Palmerston North to Longburn Shared Path – Construction Opportunity

PALMERSTON NORTH CITY COUNCIL

REPORT TO FINANCE & PERFORMANCE COMMITTEE

DATE OF MEETING 8 December 2014

REPORT TITLE PALMERSTON NORTH TO LONGBURN SHARED PATH – CONSTRUCTION OPPORTUNITY

DATE OF REPORT 17 November 2014

REPORT AUTHOR/S David Lane TITLE Road Planning Team Leader UNIT City Networks

SYNOPSIS

Council has a capital programme 634 to construct a shared path for use by pedestrians and cyclists that will eventually link the Pioneer Highway Shared Path to Longburn, following the course of State Highway 56 and utilising vacant road reserve land along the road corridor. The programme is currently one of the lower priority programmes with construction planned for 2021/22. In the 2013/14 Annual Plan Council approved funds for investigation of the proposed path (Programme 841 - $21K) and this work has been completed. An opportunity has now arisen to secure NZTA funding assistance for the capital programme if construction can be completed in the 2014/15 Financial Year. This report recommends bringing forward the construction programme to take advantage of this funding opportunity.

Does the Committee have delegated authority to decide? NO

Quote relevant clause(s) in current Delegations Manual Clause(s)

1. RECOMMENDATION(S) TO COUNCIL

1.1. That Council approve construction funds of up to $900,000 for the Palmerston North to Longburn shared path envisaged in Programme 634 during the 2014/15 financial year, providing funding assistance from the New Zealand Transport Agency is confirmed.

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2. EFFECT AND COST OF RECOMMENDATIONS

2.1. Council’s projected budget for construction of the proposed shared path in the 2012/22 Long Term Plan is $688k with construction timed for 2021/22 (year 10). The construction estimate prepared in 2012 assumed no NZTA funding assistance and that the surface would be constructed using crushed limestone. For reasons outlined in this report it is assumed that construction in 2014/15 would be for a sealed path with a projected budget of up to $900,000.

2.2. Council has no funds approved in the 2014/15 Annual Plan for construction of a shared path to Longburn. It does, however, have committed funds for walking and cycling infrastructure development in programmes 235 – Manawatu River – Ashhurst to Riverside Drive ($575k) and programme 977 – Manawatu River – Fitzherbert Bridge to Linton ($400k). Due to land negotiations, consenting and consultation requirements these programmes are looking increasingly unlikely to proceed to construction this financial year. Any decision to bring forward funding for programme 634 would not affect Council’s overall budget for Roading and Parking Activity for the 2014/15 year. If approved the programme would also result in receipt of non-budgeted NZTA revenue of up to $513k.

SIGNIFICANCE AND CONTRIBUTION

3. SIGNIFICANCE AND 10 YEAR PLAN FUNDING

Are the decisions significant No

Can this decision only be made through a 10 Year Plan No

Can this decision only be made through the Special Consultative No procedure

Is there funding in the current Annual Plan for these actions No

4. CONTRIBUTION TO GOOD QUALITY LOCAL INFRASTRUCTURE, PUBLIC SERVICES AND REGULATORY FUNCTIONS OF RECOMMENDATIONS

4.1. Development of a shared path for use by cyclists and pedestrians along State Highway 56 provides an enhanced level of service for city residents utilising the network of such paths. Formation of a shared path will provide improved separation of vulnerable road users from high speed traffic using the highway

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and will likely result in increased usage. Particular beneficiaries will be Longburn residents and secondary school students attending Longburn Adventist School in Walkers Road.

4.2. Investigation of the shared path was completed by Viastrada Transport Planning and Design during the 2013/14 financial year. Concept plans have been provided which allow for construction of a path on the northern side of the carriageway on unutilised berm space within the highway corridor. Use of this available berm space is recommended for the path construction. There is no available space for development of a suitable separated shared path facility on the southern (Walkers Road) side of the state highway.

4.3. Construction of the path will require construction of a bridge crossing of the Mangaone Stream at the urban speed limit boundary. A free-standing structure is recommended to the north (upstream) of the existing bridge as a clip-on facility would result in pedestrian and cyclists being unnecessarily close to highway traffic and it may compromise future plans for bridge duplication associated with urban growth. The Viastrada report also includes concept plans of safer road crossing facilities at Rongotea Road, at Walkers Road and within Longburn.

RATIONALE FOR RECOMMENDATION(S)

5. BACKGROUND TO ISSUE BEING ADDRESSED

5.1. Since 2009 Council has been required to develop a Land Transport Programme every three years. The Land Transport Programme is partly funded by the New Zealand Transport Agency and partly funded by Council through its Roading and Parking Activity in the Ten Year Plan. Council’s Land Transport Programme forms part of the Regional Land Transport Programme that is prepared by Horizons Regional Council each three years.

5.2. Since 2012 Council has included in its programme a package of walking and cycling activities. Council’s proposed walking and cycling projects costing over $250,000 are required to be nationally prioritised by NZTA. In 2012 none of Council’s identified walking and cycling projects were approved for NZTA funding assistance. Shared paths along the Manawatu River were given a “reserve” status in the funding programme, meaning that funding may be made available if NZTA had surplus funds available for such projects.

5.3. During the development of Council’s 2012-22 Ten Year Plan programme 634 was included for construction of a shared path between Longburn and Pioneer Highway. Council confirmed this project in the Ten Year Plan with a relatively low priority, for construction in 2021/22. Because the project was not expected to be delivered in the three year programme that is prioritised by NZTA it was not included in the Regional Land Transport Programme for 2012-15.

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5.4. Nationally there is approximately $30 million available from NZTA for walking and cycling projects. NZTA has recently indicated that this programme is unlikely to be fully expended and has invited Councils to submit suitable projects for consideration.

5.5. During 2013 Council decided it would complete the investigation phase for the proposed Longburn Shared Path. This investigation was carried out by Viastrada Transport Planning and Design. Viastrada confirmed that construction of a suitable shared path was possible along existing road reserve space on the northern side of State Highway 56. The path would provide a direct link to the existing shared path that follows Pioneer Highway from Botanical Road to the Mangaone Stream shared path network.

5.6. Construction of the shared path is a project that is suitable for bringing forward if NZTA funding assistance were available. Land is readily available that would allow an immediate start to construction. A bridge is required across the Mangaone Stream and preliminary investigation is underway to establish costs and specific engineering requirements. It is a relatively light structure and as such is readily achievable in the time available.

5.7. NZTA has indicated that funding approval would be dependent on Council agreement and also support from Horizons Regional Council who must issue a variation to the Regional Land Transport Programme. An approval from the Regional Transport Committee was being sought at their meeting on 2 December 2014.

5.8. Council is not the Road Controlling Authority for the section of State Highway 56, which runs between Maxwells Line and Longburn. State Highways are administered by Highway Networks Operations section of NZTA. As the highways operator NZTA are technically responsible for capital improvements including provision of walking and cycling facilities. NZTA have advised that a facility of State Highway 56 is a low priority and is unlikely to attract funding for many years. If Council wishes to realise the community benefits associated with the proposed path then co-investment with NZTA sharing the cost, rather than meeting the full cost, seems the most appropriate funding solution.

5.9. There is a small financial advantage available to Council if path construction can be completed within 2014/15. Council’s current funding assistance rate for capital improvements is 57%, while the base rate for maintenance is 47%. NZTA have reviewed national rates for funding assistance and recently announced a new rate for Palmerston North city Council of 51% for all assisted works. If the proposed works proceed in 2014/15 the total revenue received will be up to $513,000. From 2015/16 onwards this will reduce to $459,000, a difference of $54,000 if the path is completed then. It should be noted that Council has not budgeted in the Annual Plan for this anticipated revenue.

5.10. The budget of $900,000 assumes that the path is to be completed in asphaltic concrete. This surface is more suitable for longer distance trips by cyclists, especially where commuting is anticipated. Because Longburn has established industry it is likely that commuting in both directions will occur. Maintenance

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costs, which will be Council’s responsibility, are lower and maintenance intervals less frequent for asphalt paths.

6. PREVIOUS COUNCIL DECISION(S)

6.1. During 2012 following strong submissions from the community Council confirmed the inclusion of Programme 634 in the Ten Year Plan with construction programmed for 2021/22. In 2013/14 Annual Plan Council allocated $21k in Operating Programme 841 for completion of investigation.

7. DESCRIPTION OF ALL OPTIONS

7.1. Council could approve construction of the proposed path in 2014/15 at a total cost of up to $900,000 including an asphaltic concrete surface and a bridge over the Mangaone Stream. In this case the NZTA share of the cost would be up to $513,000, with Council’s net cost being a maximum of $387,000. This is the recommended option.

7.2. Alternately Council could defer construction of the path and review the programmes priority in the Ten Year Plan process. Construction during or after the 2015/16 financial year will at best attract a funding assistance rate 51% with projected revenue being $459,000 and a Council cost of $441,000.

8. DISCUSSION OF ALL OPTION(S) - COMMUNITY VIEWS

8.1. Council assumed responsibility for Longburn in 2012. Representatives of the community have advocated for completion of a path along the highway for a number of years and made submissions to the Ten Year Plan process in 2012.

9. DISCUSSION OF ALL OPTION(S) – SUSTAINABILITY AND ALIGNMENT WITH COUNCILS STRATEGIC DIRECTION

9.1. Social and cultural sustainability

Completion of the proposed path contributes to Council’s goals for making Manawatu the best place to raise a family and the best place in New Zealand to ride a bike.

9.2. Environmental sustainability

Cycling is an environmentally friendly and efficient form of travel for travel distances of up to 10 kilometres. Provision of a separated path will enhance the opportunity for cycling trips along a highway corridor with high traffic speeds and a medium-high collective crash risk.

9.3. Economic sustainability

Longburn is a growing employment hub and an important contributor to the Regional economy. Provision of a safer route for pedestrians and cycle

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commuters will enhance the attractiveness of the area to employees and residents.

9.4. Alignment with Council’s Strategic Direction

Completion of the path provides an important link to the Longburn community and contributes to Council’s goals for safety, prosperity and sustainability.

10. DISCUSSION OF ALL OPTION(S) – FINANCIAL SUSTAINABILITY AND COST EFFECTIVENESS

10.1. External funding for a shared path link to Longburn has become available that creates an opportunity for Council to expedite construction and deliver part of its walking and cycling package much sooner than anticipated. Funding is available within approved budgets as other capital improvements planned for walking and cycling are not advancing as quickly as hoped due to land negotiations, consultation requirements and consenting issues.

10.2. It should be noted that this project will only proceed if Council and NZTA approve funding. Horizons will also need to approve the project’s inclusion as a variation to the Regional Land Transport Programme.

11. DISCUSSION OF ALL OPTION(S) – ANY OTHER ISSUES

11.1. Bridge construction across the Mangaone Stream will require resource consent. Indications at this stage are that investigation, design, consent and construction can be completed in the time available. There is however some risk that this component of the project could face some delay.

11.2. Council has a programme for completion of cycle lanes along Pioneer Highway and Main Street from the Botanical Road intersection. This project currently has lower priority within Council’s Minor Improvements Programme 279. Priority for completion of the cycle lanes will be reviewed if this project proceeds. It may be possible to deliver the cycles lanes as part of Programme 634 if NZTA agrees.

12. CONCLUSION AND RECOMMENDED OPTION(S)

12.1. By approving the construction of a shared path to Longburn the Council will be providing good quality local infrastructure and a public service in the most cost effective way for households and businesses. This is because the project will attract co-investment by the NZTA for a path that would not otherwise be built for many years. While it is accepted that this project has previously been identified as a lower priority than some other walking and cycling infrastructure projects it is one that has obvious benefits and few impediments. Its construction will address some of the safety issues along a busy arterial road corridor.

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13. NEXT ACTION(S)

13.1. Assuming Horizons Regional Council approves a variation to the Regional Land Transport Programme a funding application will be lodged with NZTA.

13.2. An appropriate bridge engineering consultant will be engaged to complete the bridge engineering phase of the shared path project. Path design will be completed subject to appropriate safety audit to ensure the safest possible facility is provided.

David Lane Road Planning Team Leader

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