Public Transport Committee Agenda

NOTICE IS GIVEN that the next meeting of the Public Transport Committee will be held in Bay of Plenty Regional Council Chambers, Regional House, 1 Elizabeth Street, Tauranga on:

Thursday 18 March 2021 COMMENCING AT 9.30 am

 

 

The Public section of this meeting will be recorded and available after the meeting on Council’s YouTube Channel: https://www.youtube.com/user/bopregionalcouncil

Further details on this can be found after the Terms of Reference within the Agenda.

Fiona McTavish

Chief Executive, Bay of Plenty Regional Council Toi Moana

10 March 2021

 


Public Transport Committee

Membership

Chairperson

Cr Andrew von Dadelszen

Deputy Chairperson

Cr Lyall Thurston

Members  

Cr Norm Bruning

Cr Jane Nees

Cr Stacey Rose

Cr Paula Thompson

External Members

Two Tauranga City Council representatives

 

 

One representative each:

Rotorua Lakes Council

 

Western Bay of Plenty District Council

 

Whakatāne District Council

 

All of whom are voting members.

 

One Waka Kotahi NZTA non-voting representative

 

Commissioner Stephen Selwood

Commissioner Bill Wasley (Alternate)

 

 

 

Mr Phill Thomass (Lakes Community Board)

Cr Tania Tapsell (Alternate)

 

 

 

Mayor Garry Webber

 

Mayor Judy Turner

Deputy Mayor Andrew Iles (Alternate)

 

 

 

Vacant

Ex Officio

Chairman Doug Leeder

Quorum

Six members, consisting of more than half the number of voting members of which four must be BOPRC members

Meeting frequency

Quarterly

Purpose

Set the strategic and operational direction for approved Regional Council public transport policy and strategy, and monitor how it is implemented.

Role

·                Prepare and review the Bay of Plenty Regional Public Transport Plan.

·                Implement, monitor and review operational public transport policy and plans.

·                Implement, monitor and review the Western Bay of Plenty Public Transport Implementation Plan.

·                Advocate for public transport with NZTA, territorial authorities and central government.

·                Set and monitor targets for public transport in the region.

·                Receive reporting on the performance of the Passenger Transport Activity.

·                In coordination with the work programme of the Regional Transport Committee, guide and review the public transport components of the Regional Land Transport Plan (RLTP) and make recommendations to Regional Transport Committee for incorporation into the RLTP.

Power to Act

To make all decisions necessary to fulfil the role and scope of the committee subject to the limitations imposed.

Power to Recommend

To Council and/or any standing committee as it deems appropriate.

The Public Transport Committee reports to the Regional Council.

Recording of Meetings

Please note the Public section of this meeting is being recorded and will be uploaded Bay of Plenty Regional Council’s web site in accordance with Council's Live Streaming and Recording of Meetings Protocols which can be viewed on Council’s website. The recording will be archived and made publicly available on Council's website within two working days after the meeting on www.boprc.govt.nz for a period of three years (or as otherwise agreed to by Council).

All care is taken to maintain your privacy; however, as a visitor in the public gallery or as a participant at the meeting, your presence may be recorded. By remaining in the public gallery, it is understood your consent is given if your image is inadvertently broadcast.

Opinions expressed or statements made by individual persons during a meeting are not the opinions or statements of the Bay of Plenty Regional Council. Council accepts no liability for any opinions or statements made during a meeting.

 


Bay of Plenty Regional Council - Toi Moana

Governance Commitment

mō te taiao, mō ngā tāngata - our environment and our people go hand-in-hand.

 

 

We provide excellent governance when, individually and collectively, we:

·        Trust and respect each other

·        Stay strategic and focused

·        Are courageous and challenge the status quo in all we do

·        Listen to our stakeholders and value their input

·        Listen to each other to understand various perspectives

·        Act as a team who can challenge, change and add value

·        Continually evaluate what we do

 

 

TREAD LIGHTLY, THINK DEEPLY,
ACT WISELY, SPEAK KINDLY.


Public Transport Committee                                                                                          18 March 2021

Recommendations in reports are not to be construed as Council policy until adopted by Council.

Agenda

1.       Apologies

2.       Public Forum

           Jessica Arlund – extending bus services

3.       Items not on the Agenda

4.       Order of Business

5.       Declaration of Conflicts of Interest

6.       Minutes

Minutes to be Confirmed

6.1      Public Transport Committee Minutes - 27 November 2020                 1

7.       Reports

7.1      Chairperson's Report                                                                               1

Decisions Required

7.2      Strategic Direction in 2021                                                                     1

Attachment 1 - 2021 Public Transport Committee work programme                           1

7.3      Regional Public Transport Plan Review                                                 1

Attachment 1 - Key dependencies for the Regional Public Transport Plan review     1

7.4      Papamoa - Bayfair - Mount Maunganui - Tauranga CDB - Hospital: Optimisation Project                                                                                1

7.5      Bus Fleet Decarbonisation                                                                      1

Attachment 1 - Summary Option Assessment                                                                 1

Information Only

7.6      Improving our network                                                                            1

7.7      Public Transport Technology Update                                                    1

7.8      Public Transport Arotake Tuarua - Performance Monitoring Report July 2020 to December 2020                                                                           1

Attachment 1 - Public Transport Arotake Tuarua Q2 20-21 Final                                 1

8.       Consideration of Items not on the Agenda


Public Transport Committee Minutes

27 November 2020

 

Public Transport Committee

Open Minutes

Commencing:             Friday 27 November 2020, 9.30 am

Venue:                         Bay of Plenty Regional Council Chambers, Regional House, 1 Elizabeth Street, Tauranga

Chairperson:               Cr Andrew von Dadelszen

Deputy Chairperson:  Cr Lyall Thurston

Members:                    Bay of Plenty Regional Council (BOPRC)
Cr Norm Bruning

Cr Jane Nees

Cr Paula Thompson

 

Western Bay of Plenty District Council (WBOPDC)

Mayor Garry Webber

 

Tauranga City Council (TCC)

Deputy Mayor Tina Salisbury

Cr Heidi Hughes

Cr Larry Baldock (Alternate)

 

Whakatāne District Council (WDC)

Mayor Judy Turner

Deputy Mayor Andrew Iles (Alternate)

 

Rotorua Lakes Council (RLC)

Phill Thomass

 

Waka Kotahi - NZTA

Natalie van Rossen (Non-voting Member)

In Attendance:            Bay of Plenty Regional Council: Cr Kevin Winters

                                                      Staff: Mat Taylor – General Manager, Corporate; Namouta Poutasi – General Manager, Strategy & Science; Jessica Easton - Legal and Commercial Manager; James Llewellyn – Transport & Urban Planning Manager; Ruth Feist – Team Leader Urban; Jen Proctor – Transport Operations Team Lead; Matt Hunt – Communications Team Leader; Joe Metcalfe – Transport Contractor; Jessica Durham – Committee Advisor

                                                      External presenters: Martin Taylor, Transportation/Roading Manager (WDC), Brendan Bisley, Director of Transport (TCC), Max Lewis, Deb Turner, Carole Gordon, Graham McKean (First Union), Raewyn Brunell (First Union)

Apologies:                  Cr Heidi Hughes (for lateness)

Deputy Mayor Tina Salisbury (for lateness)

Cr Stacey Rose

1.     Chairs Announcement

The Chair opened the meeting and advised attendees that it would be recorded in accordance with BOPRC policy and page 4 of the agenda.

2.     Apologies

Resolved

That the Public Transport Committee:

1        Accepts the apologies from Cr Heidi Hughes and Deputy Mayor Tina Salisbury for lateness, and Cr Stacey Rose tendered at the meeting.

Thurston/Thomass

CARRIED

3.     Public Forum

3.1

Car or Bus?

 

Presented By: Deb Turner

Key Points:

·    Sought to increase regularity and quality of Pāpāmoa #36 bus service.

·    Concerned buses were leaving early and without notice.

·    Accessibility, convenience, and minimal transfers were key to a successful public transport system and moving users from private transport to public transport.

·    Concerned for safety and security of users and drivers.

Key Points - Members:

·    The councils were working together to continue to improve the bus service in the Bay of Plenty.

9:42am - Cr Hughes entered the meeting.

 

Items for Staff Follow Up:

·    A note of reply to Deb Turner’s points.

 

3.2

Public transport accessibility, blueprint and collaboration

 

Presented By: Max Lewis

Key Points:

·    Three key reasons buses were not accessible to everyone; mobility appliances could not get onto buses, steps to enter a bus were dangerous, distance to bus stops was inhibiting access.

·    Not all disabilities qualified for the Total Mobility service.

·    Sought funding for a business case to improve access and would be submitting in the Long Term Plan (LTP) process.

4.     Declaration of Conflicts of Interest

Nil

5.     Minutes

Minutes to be Confirmed

5.1

Public Transport Committee Minutes - 27 October 2020

Matters Arising

In relation to Minute Item 5, Members raised concern that all TLAs and organisations needed to remain committed to taking the Transport Spatial Plan (TSP) commitments through to their LTPs.

 

Resolved

That the Public Transport Committee:

1        Confirms the Public Transport Committee Minutes - 27 October 2020 as a true and correct record.

Nees/Bruning

CARRIED

6.     Chairs Announcement

The Chair announced consideration of the agenda items needed to remain at a strategic governance level.

7.     Presentations

7.1

Active Whakatane Strategy

Presentation: Public transport in the Eastern Bay of Plenty: Objective ID A3683564   

Presented by: Martin Taylor, Transportation/Roading Manager, WDC

 

 

Key Points:

·      Outlined current public transport services within the Eastern Bay of Plenty (Eastern BOP), along with opportunities for improvement.

·      WDC highlighted their intent of ongoing collaboration with BOPRC and the Public Transport Committee, and to be further involved in the future.

·      Disability access was an ongoing concern.

·      WDC and BOPRC staff were working together on trialling public transport options.

Key Points – Members:

·      Regional collaboration and an integrated and coordinated public transport network were essential for a successful outcome.

·      Waka Kotahi and WDC were working together on improving public transport in the Eastern BOP.

·      Utilising existing resources and infrastructure were key to better serving the community.

·      The strategic direction of the committee should be reviewed.

 

10:16am - Deputy Mayor Salisbury entered the meeting.

 

 

Resolved

That the Public Transport Committee:

1        Undertakes to consult with the community when designing services and seek opportunities for continuous improvement.

 

Thompson/Hughes

CARRIED

8.     Reports

8.1

Chairperson's Report

Presented by: Jessica Easton - Legal and Commercial Manager and James Llewellyn – Transport & Urban Planning Manager.

Key Points- Staff:

·    Regional councils were collaborating nationally on bus fleet decarbonisation and procurement.

·    BOP public transport services were compliant with the Employment Relations Act’s rest and meal break requirements.

·    Bee Card usage and bus patronage had increased.

·    Western BOP Public Transport Community Panel Terms of Reference had been finalised.

·    No ‘quick-win’ park-and-ride (transport hub) sites within Tauranga had been identified that met the critical success criteria.

·    Real Time live update boards had been successful and more would be installed.

·    The TSP was a joint initiative across the councils.

Key Points - Members:

·    Members were keen to be involved in the national collaboration towards decarbonisation and procurement.

·    Some rest and meal breaks were falling part-way through bus-routes leaving passengers on-board waiting 15 minutes.

·    Free fares had increased patronage.

·    Transport hub sites had been identified as necessary and discussed since 2004, with no progress and must be made available to ease congestion.

·    The site of the Ōmokoroa transport hub had been bought four years ago.

·    Tauranga needed a culture shift to move people out of private transport and into public transport, and communities would need to be empowered and engaged to make the shift through cohesive communication in conjunction with partners.

·    Extension of free parking within Tauranga CBD was counterproductive to increasing public transport patronage.

10:56am - The meeting  adjourned.

11:17am - The meeting  reconvened.

Key Points - Members (Continued):

·    The councils’ LTPs, Urban Form and Transport Initiative (UFTI), TSP, Regional Land Transport Plan (RLTP), and Regional Public Transport Plan (RPTP) needed integrated planning, alignment, and cohesion to be successful.

·    The BOP public transport network and UFTI was playing catch up due to years of underinvestment and was not fit for purpose.

 

 

Items for Staff Follow Up:

·    Western BOP Public Transport Community Panel Terms of Reference and membership to be circulated to members.

·    Provide an update of timelines on the Northern Link upgrade between Ōmokoroa and Tauranga.

 

 

Resolved

That the Public Transport Committee:

1        Receives the report, Chairperson’s Report.

von Dadelszen/Thurston

CARRIED

9.     Presentations - Continued

9.1

Promoting Super Gold Patronage Initiative

Presentation: We are all connected: Objective ID A3683565   

Presented by: Carole Gordon

 

Key Points:

·    Concern for the wellbeing of the 65+ population following the Covid-19 lockdown, including mental health, isolation, and accessibility concerns.

·    Commended the Bee Card/Gold Card link and free fare initiative.

·    Requested further communications with the 65+ population on the Bee Card/Gold Card free fare initiative.

·    Bus routes were not suitable for the 65+ population due to accessibility (needed to avoid stairs between stops and destinations, improve timing between services, and increase mobility options).

·    Rather than forcing the public away from driving, alternatives needed to be available first.

10.   Reports - Continued

Decisions Required

10.1

Improving our Network

Presented by: Namouta Poutasi – General Manager, Strategy & Science, Jessica Easton - Legal and Commercial Manager, and James Llewellyn – Transport & Urban Planning Manager

Key Points- Staff:

·    Although the community of Mamaku had requested the trial bus service, it had not been used in four months and staff recommended the service be cancelled once the contract on the trial lapsed.

·    Staff were investigating to understand why the requested trial had been unsuccessful.

·    Super Gold usage had increased and free fares had been extended to 30 June 2021 and funded in conjunction with Waka Kotahi.

·    The trial of free fares for students in Tauranga had been successful.

Key Points - Members:

·    The Mamaku trial might be more successful in the future.

·    Parents were grateful for the free fares for students, and it provided benefits across the four well-beings.

 

Items for Staff Follow Up:

·    Staff to create a short video for the public explaining the process of using the bus, in order to increase understanding and patronage and minimise any fears of new users.

 

Resolved

That the Public Transport Committee:

1        Receives the report, Improving our Network.

2        Agrees to terminate the Mamaku Village connector trial at the conclusion of the contract on 31 December 2020.

Thurston/Thomass

CARRIED

Information Only

10.2

Bus User and Non-User Surveys

Presented by: Jessica Easton - Legal and Commercial Manager, James Llewellyn – Transport & Urban Planning Manager, and Jen Proctor – Transport Operations Team Lead

Key Points:

·    Summarised the methodologies and findings of the bus user and non-user surveys.

·    70% of non-users avoided public transport due to the convenience and speed of private transport.

·    64% of users valued the reduced costs in using public transport by avoiding parking and vehicle servicing.

·    Surveys were not representative of the population and further work was underway to rectify this (disproportionate number of 65+ surveyed).

Key Points - Members:

·    Regional Integrated Ticketing System (RITS) data would be a valuable addition to survey results and assist with filling in gaps and good decision making.

·    User starter point and destination data would be helpful for cost apportioning across the districts.

·    Declining patronage needed investigation.

·    Ask users and non-users what other causes/impacts inhibit/prohibit public transport usage.

·    LTPs must robustly consider the costs of public transport.

 

Resolved

That the Public Transport Committee:

1        Receives the report, Bus User and Non-User Surveys.

Thurston/Nees

CARRIED

 

10.3

Transport and Urban Planning Update

Presentation: Transport and urban planning update: Objective ID A3683563   

Presented by: Namouta Poutasi – General Manager, Strategy & Science, James Llewellyn – Transport & Urban Planning Manager, and Brendan Bisley, Director of Transport (TCC)

Key Points:

·    BOPRC and TCC staff were working together to identify solutions to the Links Avenue issues.

·    Various alternatives were being considered in discussion with the community, such as introducing cul-de-sacs, widening footpaths, changing routes, and separating cyclists from pedestrians and traffic.

·    Staff were conscious of the ramifications of any changes.

Key Points - Members:

·    Simple solutions like removing islands from intersections may increase bus access routes.

 

Resolved

That the Public Transport Committee:

1        Receives the report, Transport and Urban Planning Update.

Thurston/Webber

CARRIED

 

10.4

Rotorua Public Transport Review Update

Presentation: Rotorua public transport review: Objective ID A3683562   

Presented by: Namouta Poutasi – General Manager, Strategy & Science, James Llewellyn – Transport & Urban Planning Manager, and Joe Metcalfe – Transport Contractor

Key Points:

·    Staff summarised the various options and costs to be considered in public consultation for fleet decarbonisation and on-demand services.

Key Points - Members:

·    On-demand services would not apply to the entire network.

·    Consultation should be earlier than 2022.

·    Staff resourcing would need considering in moving consultation forward.

 

Items for Staff Follow Up:

·    Staff would investigate opportunities to advance consultation and further consideration would be given at the 17 December Council meeting.

 

Resolved

That the Public Transport Committee:

1        Receives the report, Rotorua Public Transport Review Update.

2        Advances public consultation on the Rotorua public transport review.

Thurston/Webber

CARRIED

 

10.5

Public Transport Arotake Tuatahi - Performance Monitoring Report July 2020 to September 2020.

Presented by: Jessica Easton - Legal and Commercial Manager, James Llewellyn – Transport & Urban Planning Manager, and Jen Proctor – Transport Operations Team Lead

Key Points:

·    Patronage in Tauranga was up, however Rotorua and Eastern Bay of Plenty had experienced a decline.

·    The number of Total Mobility providers had increased.

·    Cash usage on buses was reducing.

Key Points - Members:

·    Increased bike rack usage may be one way trips for users who did not have the financial means to use the bus previously.

 

Items for Staff Follow Up:

·    Provide Rotorua bike rack usage statistics to Members.

 

Resolved

That the Public Transport Committee:

1        Receives the report, Public Transport Arotake Tuatahi - Performance Monitoring Report July 2020 to September 2020.

von Dadelszen/Thomass

CARRIED

11.   Public Excluded Minutes to be Confirmed

11.1

Public Excluded Public Transport Committee Minutes - 27 October 2020

 

Resolved

That the Public Transport Committee:

1        Confirms the Public Excluded Public Transport Committee Minutes - 27 October 2020 as a true and correct record, noting that no other business was transacted in public excluded.

Nees/Thomass

CARRIED

1.24pm – the meeting closed.

 

 

Confirmed                                                                                                                                          

                                                                                                                    Cr Andrew von Dadelszen

Chairperson, Public Transport Committee


 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Authoriser:

Mat Taylor, General Manager, Corporate

 

 

Chairperson's Report

 

Executive Summary

This report highlights matters of interest that the Committee Chair considers to be relevant to the business of the Public Transport Committee.

The report includes updates on:

·      the national context including Waka Kotahi funding update and decarbonisation of the public transport bus fleet;

·      public transport including Western Bay of Plenty Community Panel and patronage updates; and

·      an overview of the current COVID-19 response on public transport. 

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Chairperson's Report.

 

Matters of Potential Interest

1.1      National Context

1.1.1    Waka Kotahi Funding

On 18 September 2020 Waka Kotahi released its COVID-19 Public Transport Funding Policy (the Policy) for the allocation of additional National Land Transport Funding (NLTF) to cover the funding shortfalls associated with the COVID-19 pandemic. The Policy was originally in place until 31 December 2020 and subject to a review by Waka Kotahi prior to that date.

At its 21 December 2020 meeting the Waka Kotahi Board agreed to extend the Policy until 28 February 2021 and review its position at its 24 February 2021 meeting.

At its meeting of 24 February 2021 the Waka Kotahi Board agreed to continue to fund at 100% FAR fare revenue shortfalls due to impact of COVID-19 and net increase in current public transport service costs associated with implementing COVID-19 measures until 30 June 2021.

From 1 July 2021 councils’ normal FARs will apply to public transport programmes including extra COVID-19 costs. Waka Kotahi assumes that councils have done, or plan to do, work to forecast fare revenue streams from 1 July 2021 onwards and implications for meeting the ‘local share’ of public transport costs, and the overall affordability of public transport programmes.

1.1.2    Decarbonisation of the Public Transport Bus Fleet

The Government has committed to decarbonising the national public transport bus fleet and is progressing this work with urgency.

The Government will require only zero-emission public transport buses to be purchased by 2025. This commitment will target complete decarbonisation of the public transport bus fleet by 2035. Financial support will be provided to regional councils to accelerate this initiative through a $50 million fund over four years.

The Ministry of Transport is engaging with the sector about how the $50 million fund can be spent most effectively, and how barriers to decarbonisation can be overcome in the fastest, most economically efficient way.

The Government will also consider what changes to the Public Transport Operating Model (PTOM) may be needed to make it easier for services to be run using zero-emission buses.

A detailed report is contained in this agenda that provides the Committee with more information on progress towards decarbonisation of the public transport bus fleet in the Bay of Plenty.

1.2      Public Transport Update

1.2.1    Western Bay of Plenty Community Panel

The membership of the WBOP Community Panel is nearing completion with the following members of the Panel appointed: 

Bus users

Janie de Malmanche

Carbon reduction/climate change

Glen Crowther, Mary Dillon

Commercial/business

Matt Cowley

Healthcare

Vicktoria Blake

Low income advocacy

Julian Fitter, Carole Gordon

Secondary/Primary Education

Ady Van der Beek

Senior citizens, and disability sector

Ciska Volgezang, Anne Pankhurst

Tertiary Education

Ben Jones

Youth  

Paul Pou

Migrant community

Haidee Kalirai

Staff are currently seeking Māori representation. A verbal update will be provided at the meeting.  

The first meeting of the Panel will be on Tuesday 23 March at 5pm, to be held in Regional Council Chambers in Tauranga. This will be an in-person meeting with a zoom option. Future meetings are anticipated to be virtual and will use Council’s online participation facilities.

1.2.2    Patronage Updates

Regional bus patronage for the period July to December 2020 was 1.352 million. This compares to 1.382 million in the same period in 2019, and 1.308 million in 2018.

There is a decline of over 30% in patronage in Whakatāne and Rotorua on the same quarter prior year, which is driving an overall decrease across the region. 

The Tauranga network (including both urban and school networks) year to date patronage has increased by 5.4% on the same period last year. This increase is largely driven by the uptake of the dedicated school services.

The outlook for the rest of the year remains somewhat uncertain as we continue to move through Covid alert levels. According to the Waka Kotahi COVID-19 Transport Impact core report for 17 November 2020 “one in five public transport commuters are still working from home, compared to roughly one in 10 for active mode and private vehicle commuters.”

School Services

The patronage increase in Tauranga continues to be driven by the successful uptake of the Tauranga School dedicated services which have seen an 88.5% increase on Quarter 2 prior year with patronage of 126,807 in 2020/21 compared to 67,269 in 2019/20.

The impacts of COVID-19 do not appear to be affecting the school network in the same manner that is consistently seen on public transport across the country.

When looking at the first two weeks of school in 2021 (part of the third quarter), we have seen a further approximate 10% increase on patronage when compared to the same period last year. Three additional dedicated school buses were quickly organised and added to the school network this year to accommodate the increase in patronage.

1.2.3    Safety and Security at Bus Interchanges

Last year, instances of crime and anti-social behaviour around the three main bus interchanges increased significantly.  Both bus drivers and passengers have been the victims of crime – including verbal threats, physical assault and robbery.

Nutech Security was contracted by the Regional Council from 28 December 2020 to monitor and assist with anti-social behaviour at the bus interchanges at Chadwick Road, Greerton and Willow St, Tauranga. Currently, the hours of operation are between 08.00 and 22.00, seven days per week (including Public Holidays).  Two static security guards are located at the Willow St, Tauranga bus interchange and two static security guards are located at the Chadwick Rd, Greerton bus interchange.

 

In this time security staff have dealt with over 800 incidents. Reported incidents (ranging from bus driver harassment / assault, public nuisance, public intoxication and drug use) have decreased by 30% this year since the commencement of security presence across both locations.

 

The introduction of the security guards has been a success, and their presence has given bus drivers, passengers and the general public much more confidence in their own personal safety.  Local businesses are also very positive in their assessment of the initiative. Police have also commented on the positive impact the security is having and would like to see this continue.

 

At a cost of approximately $600,000 per annum, the Regional Council has not budgeted to fund this level of security on its own. The Regional Council is continuing to work with Waka Kotahi and Tauranga City Council to obtain support for this initiative so that it can remain in place for a longer term.

 

Council also seeks to extend the security presence a Bayfair, on Farm St, Mt Maunganui. Over the holiday period, police had increased presence at Bayfair and security was not therefore required. That police presence has since been removed.

1.3      COVID-19 Response

With the recent cases of community transmission in Auckland, we again moved through COVID-19 Alert Levels. At the time of writing, the country was back at Alert Level 1 and new rules released by the Ministry of Health now make face coverings mandatory on public transport across all of New Zealand for both Alert Level 2 and Alert Level 1.

While drivers, staff, and passengers on public transport services are required to wear face coverings, there are a number of exemptions including disability and medical conditions which may not always be visible.  Additionally, drivers do not have to wear face coverings if it could make it unsafe to operate the vehicle.

The obligation to wear a face covering on public transport is the responsibility of the individual. Operators, drivers and staff are not expected to assume the role of enforcement officer. There have been a number of issues across the country with passengers becoming upset at others not wearing masks and taking their frustrations out on drivers. Public information posters outlining the current rules are displayed on all buses and government is using various channels to communicate this position with the public.

Council and operators continue to display QR codes on all vehicles. Additional cleaning is undertaken and hand sanitiser continues to be available on all vehicles, in line with Ministry of Health advice.  


 

 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

Ruth Feist, Team Leader Urban and James Llewellyn, Transport & Urban Planning Manager

Report Authoriser:

Namouta Poutasi, General Manager, Strategy & Science

Purpose:

To present the PTC work programme for 2021; and explain integration of fare decisions following the LTP consultation and accessibility free fares.

 

 

Strategic Direction in 2021

 

Executive Summary

This report:

·           Presents the Public Transport Committee Work Programme 2021 for adoption. The work programme is attached as Appendix 1.

·           Explains the public transport fares integration process, relating to the consultation questions in Bay of Plenty Regional Council’s Long Term Plan consultation document. The review of the Regional Public Transport Plan, and development of a Public Transport Services and Infrastructure Business Case are key to that process.

·           Provides an overview of how an Accessibility Free Fare will be implemented in the Region. This follows from the Committee meeting of 27 August 2020, and decisions made as part of development Bay of Plenty Regional Council’s draft Long Term Plan 2021-2031.

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Strategic Direction in 2021;

2        Adopts the Public Transport Committee Work Programme 2021 as appended to the report;

3        Notes the public transport fares integration process, which will be progressed through the review of the Regional Public Transport Plan, and the development of a Public Transport Services and Infrastructure Business Case;

4        Notes the implementation of a region-wide Accessibility Free Fare for people with a permanent mobility impairment.

 

1.        Introduction

The Public Transport Committee 2020 work programme was previously adopted at the February meeting of that year.  The 2021 work programme has been developed to provide clarity to the Committee on policy matters, project delivery and information updates expected to be presented and (where appropriate) approved.  The work programme does not list presentations to the Committee (either in Public or Confidential) from members of the public or external parties as those are included on request of the specific party.  

Questions in relation to public transport fares have been included in the Bay of Plenty Regional Council Long Term Plan (LTP) consultation document. This report explains how the feedback from the consultation will be integrated into future public transport business case and funding decisions.

At the 27 August 2020 meeting of the Public Transport Committee, members expressed a desire to move forward with the implementation of a fare concession for people with mobility impairments.  As part of developing the draft LTP 2021-2031, councillors decided to implement this free fare policy. An overview of how the accessibility free fare will work is included in this report.

1.1      Legislative Framework

A review of the Regional Public Transport Plan (RPTP) is required under the Land Transport Management Act (LTMA). The review is included in the 2021 work programme.

1.2      Alignment with Strategic Framework

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

The Way We Work

We deliver value to our ratepayers and our customers.

The work programme aims to give effect to the vibrant region priority by delivering a series of projects which collectively will increase sustainable access and travel choice to communities in the Bay of Plenty.  There will also be a strong emphasis on making better use of existing resources through optimisation of existing investment.

1.2.1    Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Low - Positive

þ Cultural

Low - Positive

þ Social

Medium - Positive

þ Economic

Low - Positive

Key outcomes sought by public transport planning relate to:

·      Environmental – reducing transport emissions, including greenhouse gases (carbon).

·      Cultural – providing transport choices for Māori communities to access essential services, education and employment; and involving Māori in decision-making.

·      Social – providing sustainable transport choices and opportunities for the community (this is the main contribution to community well-being). Social benefit is the key wellbeing relevant to many public transport decisions, particularly fares and service routes and frequencies.

·      Economic – improvements to economic productivity through the reduction of traffic congestion (where sufficient people change from single-occupancy cars to public transport). This is more applicable in dense urban areas.

 

2.        Work Programme 2021

The Public Transport Committee work programme for 2021 is attached as Appendix 1 to this report. The programme has been developed to:

·      Prioritise strategic projects and statutory requirements. The work programme reflects current committed projects both in the Annual Plan and Year 1 of the Long Term Plan.  Noting the second half of the year work programme is subject to the outcomes of community engagement. Outcomes from strategic direction received from the Committee can then be implemented in the delivery programme.   

·      Provide clarity to the Committee on the policy matters, project delivery and information updates expected to be presented during the year. The work programme is to assist staff meet the expectations of the Committee.

It is noted that the Strategic Direction matters in the latter part of the year appear ‘light’ at this stage. However, various policy components of the Regional Public Transport Plan review will progress during the year and brought to the Committee in mid to late 2021. In addition, staff will keep a watching brief and include relevant evolving matters in future agendas.

3.        Public Transport Fares Integration Process

3.1      Long Term Plan (LTP)

At the Long Term Plan (LTP) workshop, elected members:

·      Emphasised that Council indicated to the community that fare structures would be reviewed; and that this commitment needed to be recognised;

·      Questioned the fairness of a $5 fare for inter-urban / longer trips compared with $2 for shorter urban trips;

·      Supported the concept of free fares for people with disabilities; and

·      Noted that Council could not review fares without considering alignment with parking charging and bus priority infrastructure provision by Tauranga City Council (TCC).

In line with this direction, the Long Term Plan (LTP) consultation document is currently seeking the public’s views on potential changes to council fares policy:

·      Expanding the current Tauranga schools free fare trial to the whole region; and make the scheme permanent;

·      Making the current regional tertiary education free fare trial permanent;

·      Introducing free fares for Community Services Card (CSC) holders; and

·      Introducing a flat fare structure across the region.

In all instances, the preferred option put forward in the consultation document does not make any change from existing policy.  Regional Council is concerned about the financial impact of proposed changes and does not believe that rates increases to pay for any changes are justified at this time.  However, respondents to the consultation make take a different view.  Furthermore, the council is committed to considering changes to fare policy as part of medium to longer term service improvements.

Elected members have previously raised issues of timing for the proposed fare review.  Previous staff advice is that (starting in August 2020) obtaining at least one year of full Bee Card patronage data is advisable before any fare review is commenced.  Furthermore, any fare review needs to be fully integrated with work that is underway by TCC to develop a parking strategy and new charging regime.

Any further work on council fares policy will be strongly influenced by:

·      Results of the LTP consultation;

·      Territorial Land Authority (TLA) parking charges; and

·      Waka Kotahi farebox recovery policy.

Following conclusion of the consultation, the public feedback on fare options will be assessed and incorporated into the work programme.  There are three relevant projects where the review of fare structures will be considered:

·      Regional Public Transport Plan (RPTP);

·      Public Transport Services and Infrastructure Business Case (PTSIBC); and

·      TCC Parking Strategy and Charging Review

3.2      Regional Public Transport Plan (RPTP)

If LTP consultation supports retention of current fare policy, the proposed approach will be to develop an updated fares policy through the new Regional Public Transport Plan (RPTP).  The aim of the policy assessment work will be to determine the optimum balance between:

·      Financial sustainability of service provision;

·      Mode shift towards public transport; and

·      Greater equity for disadvantaged groups of people.

In developing any new policy, it is essential to ensure compliance with Waka Kotahi guidance and legislation.

Waka Kotahi farebox recovery policy was introduced in 2010, and included a target to achieve a national recovery ratio of no less than 50% until 2015-18 NLTP.  This initial target has not applied since mid-2018.  The current farebox recovery ratio in the Bay of Plenty is less than 20%.

Under section 120(2)(b) of the Land Transport Management Act (LTMA), councils are responsible for including in their RPTP policies on “fares and the method or formula or other basis for setting and reviewing those fares” for contracted public transport services.

Waka Kotahi has a range of obligations under the LTMA, as co-funder in the land transport system, that guide investment decision-making within the National Land Transport Fund (NLTF).  Waka Kotahi has developed specific investment policy in relation to co-funding any negative fare revenue impacts resulting from fare policy changes.

Waka Kotahi supports councils making small, annual increases to average fare levels (for example around Consumer Prices Index and / or public transport indices) to:

·      Reflect increasing costs of service delivery (for example labour and fuel) and;

·      Avoid one-off large increases that may discourage people from using public transport.

Waka Kotahi also recognises there may be situations where more significant changes to overall fare settings and prices are justified to achieve specific strategic objectives.  However Waka Kotahi does not support:

·      Introduction of free fares at a network-wide level; or

·      Free fares for concessionary groups during “peak periods” (where “peak” has the same definition as the SuperGold Card scheme).

The reasons for this policy, cited by Waka Kotahi, are that:

·      Free public transport is an ineffective way to achieve wide-spread mode shift from private vehicles, with most of the growth is new bus trips or is a migration from active modes, e.g., someone who would normally walk takes the bus;

·      The effect on congestion levels is marginal;

·      Ridership growth can create pressure on public transport capacity resulting in a call for even more capacity to be provided (at greater expense); and

·      Opportunities for socialisation and broader transport outcomes can be better achieved through more targeted measures such as service improvements for a specific community.

RPTP fare policy work will examine these issues in more detail, and make appropriate recommendations to council.

RPTP process and timescales are detailed in a separate paper to this committee.  The RPTP will be completed by end of June 2022, and any new policy will take effect following approval by this committee.

3.3      Public Transport Services and Infrastructure Business Case (PTSIBC)

If LTP consultation supports any potential changes to fare policy, then an additional requirement will be to test mode shift and financial impacts through the proposed Public Transport Services and Infrastructure Business Case (PTSIBC).

Waka Kotahi policy is that any “step change” in a region’s current level of service is considered a public transport improvement and must be supported by a fit for purpose business case.  According to Waka Kotahi, a “step change” is likely to include changes to fare policy that have a material ongoing impact on fare revenue levels and / or high level of risk. This may include new or significantly expanded concession schemes, introduction of new fare products and changes to fare structures.

The PTSIBC will firstly model “elasticity” of different fare options to test patronage change in response to a percentage change in user costs.  Changes in passenger numbers will then be used to estimate both the revenue impacts and the requirement for any further buses to meet peak demand.  The PTSIBC will need to test value for money – in particular the Benefit to Cost Ratio (BCR) – of fare options both on their own and in conjunction with other improvements such as frequencies and journey speeds.

Subject to funding through the National Land Transport Programme (NLTP), the PTSIBC will be commenced later in 2021 and will be completed in a similar timescale to the RPTP (i.e. around mid-2022).

3.4      TCC Parking Strategy and Charging Review

Any changes to Regional Council fare structures and levels should be part of a wider initiative to rebalance the costs between private cars and bus services.  The main urban areas in the region – Tauranga in particular – have large areas of free car parking which provides a significant incentive to travel by private vehicle.  Whilst current bus fares are arguably not excessive, the requirement to pay at “point of use” gives the impression that services are financially more onerous than is really the case.

Therefore in order to deliver mode shift, any proposal to make bus fares cheaper should ideally be undertaken in parallel with both a reduction in levels of free parking and an appropriate regime for the spaces that are now subject to a charge.  TCC is starting to undertake work to implement a strategy for managing supply and pricing of car parking.  Regional Council is working closely with TCC in order to ensure that future fares work is fully integrated with this initiative.

4.        Free Fares for Mobility Impaired People

In adopting the BOPRC Long Term Plan Council confirmed its plan for free fares for people with mobility impairments in the Bay of Plenty.  Details are as set out below.

4.1      Eligibility for Accessibility Free Fare

The free fare will take the form of a 100% concession (free fare) for people with permanent mobility impairment. The scheme will allow eligible customers to travel for free on all BOPRC contracted urban and inter-regional bus services, 24 hours a day and seven days a week. 

People eligible for the concession will include anyone with a permanent mobility impairment that means they cannot drive a private vehicle (Total Mobility members automatically qualify for the concession). The permanent mobility impairment can be physical, intellectual, psychological, sensory or neurological. The scheme does not include people with temporary disabilities or care givers.  There are operational challenges with providing the concession to people with only temporary mobility impairments or to care givers that will require further work and analysis. These challenges include eligibility and determining how the temporary concession will be assessed and by whom.

The table below summarises why this approach has been taken:

Criteria

Comments

Accessibility, affordability, independence

Provides greater region wide access to schools, tertiary institutes, employment and civic services for people with mobility impairments.

The introduction of free fares for people with disabilities in the Waikato Region has resulted in greater independence and flexibility (around when they can travel) for people with disabilities and has allowed them to save more money.

Implementation

Due to the three month lead in time required for the Regional Council to make changes to the Regional Integrated Ticketing System (RITS) by 01 July 2021, as well as only being allowed three free changes per year to the system, a concession for people with permanent mobility impairments has been chosen.

The approach is also consistent with that taken by Waikato Regional Council, and therefore provides ‘cross-boundary’ consistency.

4.2      Implementing the Accessibility Free Fare

The Regional Council will coordinate with disability groups and agreed assessors (to be confirmed) in the lead up to 01 July 2021 to market the concession and start the application process. An application form is currently being developed by Regional Council Staff. Once completed, the form will be made available in hard copy and online.

The following table identifies potential risks and mitigation that staff are considering and managing:

Risks

Mitigations

Current supporting bus infrastructure and surrounding built environment (including shelters, footpaths and crossings) can make it difficult for some people with physical disabilities to get to and from the bus.

Need to work together with Territorial Land Authorities to ensure a strategy is in place to work towards a more accessible network (an accessibility strategy is being developed as part of the revised RPTP).  Note this is currently not part of some local councils’ forward work programmes.

4.3      Next Steps to Implement Accessibility Free Fare

Regional Council staff have completed the work required to ensure the Accessibility Concession is ready in the live system for 01 July 2021.

The next steps required to ensure implementation of the concession runs smoothly includes:

·      Further refinement of eligibility criteria and development of an application form (currently being developed by Council staff). Once developed, the application form will be made available in hard copy and available online the Bay Bus website.

·      Reaching out to disability groups (including the Tauranga Access Committee) to share and market information about the concession and identify opportunities to work together to have eligible customers signed up to the scheme.

·      Ensure updated fare policy and eligibility criteria for an accessibility concession is included in the Revised RPTP.

·      Once implemented, Regional Council staff will monitor the effectiveness of the scheme and seek feedback from our customers and disability groups, and investigate opportunities to improve the schemes offering (such as a concession for people with temporary mobility impairments and caregivers).

5.        Considerations

5.1      Risks and Mitigations

This report provides an overview of upcoming work. Risks and mitigations will be identified in programme and project plans for the individual work components and projects. 

As highlighted in a number of meetings with councillors, understanding and securing alignment between service planning / investment, infrastructure delivery and spatial planning will be very important. To mitigate this risk, BOPRC staff:

·      Have regular and ongoing discussions with colleagues at Tauranga City Council;

·      Are setting up a public transport working group with Rotorua Lakes Council, and

·      Work with other district councils on relevant transport planning projects. 

5.2      Climate Change

The matters addressed in this report are of a procedural nature and there is no need to consider climate change impacts.

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

The planning of public transport services aims to reduce transport emissions by increasing the number of people moved per kg of carbon emitted.

5.3      Implications for Māori

Improvements to our public transport network via the work components covered in this report have the potential to have positive effects for Māori around accessibility and provision of transport options.  This is particularly in locations where there are higher proportions of Māori in the local population.  Public transport services can provide Māori better access to essential services, including employment and education opportunities, and health care services.

Involving Māori in public transport decision-making is particularly relevant in projects that have the potential to affect services to Māori communities.  Public transport reviews, and the Regional Public Transport Plan are projects where consultation with mana whenua will be important.

The engagement requirements of public transport projects will be mapped out to develop an engagement programme that clearly identifies key groups or audiences (e.g. iwi/hapū groups, Māori as bus users) and how best to engage. Opportunities for working with other agencies on engagement events and processes will be pursued. 

The 2013 New Zealand Disability Survey (Ministry of Health, 2013) shows that Māori had a higher disability rate than non-Māori, regardless of age. This concession will assist disabled Māori people in the Bay of Plenty by providing greater access to education, employment and social activities. People with disabilities are also more likely than non-disabled people to be unemployed.

5.4      Community Engagement

Adobe Systems

INFORM

Whakamōhio

To provide affected communities with balanced and objective information to assist them in understanding the problems, alternatives and/or solutions.

 

The matters relating to the Work Programme 2021 do not require community engagement as a whole.  However each of the work components will involve an individual level of community engagement. That level will be assessed when the separate work components are scoped and implemented. The engagement requirements of public transport projects will be mapped out to develop an engagement programme that clearly identifies key groups or audiences and how best to engage.

Refer to Section 4.3 for next steps to implement the Accessibility Free Fare, and contact organisations in the disability sector.

5.5      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

The reduction fare revenue as a result of free fares for mobility impaired people is estimated to be $139,000 per annum. Provision for this sum has been included in Bay of Plenty Regional Council’s Draft Long Term 2021-2031.

6.        Next Steps

In relation to the Committee work programme staff will continue to report to the Committee in accordance with the work programme.  Other matters are likely to be brought to meetings in the second half of the year as projects progress, and other matters arise during the year.

In relation to the Fare integration, the review of the Regional Public Transport Plan, and development of the Public Transport Services and Infrastructure Business Case will be progressed.

Refer to Section 4.3 for next steps to implement the Accessibility Free Fare.

Attachments

Attachment 1 - Public Transport Committee work programme   


Public Transport Committee                                                                                                  18 March 2021

 

PDF Creator

PDF Creator


 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

Bron Healey, Principal Advisor, Regional Development

Report Authoriser:

Namouta Poutasi, General Manager, Strategy & Science

Purpose:

To outline the context for the Bay of Plenty Regional Public Transport Plan (RPTP) review and seek the Committee’s approval of the high level scope and timeframes for the review process.

 

 

Regional Public Transport Plan Review

 

Executive Summary

The most recent Regional Public Transport Plan (RPTP) review was completed in 2018. Since then, there have been significant changes to both the operating environment and the strategic context for public transport in the region.

Taking into account the current form of the RPTP and the recent changes to the operating environment, there is a strong case for re-setting the plan to better reflect the current context, focus more on guiding principles and the strategic aspects of public transport provision, and to provide a stronger, more coherent policy framework to support future decision-making.

The Land Transport Management Act (LTMA) requires the RPTP to be reviewed at the same time as, or as soon as practicable after, the public transport service components of a Regional Land Transport Plan are approved (s126). The draft Bay of Plenty RLTP has recently been approved for public consultation, and the proposed timing of the review is designed to meet this legislative requirement.

The scope has been developed with the goal of the next RPTP providing a clear strategic direction for public transport, and setting the parameters for planning and investment decisions to support the delivery of this strategic direction. This includes recognition that a considerable of amount of strategic thinking about the future role of public transport in the region has already been done. The review process will not seek to duplicate this work, but instead to anchor it in the RPTP as the key statutory document for public transport planning and investment in the region.

The report sets out high level timeframes for the review, recognising that sufficient time needs to be allocated in the process for community engagement. Proposed next steps are to undertake research (as necessary) on the key policy topics that have been identified and to develop a comprehensive engagement plan.

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Regional Public Transport Plan Review;

2        Approves the high level scope and timeframes for the review process as outlined in the report.

 

1.        Introduction

The most recent Regional Public Transport Plan (RPTP) review in 2018 was completed following development of the Western Bay of Plenty Public Transport Blueprint, which supported the delivery of a new Tauranga urban network and increased frequencies. This was followed by a more limited variation and update in 2019. Since then, there have been significant changes to both the operating environment and the strategic context for public transport in the region.

1.1      The current RPTP

The current RPTP is largely focused on operational policy, which is at least partly a reflection of the operationally focused legislative requirements in the Land Transport Management Act (LTMA).

However, recent strategic planning exercises have resulted in a requirement for the RPTP be brought up to date. Examples include the Urban Form and Transport Initiative (UFTI) in the western Bay of Plenty sub-region and the need to be clear with stakeholders on how public transport policies and strategies in the RPTP will give effect to the “Connected Centres” programme. Similarly, the Rotorua component of the Bay of Plenty Regional Mode Shift Plan has recently been progressed and the RPTP will need to reflect the outcomes of this process.

The RPTP also needs to be updated on a range of public transport-related policy areas of relevance to the region (see section on scope of the review).

Finally, the current document was fit for purpose at the time it was developed. However, the new operating environment requires a refreshed strategic policy framework that can be referred to when decisions are made about future public transport service provision.

1.2      Changes to the operating environment

There have been a number of changes to the operating environment for public transport since the 2018 review. Some of the key ones are summarised below (see Attachment 1 for a more comprehensive list):

·      The Government has released the Government Policy Statement on Land Transport (GPS) 2021 which has four strategic priorities to guide transport investment for the 2021-31 period. Two key priorities with implications for public transport policy are:

Better Travel Options – providing people with better transport options to access social and economic opportunities. This priority aims to deliver public transport and active modes that are more available and accessible and an increased share of travel by public transport and active modes.

Climate Change – developing a low carbon transport system that supports emissions reductions. This priority aims to deliver a transition to emissions-free public transport and has been given additional momentum with the Government’s recent commitment to decarbonisation of the public transport bus fleet.

·      In the Western Bay of Plenty, the Urban Form and Transport Initiative (UFTI) and the first phase of the Transport System Plan (TSP) have been completed. Together these initiatives express the relationship between transport and urban form, and envisage a stronger role for public transport in meeting the transport needs of the sub-region.

·      A strategic public transport review is currently underway in Rotorua, aiming to reverse the recent declining patronage. The outcomes of this review and proposed way forward will be inputs into the RPTP 2022.

·      Waka Kotahi has recently released a Draft Public Transport Fares Investment Policy and Draft RPTP Guidelines for Regional Fare Policy Development for consultation with local government. These will replace earlier guidelines for preparing RPTPs and the Waka Kotahi national farebox recovery policy introduced in 2010.

When combined, the factors outlined above provide a strong case for re-setting the plan to better reflect the current context, focus more on guiding principles and the strategic aspects of public transport provision, and to provide a stronger, more coherent policy framework to support future decision-making.

1.3      Legislative Framework

The Land Transport Management Act (LTMA) provides the legislative framework for the development and renewal of RPTPs. The RPTP is a statutory plan; a regional council must adopt an RPTP if it intends to enter into contracts for the supply of public transport services.

1.3.1    RPTP purpose and content

The purpose of an RPTP as described in the LTMA is threefold:

·      A means for encouraging regional councils and public transport operators to work together in developing public transport services and infrastructure;

·      An instrument for engaging with the public in the region on the design and operation of the public transport network; and

·      A statement of:

The public transport services that are integral to the public transport network;

The policies and procedures that apply to those services; and

The information and infrastructure that support those services.

Other key LTMA provisions that must be considered in the preparation of an RPTP include:

·      A set of guiding principles for those exercising functions and powers in relation to public transport services (s115);

·      Content requirements for RPTPs (s120), including:

·      Identification of services (routes, frequencies, hours of operation);

·      Identification of contracting units;

·      Specific policy requirements (accessibility, quality and performance, fare policy, procurement of units);

·      Matters a regional council must take into account when a adopting an RPTP (s124) (e.g. LTMA purpose, consistency with the RLTP, s115 principles, RMA plans, funding availability, value for money, views of public transport operators, transport disadvantaged); and

·      Consultation requirements (s125).

1.3.2    Timing of the review

A regional council may, by resolution at any time, vary or renew an RPTP previously adopted by it (s119). It may not delegate the responsibility for adopting, varying, or renewing a regional public transport plan to a committee or other subordinate decision-making body. However, in its terms of reference, the BOPRC Public Transport Committee has the role of overseeing the RPTP review process and making a recommendation to full Council.

Under LTMA s126, an RPTP must be kept current for a period of not less than 3 years in advance, but not more than 10 years in advance, and must be reviewed at the same time or,  as soon as practicable after the public transport service components of an RLTP are approved. The proposed timing of the current review is designed to meet the requirements of these provisions.

1.4      Alignment with Strategic Framework

 

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

1.4.1    Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Low - Positive

þ Cultural

Low - Positive

þ Social

Medium - Positive

þ Economic

Medium - Positive

 

Public transport planning and delivery has positive social and economic outcomes for our communities. Public transport also contributes to positive environmental outcomes through reduced transport emissions when people choose to take public transport instead of private vehicle trips. These environmental outcomes are further enhanced when the public transport trip is in a zero emission vehicle. Public transport also contributes to positive cultural outcomes (refer to the Implications for Māori section of this report).

 

2.        Scope of the review

The LTMA requirements largely determine the scope of the review and what should be included in an RPTP. The Bay of Plenty must have a regional public transport policy document that meets these statutory requirements.

The purpose of the review is to prepare an operative Bay of Plenty RPTP that sets the strategic direction for a high quality regional public transport system by June 2022.

The review will seek to deliver best practice when developing public transport policy and engaging with stakeholders, while fulfilling LTMA requirements.

The RPTP should provide a clear strategic direction for public transport, and set the parameters for planning and investment decisions to support the delivery of this strategic direction. It should provide guidance and a reference point for all aspects of public transport service delivery.

A considerable amount of strategic thinking on the role of public transport in the region has been done, or is in the process of being completed. The review is not a case of re-inventing the wheel, it is about anchoring this work in the RPTP (and providing additional guidance on some matters where necessary) as the key statutory document for public transport planning and investment in the region.

2.1      Within scope

The following matters are considered to be within the scope of the review:

·      All matters that the LTMA requires to be included in an RPTP (see s120 content requirements)

·      Additional matters that that can be included at the discretion of the authorising authority, namely:

Strategic context;

Challenges and opportunities;

Strategic response(s) (to challenges and  opportunities); and

Additional objectives and policies.

·      Strategy and policy on key public transport themes including, but not limited to:

Accessibility for public transport users;

Network planning concepts and principles;

Criteria for introduction and review of services;

Demand responsive services;

School services;

Information and marketing;

Fare policy;

Modal integration;

Land use integration;

Rapid transit;

Inter-regional rail;

Public transport infrastructure;

Fleet decarbonisation; and

Ferries.

2.2      Out of scope

The RPTP is first and foremost a strategic policy document, albeit containing some operational policy and matters as required by the LTMA.

The RPTP is not intended to be a detailed implementation plan for public transport in the region, although it may provide high level direction on an implementation approach or actions that need to be completed.

In some parts of the region, comprehensive multi-agency public transport work programmes have already been developed, so the RPTP should not duplicate this work. The policy components of this existing work must however be anchored in the RPTP as the statutory public transport policy document for the region. The RPTP will subsequently provide public transport policy guidance as these work programmes are implemented over the next few years.

A multi-agency project team is in the process of being established and is designed ensure that those responsible for key inter-related initiatives e.g. the development of public transport fares policy, parking strategies and travel demand management programmes feed into the RPTP process. Work is also progressing in cross-agency forums to demonstrate how the various policy initiatives and work programmes fit together.

3.        Timeframes

The following table shows indicative high level timeframes for the review, bearing in mind that there needs to be sufficient time allocated for early engagement with stakeholders and a full public consultation process once the draft RPTP has been prepared:

Phase

Task/Milestone

Date(s)

Deliverable(s)

Planning

Establish project team/structure

Feb 2021

Agreement on project team/structure

Complete project brief

Feb 2021

Project Brief

Plan work programme

Feb 2021

Detailed work schedule

Development

Research on key policy topics

Feb-May 2021

Research papers

Project initiation with PTC

Mar 2021

PTC resolution

Confirm issues and options

June 2021

Issues and Options paper

Prepare draft RPTP

Sept-Dec 2021

Draft RPTP for PTC approval

PTC approves draft RPTP for public consultation

Feb/Mar 2022

Draft RPTP for public consultation

Consultation

Develop engagement plan

May-June 2021

Engagement Plan

Early engagement with key stakeholders

July-August 2021

Report on stakeholder feedback

Public submissions

Mar-Apr 2022

Summary of submissions

Hearings

Apr-May 2022

Staff recommendations report

Deliberations

May 2022

Decisions report

Approval

PTC recommends RPTP to RC

May/June 2022

Draft RPTP (decisions)

Final RPTP approved by RC

June 2022

Final RPTP

Closure

Project outputs and closure documents completed and filed

30 June 2022

Published RPTP

Project Closure Report

4.        Considerations

4.1      Risks and Mitigations

The following table shows potential risks and mitigations that have been identified and will be managed during the review process.

Risk

Mitigations

Confusion about the role of the RPTP review project and how it relates to all the other ‘public transport initiatives’.

·      Identify and describe key dependencies.

·      Early communication with key stakeholders on scope of RPTP review, relationship with other initiatives.

Some sectors of the community unhappy with the policies in the RPTP as the review progresses and concludes.

·      Early engagement with community on RPTP review.

·      Clear communication on the benefits of implementing the policies.

Unable to achieve key stakeholder buy-in.

·      Early communication with key stakeholders on scope of RPTP review, relationship with other initiatives.

·      Establish multi-agency project team.

Project team unable to complete work due to other commitments /conflicting demands on their time.

·      Champion project as a priority in the Regional Council work programme.

·      Active project management approach to maintain momentum.

Policy positions required in key areas/topics to inform other work ahead of RPTP timing.

·      Adopt an adaptive, flexible approach to developing the policy positions.

·      Focus on ‘doing the thinking’ to support multiple public transport-related projects and programmes.

Rapid and fundamental shift in assumptions underpinning the Plan - economic trends, travel behaviour, transport costs and revenues, technological change, catastrophic event (e.g. pandemic, natural disaster).

·      Horizon scanning.

·      Further develop understanding of local level impacts of COVID-19 on public transport.

 

4.2      Climate Change

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

 

Public transport contributes to positive environmental outcomes through reduced transport emissions when people choose to take public transport instead of private vehicle trips. These environmental outcomes are further enhanced when the public transport trip is in a zero emission vehicle.

The Government has recently announced its plans to decarbonise the public transport bus fleet.

The Government’s commitment is to:

·    Require only zero-emission public transport buses to be purchased by 2025;

·    Target the decarbonisation of the public transport bus fleet by 2035; and

·    Support regional councils to achieve these outcomes through a $50 million fund over four years.

A project is being established to determine how BOPRC will manage the decarbonisation of the public transport bus fleet to meet the Government’s requirements (see separate agenda report). This process will inform the decarbonisation policy that is included in the RPTP.

4.3      Implications for Māori

Public transport has positive effects for Māori through improved accessibility and choice of transport options. This enables Māori to have better access to essential services and opportunities, including employment, education and health care both within major urban centres and between smaller settlements and larger centres.

The RPTP review will support an integrated and transparent approach to the provision of public transport services. Engagement with Māori will form a critical part of engagement approach to be developed and undertaken as the review proceeds.

4.4      Community Engagement

Adobe Systems

CONSULT

Whakauiuia

To obtain input or feedback from affected communities about our analysis, alternatives, and /or proposed decisions.

Fundamental to the stated purpose of an RPTP in the LTMA is its function as an instrument for engaging with the public in the region on the design and operation of the public transport network.

Consequently, the development and implementation of a community engagement plan has been identified as one of the key tasks in the early part of the review process. The initial intent is to follow a two-stage engagement process to gather the views of stakeholders early in the policy development process, followed by a more formal public consultation process once a draft RPTP has been prepared.

4.5      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

5.        Next Steps

A project brief has been prepared and a project team established.

Next steps in the review process will be to:

·    Undertake research (as necessary) on the key policy topics that have been identified and prepare research papers; and

·    Develop a comprehensive engagement plan.

Attachments

Attachment 1 - Key dependencies for the Regional Public Transport Plan review  

 


Public Transport Committee                                                                                 18 March 2021

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Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

James Llewellyn, Transport & Urban Planning Manager

Report Authoriser:

Namouta Poutasi, General Manager, Strategy & Science

Purpose:

To seek Public Transport Committee approval to proceed with the proposed optimisation project.

 

 

Papamoa - Bayfair - Mount Maunganui - Tauranga CDB - Hospital: Optimisation Project

 

Executive Summary

The Pāpāmoa – Bayfair – Mount Maunganui – Tauranga CBD – Hospital Optimisation project aims to review and recommend changes to bus operations which will provide better services to the public within existing budgets.  Improvements will focus on changes to bus service timings, routings, frequencies and stopping patterns; and will also consider the potential for revised service numbering that is easier to understand.

The project will seek to understand customer service challenges and identify options to address them within existing operational budgets.  There are a number of challenges around bus service reliability and legibility, especially where a transfer is currently required. 

The optimisation work is necessary in order to make better use of existing investment and provide confidence that further service enhancements identified in the council Long Term Plan (LTP) build on a solid foundation.

If this report is approved, work will start immediately with a view to making recommendations to the August 2021 Public Transport Committee.

 

Recommendations

That the Public Transport Committee:

1        Receives the report: Papamoa - Bayfair - Mount Maunganui - Tauranga CDB - Hospital: Optimisation Project;

2        Notes the proposed scope of work and timescales;

3        Approves the proposed high level scope of work contained in this report.

 

1.        Introduction

1.1      Background

In 2017 the Western Bay Public Transport Blueprint Detailed Business Case (DBC) recommended a new network design to address issues such as inter-connectivity between routes, low frequency, lengthy routes and travel times and missing infrastructure. 

The new network commenced operation on 10 December 2018 after three years of design and consultation.  Service principles focussed on frequency, reliability and network legibility.  The new network was based on short high-frequency services on main arterial routes, with lower frequency connector and access services travelling along less direct routes.  The two types of services were designed to connect with each other at “hubs” located at Hairini, Bayfair, Greerton and Brookfield.

When setting out the problems with the previous network design, the DBC stated:

“…many existing routes are circuitous with less than desirable frequencies for commuter services, high variability of travel times and operating hours that do not deliver a realistic transportation alternative to private cars for many travellers.”

The network design, that was adopted following the DBC, aimed to address these issues by:

·      Introducing a high frequency “City Loop” service between Tauranga CBD, Mount Maunganui and Bayfair;

·      Terminating Papamoa routes at Bayfair - with passengers transferring to the new City Loop for onward connections to either Tauranga CBD, the hospital or Mount Maunganui;

·      Introducing a new Cross Town Connector service operating between Bayfair and Tauriko;

·      Introducing express bus services operating in peak periods between:

Papamoa East and Tauranga CBD.

Tauriko and Tauranga CBD.

·      Delivering higher frequency services to Te Puke, Katikati and Omokoroa, coupled with minor route changes; and

·      Making changes to School bus services where public routes could provide an acceptable alternative transport.

Figure 1 summarises patronage levels on the Tauranga urban routes.  In 2019, the first full year of the new network, there was strong patronage growth of 8.4%.  However, the COVID-19 pandemic has resulted in a decline in patronage in 2020 of just under 14% (compared with 2019).


 

Figure 1: Patronage on Tauranga Urban Routes

 

The new network has now been in place for two full calendar years (2019 and 2020) and it is time to review its effectiveness, compared with the original intent. 

Figures 2 and 3 respectively summarise the previous and current network designs.

Figure 2: Previous Network Design


 

Figure 3: Current Network Design

1.2      Purpose

The purpose of optimisation is to review bus routes within the current blueprint model and recommend changes to make services work more effectively.  Whilst it is not proposed to change the existing “hub and spoke” model, there may be a case for selective introduction of more direct services where evidence suggests there is demand for them.  Equally, there may be other areas where more frequent services can be provided through an efficient interchange.

1.3      Legislative Framework

Regional Council is responsible for funding public transport services under Part 5 of the Land Transport Management Act 2003 (LTMA).

The overall purpose of the LTMA is to contribute to an effective, efficient and safe land transport system in the public interest.  Section 115 of the LTMA includes a set of principles that are intended to guide the actions of regional councils in undertaking their public transport functions.

These principles are:

·      Regional councils and public transport operators should work in partnership to deliver the public transport services and infrastructure necessary to meet the needs of passengers;

·      The provision of services should be coordinated with the aim of achieving the levels of integration, reliability, frequency, and coverage necessary to encourage passenger growth;

·      Competitors should have access to regional public transport markets to increase confidence that services are priced efficiently;

·      Incentives should exist to reduce reliance on public subsidies to cover the cost of providing services; and

·      The planning and procurement of services should be transparent.

1.4      Alignment with Strategic Framework

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

The Way We Work

We continually seek opportunities to innovate and improve.

The proposed optimisation project is a critical aspect of our remit to improve public transport services within existing budgets; as a potential precursor to future improvements through business cases.  Optimisation is about better design of networks, services and operational activities to meet passenger needs for reliable and convenient services.

1.4.1    Community Well-beings Assessment

Dominant Well-Beings Affected

¨ Environmental

Medium - Positive

¨ Cultural

Low - Positive

¨ Social

High - Positive

¨ Economic

Medium - Positive

Efficient and accessible bus services make a strong contribution to community well-being – particularly for people who do not have access to a private car.  Buses therefore provide an essential social service which enables people to access jobs, education, shops, friends and leisure opportunities.  Even if they are only reasonably well-used, buses are able to move significantly greater numbers of people per unit area of road-space, compared with a private car.  With the recent declaration of a climate emergency, there is an imperative to start moving many more people by bus – especially as the Council moves towards de-carbonisation of the bus fleet.

2.        Scope of Work

2.1      Background

The Urban Form and Transport Initiative (UFTI) Programme Business Case (PBC) has recommended a significant increase in bus service levels over the next ten years to 2030/31, with the aim of moving towards a high-frequency mass transit system which can provide a credible alternative to the private car.  The UFTI “medium scenario” has been included within the public consultation draft of the Long Term Plan (LTP).

However in the light of the issues discussed above, elected members have provided clear direction that all efforts should be made to make better use of existing investment in bus services before significant additional investment in new / additional services through UFTI.  Furthermore, the intense pressure on the Public Transport Services activity class within the National Land Transport Fund (NLTF) raises questions as to whether the UFTI medium scenario is affordable in the short term (as any investment would be co-funded 51% by Waka Kotahi NZ Transport Agency).  Even if funding is available, any service improvements costing over $2 million will require the proposed public transport services & infrastructure business case to be submitted to Waka Kotahi.  Subject to funding from the National Land Transport Fund (NLTF), this business case work is scheduled to commence later in 2021 and will take around a year to complete.

2.2      Study Area

The study area includes the following routes in the Pāpāmoa – Bayfair – Mount Maunganui – Tauranga CBD – Hospital corridor; namely:

·      30: The Boulevard to Bayfair;

·      30X: The Boulevard to Tauranga CBD;

·      33: Pāpāmoa Beach to Bayfair;

·      36: Pāpāmoa to Tauranga CBD;

·      Gold Line: Te Puke to Mount Maunganui;

·      City Link: Bayfair to Tauranga CBD;

·      Hospital Link: Bayfair to Tauranga Hospital.

The Bayfair end of service 221 from Te Puke may also be considered within scope if there is evidence of sufficient interaction and inter-dependency with other routes.  It is also possible that other routes which interact with services in the study area could be included.

The study area has been selected because there are a both operational challenges and opportunities for passenger growth. 

Figure 4 below shows patronage on the study area routes in November 2020.  Nearly 60% of the patronage is on the Hospital Link and City Link routes; and adding in route 30 takes the figure for the top three routes up to 77%.

In operational terms, there are a number of locations where delays to bus services are resulting in NZ Bus struggling to keep to the current timetable, especially when the need for rest breaks and shift changes is factored in.  The local NZ Bus team has made significant efforts to improve their operational procedures, but in the absence of wider network changes there is only so much more they can do. 

In passenger demand terms, high levels of new development in the Pāpāmoa area in particular present an opportunity to review bus routes and ensure that they are meeting the needs of residents.  At the other end of the corridor on Cameron Road, phase 1 of the multi-modal project presents an opportunity for improved services to the hospital.  Traffic on State Highway 2 and local roads suggests there is high travel demand along the corridor to Mount Maunganui, Tauranga CBD and south towards the hospital.


 

Figure 4: Passengers on Study Area Routes in November 2020

2.3      Objectives and Key Challenges

2.3.1    Objectives

In order to deliver against the purpose, objectives of the optimisation project are as follows:

1.   Understand current service performance issues which are affecting reliability and convenience of bus services, and leading to sub-optimal outcomes for passengers;

2.   Make necessary changes to services in response to these issues, within current budgets;

3.   Review concerns by residents about the presence of bus services; and to take appropriate action if there is no significant detriment to passengers and operations;

4.   Assess the quality of existing publicity material and make necessary changes to improve legibility and understanding of the network; and

5.   Identify any service improvements that require significant increases to budgets; and make appropriate recommendations to councillors.

2.3.2    Challenges

The optimisation project aims to address a series of challenges in the Pāpāmoa – Bayfair – Mount Maunganui – Tauranga CBD – Hospital corridor.

Anecdotal evidence from passengers suggests that some people from Pāpāmoa are unhappy about the need to transfer between bus services at Bayfair, as this introduces an additional time penalty.  The situation is not assisted by the quality of interchange facilities at the temporary Bayfair facility, and also delays to bus services which result in transfer times which are longer than they should be.  Transfers are a necessary part of any public transport network, but in order to work well they have to be seamless, quick and highly reliable.

The local bus company – NZ Bus - also have concerns about their ability to adhere to the published timetable given traffic congestion delays.  NZ Bus has proposed increases to scheduled bus running times on route 30, as traffic congestion (exacerbated by the Baypark to Bayfair highway works) means that at certain times of the day it is not possible to keep to time.

A key requirement for bus services and networks is they should be easy and intuitive to use, so that all people (irrespective of their circumstances) have confidence to get on a bus which takes them where they need to go.  However, there are concerns that some parts of the network are not easy or intuitive to use.  In particular the “triangle” of Maunganui Road, Totara Street and Hewlett’s Road is confusing for passengers as two services – City Link and Hospital Link – run on different routes depending on direction of travel.  The decision to use Totara Street aimed to utilise the most direct route between Mount Maunganui and Tauranga CBD.  However this situation risks passengers catching the wrong bus – especially as the route destination signs do not display a “via point”.  Totara Street also has high levels of peal hour congestion at its intersection with Hewlett’s Road.

There are concerns being expressed by local residents about the presence of bus services in two areas:

·      Pāpāmoa East – Wairakei Avenue and Emerald Shores Drive; and

·      Mount Maunganui – Links Avenue.

In both cases, residents are concerned that (in their opinion) large numbers of buses are using their streets; which is resulting in both safety and amenity concerns.

The optimisation work will highlight (but not recommend) potential for additional investment – which can then be subsequently dealt with by a business case and additional funding requests through relevant processes.

Although not a specific project objective, the optimisation work will forge a partnership with Tauranga City Council (TCC) to identify improvements to bus stops; as they are an essential ingredient of efforts to enhance levels of service to bus passengers.

The optimisation project has critical inter-dependencies with other current / future activities, including:

·    Travel Demand Management and Behaviour Change programme;

·    Cameron Road Multi-modal Upgrade project (implementation);

·    Cameron Road Multi-modal Upgrade project (Stage 2 business case);

·    Mount Maunganui Innovating Streets project;

·    Public transport services and infrastructure business case;

·    Regional Land Transport Plan, Low Cost Low Risk programmes;

·    Tauranga City Council (TCC) bus shelter improvement programmes;

·    Waka Kotahi SH2 Bayfair to Baypark project; and

·    Arataki bus interchange business case.

2.4      Methodology

In view of the purpose, objectives and challenges the proposed methodology is as follows:

·      Identification, collection and analysis of available data in order to establish the evidence and priority of challenges;

·      Establishing key financial metrics (e.g. budgets) and service key performance indicators so that there is a “health check” of current arrangements;

·      Setting out key network design principles and trade-offs, for example:

Geographical coverage versus service speed;

Service frequency versus direct / longer journeys;

Peak versus off peak services;

Patronage growth versus financial viability; and

Through routes versus terminating services.

·      Site visits and bus journeys to fully understand the existing bus service “landscape” and key issues;

·      Engagement with bus passengers (both regular and occasional) and non-users (who could be persuaded to use the bus) to understand current barriers and challenges (as well as what works well);

·      Engagement with the bus company and their drivers to understand operational and customer service issues from their perspective;

·      Engagement with residents’ groups to understand their concerns and explore options for their resolution;

·      Detailed assessment of current network routes, timetables frequencies, duties, running times and interchanges;

·      Identifying bus service congestion hot spots and discussion of potential priority measures (for example through the Low Cost Low Risk programme) with TCC and Waka Kotahi;

·      Identifying other road space and infrastructure requirements that are necessary to enable service changes – for example improvements to bus stops, layover, staff welfare facilities and car parking arrangements;

·      Production of service proposal changes for each route; and also an assessment of inter-dependencies between routes;

·      Public consultation on proposed service changes and consideration of feedback received into a revised network design;

·      Consideration of changes to route numbers to provide a more legible network for the bus passenger; and

·      Examination of current bus service information / publicity and recommendation of changes to provide a more legible product for the bus passenger.

The methodology is comprehensive, and places significant emphasis on engagement with passengers and communities to understand the current challenges and design appropriate solutions.  Strong partnership working with NZ Bus, TCC and Waka Kotahi is essential.

2.5      Output

The output of optimisation work will be a detailed report that set outs proposed prioritised service changes within existing budgets and rationale for their recommendation.  If there are any service changes that require additional budget, these can be identified separately and considered through appropriate financial planning and business case channels.

The optimisation report will also detail proposals for changes to marketing / publicity of services as a means of making them more intuitive / easier to understand.  There is the potential to consider changes to route numbering / branding as part of this work.

2.6      Project Programme

Subject to final confirmation of resources and committee approval of methodology, the proposed project programme is as follows:

·      Initial project inception meeting: 28 January;

·      Confirmation of project team and resources: early February;

·      Public Transport Committee approval: 18 March;

·      Data collection and analysis: February / March;

·      Site visits and engagement: March / April;

·      Service change and publicity proposals (including possible elected member workshop): May;

·      Public consultation on proposed service changes: June;

·      Finalisation of service change proposals: July;

·      Consideration of changes and possible approval by Public Transport Committee: 26 August; and

·      Implementation of service changes: by December.

If there are “quick win” service changes that could be implemented sooner – in order to address pressing issues – these can be dealt with on a case by case basis.

3.        Considerations

3.1      Risks and Mitigations

The key risks and mitigations are set out in the following table:

Table 1: Risks and Mitigations

No.

Risk

Inherent risk

Mitigating actions

Risk treatment

Residual risk

Likelihood

Impact

Total

Likelihood

Impact

Total

1

Pressure from residents to change routes which adversely impact passenger accessibility

H

H

H

Collection, analysis and presentation of robust data needs to provide clear evidence of passenger impacts in relation to any changes

Mitigate

L

L

L

2

Residents may be disappointed with the conclusions of the work

H

M

M

Preparation of a Communications Plan will identify the key protagonists and consider the key messages in the event of a likely adverse reaction

Mitigate

H

M

M

4

The project management methodology and artefacts will not be produced and kept up to date

M

M

M

The appointed project manager will be required to assume responsibility

Transfer

L

L

L

5

The scope of bus routes in the project brief may not take into account inter-dependencies with other routes (for example in relation to inter-working and interchange)

M

M

M

The scope of routes may be increased if inter-dependencies become apparent

Accept

L

L

L

3.2      Climate Change

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

 

Increasing the level of bus use, and reducing travel by private car, will assist in reducing per capita carbon emissions.  The optimisation work strongly supports other initiatives being brought before this committee, namely:

·      Bus fleet decarbonisation; and

·      Regional Public Transport Plan (RPTP).

3.3      Implications for Māori

Improvements to the public transport network through the optimisation project have the potential to deliver positive effects for Māori around accessibility and provision of transport options.  This is particularly in locations where there are higher proportions of Māori in the local population.  Public transport services can provide Māori better access to essential services, including employment and education opportunities, and health care services.

Involving Māori in public transport decision-making is particularly relevant in projects that have the potential to affect services to Māori communities.  Public transport optimisation projects recognise the importance of consultation with mana whenua.

The engagement requirements will be mapped out to develop an engagement programme that clearly identifies key groups or audiences (e.g. iwi / hapū groups, Māori as bus users) and how best to engage.  Opportunities for working with other agencies on engagement events and processes will be pursued.

3.4      Community Engagement

Adobe Systems

CO-OPERATE

Mahi Ngātahi

To work closely with affected communities to develop alternatives and recommend a preferred solution.

 

Community engagement is an essential element of the optimisation project, and will take the form of:

·      Discussions at the newly-formed Western Bay Public Transport Panel (first meeting 23 March);

·      Surveys and engagement with bus passengers (both regular and occasional);

·      Discussions at local residents’ forums (for example Arataki Community Liaison Group); and

·      Formal public consultation on proposed service changes.

3.5      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

The aim of optimisation is to make improvements within existing budgets.

4.        Next Steps

In advance of formal commencement of the project, staff have been proactive in making preparations.  For example, the Public Transport Operations team is already collating data on issues such as patronage, reliability and punctuality.  Initial discussions have been held with both TCC (as the infrastructure owner) and NZ Bus. 

A joint project team is being formed and the proposed optimisation work has been discussed with local community forums in Arataki and with residents in both Links Avenue and Wairakei Avenue.  There will be further discussion of the project at the new Western Bay Public Transport Community Panel meeting in late March.

Following approval of this report, the team will commence the work as outlined in this report.  A short progress update will be provided to the May 2020 Public Transport Committee; and a closed workshop with councillors to discuss potential service changes could also be undertaken.

The aim is to undertake formal public consultation on proposed service changes in June, before finalisation of recommendations for the August Public Transport Committee meeting.

  


 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

James Llewellyn, Transport & Urban Planning Manager

Report Authoriser:

Namouta Poutasi, General Manager, Strategy & Science

Purpose:

To secure Public Transport Committee agreement to a feasibility study scope for decarbonising the bus fleet in line with government requirements.

 

 

Bus Fleet Decarbonisation

 

Executive Summary

This report requests that the Public Transport Committee approve the scope of a proposed feasibility study to decarbonise the Bay of Plenty urban and regional bus fleet.  Further, a recommendation is proposed to Council to approve the proposed cost of $300,000 and that this be included within the Long Term Plan (LTP).

Late last year the government has mandated that from 2025 onwards, new buses will have to be zero emission at the tailpipe or at source.  From 2035, the entire bus fleet in New Zealand will need to be decarbonised (which equates to between 3,500 and 4,000 vehicles).

The local and urban Bay of Plenty fleet currently numbers 166 buses, of which five are battery-electric vehicles.  All 161 conventional diesel vehicles will need to be replaced by 2035 at the very latest.  Depending on the feasibility study conclusions, Regional Council will need to decide whether to adopt a policy whereby all new contracts are operated with decarbonised buses – starting in 2024.

This report summarises the technology options available to decarbonise the bus fleet and summarises the advantages and disadvantages of each.  A series of key challenges and opportunities are then set out; before the scope of feasibility study work is summarised.

 

Recommendations

That the Public Transport Committee:

1        Receives the report: Bus Fleet Decarbonisation;

2        Approves the feasibility study outline project scope included in this report;

3        Recommends to Council the inclusion of $300,000 for the feasibility study within the deliberations of the Long Term Plan.

 

1.        Introduction

1.1      Background

As part of the new Western Bay bus services contract in 2018 Regional Council procured five new battery-electric vehicles which are now running across the network, based out of the depot at Greerton.

Following declaration of a climate emergency by the New Zealand government in December 2020, local councils have been informed that no new diesel buses must be purchased as part of local service contracts from 2025 onwards.  By 2035, the government wants the entire New Zealand local bus fleet (estimated at anywhere between 3,500 and 4,000 vehicles) to be decarbonised[1]

According to the Ministry of Transport (MOT) the projected annual emission reduction from a zero emission bus fleet by 2035 is estimated to be between 150,000 and 189,000 tonnes of carbon dioxide equivalent (CO2-e).  The cumulative impact of decarbonising the fleet by 2035 is estimated to be a 3.0 to 4.5 million tonnes CO2-e reduction in emissions by 2050.

Transport Minister Michael Wood has committed $50million to help councils across the country meet the new goals on time.

The climate emergency declaration requires a reduction of carbon emissions of 45% (compared with a 2018 baseline) by 2030.  The current target in the draft Regional Land Transport Plan (RLTP) is a still a very ambitious 25%.

The major part of the Ministry of Transport (MOT) work programme is the development of the Transport Emissions Action Plan (TEAP).  The TEAP will be the strategic plan for New Zealand reducing its transport emissions and the basis of the transport section in the Government’s Emissions Reduction Plan for the 2022–25 emissions budget.

Transport is one of five sectors the first TEAP will focus on. Transport accounts for 21% of New Zealand’s annual greenhouse gas emissions and is the fastest growing source.  Between 1990 and 2018, road transport emissions increased by 100%, while emissions across the whole economy “only” increased by 24%.  However, in the Bay of Plenty the situation is even worse – with transport being responsible for 31% of carbon emissions.  This reflects the high dependence on the private car for personal travel.

1.2      Purpose

The purpose of this report is to:

·      Set out the current policy context and government requirements with regards to decarbonised buses;

·      Outline the challenges and opportunities associated with introducing a fully decarbonised bus fleet; and;

·      Propose a feasibility study to progress bus decarbonisation work in the Bay of Plenty.

The report considers decarbonisation of the local and inter-urban bus fleet.  At this stage, it is unclear as to whether the government’s requirement for decarbonisation extends to local council school contract services.  However, work undertaken in the proposed feasibility will be able to cover school contract buses, in the event that confirmation of their inclusion in the government’s decarbonisation requirements is received.

1.3      Legislative Framework

The Climate Change Response (Zero Carbon) Amendment Act 2019 provides a framework by which New Zealand can develop and implement clear and stable climate change policies that:

·      Contribute to the global effort under the Paris Agreement to limit the global average temperature increase to 1.5° Celsius above pre-industrial levels; and

·      Allow New Zealand to prepare for, and adapt to, the effects of climate change.

The Act:

·      Sets a new domestic greenhouse gas emissions reduction target for New Zealand to:

Reduce net emissions of all greenhouse gases (except biogenic methane) to zero by 2050.

Reduce emissions of biogenic methane to 24–47 per cent below 2017 levels by 2050, including to 10 per cent below 2017 levels by 2030.

·      Establishes a system of emissions budgets to act as stepping stones towards the long-term target;

·      Requires the Government to develop and implement policies for climate change adaptation and mitigation; and

·      Establishes a new, independent Climate Change Commission to provide expert advice and monitoring to help keep successive governments on track to meeting long-term goals.

1.4      Alignment with Strategic Framework

A Healthy Environment

We develop and implement regional plans and policy to protect our natural environment.

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

The Way We Work

We look to partnerships for best outcomes.

Any initiative to de-carbonise the bus fleet will make a very strong contribution to outcomes under the Regional Council Strategic Framework.

1.4.1    Community Well-beings Assessment

Dominant Well-Beings Affected

¨ Environmental

High - Positive

¨ Cultural

Low - Positive

¨ Social

Medium - Positive

¨ Economic

Medium - Positive

The highest impact under the well-beings is under the environment heading, as fossil-fuel powered buses will no longer operate on Regional Council supported services.  However, the full effects of greenhouse gas emissions will only be felt if there is also a strong mode shift towards using zero emission vehicles.

2.        Current Bus Fleet and Contracts

2.1      Local and Inter-urban Bus Fleet

For local and inter-urban bus services, council currently contracts 166 buses across the Bay of Plenty region (excluding dedicated school buses):

Table 1: Number of Buses per Area

Area

Number of Buses

Tauranga (western)

87

Tauranga (eastern)

48

Rotorua

21

Eastern Bay of Plenty

5

Katikati /Omokoroa

3

Waihī Beach

1

Matatā

1

Total

166

2.2      Urban and Inter-urban Bus Contracts

The Public Transport Operating Model (PTOM) requires nine year contract terms with operators.  Current PTOM contracts are as follows:

·      Western Bay of Plenty (NZ Bus): expires December 2028.

·      Eastern Bay of Plenty (Uzabus): expires June 2025.

·      Rotorua (Ritchies): expires June 2024.

·      Katikati / Ōmokoroa (Uzabus): expires February 2024.

In addition to PTOM, Waka Kotahi has developed the Requirements for Urban Buses (RUB) regulations which are applied nationally.  Regional Councils must use the RUB to access Waka Kotahi investment for public transport services. 

The RUB seeks to standardise urban bus requirements nationally to create efficiencies and improve the usability, accessibility, environmental quality of buses for all customers.  The aim is to attract more patronage, from people who have a greater choice about whether they use public transport, and improve the customer experience.  Most importantly, the RUB provides for mobility needs of people with physical, sensory and cognitive impairments. 

The adoption of a common standard approach like the RUB results in: 

·      Net savings, due to reduced capital and operating costs of purchasing, and operating urban buses;

·      Reduced time in understanding and complying with multiple regional Vehicle Quality Standards; and

·      More efficient use of urban buses by public transport operators because buses can be used in more than one region without costly modifications.

The RUB has wider benefits at a national level, including:

·      Improving the perception held by existing and potential users that buses can be used for all urban travel, including commuter, shopping, education and recreational activities travel;

·      Increasing usage of public transport, including by an ageing population and people with physical, sensory and cognitive impairments;

·      Reducing bus design and feature variations that result in higher unit costs for supply; and 

·      Safety and environmental benefits. 

3.        Strategic Options for Decarbonised Buses

3.1      Introduction

According to MOT, “decarbonisation” refers to the transition from current fossil fuel power sources (predominantly diesel) to zero-emission vehicles (at the tailpipe) or vehicles using zero-emission power sources.

Decarbonisation could be achieved through the deployment of buses powered by electricity, hydrogen or other power sources that result in an equivalent reduction in greenhouse gas emissions such as biodiesel or biomethane. 

Therefore, when talking about “decarbonised” buses it is important to be clear on the potential options available.  Work undertaken on behalf of MOT by KPMG outlines four potential options:

1.   Battery-electric;

2.   Hydrogen fuel cell;

3.   Biomethane; and

4.   Synthetic diesel.

3.2      Option Summary[2]

A key early decision will be to select options that Regional Council will include within the proposed feasibility study.

Battery-electric buses use an electric motor which is powered by on-board batteries and / or supercapacitors.  Battery electric vehicles convert stored energy into kinetic energy with a peak level of efficiency of between 70% and 90% (compared with around 45% for diesel engines).  The buses have a very smooth torque curve, which allows for rapid acceleration from a stationary position and contributes to a smooth ride for passengers.

The council already operates five battery-electric buses which are housed and charged at the NZ Bus Greerton depot.  These buses having been running on the network since 2019. 

Battery-electric buses are a known technology and therefore often considered to be the “default” option for further decarbonisation work.  However, requirements for significant additional power transmission and charging infrastructure, coupled with the heavy weight of the vehicle itself, means that other options should be actively considered.  Up-front costs for vehicles are currently around $750,000 for a 12-metre single-deck vehicle, compared with around $420,000 for the equivalent diesel bus.  However, fuel costs are significantly cheaper.

Fuel cell vehicle technology provides an alternative to all-electric drivetrains without pollutant exhaust emissions.  The main emission produced by a hydrogen fuel cell bus at the point of use is water vapour.  At around 60%, energy conversion for storage and use via green hydrogen is currently less efficient than batteries, resulting in a lower net conversion from energy source to propulsion.  However, hydrogen is more energy-dense than batteries so hydrogen fuel cell buses are typically lighter than equivalent battery electric buses, requiring less energy for propulsion.  Up-front costs for vehicles are currently around $1 million for a 12-metre single-deck vehicle, compared with around $420,000 for the equivalent diesel bus.  Fuel costs are currently significantly higher, reflecting the lack of capacity.

There are two options where an internal combustion engine can be powered by low carbon sources:

·      Biomethane - by methane produced from renewable sources; and

·      Synthetic diesel – by diesel produced from renewable sources.

Use of an internal combustion engine has the potential advantage of requiring lower levels of investment in new fuelling infrastructure, compared with battery-electric and hydrogen.  The use of biomethane is already widespread throughout the world, although synthetic diesel is less common.  However, although far superior to conventional diesel, neither option is completely zero carbon; and there is currently no clear pathway for achieving this goal.  Whilst both technologies are potential interim options, there is some doubt as to whether continued use of internal combustion engine technology will remain environmentally acceptable in the longer term.

A key strategic decision will be whether to proceed with assessment of all four of the above options or a reduced number (on the basis that options 3 and 4 are not currently zero carbon, and may well never be so).

Appendix 1 provides a more detailed assessment of the advantages and disadvantages of the four potential decarbonised bus options, as well as an indicative whole of life cost comparison.

3.3      Timing of Decarbonisation

Although only new buses can be purchased from 2025, there is a further 10 year window before a fleet is required to be decarbonised (by 2035).  In theory this means that contracts in the Eastern Bay, Rotorua and Katikati / Ōmokoroa can be procured for an additional nine years with conventional diesel buses.  In the Western Bay – which has by far the largest fleet – it would not be possible to procure another nine year contract as this would go beyond the 2035 deadline for removal of all conventional diesel buses.  Whilst it may be possible to extend the existing contract with NZ Bus to a point nearer 2035, the climate change emergency is demanding deep cuts to carbon emissions.  Therefore whilst any attempt to extend the life of conventional diesel buses may be considered, at this stage it is not recommended.

Whilst no immediate policy or investment decision needs to be made to decarbonise the bus fleet, it is proposed to proceed with a feasibility study on the assumption that Council should aim to introduce decarbonised buses when contracts come up for renewal.

4.        Key Challenges and Opportunities

4.1      Introduction

Whilst the intent to decarbonise the bus fleet is strongly supported, there are a range of challenges which Regional Councils across New Zealand will need to address.  There are also significant opportunities.  The challenges and opportunities can be categorised as follows:

·      Technologies;

·      Capital and operating costs of vehicles;

·      Vehicle performance;

·      Specification and costs of supporting infrastructure;

·      Financing;

·      Structure of vehicle markets;

·      Contractual landscape;

·      Supply chain;

·      Vehicle size and impact on infrastructure;

·      Planning and consenting; and

·      Benefits.

4.2      Summary Assessment of Challenges and Opportunities

The following table provides a high level (and not necessarily exhaustive) summary of the challenges and opportunities that a decarbonised buses feasibility study in the Bay of Plenty may need to address:

Table 2: High Level Challenges for the Feasibility Study

Challenge / Opportunity

Key Questions for Study

Technologies

What are the key technologies that are most applicable to the Bay of Plenty?

What are the lead times for procuring, testing and implementing the various technologies?

Are there any non-runners that should be ruled out?

Is it desirable to use a mix of different technologies across the region?

Capital and operating costs of vehicles

Given the size of the current and future fleets, what could be the size of the capital investment to replace all conventional diesel buses?

To what extent will lower operating costs offset the higher capital outlay?

Vehicle performance

What are the key operational and passenger performance metrics that vehicles will need to deliver against?

Does the Bay of Plenty geography and topography throw up any challenges for the different technology options?

Specification and costs of supporting infrastructure

What will be the future power / fuel requirement for the fleet?

What infrastructure is required to provide this power source?

What are the requirements for energy management systems?

To what extent will depot facilities need to be upgraded?

What are the optimum locations for depots?

Financing

What provisions will need to be made in future council Long Term Plans?

What third party financing options could be feasible?

How would any financing option impact procurement?

Structure of vehicle markets

What will happen to the “orphaned” assets (conventional diesel buses)?

Are there a sufficient number of options for sourcing new vehicles?

Are there options for purchase of second-hand vehicles from abroad?

Contractual landscape

 

What will be the optimum length of contract under PTOM?

How will bus operators price in risk when bidding for contracts?

How will competitive markets be ensured?

Who will own the vehicle and infrastructure assets?

Is there an opportunity to partner with other councils for procurement exercises?

Supply chain

 

What are the options for sourcing vehicles and supporting infrastructure?

Can sufficient supply chain capacity for both capital purchases and ongoing operations be created?

Are sufficient local skills and capabilities available?

How can ethical sources of materials and equipment be ensured?

Vehicle size and impact on infrastructure

 

Are there opportunities to consider different sizes of vehicle on the network?

What will be the impact of vehicles on the highway pavement, level crossings and structures?

Planning and consenting

 

Are there areas of land available if new / expanded depot facilities are required?

Are these areas of land well-located for available power sources?

What will be the key risks and opportunities for a resource consent application?

Benefits

What will be the impact on carbon emissions and budgets?

What other environmental benefits will accrue?

Is there any merit in bringing forward decarbonisation to the contracts which end in 2024?

Are there any potential dis-benefits?

What are the economic opportunities for the Bay of Plenty?

The table above clearly illustrates that implementation of a decarbonised bus fleet will be a complex long-term project.  Many of these challenges and opportunities are inter-dependent, with the answer to one question having knock-on implications for others.  For example the level of funding required may determine both the choice of financing options and the procurement model that will be used.

4.3      Smaller Buses

As noted in the table above, one potential opportunity is to consider changes to the size of vehicles.  Some communities across the region complain about the size of conventional buses and would like to see smaller vehicles (defined by RUB as having between 13 and 35 seats), especially in areas where demand is lower.  In addition, some communities are not served by buses because conventional vehicles are not able to safely access narrow and winding roads. 

Furthermore the impact of buses on the structural integrity of the highway pavement is a matter of concern to the Territorial Land Authorities (TLAs).  The introduction of smaller and lighter vehicles could assist with avoidance of further damage to the highway asset.

The introduction of smaller buses provides a potential solution to these problems.  Initial advice from Waka Kotahi is that potential for procurement of smaller vehicles is something that, in future, could be considered within PTOM.  Therefore a transition to a decarbonised bus fleet could provide an opportunity to deliver a different approach.  However, there are some important issues to assess; most notably whether introducing smaller buses could reduce accessibility for people with mobility impairments because there is less space to accommodate people with wheelchairs.

Both PTOM and RUB are currently under review by Waka Kotahi, and the implications of decarbonisation will be considered within this work.

5.        Proposed Next Steps

5.1      Introduction

A number of councils – including Bay of Plenty – have already introduced low or zero carbon buses; so there is a degree of experience and expertise to start from. 

Auckland Transport (AT) is leading the way with introduction of a fully battery-electric fleet on Waiheke Island and additional vehicles on the mainland.  Trials of both hydrogen buses and larger three-axle longer distance buses are also commencing.  AT has committed to not purchasing any more conventional diesel vehicles.  To that end AT has recently completed its low carbon bus road map[3].

The experience of operating battery-electric vehicles in the Bay of Plenty should provide an important starting point for work to decarbonise the entire fleet.  Work with the bus operator to understand the operational performance issues will enable a solid baseline of knowledge to be achieved.

In the Bay of Plenty, Priority One are already heavily involved in hydrogen as an alternative fuel source and so further discussions with this organisation would appear to be an obvious step.

The Public Transport Special Interest Group (PTSIG) – made up of the Regional Councils - is currently scoping a study which may address some of the New Zealand questions around transitioning to a decarbonised bus fleet.  The PTSIG study is likely to provide guidance and a road map for how councils can deliver the transition; and will aim to complete the work within a few months.  The study may also make recommendations to the MOT for legislative and regulatory changes – especially in relation to PTOM.

5.2      Feasibility Study

The challenge for the Bay of Plenty will be to apply both existing experience and insights from the PTSIG guidance to the specific challenges across the region; and set out its own road map for decarbonisation.  The first stage of this road map is to undertake a feasibility study which will attempt to answer as many of the questions in Table 2 as possible; or at the very least narrow down the options.

The first priority will be to shift the range of technology options and make a strategic choice about which ones to pursue.  To a large extent this choice will be closely controlled by government definitions of zero carbon buses, which may evolve over time.  These definitions may therefore rule out existing low carbon options which will never become zero carbon.

Once a shortlist of decarbonised options has been established, the feasibility study will then use existing information (from New Zealand and overseas) to undertake a comprehensive assessment of the pros and cons of each (i.e. an expanded assessment of Tables 2 to 5 in this paper).  This assessment will be important for Council to understand the trade-offs which may need to be made in selecting the preferred option or mix of options.

At the 07 October LTP workshop, councillors decided against including funding for decarbonised buses as, at the time, further government direction was awaited.  This direction has now been provided, and therefore staff seek to recommend to Council the provision of $300,000 for the feasibility study to be considered at the LTP deliberations meeting.  This figure is based on the costs for a comparable study in Auckland, adjusted to recognise that the Bay of Plenty has a wider range of geographical, topographical and climatic conditions. 

A key consideration will be to engage a suitably qualified consultant to assist with the work; noting that there could be a resource shortage as other councils are likely to be progressing their own studies.  One option may be to discuss a joint study with Waikato Regional Council, which may yield some economies of scale. 

The proposed feasibility study should commence as soon as possible post-01 July 2021.  A key requirement will be to draft a Request for Proposal (RfP) for consultants to bid against.  Before commencing the study, it should be possible to undertake a stocktake of existing data, information and knowledge.

The proposed timescale for undertaking the feasibility study is to report in early 2022 (i.e. to the first Public Transport Committee of the new year).

6.        Considerations

6.1      Risks and Mitigations

At this early stage a full risk assessment and mitigation strategy has not been undertaken; and this activity will form part of the programme set up.  From assessment of the issues to date, the key high level risks are summarised in Table 3:

Table 3: High Level Risks

Risk Type

Summary

Financial

The capital costs of vehicles and supporting infrastructure will put a very heavy strain on council resources; and could require significant rates rises.

Reputational

Given the potential rates increase, there could be significant opposition from local residents (especially people who do not use the bus).

Delivery

The supply chain may not be able to provide the necessary materials and equipment to deliver the vehicles and supporting infrastructure.

Patronage

On their own, decarbonised buses may not result in higher levels of patronage.

Performance

Some decarbonised bus options may struggle to perform to the standard required in terms of speed / distance.

Asset condition

The heavier axle weight of at least some decarbonised bus options may cause damage to the highway pavements and structures, resulting in additional costs.

Any mitigations for these and other risks will need to be identified and addressed in the feasibility study.             

6.2      Climate Change

The need to significantly reduce carbon emissions is the rationale for this paper and the proposed feasibility study.

6.3      Implications for Māori

Improvements to the public transport network through the decarbonisation project have the potential to deliver positive effects for Māori around accessibility and provision of transport options.  This is particularly in locations where there are higher proportions of Māori in the local population.  Public transport services can provide Māori better access to essential services, including employment and education opportunities, and health care services.

Involving Māori in public transport decision-making is particularly relevant in projects that have the potential to affect services to Māori communities.  Public transport projects recognise the importance of consultation with mana whenua.

The engagement requirements will be mapped out to develop an engagement programme that clearly identifies key groups or audiences (e.g. iwi / hapū groups, Māori as bus users) and how best to engage.  Opportunities for working with other agencies on engagement events and processes will be pursued.

6.4      Community Engagement

Adobe Systems

INFORM

Whakamōhio

To provide affected communities with balanced and objective information to assist them in understanding the problems, alternatives and/or solutions.

 

Whilst no detailed engagement with the community is currently required, it will be important to provide clear communication on what we are doing and why.  Any proposed change often results in concerns and negative emotions, and so it is necessary to ensure that the transition to decarbonised buses is explained in a positive manner.  Given the potential impact on future levels of rate increases, setting out the positive impacts of decarbonised buses on both the local environment and economy will be important.

6.5      Financial Implications

The current LTP – which is out to public consultation – does not make provision for replacement of the existing bus fleet with decarbonised vehicles in the next 10 years.  This is because the government announcement around the requirement to only purchase decarbonised buses was made in January this year.  A figure of $300,000 is proposed for inclusion on the final LTP in order to conduct the feasibility study.

At this early stage, it is not possible to accurately forecast the potential financial implications of any decision to decarbonise the bus fleet.  As noted in section 3.3 above, it could be possible to delay introduction of decarbonised buses closer to the 2035 deadline for scrapping of conventional diesel vehicles.  However, on the assumption that Regional Council will wish to demonstrate leadership on the climate change agenda, a strategic decision around when to invest in decarbonised vehicles will be required.  It is also possible that, in addition to the $50 million already announced, the government may make further funding available.

7.        Next Steps

As a first step it is recommended that, subject to final LTP decisions, the Committee approves commencement of the feasibility study - which will answer the key questions outlined in this report and enable a greater degree of financial certainty to be gained.

Attachments

Attachment 1 - Summary Option Assessment   


Public Transport Committee                                                                                 18 March 2021

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Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

Rehan Shaikh, Senior Network Planner

Report Authoriser:

Namouta Poutasi, General Manager, Strategy & Science

Purpose:

To provide updates on our current public transport trials, and improvements to bus services.

 

 

Improving our network

 

Executive Summary

This paper provides an update on public transport trials which are currently running:

·      Tauranga schools fare free trial (there is a 23% increase in patronage from 2019 to 2020 despite patronage being affected by COVID-19 lockdown);

·      Regional tertiary fare free trial; and

·      Super Gold Card free travel.

The paper also provides an overview of the improvements to the bus services between Kawerau and Whakatāne, which will made within existing approved budgets. 

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Improving our network.

 

1.        Introduction

This report provides an update of the public transport trials currently underway in the Bay of Plenty including:

-     Tauranga schools fare free trial

-     Regional tertiary fare free trial

-     Super Gold Card free travel

The Tauranga schools fare free and regional tertiary fare free trials have previously been extended to December 2021.

Improvements to the Kawerau-Whakatāne bus service are also being progressed.

1.1      Alignment with Strategic Framework

 

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

1.1.1    Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Low - Positive

þ Cultural

Low - Positive

þ Social

Medium - Positive

þ Economic

Low - Positive

 

Improving the public transport network has social and economic benefits for our communities. There are also positive benefits to the environment (i.e. reducing CO2 emissions from transportation) where people choose to use public transport over single occupancy private vehicles.

2.        Update on Current Bus Service Trials

2.1      Tauranga School Fare Free

The Tauranga schools fare free trial commenced on 27 January 2020, and has been extended to December 2021.

2.1.1    Patronage

Data is shown to December 2020, which is the most recent information available at the time of preparing this report.

Calendar Year

TGA school fare free patronage

Changes in patronage

Percentage change

2018

466,452

-

-

2019

409,156

(-) 57,296

(-) 12%

2020

502,949

(+) 93,793

(+) 23%

 

2.1.2    Analysis

The patronage for 2020 was 23% higher than for 2019, and 9.5% higher than the annual average for the trial to date (annual average 459,519). This is despite patronage being affected by COVID-19 lockdown during April-May 2020.

Total patronage for 2020 was 502,949 trips. A total of 93,793 additional trips were made by students who travelled on both school buses and the urban network in the 2020 calendar year. The data shows patronage was higher in February and March 2020 than for the equivalent months in 2018 and 2019, and was substantially higher after August 2020 (compared to 2018 and 2019). The data for 2018 and 2019 reveals a regular trend of higher patronage during the mid-year and lower either side of Christmas as a result of school holidays.

We know anecdotally that some school children are now traveling by bus instead of by private vehicle, walking and/or cycling.  However it is difficult to measure the effect of the school free fares trial in reducing Tauranga’s traffic congestion due to the number of variables involved, e.g weather, day of the week, traffic incidents, and road works.  Only gross assumptions could be used to estimate possible reduction in the use of private cars associated with the trial. 

2.2      Regional Tertiary Fare Free

The regional tertiary fare free trials was launched at the beginning of 2020. The service enables students from Katikati, Rotorua and Whakatāne to travel into Tauranga and back every weekday. The trial has been extended to 20 December 2021. The service is a joint venture between the University of Waikato, Toi Ohomai Institute of Technology and Bay of Plenty Regional Council, with each organisation contributing funds to make the service available, along with a grant from Waka Kotahi NZ Transport Agency.

2.2.1    Patronage

Data is shown to December 2020, which is the most recent information available at the time of preparing this report. There is no data for the month of January due to summer holidays for tertiary students, and therefore the trial effectively began 1 February 2020.

2020 Tertiary Trial Patronage by Month

Route

Feb

Mar

Apr

May

June

July

Aug

Sep

Oct

Nov

Dec

Total

Whakatāne - Tauranga

            149

            135

               -  

              30

              71

            198

            216

            201

            120

            146

              33

         1,299

Rotorua - Tauranga

            218

            291

               -  

              31

            117

            205

            238

            233

            271

            161

              46

         1,811

Katikati - Tauranga

            215

            287

               -  

              18

              70

            142

            173

            176

            128

            135

              42

         1,386

Murupara - Rotorua

            108

            119

               -  

              21

              92

              53

              93

              91

              74

              67

               -  

            718

Tauranga - Rotorua

            362

            311

               -  

              29

            132

            231

            287

            330

            303

            184

              12

         2,181

Total

            362

            311

               -  

              29

            132

            231

            287

            330

            303

            184

              12

         2,181

 

 

 

 

 

 

 

 

2.2.2    Analysis

Due to the trial only starting in the beginning of 2020, and the impacts of Covid-19 lockdown, there is not sufficient data to make a full analysis at this stage. More than one full year of data is required for trend analysis. There is no data for April 2020 due to the Level 4 lockdown. Patronage naturally falls in December due to tertiary holidays. Although patronage data is only shown for regional tertiary free fares, the bus services are also used by other groups. For example, the Murupara to Rotorua connection is a key social service for the Murupara community.

 

2.3      SuperGold Card Free Travel

SuperGold Card holders receive free off-peak public bus travel. The scheme is 100% funded by the Ministry of Social Development. The trial of free travel for SuperGold card (SGC) holders has been extended until 30 June 2021 on all Bayhopper and Cityride services. During the trial period eligible card holders (aged 65 and over) will have free bus travel on the regional network from:

•    9:00 am on weekdays: and

•    All day on weekends and public holidays.

The detailed information regarding how it works, concessions etc. is available on the Beecard website https://beecard.co.nz/Pages/SuperGold and in the printed timetable. For further details see the Baybus website https://faqs.baybus.co.nz/hc/en-nz/articles/360002954795-What-is-the-SuperGold-Card-scheme- 

 

2.3.1    Patronage for SuperGold Cardholders

Data is shown to December 2020, which is the most recent information available at the time of preparing this report.

Calendar Year

TGA Senior/SGC patronage

2018 (July-December only)

211,365

2019

439,282

2020

291,995

2.3.2    Analysis

Patronage in 2019 was generally higher than equivalent months in 2018. Data from 2020 is substantially affected by COVID-19 impacts, with a decrease of 34%. Similar trend of decrease in public transport patronage is observed in other major cities i.e. Christchurch (71%), Wellington (70%) and Auckland (50%) (https://www.nzta.govt.nz/about-us/coronavirus-disease-covid-19-services-update/data-and-research/weekly-public-transport-patronage-information/). The post lockdown period shows a good recovery in Bay of Plenty regional patronage for super gold card holders. 

2.4      Increasing Bus Services between Kawerau – Whakatāne

The Kawerau residents have been requesting improved public transport services for many years through Annual Plan 2019-20 and Long Term Plan submissions. In response to these requests, Council made the decision to consider improving the services running between Kawerau to Whakatāne. Currently, Kawerau has one return trip to Whakatāne on two days of the week (Tuesday and Thursday).

Consultation with the community and stakeholders has been carried out. The community preference is to increase the number of trips per day and also increase the service from two to four days per week.

2.4.1    Proposed Increased Bus Service

Under the improved bus service, we are looking to keep the same current route (Service 135) in to Kawerau, but alter the route slightly when leaving Kawerau (see map below). There is an addition of a “Town Loop” which would be once in the middle of the day and would provide greater coverage of the township. It is planned to start from 01 June 2021. There will be 4 return trips per day 4 days per week on Monday, Wednesday, Friday and Saturday (excluding public holidays). Patronage will be monitored to determine the success of the increased service.

 

Stops

 

 

Time

Kawerau

i-Site

Edgecumbe

Whakatāne Hospital

Whakatāne, Boon Street

Whakatāne Hospital

Edgecumbe

Kawerau

i-Site

AM

7:00

7:20

7:50

8:05 / 8:10

8:20

8:50

9:20

 

9:30

9:50

10:20

10:35 /10:40

10:50

11:20

11:50

 

 

Town Loop departs from Kawerau i-Site at 12:45 pm

PM

1:20

1:40

2:10

2:25 / 2:30

2:40

3:10

3:40

 

4:00

4:20

4:50

5:05 / 5:10

5:20

5:50

6:10

 

2.4.2    Town Loop

The current route taken by the #135 bus service, including the existing loop through Kawerau, is shown below.

The following map shows the new ‘Town Loop’ component of the improved service (the bus will go in a clockwise direction):

 

2.4.3    Summary of changes

Key changes are summarised as follows:

·      Increase from two days a week to four days a week (Monday, Wednesday, Friday and Saturday).

·      Increase from two return trips per day to four return trips per day.

·      No changes to the route coming into Kawerau.

·      Small change to route when leaving Kawerau (via Newall Street).

·      Addition of a ‘Town Loop’ service to run twice a day, which includes Peter Lippa Road.

·      No changes to the service fares.

 

2.4.4    Timeline for implementation

The start time for the improved service is 1 June 2021 due to the need to ensure that all operational aspects of the service are fully tested and completed. This allows sufficient time for the bus company to arrange a suitable vehicle and employ and train a driver. This provides BOPRC time to update and test the ticket machine system as well as changing the printed timetables and our website display, communication and promotion. This also gives Kawerau District Council time to action the placement of bus stop signage. 

2.4.5    Annual Budget

The total costs for the improved frequent service between Kawerau and Whakatāne is estimated at $202,000, and there is currently $217,000 in the Annual Plan 2020/21 funded by general rates, which is also budgeted for in the Long Term Plan.  There are no targeted rates for transport in Kawerau District due to the low level of additional funds that would provide. 

3.        Considerations

3.1      Risks and Mitigations

There are no significant risks associated with the matters in this report.

Any risks associated with improvements to the Kawerau-Whakatāne service are being managed through careful pre-implementation planning.

3.2      Climate Change

Improvements to our public transport network has the potential to reduce transport emissions where people choose to use public transport over single occupancy vehicles. The fuel efficiency and carbon emissions of all public transport, including buses, are strongly influenced by patronage (the higher the patronage, the lower the emissions per passenger).

The table below shows the emissions by type of vehicles in relation to current bus patronage levels, therefore giving an indication of the emission reduction.

CO2 emissions

Type of Vehicle

Petrol/Diesel car

Electric car

Diesel Bus (based on current BOP patronage levels)

Electric Bus

Range of emissions for vehicle

123 gm CO2/km (Citroen) –

170 gm CO2 /km (Kia)

303 gm CO2 /km (Ferrari & Chrysler)

71 gm CO2/km (Leaf) –

120 gm CO2/km (Tesla S)

200 – 300 gm CO2/Passenger km

0-30 gm CO2/Passenger km

Average emissions for vehicle

180 g/km

25 - 50 gm CO2/km (NZ based energy generation)

250 gm CO2/Passenger km

10 gm CO2/Passenger km (Renewable Electric Power)

BOP Regional Population

310,000 (as per 2018 census)

BOP Regional Private cars and buses

227,608

920

Average emissions per person for vehicle

132 gm/person

25 gm/person

0.74 gm/passenger km

0.03 gm/passenger km

Sources:

https://www.transport.govt.nz/statistics-and-insights/fleet-statistics/sheet/vehicle-fleet

file:///C:/Users/RehanS/Downloads/MoT-Transport-Outlook.pdf

https://www.stuff.co.nz/motoring/113716572/the-cleanest-and-dirtiest-car-brands-in-new-zealand#:~:text=The%20research%20shows%20that%20average,falling%20to%20146.3g%2Fkm.

https://www.nextgreencar.com/emissions/

EEA (2013) “Monitoring CO2 Emissions from New Passenger Cars in the EU: Summary of Data for 2012”, European Environment Agency, Copenhagen, Denmark 

https://www.stats.govt.nz/tools/2018-census-place-summaries/bay-of-plenty-region

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

The matters in this report related to Focus Area 3 (the services we provide as a Regional Council) in the Bay of Plenty Regional Council 2019/20 Climate Change Action Plan and Goal 10 i.e. reduce greenhouse gases emissions in the region.

3.3      Implications for Māori

Improvements to our public transport network via the mechanisms covered in this report have the potential to have positive effects for Māori around accessibility and provision of transport options. Kawerau and Whakatāne communities have higher Māori populations than many other communities in the Bay of Plenty.

3.4      Community Engagement

 

Adobe Systems

INFORM

Whakamōhio

To provide affected communities with balanced and objective information to assist them in understanding the problems, alternatives and/or solutions.

In relation to the reporting of public transport trials, this report is largely information only on matters to improve the public transport network.

The improvements to the Kawerau-Whakatāne service will be marketed to residents in the area affected to make people aware of the changes and benefits.

3.5      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

Future budget implications are being addressed through the development of the Long Term Plan 2021-2031.

4.        Next Steps

The next steps are:

·      Continue to monitor public transport trials and report the results to the Public Transport Committee.

·      To start the improved frequent bus services between Kawerau – Whakatāne (Route #135) from 01 June 2021.

The Kawerau on-demand trial is still in planning stage and will be delayed until July/August 2021. This is because staff recommend a clear distinction between the improved bus services and the on-demand trial in order to accurately monitor the outcomes of the on-demand trial. Progress and an overview of implementation planning will be provided at the next Public Transport Committee meeting in May.  

 

  


 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

Melissa Winters, Transport Advisor (Network Optimisation) and Stacey Brooks, Transport Support

Report Authoriser:

Mat Taylor, General Manager, Corporate

Purpose:

This report is being provided to update the Committee on recently completed technology projects and future enhancements.

 

 

Public Transport Technology Update

 

Executive Summary

This report provides an overview of the changes in public transport technology that have been implemented at Council during 2020, including a region-wide ticketing system and a new real-time tracking and monitoring system. 

This report also provides information on technology initiatives that are being investigated with a view towards implementation within the next twelve months.

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Public Transport Technology Update.

 

1.        Introduction

The strategic goals for Public Transport technology are:

·    improved real-time information for customers;

·    improved monitoring, in real time, of contractor service delivery;

·    enhanced customer experience;

·    value for money;

·    patronage growth;

·    environmental sustainability; and

·    demand responsive transport.

Staff are guided by the 2017 Public Transport Technology Report prepared by MR Cagney.

A number of improvements against these goals were made in 2020 with the introduction of the Regional Integrated Ticketing (RITS) ticket machines on buses, and the ‘Dynamis’ system, which together provide far greater accuracy for customer facing information and the ability to monitor contractor performance in real time.

Collaboration with other Councils has been and will continue to be key to the success of any technology initiatives, and staff are working particularly closely with territorial councils, Waikato Regional Council and the national RITS consortium to seek shared solutions that provide value for money.

1.1      Alignment with Strategic Framework

 

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

The Way We Work

We use robust information, science and technology.

 

1.1.1    Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Medium - Positive

¨ Cultural

 

þ Social

High - Positive

þ Economic

Medium - Positive

 

2.        Technology Update

2.1      Ticketing System

In July 2020, Council launched the new card-based regional integrated ticketing system.  The Bee Card replaced existing CityRide and SmartRide cards, and having one system across the region as opposed to having a different system in each main centre has had a positive impact on our community.

There was a period in 2020 in which cardholders could exchange their old card for a new ‘Bee Card’ and have their balance transferred.  Up to 50,000 Bee cards are now in circulation across our region and these can be registered and topped up on-line, including a recent auto top-up feature. 

Students can access free travel in Tauranga simply by registering their card with their date of birth.  Supergold cardholders can register their Bee Card online and add their Supergold card number to it; it is then verified by MSD before the concession is applied to the card.

Bee Cards can be used in a number of different cities around New Zealand, including Hamilton, Whangarei, Queenstown, Dunedin and Palmerston North.  This enables bus users to access public transport when they travel without the need to carry cash for fares. 

The Bee Card system has significantly reduced the amount of cash payments being made.  This has multiple benefits, including being safer for drivers and passengers; it reduces the potential for errors in handling cash, or loading cash onto cards; and it reduces cash handling which is viewed as unhygienic and considered a risk during times of community transmission of Covid-19.

2.2      Real-Time Tracking

December 2020 saw a shift to the Dynamis system for real-time tracking and predictions.  Dynamis has been developed in New Zealand and we are a flagship Council for this innovative and rapidly developing system.

The introduction of Dynamis has seen all of the bus routes across the region brought together into one system, with the exception of 150 Pōtaka (due to unreliable cell phone signal connectivity), 131 Matatā and 85 Waihī Beach (both operated by small vans but will be integrated with the system later in 2021).  

Previously we had a separate system in Tauranga and a different system for Rotorua and Whakatāne.  Dynamis provides a single view of the whole region that provides consistency across all centres and all operators.  Our operators have received initial training in the use of Dynamis, and this will be ongoing through the year as further enhancements are made.

Dynamis receives GPS location information from all buses every 5 seconds.  It also receives driver log-in information directly from the RITS ticket machines, meaning that we know exactly which route and which trip each vehicle is operating.  This is shown in Figure 1. This removes the unreliable predictions that plagued the previous system and caused negative flow on effects to the Transit app and Google maps.  These customer facing applications are now far more accurate and reliable.


Fig 1: Example of the Dynamis live view. 

Green means ‘on time’, red means ‘early’, yellow means ‘late’.  Grey means unassigned (generally in the depot).

2.3      Customer Facing Information

2.3.1    Transit app

Transit app is more reliable as it now takes information directly from the Dynamis system.  It has been rolled out to the whole region. 

Transit app is recording around 170,000 uses per month, by approximately 5,900 individual devices.  Some initial promotion of Transit app in Rotorua and Whakatāne has occurred through Facebook, and notification stickers are going into all bus stops.

2.3.2    Baybus website

Our customers can now access real-time tracking through the Baybus website, on a computer screen or on a mobile phone.  This is available for all bus routes across the region, with the exception of 150 Pōtaka, 131 Matatā and 85 Waihī Beach as noted above.

Figure 2 shows the location of all buses operating the Tauranga Hospital Link route at a particular moment in time.  Users will see the bus icons moving in real-time, and can click on any bus stop to see the next three departures from that bus stop (inset).


Fig 2: A screen shot of live tracking on the Baybus website.

2.3.3    Google Maps

Google Maps now shows live information (as opposed to scheduled information) for all bus routes across the region, with the exception of 150 Pōtaka, 131 Matatā and 85 Waihī Beach as mentioned above.  These three routes are still shown in Google Maps, but only scheduled information is available.  Google Maps is fed this information through our Dynamis system.

2.3.4    Digital signage

Digital signage at bus stops has been installed at a number of locations around Tauranga City.  This infrastructure is owned by Tauranga City Council and the displays pick up the data feed from our Dynamis system.

There are two large overhead screens at the Willow Street interchange, one outside the Art Gallery at Stand C and the other opposite at Stand A/B. There are twelve digital e-paper signs now installed at locations around Tauranga.  This equipment displays the next buses arriving at that stop, with their arrival time shown as a real-time prediction based on the tracking system (Figure 3).  These units also have an audio module which will read out the display to aid the visually impaired (excluding the two units on Chadwick Road which do not have the audio module).

These units have been installed at:

·    Greerton Stand A and B (Chadwick Road)

·    Cameron Road – Pak N Save & Countdown

·    Cameron Road – 2nd Avenue (outside Johns Pharmacy)

·    Cameron Road – Tauranga Hospital and opposite Tauranga Hospital

·    Gravatt Road – Pāpāmoa Plaza

·    Gravatt Road – Fashion Island

·    Maunganui Road – central shopping area

·    Windermere Drive – Toi Ohomai

·    Brookfield – Stand A

 

 

 

 

 

 

 

 

Fig 3: E-paper display of live departures at Greerton – Stand A.

2.4      Data Collection and Reporting

2.4.1    Patronage & revenue

Patronage and revenue data comes directly from RITS and staff continue to develop enhanced reporting templates to enable this information to be used for monitoring, reporting and planning purposes.

On-line, web based technology – like Power Business Intelligence reports - enable staff to quickly see patronage and filter data to specific routes, time periods, ticket type etc.

Figure 4 shows July – December 2020 patronage on the Katikati and Ōmokoroa services, routes 80 and 81.


Fig 4: Patronage on Katikati and Ōmokoroa services separated by ticket type.

2.4.2    Bus stop usage

One very useful aspect of our data that we can now use is bus stop usage.  This tells us total usage at each bus stop, and can be broken down into boardings, alightings, ticket type (ie adult, Supergold cardholder, child) and other usage such as bikes, wheelchairs etc. This is useful for reviewing current bus routes and measuring demand in different areas.  It’s also useful to identify the bus stops that get the most use as this can help with infrastructure decisions such as where to put bus shelters or seating.  We can also break this down into time of day to see which bus stops may benefit the most from things such as additional lighting.

Figure 5 shows the number of customers that tagged on or transferred onto buses at each bus stop in January 2021.  Figure 6 shows the type of data that is now available for comparing bus stop usage.

Fig 5: Heat map of bus stop usage in January 2021.  Note that the bus stops with the highest usage are at Willow Street, Farm Street, Pāpāmoa Plaza, Tauranga Crossing, Greerton (Chadwick Road) and Mt Maunganui (Adams Avenue and Maunganui Road in the shopping area).

Fig 6: Usage of Willow Street bus stops (Stands A, B and C) in December 2020.  Note that ‘zero value tickets’ are counts of wheel chairs and bikes.  ‘Normal tickets’ are cash sales, and include when the passenger is counted on manually or when transfer boardings are not recorded via Bee card.

2.4.3    On-time performance monitoring

On-time performance monitoring of bus operators is another area for development this year. This information is currently available as raw data, requiring staff to do significant manual analysis to process it.  Future development of the Dynamis system will include on-time performance reports and other information such as first stop adherence and missed trips reports.

2.4.4    Leapthought

Bay of Plenty, Otago and Waikato Regional Councils have engaged Leapthought, to build a series of finance and patronage dashboards for staff to monitor and report revenue, liability, goodwill, patronage for services, zones and ticket types.

Leapthought is also providing part of our real-time system by receiving the GPS location information from the RITS ticket machines on buses and then verifying that data before sending it to Dynamis.

2.4.5    Zendesk

The Regional Council implemented Zendesk, a Customer Relationship Management (CRM) system, in July 2020. The Transport Team, the contact centre and the bus operators began using the Zendesk Support module in September 2020, allowing staff to more effectively track and to manage the flow of queries, complaints, and compliments received. 

There has been more than 900 job tickets processed by the Transport Team in Q2 2020/21. The intuitive system has been well received with great uptake by staff and bus operators and provides ongoing opportunities to streamline workflow processes and improve our customer interactions.

The Transport Team is the first to implement Zendesk Guide on the Baybus website (Figure 7).  Guide replaces the FAQ section, giving customers a much more intuitive means of finding the answers to their questions, ultimately alleviating staff time on resolving Zendesk tickets.  It also means that staff only need to update information in one place and it is then available to all users including staff and the public.


Fig 7: Baybus website FAQ’s now link to Zendesk Guide.

3.        Future Technology Initiatives

Staff are currently focussed on the following technology initiatives:

1.   Performance monitoring: Operators will be trained to monitor the real-time tracking system to provide timely interventions when issues are identified.  This will improve the accuracy of the system which feeds through to our customer facing information as well as our reporting.

2.   Real-Time service change notifications:  Work is underway to develop a system to allow our operators to provide notifications directly to our customers through our real-time tracking system.  This means that if buses are diverted due to roadworks or a traffic accident, or if a trip is cancelled for any reason, customers can be informed straight away.

3.   Next stop announcement system:  Staff are exploring the option to trial a next stop announcement system later in 2021, using the screens that are already in place in the Tauranga fleet.

4.   Reporting:  Work is underway with two suppliers (Leapthought and Radiola) to develop better reporting templates.  More automated reporting means that planning and operational staff can access information quickly and easily to make and better and more informed decisions.

5.   Free passenger Wi-Fi:  Currently this is available in Tauranga on all Bayhopper buses, in Rotorua on three vehicles, and on the Katikati and Ōmokoroa services. Staff are exploring the practical and financial feasibility to expand this further. 

4.        Considerations

4.1      Risks and Mitigations

All technology options are weighted against a cost benefit analysis.  Our direction is largely informed by the 2017 Public Transport Technology report from MR Cagney. The provided a high level (strategic, mostly qualitative) assessment of opportunities, and a suggested way forward on how to evaluate and procure preferred options.  The report provided a set of recommendations on short, medium and long term goals, and many of these have now been achieved with the implementation of the solutions outlined in this report.

We are collaborating with other councils on a number of technology initiatives to share risk and cost with new and future technologies.

4.2      Climate Change

 

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

 

By enhancing the customer experience we aim to increase patronage and reduce car use across the Bay of Plenty.

4.3      Community Engagement

 

Engagement with the community is not required as the recommended proposal / decision [relates to internal Council matters only].

4.4      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

5.        Next Steps

Staff will continue to make improvements to public transport technology at Council in order to achieve better performance monitoring, reporting, planning decisions, and enhance the customer experience.

  


 

 

 

Report To:

Public Transport Committee

Meeting Date:

18 March 2021

Report Writer:

Jessica Easton, Legal and Commercial Manager

Report Authoriser:

Mat Taylor, General Manager, Corporate

Purpose:

To provide an overview of performance monitoring for Public Transport in the Bay of Plenty.

 

 

Public Transport Arotake Tuarua - Performance Monitoring Report July 2020 to December 2020

 

Executive Summary

This report provides an overview of the Bay of Plenty Regional Council’s performance monitoring for Public Transport as set out in the Bay of Plenty Public Transport Plan for the 2020/21 financial year.

Attached as Appendix 1 to this report, is our monitoring report Public Transport Arotake Tuarua 2020/21 - July 2020 to December 2020. Public Transport Arotake brings together information and data for Public Transport across the region and includes the following sections:

·           Executive Summary - includes high level patronage overview over the reporting period along with financial and non-financial performance information;

·           Public Transport Updates – including updates on bus services, and an overview of patronage, reliability, customer experience, and community engagement;

·           Technology – including an overview of the Regional Integrated Ticketing System and the Bee Card;

·           Total Mobility updates; and

·           Finance - detailed financial information for key areas within the Transportation Group of Activities budget.

 

Recommendations

That the Public Transport Committee:

1        Receives the report, Public Transport Arotake Tuarua - Performance Monitoring Report July 2020 to December 2020.

 

1.        Introduction

This report provides an overview of the Bay of Plenty Regional Council’s performance monitoring for Public Transport as set out in the Bay of Plenty Public Transport Plan for the 2020/21 financial year.

Attached as Appendix 1 to this report, is our monitoring report Public Transport Arotake Tuarua 2020/21 – July to December 2020. Public Transport Arotake brings together information and data for Public Transport across the region.

1.1      Alignment with Strategic Framework

 

A Vibrant Region

We lead regional transport strategy and system planning, working with others to deliver a safe and reliable public transport system.

1.1.1    Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Low - Positive

þ Cultural

Low - Positive

þ Social

Medium - Positive

þ Economic

Medium - Positive

2.        Public Transport Arotake Tuarua

2.1      Patronage Highlights

Regional bus patronage over the period of this report (Q2 2020/21) was 609,868, a decrease of 8% on the same period last year and a 0.7% increase on Q2 2018/19. With the exception of Tauranga school services, patronage levels have continued to decline in most areas because of the impact of COVID-19.

The outlook for the rest of the year remains somewhat uncertain as we continue to move through alert levels. According to the Waka Kotahi COVID-19 Transport Impact core report for 17 November 2020 “one in five public transport commuters are still working from home, compared to roughly one in 10 for active mode and private vehicle commuters.”

 

 


 

Despite the decrease across the region, the total Tauranga network (which includes both urban and school networks) year to date patronage has increased by 5.4% on the same period last year, while Quarter 2 patronage is down 0.5% on the same period last year.

The year to date patronage figures continue to be driven by the successful uptake of the Tauranga School dedicated services which have seen an 88.5% increase on Quarter 2 prior year, with patronage of 126,807 in 2020/21 compared to 67,269 in  2019/20. The impacts of COVID-19 do not appear to be affecting the school network in the same manner that is seen on public transport across the country.

2.1.1    Route 80 – Fairview Estate, Katikati Bus Stop Launch

The residents at Fairview Estate, Katikati requested a bus stop at the Estate. A decision was made to accommodate the request as it significantly improved accessibility and safety along the SH2 corridor.

On 8 November 2020 the first trip from the estate was made and has been met with a lot of support from the residents with a total of 136 boardings from the new Fairview Estate bus stop from 9 November to 31 December 2020.

This was a unique situation that involved negotiating bus access with private property owners and the laying of chip seal to accommodate the buses movement.

2.2      Total Mobility

Council is currently signing up additional Total Mobility scheme transport providers across the region which will improve the service for customers. At the time of writing, new operators had been added in Katikati, Rotorua and Tauranga.

2.3      Budget Update

Revenue at the end of Quarter 2 2020/21 is $1.5m higher than budget. Waka Kotahi is funding the lost revenue resulting from the free fare period during the implementation of RITS and throughout the COVID-19 response period. The total contribution from the Super Gold Card has also been received from Waka Kotahi.

Operating expenditure at the end of Quarter 2 is $0.2m higher than budget. Additional contract costs relating to indexation and living wage adjustments are the main reasons for the increased forecast. Staff will bring a report to the Committee at the May meeting outlining the financial implications of the living wage payment to bus drivers.

Capital expenditure at the end of the year is expected to be in line with budget as the remaining RITS costs are paid.

2.4      Fare Revenue Update

At its meeting of 24 February 2021 the Waka Kotahi Board agreed to continue to fund at 100% FAR fare revenue shortfalls due to impact of COVID-19 and net increase in current public transport service costs associated with implementing COVID-19 measures until 30 June 2021.

Waka Kotahi has indicated that from 1 July 2021 councils’ normal FARs will apply to public transport programmes including extra COVID-19 costs.

3.        Considerations

3.1      Climate Change

 

Mitigation

Adaptation

Reduce GHG emissions

Produce GHG emissions

Sequester carbon

Anticipate climate change impacts

Respond to climate change impacts

The matters in this report relate to Focus Area 3 (the services we provide as a Regional Council) in the Bay of Plenty Regional Council Climate Change Action Plan and Goal 10 - reduce greenhouse gas emissions in the region.

3.2      Implications for Māori

There are no specific implications for Māori as a result of this report. Implications resulting from projects or items considered in this report will be addressed within those projects or processes.

3.3      Community Engagement

 

Adobe Systems

INFORM

Whakamōhio

To provide affected communities with balanced and objective information to assist them in understanding the problems, alternatives and/or solutions.

 

3.4      Financial Implications

There are no material unbudgeted financial implications and this fits within the allocated budget.

4.        Next Steps

As this report is for information only, no further steps are required.

 

 

Attachments

Attachment 1 - Public Transport Arotake Tuarua Q2 20-21 Final   


Public Transport Committee                                                                                                  18 March 2021

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[1] The Government has no plans currently to require school buses contracted by the Ministry of Education, InterCity buses or private coach operators to use zero-emission buses, although all transport operators and vehicle owners are encouraged to look at ways they can reduce their own transport-related carbon footprint.

[2] The source material for section and Appendix 1 comes from the report from KPMG and Mott MacDonald entitled: Public Transport Operating Model (PTOM) Decarbonisation Option Development.  A link to the report is here: Public Transport Operating Model Decarbonisation Option Development

 

[3] See: https://at.govt.nz/media/1985010/aucklands-low-emission-bus-roadmap-version-2-october-2020.pdf