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4. Gloucester
Street "Streets for People" Trial
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Reference Te Tohutoro:
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24/440771
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Responsible Officer(s) Te Pou Matua:
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Lauren
Boyce, Transport Project Manager
Hannah Ballantyne, Senior Engagement Advisor
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Accountable ELT Member Pouwhakarae:
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Brent
Smith, Acting General Manager City Infrastructure
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1. Purpose and Origin of the Report Te Pūtake Pūrongo
1.1 The purpose of this report is to advise
the Hearings Panel on the outcomes of the feedback obtained from consultation
and engagement and of the data obtained from the monitoring and evaluation
during the Gloucester Street - Streets for People trial.
1.2 This report also requests that the
Hearings Panel make a recommendation to the Council on the future layout of
Gloucester Street between Colombo Street and Manchester Street.
1.3 This is a staff-initiated report.
1.4 The decisions in this report are of medium significance in relation
to the Christchurch City Council’s Significance and Engagement
Policy. The level of significance was determined by undertaking a significance
assessment and has been classified as medium due to the number of people
affected, the level of impact on those affected, the high level of key
stakeholder interest and the potential impacts on future social, economic and
cultural wellbeing of the city.
2. Officer Recommendations Ngā
Tūtohu
That the Hearings
Panel:
1. Receives the information in the Gloucester Street "Streets for
People" Trial Report and
considers the written and oral submissions made as part of the public
consultation process.
2. Notes that the decision in this report is
assessed as medium significance based on the Christchurch City Council’s Significance and
Engagement Policy.
3. Recommends that Council approves the staff
recommendation to retain an amended trial layout, as shown in Attachment B,
until permanent changes are made.
a. Noting the amended layout retains many of the
existing layout features but has been adapted to accommodate the removal of the
hoardings on Gloucester Street following construction of the Court Theatre and
includes minor design changes to address identified issues.
4. Recommends that the detailed traffic
resolutions required to implement the changes, are brought back to Council for
approval when the final layout has been confirmed.
5. Recommends that Council consider funding for
permanent changes to Gloucester Street to be considered in a future Annual
Plan/Long Term Plan.
3. Executive Summary Te Whakarāpopoto Matua
3.1 Christchurch’s
Performing Arts Precinct was part of the Christchurch Central Recovery Plan
(CERA, 2012). It sits
north of Gloucester Street and includes the Court
Theatre, Isaac Theatre Royal, The Piano and further developments. Gloucester
Street connects the Performing Arts Precinct with Turanga, Te Pae, Cathedral
Square and beyond and is anticipated to be a high pedestrian activity
area.
3.2 The
Gloucester Street “Streets for People” trial allowed Council to
test transitional improvements to Gloucester Street, which included changes
such as lowering the speed limit, adding street furniture, adding speed
reduction measures, new paint marking and other features that would create an
environment that is safe and attractive for road users. Construction of
the trial layout finished in December 2023.
3.3 Monitoring
and evaluation was carried out during the trial to understand the project's
impact. Sections 4.31 and 4.32 of this report provides a summary of the data
collected during the trial period, which was used to determine how well the
trial layout met the project objectives of creating a safe space for all,
creating a destination, providing travel choice and increasing public trust and
support.
3.4 The
monitoring data showed that the 85th percentile vehicle speed
throughout the trial period was higher than the posted speed of 10km/h,
however, vehicle speeds on Gloucester Street decreased by 44% on average and
vehicle volumes decreased by 30%. Over half of submitters (57%) submitters
indicated that they feel safer using the street new compared to before the
trial.
3.5 Feedback
relating to creating a destination showed that visitors to Christchurch liked
the changes, with between 68-87% saying to keep each aspect of the trial
layout. However, business and local organisation were mostly opposed to the
changes, with between 58-73% wanting to get rid of each aspect. The economic
data obtained shows that overall spending in the local area increased during
the trial period, with total monthly spend increased by 12.5% and the number of
transactions increased by 11.3%, and the average number of pedestrians per hour
increased by 7%.
3.6 Monitoring
showed that travel choice improved over the trial period, with a 33% increase
in average cycling numbers (from 15 cyclists per hour to 21 cyclists per hour)
and a slight increase in scooter numbers (from 6 scooters per hour to 8
scooters per hour). Feedback also indicated an increase in public trust and
support, with the majority supporting the trial layout.
3.7 Engagement
carried out throughout the trial period indicated that there were more people
in favour of the various design elements and overall project than opposed, with
support for the respective design elements ranging between 46% and 73% and
opposition for the respective design elements ranging between 16% and 28%.
3.8 Based
on the feedback data gathered during consultation, and monitoring and
evaluation, the recommended option is Option 1: Retain an amended trial
layout.
4. Background/Context Te Horopaki
Why Gloucester Street?
4.1 The
Christchurch Central Recovery Plan (CERA, 2012) was developed following
the 2011 earthquakes and included several new “anchor” projects
within the central city.
4.1.1 One
of the anchor projects was the Performing Arts Precinct, located between
Gloucester Street, Armagh Street, Colombo Street and New Regent Street.
The precinct includes The Piano music centre, the Isaac Theatre Royal and will
soon contain the new Court Theatre. The remainder of the Performing Arts
Precinct public spaces will be subject to a comprehensive public realm upgrade
with new laneways and a central courtyard. Funding for these upgrades is
included in the 2024-2034 Long Term Plan as Performing Arts Precinct Public
Realm project, with spending planned between FY24/25 and FY27/28.
4.1.2 The
future form of Gloucester Street was described in An Accessible City –
the Streets and Spaces Design Guide (CERA, 2015), which was developed to demonstrate the
intended form and function of central city streets. However, changes to
development patterns – most notably the removal of two parking buildings
in close proximity to Gloucester Street – means that the street may not
function as originally anticipated.
4.2 Given its strategic location for
residents and tourists – linking New Regent Street, Te Pae, Tūranga, the Performing Arts Precinct, and Cathedral Square
– there was an
opportunity to consider a different form and function for this street, which
aligned with New Zealand Transport Agency (NZTA) Streets for People Trial.
4.2.1 Further
information detailing the background for development of the Performing Arts
Precinct and the selection of Gloucester Street for future development is
provided in Attachment C.
4.3 When
NZTA requested applications for its Streets for People funding programme, they
were seeking projects that support an increase in active travel or safety,
offering an opportunity to trial temporary changes to inform designs for future
permanent changes.
New Zealand Transport Agency Waka Kotahi’s
Streets for People Programme
4.4 In
February 2022, Council was successful in their application for Streets for
People funding to trial transitional improvements to Gloucester Street between
Colombo and Manchester Street.
4.5 NZTA
approved funding the trial at a high assistance rate of 90%, with the remaining
10% funded by Council. This came with conditions, most notably that the trial
must be completed and data gathered and analysed by the end of June 2024, as
the funding window would close after this date.
Initial Proposal
4.6 The
trial aimed to promote a shared space and low speed environment, reflect the
emerging land uses along the corridor, the streets identity as the boundary of
a Performing Arts Precinct with high pedestrian demand and the strategic
location linking several popular Christchurch attractions.
4.7 The
plan was developed in discussion with businesses and organisations based on
this section of Gloucester Street from September 2022.
4.8 During
early engagement there was general support of the key moves of the project,
with most concerns satisfied by the ability of the trial to be adapted
throughout.
4.9 The
proposed design included paint and planters within the road space, a low-speed
environment (10km/h), one way traffic flow for motorised vehicles (westbound
travel only), a Wāhi Taiao (stage) performance space, and outdoor dining
areas.
4.10 The
trial was scheduled to begin in March 2023 to tie in with a number of events in
the Central City.
4.11 In
February 2023, TMP signage went up ahead of the trial being installed which
resulted in negative feedback about the one-way design of the trial being
received from some central city businesses. In response to this, the then Chief
Executive paused the project until Council were able to make a decision on next
steps.
Revised Proposal for Implementation
4.12 On
6 September 2023, a staff report to Council recommended that Council not
proceed with the delivery of this project. This recommendation was based on the
relative advantages and disadvantages of proceeding with the project, where the
advantages were considered to be;
· the opportunity to trial
changes at low cost to Council,
· the ability to obtain data
to guide the permanent design of Gloucester Street,
· prior engagement with
businesses along Gloucester Street indicated that they were largely in favour
of the design and supportive of the vision for the corridor,
· the ability to adapt the
trial layout as development progresses on Gloucester Street, and
· the project would not be
permanent, so the street could be returned to its original function if
required.
The disadvantages were considered to be;
· the difficulty of being
able to fully deliver the project within the NZTA funding window,
· the uncertainty and
ongoing construction activity on adjacent sites meant the project timing was
not considered appropriate,
· The trial would respond to
current use and behaviour, which was modified by on-going construction in the
vicinity, so it may not be predictive of future use and behaviour, and
· changes to Gloucester
Street had the potential to add to existing concerns about lack of parking and
access due to the Court Theatre construction.
4.13 Council
did not support the staff recommendation and instead voted for a foreshadowed
motion to deliver the trial, with a condition that it allow for two-way traffic
flow, and that the trial stay in place until the end of June 2024. This
re-started work on the project.
4.14 The
resulting updated plan allowed two-way traffic flow, incorporated a low vehicle
speed (10km/h) environment, a one lane section at the western end, and used
paint and planters within the road space. Outdoor dining areas (outside Odeon
and Francesca’s Italian Kitchen) and a Wāhi Taiao (stage) for
performances were also included. This was shown to the Community Board on 26
October 2023 prior to further stakeholder consultation
4.15 Further
engagement with all stakeholders interested in the project to date informed the
development of a new plan for the trial. At this point, some business
stakeholders raised concern about the ‘pinch point’ on the western
end.
4.16 At
the instruction of the then Chief Executive, the design was adapted to allow
for two lane access throughout the entire stretch of road. Without the
‘pinch point’, additional speed cushions were included to attempt
to achieve the emphasised slow speed environment. The construction plans for
this design are provided in Attachment A.
4.17 Construction
commenced on 12th November 2023 with the trial period officially
starting on 11th December 2023. The trial was carried out under
temporary traffic management, which allowed for changes to be made to the
layout during the trial in response to feedback from the post construction
safety audit, local stakeholders, the public and the project team.
During the trial
4.18 An
objective of the trial was to activate the street by creating a safe and
pedestrian friendly environment to attract people to the trial area. The
activation provided an opportunity for monitoring to be carried out on how
people engaged with the space and moved around the area. It also provided an
opportunity for feedback to be collected from attendees and changes to be made
reflecting feedback
Events
4.19 Activation
events carried out during the trial period included:
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Date
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Activation/Event
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2nd February 2024
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Chalk art installation, featuring angel
wings, on Tūranga wall
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2nd March 2024
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Circability Trust play session
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8th March 2024
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Morning People dance party
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9th March 2024
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Circability Trust play session
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16th March 2024
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Mini Street party (on 146 Gloucester St)
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12th April 2024
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More FM Kinky Boots drag race
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Feedback
4.20 Public
feedback was collected, between 11th December 2023 and 19th
February 2024, to determine the public’s view of the temporary changes
made and guide staff on what changes should be made to Gloucester Street during
the trial. A full analysis of submissions from this stage is available in Attachment
E and is summarised in Section 6 under “Community Impacts and
Views” in this report.
4.21 Changes
made during the trial period in response to feedback from stakeholders and
public included;
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Feedback
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Change made
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Difficult for heavy vehicles to manoeuvre
between planters and into bus parking
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Relocation of planters to improve
bus/heavy vehicle access
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No parking spaces for quick book drop off
at Turanga
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Converted one mobility space outside
Turanga (on Gloucester Street) to a P5 space. Following this change, there
were three mobility spaces remaining outside Turanga (two on Colombo Street,
one on Gloucester Street)
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Outdoor dining space wasn’t working
for Francesca’s Italian Kitchen, as the rubbish being left by people
using the tables and chairs was creating additional work for staff at
Francesca’s and they didn’t have enough staff to cover both the
inside and outside spaces.
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Tables and chairs were removed from
outside Francesca’s Italian Kitchen.
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4.22 Changes
made by the Council project team in response to observations or data collected
during the trial were;
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Observation/Data
collected
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Change made
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Vehicles travelling too fast through
midblock section
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Midblock speed cushions added, outside
Francesca’s Italian Kitchen, to reduce vehicle speeds
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Leased site (146 Gloucester Street) not
well used by public due to unsuitable surface material
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Site was resurfaced with artificial turf.
Planters and seating were rearranged to make the site more attractive and
usable.
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4.23 Consultation
closed on 20th February 2024, however visitors to Gloucester Street
are still able to provide feedback on anything urgent about the trial through
the visitor survey, which staff have been monitoring. After 20th
February 2024, all respondents from the trial feedback stage were advised of
the opportunity to make a formal submission to the Hearings Panel.
Monitoring and Evaluation
4.24 Monitoring
and evaluation were carried out by Abley Transportation Consultants. The
monitoring period ran between 11th December 2023 and 18th
March 2024 and involved collecting data through a variety of methods including,
parking occupancy surveys, traffic tube data (vehicle counts, vehicle speeds,
peak traffic periods, cycle volumes), Crash data and pedestrian surveys.
4.25 Towards
the end of the official trial period, it became clear there would not be
sufficient time to complete the evaluation in time for the full hearings
process to be carried out and a decision to be made by Council within the
Streets for People funding period. As such, a recommendation was presented to
Council on 1 May 2024 that the trial period be extended until Oct 2024 to
enable the full decision-making process to be carried out. This recommendation
was approved by Council.
4.26 The following related memos/information were circulated to the
members of the meeting:
Options Considered Ngā Kōwhiringa Whaiwhakaaro
4.27 The
following reasonably practicable options were considered and are assessed in
this report:
· Option 1: Retain an amended trial layout and consider funding for a
long-term option in a future Annual or Long Term Plan.
· Option 2: Full removal of the trial layout
4.28 The
following options were considered but ruled out:
· Option 3: Retain the existing trial layout - This option was discounted as
it does not allow for future change following the removal of the hoarding on
Gloucester Street outside the new Court Theatre building.
· Option 4: Make permanent changes to Gloucester Street - This option was not
considered further as there is not available budget in the FY24 – FY34
Long Term Plan. Any future permanent changes to the street will need to
be considered as part of future Annual Plans or Long Term Plans.
Options Descriptions Ngā Kōwhiringa
4.29 Preferred
Option: Option 1 - Retain an amended trial layout
4.29.1 Option
Description: This option primarily involves retaining the changes made
through the trial until a permanent solution is developed for Gloucester
Street. An additional change to the current layout to accommodate the upcoming
removal of the hoarding on Gloucester Street following the Court
Theatre’s construction is part of this option. It will also include an
extension to the coach parking space outside Fable Hotel to improve the ability
of tour coaches to manoeuvre in this space. The proposed amended trial layout
is shown in Attachment B)
4.29.2 The amended
layout would be legalised through traffic resolutions.
4.29.3 It would be
relatively cheap and easy to make further adaptations if required based on
future adjacent developments. Elements that could be easily changed include,
but are not limited to, removing the outdoor dining areas, removing the Wahi
Taiao (stage) or changes to the parking provision.
4.29.4 This option
retains the 10km/h speed limit that was adopted during the trial. It should be
noted that changes to speed limits are currently on hold while the consultation
and decision-making process is being carried out on the Setting of Speed
Limits 2024 Land Transport Rule. However, should Council be required to
change Gloucester Street back to 50km/h, it is considered that the presence of
speed cushions and the location of physical design features used during the
trial will continue to encourage a low-speed environment.
4.29.5 Option
Advantages
· Retains the
placemaking, pedestrian and cycling advantages of the current layout
· The space
gained by removal of the hoarding for the Court Theatre construction provides
an opportunity for an additional six car parking spaces (compared to the
existing trial layout)
· Can be
adapted, if necessary, to accommodate future development on Gloucester Street,
with the necessary approvals.
4.29.6 Option
Disadvantages
· Increased
maintenance costs (street cleaning behind street furniture, periodic refresh of
paint markings, repair to planters or other physical features, watering of
planters).
4.30 Option
2 – Full removal of the trial layout
4.30.1 Option
Description: This would involve Council removing all infrastructure (such
as planters, seating, speed humps, etc) and removing the painted road markings
that were added through the trial. The corridor will effectively return to the
pre-trial layout.
4.30.2 Option
Advantages
· There would
not be an ongoing operational and maintenance cost above standard business as
usual.
· The space
gained by removal of the hoarding for the Court Theatre construction provides
an opportunity for an additional eight car parking spaces (compared to the
existing trial layout)
· Reinstates
eight parking spaces removed through the trial (2 x P60 spaces, 6 x P5 spaces)
and reverts the mobility space (on the southern side of Gloucester Street
outside Turanga) that was converted to P5 during the trial back to a mobility
space.
4.30.3 Option
Disadvantages
· Does not
retain any of the placemaking, pedestrian and cycling advantages of the current
layout.
· Does not
“promote Gloucester Street as ‘a street of theatres’”
in line with the Streets and Spaces Design Guide.
Analysis Criteria Ngā Paearu Wetekina
Monitoring and Evaluation
4.31 A
monitoring and evaluation report was a requirement of the Streets for People
funding and it was used to measure the outcomes and effectiveness of
interventions that were implemented. Abley Transportation Consultants
undertook the monitoring and evaluation of the trial and provided their
assessment report in June 2024, which is included as Attachment D in
this report.
4.32 The
monitoring data was categorised against the areas included in the monitoring
and evaluation plan, which were:
· creating a safe space for
all
· creating a destination
· travel choice
· trust and support
Creating a safe space for all: Reducing
traffic speeds and volumes, increased use for 8 to 80 and improved safety.
Traffic
Speeds and Volumes
4.32.2 Traffic volumes
and speeds are key indicators of changes to travel patterns. Traffic counting
tubes were laid at four locations in the vicinity of Gloucester Street. The
data collected in December 2022 provided a pre-trial baseline. During the trial
data was collected between 14 December 2023 – 28 February 2024 and 23 May
2024 – 6 June 2024.
4.32.3 Vehicle speeds
on Gloucester Street have decreased by 44% on average and vehicle volumes have
decreased by 30%.
· The speed
limit on Gloucester Street was reduced to 10 km/h during the trial. The
recorded 85th percentile speed during the trial was between 21 km/h (west
counter) and 25 km/h (east counter). Before the trial the 85%ile vehicle speed
on Gloucester Street was 32 km/h.
· During the
trial the average daily traffic on Gloucester Street dropped to around 1500
– 1600 vehicles per day. Generally, there wasn’t any significant
change to the peak hour for traffic on Gloucester Street when compared to the
baseline data.
· Overall, there
was a reduction in the amount of traffic recorded on Gloucester Street during
the trial (30% reduction). While the average speed of traffic remained above
the posted limit, a reduction in the average speed of traffic was observed
across the trial period.
· Notably, the
volume of traffic observed on Armagh Street increased by 40% during the period
of the trial. This suggests that some of the vehicles previously using
Gloucester Street were instead choosing to use Armagh Street.
Submitter
Feedback
4.32.4 57% of
submitters indicated that they feel safer using the street new compared to
before the trial.
4.32.5 46% of
submitters thought that the Council should retain the street as a shared zone,
suitable for drivers, cyclists, pedestrians and other road users. 22% said the
Council should get rid of it.
4.32.6 Submitters told
us that the shared zone makes it safer for pedestrians to cross the road and
that it makes is easier/more accessible for pedestrians to cross the road.
4.32.7 60% of
submitters thought that the Council should retain the 10km/h speed limit,
telling us that it feels safer and encourages more pedestrian use of the
street. 22% said the Council should get rid of it.
4.32.8 Generally, most
submitters thought that the speed cushions are working well, with 57% saying
that the Council should retain these in the street. 28% thought that they
should be removed.
Creating a destination: An increase in
the number of people, the time spent in the area and the economic spend in the
area.
Spending
Information
4.32.9 Electronic
spending data from Marketview shows that both the total value of transactions
as well as the number of transactions increased over the period of the trial.
4.32.10 Between
November 2022 and June 2023, total spending in the area around Gloucester
Street totalled $20,668,055. In the period between November 2023 and June 2024
this increased to $23,219,873.
4.32.11 Between
November 2022 and June 2023 a total of 488,059 transactions were made in the
area. Between November 2023 and June 2024 this increased to 542,857
transactions.
4.32.12 On average,
the total monthly spend increased by 12.5% and the number of transactions
increased by 11.3%. This peaked in February 2024 when spending increased by
33.9% compared to February 2023 and the number of transactions increased by
25.6% compared to the previous year.
Pedestrian
Counts
4.32.13 Gloucester
Street before and during the trial was assessed using the pedestrian level of
service (PedLOS) tool as a city hub. The street operated as a city hub before
the temporary changes were put in place. The aim of the trial was to make the
street operate as more of a people friendly, civic space. The score for the
secure, safe and appropriate crossings and high-quality paths did not change.
These are permanent elements that were not changed as part of this trial. The
areas where the score improved were safety from vehicles and pleasant and
attractive street, which aligns with the overarching goal of the trial.
4.32.14 During the
trial the average number of pedestrians per hour on Gloucester Street increased
by around 7%. The counts increased from around 270 per hour in the pre-trial
survey to 289 per hour during the trial period.
4.32.15 Pedestrian
desire line data was collected to help understand how many pedestrians were
crossing the street and how they were crossing the street. The number of
vulnerable users recorded crossing Gloucester Street (somebody who was crossing
slowly or struggled to cross) remained relatively consistent during the trial
when compared to the pre-trial information. The number of children recorded
crossing the street increased by around 5%.
Submitter
Feedback
4.32.16 57% of
submitters indicated that they feel safer using the street new compared to
before the trial.
4.32.17 62% thought
that the street furniture should be retained and 64% thought that we should
continue to support outdoor dining on the street.
4.32.18 73% said that
we should maintain the ability to easily close the street for events and 56%
supported retaining the Wāhi taiao – performance space.
4.32.19 Christchurch-based
visitors to Gloucester Street were the most positive about all aspects of the
trial. Between 68-87% of these users said that Council should
‘keep’ each aspect of the trial, apart from ‘Gloucester
Street as a shared zone’.
4.32.20 Central City
businesses and organisations opposed all aspects of the trial more than the
full pool of submitters. Between 58-73% of these users said that Council should
‘get rid of’ each aspect of the trial.
Travel choice: An increase in active
travel, pick-up and drop-off and parking turnover and a decrease in parking
occupancy.
Bike and
Scooter Movement Survey
4.32.21 Cycle and
scooter counts were used to identify active mode movement patterns on
Gloucester Street.
4.32.22 The pre-trial
data recorded an average of 15 cyclists per hour in Gloucester Street. During
the trial this increased to around 21 per hour, an increase of 33%. The number
of scooter movements recorded increased slightly from 6 per hour to 8 per hour.
4.32.23 During all
monitoring it was noted that most people travelling along Gloucester Street did
not travel its full length. It was common for people to turn off at or come
from New Regent Street, Press Lane, or the library. It was also common for both
scooters and cyclists to switch between the footpath and the road.
Pick-Up
and Drop-Off Trends
4.32.24 Pick-up and
drop-off (PUDO) movements were studied to identify ride sharing activity. Given
the Gloucester Street area is the Performing Arts Precinct and has theatre
under construction, this activity is expected to increase.
4.32.25 A survey of
pick-up and drop-off movements was undertaken on both Gloucester and Armagh
Street, with a focus around New Regent Street.
4.32.26 Results from
the pre-trial survey indicated that most of the activity was drop-offs. Of
these drop offs, 47% were taxis and had a strong correlation with the event
start times. The peak drop-off time on the 27th October 2022
occurred at 6:15 pm before the first event at 6:30 pm. On the 29th
October 2022 the peak was at 6:45 pm before the first event at 7 pm.
4.32.27 During the
trial, all of the activity recorded was drop-offs. The peak drop-off time was
6:45 pm – 7:00 pm, again aligning with the start time of events and
venues in the area.
Vehicle Parking
4.32.28 Overall 4
parking spots were lost as a result of the trial. Multiple parking surveys were
conducted both before and during the trial to capture the impacts of events in
the area, as well as trends at different times of the day.
4.32.29 Baseline
surveys undertaken in October 2022 prior to the trial indicated that there is
high demand for on-street parking on Armagh Street, with occupancy at nearly
90% for all days surveyed. Demand for parking on the other adjacent streets was
mixed, generally P60 & P120 parks close to the performing arts precinct
experienced higher occupancy.
4.32.30 Prior to the
trial, half of the total on-street parking spaces were used to accommodate the
daytime peak demand (lunchtime). Wilson’s off-street carparks were
operating at 75% capacity to accommodate daytime peak demand, while other
off-street carparks were almost at capacity. Demand for both on-street and
off-street carparking reduced significantly during the evening peak when there
were no events on within the precinct.
Trust
and support: The number of people engaged, positive project feedback, increase
in diversity and number of people happy with the process.
Submitters
4.32.31 Three user
surveys were conducted between November 2023 and March 2024, with a total of
679 submissions received. The majority of people who provided feedback
supported the proposal with some changes to the design that were undertaken.
The changes included providing additional accessible parking on Gloucester
Street outside Tūranga, and relocating some street furniture.
4.32.32 Submissions
were made by 22 Central City Businesses, four organisations, and 229
individuals provided feedback.
4.32.33 Submissions
were made by Isaac Theatre Royal, Court Theatre, Tūranga, Fable
Christchurch, Foundation Café, Cosgroves, Wilson Parking NZ Limited, SFT
Group, and Imagination Station who are based on this section of Gloucester
Street, and Pacific Tourways Ltd who operate through the street.
Press Coverage
4.32.34 The project
received both negative and positive press during the trial period.
4.32.35 It is
important to note that other projects underway across the Central City also
impacted people's experiences throughout the duration of the trial. These
included projects such as the construction of Te Kaha, the Court Theatre
development, and other projects and construction being undertaken by the
private sector than had an impact on public space.
5. Financial Implications Ngā Hīraunga Rauemi
Capex/Opex Ngā Utu Whakahaere
|
|
Recommended Option
Option 1 – Retain an amended trial
layout
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Option 2 – Remove trial layout
|
|
Cost to Implement
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$110,000
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$240,000
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Maintenance/Ongoing Costs
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$36,000
annually (above BAU)
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Business
as usual maintenance
|
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Funding Source
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Capital
Programme #71599 Streets for People - Gloucester Street Shared
Space
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Capital
Programme
#71599 Streets for People -
Gloucester Street Shared Space
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Funding Availability
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Available
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Available
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Impact on Rates
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0.005%
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No
impact
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5.1 The
overall project budget for the Gloucester Street “Streets for
People” project was $1,396,301, of which NZTA were funding 90%. This
meant the cost to Council was expected to be $139,630.
5.1.1 The
actual spend to date has been just over $1.16m
5.1.2 This
leaves around $240k remaining in the project budget to implement these
options.
5.2 The
maintenance cost in the above table has been annualised. It is based on the
total cost over the next 5 years and assumes a total remark in 5 years. It also
includes costs for additional street sweeping, plant watering, plant
replacement/maintenance and replacing/repairing damage to physical
assets. The annual maintenance cost with no remark in 5 years is expected
to be $14,500. Maintenance costs for the first year are able to be accommodated
within existing budgets. Future year budget requirements need to be allowed for
in annual planning processes.
6. Considerations Ngā Whai Whakaaro
Risks and Mitigations Ngā Mōrearea me
ngā Whakamātautau
6.1 If
a temporary layout is retained, there is a risk that local developers and
stakeholders will raise concerns to Council - as they were informed the trial
would be temporary, so they may perceive this as a risk to their respective
developments. This is a reputational risk to Council.
6.2 One
of NZTA’s qualifying conditions for Streets for People funding was based
on submissions demonstrating there was a ‘path to permanence’.
Removing the layout completely, without evidence to justify the decision, may
give the impression that no permanent project was planned – resulting in
a lack of faith and trust in the relationship between NZTA and Council.
Legal Considerations Ngā Hīraunga
ā-Ture
6.3 Statutory
and/or delegated authority to undertake proposals in the report:
6.3.1 Council
has the statutory power to undertake all the proposals as set out in the
Delegations Register 24/05/2024. It is the role of the Hearings Panel to
consider and hear submissions from the community and information provided by
Council officers, deliberate on the matters raised, and make recommendations to
the Council as the final decision-maker.
6.4 Other
Legal Implications:
6.4.1 There
is no legal context, issue, or implication relevant to this decision, beyond
the normal decision-making considerations for the Council under the Local
Government Act 2002.
Strategy
and Policy Considerations Te
Whai Kaupapa here
6.5 The
required decision:
6.5.1 Aligns
with the Christchurch
City Council’s Strategic Framework. This decision relates to whether
the trial layout on Gloucester Street is retained until permanent changes are
made to Gloucester Street or if the street is reverted to the pre-trial layout.
6.5.2 Is
assessed as medium significance based on the Christchurch City
Council’s Significance and Engagement Policy. The level of
significance was determined using the significance assessment sheet and has
been classified as medium due to the number of people affected, the level of
impact on those affected, the high level of key stakeholder interest and the
potential impacts on future social, economic and cultural wellbeing of the
city.
6.5.3 Is consistent with Council’s Plans and
Policies. The recommended option continues to enhance the street environment in
line with Council’s transport objectives.
6.6 This
report supports the Council's
Long Term Plan (2024 - 2034):
6.7 Transport
6.7.1 Activity: Transport
· Level of Service: 10.5.2 Improve the perception (resident
satisfaction) that Christchurch is a cycling friendly city - >=67%
· Level of Service: 16.0.10 Maintain the perception (resident
satisfaction) that Christchurch is a walking friendly city - >=85% resident
satisfaction
Community
Impacts and Views Ngā Mariu ā-Hāpori
Public Consultation Te Tukanga Kōrerorero
6.8 The
trial started on 12 December 2023, with feedback collected until 18 March 2024.
6.8.1 From
12 December to 19 February, feedback was collected via a visitor survey to
inform potential trial adaptions.
An email was sent to over 100 key
stakeholders, including Central City businesses and emergency services. Letters
were sent to all Gloucester Street property owners. Large signage advertising
what was being trialled and how to give feedback was erected at six points on
the street, posters were provided to all local businesses, and footpath decals
were put in several Central City locations. A Newsline
story inviting people to check out the trial and provide feedback was
posted, with this shared to Council social media. Paid advertising included
online, radio, street posters, bus shelters, newspapers and a billboard on the
Tram that travels through Gloucester Street. All advertising invited
submissions on the Kōrero
mai Lets talk webpage.
6.8.2 On
19 February, everyone who completed the visitor survey and identified
stakeholders (such as businesses, organisations and transport stakeholders)
were invited to make a formal submission. This formal consultation was open
until 18 March 2024.
6.9 During
the trial/consultation period, the Kōrero mai Let’s talk webpage was
viewed over 14,000 times.
6.10 257
people completed the visitor survey which highlighted immediate likes,
dislikes, and concerns from the start of the trial. Themes
from this feedback is available in Attachment E.
6.11 An identical survey was sent out to attendees
of the Morning People event (with supplementary questions provided to Morning
People). 165 visitors completed this survey. Themes
from this feedback is available in Attachment E.
Summary of Submissions Ngā Tāpaetanga
6.12 Formal
submissions were made by four recognised organisations, 22 Central City
businesses, and 229 individuals.
6.13 A
full table of submission feedback is available on the Kōrero mai
Let’s talk webpage.
6.14 Feedback
was reported on by trial aspect. A full analysis of submissions is available in
Attachment E.
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Trial aspect
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Keep it
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Get rid of it
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Make some changes
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Creating new ways for
people to connect
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Furniture on the street for relaxing,
eating, socialising and watching performances
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159 (62%)
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61 (24%)
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27 (10%)
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Outdoor dining
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165 (64%)
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40 (16%)
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12 (5%)
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The ability to easily close the street
for events
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187 (73%)
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50 (20%)
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10 (4%)
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Creating spaces that champion
the performing arts
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Wāhi taiao – performance space
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143 (56%)
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56 (23%)
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19 (7%)
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Creating a vibrant
and dynamic streetscape
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Footpath and road painting
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163 (64%)
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48 (19%)
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21 (9%)
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Planter boxes throughout the street
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161 (63%)
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46 (18%)
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42 (16%)
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Creating a safe
shared road space
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Gloucester Street as a shared zone,
suitable for drivers, cyclists, pedestrians, and other road users
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117 (46%)
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55 (22%)
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78 (30%)
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Speed limit reduction to 10km/h
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153 (60%)
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56 (22%)
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36 (14%)
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The use of speed cushions to bring speeds
down
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143 (56%)
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65 (25%)
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26 (10%)
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The use of lane narrowing (using bollards
and planter boxes) to bring speeds down
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147 (57%)
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70 (28%)
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27 (10%)
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6.15 The
decision affects the following wards/Community Board areas:
6.15.1 Waipapa
Papanui-Innes-Central Community Board
6.16 The
Community Board’s view on the information in
the report was not known at the time the report was prepared and they have not
chosen to submit or speak to the panel.
Impact
on Mana Whenua Ngā
Whai Take Mana Whenua
6.17 The decision does not involve a significant decision in relation
to ancestral land or a body of water or other elements of intrinsic value,
therefore this decision does not specifically impact Mana Whenua, their
culture, and traditions.
6.18 The decision does
not involve a matter of interest to Mana Whenua and will not
impact on our agreed partnership priorities with Ngā
Papatipu Rūnanga.
6.19 Impact on Mana
Whenua is expected to be minimal. The scope of the project is limited to a
single block of Gloucester Street between Colombo and Manchester Street.
Climate
Change Impact Considerations Ngā Whai Whakaaro mā te Āhuarangi
6.20 The
decisions in this report are likely to:
6.20.1 The proposals
in this report are unlikely to contribute significantly to adaptation to the
impacts of climate change or emissions reductions.
6.20.2 While the
purpose of Streets for People funding is to accelerate the uptake of
sustainable transport modes, the project itself is unlikely to significantly
contribute to a reduction in transport emissions due to the limited scope of
the project.
7. Next Steps Ngā Mahinga ā-muri
7.1 Finalise
the final layout and prepare the detailed traffic resolutions to be presented
to the Council for approval.
Attachments Ngā Tāpirihanga
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No.
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Title
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Reference
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Page
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a ⇩
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Gloucester St
"Streets for People" Plans - Construction Issue 1
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24/1279240
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21
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b ⇩
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Gloucester St
shared space - Amended Layout Plan
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24/1286601
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23
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c ⇩
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Gloucester
Street - 'Streets for People' Background Information
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24/1174433
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24
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d ⇩
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Monitoring and
Evaluation Report (Abley)
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24/1305058
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29
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e ⇩
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Meet me on
Gloucester | analysis of submissions
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24/991995
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117
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In addition to the attached documents, the following background
information is available:
Signatories Ngā Kaiwaitohu
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Authors
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Lauren Boyce -
Project Manager
Hannah
Ballantyne - Senior Engagement Advisor
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Approved By
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Oscar Larson -
Team Leader Project Management
Jacob Bradbury
- Manager Planning & Delivery Transport
Tony
Richardson - Finance Business Partner
Lynette Ellis
- Head of Transport & Waste Management
Brent Smith -
Acting General Manager City Infrastructure
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