Korean Coast District Council and the Asset Management Plan of Action

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3 Contents Table of Contents Table of Contents...i EXECUTIVE SUMMARY...1 Our Strategic Goals...1 What We Do...1 Why We Do It...2 Key Issues...2 Improving Community Resilience...2 The Proposed Expressway...2 Peak Oil and Other Resource Shortages...3 Climate Change Effects...3 Growth Management...3 Implementation Plan...3 New Development...3 Incomplete Networks for Cycling, Walking and Horse Riding...3 Demographic and Land Use Changes...3 Safety Concerns...3 Declining Levels of Walking and Cycling To Work and School...4 The Government Policy Statement 2012/ / What the Community Expects...4 Table 1 Cycleways, Walkways and Bridleways Levels of Service and Related Performance Indicators...5 Key Assumptions and Uncertainties...6 How We Fund It...6 How Much It Costs INTRODUCTION Goals and Asset Types...9 Cycleways, Walkways and Bridleways Goals...9 Asset Types Covered by This Plan...9 Table 1.0 Cycleways, Walkways and Bridleways Asset Types Activity Description and Rationale Linkages Figure 1 Asset Management Plan Linkages Key Issues Implications for Cycleways, Walkways and Bridleways of Wider Issues Improving Community Resilience The Proposed Expressway Peak Oil and Other Resource Shortages Climate Change Growth Management Specific Issues for Cycleways, Walkways and Bridleways Figure 2 Cycle Casualties in the Kāpiti District Figure 3 The New Zealand Household Travel Survey Results Figure 4 Census 1986 and 2006 Results Significant Negative Effects The Level of this Plan Table 1.1 Assessment Against Planning Level Factors LEGAL AND POLICY REQUIREMENTS Key Strategies and Council Policies Legislative Requirements Table 2.0 Acts Relevant to Cycleways, Walkways and Bridleways Asset Management Page i of 94

4 Contents 2.3 Relevant Standards Table 2.1 Relevant Standards Impacting Cycleways, Walkways and Bridleways LEVELS OF SERVICE User Research and Expectations LTCCP 2003 Consultation Workshops Resident Opinion Survey Figure 5 Resident Opinion Survey Results School Travel Plans Users and Stakeholders Table 3.0 User Groups Table 3.1 Stakeholders Customer Values Table 3.2 Cycleways, Walkways and Bridleways Customer Values Council s Strategic Goals Community Outcomes Leadership Statement Table 3.3 Leadership Statements Relevant to Cycleways, Walkways and Bridleways Levels of Service Table 3.4 Primary Levels of Service for Cycleways, Walkways and Bridleways Table 3.5 Secondary Levels of Service for Cycleways, Walkways and Bridleways Gaps in Information or Levels of Service Achievement Information Gaps Levels of Service Achievement DEMAND MANAGEMENT Impacts of Residential Growth Changing Demand Demand Forecast Demand Management Strategies Recreation Choices Figure 4.0 Sport and Recreation Activities with the Highest Participation Levels Figure 4.1 Attracting New Cyclists RISK MANAGEMENT Risk Summaries Table 5.0 Cycleways, Walkways and Bridleways Risks High Consequence Risks Table 5.1 Risks Action Plan LIFE CYCLE MANAGEMENT Overview Table 6.0 Asset Groups and Location of Life Cycle Mmanagement Information Lifecycle Activities General Lifecycle Management Strategies Operations and Maintenance Strategies Operations and Maintenance Plan Renewals Strategies Development Strategies Disposal Strategies General Standards and Specifications Used Performance Information Management Paths Asset Description Performance Cycle Lanes Page ii of 94

5 Contents Asset Description Performance Built Assets Asset Description Structures Asset Description Performance FINANCIAL SUMMARIES Year Financial Forecast Key Assumptions Confidence Levels Valuation Summary Development Contributions Revenue and Financing Policy Funding Source Allocation: ASSET MANAGEMENT PRACTICES Asset Management Data Table 8.0 Asset Management Data Quality Assessment Asset Management Processes Table 8.1 Asset Management Processes Assessment Asset Management Information Systems Table 8.2 Asset Management Information Systems Assessment Organisational/Commercial Strategies Table 8.3 Organisational and Commercial Strategies IMPROVEMENT PLAN Table 9.0 Improvement Plan Appendices APPENDIX A - Walking and Cycling Movements Within the District APPENDIX B - LTCCP 2003 Consultation Workshops APPENDIX C TRAFFIC VOLUME VERSUS DESTINATION MAP APPENDIX D RISK REGISTER Table 1 Asset Management Risks Risks with Specific Relevance to Cycleways, Walkways and Bridleways APPENDIX E 20 YEAR FINANCIAL FORECAST APPENDIX F DETAILED ASSET VALUATIONS Page iii of 94

6 Executive Summary EXECUTIVE SUMMARY Our Strategic Goals Cycleways, Walkways and Bridleways Strategy: Our Vision as stated in the Cycleways, Walkways and Bridleways Strategy: The Kāpiti Coast is renowned for walking cycling and horse riding. Our strategic goals are: To promote walking, cycling and horse riding as safe, everyday modes of transport and recreation. To develop safe networks which improve walking, cycling and horse riding access and linkages throughout Kāpiti. To encourage and improve, local regional and national co-ordination, cooperation and collaboration in the planning and provision of safe walking, cycling and horse riding opportunities. What We Do The assets covered by this Plan are 1 : 3.7km concrete paths; 3.5km of asphalt paths 1 Parks and open spaces are covered by the Parks Open Spaces Asset Management Plan. Page 1 of 94

7 Executive Summary 200m of boardwalk; 21.7km of gravel tracks (topcourse); 21.8km of unformed tracks (including 100+ beach accessways); 13km of cycle lanes (maintained through the Access and Transport Asset Management Plan); 1.4km of shared or cycle paths; and walking and cycling infrastructure (signs, barriers, seats etc built assets) These assets are managed by the Cycleways, Walkways and Bridleways Implementation Coordinator who is in the Leisure and Open Space Asset team, and who also works closely with the Access and Transport team to deliver cycleways, walkways and bridleways services. A service level agreement is in place with Kāpiti Coast District Council s Operations team to carry out the maintenance schedule for beach accessways and mowing of walkways assets in parks and open space. External contractors are used for specialist maintenance such as pavement pathway repairs, spraying and line marking. Capital works are carried out by external companies. Why We Do It There are a number of reasons why Kāpiti Coast District Council should provide cycleways, walkways and bridleways. There is a clear expectation in the LGA 2002 that Councils will provide recreational open space as part of their services and the provision of cycle, bridle and walking tracks is an integral part of that expectation. Cycleways, walkways and bridleways make a significant contribution to the community s health and physical well-being, by offering space for physical exercise and recreation, access to facilities and linkages between and across communities. An attractive and functional network of tracks and trails is a source of pride and pleasure for the community and this contributes to the Kāpiti District s desirability as a place to live, work and visit. Key Issues A number of wider issues are identified in Part A of this Plan (Chapter 3) which have implications for cycleways, walkways and bridleways management and have been kept in mind while producing this Asset Management Plan: Improving Community Resilience The provision of active transport facilities linking key origins and destinations will broaden the range of transport options. The Proposed Expressway May offer opportunities to acquire new reserve land to enhance cycleway, walkways and bridleways network connectivity, particularly around Poplar Avenue and Leinster Avenue. Other opportunities for improving cycling through the District will include a new purpose built north-south walking and cycling route within the Expressway designation. There will also be an opportunity to upgrade the existing State Highway route. Page 2 of 94

8 Executive Summary Peak Oil and Other Resource Shortages Will certainly require efficiencies in use of both materials and energy which may result in a need to scale back service provision. Alternative sources of both resources and energy will be sought. In an era of global oil price uncertainty, supply volatility, peak oil and climate change, provision for a more diverse transport system with options for transport that do not depend on fossil fuel make good sense economically and environmentally for individuals and communities particularly for journeys less than five kilometres. Climate Change Effects May increase some or decrease other services or activities. Coastal linkages within the cycleways, walkways and bridleways network could be compromised and the provision of flow paths for flood waters may create new opportunities or challenges in maintaining a connected cycleways, walkways and bridleways network. This will require close collaboration with both the Leisure and Open Space and Stormwater teams. Growth Management More than 20% of the District s population is over 65 and 75% of the population live in the urban areas of Waikanae, Raumati and Paraparaumu. The expansion of the District in the last 20 years has increased the volumes of traffic particularly on arterial roads. Walkers and cyclists are obliged to share the same roads and highways as faster moving vehicles. For the period covered by this Asset Management Plan, the following key issues relating to cycleways, walkways and bridleways have been identified: Implementation Plan Currently the Cycleways, Walkways, and Bridleways Activity is in between implementation plans and has been operating within minimal budgets, which is explained further in Chapter 3.1. New Development Subdivisions are permanent features in the landscape which can enhance or restrict public access by either providing land for expansion of cycleways, walkways and bridleways facilities or by restricting access by developing private land. Incomplete Networks for Cycling, Walking and Horse Riding The network of pathways and facilities between and within the District s communities are incomplete and disconnected. Community feedback has indicated that these networks do not yet provide adequately for the needs of different users. Demographic and Land Use Changes More than 20% of the District s population is over 65 and 75% of the population live in the urban areas of Waikanae, Raumati and Paraparaumu. The expansion of the District in the last 20 years has increased the volumes of traffic particularly on arterial roads. Active transport modes, such as walking and cycling, are obliged to share the same roads and highways as fast moving vehicles. Safety Concerns A major disincentive to cycling is the perception of danger from cars. The shoulders on arterial roads and state highways must provide adequate room for cyclists. Feedback from those who cycle on roads suggest speeds on rural roads are too high and traffic volumes on urban arterials are high which discourages new cyclists. Page 3 of 94

9 Executive Summary Declining Levels of Walking and Cycling To Work and School The Kāpiti District has low levels of walking and cycling to work relative to other parts of New Zealand, such as Wellington and Auckland, because most workers travel considerable distances to their employment. Overall walking and cycling for the trip to work in Kāpiti has declined 44% in the last 20 years. The Government Policy Statement 2012/ /22 This policy states that investment in walking and cycling is expected to make a contribution to economic growth and productivity. To achieve this, funding should be directed to projects that reduce congestion and/or improve pedestrian and cyclist safety. What the Community Expects The community supports the development of the Cycleways, Walkways, and Bridleways Strategy, its vision, objectives and action targets, and the formation of a comprehensive cycleways walkways and bridleways network. Several hundred comments relevant to the Strategy and the provision of cycling, walking and horse riding facilities were received via the LTCCP 2004 consultation workshop sessions. The provision of better levels of service across the District was one of the most popular issues raised during the consultation process. Community feedback indicated that there is a lack of a comprehensive network of pathways and facilities linking communities and providing for the needs of different users. Feedback from workshops run during the 2004 LTCCP consultation process indicates that the community wants: provision of better levels of service for cycleways, walkways and bridleways across the District; better access and connections, particularly between existing open spaces (including the coast and rivers) and better links to the cycleways, walkways and bridleways network such as through Queen Elizabeth Park, Peka Peka to Te Hapua Road, Mataihuka Walkway and connections to the Waikanae River south bank; that the Kāpiti Coast becomes nationally recognised for an extensive walkway, cycleway and bridleways system, in particular: a coastal walkway, cycleway and bridleway from Paekākāriki to Ōtaki and north; extensive linkages to schools, town centres, community facilities, public transport and key natural features; safe access within and across the State Highway and Expressway corridors; relatively easy access along the coastal escarpment and lower hills: and good access up into the back country; formation of a comprehensive cycleways, walkways and bridleways network across the District; and increased facilities for dog walking. The community has indicated it wants the Kāpiti Coast District to become renowned for best practice subdivision design that includes trees, landform, waterways, parks, walkways, cycleways and bridleways as features. Page 4 of 94

10 Executive Summary Table 1 Cycleways, Walkways and Bridleways Levels of Service and Related Performance Indicators Proposed level of service Proposed measures Accessibility Cycleways, walkways and bridleways networks are available for people of all ages and abilities. Availability The cycleways, walkways and bridleways network is available to users and provides links across the District. Biodiversity The cycleways, walkways and bridleways network enhances the public s experience of biodiversity. Quality Cycleways, walkways and bridleways network enhances people s experience of the outdoor environment. Each settlement has at least one cycleways, walkways and bridleways facility that provides an equivalent experience for all visitors regardless of age any limit to their abilities. The cycleways, walkways and bridleways network is available at all times throughout the District. Each settlement has a cycleways, walkways and bridleways facility that links to an adjacent settlement. See note below. The cycleways, walkways and bridleways network offers a range of recreational amenity experiences. The cycleways, walkways and bridleways network will provide safety, comfort, directness, coherence and attractiveness to its users Safety Users of the cycleways, walkways and Hazards are well managed and accidents bridleways networks are as safe as practicable resulting in serious harm are rare. given the nature of the activities. Note: The Council is aware that the community places considerable value on the maintenance and enhancement of biodiversity in parks and open spaces. At present, there is no practicable way of measuring its performance on this. However, Greater Wellington Regional Council and the Department of Conservation are working on a Biodiversity Strategy which will address this in the next few months. When this Strategy is published, the Council will develop a measurable Level of Service relating to biodiversity for inclusion in this Asset Management Plan. Page 5 of 94

11 Executive Summary Key Assumptions and Uncertainties Assumptions: Current levels of service will be maintained. Council land purchase provides opportunities for permanent cycleways, walkways and bridleways connections via the strategic land purchase programme. Uncertainties: Changes in the Government Policy Statement (GPS) affect the eligibility of walking and cycling projects receiving New Zealand Transport Agency (NZTA) funding support. New Zealand Transport Agency funding is only provided for commuter cycleways which are typically located in land reserved for roading purposes. Cycleways, walkways and bridleways networks often cross boundaries between road reserve, public land and recreation land and may include private landowners or land owned by other agencies such as the Department of Conservation, Kiwi Rail, Greater Wellington Regional Council, the New Zealand Transport Agency or the Crown. Land ownership has implications for what can be funded by the New Zealand Transport Agency. Land suitable for cycleways, walkways and bridleways networks and the ownership of that land also has implications for what can be funded by Council. Agreements the Council has with landowners who allow public access across private property range from a signed written agreement to leases or management agreements, which may be revoked at the owner s request after a mutually agreeable time period. Receipt of funding from external partners for walking and cycling projects are often tagged with time constraints on when that funding must be used by. Projects can have a period where the Council anticipates funding will be available but has to plan and progress other projects in the interim until the fundraising targets are met. This requires a certain level flexibility within a fixed budget to manage community aspirations while ensuring that Council s commitments to New Zealand Transport Agency are also delivered. Subdivision and development of private land can provide opportunities for cycleways, walkways and bridleways network connections that may require Council funding commitments. How We Fund It Cycleways, walkways and bridleways are funded through the Access and Transport Activity via districtwide roading rate with some project crossover and funding support from the Leisure and Open Space Activity. Capital funds for cycleways, walkways and bridleways implementation are identified under Cycleways in the Annual Plan and Long Term Plan. Commuter cycleways identified in the Cycleways, Walkways and Bridleways Strategy and Implementation Plan are eligible for a construction subsidy from the New Zealand Transport Agency when specific funding criteria are met through the Long Term Plan online application process: Page 6 of 94

12 Executive Summary Commuter cycleways and associated end of trip facilities are eligible for a 53% construction subsidy from the New Zealand Transport Agency; Commuter cycleways are eligible for a 43% maintenance subsidy from the New Zealand Transport Agency; and Emergency works on commuter cycleway networks are eligible for a 43% subsidy from the New Zealand Transport Agency. Depreciation is funded through rates. Page 7 of 94

13 Executive Summary How Much It Costs Operating Costs and Capital Expenditure: Page 8 of 94

14 1.0 Introduction 1.0 INTRODUCTION 1.1 Goals and Asset Types Cycleways, Walkways and Bridleways Goals To promote walking, cycling and horse riding as safe, everyday modes of transport and recreation. To develop safe networks which improve walking, cycling and horse riding access and linkages throughout Kāpiti. To encourage and improve local regional and national co-ordination, cooperation and collaboration in the planning and provision of safe walking, cycling and horse riding opportunities. Asset Types Covered by This Plan Table 1.0 Cycleways, Walkways and Bridleways Asset Types Asset Type Paths Cycle lanes Shared paths Beach accessways (100+) Walking tracks Bridleways (3) Total Length or Number 63.7 km 13 km Built assets (signs, seats, bollards, barriers, stiles, etc) 400+ Structures (bridges, boardwalks, etc) Activity Description and Rationale This Activity includes the following services and programmes: management of assets: o cycleways, walkways and bridleways neighbourhood, beach and reserve accessways; o cycleways, walkways and bridleways specific signs, seats, bollards, barriers, culverts (such as Anzac Road and Haruatai Park), bridges and boardwalks; delivery of cycleways, walkways and bridleways specific road safety improvement projects, in conjunction with New Zealand Police, New Zealand Transport Agency and other road safety partners; upgrades and development of cycleways, walkways and bridleways; advocacy for active mode transportation (walking, cycling and horse riding); and planning and design, linked to wider District development projects. Page 9 of 94

15 1.0 Introduction Strategically, providing access is a very important service. Generally Kāpiti Coast has poor east to west roading linkages but does have a growing walkway/cycleway network. The Council is concerned with improving linkages between communities, especially for pedestrians and cyclists, in order to improve active mode choices and reduce reliance on private vehicles, specifically for trips of five kilometres or less. The Council s cycleways, walkways and bridleways are categorised as follows for ease of management: Paths. These include shared paths, neighbourhood accessways, beach accessways, walkways and bridleways. o Shared paths include walkways, neighbourhood accessways and off road cycleways. They are normally a minimum of 2.2 m wide to accommodate walking, cycling and occasionally horse riding. The surface is compacted gravel, concrete, asphalt or chip seal. Shared paths are often eligible for construction and maintenance subsidy from the New Zealand Transport Agency. o Beach accessways can be unformed sand tracks or engineered concrete or timber stairs or ramps which provide access to the beach. o Walkways and neighbourhood accessways typically provide for easy walking suitable for all ages and most fitness levels. The surface is usually on a durable surface such as concrete, chip seal, asphalt or compacted gravel. They cater for people with a range of abilities and people with buggies and children. Exceptions are typically located in escarpment reserves and beach accessways. o Bridleways which provide equestrian access on road verges/berms, waterways, the beach, the left shoulder or side of the traffic lane of dual carriageways and south bank of the Waikanae River. Cycle lanes. On road cycle lanes are provided by chip seal or asphalt road surfaces and are maintained under the Access and Transport Asset Management Plan. Structures. These include bridges, culverts and boardwalks within the District. In addition, a range of built assets located within the cycleways, walkways and bridleways network are managed through this Asset Management Plan including: seats, tables, bins and other furniture; lighting; signs, plaques; and fences, barriers and bollards. 1.3 Linkages Asset Management Plans constitute core planning documents for Kāpiti Coast District Council. They are the key link between the Council s Long Term Plan and the delivery of services to the community. The Cycleways, Walkway and Bridleways Asset Management Plan delivers the Council s Community Outcomes, and complies with legislative requirements. It also provides draft financial forecasts and Activity information which feeds into the Long Term Plan. These relationships are summarised in the following diagram: Page 10 of 94

16 1.0 Introduction Figure 1 Asset Management Plan Linkages Local Government Act Resource Management Act Long Term Plan Annual plan CAPEX budgets Strategic targets Regulatory tactics District Plan Programme Adopted by Council/ Community Asset Management Forecasts Council Key Strategies CWB Implementation Plan Strategic Goals Asset Management Plan Government Policy Statement Asset Management Forecasts 10 Year investment Programme CAPEX Programmes Operational Plans In addition to these internal linkages, Kāpiti Coast District Council s Cycleways, Walkways and Bridleways Implementation Plan contributes to delivery of the Wellington Regional Land Transport Strategy and the Wellington Regional Strategy s Open Space Strategy to help deliver integrated land transport and recreational networks across the region in a way that is economically, environmentally and socially sustainable. 1.4 Key Issues Implications for Cycleways, Walkways and Bridleways of Wider Issues A number of key issues for asset management are identified in the shared Part A of the Asset Management Plans. The following identifies which of those key issues has particular relevance for cycleway, walkway and bridleway management and explains what that relevance is. Page 11 of 94

17 1.0 Introduction Improving Community Resilience The resilience of a community can be defined as its ability to resist shocks as measured by its capacity to continue to function during crises and to return to normal functioning speedily once the crisis is over. Cycleways, walkways and bridleways can contribute to building community resilience by: providing a network of walkways, cycleways and bridleways that offers alternatives to the road network and is convenient, safe and direct; and assisting with improved individual and general health. The Proposed Expressway Provides an opportunity to create a direct north / south cycleways, walkways and bridleways corridor within the expressway designation. There will be a need for NZTA to mitigate some of the negative landscape effects on the layout of the cycleways, walkways and bridleways network within the designation. There will be opportunities for improving the existing SH1 route for cycle and pedestrian access as part of its revitalisation as a local road before it is handed over to the Council. o There will be effects on Council s existing strategic landholdings with potential to lose land that currently provides informal public access. Peak Oil and Other Resource Shortages Impacts on the community s ability and willingness to pay at a time of escalating costs. This may result in a need to change or possibly scale back some levels of service over time. Walking and cycling will very likely become more prominent, increasing the demand for walking and cycling (active mode) facilities. Potential shortages of fuel on a temporary or longer term basis will have direct impacts on maintenance regimes. We will investigate alternative design solutions that use natural or recycled materials and support contractors who use alternative fuel sources to power machinery and produce materials. We will also monitor developments in these areas with a view to adopting proven new technologies. We will revisit maintenance schedules to ensure greater fuel efficiency is achieved or adopt lower levels of service. Climate Change Mitigation: The Cycleways, Walkways and Bridleways Implementation Coordinator in conjunction with the Access and Transport team, the Leisure and Open Space team and the Senior Advisor Climate Change and Energy will identify and implement ways to reduce the Council s greenhouse gas footprint, for example by specifying fuel efficient machinery or vehicles through the tender process or by reviewing maintenance schedules. A complete cycleways, walkways and bridleways network is an integral part of travel demand management. The Council will continue to develop school and workplace travel plans and promote the benefits of different travel modes to reduce the impact of vehicle emissions. Page 12 of 94

18 1.0 Introduction Adaptation: The increasing effects of climate change on Kāpiti s coastline and waterways have significant implications for the Councils coastal and riverside cycleways, walkways and bridleways assets: dune regeneration and maintenance will become increasingly critical in slowing coastal erosion and mitigating storm impacts, specifically on beach accessways; as the incidence of inland flooding grows, relocation of low lying or vulnerable parts of the cycleways, walkways and bridleways network may be required; climate change may mean that more resources will be needed to repair damaged infrastructure or to undertake more frequent vegetation control; and managed retreat from flood and coastal erosion hazard zones may offer opportunities for creation of new walking and cycling networks. Growth Management Better use of existing networks is significantly more productive than providing more of the same. Where travel demand is not significantly increasing but road networks are congested, there is a strong body of research pointing to superior economic outcomes from optimising the existing road network as opposed to expanding capacity. Residential and commercial development will play a large part in expanding the cycleways, walkways and bridleways network. Regardless of where new growth occurs, it will have implications for active mode accessibility and connectivity within and across the district. Ensuring appropriate cycleways, walkways and bridleways provision is made in new developments is crucial to realising the cycleways, walkways and bridleways vision for Kāpiti. As population numbers increase, especially in the older age groups, the types of vehicles using the cycleways, walkways and bridleways network may change, e.g. increased use of motorised scooters could require wider pavement surfaces particularly in high use areas. Specific Issues for Cycleways, Walkways and Bridleways Implementation Plan: Currently the cycleways, walkways and bridleways is in between implementation plans and has been operating within minimal budgets. However, this year an implementation plan will be developed to manage the increase in cycleways, walkways and bridleways funding from 2012/2013, as discussed in the LTCCP This may result in a need for increased staffing or may increase the use of consultants. New development: Subdivisions are a permanent feature in the landscape and can enhance or restrict public access. Incomplete networks: The networks of pathways and facilities between and within the Districts communities are incomplete and disconnected. Community feedback has indicated that these networks do not yet provide adequately for the needs of different users. Key linkages needed are: Paekakariki to Raumati South; Peka Peka to Te Horo; Waikanae River trails; Te Horo to Ōtaki ; and Mataihuka Walkway. Page 13 of 94

19 1.0 Introduction There are opportunities to improve the attractiveness of walking and cycling in our urban areas by ensuring that walking and cycling routes are more direct and convenient than travel by car. These issues can be summarised as: Cycleways, walkways and bridleways networks are incomplete and disconnected, especially in urban areas but also between them; new routes (both on and off road) are needed to complete the networks; there is a need to establish greater accessibility for cycleways, walkways and bridleways to give a competitive advantage over driving; and both recreational and daily users need to be accommodated. The maps in Appendix A, provided by NZTA, show the walking and cycling movements within the District and provide an idea of where key linkages are missing. Demographic and land use changes: The population of the Kāpiti Coast District has grown steadily over the last 15 years and at the 2006 Census the population was over 46,000. More than 20% of the District s population is over 65 and 75% of the population live in the urban areas of Waikanae, Raumati and Paraparaumu. population growth rates were high prior to 2006, which have now slowed, however, active transport infrastructure has yet to accommodate new users; many residents are retired and desire easy walking and cycling access; and land use patterns are low density and dispersed, making it hard for many to walk or cycle to community services or between towns. Safety Concerns: Road crashes are recorded by police in the Crash Analysis System database (CAS) which allows trends in walking and cycling crashes to be monitored. 14% of all road crash casualties in the Kāpiti District were pedestrians and cyclists (8% and 6% respectively); 28% of all crash casualties on urban roads were pedestrians and cyclists (17% and 11% respectively); and 14% of all crash casualties on urban state highways were pedestrians and cyclists (7% each). Figure 2 indicates that community connector roads with high traffic volumes have a more cycle trips per day (except SH 1) which can create conflict and cycle casualties (serious injuries or fatalities). Page 14 of 94

20 1.0 Introduction Figure 2 Cycle Casualties in the Kāpiti District Cycle casualties on arterial routes in Kapiti 25,000 Cycle Trips / Day Average cycle trips/day Cycle casualties Traffic volume AADT 20,000 15,000 10,000 Traffic Volume AADT 40 5, Kapiti Rd Makora Rd Rimu Rd Raumati Rd Mazengarb Rd Wharemauku Rd Manly St The Drive Marine Parade Ratanui Rd Matatua Rd Otaihanga Rd Matai Rd Mill Rd Rosetta Rd Arawhata Rd Elizabeth St Aotaki St Te Moana Rd SH 1 Road *Casualties are considered any serious injury or fatality. * ADDT = Average Annual Daily Traffic. Declining levels of walking and cycling to work and school: The New Zealand Household Travel Surveys are the most comprehensive source of information on patterns of travel nationally. The most recent survey (conducted in ) illustrates how car dependant this country is. Results are in Figure 3 below. Page 15 of 94

21 1.0 Introduction Figure 3 The New Zealand Household Travel Survey Results National total travel times 81% 1% 12% Passenger/Driver in private vehicle Walking Cycling These results are in sharp contrast to many European countries, in which active transport (walking and cycling) has two to three times greater share of all travel. The trend over the last 20 years in New Zealand is towards more time spent travelling by car and less walking and cycling. Between 1989 and 2003 time spent driving increased disproportionately, up by almost 50%; there was no change in time spent walking; and time on bicycle travel fell by 43%. The Kāpiti District has low levels of walking and cycling to work relative to other parts of NZ because most employees travel considerable distances to their employment. Paraparaumu is about 50km from the Wellington central business district by road. Overall walking and cycling to work in Kāpiti has declined 44% in the last 20 years. The 2006 census shows that walking and cycling levels declined between 1986 and 2006 and is illustrated in Figure 4 below. Page 16 of 94

22 1.0 Introduction Figure 4 Census 1986 and 2006 Results Declining Levels of Walking/Cycling to Work 8% 7% 6% 5% 4% 3% 2% 1% 0% Walking Cycling In the first cycle counting trial was undertaken on key roads in Kāpiti. The results suggest that there was a 10% increase in the number of cyclists over the 12 month period and we hope this will be reflected in the next census report on walking and cycling to work and school. Global issues: In an era of global oil price uncertainty, supply volatility, peak oil and climate change, provision for a more diverse transport system with options for transport that do not depend on fossil fuel make good sense economically and environmentally for individuals and communities particularly for journeys less than 5km. Overlapping of some cycleways, walkways and bridleways assets within other Council departments: Some CWB networks assets overlap with assets in the Access and Transport Asset Management Plan, the Coastal and Stormwater Asset Management Plan as well as the Parks and Open Space Asset Management Plan. In addition, the cycleways, walkways and bridleways programme incorporates funding from all three activities. This requires good information sharing and collaboration for efficient programming and implementation of capital projects, asset management planning and asset data capture. The Government Policy Statement 2012/ /22: This policy states that investment in walking and cycling is expected to make a contribution to economic growth and productivity. To achieve this, funding should be directed to reduce congestion and/or improve pedestrian and cyclist safety. It states consideration should be given to concentrating the investment in fewer more targeted activities, for example in model communities, rather than spreading the funding across a greater number of activities with a lower overall level of return. There are opportunities to support the New Zealand Cycle Trails Network Expansion Project. Roading programmes could, where appropriate, include provision for treatments that improve cycling safety on roads that are part of the cycle trails network. Page 17 of 94

23 1.0 Introduction 1.5 Significant Negative Effects Providing cycle lanes on roads removes space for on road parking in arterial roads. The perception of security and privacy can be compromised for cycleways, walkways and bridleways neighbours. Crime and anti-social behaviour are an unfortunate fact of life in some open space areas as a result of design (poor sight lines from the exterior) and location. For example, motorbikes accessing the cycleways, walkways and bridleways network in wider paths designed for buggies, horses can cause excessive noise to neighbours/users, danger to users and possibly damaging the path. 1.6 The Level 2 of this Plan The appropriate level of sophistication of planning for asset groups is determined based on consideration of certain factors which impinge on their management as follows: Table 1.1 Assessment Against Planning Level Factors Criteria Assessment Comment District population size District wide risks Size, condition and complexity of assets in group Risks associated with failures Organisational skills and resources Intermediate Intermediate Intermediate Basic Intermediate A comparison of factors including urban area, town populations and total population showed that cycleways, walkways and bridleways asset management practice in the Kāpiti Coast should be at the Intermediate level. Analysis of District-wide risks relevant to all asset groups confirmed that asset management practice should be at Intermediate level. There is a range of assets with varying levels of formal condition assessments and management plans in place. Bridges are annually inspected by the Council s consultant engineers. Tracks and structures are inspected and maintained by Council staff. Risks associated with bridges, structures, pavements or hazardous trees are managed by regular or annual inspections. Hazards caused by storm events are often first reported by members of the public Succession planning issues are recognised and mitigated to the extent possible given a small pool of potential recruits to specialist positions. Planning systems are being implemented across the asset group and being incorporated into the asset management process. Up-skilling for succession and training of current staff are needed. 2 For an explanation of planning levels, see Introduction of Part A. Page 18 of 94

24 1.0 Introduction Criteria Assessment Comment Customer expectations Sustainability considerations Intermediate Intermediate 68% of residents surveyed in a robust random sampling process in mid-2010 rated the cycleways, walkways and bridleways network as important or very important to them. This is lower than some other Council asset groups but still significant. Residents move to the Kāpiti Coast in part for high natural values. The Resident Survey also showed that expectations of users are largely being met. The provision of walkways through reserves and other open spaces contributes significantly to Kāpiti Coast District Council s responsibilities for the ongoing health and social well-being of the community. It is vitally important that new pathways do not degrade the biodiversity values of an area particularly during construction and that community expectations around landscaping are met by rehabilitating disturbed ground with appropriately sourced native plantings. This analysis suggests that the asset management practice of the cycleways, walkways and bridleways at Kāpiti Coast District Council should be at the Intermediate level. However, as no Asset Management Plan is currently in place and the resources available to the Council to complete this work are limited, a decision has been made to develop the first Asset Management Plan at a Basic level. The asset management practice will be improved over the next three years. Page 19 of 94

25 2.0 Legal and Policy Requirements 2.0 LEGAL AND POLICY REQUIREMENTS 2.1 Key Strategies and Council Policies The following lists Kāpiti Coast District Council s key strategies and policies that influence the management of its cycleways, walkways and bridleways networks. Cycleways, Walkways and Bridleways Strategy; Open Space Strategy; reserve management plans; Active Recreation Strategy (which is due to commence in 2011/2012); Coastal Strategy; Development Management Strategy; Subdivision and Development Principles and Requirements 2005; Sustainable Transport Strategy; Streetscape Strategy; Stormwater Strategy; Youth Action Plan; and Positive Ageing on the Kāpiti Coast: He Tira Kaumātua. 2.2 Legislative Requirements The preparation and implementation of this Asset Management Plan and its long term financial forecasts help Kāpiti Coast District Council comply with legislative requirements. Key legislation applying to cycleways, walkways and bridleways infrastructure is summarised below: Table 2.0 Acts Relevant to Cycleways, Walkways and Bridleways Asset Management Act The Land Transport Management Act 2003 and LTMA Amendment Act 2008 Description The purpose of this Act is to contribute to the national aim of achieving an integrated, safe, responsive and sustainable land transport system, an approach reflected in the New Zealand Transport Strategy (NZTS). This Act requires an integrated approach to land transport planning, management and funding with the intention of improving social and environmental responsibility and to allocate land transport funding in an effective and efficient manner. The Government Policy Statement 2012/ /22: As explained in Chapter 1.4 states that investment in walking and cycling is expected to make a contribution to economic growth and productivity. Page 20 of 94

26 2.0 Legal and Policy Requirements Act Description Local Government Act 1974 Local Government Act 2002 Resource Management Act 1991 This Act requires an integrated approach to land transport planning, management and funding with the intention of improving social and environmental responsibility and to allocate land transport funding in an effective and efficient manner. See Part A, Chapter 2. There are specific requirements regarding reserve contributions which govern what can be done with them. These provisions clearly imply an expectation that Councils will provide parks and reserves, which includes cycleways, walkways and bridleways facilities. The Act requires the Council to manage the use, development and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic and cultural well-being and for their health and safety while: sustaining the potential of natural and physical resources to meet the reasonable foreseeable needs of future generation; avoiding, remedying or mitigating any adverse effects or activities on the environment; safeguarding the life-supporting capacity of air, water, soil and ecosystems; in managing the use, development and protection of natural and physical resources, recognizing and providing for the following matters of national importance: o the preservation of the natural character of the coastline environment (including the coastal marine areas), wetlands, lakes and rivers and their margins and the protection of them from inappropriate subdivision, use and development. o the protection of outstanding natural features and landscapes from inappropriate subdivision, use and development; o the protection of areas of significant indigenous vegetation and significant habitats of indigenous fauna; o the maintenance and enhancement of public access to and along coastal marine area, lakes and rivers; Page 21 of 94

27 2.0 Legal and Policy Requirements Act The Transport Act 1962 Description o the relationship of Maori and their culture and traditions with their ancestral lands, water sites, wāhi tapu and other taonga; complying with the District Plan; administering reserve contributions, complying with procedures for appeals against contributions levied and justifying the degree of contribution extracted; and taking into account the Treaty of Waitangi in exercising functions and powers under the Act relating to the use, development and protection of natural and physical resources. This Act enables the control of road and traffic operations. These include traffic regulations, bylaws, enforcement, etc. Other relevant Acts and standards are: Fencing Act 1987; Reserves Act 1977; Walking Access Act 2008; Dog Control Act 1996; Litter Act 1979; Building Act 2004; Health and Safety in Employment Act 1992; Trespass Act 1880; Greater Wellington Regional Council Pest Management Strategy ; Greater Wellington Regional Council Freshwater Plan 1999; Greater Wellington Regional Council Air Plan; Greater Wellington Regional Council Land Transport Strategy ; Greater Wellington Regional Council Walking Plan; Greater Wellington Regional Parks Network Management Plan; Queen Elizabeth Park Management Plan; Greater Wellington Regional Council Cycling Plan; Land Drainage Act; Land Transport rules including but not limited to Setting of Speed Limits Rule (Rule 54001) and Traffic Control Devices Rule (Rule 54002); and Greater Wellington Regional Council Land Transport Strategy and associated plan. Page 22 of 94

28 2.0 Legal and Policy Requirements 2.3 Relevant Standards Maintenance and operational standards for the delivery of cycleways, walkways and bridleways services are specified in maintenance contracts and Service Level Agreements (SLAs). In addition, there are a number of other documents that guide the maintenance, management and provision of services and assets. These are set out in the following table: Table 2.1 Relevant Standards Impacting Cycleways, Walkways and Bridleways Standard/Specification Austroads Guide to Road Design Part 6A: Pedestrian and Cyclist Paths Austroads Guide to Road Design Part 4: Intersections and Crossings New Zealand Supplement to the Austroads Guide to Traffic Engineering Part 14: Bicycles Cycling aspects of Austroads Guides, March 2011 Manual of Traffic Signs and Markings (MOTSAM) Parts 1 and 2 Code of Practice for Temporary Traffic Management Best Practice Subdivision Guide Cycle Network and Route Planning Guide Subdivision and development principles and requirements Streetscape Strategy and Guideline AS/SNZ 4360:2000 Risk Management for Local Government AS/SNZ 1328 Glue laminated Structural Timber AS/SZZ 4671 Steel Reinforcing Materials Content/Purpose Provides guidance for road designers and other practitioners on the design of paths for safe and efficient walking and cycling. Includes Part 6 Roadside Design and Safety Barriers and 6B Roadside Environment. Provides guidance for road designers and other practitioners on the design of paths for safe and efficient walking and cycling. Includes Part 4A Unsignalised and signalised intersections, 4B Roundabouts and 4C Interchanges The key reference document for the design of cycling facilities in New Zealand. Information relating to planning, design and traffic management of cycling facilities from Austroads guides. The standard outlines the policy and location requirements for traffic signs and markings in New Zealand. The code of practice for safe and efficient management and operation of temporary traffic management on all roads in New Zealand. Provides a guide to the quality and aesthetic standards for subdivision. Promotes a consistent approach to planning the provision for cycling in New Zealand. Provides a guide to the service quality and standards for subdivision and development. Provides a guide to the streetscape standards for new development. Guidelines for assessing risks and developing risk management strategies. Guidelines for glue laminated structural timber. Guidelines for steel reinforcing materials. Page 23 of 94

29 2.0 Legal and Policy Requirements Standard/Specification RTS 14 Guidelines for Blind and Vision Impaired Pedestrian Planning and Design Guide SNZ 4121:2001 Design for Access and Mobility Buildings and associated facilities SNZ 3602 Timber and Wood based products in building SNZ 3604 Timber Framed Buildings SNZ 3605 Timber Piles and Poles for use in buildings SNZ 3622 Verification of timber properties SNZ 3631 Classification and grading on NZ timbers SNZ 3640 Chemical Preservation of Round and Sawn Timber SNZ 3124 Concrete Construction for Minor Works SNZ 3104 Specification for Concrete Production SNZ HB 8630:2004 Tracks and Outdoor Visitor Structures (DOC guidelines) SNZ 8603:2005 Design and Application of Outdoor Recreation Symbols The geometric design of Pedestrian, Cycle and Equestrian Routes. Trail building Guidelines, International Mountain Bike Association Ministry of Justice Safety Design Guidelines for Parks Developments. Reserve Management Plans Content/Purpose Best practice design and installation principles for pedestrian facilities that assist blind and vision impaired people. Sets standards for the planning and design of pedestrian facilities and infrastructure. Sets standards for design, access and mobility requirements in buildings and associated facilities. Guidelines for timber and wood based products in building. Guidelines for timber framed buildings. Guidelines for timber piles and poles for use in buildings. Guidelines for verification of timber properties. Guidelines for classification and grading on NZ timbers. Guidelines for chemical preservation of round and sawn timber. Guidelines for Steel Reinforcing Materials. Guidelines for specification for concrete production. Sets standards for tracks and outdoor visitor structures to ensure that customer recreation and safety needs are met. Sets standards for outdoor recreation symbols to ensure that visitor interpretation follows national and international guidelines. Design Manual for Roads and Bridges in the UK. Design guidelines for constructing mountain bike tracks and trails in the USA. Implements the CPTED (crime prevention through environmental design) principles. Provides guidelines to take account of safety issues for design and planting. Guides day to day and long term management of reserves. Page 24 of 94

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