Core Strategy - Chapter Three: Achieving the Vision and Targets –The Key Components of The New Zealand Transport Strategy

The key challenges set out in Chapter 2 present a significant risk to the achievement of the transport vision and targets. Finding ways to respond over the next 30 years will be essential and the government will apply increased priority to a series of key components.

3.1 The government’s strategic approach

Achieving an affordable, integrated, safe, responsive and sustainable transport system will require advances in technology and changes to the transport choices that people and businesses make. Neither on its own will be enough to deliver the vision and targets.

Government (both central and local) has an important role in encouraging technological and behavioural change. To do this, a range of actions or interventions can be used, as illustrated in figure 2 below:

FIGURE 2: GOVERNMENT INTERVENTIONS

 

In implementing this Strategy, a balance between these interventions must be found. In particular, an appropriate balance is needed between:

• the management of travel demand, and the level of supply to meet demand and maintain levels of service 
• regulatory and voluntary approaches to achieving behaviour change in people’s transport choices²⁶
• the appropriate level of expenditure and, as a consequence, the level of charging required to generate this revenue
• the priorities for expenditure

The balance between different types of intervention will vary over time. It will depend on the degree to which the objectives and targets set out within this Strategy are being achieved, and the affordability of the solutions that may be required.

Currently, levels of traffic, congestion and greenhouse gas emissions are increasing and the transport system remains highly dependent on fossil fuels. This indicates that a business-as-usual approach in the future will not lead to the achievement of the targets and that the balance of interventions will need to change. In particular, there will need to be a greater focus on the management of travel demand.  

TRAVEL DEMAND MANAGEMENT

Travel demand management (TDM) has four objectives:

• reducing the need to travel (while still allowing people to access the services and facilities they need)
• reducing the distances people need to travel to access the same services and facilities
• achieving more efficient travel that uses less fuel, less road space and produces fewer emissions (eg rideshare²⁷, public transport, cycling and walking)
• changing the time people travel to minimise ‘peaks’ in demand

The government will seek progress across all four TDM objectives²⁸. As the table below illustrates, land-use planning, the design of businesses and services, and information technology (I.T.) can all play important roles.

Delivering travel demand management

TDM objectives	Design of businesses and services, and use of I.T.	Land-use planning	Transport planning
Reducing the need to travel	**
Reducing travel distances	*	**
Promoting more efficient travel	*	*	**
Changing the time people travel	**		*
**= Key contribution * = Makes a contribution

The term ‘travel demand management’ is often used to include measures to do with both travel demand and supply. The former seek to influence the demand for certain types of transport, particularly single occupancy use of cars. Examples include both ‘pull’ measures such as travel plans and ‘push’ measures such as congestion charging and parking management. Supply measures seek to provide choice by improving services and facilities for shared and active modes of transport.

Stakeholder responses during the development of this Strategy clearly signalled a widely held view that to be effective in achieving behavioural change, both push and pull measures will be required. However, it is important that travel choices are available before push measures are widely applied, if access and mobility are not to be adversely affected.

3.2 The key components of this Strategy

For the foreseeable future, the government will apply increased priority to the following key components: 

• integrated planning 
• making best use of existing networks and infrastructure
• investing in critical infrastructure and the transport sector workforce
• increasing the availability and use of public transport, cycling, walking, and other shared and active modes
• considering options for charging that will generate revenue for investment in transport infrastructure and services
• using new technologies and fuels
• maintaining and improving international links.

These are the areas of activity that require new or additional focus in the future, particularly to address the key challenges facing the sector and help achieve the targets. The key components do not represent all transport activity – many of the actions delivered on a routine basis (by government, Crown entities, local authorities and private sector operators) are not represented here, but are also essential for the achievement of the targets and the delivery of the vision. These activities are described in Chapter 4. However, greater emphasis and, where relevant, a higher priority for funding will apply to the key components in the future.

The following table shows the key components that will help address the challenges set out in Chapter 2. Appendix D sets out in detail how the actions under each key component will contribute to delivering the targets.

TABLE 3: CONTRIBUTION OF KEY COMPONENTS TO KEY CHALLENGES

Key Components
Integrated planning	*	*	*	*	*	*
Making best use of existing networks and infrastructure	*	*	*			*
Investing in critical infrastructure and the transport sector workforce	*		*			*
Increasing the availability and use of public transport, cycling, walking, and other shared and active modes	*	*	*	*	*	*
Considering options for charging that will generate revenue for investment in transport infrastructure and services	*	*	*	*		*
Using new technologies and fuels	*	*		*			*
Maintaining and improving international links	*						*

In pursuing these key components, the government will achieve its objectives through gradual but accelerating change. Businesses and people require time to adapt. Also, many of the changes that are required, particularly in relation to vehicle technologies, have lead-in periods of 20 years or so. Small changes need to be made now to help prepare for major changes later on.

3.2.1  INTEGRATED PLANNING

As many submissions stated, one of the most important long-term influences on transport demand is the pattern of land-use. The government has signalled its support for sustainable urban design through its ongoing commitment to the New Zealand Urban Design Protocol launched in 2005. Nevertheless, processes for planning land-use and transport in New Zealand have not always been well-integrated or well-implemented. Despite some positive examples, evidence shows that many New Zealand settlements in urban and rural areas are expanding in a way that will significantly increase travel demand. Examples include ribbon development²⁹, out of town shopping centres, coastal development and residential settlements that are physically separated from main urban centres.

Part of the solution to these problems is for processes under the Resource Management Act 1991, the Land Transport Management Act 2003 and the Local Government Act 2002 to be brought closer together. Legislation provides a framework for integration³⁰, but this is often not used to its full potential. Tools such as regional growth strategies, structure planning and integrated transport assessments are extremely useful for identifying patterns of land-use that are consistent with this Strategy’s vision. Incorporating these strategies and assessments into statutory documents will give them greater weight in the decision-making process.

The government’s approach to integrated planning is to build on the extensive base of existing good practice and develop further guidance for the sector on sustainable urban design. It will also consider ways to encourage wider adoption of good practice and will incorporate integrated planning principles more explicitly into the ways that transport projects are developed, designed and funded.

The government has agreed on the desirability of a National Policy Statement on urban design under the Resource Management Act 1991 and work on scoping this will commence in the near future. This may include consideration of objectives and policies to encourage better integration between transport and land-use. In addition, future funding for major transport projects is likely to require them to have been identified through integrated planning processes, or at least to be compatible with Regional Growth Strategies and District Plans that have been based on sustainable urban development principles.

URBAN DESIGN PROTOCOL

The Urban Design Protocol was launched in 2005 as a voluntary commitment to urban design. Signatories are drawn from central and local government, consultancies, developers and other relevant organisations. By signing, these organisations have agreed to implement specific urban design initiatives or actions.

The Protocol identifies seven essential design qualities that together create quality urban design: context, character, choice, connections, creativity, custodianship and collaboration. These ‘seven C’s’ are based on urban design principles that are recognised and demonstrated throughout the world.

The Protocol confirms that good connections enhance choice, support social cohesion, make places lively and safe, and facilitate contact among people. Quality urban design therefore recognises the importance of transport networks in connecting and supporting healthy sustainable neighbourhoods, towns and cities. Urban areas with good connections between activities and careful placement of facilities can benefit from reduced travel distances and lower environmental impacts.

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Integrated planning also applies to the integration of transport modes to provide a more efficient and seamless transport system – ensuring people and freight can easily transfer between transport modes and that all modes play their part. For freight, improved inter-modal transfer reduces bottlenecks in moving goods and improves supply chain efficiencies. For people, integrated transport planning enables easier end-to-end journeys and greater choice of modes.

There is also a growing awareness of the need for all government agencies to work together when making decisions about where and how to locate facilities within communities. A tool such as accessibility planning may assist with identifying the best solutions to transport and land-use issues. Accessibility planning is a systematic assessment of whether people are able to get to important destinations such as workplaces, healthcare facilities, educational institutions or shops. In the UK it has provided a framework for transport authorities and other relevant organisations to work together to develop and deliver solutions to accessibility problems, depending on the particular needs and priorities of local areas.

3.2.2 MAKING BEST USE OF EXISTING NETWORKS AND INFRASTRUCTURE

Developing new infrastructure is often expensive and disruptive. Therefore, before considering investment in new and improved infrastructure, it is important to ensure that cost-effective measures have been applied to achieve maximum efficiency from any existing network. Achieving efficiency in this way is a core element of this Strategy.

In practice there is already much activity in this area, with a strong focus on traffic management and infrastructure maintenance. Traffic management helps reduce congestion by improving traffic flows. Generally, this represents a sensible and cost-effective use of resources, and should be applied before consideration is given to major increases in the capacity of a transport corridor. Traffic management measures are generally most effective when applied as part of a co-ordinated, network-wide traffic management plan. Such plans are likely to need to focus on measures, such as priority lanes for buses and high occupancy vehicles in urban areas, that represent a more efficient use of road space.

Investments in safety measures such as enforcement and education are important mechanisms to improve the efficiency of networks across all modes. Actions to address localised traffic bottlenecks may also represent good value for money, as alternatives to more extensive and expensive projects. In addition, it is important to ensure that infrastructure is maintained to a standard appropriate for its level of use and its strategic and economic importance.

In the case of freight, there is significant potential for increasing the productivity of supply chains, an important task given the expected growth in the amount of freight needed to be transported over the next 30 years. This will rely, in part, on sector-led fleet and logistics management initiatives. Efficiencies can also be gained by working with relevant industries to identify opportunities to create hubs (for road, rail and shipping interchange) on the existing network.

3.2.3 INVESTING IN CRITICAL INFRASTRUCTURE AND THE TRANSPORT SECTOR WORKFORCE

Investment in transport infrastructure – road, rail, sea and air – is a critical aspect of this Strategy. If transport is to remain affordable for the nation, however, prudent and selective prioritising of where and how to invest is necessary. Investment also needs to take account of the Strategy’s other key components. For example, investments should align with land-use planning and take account of potential future reductions in demand (including as a consequence of possible changes to charging systems).

Stakeholder feedback during the development of this Strategy clearly identified the need to invest in economically important routes and infrastructure if the nation’s economic competitiveness is to be maintained. These will include major routes used for moving freight, particularly by primary producers and manufacturers to get their products to export markets. Such routes are likely to include arterials linking major ports, airports and major urban areas, and also those that connect rural forestry, horticultural and agricultural areas into the national transport network. As production volumes increase (particularly from the dairy and forestry sectors) there may be a need to upgrade single lane and gravel roads (and their associated bridges). Economically important infrastructure will also include key tourist routes. In addition, investing in Auckland is a priority because New Zealand’s economic success is dependent on Auckland being a world-class city.

The focus on important economic links must be multi-modal, and will include rail and sea freight infrastructure. Because of projected increases in the volume of freight, it is essential that, where possible, goods are moved by these modes as they have less impact on the environment than road transport. For rail, the amount of investment to achieve increased capacity can be modest compared to road investments. For example, in the Waikato and Bay of Plenty regions, rail carries the equivalent of 400,000 truck loads a year in container, forestry, coal and steel products. Relatively small amounts of investment in rail infrastructure in the region would provide the potential (if accompanied by rolling stock investment) to treble the amount carried³¹. The government is identifying those parts of the rail network that require renewal and upgrading to provide for future growth in demand and network resilience. For sea freight, the focus is likely to be on intermodal capacity at ports.

Critical routes will also include important passenger transport corridors. Further details on providing for public transport are detailed in section 3.2.4 below.

Identification of critical routes and infrastructure will be a significant task and is an immediate priority for action. It will be undertaken by central and local government working with other stakeholders. This work will build on the information provided by the National Freight Study and will take account of national and regional strategies (including the National State Highway Strategy, the Domestic Sea Freight Strategy – Sea Change and Regional Land Transport Strategies).

A further priority for investment is the development of the transport sector workforce to address shortages caused by demographic changes and migration.

3.2.4  INCREASING THE AVAILABILITY AND USE OF PUBLIC TRANSPORT, CYCLING, WALKING, AND OTHER SHARED AND ACTIVE MODES

This Strategy seeks a multi-modal approach by aiming to increase public transport, cycling, walking, and other shared and active modes. A shift to these forms of transport can reduce congestion and therefore bring significant economic benefits. The use of these modes reduces fossil fuel consumption and greenhouse gas emissions, improves the health of individuals through physical activity, enhances accessibility and increases the vibrancy of urban areas. In addition, the more transport choices that are available, the more flexible a transport system becomes, bringing a degree of resilience into the system.

PUBLIC TRANSPORT AND OTHER SHARED MODES

Increasing the use of public transport will be an important challenge that will require significant investment throughout the course of this Strategy. Central and local government have increased the level of funding for public transport in recent years and will need to continue to prioritise investment, particularly in urban areas, for:

• public transport services and infrastructure, eg increased frequency of bus, rail and ferry services, higher quality services, and extended provision of ‘park and ride’ facilities 
• public transport priority, eg greater use of measures that give public transport priority such as bus lanes and high occupancy vehicle lanes 
• other measures, eg integrated ticketing and real-time information

In providing improved public transport, there will be important issues such as whether to invest in high quality frequent services on key routes or in a more extensive network of lower frequency services for scattered communities (for example in rural areas). These issues will be addressed at a regional level via the target setting process, as there will be differing priorities throughout the country.

The government is committed to the concept of a fully accessible journey³², but recognises that there are issues associated with achieving this. These will need to be collaboratively addressed with transport providers and funders, people with disabilities and other relevant stakeholders such as the Human Rights Commission. This will be an immediate priority for action.

Investments in public transport, as in all other aspects of transport, must represent good value for money. Supporting traditional public transport is likely to be more cost-effective in larger urban areas and for travel between cities. Elsewhere, less traditional forms of shared transport (such as voluntary and community transport, ridesharing and car clubs³³) will need to be explored to address accessibility and social exclusion issues in a cost-effective way.

WALKING, CYCLING AND OTHER ACTIVE MODES

There was strong support, in feedback during the development of this Strategy, for the target to increase walking, cycling and other active modes to 30 percent of total trips in urban areas. Although focused on urban areas, it does not rule out encouraging increases in smaller centres. The government’s Getting there – on foot, by cycle strategy sets out its approach to promoting walking and cycling. Key priorities are to strengthen the foundations for effective action; provide supportive environments and systems; influence individual travel choices; and improve security and safety.

In encouraging walking and cycling, measures that place pedestrians and cyclists higher up the ‘road user hierarchy’³⁴ will need to explored. These include reducing traffic volumes and speeds to improve safety, as well as the further adoption of shared zones³⁵.

Achieving a shift to active and shared modes will require more than just investment in services and infrastructure. New Zealand’s towns and cities need to be designed to support and invite these activities, as well as to make the best use of the road space available. Information, education and social marketing all help to encourage people to use these types of transport.

It will be particularly important to encourage children to walk, cycle and use public transport, since experience as a child can influence how people choose to travel as an adult. Walking school buses are a good example of how to encourage this behaviour.

3.2.5 CONSIDERING OPTIONS FOR CHARGING THAT WILL GENERATE REVENUE FOR INVESTMENT IN TRANSPORT INFRASTRUCTURE AND SERVICES

Charging for road use provides a mechanism for generating the revenue required to provide and maintain transport infrastructure and services. Charging also affects the cost of travel for the user. The rates applied to different users, and the methods of charging, can influence travel behaviour by providing incentives for certain types of travel (at particular times and locations) and disincentives for others. The system for charging for road use is potentially a tool for travel demand management, as well as revenue generation.

The current system for charging – Motor Vehicle Registration, Road User Charges and Fuel Excise Duty – has generally served New Zealand well. However, considering new forms of revenue generation (for example, the electronic-based charging systems being introduced in the Netherlands) that address a range of policy objectives could bring a number of benefits. Such systems could help to maintain necessary income at a time when it is planned that traditional fuel use, and therefore taxation, will diminish as a result of increasing vehicle efficiencies and moves towards other power systems such as electric vehicles. By ensuring that users of vehicles powered by electricity or other new fuels contribute to land transport funding, such systems would potentially be fairer though still allowing charges to reflect the lower ‘externalities’³⁶ associated with these fuels. They could also affect the demand for infrastructure, and the use of certain modes
at particular times and places, through their ability to differentiate the rates applied. In addition, they can be designed to take into account the needs of disadvantaged groups and those in rural areas.

Such systems have, in the past, been expensive to implement and have generated concerns over acceptability and the need for alternative forms of travel. Nevertheless, they can be powerful tools in helping to achieve behavioural change and thus a number of the transport targets. An integral part of the Strategy is that different options and technologies for generating revenue through charging should be considered for New Zealand, as in other developed countries.

The government will therefore evaluate the costs and benefits of different options for generating revenue for potential introduction in the medium term. This will include consideration of charging based on the distance, time and location of travel, and the type and weight of vehicle. Any decision on changing the system would depend on:

• how well other measures have achieved progress towards the targets
• the further development of the necessary technologies and reduction in their costs
• trends in the levels of funding that come from traditional charging methods.

Further work is required to establish the most appropriate systems – including consideration of how such systems can take account of social issues and local government interests as owners (and significant funders) of 90 percent of the road network. Research is also required into the full costs associated with different modes at different times and places, including the costs of externalities. In evaluating distance and time based charging, consideration will be given to the impact such initiatives would have on businesses dependent upon long-distance supply and delivery chains (such as primary sector producers and rural supply businesses).

Meanwhile, the evaluation of major infrastructure projects should consider the possible effects that different methods of generating revenue may have on managing future demand and therefore, whether the need for that project remains.

3.2.6 USING NEW TECHNOLOGIES AND FUELS

The government is committed to supporting the development of new technology and its rapid uptake. New technology and fuels will play a major role in improving the fuel efficiency of the transport system, as well as in reducing its reliance on fossil fuels and emissions of CO2 and harmful pollution. The government will pursue an increase in the diversity of the fuel mix and has committed to being one of the first countries to widely use electric vehicles.

New technology can improve the operational performance of the transport system in many other ways. Improvements to vehicle technology have been responsible for a significant proportion of the reduction in road deaths over the last 30 years. They have made similar contributions to the safety of other modes and will continue to play a major role in safety in the future. Technology will also improve efficiency through the use of fleet and logistics management systems, traveller information systems such as real-time information, traffic management, integrated public transport ticketing, the systems that support air and maritime security, and emergency planning and response management.

New technologies are almost exclusively developed by the market. However, the government is able to speed up their roll-out (building on New Zealand’s reputation as an ‘early adopter’ of technology) through direct investment, promotion and other measures. Promoting new technologies may also require action to speed up the removal of old technologies from the system, for example by considering vehicle retirement initiatives.

3.2.7 MAINTAINING AND IMPROVING INTERNATIONAL LINKS

As a trading nation heavily dependent on tourism and primary production, New Zealand’s international transport connections are critical to sustaining the economy. In 2006/7, 99 percent of New Zealand’s export and import tonnage travelled by sea and 99 percent of international visitors arrived by air. To participate in international transportation, New Zealand must comply with increasingly stringent international security, biosecurity and environmental standards. There is growing global concern about the level of greenhouse gas emissions produced by the international aviation and maritime industries. This is particularly significant for New Zealand as it is remotely located from many of its trading partners. International bodies such as the International Maritime Organisation are investigating ways to reduce these emissions. Furthermore, in response to terrorist threats, international organisations and individual states are introducing additional security standards often with short lead times.

New Zealand will continue to liberalise its air agreements with other countries to open up new opportunities and markets for trade and tourism. High priority is given to securing additional access to New Zealand’s most important tourism markets and trading partners, where open arrangements have yet to be secured. The challenges faced by Pacific Island countries in complying with international maritime and aviation safety, biosecurity and security standards are considerable. New Zealand will continue to support capacity building and assistance to these countries in particular, working through regional organisations such as the Pacific Aviation Safety Office and the Secretariat of the Pacific Community’s Regional Maritime Programme. This action will ensure that safe and reliable direct connections between New Zealand and Pacific Island countries remain.

The government will continue to participate in international forums so that New Zealand’s interests are understood and considered in international agreements relating to safety, security, climate change, biosecurity, and environmental standards for travel and transportation.

3.3 TURNING STRATEGY INTO ACTION – DELIVERING THE VISION AND TARGETS

These key components, together with other areas of transport activity, will help to deliver the transport vision and targets by 2040. Central and local government will continue their normal policy, planning, regulatory, investment and monitoring functions across air, sea and land transport (as set out in Chapter 4). However, increasing the focus on the key components, and where necessary their priority for funding, will achieve the changes that are required.

This Strategy provides the high-level framework for transport decision-making over the next 30 years. However, the transport needs of different parts of New Zealand vary and different solutions will need to be applied to reflect local conditions. Priorities will also change over time. Detailed policies, proposals for action and funding arrangements will be determined as follows:

• Within the land transport sector, a three-yearly Government Policy Statement on Land Transport Funding (GPS) will set out the levels of funding that go to different areas of the transport system. The GPS will contain short-term targets. Three-yearly National Land Transport Programmes will give effect to the GPS.
• The government will develop more detailed strategies that set out the specific actions for particular modes or aspects of the transport system. Examples already in place include strategies for walking and cycling, domestic sea freight, rail, State highways, road safety and safety for recreational boating. Some of these will need to be updated and additional documents will be required in other areas to implement this Strategy.
• At the regional level, many of the specific actions that will deliver the land transport targets in this Strategy will be set out in Regional Land Transport Strategies (RLTSs) and Regional Land Transport Programmes. RLTSs will also set regional transport targets. A key task for government and local authorities within the regions will be to work together and ensure these regional targets reflect local circumstances and priorities, but are also consistent with the national targets in this Strategy and in the GPS.
• A number of short-term supporting actions have been identified to assist in achieving targets and develop improved responses to transport issues. These actions will be undertaken over the next three years. This work will be led by the government but will involve local authorities and other stakeholders as necessary.

The government will develop a comprehensive action plan by 31 March 2009 that will identify accountabilities and timing for the various actions to implement this Strategy.

Going forwards, the government will continue to work with transport sector stakeholders in a collaborative, accountable and evidence-based manner.

Finally, the government will rigorously monitor and evaluate progress, and will review the Strategy at regular intervals to ensure it responds to changing circumstances (as set out in Chapter 6).

Footnotes:

26. Physical barriers sometimes erected alongside roads to reduce noise levels in nearby properties
27. Individuals going to the same destination who share the car journey
28. Traffic management initiatives that seek to manage traffic flows more efficiently are not strictly part of travel demand management However, measures such as high occupancy vehicle lanes contribute to both objectives, which are generally complementary
29. Development extending along main arterial roads out of urban centres
30. For example, amendments to section 30 of the Resource Management Act 1991 introduced in 2005 provide for regional councils to promote the strategic integration of infrastructure with land-use for the purposes of giving effect to the Act
31. ONTRACK annual report 2007
32. An accessible journey is one whereby all the steps needed for a person to get from their home to their destination, and then home again, are regarded as linked and of equal importance (definition from The Accessible Journey Report by the Human Rights Commission 2005)
33. Car clubs where a group of people jointly own a car can give people access to a car on a pay-as-you-go basis. Car clubs can save users from the associated costs of sole ownership a vehicle or a second vehicle
34. A ’road user hierarchy’ can be applied to reflect the importance attached to each mode of travel, often starting with people with mobility and sensory impairments at the top, followed by pedestrians, cyclists, public transport users, powered two wheeled vehicles, commercial businesses and, lastly, car trips
35. A shared zone refers to a section of street where pedestrians, cyclists and motorised traffic share the same road space. Special rules and speed limits apply for shared zones
36. The costs to society that transport users do not pay directly for, eg pollution and congestion

 

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