Palmerston North City District Plan. Sectional District Plan Review. Proposed Plan Change 7. Roading Hierarchy

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1 Palmerston North City District Plan Sectional District Plan Review Proposed Plan Change 7 Roading Hierarchy November 2011

2 Contents Part I Proposed Plan Change 1 1 Description of Proposed Plan Change 1 2 Proposed amendments to Section 20 of the District Plan 1 Part II Section 32 Report 16 1 Introduction 16 2 Plan Change Objective 16 3 Reason for the Proposed Plan Change Site description Background Proposed Plan Change Supporting Evidence Statutory requirements 24 6 Chronology Indicative timeline of Plan Change process Consultation 28 8 Assessment of alternatives, benefits and costs Alternative 1 Retain the current Roading Hierarchy (status quo) Alternative 2 Apply revised road classifications Assessment of Proposed Objectives, Policies and Rules Assessment of Objectives Evaluation of Policies and Methods Appropriateness of methods to achieve the objectives Conclusion 33 Appendix One: District Plan Extracts - consequential changes required in the District Plan (other than in Section 20) 34 i

3 Part I Proposed Plan Change 1 Description of Proposed Plan Change This proposed Plan Change seeks to amend the Roading Hierarchy in Section 20 Transportation of the District Plan. The changes are necessary to ensure consistency with the Regional Land Transport Strategy (2010) for the Manawatu Wanganui Region. 2 Proposed amendments to Section 20 of the District Plan The following alterations to the District Plan are proposed: 1. Section 20.3: Roads, Parking and Access Amend Policy 1.2 as follows: 1.2 To identify the location and route of major arterial and principal minor arterial roads in all areas of new development. 2. Section : The Treatment of Roads Amend Section as follows: The Roading Hierarchy The roading hierarchy is a way of ordering different types of roads with like characteristics into an organised structure that enables the development of rules. The Roading Hierarchy is a means of developing rules that are appropriate to the effects likely to be created on particular types of roads. (The relevant policies dealing with the roading hierarchy are contained in Section , in particular Policies 1.1 to 1.3). The management of roads, streets and the land use activities that obtain access from them are linked. There needs to be integrated management and control to ensure that the function of the road or street is not unduly compromised, that the adverse effects of the activities within roads and streets do not have a detrimental effect on the environment or the amenity of land use activities, and vice versa. The use of the roading hierarchy is one method that can assist in integrating road management and land use activities. The roading hierarchy is a tool that assists in: Determining the status of activities i.e. the status of the road that access is obtained from determines the activity status in the District Plan, Informing the development of asset management plans that identify upgrades and road maintenance that are funded through the Long Term Plan. 1

4 The roading hierarchy does not define road design and construction assumptions. The roading hierarchy also does not give weightings to the road user groups within the hierarchy, such as heavy vehicles, through traffic, parking, pedestrians and cyclists. The following hierarchy shall apply in the City of Palmerston North. A list of the roads contained in each category of the hierarchy, described below, is included in Appendix 20A - also refer to Figures 20A.1 to 20A.4. Primary Roads (i) Major Roads Major Roads are of strategic importance to the Region. They provide interconnections between areas within the City and distribute traffic from major intercity links. Access is generally at grade but may be limited. Urban traffic volumes are typically greater than 20,000 vehicles per day and rural 5,000 vehicles per day with a significant number of heavy vehicles. Typical urban operating speeds are 50 to 70 km/h and rural 80 to 100 km/h. Major Roads include State Highways 3 and 56 and Tremaine Avenue. (ii) Minor Principal Roads Minor Roads provide access between Collector and Major Roads. These roads have a dominant through vehicular movement and carry the major public transport routes. Access to property may be restricted and rear servicing facilities may be required. Urban traffic volumes are typically 8,000 vehicles per day to 20,000 vehicles per day and rural from 1,000 to 5,000 vehicles per day with a higher proportion of heavy vehicles. Typical urban operating speeds are 40 to 60 km/h and rural 80 to 100 km/h. Botanical Road and Te Awe Awe Street are examples of Minor Roads. (iii) Collector Roads Collector Roads provide circulation in local areas and links to arterial roads, while balancing these needs with pedestrian and local amenity values. These roads provide access for all modes of transport including public transport. Typical traffic flows are between 3,000 and 10,000 vehicles per day. Examples of Collector Roads are Highbury Avenue and Brooklyn Heights Drive. Secondary Roads (iv) Local Roads Local Roads provide access and connectivity within a local area. Low vehicle speeds, pedestrian and local amenity values predominate. Such roads typically carry up to 3,000 vehicles per day and their two lanes provide for on-street parking, property access and pedestrian needs. Buick Crescent and Milverton Avenue are examples of Local Roads. 2

5 Other Roads (v) Parking Streets 1 Parking streets are streets where a significant function is providing parking, and which offer pedestrians safe and easy access to a range of civic, cultural, retail and business activities within the Central Area. These parking streets include Ashley Street and King Street. Figure 20A.4 shows all Parking Streets in Palmerston North. (vi) Pedestrian Streets Like parking streets, p Pedestrian Streets are located in the centre of the City. They provide a safe and convenient network of links to carry pedestrians into the activities offered in the Central Area. The Square, Broadway Avenue, Main Street, Coleman Place, Cuba Street, King Street, Fitzherbert Avenue, Church Street, Ashley Street and George Street are all Pedestrian Streets. Figure 20A.4 shows all Pedestrian Streets in Palmerston North. 3. Rule R Roading Designations Amend the explanation to Rule R as follows: Within the City there are two roading designations shown on the Planning Maps. The first, along the southern side of Ferguson Street, is to provide for road widening to relieve traffic congestion while the other, in Kelvin Grove, is intended to establish the alignment of the collector roads principal road linking Roberts and James Lines. Further information is contained in Section 24, Designations, and on the Planning Maps. 4. Rule Loading Space Standards Amend R (b) as follows: (b) No loading arrangement shall be permitted where vehicles project onto the road reserve while loading or are required to reverse onto or off an major arterial or minor arterial principal road. 1 Note that the shaded wording is those changes proposed through Sectional District Plan Review Proposed Plan Change 1: Central Business Zones. This plan change endorses the changes identified by PPC1 to the roading hierarchy classification. 3

6 5. Rule Access Standards Amend R (b) as follows: (b) Access on Major, Minor Principal and Collector Roads Any access to a site or an activity on an Major Road, Minor Principal Road or Collector Road (as defined in Appendix 20A or any roads or proposed roads meeting the criteria as set out in Appendix 20B) must be provided in accordance with the following standards: 6. Table 20.3 Minimum Distances for Major, Minor and Collector Roads Amend Table 20.3 as follows: Table 20.3: Minimum Distances for Major, Minor Principal and Collector Roads. Minimum distance Minimum distance (m) Minimum sight (m) from access to Between successive distance (m) at: intersection on: Posted Speed (km/h) on Major, Minor Principal, Collector Roads. Major, Minor Principal, Collector Roads (a) Other Roads (b) Access Crossings (c) Intersections (d) Access Crossings Intersections

7 7. Figure 20.4 Minimum distances for permitted access for accessways and intersections Amend Figure 20.4 as follows: Figure 20.4: Minimum Distances for Permitted Access for Accessways and Intersections Where a boundary is tapered, measurements are taken from a point at the intersection between the two boundary lines. Other Roads Access (b) Major, Minor or Collector Roads Access (a) (c) Access (a) Other Roads (d) (d) Other Roads (a) (b) (c) (d) Distance from access to intersection on Major, Minor Principal or Collector Roads Distance from access to intersection on all other roads Distance between successive access crossings Distance between successive intersections 8. Rule R Access Standards Residential Zone Amend R (d) (ii) (d) as follows: (d) The minimum distance between access crossings and an intersection with an Major, Minor Principal or Collector Road shall be as recorded in the third column of Table 20.3 (entitled Other Roads (b) ), measured in accordance with Figure

8 9. Rule R Access Standards Industrial Zone Amend R (d) (iii) (e) as follows: (e) The minimum distance between access crossings and an intersection with an Major, Minor Principal or Collector Road shall be as recorded in the third column of Table 20.3 (entitled Other Roads (b) ), measured in accordance with Figure Rule R Access Standards Fringe Business Zone Amend R (d) (iv) (e) as follows: (e) The minimum distance between access crossings and an intersection with an Major, Minor Principal or Collector Road shall be as recorded in the third column of Table 20.3 (entitled Other Roads (b) ), measured in accordance with Figure Rule R Access Standards activities not covered Amend R (d) (v) (e) as follows: (e) The minimum distance between access crossings and an intersection with an Major, Minor Principal or Collector Road shall be as recorded in the third column of Table 20.3 (entitled Other Roads (b) ), measured in accordance with Figure Appendix 20A: Roading Hierarchy Amend the Roading Hierarchy in Appendix 20A as follows: Appendix 20A: Roading Hierarchy 1. Primary Roads 1.1 Major Roads (refer to the figures attached) Road State Highway 3 Rangitikei Street Grey Street Princess Street Main Street Range from the City Boundary to the intersection with Grey Street and Walding Street from the intersection with Rangitikei Street and Walding Street to the intersection with Princess Street from the intersection with Grey Street to the intersection with Main Street from the intersection with Princess Street to the intersection with Napier Road and Upper Main Street 6

9 Napier Road from the intersection with Main Street and Upper Main Street to the City Boundary State Highway 56 Pioneer Highway from the intersection with Shirriffs Road to the intersection with Maxwells Line State Highway 57 Fitzherbert Road East Aokautere Drive Turitea Road Old West Road Tennent Drive from the intersection with State Highway 3 to the Pahiatua Track Aokautere Road and Aokautere Drive intersection from the intersection with Pahiatua Track Aokautere Road and Fitzherbert Road East to the intersection with Summerhill Drive and Turitea Road from the intersection with Summerhill Drive and Aokautere Drive to the intersection with Old West Road from the intersection with Turitea Road to the intersection with Tennent Drive from the intersection with Old West Road to the City Boundary The Ring Road Pitt Street from the intersection with Ferguson Street to the intersection with Cuba Street and Bourke Street Bourke Street from the intersection with Cuba Street and Pitt Street to the intersection with Walding Street Walding Street from the intersection with Bourke Street to the intersection with Rangitikei Street and Grey Street Ferguson Street from the intersection with Pitt Street to the intersection with Princess Street Princess Street from the intersection with Ferguson Street to the intersection with Main Street Other Major Roads Airport Drive Fitzherbert Avenue from the intersection with Ferguson Street to the joining location with Tennent Drive John F Kennedy Drive Kelvin Grove Road from the joining location with McLeavey Drive to the joining location with Tremaine Avenue No. 1 Line from the joining location with Tremaine Avenue to the intersection with Longburn Rongotea Road City Boundary Main Street from the joining location with Pioneer Highway to the intersection with Pitt Street McLeavey Drive Pahiatua Aokautere from the intersection with Aokautere Drive and Fitzherbert Road (Pahiatua Track) East Road East to the City Boundary 7

10 Pioneer Highway Railway Road Roberts Line Longburn Rongotea Road Summerhill Drive Tennent Drive Tremaine Avenue from the joining location with Main Street to the intersection with Maxwells Line from the intersection with Tremaine Avenue and Vogel Street to the City Boundary from the intersection with Napier Road to the joining location with McLeavey Drive from the intersection with No. 1 Line to the intersection with Pioneer Highway from the joining location with Fitzherbert Avenue to the intersection with Old West Road 1.2 Minor (refer to the figures attached) Road Range Albert Street from the intersection with Main Street to the intersection with Te Awe Awe Street and Pahiatua Street Amberley Avenue Botanical Road Ashhurst Bunnythorpe from the intersection with Mulgrave Street to the City Road Boundary Cambridge Avenue (Ashhurst) College Street Featherston Street Hillary Crescent (Ashhurst) Keith Street Kelvin Grove Road Maxwells Line Mihaere Drive Milson Line * Mulgrave Street (Ashhurst) Pacific Drive Park Road from the intersection with Maxwells Line to the intersection with Botanical Road from the intersection with Napier Road to the intersection with Mihaere Drive from the joining location with Tremaine Avenue to the intersection with McLeavey Drive to the intersection with James Line from the intersection with Pioneer Highway to the intersection with College Street from the intersection with Tremaine Avenue and Ruahine Street to the City Boundary from the intersection with Salisbury Street to the intersection with Ashhurst Bunnythorpe Road from the joining location with Botanical Road to the intersection with Fitzherbert Avenue 8

11 Ruahine Street from the intersection with Tremaine Avenue to the intersection with Main Street (State Highway 3) Salisbury Street (Ashhurst) Saddle Road (Ashhurst) from the joining location with Salisbury Street to the City Boundary Stoney Creek Road from the intersection with Napier Road to the City Boundary Te Awe Awe Street Upper Main Street Vogel Street 1.3 Collector Roads (refer to the figures attached) Road Albert Street Benmore Avenue Range from the intersection with Te Awe Awe Street and Pahiatua Street to the intersection with Manawatu Street and from the intersection with Main Street to the intersection with Featherston Street Bennett Street from the intersection with Rangitikei Line (State Highway 3) to the intersection with Benmore Avenue Bourke Street from the intersection with Featherston Street to the intersection with Walding Street Brentwood Avenue Brooklyn Heights Drive Camp Road Cashmere Drive Clarke Avenue College Street from the intersection with Botanical Road to the intersection with Albert Street Cook Street Cuba Street from the intersection with Pascal Street to the intersection with Pitt Street and Bourke Street Fairs Road Ferguson Street from the joining location with Rugby Street to the intersection with Botanical Road to the intersection with Pitt Street, and from the intersection with Princess Street to the intersection with Albert Street Ruahine Street, Fernlea Avenue Gillespies Line from the intersection with Tremaine Avenue, Botanical Road and Admiral Place to the intersection with Benmore Avenue Grey Street from the intersection with Princess Street to the intersection with Ruahine Street Haydon Street Highbury Avenue 9

12 James Line Johnstone Drive Kaimanawa Street Keith Street Kelvin Grove Road Koromiko Avenue McGregor Street Manawatu Street Maxwells Line Monrad Street from the intersection with Mihaere Drive to the joining location with Rata Street from the intersection with James Line to the City Boundary from the intersection with College Street to the eastern end its terminus Oxford Street (Ashhurst) Pahiatua Street Park Road from the intersection with Fitzherbert Avenue to the intersection with Victoria Avenue Parnell Heights Drive Pascal Street Pembroke Street Pitama Road Rangiora Avenue from the intersection with Koromiko Avenue to the intersection with Vogel Street Rata Street from the joining location with Keith Street to the intersection with Shelley Street Roberts Line from the intersection with Kelvin Grove Road to the intersection with Richardsons Line Rosalie Terrace Roy Street Ruahine Street from the intersection with Main Street to the intersection with Pahiatua Street Ruapehu Drive Rugby Street from the intersection with Maxwells Line to the joining location with Ferguson Street Schnell Drive * from the joining location with Brooklyn Heights Drive to the intersection with Fernlea Avenue Shelley Street Slacks Road Victoria Avenue Ward Street Wood Street York Street (Ashhurst) 10

13 1.4 Local Roads (refer to the figures attached) All other roads not identified as Major Roads, Minor Roads, Collector Roads or Pedestrian Streets. 1.5 Pedestrian Streets (refer to Figure 20A.4) Road 2 Ashley Street Broadway Avenue Church Street Coleman Place Cuba Street Fitzherbert Avenue George Street King Street Main Street Rangitikei Street The Square Range from the intersection with The Square to the intersection with Princess Street from the intersection with Princess Street to the intersection with Linton Street (south side) and Pitt Street (north side) from the intersection with Rangitikei Street to the intersection with Andrew Young Street (south side) and the Campbell Street (north side) from the intersection with The Square to the intersection with Ferguson Street from the intersection with Princess Street to the intersection with The Square; and from the intersection with The Square to the intersection with Andrew Young Street (north side) and Pitt Street (south side) from the intersection with The Square to the intersection with Queen Street (eastern side) and 57 Rangitikei Street (western side) 1.6 Restricted Access Roads (refer to Figure 20A.5) Road Camp Road Forest Hill Road Greens Road Kahuterawa Road Longburn Rongotea Road North Range Road Range from the boundary of Lot 1 DP to its eastern end entire length from the boundary of Pt Sec 281A Town of Fitzherbert to its eastern end from the intersection with No. 1 Line to the intersection with Pioneer Highway entire length Pahiatua Aokautere Road from Harrison Hill Road intersection to PNCC the City (Pahiatua Track) Boundary 2 Note that the shaded wording is those changes proposed through the Sectional District Plan Review Proposed Plan Change 1: Central Business Zones. This plan change endorses the changes identified by PPC1 to the Roading Hierarchy classification. 11

14 Riverside Drive Scotts Road Setters Line (South) Shirriffs Road South Range Road Staces Road from the boundary of Lot 4 DP to its eastern end from the intersection with Railway Road to its boundary with the Airport Zone entire length Te Matai Road from the intersection with Napier Road to the intersection with Riverside Drive Turitea Road from Ngahere Park Road intersection to its eastern end NOTES TO PLAN USERS: 1. The figures which follow on the next few pages highlight those areas where the different roading hierarchies apply. 2. Where a property is on a corner site that has two different classifications, each classification shall only apply to that particular frontage only. 3. Where a range of street numbers are stated beside the street, those numbers are inclusive of the properties at either end of the range. 3. Roads with an * in 1.2, or 1.3 above indicate those roads that may be reclassified in the future following strategic roading improvements (refer to the following table in section 1.7). 1.7 Future Reclassification Roads There are a number of roads within the Palmerston North City that are likely to be reclassified in the future following strategic roading improvements as identified in the Regional Land Transport Strategy and local strategic plans. Should Council seek to amend the Roading Hierarchy to reflect these changes, a plan change to the District Plan is required. Roads for future reclassification following Strategic Roading Improvements Road Extent Future change anticipated Te Matai Road from the southern intersection with Napier Road to the intersection with Riverside Drive Raise to Major Riverside Drive Raise to Major Staces Road Raise to Major Milson Line from the intersection with John F Kennedy Drive to the intersection with Flygers Line Lower to Collector Schnell Drive Raise to Collector 12

15 The Regional Land Transport Strategy also includes a future link via a new bridge between Pioneer Highway and State Highway 57 as a future Major Route. The location of this future route is not yet determined. As such, there are no specific roads that can be identified at this stage. 13. Figure 20A.1 Roading Hierarchy Palmerston North (rural) Amend Figure 20A.1 as shown overleaf. 14. Figure 20A.2 Roading Hierarchy Palmerston North (urban) Amend Figure 20A.2 as shown overleaf. 15. Figure 20A.3 Roading Hierarchy - Ashhurst Amend Figure 20A.3 as shown overleaf. 16. Figure 20A.4 Roading Hierarchy PN Central Area Amend Figure 20A.4 as shown overleaf. Note that this Figure has already been changed through Proposed Plan Change 1: Central Business Zones. A minor change to the legend is required to be consistent with the proposed Roading Hierarchy classifications. 17. Figure 20A.5 Restricted Access Roads Amend Figure 20A.5 as shown overleaf. 18. Figure 20A.6 Future Re-classification Roads Insert a new Figure 20A.6 as shown overleaf reflecting those roads that may change classification in the future as the Strategic Roading Network is constructed. 13

16 19. Appendix 20B construction criteria for new roads and street description Amend Appendix 20B as follows: TYPE CRITERIA MIN RESERVE WIDTH* Urban and or Rural Urban >300 EDUC MIN CARRIAGEWAY WIDTH* MIN BERM WIDTH TYPICAL DESCRIPTION 22m 13m 2 x 4.5 m Major or Minor Principal 20m 11 m 2 x 4.5 m Major or Minor Principal Rural EDUC 18 m 9 m (2 x 3.5 m lanes) (2 x 1.0m shoulders) 2 x 4.5 m Major or Minor Principal Urban 18 m 9 m 2 x 4.5 m Minor Principal or Collector Rural EDUC of m 7 m (2 x 3 m lanes) 2 x 4.5 m Minor Principal or (2 x 0.5m Collector shoulders) Urban EDUC of 17 m 8 m 2 x 4.5 m Local Urban EDUC of 0 16 m 7 m 2 x 4.5 m Local - 12 Rural, Rural EDUC of m 6.2 m (2 x 3 m lanes) 2 x 3.9 m Local Residential, (2 x 0.1m Parklands shoulders Industrial EPE of > m 13 m 2 x 4.5 m Local Industrial EPE of m 11.5 m 1 x 4.5m and 1 x 1.0 m Local *Roads having either a longitudinal gradient steeper than 1:10 or having a horizontal alignment with any curve less than 100metres radius will be subject to specific design and will require approval of the Roading Manager EDUC Estimated Dwelling Units in the Catchment EPE Estimated Personnel Employed 14

17 Figure 20A.1 ROADING HIERARCHY - PALMERSTON NORTH (RURAL) ± Primary Roading Network Major Roads Minor Roads Collector Roads Secondary Secondary RoadingRoading NetworkNetwork Local Roads TLA Boundary Line :80, Km

18 Figure 20A.2 ROADING HIERARCHY - PALMERSTON NORTH (URBAN) ± Primary Roading Network Major Roads Minor Roads Collector Roads Secondary Secondary RoadingRoading NetworkNetwork Local Roads TLA Boundary Line :40,000 3 Km

19 Figure 20A.3 ROADING HIERARCHY - ASHHURST ± Primary Roading Network Major Roads Minor Roads Collector Roads Secondary Secondary Roading Roading Network Network Local Roads TLA Boundary Line Km 1:19,000

20 SCOTTS R D STACES RD Figure 20A.5 RESTRICTED ACCESS ROADS SETTERS LINE LONGBURN RONGOTEA RD SHIRRIFFS RD TE MATAI RD RIVERSIDE DR CAMP RD FO REST HILL RD NORTH R ANGE RD KAHUTE R A WA RD GREENS R D TUR IT EA RD PAHIATUA AOKAUTERE RD SOUTH RANGE R D ± Restricted Access Roads TLA Boundary Line - (Existing) Km :70,000

21 20. Consequential changes throughout the District Plan Amend references used throughout the District Plan to the Roading Hierarchy as follows: 1. Change references from Road to Major Road. 2. Change reference from Principal Road to Minor Road. Relevant extracts from the District Plan showing the proposed changes are contained in Appendix One. 15

22 Part II Section 32 Report 1 Introduction This report has been prepared in fulfilment of the requirements of Section 32 of the Resource Management Act 1991 (RMA) which requires local authorities to prepare a report summarising the evaluation of the alternatives, benefits and costs of the plan change, and giving reasons for that evaluation. Pursuant to Section 32(3) of the RMA, this evaluation details the appropriateness of the objectives in achieving the purpose of the RMA, and whether, having regard to their efficiency and effectiveness, the policies and rules proposed are the most appropriate for achieving the objectives. 2 Plan Change Objective The objective of this Proposed Plan Change is to update Section 20 of the District Plan in light of strategic documents and land transport plans, including the Regional Land Transport Strategy. The changes will ensure that the Roading Hierarchy in Section 20 remains up to date; that the future reclassification of roads in the Roading Hierarchy are identified to plan users; and that Section 20 reflects the terminology used in the Regional Land Transport Strategy. 3 Reason for the Proposed Plan Change 3.1 Site description Roads within the Palmerston North City boundary are all subject to a Roading Hierarchy classification. Under Rule all roads in the Palmerston North City Boundary are designated, and have the underlying zoning of the adjoining land. The District Plan currently identifies roads within the City according to the following categories: Primary Roads (i) Roads These are roads of strategic importance to the Region and the country and provide both for access between different parts of the City and for links with other towns and cities. Generally arterial roads have two to four lanes of traffic with a road reserve width of m and often some carriageway separation or access control. roads include State Highways 3 and 56 and John F Kennedy Drive. (ii) Principal Roads Principal roads are an essential element of the City s roading network. They provide access between different land use activities and distribute traffic from the 16

23 arterial roads. These roads carry between 5,000 and 20,000 vehicles per day, are two lanes wide and have a road reserve width of 20 m. Botanical Road and Fitzherbert Road East are examples of principal roads. (iii) Collector Roads These are roads which are significant locally and distribute traffic from principal roads. Collector roads provide access for sites and activities, and cater for through traffic. Typical traffic flows are between 3,000 and 10,000 vehicles per day. Collector roads are usually two lanes with road reserve width of 17 m to 20 m. These roads are also likely to be used by pedestrians. Two examples of a collector road are Highbury Avenue and Linton Camp Road. Secondary Roads (iv) Local Roads Other Roads These roads primary function is to provide access, though they do collect and distribute traffic to other streets within a local area. Such roads typically carry up to 3,000 vehicles per day and their two lanes provide for on-street parking, property access and pedestrian needs. Road reserve widths vary from 16 m to 18 m. Buick Crescent and Milverton Avenue are examples of local roads. (v) Parking Streets 3 Parking streets are streets where a significant function is providing parking, and which offer pedestrians safe and easy access to a range of civic, cultural, retail and business activities within the Central Area. These parking streets include Ashley Street and King Street. Figure 20A.4 shows all Parking Streets in Palmerston North. (vi) Pedestrian Streets Like parking streets, Pedestrian streets are located in the centre of the City. They provide a safe and convenient network of links to carry pedestrians into the activities offered in the Central Area. The Square, Broadway Avenue, Main Street, Coleman Place, Cuba Street, King Street, Fitzherbert Avenue, Church Street, Ashley Street and George Street are all both pedestrian streets. Figure 20A.4 shows all Pedestrian Streets in Palmerston North. 3 Sectional District Plan Review Proposed Plan Change 1: Central Business Zones has deleted reference to Parking Streets (shown by shading above). This Plan Change endorses the changes identified by the PPC1 to the roading hierarchy classification. 17

24 3.2 Background The current Roading Hierarchy was introduced into the District Plan in Since the District Plan became operative in 2000 no changes have been made to the Roading Hierarchy. In 2007 plan changes were initiated by Palmerston North City Council (Proposed Plan Change 40) and Manawatu District Council to alter the Roading Hierarchy classification for Milson Line. The Councils each notified a plan change and received a number of submissions on the proposal. The plan changes were placed on hold pending the decision of the Environment Court regarding the road closure process under the Local Government Act (1974). Proposed Plan Change 40 remains on hold and will be withdrawn at the time this Plan Change is notified. The Palmerston North Manawatu Strategic Transport Study was completed in mid-2010 by the New Zealand Transport Agency, Palmerston North City Council, Manawatu District Council and Horizons Regional Council. The Study sets out a framework for the strategic transport network in the Palmerston North and Manawatu area over the next 30 years. The aims of the Study were: a) To inform the development of an integrated transport network for the study area, with a key focus on confirming a road hierarchy; and b) To identify the road improvements and develop a programme of works to give effect to the proposed road hierarchy. As part of this Study the current road hierarchy classification was reviewed. The Study states There are currently a number of road classification systems in use. NZTA has developed a National Road Classification System for urban and rural roads, there is a NZ Standard classification systems, and PNCC, MDC, and HRC have each developed classification systems. In addition, NZTA has criteria for classifying state highways. The Study proposed a different classification system, which is consistent with New Zealand Standard 4404:2010 Land Development and Subdivision Infrastructure, as follows: Table 1: Palmerston North Manawatu Strategic Transport Study (2010) classification Class Function Traffic volume (vehicles per day) Rural Urban Inter-regional routes As per NZTA s State Not applicable Not applicable Highway Classification Criteria Major Traffic movement is the >5,000 >20,000 primary function Minor Traffic movement is the 1,000 5,000 5,000 20, 000 primary function Collector Land access and traffic 200 1,000 1,000 5,000 movement are of equal importance Source: Palmerston North Manawatu Strategic Transport Study Phase 2 Report, June

25 As a result of the Study the Regional Land Transport Strategy (RLTS) has, in Appendix 3, identified a Strategic Transport Network. The Strategic Transport Network is included in the Regional Land Transport Strategy and is shown below. Figure 1: Regional Strategic Network as shown in the Regional Land Transport Strategy 19

26 Figure 2: The Regional Strategic Network around Palmerston North (as shown in the Regional Land Transport Strategy) As a result of the Palmerston North Manawatu Strategic Transport Study, and the changes made in the Regional Land Transport Strategy, Council has determined that it is appropriate to update the Roading Hierarchy classification in the District Plan. It is noted that where the boundary between Manawatu District Council and Palmerston North City Council falls on a road there is formal agreement for which Road Controlling Authority has responsibility for maintaining those roads. The changes to the Roading Hierarchy proposed in this Plan Change do not alter the existing agreement. 20

27 4 Proposed Plan Change Proposed Plan Change 7 involves updating the Roading Hierarchy in Appendix 20A, Section 20 Transportation of the District Plan. The main reasons for the various changes are the result of the Palmerston North Manawatu Strategic Transport Study and to acknowledge where the function of roads has changed since the Roading Hierarchy was originally included in the District Plan. For instance, some roads have become Major s from Minor s (previously referred to as Principal Roads) or from Local Roads to Collector Roads. The proposed changes are considered by Council to be necessary. These changes have been developed based on the range of matters identified in the explanation to Section in the District Plan. Those matters include: Existing traffic service functions; Existing land uses; Existing characteristics, e.g. road standard, width and capacity; Current traffic volumes; Future land use strategies; and Anticipated traffic increases. The changes to the Roading Hierarchy are identified in Table 2, including the need for the change or where the change originated. Other consequential changes to the Plan are also required (refer Part 1, section 2 of this report). Table 2: Changes to the Roading Hierarchy Road From To Proposed Change Railway Road Tremaine Avenue Boundary Raise to Major Airport Drive Railway Road Milson Line Lower to Minor John F Kennedy Drive Milson Line Rangitikei Street Lower to Minor Need for Change Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study, to be reviewed in a future urban study Palmerston North Manawatu Strategic Transport Study, to be reviewed in a future urban study Haydon Street Keith Street Vogel Street Raise to Collector Connects Collector to Minor Parnell Heights Drive Roberts Line James Line Raise to Collector Connects Collector to Major 21

28 Table 2: Changes to the Roading Hierarchy Road From To Proposed Change Brooklyn Heights Drive/Schnell Drive/Fernlea Ave Need for Change James Line Roberts Line Raise to Collector Connects Collector to Major Rosalie Terrace James Line Roberts Line Raise to Collector Connects Collector to Major Mihaere Drive Roberts Line Keith Street Raise to Minor Connects Major and Minor s Keith Street Mihaere Drive Napier Road Raise to Minor Connects Major and Minor s Roberts Line Napier Road McLeavey Drive Raise to Major Palmerston North Manawatu Strategic Transport Study McLeavey Drive Roberts Line Kelvin Grove Road Roberts Line Kelvin Grove Road Raise to Major Palmerston North Manawatu Strategic Transport Study Richardsons Line Raise to Collector Palmerston North Manawatu Strategic Transport Study Kelvin Grove Road McLeavey Drive Tremaine Avenue Raise to Major Tremaine Avenue Kelvin Grove Road No 1 Line No 1 Line Tremaine Avenue Longburn Rongotea Road Longburn Rongotea Road Pioneer Highway Raise to Major Raise to Major No 1 Line Pioneer Highway Raise to Major Longburn Rongotea Road Pitt Street Raise to Major Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study Rugby Street/ Ferguson Street Maxwells Line Botanical Road Raise to Collector Connects to Minor Slacks Road Maxwells Line Pitama Road Raise to Collector Connects Collector roads Monrad Street Pembroke Street Pioneer Highway Raise to Collector Connects Collector Road to Major Cuba Street Pitt Street Pascal Street Raise to Collector Connects Major to Collector road Pascal Street Cuba Street Featherston Street Raise to Collector Connects to Minor 22

29 Table 2: Changes to the Roading Hierarchy Road From To Proposed Need for Change Change Ward Street Grey Street Featherston Street Raise to Collector Connects Collector to Minor Roy Street Featherston Street Tremaine Avenue Raise to Collector Connects Minor s Park Road Fitzherbert Avenue Victoria Avenue Raise to Collector Connects Collector to Major Albert Street Main Street Featherston Street Raise to Collector Connects Major to Minor Ferguson Street Albert Street Ruahine Street Raise to Collector Connects Collector to Minor Manawatu Street Ruahine Street Albert Street Raise to Collector Connects Collector Roads Summerhill Drive Tennent Drive Old West Road Raise to Major Palmerston North Manawatu Strategic Transport Study Cashmere Drive Aokautere Drive Ruapehu Drive Raise to Collector Connects Major to Collector Johnstone Drive Aokautere Drive Pacific Drive Raise to Collector Connects Minor to Major Pahiatua Aokautere Road Aokautere Drive (SH57) TDC Boundary Raise to Major Stoney Creek Road Napier Road MDC Boundary Raise to Minor Palmerston North Manawatu Strategic Transport Study Palmerston North Manawatu Strategic Transport Study The Regional Land Transport Strategy refers to inter-regional routes as part of the roading hierarchy classification. These routes within Palmerston North City correspond to the Major Roads. On this basis reference to inter-regional routes are not included in the Roading Hierarchy. The Council also wants to highlight those roads where a future change in hierarchy may occur. The future reclassification of roads within the hierarchy will be identified to inform the community that changes to road status may change in the future. The changes outlined in Table 3 will largely occur following road upgrades as part of the Strategic Roading Network improvements identified in the Regional Land Transport Strategy. In the future, should Council seek to amend the following road classifications then a plan change to the District Plan is required. Note that these future reclassification roads are shown on new Figure 20A.6 which will be included in the Appendix Maps in Section 20 of the District Plan. 23

30 Table 3: Future reclassification changes to the Roading Hierarchy Road Extent Proposed Change Reason Te Matai Road Riverside Drive from the southern intersection with Napier Road to the intersection with Riverside Drive Raise to Major Raise to Major Palmerston North Manawatu Strategic Transport Study Staces Road Raise to Major Milson Line from the intersection with John F Kennedy Drive to the intersection with Flygers Line Lower to Collector Schnell Drive Raise to Collector Currently Private Road. To be added once road status changes. The Regional Land Transport Strategy also includes a future link via a new bridge between Pioneer Highway and State Highway 57 as a future Major Route. The location of this future route is not yet determined. As such, there are no specific roads that can be identified at this stage. 4.1 Supporting Evidence The Council considered a number of reports in preparing this Plan Change. These included: Palmerston North Manawatu Strategic Transport Study Phase 1 Report (2010) Palmerston North Manawatu Strategic Transport Study Phase 2 Report (2010) Regional Land Transport Strategy (2010) Proposed One Plan, as amended by decisions on submissions (2010) NZS 4404:2010 Land Development and Subdivision Infrastructure (2010). 5 Statutory requirements Before a plan change is publicly notified, the Council must undertake the following duties under Section 32 of the RMA: 32 Consideration of alternatives, benefits, and costs (1) In achieving the purpose of this Act, before a change is publicly notified an evaluation must be carried out by (c) the local authority, for a policy statement or plan (2) A further evaluation must also be made by (a) a local authority before making a decision under clause 10 or clause 29(4) of the Schedule 1; 24

31 (3) An evaluation must examine (a) the extent to which each objective is the most appropriate way to achieve the purpose of this Act; and (b) whether, having regard to their efficiency and effectiveness, the policies, rules, or other methods are the most appropriate for achieving the objectives. (4) For the purposes of the examinations referred to in subsections (3) and (3A), an evaluation must take into account (a) the benefits and costs of policies, rules, or other methods; (b) the risk of acting or not acting if there is uncertain or insufficient information about the subject matter of the policies, rules, or other methods. (5) The person required to carry out an evaluation under subsection (1) must prepare a report summarising the evaluation and giving reasons for that evaluation. (6) The report must be available for public inspection at the same time as the document to which the report relates to is publicly notified or the regulation is made. The purpose of the RMA is the baseline against which these statutory steps are to be carried out. Section 5 of the RMA sets out the purpose of that Act. The following sections are relevant: 5. Purpose (1) The purpose of this Act is to promote the sustainable management of nature and physical resources. (2) In this Act, sustainable management means managing the use, development, and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic, and cultural wellbeing and for their health and safety while- (a) Sustaining the potential of natural and physical resources (excluding minerals) to meet the reasonably foreseeable needs of future generations; and (b) Safeguarding the life-supporting capacity of air, water, soil, and ecosystems; and (c) Avoiding, remedying, or mitigating any adverse effects of activities on the environment Other sections of relevance in Part 2 of the Act are as follows: 7. Other Matters In achieving the purpose of this Act, all persons exercising functions and powers under it, in relation to managing the use, development, and protection of natural and physical resources, shall have particular regard to (b) (ba) (c) (f) the efficient use and development of natural and physical resources: the efficiency of the end use of energy: The maintenance and enhancement of amenity values: Maintenance and enhancement of the quality of the environment: 25

32 (i) The effects of climate change; The relevant functions of the Council in this instance are set out in sections 31 (a), (b) and (d) as follows: 31. Functions of territorial authorities under this Act Every territorial authority shall have the following functions for the purpose of giving effect to this Act in its district: (a) (b) The establishment, implementation, and review of objectives, policies, and methods to achieve integrated management of the effects of the use, development, or protection of land and associated natural and physical resources of the district: The control of any actual or potential effects of the use, development, or protection of land, including for the purpose of (i) (ii) (iia) (iii) the avoidance or mitigation of natural hazards; and the prevention or mitigation of any adverse effects of the storage, use, disposal, or transportation of hazardous substances; and the prevention or mitigation of any adverse effects of the development, subdivision, or use of contaminated land: the maintenance of indigenous biological diversity: (d) (f) The control of the emission of noise and the mitigation of the effects of noise: Any other functions specified in this Act. To achieve the purpose of the RMA in accordance with the stated functions, any proposed District Plan provisions must be the most appropriate method of providing for any changes to the Roading Hierarchy whilst avoiding, mitigating or remedying the effects of any use and/or development on the environment. The proposed changes ensure the Roading Hierarchy correctly reflects the function each road has within the City. The new classification is consistent with the provisions of NZS4404:2010 and the Regional Land Transport Strategy. By adopting the new classification for the Roading Hierarchy Council is achieving integrated management between the relevant strategic documents. The proposed changes to the classification terms does not change the access and sight distance provisions in the District Plan. The proposed changes to roads within the hierarchy mean that access and sight distance provisions will change for those roads only. This is appropriate given the function each road has in moving transportation around the City. Section 74 of the RMA states that when changing a district plan the Council shall have regard to a number of factors including any management plans and strategies prepared under other Acts. In this instance, the provisions of the Regional Land Transport Strategy are particularly relevant to this Proposed Plan Change. In addition, the Proposed One Plan amended by decisions on submissions, states in Policy 3-1 that councils must recognise the road and rail networks as mapped in the Regional Land Transport Strategy as being 26

33 physical resources of regional or national importance. This Proposed Plan Change is giving effect to this policy and the provisions of the Regional Land Transport Strategy. The proposed changes also include reference to those roads that may be re-classified in the future, once the Strategic Roading Network (including the Rural Ring Road around Palmerston North City) has been constructed. It would be inappropriate to alter the classifications now of those roads. The reclassification should occur when the function of those roads change as a result of constructing the Strategic Roading Network. Overall the proposed changes to the Roading Hierarchy and consequential references in the District Plan are considered to be an efficient and effective means to manage the roading network. 6 Chronology The following outlines the key milestones in preparing the Proposed Plan Change to date: March 2011 Opus International Consultants (Opus) were commissioned to prepare Sectional District Plan Review Proposed Plan Change 7 Roading Hierarchy. May 2011 Draft Proposed Plan Change released for Clause 3 consultation. 25 May 2011 Feedback on the Draft Proposed Plan Change closed. June / July 2011 September 2011 Draft Plan Change amended in light of Clause 3 consultation and the Proposed Plan Change and Section 32 report prepared. Planning and Policy Committee approves plan change for notification under the Resource Management Act Indicative timeline of Plan Change process An indicative timetable of the plan change process is illustrated below: Council publicly notifies Proposed Plan Change (November 2011) Submissions close (January 2012) Summarise Submissions (February 2012) 27

34 Notify Summary of Submissions for Further Submissions (February 2012) Receive and Analyse Further Submissions (March 2012) Hearing held to hear submissions received (April 2012) Decision by Council publicly notified (May 2012) Appeals to the Environment Court close (June 2012) Adoption of the Plan Change by Council (if no appeals) (July 2012) 7 Consultation Consultation under Clause 3 of the Resource Management Act was undertaken in May August Three submissions were received by Council from the following parties: Manawatu District Council Palmerston North International Airport Limited, and New Zealand Defence Force. The comments made in the submissions have been considered during the finalising of the Proposed Plan Change. 8 Assessment of alternatives, benefits and costs The proposed plan change must be assessed in terms of whether it is the most appropriate way to achieve the purpose of the Act. Appropriateness means assessing whether the suitability of any particular alternative (i.e. regulation or other methods) is appropriate, then considering the effectiveness and efficiency of the alternative. Section 32 of the Act requires plan changes to be assessed focusing on the consideration of alternatives, benefits and costs. In considering the alternative methods, it is necessary to 28

35 consider different planning methods to achieve the purpose of the Act, including retaining the status quo, non-regulatory methods and the proposed plan change. The following alternatives were considered and have been assessed: Alternative 1 Retain the current Roading Hierarchy (status quo). Alternative 2 Apply revised road classifications. 8.1 Alternative 1 Retain the current Roading Hierarchy (status quo) This alternative involves no change to the District Plan. The classification of roads in the City would remain as arterial roads, principal roads, collector roads, local roads and pedestrian streets. Maintain Status Quo Retain the Roading Hierarchy classification of Roads, Principal Roads, Collector Roads, Local Roads and Pedestrian Streets. No change to the access provisions would result. Benefits Costs No change to the District Plan is required; therefore no costs are incurred by Council (and ratepayers). Efficiency and Effectiveness: This alternative is not consistent with the recommendations in the Palmerston North Manawatu Strategy Transport Study which recommended changes to the Road Hierarchy classification. This alternative is not consistent with Regional Land Transport Strategy and the classification adopted in that Strategy following the recommendations of the Palmerston North Manawatu Strategy Transport Study. The changes in road classification within the hierarchy are necessary to reflect the current function of those roads. To retain the current provisions would not reflect the actual use of these roads. The existing road classification is not consistent with the provisions of NZ4404:2010 Land Development and Subdivision Infrastructure. The cost of this alternative is that the road hierarchy in the District Plan does not reflect the function of the road. This means that the correct access provisions are not applied. Retaining the status quo means that the Roading Hierarchy is also inconsistent with NZS 4404:2010 and the Regional Land Transport Strategy. This alternative is not effective from a consistency point of view with the Regional Land Transport Strategy. As a party to the Palmerston North Manawatu Strategy Transport Study it is not appropriate for Council to ignore 29