Agenda of Public Transport Committee - Tuesday, 14 November 2023

Public Transport Committee

Membership

Chairperson	Cr Andrew von Dadelszen
Deputy Chairperson	Cr Lyall Thurston
Members	Cr Malcolm Campbell Cr Jane Nees Cr Ken Shirley 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 Cr Conan O’Brien Mayor Tania Tapsell (Alternate) Mayor James Denyer Deputy Mayor John Scrimgeour (Alternate) Cr Andrew Iles Cr Gavin Dennis (Alternate) Jessica Andrew Sarah Roberts (Alternate)
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 streamed live on Bay of Plenty Regional Council’s website 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.

Item No.	Subject of each matter to be considered	Reason for passing this resolution in relation to each matter	Grounds under Section 48(1) for the passing of this resolution	When the item can be released into the public
11.1	Public Excluded Public Transport Committee Minutes - 12 September 2023	As noted in the relevant Minutes.	As noted in the relevant Minutes.	To remain in public excluded.
11.2	Tauranga Public Transport Joint Committee Public Excluded Minutes	As noted in the relevant Minutes.	As noted in the relevant Minutes.	To remain in public excluded.

Public Transport Committee Minutes

12 September 2023

Public Transport Committee

Open Minutes

Commencing: Tuesday 12 September 2023, 9.30 am

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

Chairperson: Cr Andrew von Dadelszen – Bay of Plenty Regional Council Toi Moana (BOPRC)

Deputy Chairperson: Cr Lyall Thurston – BOPRC (via Zoom)

Members: BOPRC

Cr Jane Nees (via Zoom)

Cr Paula Thompson (via Zoom)

Cr Malcolm Campbell

Cr Ken Shirley

Tauranga City Council (TCC)

Commissioner Stephen Selwood

Rotorua Lakes Council (RLC)

Cr Conan O'Brien – Alternate (via Zoom)

Whakatāne District Council (WDC)

Deputy Mayor Andrew Iles

Cr Gavin Dennis - Alternate

Western Bay of Plenty District Council (WBOPDC)

Mayor James Denyer

Deputy Mayor John Scrimgeour – Alternate (via Zoom)

New Zealand Transport Agency Waka Kotahi (Waka Kotahi)

Jessica Andrew - Regional Manager System Design (Waikato Bay of Plenty)

In Attendance: Cr Ron Scott – BOPRC; Cr Kat Macmillan – BOPRC (via Zoom); Cr Winters – BOPRC (via Zoom); Mike Seabourne – Director, Public Transport; Oliver Haycock – Manager, Transport Planning; Stuart Nightingale – Manager, Transport Operations; Mary Norris – Acting Team Lead Accessible Transport; Claudia Cameron – Committee Advisor.

Presenters

Debz Turner – Public Forum

Heidi Hughes – The Wednesday Challenge

Apologies: Mayor Tania Tapsell – RLC and Sarah Roberts – Waka Kotahi

Minute Note: This meeting was livestreamed and recorded and can be accessed on the BOPRC YouTube channel: Public Transport Committee Meeting - 12 September 2023 - YouTube

1. Apologies

Resolved

That the Public Transport Committee:

1 Accepts the apology from Mayor Tania Tapsell and Sarah Roberts for absence tendered at the meeting.

Campbell/Iles

CARRIED

09:32 am - Deputy Mayor John Scrimgeour entered the meeting.

2. Public Forum

2.1 Debz Turner

Key Points:

· On-bus announcements indicating the stop being approached would help passengers and drivers

· Suggested tickets be sold at the information centre to save time during cruise ship season

· Children walking in front of buses at school bus stops was a safety concern – suggested bus safety education in schools

· The Palm Beach bus stop could be dangerous with cars leaving the petrol station/supermarket

· The volume of buses at individual stops, particularly at school times, created challenges

· Limited time between connecting buses caused missed connections, particularly if passengers had to change location

· Cameron Road closures had caused buses to take incorrect routes and miss passengers

· Suggested yellow bus stops to match the buses.

09:34 am – Commissioner Stephen Selwood and Cr Jane Nees entered the meeting.

· Cameras at bus stops would provide increased security

· Suggested using a larger font size for signs on buses.

Key Points - Members:

· Thanked Debz for her feedback and noted the importance of hearing from regular users.

3. Declaration of Conflicts of Interest

None declared.

4. Minutes

Minutes to be Confirmed

4.1

Public Transport Committee Minutes - 7 June 2023

Tabled Document 1 - Waka Eastern Bay Flyer: Objective ID A4478777

Matters Arising:

Cr Andrew Iles tabled the Waka Eastern Bay flyer, to provide an update on their progress.

Resolved

That the Public Transport Committee:

1 Confirms the Public Transport Committee Minutes - 7 June 2023 as a true and correct record.

Shirley/Iles

CARRIED

5. Presentations

5.1

Wednesday Challenge 2023 and Bay of Plenty opportunity for 2024

Presentation: The Wednesday Challenge: Objective ID A4477922

Presented by: Heidi Hughes – The Wednesday Challenge

Key Points:

· The highest potential for mode change was with schools and business workers, there was a need to change sedentary travel habits

· The recent focus had been making school participation easier and enabling businesses to join via the app

· Waka Kotahi innovation funding had been received to roll out the programme in Tairāwhiti Gisborne, with particular interest in engaging hard to reach communities. Learnings could be applied to Whakatāne, as it had a similar population size

· It had been indicated no funding would be available for next year in Tauranga. Continued funding was suggested as the initial investment had taken place and change was most likely with year on year messaging

· There was an opportunity to engage with students and school communities in Rotorua

· Potential opportunities were being explored with the Ministry of Education, Ministry of Health and Waka Kotahi, as well as potential sponsorship opportunities with Mercury.

Key Points - Members:

· Previous investment establishing the programme should not be wasted

· Directed the proposal to the BOPRC Long Term Plan submission process.

In Response to Questions:

· If no funding was available going forward, 19 Tauranga schools would lose access to the Wednesday Challenge

· There was potential to roll out to rural schools, particularly in Whakatāne

· Offered to report back to this committee once the Tairāwhiti Gisborne project was underway

· Provided a video link: https://www.dropbox.com/scl/fi/ismd7jrf1cvmalll6z8gp/WC9538-Schools-montage-video_v1.mp4?rlkey=yklml2kycns9s1wy7oj4zxt1c&dl=0

Key Points - Staff:

· BOPRC was putting together a wider programme to be considered for Waka Kotahi funding, as opposed to funding individual initiatives.

5.2

Public Transport Arotake Tuawha (Q4) Performance Monitoring Report 2022/2023

Presentation: Arotake Tuawha (Q4) Performance Monitoring Report: Objective ID A4477963

Tabled Document 2 - Adult Fares Tauranga: Objective ID A4478764

Presented by: Stuart Nightingale – Manager, Transport Operations

Cr Andrew von Dadelszen tabled the document – Adult Fares Tauranga.

Key Points:

· Patronage and Bee Card use had increased

· Noted missed trips were often due to congestion issues

· Some tertiary school routes did not have Bee Card machines, which explained their higher reliance on cash

· Highlighted the Total Mobility growth

· Operating expenditure was increasing; this was partly due to increased driver wages which had previously been offset by the reduced timetable

· As school rolls increased the demand for bus services also increased. This was a positive for patronage but meant increased operational costs. Analysis was required via the BOPRC Long Term Plan.

Key Points - Members:

· Suggested concessions be available for Bee Card users only

· Some Rotorua patronage data may be below the actual figures from school children using the bus without a bee card or cash sale

· Suggested a report which identified annual boardings required to reach the Regional Public Transport Plan (RPTP) 20% mode shift target

· Sought clarity around the Western Bay data presentation, recommended it be grouped together where possible.

In Response to Questions:

· Data collection guided the work programme

· Low customer satisfaction last year was understood to be due to reduced services, targets were now on track to be reached

· The Public Transport Services and Infrastructure Business Case was investigating options and investment requirements to meet the Regional Public Transport Plan (RPTP) 20% mode shift target

· Agreed engagement with Rotorua schools was required, but disinclined to require drivers to enforce rules at point of sale

· The cause of the decrease in school patronage for eastern Bay of Plenty (BOP) was unknown and would be investigated.

Resolved

That the Public Transport Committee:

1 Receives the report, Public Transport Arotake Tuawha (Q4) Performance Monitoring Report 2022/2023.

von Dadelszen/Shirley

CARRIED

10:37 am - Cr Jane Nees and Deputy Mayor John Scrimgeour withdrew from the meeting.

10.37 am – The meeting adjourned.

10:55 am – The meeting reconvened.

6. Verbal Updates

6.1

Director's Update

Presented by: Mike Seabourne - Director, Public Transport

Key Points:

· Transport Team staff vacancies were being filled.

7. Reports

7.1

Chairperson's Report

Presented by: Stuart Nightingale – Manager, Transport Operations and Oliver Haycock – Manager, Transport Planning

Key Points:

· The Sustainable Public Transport Framework provided flexibility around asset ownership and service provision models, potential opportunities were being investigated

· The National Ticketing System (NTS) rollout was in the planning phase, it was an intricate and substantial national project with reliance on manufacturers and installers

· NTS roll out for BOPRC was anticipated for the first quarter of 2025. Not being first allowed learnings from other regions to be taken on board

· Rotorua Network Refresh – funding had been applied for through Waka Kotahi. The project was an example of positive collaboration between BOPRC, RLC and Waka Kotahi with an anticipated go-live date of mid-2024

· Tauranga Network Refresh and full timetable – there had been challenges between aspirations and budget. The goal of increased reliability remained, however there were inflationary pressures and higher costs. There had been delays to the schedule while staff worked through improvement options within the current budget. The targeted go-live date was November 2023, but there was potential for delay

· Whakatāne Network Refresh was not currently scheduled but it was expected to be the next refresh undertaken.

11:05 am – Deputy Mayor John Scrimgeour entered the meeting.

· Procurement was currently underway for the Tauranga on-demand trial, with the go-live date currently at March 2024

· Government mandated Community Connect Extension and fare changes had required staff resourcing, this accounted for the delays to other projects. The adaptability of staff to react to the changing operating environment was highlighted

· Antisocial incidents were being taken seriously and managed appropriately. A collaborative approach with other agencies and councils was ongoing to mitigate risk. A school supported passenger code of conduct was being investigated, and passengers were encouraged to report issues to the police or operators.

Key Points - Members:

· The drop in some Whakatāne/eastern BOP patronage warranted a review/refresh.

Resolved

That the Public Transport Committee:

1 Receives the report, Chairperson's Report.

Iles/Selwood

CARRIED

Information Only

7.2

Accessible Action Planning Workstream

Presentation: Community Transport Forum Project Proposal: Objective ID A4478780

Presented by: Mary Norris - Acting Team Lead, Accessible Transport Operations

Key Points:

· The aim was to support travel disadvantaged members of the community to promote independence and dignity

· The Community Transport Forum would be facilitated by BOPRC and was intended to bring together service providers to share ideas, gain a comprehensive picture of needs and identify gaps in service coverage

· Transport information would be made available in accessible formats

· Resourced from within the current Accessible Transport team budget

· Updates would be provided to the Public Transport Committee for feedback

· An intention of the project was to meet objectives of the RPTP.

Key Points - Members:

· Recommended there be a Forum Terms of Reference for clarity of role

· Suggested remote and disadvantaged communities, particularly in eastern BOP, be considered for inclusion.

In Response to Questions:

· BOPRC’s facilitation would ensure clear coordination and a wide scope of voices, there was no intention to control the individual services provided.

Resolved

That the Public Transport Committee:

1 Receives the report, Accessible Action Planning Workstream.

Iles/Campbell

CARRIED

11:43 am – Cr Jane Nees entered the meeting.

7.3

Tauranga Public Transport Joint Committee Minutes

Presented by: Oliver Haycock – Manager, Transport Planning

Key Points:

· Noted the Tauranga Public Transport Joint Committee Terms of Reference required quarterly updates to the Public Transport Committee

· Increased operational expenditure costs for Public Transport were recognised by Waka Kotahi and revenue review work was to be undertaken.

Resolved

That the Public Transport Committee:

1 Receives the report, Tauranga Public Transport Joint Committee Minutes.

von Dadelszen/Selwood

CARRIED

8. Public Excluded Section

Resolved

Resolution to exclude the public

1 Excludes the public from the following parts of the proceedings of this meeting as set out below:

The general subject of each matter to be considered while the public is excluded, the reason for passing this resolution in relation to each matter, and the specific grounds under section 48(1) of the Local Government Official Information and Meetings Act 1987 for the passing of this resolution are as follows:

Item No.	Subject of each matter to be considered	Reason for passing this resolution in relation to each matter	Grounds under Section 48(1) for the passing of this resolution	When the item can be released into the public
8.1	Public Excluded Public Transport Committee Minutes - 7 June 2023	As noted in the relevant Minutes.	As noted in the relevant Minutes.	To remain in public excluded.
8.2	Tauranga Public Transport Joint Committee Public Excluded Minutes	As noted in the relevant Minutes.	As noted in the relevant Minutes.	To remain in public excluded.

Selwood/Iles

CARRIED

12:05 pm – the meeting closed.

Confirmed

Cr Andrew von Dadelszen

Chairperson, Public Transport Committee



Report To:	Public Transport Committee
Meeting Date:	14 November 2023
Report Authoriser:	Mike Seabourne

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:

· National and local context including National Ticketing Solution update, CERF and bus driver terms and conditions update, Rotorua bus network refresh implementation update, Tauranga refresh implementation and return to full timetable update, Tauranga On-Demand Trial, Community Connect Extension update, and a security update.

Recommendations

That the Public Transport Committee:

1 Receives the report, Chairperson's Report.

1. Purpose

The purpose of this report is to make Committee members aware of items of interest in relation to public transport.

2. Matters of Potential Interest

2.1.1 National Ticketing Solution (NTS) Update

No new update available.

The National Ticketing Solution (NTS) is an enabler for change.

· A flexible, modern ticketing system will make it easier for people to pay for public transport anywhere in the country including making it easier to support national concessions such as Super Gold and Community Connect

· This will encourage more people to use public transport, more often.

· Increased access will ultimately contribute to reducing New Zealand’s carbon emissions and improving safety and congestion on our roads.

· Public Transport Authorities will gain a digitally enabled system with more choice, transparency, and simplicity.

· A deeper understanding of customer journeys will mean optimised services and better targeted investment.

Bay of Plenty Regional Council Transport Operations.

· We are currently planning our local response to this national project being led by Waka Kotahi.

· Discussions are taking place with bus operators with an aspirational Go-Live date is Q1 2025.

The planning phase is continuing confirming our business services over the coming weeks, this will inform our project plan and timeline securing contract approval for the Technical Software provider.

2.1.2 CERF and Bus Driver Terms and Conditions Update

The all-parties Memorandum of Understanding (MoU), developed by Waka Kotahi for Public Transport Authorities (PTAs), aims to improve bus driver terms and conditions initiative under the Climate Emergency Response Fund (CERF).

Discussions between operators, unions and PTAs have been steadily taking place across the country. We are in final discussions with local PTOs and unions to define the next viable steps we intend to take towards improving the bus driver terms and conditions (e.g., increase hourly rates, implement split shift allowances, and/or implement penal rates for work after 9pm).

We will progress with seeking CERF Funding Approval subject to agreements being confirmed. Funding will be backdated to 1 November 2022.

2.1.3 Rotorua Bus Network Refresh Implementation Update

Staff will provide a verbal update on the progress of the Rotorua Bus Network Refresh.

2.1.4 Tauranga Bus Network Refresh Implementation Update – Full Timetable

Staff will provide a verbal update on the progress of Phase 2 of the Tauranga Bus Network Refresh.

2.1.5 Tauranga On-Demand trial

No new update available.

Patronage on some traditional public transport services in Tauranga is relatively low, particularly at off-peak times. To better understand how an on-demand service can complement and/or replace fixed public transport towards increasing patronage, Bay of Plenty Regional Council intend to commence an 18-month trial of an on-demand transport solution in Tauranga South.

The defined area includes Pyes Pā, The Lakes, Greerton, Gate Pā and Tauranga city south of 17^th Avenue.

Key destinations within this area are Tauranga Hospital, Grace Hospital, Tauranga Crossing, Fraser Cove, and Greerton Library.

The Tauranga On-Demand Project will plan and implement a service that provides better access to public transport, enhancing the quality of the bus service for current users and encouraging non-users to utilise the bus network.

A Project Initiation Document has been completed and the Transport Operations Group are preparing to support this project with an expected Go Live date being early March 2024.

Recent milestone: Securing contract approval for the Technical Software provider.

2.1.6 Community Connect Extension Update

No new update available.

In 2022, Central Government made funding available and changed relevant regulations to support Public Transport Authorities to implement 50 percent concessions for Community Services Card holders on bus, train, and ferry services. A project team was established to deliver the new concession effective 1 July 2023.

Budget 2023 announced additional funding for an extended Community Connect package to provide free public transport for children under 13, and half-price fares for people under 25 in addition to the Community Connect concession.

At the Extraordinary General Meeting held 9^th June Council directed staff to implement the extended Community Connect fares on 1 July 2023. Staff leveraged the existing Community Connect project team to deliver the new fare structure at short notice.

Staff continue to progress the remaining operational changes required under the Community Connect Memorandum of Understanding with Waka Kotahi, with all work due to be completed by 31 October 2023.

2.1.7 Security Update

The Regional Council Operations Team monitor incidents that occur across the public transport network daily, following up the more serious incidents in real time. This provides assurance that timely follow-up action is undertaken.

Whilst incidents at the bus interchanges have reduced, we have observed a regular flow of incidents occurring on the network involving inebriated persons as well as poor behaviour by some young people. We remain connected with school management in the setting of expectations of behaviour on the network.

The safety of patrons engaged in Transport Services has recently featured in mainstream news and on social media pertaining to incidents at Rotorua and Tauranga.

Rotorua Lakes Council are developing a community safety hub due to be operational in November 2023. A multi-agency approach will see council’s Safe City Guardians, NZ Police and Māori Wardens working collaboratively in creating a safer environment within the CBD.

Several actions are planned for Tauranga’s CBD under a Tauranga City Council led Safe City kaupapa which will significantly improve safety and will create an improved sense of security through a coordinated approach, in partnership with other teams: i.e. Kaitiaki Ambassadors, Māori Wardens and Police.

With incidents decreasing at the Durham Street interchange and the launch of a new safe city initiative by Tauranga City Councill, Toi Moana have an opportunity to review the contracted services provided within the Tauranga CBD, that have been operating for almost three years.

2.1.8 Activities Procurement Strategy Review

The Bay of Plenty Regional Council is required by Waka Kotahi to maintain a current Transport Activities Procurement Strategy. The current procurement strategy expires on 14 April 2024. A new strategy should be endorsed by Waka Kotahi prior to any future procurement activities being undertaken.

The development of a new procurement strategy enables Council to understand longer-term goals, such as realising best value for money and encouraging supplier improvement, and to consider these goals when making procurement decisions. The strategy will identify all upcoming procurement activities within the next three years and the relevant supplier markets and document associated risks. The information gathered will assist in identifying how goods and services will be procured and any resourcing or skills gaps.

The development of a Transport Activities Procurement Strategy is typically a straightforward process with limited opportunities for innovation. However, the recent amendments to the Land Transport Management Act enacting the Sustainable Public Transport Framework means the Council can now consider alternative ownership models and procurement arrangements for public transport services.

The development of the procurement strategy will need to consider alternative models of procurement and consider the long-term vision of ownership and operation for public transport services in the Bay of Plenty. This is especially important as the fleet transitions to zero emissions and new infrastructure is required to support this transition.

The initial phase of the procurement strategy review is now underway, with review timings designed to meet the April 2024 deadline.



Report To:	Public Transport Committee
Meeting Date:	14 November 2023
Report Writer:	Oliver Haycock, Manager, Transport Planning and Bron Healey, Principal Advisor, Transport
Report Authoriser:	Michael Seabourne, Director, Public Transport
Purpose:	To present a final Ferry Feasibility Study for the Committee’s endorsement and to recommend a way forward

Tauranga & Western Bay of Plenty Ferry Feasibility Study - Final Report

Executive Summary

This report presents a final Tauranga and Western Bay of Plenty Ferries Feasibility Study (the Feasibility Study). The current Study updates and completes an earlier draft report presented to the Committee in 2022.

The concept of exploring the potential of ferry services in the sub-region appears in several strategic planning documents, including the Urban Form and Transport Initiative (UFTI), the Western Bay of Plenty Transport System Plan (TSP) and the Bay of Plenty Regional Public Transport Plan 2022-2032 (RPTP).

The final Feasibility Study sets out the strategic context for ferry services in the Western Bay of Plenty/Tauranga including a comparison of critical success factors for ferry services currently operated elsewhere in New Zealand. These are then compared against the conditions currently existing in Ōmokoroa and Mount Maunganui.

The problem is defined, along with opportunities and the benefits of resolving the problem. The Study then covers issues and challenges of providing a ferry service, and considers some potential service options, together with the catchments they would serve, before summarising the key findings and drawing conclusions.

The key conclusions can be summarised as:

· There are significant cost barriers to ferries, including significant capital investment in vessels and infrastructure, for areas where the level of growth is unlikely to justify such investment for a mode that is only useful to travel to a single destination.

· In the short to medium term it would seem prudent to continue the work already underway to make best use of the existing bus based public transport network supported by appropriate levels of priority and infrastructure.

· The option of future ferry services should be preserved, with the ongoing monitoring of appropriate triggers for the viability of implementing a ferry service.

In light of the conclusions in the Feasibility Study, staff recommend that the Committee agrees to defer any further investigation of Tauranga/Western Bay of Plenty ferry services until the development of 2027 long term plans and the 2027-2030 NLTP.

Recommendations

That the Public Transport Committee:

1 Receives the report, Tauranga & Western Bay of Plenty Ferry Feasibility Study - Final Report;

2 Endorses the final Tauranga and Western Bay of Plenty Ferries Feasibility Study;

3 Agrees to defer any further investigations into Tauranga and Western Bay of Plenty ferry services until the development of 2027 long terms plans and the 2027-30 National Land Transport Programme.

1. Introduction

This report presents a final Tauranga and Western Bay of Plenty Ferries Feasibility Study (the Feasibility Study) prepared for the Regional Council by MRCagney to the Public Transport Committee (PTC).

A draft Study was previously presented to the PTC at its meeting on 23 June 2022. At the time, the PTC resolved to receive the report and noted the draft findings. The current Study updates and completes this earlier work.

Since the 2022 report to the PTC, there has been continued community and stakeholder interest in the concept of providing ferry services in Tauranga and the Western Bay of Plenty, with a particular focus on the potential of Ōmokoroa – Tauranga City Centre and Mount Maunganui – Tauranga City Centre services.

A number of submissions on the Bay of Plenty Regional Public Transport Plan 2022 (RPTP) expressed support for the concept of ferry services in the sub-region. When approving the RPTP, the PTC included a policy and action to undertake a high level business case for a commuter ferry service in the Western Bay of Plenty, building on the initial analysis undertaken in the Western Bay of Plenty Ferries Feasibility Study. It also noted that the Regional Council would continue working collaboratively with partner agencies to explore the feasibility of implementing a service.

In recent months, a potential Ōmokoroa – Tauranga CBD service has also been raised by stakeholders and community members as a means of avoiding traffic congestion on State Highway 2 between the two centres.

1.1 Legislative Framework

Regional Councils are responsible for funding and contracting public transport services under Part 5 of the Land Transport Management Act 2003 (LTMA). Ferries are included within the definition of public transport in LTMA section 5.

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.

1.2.1 Community Well-beings Assessment

Dominant Well-Beings Affected

þ Environmental

Medium - Positive

þ Cultural

Medium - Positive

þ Social

Medium - Positive

þ Economic

Medium - Positive

Public transport has positive social and economic outcomes for our communities. Well planned and effective public transport enables people of all ages and abilities to access a wide range of social and economic activities.

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.

Public transport also contributes to positive cultural outcomes (refer to the Implications for Māori section of this report).

2. Strategic Context

The following sections outline the background policy context for the Feasibility Study. More detail on the strategic land use and transport context is included in the Feasibility Study report.

2.1 UFTI and the TSP

As noted in the Feasibility Study, the Tauranga/Western Bay of Plenty ferry concept has consistently featured in longer term land use and transport strategies for the sub-region.

The Urban Form and Transport Initiative (UFTI) Connected Centres programme implements a long-term (30-70+ years) land use and transport vision for the western Bay of Plenty sub-region to cater for an expected 200,000 additional people, 95,000 new homes, and two million additional transport movements per day. UFTI has been collectively endorsed by Waka Kotahi and SmartGrowth local government partners.

UFTI raised the possibility of a ferry service between Ōmokoroa, Mount Maunganui and Tauranga City Centre in the context of addressing the sub-region’s transport challenges.

The Western Bay of Plenty Transport System Plan (TSP) takes UFTI’s Connected Centres vision and focuses on the first 30 years of transport planning required to make it happen.

The TSP is currently being refreshed ahead of 2024-27 long term plans and the next National Land Transport Programme (NLTP). The Tauranga/Western Bay of Plenty ferry concept is included in the indicative future public transport network (0-30 years) in the draft TSP document. The TSP also includes an activity to complete a ferry feasibility study in the first three years of the programme.

2.2 Bay of Plenty Regional Public Transport Plan 2022-2032

The final RPTP recognises the potential role of ferries (and/or other public transport modes or delivery models) to help deliver the strategic objectives of the Plan.

The future strategy for Tauranga and the Western Bay of Plenty includes a commitment to explore the potential for new modes and service delivery models including ferries.

The RPTP also contains the following policy and action:

Policy 2.9 Ferries

Assess the viability of proposals for new ferry services through the development of business cases where appropriate and ensure any new service proposals are integrated with the wider public transport system.

Action:

Undertake a high level business case for a ferry service in the western Bay of Plenty.

2.3 PTC Strategic Issues Workshop

The PTC provided high level direction on a number of strategic public transport issues at a workshop in May 2023. Further investigations into ferry services were prioritised below a number of other strategic issues, which deemed to be more pressing (ranked 10 out of 16 identified issues).

The key message from the PTC being there was continued interest in pursuing options for ferries including potential ‘quick win’ solutions, while noting that a longer-term ferry option would take significant time and cost to implement.

3. Tauranga and Western Bay of Plenty Ferries Feasibility Study

The final Feasibility Study prepared for the Regional Council by MRCagney is attached to this report.

The Study sets out the strategic context for ferry services in the Western Bay of Plenty/Tauranga including a comparison of critical success factors for ferry services currently operated elsewhere in New Zealand. These are then compared against the conditions currently existing in Ōmokoroa and Mount Maunganui.

3.1 Stakeholder workshop

A September 2023 workshop was held with key stakeholders as part of preparation of the Feasibility Study. The workshop included representatives from:

· Bay of Plenty Regional Council

· Waka Kotahi

· Tauranga City Council

· Western Bay of Plenty District Council

· Priority One

· Tourism Bay of Plenty

· Western Bay of Plenty Transport System Plan (TSP)

The group collectively discussed a range of strategic and operational factors associated with providing a ferry service.

3.2 Key issues identified in the Feasibility Study

The Feasibility Study canvasses a range of issues that would need to be addressed in order to provide a successful ferry service. These include:

· Significant capital and operational costs

· Inflationary pressures on public transport service delivery costs

· Potential user base and barriers to usage

· Challenges of providing a reliable service with competitive end-to-end journey times

· Costs and availability of vessels designed to provide an attractive customer experience with minimal environmental impacts (i.e. low or zero emissions)

· Operational requirements of maintaining a ferry service

· Tauranga Harbour environmental conditions and constraints

· Existing and planned bus services and risks of duplication and ‘cannibalisation’ of patronage

· Wharf and infrastructure requirements

3.3 Key findings

3.3.1 Service options and estimated costs

The Feasibility Study ide identifies three potential level of service options for three potential routes. The service options are described as:

Do Minimum: Weekdays peaks only. Two (Ōmokoroa) or three (Mount Maunganui) return services across each two-hour peak period, operated by a small vessel. Four hours of operation per weekday from 7am to 9am, and 4pm to 6pm. No interpeak or evening service. No service on weekends or public holidays.

Basic Regular Service: Regular service seven days a week, for 12 hours per day, with departures every half-hour (Mount Maunganui) or hour (Ōmokoroa) from 7am to 7pm. Additional services during weekday peaks increase departure frequency to every 20 or 30 minutes. Operated by a medium vessel.

High Quality Service: Regular service seven days a week, for 16 hours per day, with departures every twenty minutes (Mount Maunganui) or thirty minutes (Ōmokoroa) from 6am to 10pm. Additional services during weekday peaks increase departure frequency to every 15 to 20 minutes. Operated by a medium vessel.

Estimated service costs for the three route options are summarised below.

Route A: Ōmokoroa – Tauranga

A Do Minimum ferry service between Ōmokoroa and Tauranga operating infrequently during weekday peaks only, using small second-hand diesel powered ferries between existing wharves, is estimated to cost $4.5 million initially to acquire and refit three vessels, plus $714,000 each year to operate them. This cost estimate represents the scenario developed as the smallest practicable option to deliver a rudimentary ferry ‘start up’ service. Costs increase by an order or magnitude for ‘Basic Regular’ and ‘High Quality’ options, which assume medium-sized, electric vessels (see Table 15 in report).

Route B: Mt Maunganui – Tauranga

A Do Minimum ferry service between Mount Maunganui and Tauranga on weekday peaks only is estimated to require approximately $9m initial capital expenditure and around $600,000 each year to operate the vessels. The capital cost is to purchase two medium-sized second hand diesel vessels and upgrade the wharf at Mount Maunganui. Again, costs increase substantially for ‘Basic Regular’ and ‘High Quality options (see Table 16 in report).

Route C: Ōmokoroa -Mt Maunganui – Tauranga^{^[1]}

For the route option between Ōmokoroa and Tauranga via Mount Maunganui, a Do Minimum service operated during weekday peaks by three medium-sized second hand diesel ferries is estimated to cost $13m in initial fleet and wharf upgrade costs, plus $1.1m each year to operate (see Table 17).

3.3.2 Subsidies and cost per passenger

The Study also estimates subsidies and costs per passenger for different mode share scenarios (5%, 20% and 50% commuter ferry mode share). The three mode share scenarios are described as follows:

‘The 5% mode share represents a low share that is typical of public transport routes with poor service levels and uncompetitive travel times. The 20% mode share represents a good average public transport mode share for commuter trips in the New Zealand context, and it is the aspirational target for public transport mode share in the Bay of Plenty Regional Public Transport Plan. The 50% mode share is indicative of the highest point to point commuter mode share achieved by ferry, for example between central Devonport and Downtown Auckland.’

The fare required to achieve full fare box recovery for each of the mode share scenarios is summarised below (Table 18 in the report):

Route	Estimated Operating Cost			Daily commuter journeys		Ferry mode share	Single ferry trips at mode share		Fare for full farebox recovery
	Do Min	Basic	High	2018	2028		Daily	Annual	Do Min	Basic	High
Ōmokoroa - Tauranga	$714k	$1.6m	$3.1m	153	306	5%	31	7,650	$93	$209	$404
						20%	122	30,600	$23	$52	$101
						50%	306	76,500	$9	$21	$40
Mount Maunganui -Tauranga	$592k	$1.1m	$1.9m	429	446	5%	45	11,154	$53	$101	$171
						20%	178	44,616	$13	$25	$43
						50%	446	111,540	$5	$10	$17
Ōmokoroa-Mount Maunganui -Tauranga	$1.1m	$1.9m	$3.7m	582	752	5%	75	18,804	$61	$102	$197
						20%	301	75,216	$15	$25	$49
						50%	752	188,040	$6	$10	$20

This shows that that even with an aspirational mode share scenario (20%) the subsidy required per trip would be very high to achieve a competitive fare offering.

3.4 Feasibility Study conclusions

In drawing its conclusions, the Feasibility Study states that:

‘there are significant cost barriers to ferries, including significant capital investment in vessels and infrastructure, for areas where the level of growth is unlikely to justify such investment for a mode that is only useful to travel to a single destination. In addition, funding streams at a local, regional and national scale are under unprecedented pressure.’

Consequently, in the short to medium term it would seem prudent to continue the work already underway to make best use of the existing bus based public transport network supported by appropriate levels of priority and infrastructure.

That said, the Study recommends that the option of future ferry service should be preserved, noting that in the medium term emerging electric ferry technologies, coupled with land use and transport system changes may support a more favourable case for ferries.

The Study suggests that the following triggers be used for re-consideration of the viability of implementing ferry service:

1. Implementation and monitoring of land based public transport interventions and their degree of success in achieving mode shift to public transport.

2. Monitoring of journey times on key corridors to see if travel times by [private vehicles] deteriorate over 2023 levels.

3. Monitoring of population densities and total population within catchment areas to see whether sufficient growth is achieved.

3.5 Recommendation

In light of the information presented in the Feasibility Study and the conclusions summarised above, staff recommend that the PTC endorses the Study and agrees to defer any further investigation of Tauranga/Western Bay of Plenty ferry services until the development of 2027 long term plans and the 2027-2030 NLTP.

4. Considerations

4.1 Risks and Mitigations

Risks are identified in section 9.1 of the Feasibility Study.

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 reduced GHG emissions because many people in one vehicle produce less emissions than the same number of people in several cars. GHG emissions are reduced further when the public transport trip is in a zero-emission vehicle. These principles apply to all modes of public transport, including ferries. The Feasibility Study does however note that ‘diesel ferries make a disproportionately negative emissions impact compared to other public transport modes’ (p18).

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.

4.4 Community Engagement

INFORM

Whakamōhio

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

Community views on ferries were expressed in recent submissions on the RPTP (2022). A workshop with key stakeholders informed the development of the Feasibility Study.

4.5 Financial Implications

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

5. Next Steps

Subject to PTC accepting the recommendations in this report, the next steps will be to:

· Publish and disseminate the final Feasibility Study report.

· Ongoing monitoring of the recommended triggers for re-consideration of the viability of implementing ferry services.

· Revisiting the decision to defer any further investigations into Tauranga/Western Bay of Plenty ferry services once the development of 2027 long term plans and the 2027-2030 NLTP have commenced.

Attachments

Attachment 1 - Tauranga and Western Bay of Plenty Ferries Feasibility Study - FINAL ⇩

[1] Combined route with longer travel time for Ōmokoroa – Tauranga journey.