SmartGrowth Strategy Update:
Discussion Document:
Tauranga Urban Network Study: Executive Summary
Prepared by: TUNS Project Group
November 2012
Tauranga Urban Network Study
1. Executive Summary
The Tauranga Urban Network Study (TUNS) provides the long-term direction for development of
Tauranga’s urban arterial road network over the next 30 years. It forms the SmartGrowth Central
Corridor investigation and aligns with previous studies undertaken on the Northern, Western and
Eastern external corridors as shown below.
The scope and scale of the Tauranga Urban Network Study (TUNS) is defined as the arterial road
network contained within the area shown overleaf. This includes State Highways (operated by NZTA)
and local arterial corridors (operated by Tauranga City Council) as well as the role of rail in conveying
freight and thereby reducing impacts on the road network.
The city and its urban surrounds have a history of strong growth and this is projected to continue.
The infrastructure needed to support and manage this growth is being planned for through the
SmartGrowth collaboration between three councils – Tauranga City Council, Western Bay of Plenty
District Council and Bay of Plenty Regional Council – as well as NZTA and key regional stakeholders.
TUNS will form the evidence base for the Tauranga Transport Strategy which will include an
indicative implementation plan. The structure of the Tauranga Transport Strategy is shown below.
TUNS provides the arterial road network component of the overall SmartGrowth strategy required
to support and manage growth across Tauranga.
TUNS is consistent with the Regional Land Transport Strategy 2011-2041 (RLTS), whose vision is Best
transport systems for a growing economy and a safe and vibrant Bay lifestyle.
To deliver the vision of the RLTS an approach based on upon an Optimised Transport System has
been defined, based on the NZTA Hierarchy of Interventions approach. This follows analysis of future
demands that found a ‘business as usual’ approach would result in levels of private vehicle use that
would present significant challenges, especially in urban areas at peak times, and have detrimental
effects on the economy.
Lower
cost
Intervention Hierarchy (NZTA)
Optimised Transport System (RLTS)
Integrated Planning
Land use and transport integration
Best use of existing infrastructure
Freight Management
Demand Management
Demand Management
Sustainable transport infrastructure
New infrastructure
Higher
cost
Road network safety
Road improvements (inc safety)
The Optimised Transport System assumes the sequential implementation of regional
roading priorities and places an emphasis on low cost, innovative demand management and
freight management measures, supported by appropriate investments in roading, public
transport, walking and cycling that are targeted to make the best use of the existing
network. Specific investment in rail to improve capacity and efficiency plays a key role in the
freight management measures.
Modelling of regional travel demands found that even in a low travel demand scenario, carbased transport modes (driver and car-passenger) will make up approximately 74% of trips
and 85% of kilometres travelled in the region in 2040. The road network will remain the
backbone of the regional transport system even if the growth in demand is increasingly
accommodated in other ways. Consequently, continued investment in roading
improvements will be necessary.
TUNS has revealed three distinct corridors within the study area, each performing different functions
for a variety of road users. These are shown below:
The Ring Road North corridor
A key current and future function of the Ring Road North Corridor is to provide road freight access to
the Port of Tauranga for import and export of primary products:
•
to/from the Waikato via State Highway (SH) 29, ‘Route K’ and SH2
•
to/from the Coromandel and Hauraki Plains via SH2 (through Bethlehem)
•
to/from the central North Island (e.g. Taupo) via SH2 (to Paengaroa) and SH33.
The Government Policy Statement on Land Transport Funding (GPS) puts a high priority on
improving freight efficiency across New Zealand. As the country’s largest export port by volume, it is
essential to ensure that this corridor operates as efficiently as possible, enabling freight operators to
transport goods to market. Linked to this, the role of the East Coast Main Trunk railway line in
reducing truck trips to the Port and supporting efficient access to Auckland and the Waikato is
recognised and supported.
Competing with the key freight function in this corridor is regional demand for private vehicle access
to the city centre and through the city from Tauranga’s peri-urban (e.g. Bethlehem, Otumoetai,
Papamoa) and rural hinterland (e.g. Katikati, Te Puna and Omokoroa). The same section of corridor
also provides for tourist trips along the Pacific Coast Highway – another major contributor to the
regional and national economy.
The Ring Road South corridor
The increasing function of this corridor is to provide for intra-regional and city-wide access to
employment and commercial centres for developing residential areas alongside and south of State
Highway 29 over the next 30 years. The constrained physical geography of this corridor focuses
travel demand along and across SH29, between the SH29/Route K intersection and the SH2/29
intersection at Te Maunga.
A second function which will again increase over time is to provide an alternative route for through
traffic to relieve the Ring Road North corridor and enable the continuation of high quality access to
the Port and City Centre.
The Peninsula corridor
The Peninsula Corridor provides for a wide variety of traffic functions, typical of an urban arterial
network in New Zealand. Intra-regional freight, tourist, commercial, commuter and other private
traffic functions are ‘in the mix’ across the peninsula and are added to by the convergence of citybound trips from the Ring Road North and South Corridors.
Enabling good connections between the Peninsula and Ring Road North Corridors will assist with
continuing to separate shorter and longer distance trips in coming years.
2. Implications for SmartGrowth Settlement Pattern Review
The TUNS investigation has revealed a number of key findings for the SmartGrowth review and these
are detailed below.
TUNS Traffic Predictions
TUNS has provided an assessment of Tauranga’s strategic roading network, using the TTM (version
5.8), incrementally towards 2040 based on the predicted uptake rate of settlement derived from
SmartGrowth up to Generation 3 and including broad assumptions regarding urban intensification
and fringe development encompassed by Generation 4. The results have been peer reviewed and
accepted by all TUNS partners.
The model provides a detailed assessment of links and intersections during peak traffic periods in
steps of five years to capture the changing population densities and regional demographics and
reports loss of functionality through traffic volumes and congestion as a Level of Service. The target
minimum LOS for the strategic network is D and non-strategic network during peak traffic is E,
which allows for managed traffic flows close to saturation, but not a breakdown in flow conditions.
It therefore accepts some congestion at intersections but not excessive delay. This approach has yet
to be tested for feasibility, including in particular the affordability of interventions required. This is
likely to identify where trade-offs are required around the network to achieve the desired
outcomes. It is desirable that the network levels of service are also consistent with the national
approach currently under development to support the National Road Classification System and
State Highway Classification System.
Urban Growth Areas (UGA’s)
The UGAs indicated by the current SmartGrowth predictions place an extreme level of commuter
demand on the Tauranga strategic network in Generation 4, where an anticipated 60% of all growth
will occur.
The predicted growth scenarios modelled in the Tauranga Transport Model (TTM) differ from those
reported in the UGA review. Furthermore, the development rate in TTM is derived from a marketdepressed 2010 value, during the peak of the GFC, and therefore the TUNS results are roughly 5
years behind UGA in terms of rate of uptake. The relationship between the horizon year in the TTM
is approximately equivalent to the mid-point of generation 4, say 2040.
The modelling indicates a number of areas where the anticipated growth scenario concentrates and
compounds traffic effects on the strategic roading network. The outcome is anticipated to be:
 Infrastructure investment to provide capacity augmentation, or
 Reallocation of growth areas to alternative locations where low growth is predicted and
there is also available road capacity which has not been realised, or
 A combination of both.
This demand is exacerbated or absorbed by the choice of area allocated for development as follows:
 The joint Ohauiti/Neewood/Pukemapu catchment anticipates 20% of Generation 4 growth
(5,075). This area is effectively a large cul-de-sac, separated from the CBD, employment and
services by SH29 and its already congested intersections.
 The eastern catchments of Te Tumu, Te Puke and Wairakei amount to 36% of Generation 3
(4,321) and 41% of Generation 4 (10,168) growth. However, these areas are well served by
SH2 and the TEL which is anticipated to be complete in 2016, prior to significant expansion
into Generation 3 development.
 Pyes Pa amounts to 23% of Generation 3 (2,764) and less than 5% of Generation 4 (1,142).
This area is well served by SH36 and Pyes Pa Road but still feeds traffic directly into the
congested intersections at the Lakes (Route K) and Barkes Corner.
 Welcome Bay only predicts modest growth, which, whist exacerbating the congestion on the
approach to Hairini Roundabout is unlikely to create an additional problem in itself.
 A high proportion of traffic is anticipated to use Turret Road (SH2a) to access the CBD and
northern areas, putting unsustainable demands on SH2a and SH29 and in particular the
Hairini and Poike intersections.
 The Pukemapu and Oropi catchments rely entirely on Oropi Road and its intersection with
SH29.
 The Northern corridor growth represents 36% of Generation 3 (4,275) and 31% of
Generation 4 (7,693) and relies exclusively on SH2. The congested Bethlehem area and
bottleneck at Wairoa Bridge restrict capacity and reduce levels of service at an early stage.
Modelling Traffic Demand and Network Performance
The TTM (version 5.8) has been developed to predict the traffic growth and its impacts on the
Tauranga network, based on the 2010 UGA settlement pattern. The following table demonstrates
changes in LOS along strategic corridors as a result of the predicated growth pattern and uptake.
In general, the urban network will be governed by the intersection efficiency, although the link
capacity gives a good indication of the demands. The table below reports the lowest level of service
on each of the strategic corridors described above. To simplify the referencing, the corridors are as
follows:
Ring Road North Corridor:
SH29 from Omanawa Road to Route K roundabout, Route K, SH 2
from Route K to Domain Road
Peninsula Corridor:
SH2a from Hairini roundabout to Cameron Road and Cameron Road
from Barkes Corner to Chapel Street
Ring Road South Corridor:
SH29 from Omanawa Road to Te Maunga intersection
Lowest LOS on Corridor
Model
Year
2011
2016
2016 (I)
2021
2021 (I)
2026
2026 (I)
2031
2031 (I)
Ring Road North
Ring Road
South
Peninsula
SH29
RT K
SH2 (Tk)
SH2 (Mt)
SH2 (S)
Cameron
SH2a
SH29
E
F
F
F
F
F
F
F
F
B
B
B
C
C
D
C
C
C
C
D
D
E
E
E
E
E
D
E
E
E
E
E
E
E
E
E
E
F
F
D
D
D
D
D
D
E
E
E
E
E
E
E
E
E
E
F
F
F
F
F
E
E
E
E
F
F
F
F
F
F
F
F
External SmartGrowth corridors:
North: SH2 (N) from Katikati to Bethlehem
South: SH2 (S) from Te Puke to Domain Road
West: SH29 west of Omanawa Road
Model
Year
2011
2016
2016 (I)
2021
2021 (I)
2026
2026 (I)
2031
2031 (I)
West
External
North
South
SH29
SH2 (N)
SH2 (S)
D
D
D
D
D
D
D
E
E
E
F
F
F
F
F
F
F
D
E
E
B
B
B
B
B
B
B
The LOS reported is the minimum along the corridor for each scenario. “(I)” refers to the network
performance after intervention to alleviate intersection congestion and capacity augmentation. A
number of these projects are currently the subject of detailed investigation. Others are assumed at
this stage and have not been tested for feasibility or affordability. A more detailed description is
contained in Appendix 4 of TUNS.
It is evident from the modelling that a number of key routes are significantly impacted upon and that
high cost infrastructure investment is likely to be required in response to take-up of the current
development pattern, particularly along SH2N and SH29, to avoid unacceptable levels of service. In
some cases there is little improvement evident following intervention as all the capacity
enhancement is taken up by a release in suppressed demand created by intensification of
development. This has the effect of simply transferring the problem to another intersection or road
link which in turn will require intervention:
 While Hairini Stage 4 is expected to provide significant travel time improvements on SH29,
levels of service on Welcome Bay Road and Turret Road are likely to remain an issue.
 Girven Road close to Maunganui Road drops to LOS F following the opening of the TEL in
2016.
 SH29 west of Route K remains at LOS E up to 2021, when it is anticipated that capacity
improvements (i.e. Tauriko upgrade project) are necessary to overcome congestion and the
problems at Cambridge Road intersection.
 Bethlehem links to the CBD in Generation 4 are all at LOS E (or better)
 Apart from key intersections (notably on 15th and 11th) the urban network between Greerton
and the CBD operates with LOS C or better throughout.
The Strategic Road Network
Previous transport investment
Delivery of the infrastructure required in a fast growing city over previous decades (and including
SmartGrowth Generations 1, 2 and 3) has already resulted in significant investment across the TUNS
study area. Previous investments include:
1944
1954
1959
1963
1960's
1960's
1976
1978
1979
1980
1988
1989
1992
1993
1994
2002
2002
2002
2003
2003
2004
2007
2007
2007
2008
Tauranga Airfield constructed
Mount Maunganui Port opens, permitting first log shipments
Chapel Street bridge constructed
Tauranga declared a city (20,000 residents)
Second Turret Road bridge constructed to replace the original wooden structure
Maungatapu Bridge constructed
Tauranga Area Transportation Study
Kaimai Rail tunnel opens
Sulphur Point Container Terminal opens
Maungatapu bypass opens
First Harbour Bridge opens as a 2 lane toll road (only toll road in the country)
Tauranga District and Mount Maunganui Borough Councils merge
Waikareao Expressway opens
Tauranga District Transportation Plan
Access Partnership Group established
Route P opens
Route J opens
PJK Intersection completed
Route K opens as a toll road
Urban bus network re-launched
SmartGrowth sub-regional land use strategy launched
Access Partnership transitions into Smart Transport Group focussed on delivery of
transport elements of SmartGrowth
Hewletts Road widening and traffic signals completed
Hairini Stage One (Signalisation of Welcome Bay Roundabout) complete
Hewletts Road flyover opens
2009
2010
Four lane Harbourlink crossing opens
Hairini Stage Two (Upgrade of 15th Avenue and Fraser Street intersection plus
pedestrian crossing at Burrows Street) complete
2011
2011
Pyes Pa Bypass opens
Expansion of the Sulphur Point Container Terminal begins
Issues affecting the current Strategic Road Network
These include:
Maranui/Arataki:
Detailed improvement investigations are underway for the Maunganui/Girven and Te Maunga
intersections. To ease congestion, the Sandhurst link (under construction) will assist with local traffic
diversion. Gloucester Street and Grenada Street links will provide improved connectivity and
alternative routes from Arataki through to Papamoa, however, they are reliant on developer timing.
Port of Tauranga Access:
Long-term freight growth forecasts for POT raise issues of arterial road capacity for Route K, SH2,
Mirrilees Road/ Marsh Street and Matapihi Rail Bridge.
Hewletts Road:
A key access to the port it serves state highway and local trip function. Capacity emerges as an issue
within the next 10 years.
Hairini Link
Following stages 1 and 2 completed in recent years, stage 4 of the project (Welcome Bay
Road/Turret Road underpass under SH29) is currently proceeding through a designation process.
Key Impacts of the UGAs on the Strategic Road Network
UGA
Omokoroa Stage
1 and Northern
Growth
Pyes Pa West/
Tauriko
Southern
Corridor UGA’s
GENERATION
3
4
Traffic volume pressures increase
through Wairoa Bridge and Bethlehem to
Takitimu Drive route. Bethlehem
significantly constrained by land use and
road corridor width.
Intersection of SH2 and Omokoroa Road
becomes a significant bottleneck and
safety risk that is contributed to by
Omokoroa growth.
Capacity issue at SH29/ Route K
intersection and SH36/ Taurikura Drive
develops in longer term.
SH 29 is currently a nationally strategic high
volume freight route in Tauranga network. In
the traffic modeling cumulative pressures
arise on the route with new development
areas feeding in, as there are insufficient local,
parallel links between southern suburbs and
UGA
GENERATION
3
4
to the CBD. Traffic effects arise at all
intersections along SH29 from Maungatapu –
Tauriko.
Capacity issue at SH29/ Route K intersection
develops in the longer term.
Tauriko
Tauriko improvement project aims to improve
Tauriko village safety and improve road /
freight connection to port.
There is also potential to feed into southern
extension of Tauriko business land and Belk
Road area
Te Tumu
Papamoa East interchange is a key piece of
infrastructure for Te Tumu to develop. Other
road feeders are extensions to Papamoa
Beach Road, The Boulevard, Te Okuroa Drive.
Kaituna Bridge link to Rangiuru may be
required to address alternative access issues.
Population assumptions are a technical issue
that needs further discussion.
Omokoroa Stage
2 and Northern
Growth
Levels of service are expected to continue to
be affected by ongoing growth throughout the
Northern Corridor. The Northern Corridor
Strategy outlines an indicative package of
interventions to respond to these cumulative
growth effects. There are a range of transport
interventions outlined in the package, which
requires further work to optimise, including
staging of the responses.
Opportunities to Reallocate Demand
If the Cambridge Road/SH29 intersection were treated earlier or the corridor capacity improvements
accelerated, growth in the western corridor could be sustained for several years encompassing
Generation 3 and at least the first quarter of Generation 4 demand. The opportunity may exist to
promote development of the Tauriko catchment with a lower impact on the strategic roading
network than that of the Oropi and Ohauiti and associated areas. The current model scenario is
being refined to examine this possibility and report on the associated network effects.
Similarly, SH36 has capacity up to 2026 to accommodate development in the Pyes Pa and Tauriko
areas, until the roundabout at the Lakes (IMF) requires intervention to improve capacity.
The growth in Bethlehem should be examined, as links via Waihi Road and Chapel Street are
expected to have residual capacity throughout the assessment period (up to 2031)
The Tauranga Traffic Model v5.8 (TTM) does include predictions related to in-fill and intensification
of development through the short, medium and long terms. TTM is currently based on 2010
SmartGrowth predictions which are recognised as being higher in all aspects than updated 2011
figures. Based on TTM, indications are that in-fill and intensification have only a limited or marginal
effect on the performance of arterial and non-strategic networks. There are some potential
anecdotal effects on the ability for local road users to enter/exit collector or secondary arterials in
suburban areas at peak times. However, as there are unlikely to be significant upgrades to these
non-strategic roads, in reality these will be managed operationally to ensure user safety.
A greater risk for transport network is that in-fill or intensification does not occur which is likely to
have the effect of expanding the need for greenfield development. From a transport perspective
this has greater consequences due to longer trip distances and increased reliance on arterial
networks, including State Highways.Alternative links between growth areas and destinations should
also be taken into consideration, such as parallel routes to the strategic network that can reduce
demand (spread the load) during peak hours, cross linkages between zones and catchments can
provide greater choices in terms of trip distribution. Possible examples include linkage between the
Lakes and Welcome Bay providing an alternative route for local traffic and relieving the strategic
SH29 corridor. It will include connectivity to Oropi, Ohauiti and Pyes Pa.
However, these linkages are likely to be expensive, due to topographical and land constraints, or it
may be simply impossible to secure a corridor due to land ownership issues. The cost and
buildability constraints should be evaluated against the potential value and compared with
investment in the current infrastructure, as well as the alternative land use scenarios discussed
above.
Making best use of available network capacity
Road network performance forecasts for the medium-term indicate a number of locations within the
Tauranga network where reallocation of the planned growth (through expansion, intensification
and/or infill) would optimise existing network performance by utilising sections of the network
where Levels of Service are predicted to be no worse than C or D. A number of such areas exist but
these are yet to be tested for feasibility.