a picnic area for children in Octagon  No trade vehicles between 10am and 4pm  St Andrew Street too narrow with median centre strip  Meridian mall layout encourages jaywalking  Need to monitor and enforce new speed limit in areas that weren’t engineered  Traffic lights need to be really clear – difficult for peds at present with right/left-hand turning

2. Paasha Turkish Restaurant/ Cafe, St Andrew Street

31 May 2010 Present: Paul Martin (Paasha restaurant) and Emma and Charlotte

1. The effect of a speed reduction to 30km/hr on physical activity  Big, wide footpaths would encourage physical activity  Wide verandas and cover for people standing at lights waiting to cross would encourage physical activity. However, watch that you don’t detract from building design.  Pedestrian and zebra crossing across George Street at the malls would encourage people to walk between them. It would also let drivers know what to do (uncertain at present.)  There needs to be a central bus exchange – warm and sheltered with TV so that more people use the bus. People who use the bus walk more and passing foot traffic is the lifeblood of retail.  Upgrading of toilets would encourage people to walk.  Allowing time for slow pedestrians to cross at the lights (phasing too short at present) would encourage physical activity.  Making crossing phase quicker and longer for pedestrians (they currently wait even though no traffic is there) would increase physical activity

2. The effect of a speed reduction to 30km/hr on community activities and public affairs  Big, wide footpaths would encourage participation in community activities and public affairs  Upgrading of toilets would encourage participation in community activities  If buses were taken out of the main street more car parking would be freed up and more people would come into town. The pollution and noise discourages

Central Dunedin Speed Restriction HIA Report 78 people. The buses need to be smaller and taken out of the main street altogether.  Bus stops need cover and seating to encourage people to gather there.  Verandas extended over road would encourage participation in community activities.  Making crossing phase quicker and longer for pedestrians (they currently wait even though no traffic is there) would increase participation in community activities

3. The effect of a speed reduction to 30km/hr on personal safety  The lights need to be phased, too quick for slow pedestrians to safely cross  Lights need to be phased for off peak times at present people jaywalk because no traffic appears to be coming although the lights tell them not to cross.  If buses taken out of main street, less noise and pollution  Heavy trucks use St Andrew Street as a thoroughfare this needs to be taken into account – perhaps leave St Andrew at 50kph?  Median strip reduces the width of road for emergency services which frequently use St Andrew

Suggestions  Need foot traffic so 30km/hr very good for that  People currently drive to their destination e.g. would drive from Meridian car park to octagon not walk – needs to be considered  Drivers want to move all the time – flow must be kept even  Roundabout at Queen’s Gardens would help flow  Lights need to be phased across central city area so traffic moves all the time  Need more parking in the area  30km/hr could stop at Dowling, nobody walks there  Raised intersections would be good – need pedestrian crossings at key sites e.g. outside mall  Don’t touch Octagon, iconic and pretty  People can drive around and backtrack if they make a mistake 

3. Unichem Pharmacy, Octagon

31 May 2010 Present: Lloyd (Unichem Pharmacy) and Emma and Charlotte

1. The effect of a speed reduction to 30km/hr on physical activity  Don’t see many cyclists at the moment, weather and hills not so attractive – perhaps road design might help as not safe  If had parking on outside of the zone would be really good, as encourage people to walk in, a bulk carpark at South end and one by hospital. Need to be covered and cost effective. Workers currently do this by parking in the oval and walking in, but nothing specifically provided  Perhaps have bicycles that you pay for and can ride into town – a bicycle library. This would encourage physical activity  Extend footpaths and verandas for shelter

Central Dunedin Speed Restriction HIA Report 79 c

 Might have some effect on retailers, need to have parking for quick stops  If there are events, then perhaps traffic could be blocked off. Need activities for people to come in, people come in for short times at present (i.e. to do messages) 

3. The effect of a speed reduction to 30km/hr on personal safety  The lights need to be phased, too quick for elderly to safely cross  Lights need to be phased for off peak times at present people jaywalk because no traffic appears to be coming although the lights tell them not to cross.  Education vital, Dunedin attitude is to jaywalk, even elderly, people with prams – need to educate the people and change attitudes  Safer for drunks  If buses shift, less noise and dusty. Presently shop is very dusty, diesel pollution on walls and can’t hear customers when buses go past. Fumes come into the shop  Need to be monitored so that shops / cafes don’t take over footpaths with tables, signs and merchandise – needs policing  Quite intimidated by boy racers, and people in Octagon at night – prevent owner from getting to tattoo parlour – need education to change attitudes in drinking culture  Really noisy at night

Suggestions  Extend to south Dunedin, Mc Andrew and Hillside road, good for elderly coming into town  Take buses off George Street and run along Great King Street  Not a full traffic free Octagon, bars would take over and it definitely wouldn’t benefit everyone – perhaps narrow carriageway and put lower Octagon traffic-free. Block off central carriageway sometimes.  Events would be good – weather permitting  Buses that drop cruise ship passengers is on a hill, needs to be on the flat to be safer as they disembark as most are elderly.  Education vital

4. Presbyterian Support Op Shop, St Andrew Street

9 May 2010 Present: Chrissy & Megan Robertson, Shop on Carroll and Charlotte and Emma

Overall thought the idea was a positive step

1. The effect of a speed reduction to 30km/hr on physical activity  If Shuttle was there, people might walk around shopping more  Plus be able to park car on outside and come in, think Dunedin is too small for parking on outside and people walking in (like Lloyd suggested0  If traffic free Octagon people might walk around more

Central Dunedin Speed Restriction HIA Report 80  Currently Megan won’t let her child ride a bike. If cycle lanes were made this may encourage cyclists, especially children - have to be separated from cars.

2. The effect of a speed reduction to 30km/hr on personal safety  Area of concern was around York Place, very busy with school/childcare/residential, plus trucks travel very fast especially at night & often used by St John. Would like to see York Place up to Stewart St become 30km  Extend 30km zone to the school area, Tennyson St  Current traffic lights change to fast, elderly can’t walk fast enough to get across.  Town is a busy place, cars, busses, deliveries – not traffic safe at the moment.  Like the idea of barns dancers, as left turning car nearly hit pedestrians. Think it would upset traffic flow if had them along the whole of George St, but could have them in certain places.  Not safe at moment, as terrible fumes inside shops.  Having street frontage full of bus stops deceases shop trade, indigo bakery closed, fairies and wizards. Retails sales at Opshop fell by 25%.  Might get more foot traffic at night, at the moment scared to come into town at night by ones self, just wouldn’t do it. Taxi’s even lock their doors along St Andrew St  Be much safer for children, Megan child’s foot was run over by a car. Children would be safer crossing the road.  Need a pedestrian crossing – courtesy crossings are not clear and just result in people walking out. Need to know one way or the other, esp outside New World and Meridian crossings

3. The effect of a speed reduction to 30km/hr on community activities and public affairs  If Octagon became traffic free (only delivery, busses, wheelchair parks) might act as a hub, families, events, and business like the Art Gallery could extend into the space.  Have to be careful that drunks didn’t upset the elderly  If 30km be more pleasant for those living in the area

Suggestions:  Need monitoring, this is really important. This would have most effect on youth (i.e. boy racers) as it is actually costing them something.  Free shuttle within the area, be great for elderly as be able to hope on and off and would increase their physical activity.  Free parking (like in chch in council owned carpark buildings).  Octagon – busses, delivery, wheelchair parks/access only. Make it a hub within the town.  Need 5 min loading zones and wheel chair parking along street frontage  Moves busses out of central city.  Pedestrian crossing outside Meridian and Kathmandu.  Need education campaign, reasons behind it, what is happening, etc. Suggest a crash campaign coming into town (Could do a mail out – my idea)

Suggested we speak with Mandy from The Fix – ascertained subsequently that The Fix is outside the proposed zone.

Central Dunedin Speed Restriction HIA Report 81 5. Youth Action Committee

18 May 2010 Present: Neil Ballantyne, Jonno Clark, Harlem Uiti (Youth Council) and Emma and Charlotte

1. For youth consider the effect of a speed reduction to 30km/hr on physical activity  Positive: Numbers of skateboarders would increase and injuries would be less severe (3,3);  Number of cyclists would increase (they find George Street good at the moment)  Traffic-free zone would be great  Negative: more skateboarders on the pavement would be a hazard

2. For youth consider the effect of a speed reduction to 30km/hr on community activities and public affairs:  Positive: traffic-free in the Octagon would be good vibes (3,3)  Youth would still come into town but perhaps not drive  Increase culture downtown  Negative: it would only work if traffic-free  Youth in cars wouldn’t like the speed restriction  Couldn’t get to hospital fast enough

3. For youth consider the effect of a speed reduction to 30km/hr on personal safety  Positive: safer for drunk students, especially by Monkey Bar area (3,3)  Would slow down taxis and buses  Safer crossing of street; safety would improve on corners  Reduce accident rates; safer for schoolchildren crossing (3,3)  Negative: Octagon traffic-free every Saturday night (positive if happens, negative if doesn’t) (3,3)

Suggestions  Judder bars (we explained that engineering would restrict speed)  Better police control so people didn’t hoon at night  Street area needs more focus  Kea crossings as gateways to the 30km/hr zone would ensure people knew they were entering a different zone  Cost of implementation – what returns do we want? How do we measure them?

6. S c hool students

27 May 2010 Present: Courtney Todd, Katie Davidson, Meghan MacTavish (Queen’s High School, not on outskirts of zone but use Octagon) and Emma and Charlotte

1. For youth consider the effect of a speed reduction to 30km/hr on physical activity  Positive: More people walking (3,3)  More people biking (3,3); less intimidated by cars (3,3)  Would walk more as a result of fewer drag racers cruising though town; would want to go to town more  Octagon traffic-free would make city more attractive

Central Dunedin Speed Restriction HIA Report 82  Bike lanes in George Street would encourage activity, could be used by skateboarders too  George Street traffic-free between St Andrew and Hanover would increase shopping in and between malls (could also be an attraction and increase community participation)  No negatives were identified

2. For youth consider the effect of a speed reduction to 30km/hr on personal safety  Positive: Critical mass of pedestrians and cyclists would increase safety (3); fewer boy races would mean it was not so intimidating (and better for elderly too) (Scale 3); Increase period of safety for pedestrians with regard to approaching cars (Scale 3); Barnes dance crossing would increase safety (3,3); Note: students suggest a need for more crossings in Octagon area. Negative: If not enforced properly could be very dangerous (Scale 3)  3. For youth consider the effect of a speed reduction to 30km/hr on community activities and public affairs:  Positive: Would spend more time in town (Scale 3); traffic-free Octagon would generate more activity/events/youth meeting place which would enhance community – markets would be good for tourism and would give Dunedin a better image (3,3); If 30km/hr may get reduction in number of rides from parents into town which might mean more walking which would lead to cleaner environment and increased social capital.  No negatives were identified

Suggestions  Traffic-free Octagon would ensure more markets and events, good for tourism, would also make octagon a hub; cycle lanes down George Street would mean more youngsters would cycle (intimidated by driver behaviour and traffic flow at present); more crossings in Octagon area (at top of lower Stuart Street) would improve safety.

End

Central Dunedin Speed Restriction HIA Report 83