Report pursuant to s 42A Resource Management Act 1991
In the matter of: A Notice of Requirement to construct, operate, use, maintain and improve approximately 11.5km of new State Highway connection between Ashhurst and Woodville
And: A hearing by Manawatū District Council, Palmerston North City Council and Tararua District Council pursuant to s102
Requiring Authority: New Zealand Transport Agency
Hearing date: 25 March 2019
S42A Technical Evidence: Tourism and Recreation
By: Jeff Baker
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Executive Summary
The NZTA Project proposes a new road, known as the Manawatū-Tararua Highway, is constructed to replace the former Gorge Road which was closed indefinitely following a landside in April 2017. This evidence provides an assessment of the recreation and tourism aspects of the NOR proposal and the Te Apiti area it is to be located in.
The Te Apiti area is a place of regional and national significance with its unique geological, cultural, environmental and recreational features centred around the Manawatū Gorge, and the Manawatū and Pohaninga Rivers. It is a land of opportunity and a highly valued recreation resource by visitors who access these areas in numbers totalling tens of thousands each year.
The Project does not include any direct recreation or tourism elements in its design and it appears that planning has been almost exclusively focused on construction of the road. To this end, the construction of the new road will benefit recreation and tourism in the sense that it will make it easier for visitors to access both sides of the Manawatū Gorge.
With respect to other users of the road, such as walkers, cyclists or horse riders, there are no dedicated facilities to provide safe passage across the Ranges despite strong direction from all levels of Government to do so.
The Project does not provide any assessment of options to achieve a safe walking and cycling facility, and instead relies singularly on a narrow shoulder to provide access to cyclists.
NZTA’s approach could result in a significant, once in a lifetime, missed opportunity to provide a safe and separated shared path to the Tararua region from the Manawatū via the network that already exists and/or is planned to be extended. The Project also provides an opportunity to maximise the recreation and tourism benefits that could arise on top of the popularity of the area as it presently stands.
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Contents
1 Introduction ...... 7
1.1 Expert Witnesses – Code Of Conduct ...... 8
2 Background and Scope of Evidence ...... 8
2.1 Background ...... 8
2.2 Scope of evidence ...... 9
2.3 Reports and material considered ...... 9
2.4 Site visit ...... 11
2.5 Statutory Context ...... 11
3 Existing Environment ...... 19
3.1 Manawatū Gorge ...... 20
3.2 The Designated Corridor ...... 22
3.3 The broader Te Apiti Area ...... 24
3.4 Tourism Context ...... 29
4 The Project ...... 41
4.1 Operational Phase Effects...... 52
4.2 Construction Phase Effects ...... 53
5 Consideration of alternative sites, routes or methods ...... 53
6 Review of submissions ...... 58
7 Draft Requirement conditions ...... 65
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Figures
Table 1 – Relevant Statutory Documents and relationship to Project.
Table 2 – Non-Statutory Documents and relationship to Project.
Map 1 – Te Apiti Area.
Photo 1 – Manawatū Gorge and Environs by David Lupton.
Photo 2 – Showing northern end of Manawatū Gorge.
Table 2 – Existing Recreation and Tourism Activities in Te Apiti Area.
Table 3 – Manawatū Gorge Track Counts Source: DOC.
Photo 3 – Showing Meridian Wind Farm viewing turbine – Source, PNCC Aerial photo 2015.
Photo 4 – Ferry Reserve 29 January 2019. Photo by Jeff Baker.
Map 2 – Map showing NZCT Heartland Rides routes in the Region.
Map 3 – Map showing alternative alignment opportunity.
Photo 5 – From Wharite Peak looking south along the Ranges, July 2018.
Photo 6 – Identifies Shannon Farm.
Photo 7 – Ferry Reserve, eastern end of Manawatū Gorge.
Table 4 – References to Road Shoulder Width.
Photo 7 – ‘Pahiatua Track’ April 2015. Source: Google Streetview.
Photo 8 – Ashhurst Bridge SH3 April 2015 Source: Google Streetview.
Photo 9 – Example 1 – Thermal Explorer highway SH5 south of Rotorua April 2015 Source: Google Streetview.
Photo 10 – Example 2 – Thermal Explorer highway SH5 south of Rotorua April 2015 Source: Google Streetview.
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Photo 11 – Example 2 – Shared Path on Kapiti Expressway December 2017 Source: Google Streetview.
Photo 12 – Saddle Road April 2015 Source: Google Streetview.
Photo 13 – Coastal Section of Rimutaka Cycle Trail.
Photo 14 – Napier Road SH3 (Closed section through Manawatū Gorge) April 2015 Source: Google Streetview.
Photo 15 – Barneys Point connection using closed section of SH3.
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1 Introduction
1. My full name is Jeffrey Alan Baker. I hold the qualification of Bachelor of Resource and Environmental Planning (Massey University 1995-1998). I am an Associate Member of the New Zealand Planning Institute and a Member of the New Zealand Recreation Association.
2. I am a Senior Planner in the Strategy & Planning Unit of Palmerston North City Council. I have 20 years of experience in consents planning (12 years) in New Zealand and England and recreation planning (8 years).
3. I have prepared this evidence on behalf of Palmerston North City Council (“PNCC”), Manawatū District Council (“MDC”) and Tararua District Council (“TDC”) (the “Territorial Authorities”) in relation to the Notices of Requirement (“NOR”) for Te Ahu a Turanga – Manawatū Tararua Highway Project (the “Project”) lodged by the New Zealand Transport Agency (“NZTA”). I understand that my evidence will accompany the planning report being prepared by the Territorial Authorities under s 42A of the Resource Management Act 1991 (“RMA”).
4. During my career I have specialised in planning and project management of major projects as a Council reporting officer. Key projects include the Arsenal Football Stadium redevelopment in London and, in Palmerston North, the Motorimu Wind Farm and Turitea Wind Farm proposals. I appeared for PNCC through all stages, including the Environment Court for Motorimu Wind Farm, and the Board of Inquiry process for the Turitea Wind Farm.
5. In 2010 I moved into specialist recreation planning work with PNCC and have led a variety of park development projects and the acquisition, upgrade and expansion of PNCC’s shared path and walkway network. A key highlight is the completion of Stage 1 of the shared path connection along the true right bank of the Manawatū River between Ashhurst and the City.
6. Since 2016 I have focussed on the preparation on masterplans for the protection and enhancement of the City’s premiere park, the Victoria Esplanade (approved December 2018), and Te Apiti (the Manawatū Gorge) where I am representing the Manawatū Gorge Governance Group. I also prepared PNCC’s ‘Manawatū River Action Plan’ and have
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been involved in the roll out of some of the projects associated with the ‘Manawatū River Framework’.
1.1 Expert Witnesses – Code Of Conduct
7. I confirm that I have read the Code of Conduct for Expert Witnesses in the Environment Court Practice Note 2014 and that I agree to comply with it. I confirm that I have considered all the material facts that I am aware of that might alter or detract from the opinions that I express, and that except where I state I am relying on information provided by another party, the content of this evidence is within my area of expertise.
8. I note that my direct manager at PNCC is the City Planning Manager David Murphy, who has been involved in the preparation and discussions with NZTA concerning a submission by PNCC. Having turned my mind to the obligations within the Code, I am confident that I have managed my role as a reporting officer on the designation appropriately, and accordingly separated my reporting role from my day-to-day obligations. Specifically, I confirm that my opinions are my own in my role as an expert witness and I have not had my evidence reviewed by any persons involved in the Council’s separate submission. Indeed, nobody at all at PNCC has reviewed this statement.
2 Background and Scope of Evidence
2.1 Background
9. The Project is defined as the construction, operation, use, maintenance and improvement of approximately 11.5km of new State highway connection between Ashhurst and Woodville under the RMA. This proposed new section of State Highway will replace the indefinitely closed State Highway 3 (SH3) route through the Manawatū Gorge. A detailed description of the Project is set out in Part C of the AEE submitted by NZTA and a summary description is set out in the s 42A Planning Assessment.
10. The Project is located in what is known as the Te Apiti area which straddles the southern extent of the Ruahine Ranges and the northern extent of the Tararua Ranges, intersected or separated by the Manawatū River. The Te Apiti area is a significant recreation and tourism feature for the Region and specifically so for the Tararua, Manawatū, and Palmerston North districts. It has nationally recognised walkways in the
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scenic reserve, easy access to the Manawatū and Pohangina Rivers, and abundant natural and built features that provide a unique setting.
11. The area is recognised as a significant opportunity for recreation and tourism expansion in the policy setting for the region. A masterplan for the Te Apiti area, (building on early planning from at least 2006), is currently being prepared and is expected to drive the enhancement of its profile on the national stage. The document has a focus on protection and enhancement of the Te Apiti area.
12. It would be expected that new development within the Te Apiti Area would be examined to the extent that the proposal sits comfortably with the emergent vision and objectives for the Te Apiti Area and relevant policy drivers, in particular those with a focus on enhancing the recreational and tourism opportunity.
2.2 Scope of evidence
13. I have been asked to assess the NOR from the perspective of recreational and tourism planning. My assessment considers the following matters:
a) The statutory context including relevant policy;
b) The existing environment in terms of recreation and tourism;
c) The information made available in NZTA’s NOR;
d) The Impacts of the Application on recreation and tourism; and
e) Submissions received.
14. My evidence should be read in conjunction with expert evidence of other experts that have contributed. The evidence of Harriet Fraser (Transport), Philip Percy (Planning), and Kirsty Austin (Social) are relevant to the consideration of matters that I address.
2.3 Reports and material considered
15. As part of preparing this statement of evidence, I have read and re-familiarised myself with the following websites, reports and documents:
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a) Ngā Haerenga Cycle Trail Evaluation Report 2016 - Prepared for Ministry for Business and Innovation (‘MBIE’);
b) Provincial Growth Fund - Express Application ‘Transforming Te Apiti into a major tourism destination’ 2018 – Prepared for Central Economic Development Agency (‘CEDA’);
c) TRC Manawatū Gorge Mountain Bike Trails Business Case 2016;
d) Manawatū-Whanganui Economic Development Action Plan 2016 – Prepared for Accelerate 25;
e) Manawatū-Whanganui Growth Study 2015 – Prepared by MBIE, Ministry of Primary Industries;
f) Manawatū Gorge Biodiversity Group ‘Into the Gorge 2008’ document – Prepared by Horizons Regional Council;
g) ‘The Geological Origin of the Manawatū Gorge’, article within Plains Science 3, Royal Society of New Zealand, 2018;
h) The following websites were visited for reference material - Te Apiti, Sport New Zealand, Sport Manawatū, Ministry of Business, Innovation and Employment, Ministry of Health, Ministry of Transport, New Zealand Cycle Trail, Te Araroa Trail, Tour Aotearoa, Walking Access, ManawatūNZ, Department of Conservation; Tourism New Zealand; Tararua, Palmerston North & Manawatū Council websites;
i) Austroads ‘Guide to Road Design - Part 6A Paths for Walking and Cycling 2017’;
j) NZTA Specification for Design, Construction and Maintenance of Cycling and Shared Path Facilities September 2018;
k) MBIE New Zealand Cycle Trail Design Guide February 2015; and
l) Department of Conservation Track Construction and Maintenance Guidelines July 2008.
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2.4 Site visit
16. I undertook a site visit on 23 November 2018 with the s 42A Reporting Team and NZTA representatives. I am very familiar with the surrounding environment as a resident of Palmerston North and as a regular user of recreation facilities in the Te Apiti area.
2.5 Statutory Context
17. The relevant statutory documents and provisions relevant to the evaluation of the NOR have been set out in the s 42A Planning Assessment. For the purposes of preparing this evidence in the following table I briefly identify the statutory provisions and direction that are relevant to the recreation and tourism context:
Local, Regional or Key Policies or Actions Central Government Relationship to NZTA Project (where relevant to recreation/tourism) Document Palmerston North A suite of strategies and plans set out how the 5 The Te Apiti area forms part of the Long-Term Plan goals for the City are to be met. Recreation Manawatū River gateway to the City. (208-2018) aspects relate to Goal 5 ‘A Creative and Exciting PNCC is already contributing to the Te City’. Apiti area through multi-agency planning, The Infrastructure Strategy includes a Spatial Plan (preparation of the Te Apiti Masterplan), and one of the three big ‘City Shaping’ moves is development ($500k grant money over 5 identified as the ‘Manawatū River Network’. years to give effect to the Masterplan) and maintenance (around $40k per annum for Gorge Biodiversity enhancement). Palmerston North Refer to Appendix 1 ‘Relevant Statutory Recreation opportunities (particularly District Plan Provisions’ (pages 25 -32) in NZTA application. walk/cycle promotion) provided for and Key References relevant to recreation: encouraged in land use planning. City View Objectives (3, 9, 10, 17, 21, 24) Rural Zone Objective 4.2 Recreation Section Objective 1 and policy 1.1 Transportation Section Policy 1.6, 2.2, 2.4, Objective 2. Manawatū District For the Rural Area it identifies …’ a beautiful There are no specific programmes for the Council Long Term sustainable rural landscape that offers Te Apiti area. Plan 2018-2028 outstanding recreational opportunities’. Manawatū District Refer to Appendix 1 ‘Relevant Statutory Recreation opportunities (particularly Plan Provisions’ (pages 32-40) in NZTA application. walk/cycle promotion) provided for and Key References relevant to recreation: encouraged in land use planning.
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Local, Regional or Key Policies or Actions Central Government Relationship to NZTA Project (where relevant to recreation/tourism) Document Transport Section Policy 1.1d Policy 3.3 Rural Character and Amenities Section Objective LU8 Esplanade Management Section Objective EM 1-3, EM6 Policy d & f.
Tararua District Of the 5 key Council outcomes ‘Great Lifestyle’ It is noted in the plan that TDC Council Long Term identifies recreation facilities as part of that. contributes to the nearby Manawatū Plan 2018-2028 Gorge Biodiversity project. Tourism benefits of low-cost camping grounds is noted along with benefits of attracting visitors by having a range of recreation activities. Tararua District Plan Refer to Appendix 1 ‘Relevant Statutory Recreation opportunities (particularly Provisions’ (pages 40 -46) in NZTA application. walk/cycle promotion) provided for and Key References relevant to recreation: encouraged in land use planning. Urban Land Management Objective 2.2.2.2c Amenity and Environmental Quality Policy 2.6.4.2a Objective 2.6.6.1 Policy 2.6.6.2a, b & e Infrastructure Policy 2.8.3.2g. Horizons Regional Multiple references throughout to tourism and NZTA provides direct funding for some of Land Transport Plan recreation elements. Two of the five Strategic the actions (for example proposed 2018 Priorities directly relate: 3 ‘An appropriate walk/cycle facility at Ashhurst Bridge over network of tourism routes’ and 4 ‘An integrated the Manawatū River signalled to start in walking and cycling network’. 2022). Department of Recreation Objective 3.3.1.1 Identifies the national level status of the Conservation – ‘The outdoor experiences of visitors are enriched, Manawatū Gorge Walk. Wellington with an emphasis on: a) supporting the growth Conservation and development of Icon and Gateway Management destinations’. Strategy 2019 Whereby The Manawatū Gorge Walk is identified as a ‘Gateway Destination’ at (Appendix 10 page 94). Also note Manawatū Gorge identified at Appendix
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Local, Regional or Key Policies or Actions Central Government Relationship to NZTA Project (where relevant to recreation/tourism) Document 8 (page 89) as nationally significant ‘Geological feature, landform and landscape in the Wellington Region’ Government Policy Tourism investment supported in the ‘result’ The construction of the new road will Statement on Land sought for ‘Increased mode shift from private enable easier access for recreation and Transport 2018 vehicle trips to walking, cycling and public tourism opportunities in the Te Apiti area. transport’ where in paragraph 92 page 17 specific Also note there is a specific opportunity to mention is made of the ‘continued development of significantly improve the walk/cycle the New Zealand Cycle Network … and the connection on NZCT ‘Tararua Traverse’ connecting Heartland Rides’. section of the route.
Table 1 –Relevant Statutory Documents and relationship to Project
18. I also record that there are a number of non-statutory documents that are relevant, with varying degrees, to the Project. This includes various regional and national strategies and plans which together at least provide context. In some cases these can be taken to inform the strategic direction and development of the area. The documents are identified below with my brief view as to the relevance of each:
Local, or Key Policies or Actions Relationship to NZTA Regional Central Vision (where relevant to Project Document recreation/tourism) Manawatū River ‘Palmerston North’s Great Key Directions: Gateway River Framework 2016 Linear Park’ More things to do Build the network first. Environment and more people will spend Create a distinctive ‘Objective to enhance time here’ sense of place. the area as the hub of Enhance connection to the Activate the river edge. outdoor pursuits’. river, create as a key Express Rangitane and Identifies ‘immediate’ destination, Express Rangitane Maori culture. support for culture construction of walk/cycle facility at Ashhurst Bridge
Manawatū River ‘Create a city that has great This is an action plan Identifies need for Plan 2018 places for all people, to deliver Council’s reserve management particularly families’. strategic themes planning for Te Apiti.
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Local, or Key Policies or Actions Relationship to NZTA Regional Central Vision (where relevant to Project Document recreation/tourism) through: Smart City Identifies Te Apiti as Practices gateway to Manawatū Sustainable Practices River Park and ‘leading Iwi Partnerships area for the Strategic Partnerships. appreciation of biodiversity and provision of an outstanding recreation and cultural experience’. Te Apiti Protect and enhance the Te Draft Framework For long term Masterplan Apiti area recognising multiple position around 5 key protection and (Draft 2019) values and stakeholders. areas: enhancement of the Environment – Protect area through the (Note - exact text still under and enhance Manawatū Gorge development). Culture – Recognise Governance Group. and celebrate tikanga This comprises senior and kōrero leadership from Education – Build on Palmerston North, existing work and Manawatū and Tararua potential to have Councils, Horizons former Gorge Road as Regional Council, Iwi, outdoor museum Department of Recreation – Conservation, and land Complementary owner (Tom Shannon). activities encouraged Also has guidance from in highly accessible NZTA and Manawatū location Mountain Bike Club. Leadership – Clear This replaces the mandate for action. Manawatū Gorge Biodiversity Group (Note - exact text still (2006-2016) whose under development). work was focussed on operational matters. Palmerston North ‘A Creative and Exciting City’ Priority 1 - Create a city The new road will
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Local, or Key Policies or Actions Relationship to NZTA Regional Central Vision (where relevant to Project Document recreation/tourism) Creative & that has great places reinforce the identity of Liveable Strategy for all people, and the Te Apiti area as a 2018 particularly families. gateway to the region Priority 4 - Develop a and a destination for national and recreation and international biodiversity. reputation as an exciting city with plenty to do at night and on weekends. Priority 5 – Have the most active community in New Zealand.
Palmerston North Create a city that has great This is an action plan The new road will Active places for all people, to deliver Council’s provide easy access to Community Plan particularly families, and have strategic themes existing recreational 2018 the most active community in through: facilities and if a safe New Zealand. Providing excellent walk/cycle facility is sports and recreation included in the options. proposal then a huge Provide experiences extension will be found in other cities added to the network. but without the hassle and cost. Promote city strengths in sport development capability and participation.
Palmerston North To have a safe, efficient and Provide for extension of The new road needs to Active and Public effective active and public cycling and pedestrian have a safe walk/cycle Transport Plan transport system and the most facilities into rural facility to connect to active community in New villages. Ashhurst (and Zealand. Incorporate context- Woodville noting this is
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Local, or Key Policies or Actions Relationship to NZTA Regional Central Vision (where relevant to Project Document recreation/tourism) sensitive design into all in the TDC boundary). infrastructure development. Tararua District Provide good amenities and Working together to The Manawatū Gorge Council recreational assets so that improve recreation and Ferry Reserve both Recreation and people can have a great services and facilities. identified. Strategy Reserve Strategy lifestyle in our rural townships Efficient sport and has a key action to 2014 and rural areas, and give recreation facilities and improve walking residents a sense of pride and assets. An attractive, access to recreation belonging. sustainable and well areas. managed reserve network for locals and visitors to recreate in. Manawatū Identify significant 8 opportunities Explains focus on Regional Growth opportunities to grow and identified in document. tourism in the region Study 2015 diversity the economy and to First one relates to: and identifies expand investment, Tourism and visitor Manawatū Gorge. employment and incomes in services. Document the region. later references Manawatū Gorge mountain biking and walking tracks as an opportunity to promote and grow visitors. Accelerate25 Economic Action Plan: Similar position above This sends strong (Regional & City Increasing job opportunities the plan identifies signal that the Council, Iwi, and and quality of life in the ‘Tourism and Visitor Manawatū Gorge is Business Manawatū-Whanganui region Services’ as a key viewed as a tourism Leadership by connecting people, opportunity. A opportunity. Team) business, iwi and our ‘Manawatū Gorge Cycle environment. For a stronger Trail’ is identified as an and more prosperous immediate priority for a Manawatū-Whanganui by business case in 2025 – for our people, for our 2016/17 (report mokopuna and for New completed in 2016 by
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Local, or Key Policies or Actions Relationship to NZTA Regional Central Vision (where relevant to Project Document recreation/tourism) Zealand. TRC Consultants) and construction in 2017- 19 (no works have taken place – now to be directed by Te Apiti Masterplan). Manawatū River ‘If the water is healthy, the Goal 2 is related to Provides recreation Leaders’ Accord land and the people are recreation where it sets context to stretch of 2010 nourished’. out ‘Waterways in the river in the Te Apiti (Leaders from Manawatū Catchments area. Local and are safe, accessible, Regional swimmable, and Councils, iwi, provide good Massey recreation and food University, resources’. farming, industry, and environmental and recreation advocacy organisations)
Aotearoa New Enrich New Zealand through Three economic goals - Huge investment Zealand Tourism sustainable tourism growth. Productive Growth, planned in area which Strategy (Draft Sustainable Growth is popular locally but 2019) and Inclusive Growth. relatively unknown on Most relevant larger scales. Road ‘outcome’ is ‘Regions and any walk/cycle and communities facility will make easy benefit from tourism’ access to and around (page 7). area.
Table 2 –Non-Statutory Documents and relationship to Project
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19. I note the huge investment in a new road will provide opportunities for furthering the growth of recreation and tourism in the Te Apiti area. Travelling across the Ranges will be much easier by car than the current arrangement using the windy and steep alternative routes (Saddle Road and the Pahiatua Track). Further, the Proposal includes passive recreation elements such as future ‘pull-over’ areas on the road and large areas of native planting that may be developed parallel to the road alignment both within the designation corridor and on neighbouring land (depending on landowner agreements).
20. It is important that the proposal does not preclude further enhancement of the Te Apiti area from a recreation and tourism perspective. I consider that the new road is likely to facilitate greater access and usage of the existing facilities and any future facilities on the south side of the Gorge, for example the Gorge walk. I am not convinced that is the case in respect of the opportunities on the northern side of the Gorge which would be accessed by the new bridge.
21. The Proposal does not preclude further enhancement of the Te Apiti area from a recreational and tourism perspective. Existing recreational and tourism features will receive some benefit. For example, access to the Gorge walk will be maintained through the construction phase and the new road may provide for greater usage of this resource.
22. My principal criticism of the Project (on which I will elaborate), is that it does not include any specific provision for walking and cycling facilities along the new road or otherwise within the designated corridor and it does not appear to have been informed by consideration of the recreational opportunities identified in the area. It appears consideration of these facilities has not informed, and is certainly not a feature, in any preparatory design decisions on the face of the proposal. This absence of consideration, and indeed the absence of a proposed dedicated walking and cycling facility are significant omissions, particularly given:
a) The clear thrust of national, regional, and local policy direction with regard to the promotion of walking and cycling, including as part of the development of new roading projects;
b) The missed opportunity to enhance and promote the potential of the Te Apiti area as a regional recreational hub; and
c) The views of the community, as expressed in submissions on the proposal.
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3 Existing Environment
23. I will now describe the recreation and tourism context of the NOR site as part of the wider Te Apiti area aided by a map and a table for ease of reference. I will then describe the opportunities that exist in relation to the draft Te Apiti Masterplan (which I have been involved in formulating) and through analysis of the submissions to the NOR application.
24. I note that the ‘Te Apiti Area’ as I describe is not formally mapped, but it generally describes the area extending around the Manawatū Gorge in which a variety of recreational and tourism activities take place (consistent with the approach I have used with the draft Te Apiti Masterplan), including:
a) The ranges to the North and South through the DOC estate;
b) The greater part of Ashhurst Domain at the western end; and
c) Ferry Reserve at the eastern end.
25. The map below is a useful guide to show the area:
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Manawatū Gorge Scenic Reserve
Ashhurst Ferry Domain Reserve
Map 1 –Te Apiti Area
3.1 Manawatū Gorge
26. The Manawatū Gorge is the foremost attraction in the area. It is geographically unique area with the only river in New Zealand to flow westwards through a main axial divide. The geological forces involved in creating this feature acted comparatively quickly – scientists estimate just 300,000 years is all it took for the 300m deep cutting to be made between the Ranges (ref: ‘The Geological Origin of the Manawatū Gorge’, Plains Science). The 9km long Gorge separates the Ranges in two. To the north is the beginning of the Ruahine Ranges. To the south is the end of the Tararua Ranges. It is identified as an Outstanding Natural Feature in the Horizons One Plan.
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27. In Rangitane tradition, kōrero explains the Gorge was created by massive force of a Totara tree, the restless embodiment of the mighty spirit Okatia. On his journey from the Puketoi Ranges in the east coast to the Tasman sea on the West Coast he smashes his way through the Ranges, thereby separating the land mass and leaving the mighty Manawatū River in its wake.
28. The 962ha Scenic Reserve straddles the Manawatū River and is managed by the Department of Conservation. The estate forms part of the tribal lands or rōhe of Rangitane people until it was sold to the Crown. New Zealand Gazette records show that it was reserved for ‘Growth and Timber Preservation’ in the late 1800s. The first road (that later became State Highway 3) was opened on the southern side of the Gorge in about 1872 thereby linking the eastern and western sides of the Ranges. (The road was closed indefinitely in July 2017 following the massive slip in April 2017). The Palmerston North – Gisborne rail line on the northern side was opened in 1891 to serve the same connection purpose and still operates today.
29. The northern side of the reserve is not accessible to the public and features very steep cliffs and rock slopes. Views of wind turbines can be clearly observed soaring above the rocky bush clad slopes. The southern side of the Gorge is publicly accessible via an 11km track that runs in an east/west direction from one end to the other. There are also shorter loop tracks at either end. The 4.1km ‘Tawa Loop’ was a very popular addition to the reserve in 2012 at the western end, about 20 minutes’ drive from Palmerston North. A large carpark and modern toilets are provided here for track users.
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Manawatū Gorge
Photo 1 – Manawatū Gorge and Environs by David Lupton
3.2 The Designated Corridor
30. The majority of the designation corridor is on private land which is used for commercial activities such as farming and energy generation (the Te Apiti Wind Farm), and for agricultural research and other non-public uses.
31. On private land there is only one tourism activity (free entry) identified, which is restricted public access provided by Meridian Energy Ltd to view a wind turbine within the Te Apiti Wind Farm. There is easy vehicle access from Saddle Road up to a large parking and viewing area at the turbine. A large sign provides information about the wind farm. The elevated site also offers fantastic views of the surrounding region and is a very popular location to visit by tourists and locals. It is ranked #1 activity to do in the Woodville area on the Trip Advisor website. (An approach to Meridian was made on the number of annual visitors to the turbine however they do not collect this data).
32. In terms of the other land forming part of the designation corridor it is noted that recreational fishing, canoeing/kayaking and some customary activities such as food gathering, or mahinga kai, takes place along the Manawatū River. It can be expected
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this will occur in the corridor (areas 5b, 5c, and 5d shown on NZTA Map reference LR 01 Rev.B).
33. For the road reserve parcel involved at the eastern end of the Manawatū Gorge (area 5a shown on NZTA Map reference LR 01 Rev.B) some limited walking and cycling occurs along both shoulders of SH3 (Napier Road) where it leads from Ashhurst to the large carpark that serves the Gorge walking tracks. It is noted that the narrow river side (northern) shoulder of the (now closed) portion of SH3 is utilised by walkers. This extends from the carpark to the beginning of the walking tracks as shown in the aerial photo below:
Gorge Carpark Gorge Track
Photo 2 - Showing northern end of Manawatū Gorge
34. At the eastern end of the corridor, where the new roundabout is proposed at the intersection with SH3 west of Woodville, there is limited walking and cycling that occurs along both shoulders of SH3, noting this is a 100km/hr speed limit area.
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3.3 The broader Te Apiti Area
35. The resource map at Appendix 1 identifies key recreation and tourism features within the Te Apiti area for ease of reference. The table below identifies the range of recreation and tourism activities that occur within the Te Apiti area. Where actual usage numbers are not available I have presented a brief anecdotal description of usage based on my knowledge of the area and experience:
# Facility Feature or Activities Usage Information
Parks Native bush, bush tracks. 76,611 counts during 2017. Manawatū Gorge Scenic Very popular with travellers as Reserve; (DOC) Open Space, wetland, unrestricted Freedom Camping 1 Ferry Reserve (TDC) amenity planting. venue.
Sportsfields, open space, Very popular park. No counts Ashhurst Domain (PNCC) playground, native bush available. Gorge walking tracks (Full 76,611 counts during 2017. traverse, Tawa Loop Track, 51,523 10 months to October Upper Gorge Bridge track, 2018. Walking Gorge Loop Track) 2
Ferry Reserve Boardwalk No counts available. Ashhurst Domain bush walks No counts available.
Saddle Road This was a popular route for road Ballance Valley Road cyclists until April 2017 when Gorge 3 Road Cycling traffic was diverted onto Saddle Road.
Te Ara o Mahurangi Downhill This is the only MTB option on Track (Hall Block Road) eastern side of Gorge which has 4 Mountain Biking made it reasonably popular. No counts are available. Gorge Track, Tawa Loop An unknown proportion of the usage counts associated with using 5 Running the Gorge Tracks will be runners. It is very popular with sports groups
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for training runs, including harrier groups from time to time. Informally in Ashhurst area. Arthur Yeo (Submitter 40) notes he has taken groups of 35-40 horses up to the ‘Saddle’ (landform of 6 Horse Riding Ruahine Ranges). ‘Timeless Horse Treks’ Number of clients TBC (not ava business on eastern side of liable at time of finalising evidence). Ranges Manawatū River (mainly at Both popular sites during summer 7 Swimming Ferry Reserve beach), months for informal use, not Club Pohangina River related. Manawatū Gorge, Ferry Approx. 500 people annually Reserve. involved in community planting 8 Through organised events by events (made up of iwi, community Community Planting DOC and Horizons Regional groups, Ashhurst & Woodville Council. Schools). Source: Neil Mickelson, Horizons Regional Council. Manawatū Gorge Carpark Unknown. Sight-Seeing Saddle Road (high points Unknown. 9 (scenic drive in car or ride including Meridian Wind on motorbike) Farm and public viewing turbine). At Manawatū River near Used informally in summer months 10 Four Wheel Drive Ashhurst Bridge when river level is low. Along Manawatū River and Fishing is popular at Ferry Reserve. Pohangina River This is typically informal use by 11 Fishing individuals and groups (not Club related as far as I am aware). Along Manawatū River and Watersports are popular at Ferry Watersports (including Pohangina River (launching Reserve. Informal use by 12 Canoeing, Kayaking, often upstream from Ferry individuals and groups not also not Speed Boating, Rafting) Reserve) Club related. Cultural practices Manawatū River Rangitane iwi regularly involved. (Food gathering, Dawn Pohangina River Exact numbers of attendees are 13 Ceremonies, Structures – Manawatū Gorge unknown however groups of 5-10 Whatonga, Tu Te Manawa Ferry Reserve iwi will be involved in blessing Whare, entrance ceremonies.
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features) Events North Range Trio (Running About 400 competitors in 2018. race – Last Saturday of Source: Gerry LeRoux, Organiser. August)
Property Brokers ‘Race to the 400 people – 40 teams in 2018. Brewery’ (February) Source: Judy Swanney, Organiser. 350 competitors in February 2009 Source: Stuff website article. 14
Passport to Play (Year-round) 236 ‘Passports’ completed during summer 2017/18 as part of competition for families.
Toyota Kiwi Guardians (Year- Unknown. Round)
Accommodation Approx. 50 nights occupation during Gorge Hut, Shannon 2018. Source: Tom Shannon. Property Freedom camping at 501 campers (165 self-contained + Ferry Reserve 336 non self-contained) during January 2019 (with counts done before 7am each morning). 16 Compares to 593 (192 + 401 respectively) for same period in 2017. Source: Gerard Murray, Woodville Domain Board member.
Pay camping at Ashhurst 4519 bed nights 2018 calendar Domain year. Source: PNCC. Steam Train Journey On PNGL section through Expecting 900 tickets to be sold for north side of Manawatū 13/14 April 2019 event based on Four operators: Gorge. previous popularity of other trips 17 Feilding & District Steam through the Gorge. Source: Rod Rail Society Inc Bertram, Chairman of FDSRS. Mainline Steam Steam Incorporated
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Pahiatua Railcar Society Through ‘Take me to the Unknown – I have been advised 18 Tour Guide World website’ on-demand that this is occasionally during facility only summer months.
Table 2 – Existing Recreation and Tourism Activities in Te Apiti Area
36. The clear majority of activity is personal recreation, primarily walking, undertaken within the DOC Scenic Reserve.
37. Table 3 below illustrates the popularity of walking tracks in the Manawatū Gorge as they are only 20 minutes’ drive from Palmerston North (less than 5 from Ashhurst) and provide an immediate native bush immersion experience a few minutes’ walk from the carpark. There are a variety of tracks to do with the most popular being the 4.1km ‘Tawa Loop’ track. The track is in good condition and while steep in parts (its climbs from about 110asml to 250asml) it is very accessible to a broad audience as walkers can complete the loop with only a moderate fitness level.
38. I note the decrease between 2017 and 2018, which I believe is attributable to the Gorge Road closure. The tracks are no longer part of a through route and there is likely to be some public confusion as to whether the route is still open. Further, for walker’s intent on walking one way between the Manawatū Gorge carpark and Ferry Reserve, the car trip over the Saddle Road is much less convenient.
Year Total Count Trend (For All Tracks) (Against previous year) 1 2012 29,888 Base year 2 2013 59,520 50% increase 3 2014 66,063 10% increase 4 2015 82,982 20% increase 5 2016 83,605 1% increase 6 2017 76,611 9% decrease 51,523 (10 months data 7 2018 N/A available)
Table 3 – Manawatū Gorge Track Counts Source: DOC.
39. Mountain biking at the Te Ara o Mahurangi downhill track on the eastern side accessed via Ballance Valley Road and Hall Block Road is also a popular activity since it was
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opened in late 2014. The track is popular because it provides easy access to people living on the eastern side of the ranges and is relatively easy to use by bikers with a Grade 3 rating (intermediate).
40. For water recreation, while there are no counts, swimming is very popular at the eastern end at the Ferry Reserve where the long bend of the river provides slow moving water with plenty of access points. In the past easy access was available underneath Ashhurst Bridge for swimming however this is presently closed as Horizons are undertaking significant erosion protection works here. Canoers/kayakers and boats use this section of the Manawatū River as well generally launching from Ferry Reserve.
41. The car plays an important role in access to the opportunities in the Te Apiti area. There are likely to be many journeys made for a ‘scenic drive’, particularly up to the Meridian Wind Farm and viewing turbine which is popular for out of town visitors. The car is also particularly important for access to the Manawatū Gorge carpark, or the Ferry Reserve at the eastern end as there is currently no safe separated walk/cycle linkages to these areas from Palmerston North/Ashhurst or Woodville respectively.
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Saddle Road
Viewing turbine
Photo 3 – Showing Meridian Wind Farm viewing turbine – Source, PNCC Aerial photo 2015
3.4 Tourism Context
42. There are two tourism activity businesses operating in the Te Apiti area. The first is ‘Timeless Horse Treks’ based on Ballance Valley Road on the eastern side of the Manawatū Gorge which offer short horse treks, day treks and overnight treks on private land bordering the Manawatū River. The owner/operator is Cameron Horne and there are no other employees. The second is organised tour guide services through the local representative of ‘Take me to the World’ where the guide will tailor a trip for visitors on an ‘on demand’ system. This is often part of a scenic drive that might also include a visit to Feilding as part of the trip.
43. As noted there are annual events that take place in the area which are targeted at key groups. For example, the ‘North Range Trio’ is a running race which utilises the Hall
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Block Road and South Range Road for experienced runners and walkers. The Property Brokers annual ‘Race to the Brewery’ is a popular team charity event which includes a running leg through the Manawatū Gorge Track and walking nearby up the Hall Block Road.
44. There are three accommodation options in the Te Apiti area:
a) Ashhurst Domain Camping Ground, (PNCC Park), 1461 Napier Road Ashhurst – users pay to use this ground and basic toilet, shower and BBQ facilities are provided;
b) ‘Manawatū Gorge Hut’, (Shannon Property) 1630 Napier Road, Ashhurst – users pay for access to this self-contained hut on private property; and
c) Ferry Reserve Camping Ground, (TDC Park), Napier Road, Woodville – it is free to ‘Freedom Camp’ in this area and facilities include toilets, a BBQ area and seating.
Popular for freedom camping
Photo 4 – Ferry Reserve 29 January 2019. Photo by Jeff Baker.
Opportunities to enhance recreational and tourism opportunities in Te Apiti
45. I consider there are key opportunities in the existing environment to promote or enhance recreation and tourism in the Te Apiti Area. I will first set out the context in terms of expected target audience and the objectives for the area, then address specific opportunities that have been identified in the draft Te Apiti Masterplan.
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46. The Palmerston North Creative and Liveable Strategy 2018 first priority is “to create a city that has great places for all people and particularly families”. The Te Apiti area is popular to users with different interests, fitness ability, and age. It is common to see families including babies in a backpack right through to elderly enjoying the Gorge walking tracks. The intention is to retain the breadth of appeal while broadening the user base.
47. The intention is to provide easy, safe and convenient access to the Te Apiti area utilising the network that currently exists and the planned improvements to make it more connected with Ashhurst, Woodville and Palmerston North. Accessibility will be improved by the planned completion of Stage 2 of the Manawatū River Pathway (2018- 28 Long Term Plan programme 1225 in 2019/20) which will connect this separated shared path from Maxwell’s Line (western edge of Palmerston North) right through to Ashhurst Bridge.
48. As the opportunities develop over time, I expect that the most prevalent recreational activity will continue to be walking, principally through the Manawatū Gorge Tracks (especially the ‘Tawa Loop’ track at the western end) given the exceptional nature of the Gorge walking track. I also consider that the proportion of recreational and enthusiast mountain biking usage will increase markedly with the addition of a stand-alone mountain bike track through the Gorge and also as a consequence of the huge popularity of electric assisted bikes broadening the user market by effectively ‘flattening’ hills. There were 22,000 E-bikes purchased in 2017 alone, compared to 10,000 sold in 2016 (Newshub, “E-bike sales more than doubled last year” 1 January 2018).
49. Among the many benefits that active recreational activities in the area provides, I note the recognised importance of the area in respect of the health benefits it provides for users. The social benefits associated with recreational/fitness activities are identified in the Palmerston North Active and Public Transport Plan, and a number of submissions (for example Sport Manawatū submission 300, Build the Path submission 316). The Te Apiti area provides that in very close proximity to urban centres.
50. I also expect the popularity of camping to increase, particularly at Ferry Reserve where camping is free.
51. There are also opportunities identified in respect of possible tourism activities within the area to cater to locals or regional, national or international visitors. For example, in the
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Fresh Info Tourism Initiative Report (September 2018) accompanying the CEDA Provincial Growth Fund Application lists these additional opportunities:
a) ‘Over-water Experiences’ such as Flying Foxes and Adrenaline Rides;
b) ‘Land-Based Experiences’ such as canopy walks, ziplining, ecotourism; and
c) Wedding/Function Centre, amphitheatre, Visitor/cultural Centre and commercial accommodation on neighbouring private property.
NZCT Heartland Rides
52. There are three New Zealand Cycle Trail (“NZCT”) ‘Heartland Rides’ in the Manawatū/Tararua Region known as the ‘Manawatū Cycleway’ the ‘Tararua Traverse’ and the ‘Wairarapa Valley Cycleway’ (southern part of Tararua region). These are rides identified on the NZCT website as cycle touring routes and are the second tier below the 22 ‘Great Rides’. The following map shows the location of these routes in the region:
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NZCT ‘Manawatū Cycleway’ Section
NZTA NOR Site
NZCT ‘Tararua Traverse’ Section
‘Closed Section on Pahiatua Track
Map 2 – Map showing NZCT Heartland Rides routes in the Region
53. There is a significant opportunity to re-route a section of both the ‘Manawatū Cycleway’ and Tararua Traverse’ routes to improve on-road cycle safety of the Manawatū/Tararua regions. As shown on the map, the route currently goes over the Pahiatua Track. As of 10 July 2018, the NZCT website reports this section as closed ‘because of dangerous traffic conditions’ associated with the 65% increase in traffic movements from the closure of the old Gorge Road. Cycle tourers are advised to get a shuttle for 18km from Palmerston North and re-join the route near Pahiatua. I note that the Pahiatua Track road is indeed not considered to be a safe road for cyclists irrespective of traffic volume.
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54. The specific opportunity that the NOR process could provide is for a logical, attractive and safer connection for the section of the Tararua Traverse Heartland Ride across the Ruahine Ranges and avoiding the Pahiatua Track. This opportunity is indicated as the orange route shown on the map below. The 30km route would begin at Ashhurst Bridge on the Manawatū River travel along a new facility across the Ranges through to the outskirts of Woodville. It then utilises the existing road network and connects into the existing alignment of the route at the Pahiatua Mangahao Bridge over Mangahao River. I note this alternative route, at about 30km, is about 20km shorter than the 50km existing section:
NZCT ‘Manawatū Cycleway’ Section
NZTA NOR Site
NZCT ‘Tararua Traverse’ Realignment NZCT ‘Tararua Opportunity ~30km Traverse’ ~50km section closed between Ashhurst Bridge and Pahiatua Mangahao Road Bridge
Map 3 – Map showing alternative alignment opportunity
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55. In February 2019 I was invited by NZTA to a meeting that included local submitters with an interest in the cycleway/walkway opportunities. Among the points discussed at the meeting, was a suggestion by NZTA that once the Project is complete that it may be possible to open the Saddle Road as part of the National Cycling Network, to reconnect the Heartland Ride across the ranges between Ashhurst and Woodville, and then following Ballance Valley Road to Pahiatua.
56. I do not consider that a Saddle Road option would be better than an option that utilised the safe facilities over the new Gorge road. The gradients on the Saddle Road are much steeper, up to 15 degrees in places; the road is narrow and is perceived to be unsafe for local riders, irrespective of vehicle traffic volumes. A safe option over the new road is a more logical and desirable option for inclusion in the Heartland Rides, to cater for a broader user group, and incorporating the benefits of connectivity with the existing facilities at the Gorge and the features of the new road, including the bridge.
57. I do not agree with Mr Dunlop’s assessment that either the Pahiatua Track or Saddle Road routes provide more convenient routes parallel to the Project (Transportation Assessment para 164). I defer to Ms Fraser in relation to safety.
58. I note that I have not discussed this opportunity with NZCT staff at MBIE, I simply identify this as a logical, potential opportunity to advance recreation and tourism which would be possible with suitable facilities.
Te Apiti Masterplan
59. As noted earlier in this evidence, a Masterplan for the Te Apiti area is in the final stages of preparation and is expected recommended for approval by the Manawatū Gorge Governance Group midway through 2019 once all public engagement has been completed. While it is still in draft, it is sufficiently advanced in terms of its identification of the intended development and management structure for the area. It will ultimately guide aspirations for the preservation and enhancement of the area.
60. I note the framework policies and high-level opportunities identified in the Masterplan have been generated over the last 18 months. Key stakeholders, such as Iwi, DOC, Horizons, Tararua and Manawatū Councils, have been involved in this process and draft versions of the Masterplan have had the continued support of the MGGG at their quarterly meetings.
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61. As noted earlier, the Masterplan includes a set of five principles which form the platform of the document and I set out very briefly the aspiration for each principle:
a) Environment – Protection and enhancement of the biodiversity, geographical and geological features is central to the thinking of Te Apiti;
b) Culture – Local iwi have a significant cultural history associated with the area and the intention is to respect that and ensure that cultural practices and kōrero enrich mana whenua;
c) Education – The intent is to build on existing programmes to run by DOC to provide further educate the public on the unique geological, social and cultural history of the area;
d) Recreation – The intent is to expand complementary activities that do not detract from environmental or cultural values given the close proximity to neighbouring towns of Ashhurst and Woodville and the City of Palmerston North; and
e) Leadership – A clear mandate for action is crucial to successful implementation of the Masterplan.
62. The map included at Appendix 2 identifies the high-level proposals for the Te Apiti Area. The four main recreation proposals described below are numbered in the top right-hand corner of each ‘break out circle’:
a) Mountain Bike Track – A new dedicated 11km facility of south side of Gorge which will connect in with Te Apiti Loop Track in (3);
b) Skyline Track – A new 45km track extending from Wharite Peak in the Ruahine Ranges to Arapuke Park in the Tararua Ranges. Connects in to Burtons Track as part of the Te Araroa Trail;
c) Te Apiti Loop Track – A proposed 24km track to provide a complete walking loop around both sides of the Manawatū Gorge with safe access to Ashhurst and Woodville and a future connection along the Manawatū River Pathway to the City. The loop utilises the 11km long existing Gorge Track on the southern side and is therefore 35km in length. For mountain bikers a loop can be achieved by using the MTB track (1);
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d) Barneys Point Loop Track – A new walking track utilizing a 3km closed section of the old Gorge Road, then a new connection to the Gorge Track, thereby providing an 8km loop at the eastern end of the Gorge.
Manawatū Gorge
Photo 5 – From Wharite Peak looking south along the Ranges, July 2018
Shannon Farm (Western end of Gorge)
63. The Te Apiti Masterplan also identifies tourism and accommodation areas at either end of the Gorge to complement existing facilities. At the western end, of note are the large holdings of the Shannon Family on both sides of SH3. The 22ha lower block has long been signalled by the Shannon’s as a possible option for gathering space and a possible tourism/information centre. On the 63ha upper block the Shannon’s have an interest in developing a number of eco-cabins in addition to the existing ‘Gorge Hut’ which has been available for casual booking through the Air BnB website.
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Scenic Reserve Walking Tracks
Lower Block
SH3
Upper Block
‘Gorge Hut’
Photo 6 – Identfies Shannon Farm
Ferry Reserve (Eastern end of Gorge)
64. At the eastern end at Ferry Reserve the expectation is a tourism operator(s) may once again take up the opportunity to locate a business here. Formerly a jet boat company and a bungy jump company operated in this area. As I noted earlier, the area is already popular with freedom campers as well as locals so user numbers can be expected to grow markedly when the new road is opened, if not more so if a shared path is constructed as well.
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Scenic Reserve
Ferry Reserve
Photo 7 – Ferry Reserve, eastern end of Manawatū Gorge
Relationship to the Masterplan
65. The projected increase in traffic volumes, better connectivity, and new crossing of the Manawatū River to the Northern side provides the opportunity and user demand to deliver the outcomes identified in the Masterplan.
66. The elements of the Masterplan which are particularly relevant because of their relationship with the Project route are as follows:
a) A walk/cycle facility across the Manawatū River (either attached to the Ashhurst Bridge as a ‘clip on’ structure or a stand-alone bridge). This will provide a safe
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separated access for all users at the Western end to the Manawatū Gorge. I understand that NZTA has now given a commitment to undertaking this work within the next 2 years);
b) A walk/cycle facility from Ferry Reserve to Woodville (known as the ‘Lindauer Trail’ as referred to in submissions). This would provide safe access to and from the township along a portion of State Highway 3 now with low traffic volumes since the old Gorge Road has closed. The proposed roundabout would intersect the Lindauer Trail route so this section of the proposed trail would become very busy;
c) The Te Apiti Loop Track over the northern side of the Manawatū Gorge. Establishing a connected loop track over the northern side of the Gorge with connections at both ends is in my opinion a critical element of the Masterplan. The opportunity within this Project is to provide the future opportunity for the fully off- road recreational facility envisaged, or to provide at least the ability to complete the loop on-road shoulder, or shared waking cycle path, separated from the main carriageway.
67. In relation to the Te Apiti Loop Track (as identified in the Masterplan), the part of the loop intended for the northern side of the Gorge is intended to be a trail that is targeted at experienced walkers and cyclists. The aspiration was for this trail to be a recreation trail, with access rights and trail development facilitated by private agreements with landowners.
68. If the northern side of the loop can be developed as part of the NZTA project (albeit not necessarily the fully recreational track) it will bring forward the benefits of a loop to the short term, as compared to at least the medium term or even longer term while enabling access to a broad base of users.
69. Plainly, the safe river crossings over the new bridge and the Ashhurst Bridge for cyclists and pedestrians are gateways enhancing accessibility to the loop opportunity and the existing gorge walkway.
Anticipated Benefits
70. It is possible that the Project could deliver the following benefits, these are listed in no particular order:
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a) Greater variety of activities for visitors to the Te Apiti Area including development of potentially iconic walk/cycle tracks that showcase elevated views of both Manawatū and Tararua Regions;
b) Greater public recognition of the unique cultural, environmental and infrastructural elements that make this area the ‘Jewel in the Crown’ of the region;
c) Easier, safer and more convenient access to the area for all visitors which is connected into a developed network extending to Ashhurst, Woodville and Palmerston North City;
d) Opportunity to improve personal health by using the facilities;
e) Enhancement of the natural and built environment;
f) Will strengthen the role of Ashhurst and Woodville townships as gateways to the area and create economic development opportunities, particularly in accommodation and food and drink, for out of region visitors;
g) Overall the development of Te Apiti will assist in an enhanced national tourism network through greater regional dispersal of ventures; and
h) The increased national profile of the Te Apiti area will engender a greater sense of local pride in a region not known for natural assets of this nature.
4 The Project
Recreation Elements
71. The following elements of the proposal provide degrees of recreational benefit of maintenance of existing recreational environment:
a) ‘Pull over’ areas in both directions on the new road and likely to also act as maintenance service areas – the number, location, and design is to be determined in the detailed design phase (ref: Vol 2 AEE page 34);
b) The Project provides an ability for cyclists to cycle on a small shoulder for the entire length including over the new Manawatū River (ref: Vol 2 AEE page 34);
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c) Extensive mitigation planning will likely be included in areas near or visible from the road – it is unknown as to the quantity, location and species selection and whether this will be publicly accessible;
d) Full reinstatement of the Manawatū Gorge Carpark prior to opening of the new road to be secured in a ‘Manawatū Gorge Scenic Reserve Carpark Management and Reinstatement Plan’ (ref: Vol 2 AEE page 165);
e) Public access to the Department of Conservation Manawatū Gorge Scenic Reserve is intended to be maintained through the entire construction process with a temporary access road and carpark constructed (ref: Vol 2 AEE page 42); and
f) The Network Integration Plan (NIP) condition now has specific reference to requiring demonstration as to how pedestrian and cycling facilities can be accommodated in to the existing network (condition 26 as amended in NZTA Section 92 Response letter dated 15 January 2019).
Discussion
72. The primary benefit for recreation in the Te Apiti area will be the increased connectivity associated with new road itself. It will reintroduce a more direct connection providing safe, easy and comparatively fast vehicle access for those wanting to access existing facilities on both sides of the Ranges.
73. Additionally, and further to materials provided with the NOR itself, I understand that NZTA have provided commitments to create a separated walking and cycling facility from the Eastern side of the Ashhurst Bridge to the Manawatū Gorge Scenic Reserve carpark, and have also committed to completing a clip-on to the Ashhurst Bridge as part of the Project. These commitments to the Project were communicated in a presentation by NZTA in February 2019. Both of these additional elements of the Project address safety concerns with the existing bridge and the approach to the Manawatū Gorge Scenic Reserve carpark, and from my perspective the provision of shared walking and cycling facilities is key to establishing connectivity for the Ashhurst and Palmerston North communities with the existing facilities. The Ashhurst Bridge is already perceived as unsafe by vulnerable users (it does not provide at all for pedestrians), and I agree with Mr Dunlop’s transportation assessment (at paragraph 166) that additional traffic
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generated by the opening of the State Highway would discourage users to the Gorge recreation facilities.
74. I note it is also a benefit that NZTA have committed to retain public access to the Manawatū Gorge Scenic Reserve especially considering the complexity of building a road and huge bridge in close vicinity to the start/end of the walking tracks. I view the reinstatement of the Gorge Carpark and consideration of walk/cycle in the CMTP as minimum requirements. However, I do note that the will be future user benefits at the operational stage when the Gorge carpark is renewed. It is very popular, so its present condition is average with large pot holes common around the entrance. In this context having it completely renewed is welcome.
75. The proposal will provide a faint benefit in respect of opportunities for cyclists. The benefit is simply that cyclists will not be prevented from the new road and will therefore have the benefit of the increased connectivity that it provides and the shorter journey for those travelling between the Ashhurst side to the Woodville side. The benefit is limited, because the proposed method of providing for cyclists via a 2m shoulder (which actually would be 1.5m in most places) will result in a poor recreation experience for users, as compared with various other methods by which the road could provide for vulnerable users.
76. There is no information to show that the proposed shoulder has been selected with consideration to its suitable for cyclists or in respect of how that might facilitate, encourage, or promote cycling or cycling opportunities through the proposed road. The poor elements of the experience include the noise and the inherent danger of high speed vehicles operating nearby, particularly in inclement weather conditions such as those that can quickly set in that area (wind in particular). In addition, shoulders collect debris such as pieces of tyre and tyre steel reinforcing, fittings from vehicles, general rubbish thrown from vehicles and road related product such as chip seal, hotmix, stones etc. The 2m, or 1.5m shoulder will be unappealing for cyclists and effectively inaccessible for pedestrians.
Critique of Recreation
77. My primary criticism of the NOR, is that recreation and tourism opportunities do not appear to have featured in the consideration of the proposal.
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78. There are unquestionably benefits arising from provision of the road such as those described above, Many of these recreation or tourism benefits are those which may occur as a by-product of the new road being built, rather than an active element of the design to promote a recreation experience from the outset. There is no information to suggest that the proposal has been informed by specific recreation advice, and this is a gap in the information which should have been incorporated in the project planning phase. I am concerned that this risks a significant missed opportunity to maximise recreation benefit and achieving consistency with the various policy divers relevant to the recreation and tourism issues.
79. For a Project of this scale and regional importance I consider the recreation assessment of the existing environment lacked detail to the extent where I consider it downplays the critical role that recreation provides in the Te Apiti area. There is comparatively little commentary on the importance of the Manawatū Gorge and wider Te Apiti area for recreation in the ‘Description of the Environment section of the AEE (Volume 2, page 21) where just two paragraphs are included in the 28 page section.
80. Provisions within the Regional Land Transport Management Plan (“RLTP”) are relevant to this point (and which are identified by multiple submitters as relevant) and should have been taken into account in project planning but have not. A strategic priority in the RLTP is:
“An appropriate network of tourism routes” with a policy to “cater for the provision of clearly defined tourism routes by:
3.2 - promoting the role of cycling, tourism and recreation in the region (NZ Transport Agency, territorial authorities, regional tourism organisations); and
3.4 - investigating safety improvements to encourage and develop the tourism industry, including linkages to attractions (NZ Transport Agency, territorial authorities).”
81. Actions / measures that are associated with the policies above include, “advocate for the development of new cycle trail routes, including the Manawatū Gorge and Feilding to Palmerston North cycle routes.
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82. Another identified strategic priority for the Region is “an integrated walking and cycling network” with Policy 4 to “encourage the uptake of walking and cycling as transport modes and for recreation” with relevant policies including:
4.1 “providing new infrastructure that caters for safe walking and cycling, where appropriate (New Zealand Transport Agency, territorial authorities).”
4.5 “Developing and promoting recreational walkways and cycleways where appropriate (New Zealand Transport Agency, territorial authorities)”
83. The policies and strategic directions themselves derive from the objections within the RLTP including Objective 4. “A reliable multi-modal transport system with less modal conflict, including walking and cycling, that mitigates potential environmental effects and improves environmental outcomes.” The proposed new road does not appear consistent with this objective and there is not assessment of it in the application.
84. I do not consider that the statutory assessment of relevant district plan policies (at page 200 of the AEE (Volume 2)) adequately addresses those policies which are relevant to recreational issues and, in particular, those relevant policies from MDC, PNCC and TDC (well summarised in the evidence of Harriet Fraser) that are directed at encouraging walking and cycling activities and opportunities. I specifically disagree with the assessment (at page 200 of the AEE) that the relevant policies are met simply because “… the Project will accommodate cyclists on the road shoulder, and reduced traffic demand on Saddle Road and Pahiatua Track are expected to result in these routes being more attractive for active modes…”. In my opinion, encouragement of walking and cycling would require more than the provision of an inadequate shoulder facility.
85. Given the above provisions in the RLTP (at paragraph 79), I consider NZTA should have taken care to demonstrate that the relevant strategic priorities and policies had been implemented or at the very least how they featured in the Project planning phase. The statutory assessment at Volume 2, Appendix I of the NOR refers to the RLTP and, in particular, the identification of the replacement Gorge route as a key focus, but does not refer to the relevant policies identified above or as otherwise identified by Ms Fraser or Mr Percy.
86. I have a specific concern that the Project does not consider walking and cycling opportunities from any point on the new road beyond the western roundabout. I do not
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understand NZTA’s reason to rely on the 2m wide shoulder as the method chosen to provide for cyclists across the balance of the new road from the roundabout at the western side. It appears that recreational and tourism opportunities did not inform that decision.
87. I have made a table identifying the similarities in how the 2m wide shoulder is referred to within the NOR information including the various technical assessments:
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Document Location Reference “Separated walking or cycling facilities are not Technical Assessment # 1 specifically provided for by the Project, although it is Transport Paragraph [41] proposed that the shoulder width and bridge widths David James Dunlop will be sufficient to accommodate cyclists”
“Therefore, given that the Pahīatua Track and Saddle Road will offer good cycling facilities between Palmerston North/Ashhurst and Woodville, the cyclist numbers using the route are Technical Assessment # 1 predicted to be low and an exclusive cycle lane is Transport Paragraph [161] not proposed, the available width of a 2.0m-wide David James Dunlop shoulder (as a minimum) is considered sufficient for the Project route, and a significant improvement on the existing situation.”
“Separated walking or cycling facilities are not Technical Assessment # 3 specifically provided for by the Project, although it is Social Impact Assessment Paragraph [53] anticipated that the shoulder width and bridge Amelia Linzey widths will be sufficient to accommodate cyclists”
“Separated walking or cycling facilities are not Assessment of specifically provided for by the Project, although it is Environmental Effects Page 34 anticipated that the shoulder widths and bridge Part C widths will be sufficient to accommodate cyclists”
“While relatively long and steep, the road is expected to be used by recreational road cyclists Assessment of and touring cyclists. It is anticipated that these Environmental Effects Page 108 cyclists will be accommodated on the 2.0m wide Part G (as a minimum) shoulders on both sides of the road.”
“Policies encourage walking and cycling as alternate modes. In this regard, the Project will Assessment of accommodate cyclists on the road shoulder, and Environmental Effects Page 200 reduced traffic on Saddle Road and Pahiatua Track Part I are expected to result in these routes being more attractive for active modes. “
“Walking or cycling facilities are not specifically included along the mainline alignment, however the AEE Part J Appendix 3 sealed shoulder space provides an option for Preliminary Road Design Page 36 cyclists to use the route and remain clear of the live Philosophy Report traffic lanes.”
NZTA response to request Page 11 “The NORs do not need to be altered to provide
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for further information, best practice cycle provision on the shoulders of dated 15 January 2019 the proposed new highway. The indicative design currently includes space for 4 traffic lanes, a central median plus 2-metre-wide shoulders which are available to cyclists. Drawings showing the dimensions of shoulders are provided in Figure 15 in Volume 2 (Assessment of effects on the environment) of the NORs.”
Table 4 – References to Road Shoulder Width
88. Where, as above, provision for vulnerable users is described such that its only apparent benefit is that cyclists are not literally precluded from cycling the route, then I consider that to be very faint praise. It is also curious that nowhere is the shoulder described as appealing, or, for that matter, safe. In this regard I note Ms Fraser’s opinion that the road is unsafe.
89. In a Project of such significance and in circumstances where there is abundant policy pointing towards the consideration and provision of cycle facilities, the proposal is deficient in that there is no explanation as to the determinants informing the design philosophy provision for cyclists, including the decisions not to specifically provide walking and cycling facilities and to provide a bare ‘option’ to cyclists via a variable 2m or 1.5 m sealed shoulder. This includes an absence of any cost benefit assessment of providing a suitable facility for cyclists, via a wider shoulder which I note was the recommendation of the Independent Safety Audit undertaken in April 2018 by Opus.
90. In various pre-application workshops I raised walk/cycle provision as an environmental issue and identified a likely community expectation for a separated facility.
91. Following receipt of a draft application by NZTA (which the reporting team was asked to review in October 2018) I also asked for further detail around walk/cycle options analysis. NZTA’s response on 24 October 2018 was that ‘…the NOR does not preclude this from being advanced/developed’. At the time of writing this evidence I am unclear as to whether even this pre-application position still holds, as the most recent feedback from NZTA (ref: RFI response letter dated 15/01/19) indicates that with respect to a separated path ‘Such a facility is not considered to be an appropriate investment as part of the Project because the Project already provides adequate cycling facilities’. Further, recent public statements from NZTA indicate that there will be no further consideration of addressing the shoulder issues.
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92. I have reviewed the role of the Environment & Cultural Design Framework (“ECDF”) which I understand is the ‘living document’ that forms the foundation for ongoing design decision. I note that the following principles set a useful platform:
‘2.2.1 Connectivity: Reconnecting People and Places
C1: Reconnect local communities that were disconnected when the Manawatū Gorge was closed.
C2: Connect people to the landscape.
C3: Connect people to existing trails, greenways and recreational facilities
And later in:
2.2.5 Amenity: Memorable Experience
A3: Walking, cycling and access for recreation should be considered.’
93. In addition, the maps in the ‘Project Vision’ and ‘Project Constraints and Opportunities’ section (ref: ECDF page 12/13) identify high level opportunities available in the area. Later, when discussing the role of the new bridge the ECDF notes that in the detailed design phase themes ‘… should be of a form, scale and finish that can be appreciated by people walking, cycling and driving…’ (ref: ECDH paragraph 3.1.1 page 16).
94. From a recreation point of view the ECDF principles are suitable as far as they go, but I have little confidence that the principles will be achieved. Further, a principle requiring that walking and cycling and access for recreation should be considered seems unlikely to assist given NZTA’s position. This is a matter that I believe should be have been considered and addressed already
95. While technically a physical connection can be made by using the road shoulder to ride from one side of the Ranges to the other the experience may only be memorable for the poor quality, potentially unsafe, nature of sharing the road in close proximity to cars and heavy trucks. This would appear at odds at the very least with the ‘experience’ component of the Project Vision of the ECDF. It may be possible to introduce design elements like robust barriers and greater width shoulders in the detailed design phase that get closer to achieving the ECDF but I consider whether the shoulder based approach is the wrong option in the first place in terms of the recreational experience.
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Existing Cycle Routes
96. The NZCT ‘Tararua Traverse’ route sends cyclists over the Pahiatua Track, however it is presently closed due to increased vehicle traffic. Putting aside the obvious safety issue, from recreation standpoint there is significant opportunity in this Project to develop a separated shared path to safely re-route NZCT cyclists over the Ruahine Ranges in the Te Apiti Area instead. As I have mentioned earlier, this route would be, in my opinion, much more popular and logical from a recreation/tourism perspective.
Narrow shoulder for Cyclists
Photo 7 – ‘Pahiatua Track’ April 2015. Source: Google Streetview.
97. I also agree that the Saddle Road, with less than 200vpd expected (once the new road comes online) would become relatively safer for cyclists once the new road is opened because the traffic would decrease. I note it also has a steep and windy alignment such that, in my opinion, only a small proportion of the cycling population will use it. In other
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words, while there is less risk in probability terms, it is still unsafe for users in any case and I agree with submitters, and Ms Fraser, who have made this point.
98. I am confident that a safer facility and consequential increased perception of safety would dramatically increase usage.
99. Ashhurst Bridge over the Manawatū River was constructed in 1969 and is the closest bridge to accessing the Manawatū Gorge, thereby a critical component of connecting the network. Currently walk/cycle users are faced with using a 0.6m wide shoulder crossing the bridge for a length of 340m. Aside from the reality that it is simply unsafe, I believe that the perception of this being an unsafe environment has the effect of suppressing user demand for accessing the Te Apiti area on foot or by cycle. I note the low usage numbers (125 cyclists and just 3 walkers) in the survey undertaken by NZTA in the week of 14-20 September 2018 (ref. paragraph 71 page 25). I do wish to make the point that while I am not an expert in survey methodology I know from my experience of the Te Apiti area that the bridge has significantly greater use by cyclists in summer months.
Shoulder only for walk/cycle
Photo 8 – Ashhurst Bridge SH3 April 2015 (Source: Google Streetview)
New Bridge Recreation
100. I note that there is no commitment to providing pedestrian access to the new bridge across the Gorge and it appears likely that none will be provided and active steps will be
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taken to discourage pedestrian access to the new bridge across the Gorge. NZTA identifies that because of the difference in height from the Gorge carpark, this would be a useful deterrent to access. I consider it is imperative that pedestrian access up to and across the bridge is provided for as part of the Project including access from the Gorge Scenic Reserve carpark. The views available from the bridge will be of great interest to the community and, in my opinion, this would be a significant recreation and tourism asset.
101. As noted in my evidence, the Gorge walking tracks accessed from the carpark beneath the bridge are incredible popular. The recreational benefits of the bridge itself would be readily accessible to the local communities with the convenience of the carpark and the proximity to Ashhurst and Palmerston North. I note that access to the bridge for pedestrians is a matter addressed in the SIA and by Ms Austin. I consider it is important that access is required from the carpark to the bridge, and then across the bridge. This should be a condition.
4.1 Operational Phase Effects
102. I have elaborated earlier in my evidence on these effects. Briefly, I note there will be positive recreation effects in terms of ease of access in a vehicle across the Ranges to recreation facilities. In addition, there will be potentially passive recreation benefit in terms of elevated views of the region, the Manawatū and Pohangina Rivers and existing and new native bush areas.
103. These attributes may open up tourism venture opportunities as the wider Te Apiti area will become an easier destination to access from both the Tararua and Manawatū regions.
104. I am unconvinced that a shoulder based cycle route will provide any more than minor recreation benefit. This is because the experience will likely be of a poor quality only suitable for a limited and highly experienced ‘strong and fearless’ segment of the cycling population. It appears that little if any amenity design thinking has been fed into the design to date.
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4.2 Construction Phase Effects
105. There will be a detrimental impact on existing users of the Scenic Reserve during the construction phase from increased noise and the inconvenience of the existing carpark closed. However, NZTA have committed to a temporary arrangement being put in place with the details of this arrangement still to be worked through at the detailed design stage.
106. As noted earlier in the evidence, NZTA have proposed conditions (through a CEMP and the ‘Manawatū Gorge Scenic Reserve Carpark Management and Reinstatement Plan’) to lock in recreation access to the Scenic Reserve through the construction period and also to reinstate the Gorge carpark as part of the Project. In addition, walk/cycle matters will form part of the Community Liaison Group thereby providing an ongoing platform for discussion with NZTA.
107. A positive aside from continued access to the walking tracks will likely be views of new bridge over the Manawatū River from the temporary access arrangement. The Project will be of considerable interest to the general public so I would wish to ensure views can be obtained from a safe vantage point(s).
5 Consideration of alternative sites, routes or methods
108. As noted earlier in the evidence, my view is that any recreation elements of the proposal are in effect a by-product of the creation of the new road. They do not appear to have played a central part in any route selection or high-level design thinking to date.
109. The key example of this approach is the lack of a dedicated safe walk/cycle route as part of the Project. In my view the statutory and policy setting should have been a strong signal to undertake an assessment of alternative methods including at least:
a) A shared path separated from the road with edge protection such as barriers, planting and/or landscape formation (e.g. change in levels) to provided additional safety buffer;
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Shared path at different level than road
Photo 9- Example 1 - Thermal Explorer highway SH5 south of Rotorua April 2015 Source: Google Streetview
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Grass buffer strip between road and path
Photo 10- Example 2 - Thermal Explorer highway SH5 south of Rotorua April 2015 Source: Google Streetview
b) A shared path physically separated from the road but generally following the alignment of the road;
Compacted gravel surface
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Photo 11- Example 2 - Shared Path on Kapiti Expressway December 2017 Source: Google Streetview
c) A separated path or widened shoulder generally following the alignment of the Saddle Road;
Photo 12- Saddle Road April 2015 Google Streetview
d) A recreation trail which can be used by walkers, cyclists and horses only loosely following the road alignment; and
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Recreation trail experience
Photo 13 – Coastal Section of Rimutaka Cycle Trail
e) Re-opening the old Gorge Road for exclusive use of walkers and cyclists.
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Photo 14- Napier Road SH3 (Closed section through Manawatū Gorge) April 2015. Source: Google Streetview
110. The impact of not providing a full assessment (or any assessment) makes it difficult to understand the merits based rationale behind NZTA’s singular position that a narrow road shoulder is adequate. Quite simply there is nothing to compare it against. This lack of information prevents a reasoned discussion of alternatives and puts the general public at a significant disadvantage.
111. As noted earlier in the evidence NZTA were repeatedly asked to provide an assessment and chose not to. I note that NZTA internal guidelines indicate that cost analysis of proposed mitigation measures in a road safety audit is best practice. It is not apparent that any cost analysis was above in respect of the wider shoulder or separated path mitigations identified in the Audit.
6 Review of submissions
112. The application received 741 submissions during the public notification period (15 November 2018 to 13 December 2018). The vast majority seek provision of a separated shared path for safety, accessibility, recreation, economic and environmental reasons.
113. I have reviewed all submissions and will firstly identify key recreation and tourism points raised by submitters both in general terms and then around some specific matters. I will then provide comment on those points. I note there is significant crossover of the shared path issue with the evidence of Harriet Fraser, the Territorial Authorities’ Transportation expert, and Kirsty Austin (Social). For detailed assessment of those issues the reader is directed to those statements. In addition, an overarching analysis of submissions is provided in the planning evidence of Phil Percy.
6.1 Submitters’ views on shared path
114. Approximately 700 submissions refer to possible recreation benefits arising from the development of a shared path associated with the new road. The majority of these feature the word ‘recreation’ in the webform template provided by ‘Build the Path’ group as part of a range of likely benefits. These generally do not provide an analysis of the
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recreation benefit itself, just the fact that they support a view that some sort of benefit will arise.
115. The following selection of submissions are highlighted where the submitter has provided further commentary on the nature or scale of recreation benefit that might occur with the establishment of a separated shared path facility.
116. Russell Poole (S8) considers that the Te Apiti area has the potential to become a UNESCO status international ‘Geopark’, noting the uniqueness of the area. He comments in a tour guide role for Forest & Bird, and he has had both national and international visitors express a curiosity about the dynamic forces of the ranges and river. He notes potential to create a tourist destination by clustering attractions around those that already exist such as the Gorge Track, wind farms and huge views from Wharite Peak (Ruahine Ranges high point 920asml).
117. Arthur Yeo (S40) explains as a longtime Ashhurst resident and horse rider he would be a regular user if a shared path were constructed. He notes significant tourism potential in the area with unique aspects like the Manawatū Gorge and the Te Apiti Wind Farm. He draws on experiences where he has led treks of 35-40 horses up to the wind farm. Mr Yeo comments he has had up to 500 people to his lifestyle block (for horse related events) over the last 5 years and estimates expenditure per horse is in the order of $200-$400.
118. PNCC (S237) identify the Manawatū Gorge as an emergent area for tourism and point to the Regional Land Transport Plan, Draft Te Apiti Masterplan and Accelerate 25 Regional Economic Development Programme where specific supportive references are made in this regard.
119. Shannon & Co Ltd (S246) identify the area as a district gateway that deserves to be landscaped fitting its special stats in the region. The submission identifies further trail options along the Pohangina River to the Saddle Road will be possible if access is provided to the northern side of the river.
120. Matthew McKenzie (S247) considers there is tourism and recreation opportunities in developing a shared path and points to examples in other regions such as Otago Rail Trail (12,000+ users a year), Remutaka Rail Trail (30,000 users a year), Hauraki Rail Trail (7000 visitors per month). In particular he notes each trail is connected to other
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towns or existing trails. He also comments of potential to link the New Zealand Cycle Tail through the new highway over the Manawatū Gorge.
121. Horizons Regional Transport Committee (S292) submission points to the Regional Land Transport Plan, noting a desire to integrate a shared path with existing tourism and amenity features and remain flexible to link in with future developments.
122. Sport Manawatū (S300) comments that in their vision to have ‘Everyone Active’ they have a mission to build stronger communities through sport and active recreation. They note the flow on health benefits of providing shared pathways to local communities.
123. Build the Path (S316) describe a context of over 5 million visitors to New Zealand annually seeking uncrowded active experiences in nature with adventure. They consider the Manawatū-Tararua region has significant capacity to develop more tourism and thereby take pressure off other parts of the country. They identify the opportunity to extend a path, unique to New Zealand, traversing a dividing Range from Woodville out to the Tasman Sea.
124. The Central Economic Development Agency (S370) in supporting the economic benefits of a shared path explain the region has a growing visitor sector with a 6.2% rise in expenditure to $1,029m in the 2017/18 financial year as compared to the previous financial year. They reference the economic ($37.4m) and social ($12m) benefits of the New Zealand Cycle Trail based on a 2015 study by MBIE.
125. Manawatū Mountain Bike Club (S373) identify the need for an iconic mountain bike trail to fill a gap as potential cycle tourists are bypassing this region looking for this type of attraction. The Club notes the region already has ‘easy riding on a flat surface (Grade 2)’ covered along the Manawatū River Pathway and more ‘physically challenging’ (Grade 2-6) trails at Arapuke Forest Park. However, they note there is nothing at an iconic level comparable with the Heaphy Track on the West Coast or the Timber Trail in Central North Island for example. The Club identify the Te Apiti area, and the proposed option of creating a loop around both sides of the Manawatū Gorge as the opportune way of creating an iconic attraction that will increase mountain bike tourism in the region.
126. The Manawatū Gorge Governance Group (S374) notes the Project provides a once in a lifetime opportunity to capitalise on connection opportunities over both sides of the Ranges. The Group explains this can best be achieved through a coordinated multi-
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agency approach. A Masterplan for Te Apiti is currently being prepared which has recreation as one of its five platforms that underpins priorities for the area (the others being environment, cultural values, education and leadership).
127. The Manawatū Chamber of Commerce (S375) considers a shared path will have good economic benefit for tourism and recreational businesses and help businesses attract and retain employees.
128. Fiona Gordon (S556) considers there is latent tourism potential to engage a wider user group and create linkages with sites of significance. She notes local examples such as Te Apiti (the Manawatū Gorge), Te Matairangi o Te Papa Rehia (the Ashhurst Domain) and He Ara Kotahi (new pathway and bridge over the Manawatū River connecting the City to Linton) and explains a shared path in this setting will encourage active transport and promote health benefits.
Response to General Recreation Submissions
129. Clearly, the overwhelming number of submissions that recognise the recreation opportunity (and to a lesser extent tourism opportunity) in the context of building a shared path speak for themselves.
130. The first feature of my review is the many submissions that identify the breadth and popularity of existing recreational opportunities in the area. As I have highlighted some submissions make a direct connection in terms of added value by linking the provision of a shared path to existing recreation activities. Others take that a step further to suggest it presents tourism opportunities like other parts of New Zealand. In my view this demonstrates the wide recognition regionally of the attractive features of the Manawatū Gorge and wider Te Apiti area.
131. The second feature is there is very little comment from submitters around the positive benefit in terms of ease of access that the new highway will provide for existing recreation facilities. For example, for mountain bikers from Palmerston North wanting to access the Te Ara o Mahurangi track on Hall Block Road on the eastern side will only have nearly an 11 minute quicker drive across the Ranges than it currently takes to use the Saddle Road (source: NZTA Transport AEE Appendix 1C).
132. The large body of submissions associated with the ‘Build the Path’ group, and the group’s umbrella submission, focus on the principle of providing a separated shared
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path without going into exact detail of where it could be constructed other than within the designation corridor. The submission explains that the application provides no cost benefit analysis of walk/cycle options noting the justification for not providing such facilities unclear.
133. I agree strongly with the Build the Path position on the matter. As NZTA has provided no options assessment and what appears to be an unsatisfactory shoulder based option (for a variety of reasons), this leaves all parties at a considerable disadvantage. As noted earlier NZTA were asked to provide that information and chose not to.
134. With respect to the popularity of horse riding in the Ashhurst area, I also consider if there is an opportunity to accommodate this form of recreation (and potential tourism) then it should be carefully assessed in the detailed design phase. I note that providing for horses brings more complexities into the design – particularly around proximity to vehicles. The reality is there may not be possible to have a continuous route such as could be achieved for walking and cycling but there could be sections where riding might be possible.
6.2 Other Recreation Issues
135. The following submissions are identified as raising detailed points that directly relate to providing access to recreation areas.
136. Tararua District Road Safety Group (S376) comments that viewing the wind turbine (part of the Te Apiti Wind Farm with public access from Saddle Road) is an important tourism feature. They submit that construction of a new road providing access from the new highway to the Wind Farm should be built.
137. The Department of Conservation (S369) submission notes the importance of reinstating the Gorge carpark at the western end to provide for similar natural character and amenity. (This is a crossover issue with other specialists but I note the intention is not to diminish the recreation experience of this area).
138. William Bly (S241) in his role as Chairman of the Woodlands Road Hall Committee comments that the old Manawatū Gorge Road (now closed) has special significance to New Zealand. He considers it is imperative that progress is made to allow foot/cycle
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access onto the road and believes this special feature would be a gem in the crown of the local tourism industry.
139. Woodville District Vision (362) and Woodville Domain Board (738) both refer to the opportunity to create a safe walkway near the highway between Woodville and Ferry Reserve on the eastern side of the Manawatū Gorge to enhance the experience of the area. The route is described as the ‘Gottfried Lindauer Arts Trail’.
140. Harvey Jones (S294) and Manawatū River Source to Sea (S360) both make specific reference to the new bridge over the Manawatū River making specific safe provision for walkers/cyclists. Mr Jones notes that it will be a significant viewing platform. Source to Sea identify the opportunity to create an iconic tourist destination to help economic development in the area by adding separated lanes to the new bridge.
Response to Specific Recreation Matters
141. In a number of submissions, including those I have identified, submitters noted unique features in the Te Apiti area and beyond with the opportunity to connect to them to create a unique recreation experience and possible tourism opportunities. These are geographical (the river, gorge, the Tararua/Ruahine Ranges) cultural (sites of significance and the kōrero around them), and infrastructural features (the Wind Farm, old Gorge road, and views from the new highway and the new Manawatū River bridge itself) distinct to the region. In my view it makes absolute sense to integrate connection to these features, beyond just easier road access, with a safe shared path facility developed as part of this Project. For features beyond the Te Apiti area, I note connection to these will be met through existing or planned expansion to the shared path network.
142. In respect of the DOC submission, beyond ensuring that the walking tracks will remain open through the entire construction period, I note there are conditions requiring full reinstatement of the Manawatū Gorge Carpark area. DOC will also be a participant of the Community Liaison Group. So from a recreation experience standpoint, I expect these to be adequate controls in conditions to ensure it is not diminished, provided that the outcomes of engagement results in meaningful input and I refer to the evidence of Kirsty Austin on this point.
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143. With regard to the possible opening for walk/cycle use only of the now closed section of SH3 through the Manawatū Gorge, I reiterate the point that that it is the aspiration of the draft Te Apiti Masterplan to do so outside of this Project. At the very least a 2km section on the eastern side of the Gorge, extending from Barneys Point to the Ferry Reserve is planned as shown in the aerial photo below:
Barneys Point
Scenic Reserve
Ferry Reserve
Photo 15 – Barneys Point connection using closed section of SH3
144. For the ‘Gottfried Lindauer Arts Trail’ I understand this has been planned for a number of years but has stalled for landowner access and funding reasons. In my view a safe
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shared path extending from Woodville to the Ferry Reserve is a highly credible proposal and will be a significant recreation asset to the Woodville area. As highlighted in the ‘Options’ section this trail can be developed to form a loop right around both sides of the Manawatū Gorge so is therefore a critical connection element.
7 Draft Requirement conditions
145. From a tourism and recreation perspective, I recommend that the following conditions should be included:
a) Access to all Manawatū Gorge walking tracks shall be maintained throughout the entire period of construction. If a temporary closure is required to provide for a specific construction element then this must occur during weekdays and DOC and the respective Territorial Authorities shall be made aware of the details for approval at least two weeks prior to the shutdown occurring. The shutdown period shall not exceed more than 5 consecutive weekdays;
b) A temporary carpark and safe walking access to the Gorge Walking Track shall be established as part of the enabling works phase to provide convenient, safe and continuous pubic access during the construction phase. The temporary facilities shall be large enough to accommodate the number of visitors to the Gorge Track and include adequate surfacing, fencing, signage and safety measures to provide suitable amenity. Details of the temporary facilities shall be provided to DOC and the respective Territorial Authority for approval prior to works beginning;
c) The Manawatū Gorge carpark, including the access track leading to the beginning of the Gorge Track, shall be reinstated to at least the same standard (size, surfacing, boundary treatment, toilets, amenity planting, interpretive signage including cultural installations) as existing prior to works beginning. This shall occur no later than the commissioning of the new road;
d) Walking, cycling and other recreation matters shall be specifically included for consideration as part of the Liaison Group set up for the Project;
e) A separated shared path to accommodate cyclists and walkers shall be provided for the entire length of the road (with appropriate safety measures at
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the roundabouts at either end) as part of the application and be completed no later than the commissioning of the new road. Full detailed design of the walk/cycle path including route alignment, width, length, grade, land ownership, surfacing, fencing, seating, amenity planting, drainage and a maintenance regime shall be provided to the Territorial Authorities for approval; and
f) A separated walk/cycle facility should also be included on the Manawatū River Bridge as well as pedestrian access from the Manawatū Gorge carpark up to the bridge facility. The design shall ensure there is a suitable connection point to the walk/cycle facility to be constructed at the Ashhurst Bridge.
Jeff Baker
1 March 2019
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APPENDIX 1: TE APITI AREA RESOURCE MAP
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APPENDIX 2: DRAFT TE APITI MASTERPLAN (PROPOSALS MAP)
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