Agenda of Planning and Environment Committee

Planning and Environment Committee

14 May 2020

Part A Reports

Footpath courtesy zone evaluation

Department: Corporate Policy

EXECUTIVE SUMMARY

1 This report updates the Council on results of the footpath courtesy zone trial and asks the Council to discontinue the footpath courtesy zone trial.

2 The most common comment in the evaluation was that electric scooters (e-scooters) should not be allowed on the footpath. Other common themes were that the 15km per hour voluntary speed limit should be computsory and enforceable, and that there should be better signage and more education about the footpath courtesy zone. The majority think the trial should continue but responses were split over whether the zone is safer and effective and whether the 15km voluntary speed limit is appropriate.

3 Observational studies carried out in March 2019, November 2019 and March 2020 show that the number of e-scooters observed and the number of e-scooter incidents observed have dropped significantly over this time. The number of ACC e-scooter related claims is also decreasing.

RECOMMENDATIONS

That the Committee:

a) Notes the results of the footpath courtesy zone evaluation

b) Notes the New Zealand Transport Agency update

c) Discontinues the footpath courtesy zone trial

BACKGROUND

Rental electric scooter scheme

5 Commercial electric scooter (e-scooter) company, Lime, introduced 300 commercial electric scooters to Dunedin on 10 January 2019. They currently have 450 e-scooters operating in Dunedin, estimate 620,000 trips over the past year, and estimate 200,000km of vehicle diversion.

6 Research carried out in Auckland, Christchurch and Dunedin in 2019 showed that rental e-scooter schemes are a popular and successful initiative for many people, but that there are important safety concerns such as ensuring pedestrian safety, e-scooter rider safety and safety with all riders sharing pathways.

7 As e-scooters are defined as vehicles in the Land Transport Act 1998 (LTA) and subsidiary legislation, these laws allow e-scooters to be ridden on the footpath and the far left of the road. The LTA requires careful and considerate use of e-scooters, and that speed is not a hazard to other footpath users. Enforcement powers sit with the police.

8 The use of safety helmets on roads is regulated by the Land Transport Rule 2004. There is no regulation or rule requiring the rider of a scooter to wear a helmet.

Council resolutions

9 In March 2019, following a report to the Council on e-scooters in Dunedin, it was:

Moved (Cr Jim O'Malley/Cr Aaron Hawkins):

That the Council:

a) Approves commencement of the first stage of the Mobile Trading and Temporary Stall Bylaw review.

b) Writes to the Ministry of Transport and the New Zealand Transport Agency urging them to take a national approach to the use of helmets with e-scooters, use of cycleways and speed limits for e-scooters.

c) Notes that staff will continue to monitor e-scooter use and promote rider and pedestrian safety.

Division

The Council voted by division:

For: Crs David Benson-Pope, Rachel Elder, Christine Garey, Doug Hall, Aaron Hawkins, Marie Laufiso, Mike Lord, Damian Newell, Jim O'Malley, Chris Staynes, Conrad Stedman, Lee Vandervis, Andrew Whiley and Dave Cull (14).

Against: Nil

Abstention: Cr Kate Wilson

The division was declared CARRIED by 14 votes to 0, with 1 abstention.

Motion carried (CNL/2019/060)

Moved (Cr Jim O'Malley/Cr Aaron Hawkins):

That the Council:

d) Request staff report back urgently on further mechanisms to restrict or control e-scooter use on footpaths in busy pedestrian areas.

Division

The Council voted by division:

For: Crs David Benson-Pope, Rachel Elder, Christine Garey, Doug Hall, Aaron Hawkins, Marie Laufiso, Mike Lord, Damian Newell, Chris Staynes, Conrad Stedman, Lee Vandervis, Andrew Whiley and Dave Cull (13).

Against: Nil

Abstention: Crs Jim O’Malley and Kate Wilson

The division was declared CARRIED by 13 votes to 0, with 2 abstentions.

Motion carried (CNL/2019/061)

10 In May 2019, the Council:

Moved (Cr Jim O'Malley/Cr Rachel Elder):

That the Council:

a) Approves the trial of a footpath courtesy zone in George and Princes Streets, from Albany Street to Rattray Street noting that the trial could be revoked at any appropriate time through the trial period.

b) Notes the updates on New Zealand Transport Agency and Ministry of Transport work and on the review of the Mobile Trading and Temporary Stall Bylaw.

Motion carried (CNL/2019/148)

Footpath courtesy zone trial

11 A footpath courtesy zone trial of six months was decided for the pedestrian areas along George Street from Albany Street through Princes Street to Rattray Street. The aim was to encourage careful negotiation of footpaths by all users and the trial included a voluntary 15 km per hour speed limit.

12 See Attachment A for the footpath courtesy zone trial area.

13 The trial began on 19 August 2019 when signs were installed advertising the footpath courtesy zone, advising of the 15km voluntary speed limit and encouraging all users to give way, look out and slow down for others.

14 Dunedin Police supported the trial and worked with the Council on its implementation, including monitoring and enforcement.

DISCUSSION

Assessment of footpath courtesy zone trial

15 The trial has been assessed both mid-trial, in November 2019, and in February/March 2020 in a number of ways including an observational study of e-scooter numbers and rider behaviour, intercept surveys of people on the footpath courtesy zone, a People’s Panel survey, public feedback through social media and a survey, and feedback from key stakeholders via a survey.

Observational data

16 Before the footpath courtesy zone trial was established, an observational study was carried out to better understand the use of e-scooters in Dunedin. The study observed the number of e-scooters being used at different locations in March 2019 for 40 hours over two weeks. It also noted any e-scooter incidents that occurred. Incidents were categorised as falls/crashes/hits, near misses, double ups, hazardous speed and high speed.

17 This observational study was repeated in November 2019 and again in February/March 2020. The November study was conducted after the end of the tertiary year.

18 Results are summarised in this table.

	Total number of e-scooters observed	Total number of e-scooter incidents observed
March 2019	471	24
November 2019	261	11
March 2020	173	7

19 The number of e-scooters observed dropped significantly over this time as did the number of incidents observed. Lime reduced the speed that their e-scooters operate in the Octagon as part of the pedestrianisation of the Octagon trial and this may have affected results.

20 Other observations were that, in all studies, most e-scooter riders were mindful of other people on the footpath and riders who maintained high speeds stayed on the road if footpaths were congested.

Intercept surveys

21 Intercept surveys were carried out along the footpath courtesy zone both during the trial, in November 2019, and at the end of the trial in late February/March.

22 About 100 footpath users were questioned during each stage and asked about the footpath courtesy zone. Most respondents (84%) were pedestrians, 14% were e-scooter riders and 1% was a cyclist.

23 Key findings were:

· Most respondents (70%) were unaware of the footpath courtesy zone. This was comparable to November 2019 results.

· Responses were split about whether the footpath courtesy zone makes people feel safer with 42% not feeling safer (compared to 30% in November 2019), 36% feeling safer (compared to 47% in 2019), and 22% not sure (compared to 23% in 2019).

· Responses were split about whether the zone should be extended to other areas of the city with 43% saying it should not be extended (compared to 4% in 2019), 40% saying it should (compared to 58% in 2019) and 17% not sure (compared to 4% in 2019).

· Responses were split about whether the zone should continue past the trial period with 53% saying it should continue (compared to 81% in 2019), 44% saying they are not sure (compared to 17% in 2019) and 4% saying it should not be extended (compared to 3% in 2019).

· The most common comments were that e-scooters should be banned from footpaths, there should be more signage and education about the footpath courtesy zone and the speed limit should be compulsory.

People’s Panel results

24 To inform this report, feedback was sought from the People’s Panel to gauge the level of success of the trial and support for making the zone permanent and/or extending the zone to other areas of the city.

25 The People’s Panel gives people who opt in to the Panel the opportunity to give their views on a range of DCC issues by completing online surveys. While it is not a statistically representative sample of the Dunedin population, it has been found to be reflective of the wider community view. The Panel has been used as a consultation tool on a broad number of community issues to good effect since its inception.

26 Key findings from the People’s Panel were:

· Just over half of respondents (53%) were not aware of the footpath courtesy zone with 43% aware and 5% unsure.

· Two thirds of respondents think the footpath courtesy zone is a good idea, 20% were unsure and 13% did not think it was a good idea.

· Just under half of respondents (48%) had not been involved in or observed any incident relating to e-scooters (e.g. fallen off, crash, near miss) in the previous six months. Under a third (29%) had been involved in a pedestrian incident, 26% had observed a pedestrian incident and 19% had observed a rider incident. These results are comparable to those for the same question in the March 2019 People’s Panel survey about e-scooters.

· On the number of e-scooter incidents, most respondents had noticed no change (42%) or were unsure (40%). 10% noticed more incidents and 7% noticed fewer incidents.

· More than half of respondents (55%) did not find footpath users to be more respectful and courteous in the last six months. More than one third (37%) were unsure and 8% did find footpath users to be more respectful.

· On safety as a pedestrian, responses were split with more than one third of respondents (38%) feeling a little or very unsafe as a pedestrian using the footpath courtesy zone. Slightly fewer (34%) feel fairly safe or very safe. 21% are neutral.

· Most respondents (82%) did not use micromobility so did not respond to the question about safety as a micromobility user. Responses for micromobility users were split with 7% feeling fairly or very safe and 7% feeling a little or very unsafe.

· On the 15km per hour speed limit, responses were split with 42% saying 15km is too fast, 36% saying 15km is appropriate and 22% selecting ‘other’. Most ‘other’ views were that e-scooters should not be on the footpath, the speed limit should be compulsory and that people did not know what was appropriate.

· On compliance with the voluntary speed limit, responses were split with 37% unsure, 28% saying users were sometimes compliant with the voluntary speed limit, 15% saying compliance was rare and 12% saying most were compliant.

· On continuing the footpath courtesy zone past the trial period, most respondents (54%) think it should continue, 29% are unsure and 17% do not think it should continue.

· On extending the footpath courtesy zone to other parts of the city, most respondents (51%) think it should be extended, 31% are unsure and 18% do not think it should be extended.

· The most common comments were that e-scooters should not be allowed on footpaths, that the voluntary speed limit be compulsory and enforced, and that there is better education and signage.

27 The People’s Panel was asked about how safe they felt as pedestrians in both March 2019 and 2020. Results show that in 2020 more respondents (34%) feel safe compared to 2019 (29%). Fewer feel unsafe in 2020, 38% compared with 65% in 2019. More are neutral: 21% in 2020 compared with 5% in 2019.

Feedback from stakeholders and interested parties

28 To inform this report, feedback was also sought from key stakeholders and interested parties. The survey was emailed to groups such as the Police, Southern District Health Board, older persons and disability advocacy groups. It was also advertised on social media to the public. There were 116 responses.

29 Respondents were asked whether they had a condition or disability that makes it more difficult for them to use the city streets and footpaths and 25% said this was the case for them. 36% said they had used a micromobility device in the last six months.

30 Key findings were:

· Most respondents (68%) are aware of the footpath courtesy zone

· Most respondents (56%) think the footpath courtesy zone is a good idea

· Almost half (49%) have not found footpath users to be more respectful and courteous to other users in the last six months.

· On safety as a pedestrian, responses were split with 40% feeling safe and 38% feeling unsafe. 19% were neutral.

· On safety as a micromobility user on the footpath courtesy zone, 26% feel safe and 12% do not feel safe. Many (47%) do not use e-scooters, skateboards or mobility scooters.

· On whether the footpath courtesy zone has contributed to safer streets in the last six months, 43% did not think so, 23% did think so and 34% were unsure.

· On the 15km per hour voluntary speed limit, 38% thought it was appropriate, 31% thought it was too fast, 12% thought it was too slow and 20% had other views such as e-scooters should not be on the footpaths at all.

· On making the footpath courtesy zone permanent, 48% think it should be permanent, 34% do not think so and 18% are unsure.

· On extending the footpath courtesy zone to other areas of the city, responses were split with 42% wanting it extended and 42% not wanting it extended. 15% were unsure.

· The most common comments were that e-scooters should not be on the footpaths but be on cycle lanes or roads, that the footpath courtesy zone should be compulsory and enforceable and that more education and signage would help.

31 Rental e-scooter company, Lime, is supportive of the footpath courtesy zone and have had no complaints from the public in this area during the trial.

E-scooter speed

32 Rental e-scooter company, Lime, reported that the average speed along the trial area before the trial was 6.1km per hour. This increased very slightly to 6.3km per hour for the six month trial period.

33 For comparison, Lime provided the average speed for two other busy pedestrian areas. In an area encompassing Albany Street, part of Anzac Ave and Union Street East the average speed was 7.5km per hour before the trial and 7.0km per hour during the trial period.

Social media

34 The footpath courtesy zone was advertised on DCC social media in November 2019 and March 2020 and people invited to comment on whether it should become permanent.

35 By far the most common comment was that e-scooters and skateboarder should not be allowed on the footpath. Other common themes were that 15km per hour is too fast, that the speed should be compulsory and enforceable, and that people thought it was a good idea and should continue.

ACC data

36 The number of e-scooter related ACC claims is being monitored. Since January 2019 when rental e-scooters were introduced in Dunedin, Dunedin e-scooter related claims have represented approximately 12% of all NZ ACC e-scooter claims. There is a decreasing trend for the number of e-scooter related ACC claims in Dunedin.

Complaints and feedback

37 DCC monitors complaints relating to e-scooters. Trends show that, since February 2019, e-scooter complaints range between one and four per month. January and February 2019, when rental e-scooters were introduced to Dunedin, showed an initial spike.

New Zealand Transport Agency update

38 The Ministry of Transport and Waka Kotahi NZ Transport Agency are proposing a collection of transport rule changes called the Accessible Streets Regulatory Package. The package intends to:

· Make footpaths, cycle lanes and shared paths safer and more accessible for everyone

· Respond to the increasing use of micromobility devices

· Create a national framework with ability for local councils to make changes to suit conditions

· Make traveling by bus and active transport modes safer and more efficient.

39 Proposals include recategorizing types of vehicles and devices to help set rules, allowing mobility devices and cycles on footpaths with a 15km speed limit, enabling local authorities to alter rules around access and speed limits on certain footpaths, enabling transport devices such as skateboards and e-scooters to use cycle lanes, and introducing lighting and reflector requirements for transport devices at night.

40 Consultation on this package began on 9 March and is running currently with an extended consultation period to 20 May 2020 (in light of the Covid 19 response). The Dunedin City Council has prepared a submission to be considered by the Infrastructure Services Committee on 12 May 2020. In time, it is likely that national legislation on these matters will be introduced.

OPTIONS

Option One – Discontinue the footpath courtesy zone (recommended)

41 This option involves discontinuing the footpath courtesy zone trial, from Albany Street along George and Princes Streets to Rattray Street, beyond its six month trial period.

Advantages

· National legislation is likely to be introduced which will make the footpath courtesy zone redundant

· No further cost of education and signage

· Inconclusive evidence of effectiveness

Disadvantages

· Some support for continuing

Option Two – Continue the footpath courtesy zone (status quo)

42 This option involves continuing the footpath courtesy zone trial, from Albany Street along George and Princes Streets to Rattray street, beyond its six month trial period.

Advantages

· There is some support for continuing

Disadvantages

· National legislation is likely to be introduced which will make the footpath courtesy zone redundant

· Further cost of education and signage

· Inconclusive evidence of effectiveness

NEXT STEPS

43 If the Council decides to discontinue the footpath courtesy zone trial, remaining signs will be removed.

Signatories

Author:

Anne Gray - Policy Analyst

Authoriser:

Adrian Blair - Group Manager Customer and Regulatory Services

Simon Pickford - General Manager Community Services

Attachments

	Title	Page
⇩a	Attachment A: Footpath courtesy zone trial area	28

SUMMARY OF CONSIDERATIONS

Fit with purpose of Local Government

This decision enables democratic local decision making and action by, and on behalf of communities.

This decision promotes the social well-being of communities in the present and for the future.

This decision promotes the economic well-being of communities in the present and for the future.

This decision promotes the environmental well-being of communities in the present and for the future.

This decision promotes the cultural well-being of communities in the present and for the future.

Fit with strategic framework

	Contributes	Detracts	Not applicable
Social Wellbeing Strategy	☒	☐	☐
Economic Development Strategy	☒	☐	☐
Environment Strategy	☒	☐	☐
Arts and Culture Strategy	☐	☐	☒
3 Waters Strategy	☐	☐	☒
Spatial Plan	☒	☐	☐
Integrated Transport Strategy	☒	☐	☐
Parks and Recreation Strategy	☒	☐	☐
Other strategic projects/policies/plans	☐	☐	☒

This proposal contributes to most of the strategic framework in terms of safe and healthy people, safe, affordable, accessible and user-friendly transport modes, safe and vibrant places in the city, more active more often, and encouraging carbon-free transport modes.

Māori Impact Statement

There are no specific impacts for tangata whenua.

Sustainability

Electric scooters provide an additional sustainable mode of transport for the city.

LTP/Annual Plan / Financial Strategy /Infrastructure Strategy

There are no implications for these documents.

Financial considerations

There are no financial considerations.

Significance

This proposal to continue the footpath courtesy zone is considered low in terms of the Significance and Engagement Policy.

Engagement – external

There has been engagement with the Police, Southern District Health Board, ACC, New Zealand Transport Agency, disability and older persons advocacy groups and a local rental e-scooter company. Feedback was also obtained from the People’s Panel, general public through an intercept survey, social media and FYI.

Engagement - internal

There has been internal engagement with Transportation and Corporate Policy.

Risks: Legal / Health and Safety etc.

There are no identified risks.

Conflict of Interest

There is no identified conflict of interest.

Community Boards

There are no specific implications for Community Boards.

Planning and Environment Committee

14 May 2020

Safer CBD Streets - COVID-19 response

Department: Transport

EXECUTIVE SUMMARY

1 This report is in response to a resolution passed at the 4 May Council meeting aimed at encouraging people to return to shopping areas to support local businesses, while also enabling safe physical distancing.

2 A more liberal approach to the commercial use of footpaths to allow retailers and businesses to expand their operations on to the footpaths is possible, including a temporary ‘fee free’ period.

3 A number of temporary measures could be implemented on local roads and footpaths to ensure that people feel safe queuing and travelling around the CBD to support local businesses, while maintaining physical distance from others to reduce the risk of COVID-19 transmission.

RECOMMENDATIONS

That the Committee:

a) Considers which of the options it wishes staff to implement as a response to supporting central city businesses through Covid-19.

b) Decides whether to provide free parking in the city and if so for how long.

c) Notes the engagement plan to enable suburban centres to have their say on temporary physical distancing measures.

BACKGROUND

Council Resolution

4 Council passed a resolution at the 4 May Council meeting to:

Moved: ( Mayor Aaron Hawkins/Cr Chris Staynes):

5 That the Council:

a) Request a report to the next Planning & Environment Committee meeting on:

i) Temporary options to encourage people back into the city centre while ensuring safe physical distancing, including free retailer use of footpaths; traffic calming measures and shared spaces;

ii) How council could approach local communities to see whether they wished to request neighbourhood slow speed streets in other centres and suburbs, for the purpose of safe physical distancing in shopping or recreation; noting that

iii) any such measures would be designed to take effect for the duration of Alert Level 2, or until physical distancing was no longer required.

iv) Requests that staff undertake a survey of central city business owners for their thoughts and ideas on how to bring people back to the central city.

Motion carried

6 This report has been written so that Council can consider how we might provide physical distancing measures to encourage people who, if distancing could be provided, might return to the CBD for shopping and hospitality. It also considers how we might continue to provide for safe recreation in the suburbs.

COVID-19 Alert system

7 New Zealand’s response to the COVID-19 pandemic resulted in a four-level alert system that restricts activities and specifies measures to control the outbreak and minimise its impact on the health system. The alert system is defined in Attachment A.

8 The New Zealand Government announced that at alert level 2 all businesses can open, given they are able to do so safely and follow the government requirements for contact tracing and physical distancing.

9 To support local retail and hospitality businesses, staff have been considering options to encourage people to return to the centre of the city and other retail businesses. Physical distancing, particularly if numbers of people do return to the main shopping streets, presents some challenges in Dunedin. Our somewhat narrow two-way footpaths make maintaining a 2m distance from strangers a challenging proposition if people return in any numbers, which is what the local businesses want to see occur. Additionally, level 2 guidelines suggesting 2m distances between café tables makes it challenging for many of our cafes to operate enough tables to get their businesses running profitably again.

Commercial use of footpaths policy

10 In Dunedin, the commercial use of footpaths is regulated by the Commercial Use of Footpaths (CUF) Policy. The purpose of the policy is to support and enhance local business and active street life. It was developed to allow businesses to utilise footpath space in a controlled and orderly manner. It aims to ensure there is always a safe and unobstructed passage for pedestrians of all abilities, and to ensure the visual amenity of Dunedin streets is not detrimentally affected.

11 The policy includes general principles as well as specific provisions that relate to signs, screens, display of goods, tables, chairs and planter boxes. Businesses apply for and pay for a CUF permit to use space on footpaths outside their premises.

12 See Attachment B for the Commercial Use of Footpaths Policy.

13 A temporary, more liberal approach to the commercial use of footpaths could support businesses in the CBD as they return to trade at alert level 2. DCC could allow footpath space for retailers and businesses to expand their operations on to the footpaths at no additional costs.

14 Pedestrian access, safety and social distancing would be paramount to any commercial use of footpath activities. People will require space to move, queue and travel safely with appropriate physical distancing

Responding to COVID-19

15 Waka Kotahi NZ Transport Agency (NZTA) has announced the Innovating Streets for People fund can be used to help cities implement temporary measures to support people with physical distancing and improve safety for people as they travel throughout towns and cities during the pandemic. The Innovating Streets for People fund allows Road Controlling Authorities (RCAs) to submit applications at a 90% Funding Assistance Rate (FAR).

16 An epidemic is considered an ‘emergency’ in the Land Transport Rule: Setting of Speed Limits. This rule enables RCAs to install ‘emergency’ speed limits during the COVID-19 response to improve safety for people travelling on our roads.

17 Temporary changes to speed limits can only be applied during the emergency (for a maximum of 12 months). The emergency speed limit must be notified by publishing a notice in the Gazette within 10 working days of the new speed limit applying (temporary speed signs being installed).

DISCUSSION

Temporary actions to encourage people back to the CBD

Shared Spaces

18 Under Alert Level 2 some people will be back at work and local businesses will be starting up again after some weeks of no or limited business activity. Council have options to help these local businesses engage with the community again, and to enable people to feel safe while doing so. The interventions detailed in this report aim to provide more space for shops to extend on to footpaths, and to create a low speed environment to improve safety for people who need a safe physical distancing area.

19 A shared space requires low speed and low traffic volumes to work. In shared zones, the needs and comfort of pedestrians are paramount. People cycling and driving in shared zones are expected to act like guests, travelling in a way that is consistent with a walking pace, and are legally required to give way to pedestrians. Ideally, there should be no division between road and footpath.

Safety on footpaths

20 When encouraging and enabling businesses to use footpaths commercially, pedestrian access, safety and physical distancing are a priority. This includes consideration for those who are visually impaired or use mobility devices. Ensuring there is enough space for wheelchairs and other mobility devices to pass safely is critical to mobility.

21 Examples of what other cities in New Zealand have implemented as part of their COVID-19 response, and guidance from Waka Kotahi NZ Transport Agency for temporary interventions is included in Attachment C.

Commercial use of footpaths

22 Two options relating to the commercial use of footpaths are proposed to support businesses and encourage local trade.

i) Temporary ‘fee-free’ commercial use of footpaths

It is proposed to waive fees for businesses using footpaths commercially, to take effect for the duration of Alert Level 2 or until physical distancing is no longer required. This may help businesses as they return to trade by allowing them to extend their business onto the footpath, which could increase trade opportunities as they adjust to trading with physical distancing requirements.

The annual revenue for the 2019/20 year from commercial use of footpaths is $73,863. See Attachment D for a breakdown of permit fees and the number of licences.

ii) More liberal approach to commercial use of footpaths

A more liberal approach is possible for the commercial use of footpaths in terms of allowing signs, display of goods, tables and chairs in the areas outside premises, ensuring physical distancing, access and safety requirements are met.

Examples include allowing both signs and goods’ displays (rather than one or the other); more flexibility on the location, size and colour of signs; flexibility with the number of tables per premises; allowing extensions to outside areas for licensed premises (with appropriate approval from the Council and Police).

All would be on a case by case basis ensuring relevant safety requirements are met. To manage and simplify this process, staff could visit sites to provide guidance and check arrangements.

23 Feedback was requested via email through Enterprise Dunedin’s database to businesses within the CBD asking for their “ideas that could encourage people back into the CBD to support our businesses”. The responses received at included in Attachment E.

24 A number of activation events have been suggested by local businesses. These will be considered and pursued by the Enterprise Dunedin and Community Development teams as appropriate, within existing work programmes and resources.

Low speed zone

25 To provide additional space for people moving through the CBD, temporary measures to create a low speed zone is possible. An area suggested for Council consideration would be from Princes Street and Moray Place to the intersection of George Street and Frederick Street, including the Octagon.

26 The following proposed treatments could be implemented to support the low speed zone:

Table 1: Proposed treatments and timeframes

Treatment	Timeframe	Cost to Implement
Reduced speed limits by updating existing signage.	Immediate	$10,500 (70 signs @ $150 per sign change)
Decals and line markings to illustrate on road and footpath the low speed space for physical distancing.	Immediate – 1-week lag	$14,000 ($2000 x 7 blocks)
Painted pedestrian crossings with temporary speed hump on approaching lanes.	Immediate	$14,000 (7 crossings @ $2,000 per crossing)
Increase frequency of pedestrian phases at Barnes Dance signals.	Immediate	Staff time
1.5m footpath space for retailers.	Immediate	Staff time
3m clear footpath for pedestrians.	Immediate	Staff time

27 An emergency speed limit change to 10 km/h within the CBD would reduce the likelihood of death or serious injury if a crash occurs between a moving vehicle and a pedestrian. All guidelines on shared spaces recommended 10km/hr speed to ensure safety for all users.

28 Currently, the speed limit in some of the City Centre is 30 km/h. The proposed speed limit will be implemented by speed limit signs installed immediately, followed by submission the draft Gazette notice (Attachment F). The map in Attachment G shows the physical extent of the City Centre emergency speed limit changes.

29 In addition to reducing the speed limit, decals along the road surface could be installed to provide a visual que that the area is a shared space and encourage slower speeds.

30 Increasing the pedestrian priority at traffic signals by increasing the frequency of the Barnes Dance phases would enable pedestrians to continue their journey with fewer interruptions and reduce the likelihood of crowding at intersections which could contribute to the spread of COVID-19. Additionally, extending the space for pedestrians waiting at traffic signals by using kerb build outs, will contribute to reducing the likelihood of spreading COVID-19, as shown in the Waka Kotahi guidance in Attachment C.

31 To ensure car parks are retained, staff will monitor and review the treatments used to create a slow speed zone. Parked cars will create a physical barrier between the footpath and the slow speed road environment and may contribute to additional mode conflict; where people step out behind parked cars to physically distance themselves from shoppers on the footpath.

32 To help people with crossing, mid-block crossing facilities could be installed to protect pedestrians coming into the street around parked vehicles. Crossings could be installed in a staged approach, initially with painted zebra pedestrian crossings with temporary speed humps on approaching vehicle lanes. Painted crossing and temporary speed humps could be installed sooner, followed by raised asphalt platform crossings at a later date.

33 By slowing speeds along George Street, traffic would naturally detour to the surrounding streets such as Filleul Street and Great King Street, both routes where vehicles can access off-street parking facilities. The detour or bypass route will be publicised, and traffic signal adjustments made to assist.

34 Detoured traffic could also include buses, as several bus routes travel along the central blocks of George street to/from the bus hub on Great King Street. With reduced speeds and speed humps along George street, this potentially could be an unpleasant ride for passengers. Transport staff recommend flexibility to move bus services temporarily to Great King Street, if bus journey time become unreliable or too uncomfortable.

35 In order to create an area where safe physical distancing and retail can extend onto footpaths, more space will be required for people to move safely around George Street and for retail to use some of the footpath space. A minimum width of 2.5m of clear footpath is required to ensure visually impaired and mobility users are still able to safely negotiate the footpath.

36 The road corridor along George Street is generally 20m wide, which is made up of between 3.5m and 4.m of footpath on either side of the street. The street is made up of approximately 7m of active traffic lanes and 5m of parking space.

37 If businesses are granted use of the footpath, this will reduce the level of service and space for physical distancing. Therefore, a slow speed shared space zone will be required to facilitate physical distancing requirements. Consideration must also be given to pedestrians and people who are visually impaired or use a mobility device to ensure they are able to maintain physical distancing.

38 Depending on how long alert level two lasts, the following additional treatments could be applied should problems as noted above occur:

Table 2: Additional treatments and timeframes

Treatment	Timeframe
Increase waiting space for pedestrians at intersections with temporary kerb build outs	1-week lag
Raised asphalt crossing platforms	2-week lag
Temporary asphalt speed humps (smoother profile and ride compared to temporary plastic humps)	1-week lag

39 DCC could submit an application to the Innovating Streets for People fund for these works. If successful 90% of the costs can be claimed from NZTA. The remaining 10% would come from existing Council budgets.

Parking

40 Feedback received by a number of businesses via Enterprise Dunedin requested an extension to free parking that has been available to essential workers during alert level 3 and 4.

41 Providing free parking may encourage a greater number of people back into the CBD to support local businesses. Time limits would still need to be enforced, otherwise people are likely to occupy the car parks all day, which would minimise the availability of parks for shoppers.

42 The Committee could decide to continue to provide free parking to the city for a time period to encourage people into the CBD to support local businesses. Time resitrcitions would conintue to be monitored an enforced to ensure rotation of parks.

Community engagement for local slow speeds approach

43 Engagement with the community could be undertaken to identify neighbourhood slow speed streets in other centres and suburbs, for the purpose of safe physical distancing in shopping or recreation. Engagement with the wider community could be undertaken through an online feedback form where people can indicate where and what sort of interventions would help them get around safely and enable physical distancing.

44 The community could tell us whether they would support reduced speeds (30km/hr) in their local areas and suburban centres, and if their centre would also benefit from increasing space for pedestrians and cyclists.

45 Links to the online feedback form could be published on the DCC website, social media, and an ad would be placed in The Star and Otago Daily Times.

OPTIONS

46 Options for commercial use of footpaths and for temporary infrastructure have been proposed to meet the requirements put forward by council. The aim of these options is to enable people to return to the CBD, and for businesses to be able to extend their business on to footpaths, while not impacting parking.

Low speed streets

Option One – Recommended Option

47 Create a “low speed safer space” and adopt a more liberal approach to the commercial use of footpaths by:

a) Placing decals and line markings to show the area as a “low speed safer space”.

b) Introduce emergency speed limit of 10km/h on George Street and Princess Street and 30km/h on other CBD streets, as identified on the map on Attachment F.

c) Installation of temporary speed humps (plastic initially, asphalt later if required).

d) Increasing pedestrian priority at traffic signals and extending the kerb and channel to increase the waiting space for people waiting at intersections.

e) Adopt a temporary ‘fee-free’ period for the commercial use of footpaths for the duration of Alert Level 2

f) Install later if required, mid-block raised pedestrian crossing platforms to enable pedestrians safe crossing points.

Advantages

· Slower speeds enforced by speed humps improve safety for pedestrians by reducing the likelihood of a serious injury if a crash was to occur

· Car parking is maintained

· Provides additional safe pedestrian crossing points mid-block

· Supports businesses as they return to trade

· Provide more options for businesses to trade while meeting physical distancing requirements.

Disadvantages

· Financial cost

· Buses disadvantaged by speed humps

· Pedestrians do not feel they have right of way when crossing the street

· Continued conflict between vehicles, cyclists and pedestrians

· Potential for city amenity to be temporarily negatively affected

· Less room on footpaths and more difficult to maintain business/pedestrian access and safety balance.

Option Two – Status Quo

48 No changes are made to the central business district to enable shops to extend onto footpaths, nor to enable people to physically distance when walking through the area.

Advantages

· No financial costs

· No staff time required to submit an application to Waka Kotahi NZ Transport Agency’s Innovating Streets fund.

· City amenity unaffected

· More room on footpaths for pedestrian access and physical distancing.

Disadvantages

· People do not feel safe when walking through the area and are not able to physical distance themselves from other people

· DCC is not actively encouraging and enabling people to engage with local businesses

· Fewer options for local businesses as they manage trading with physical distancing requirements.

NEXT STEPS

49 If the Committee approves the temporary measures and infrastructure, staff will action it to be installed ready for the beginning of Alert level 2.

50 Staff will prepare a funding application to NZTA for costs of installing temporary infrastructure to slow vehicles on George Street.

51 Staff will implement an emergency speed limit throughout the Central Business District by installing speed limit signage and submit the attached notice to the NZ Gazette.

52 If the Committee adopts a temporary ‘fee-free’ and more liberal approach to the commercial use of footpaths, then steps will be taken to carry this out.

53 Staff will engage with the community to find out what suburban and neighbourhood centres would also benefit from temporary infrastructure and speed changes to enable physical distancing and enable people to support the local economy. Where these areas are covered by Community Boards, the boards will be involved in the engagement. Staff will implement similar low costs measures where there is community support for temporary slow speed zones and/or a more liberal approach to the commercial use of footpaths.

Signatories

Author:

Stacey Hitchcock - Transport Planner

Hjarne Poulsen - Transportation Safety Team Leader

Authoriser:

Simon Drew - General Manager Infrastructure Services

Attachments

	Title	Page
⇩a	COVID-19 Alert system	40
⇩b	Commercial Use of Footpaths Policy 2012	42
⇩c	COVID-19 response examples and guidance	47
⇩d	Commercial use of footpaths fee information	52
⇩e	CBD business feedback	53
⇩f	Draft emergency Speed limit Gazette notice	55
⇩g	Proposed emergency speed limit changes map	57

SUMMARY OF CONSIDERATIONS

Fit with purpose of Local Government

This decision enables democratic local decision making and action by, and on behalf of communities.

This decision promotes the social well-being of communities in the present and for the future.

This decision promotes the economic well-being of communities in the present and for the future.

This decision promotes the environmental well-being of communities in the present and for the future.

This decision promotes the cultural well-being of communities in the present and for the future.

Fit with strategic framework

	Contributes	Detracts	Not applicable
Social Wellbeing Strategy	☒	☐	☐
Economic Development Strategy	☒	☐	☐
Environment Strategy	☒	☐	☐
Arts and Culture Strategy	☐	☐	☒
3 Waters Strategy	☐	☐	☒
Spatial Plan	☒	☐	☐
Integrated Transport Strategy	☒	☐	☐
Parks and Recreation Strategy	☐	☐	☒
Other strategic projects/policies/plans	☐	☐	☒

Māori Impact Statement

There has been insufficient time to consult with tangata whenua. Given the temporary nature of any changes, there are no perceived impacts for tangeta whenua.

Sustainability

These measures will have a positive impact on the environment through active transport. As people continue to utilise the space created for pedestrians, more people may create good active transport habits, reducing their reliance on single occupancy vehicles, and improving their physical health.

LTP/Annual Plan / Financial Strategy /Infrastructure Strategy

There is a potential impact from reduced parking revenue. Any impacts will be considered at Annual Plan meetings.

Financial considerations

The estimated costs of up to $40,000 to implement a slow speed zone is currently unbudgeted. An application to the Innovating Streets for People fund that offers a 90% funding assistance rate could be applied for, particularly if more costly additional treatments such as raised pedestrian crossings are required to create a safe space for pedestrians.

Significance

This decision is considered low-medium in terms of the Council’s Significance and Engagement Policy.

Engagement – external

Feedback from businesses within the CBD was undertaken by Economic Development, and the responses are included in this report.

Engagement - internal

Staff from Economic Development, Commercial and Regulatory, Urban Design, Planning and Transport were involved in the development of this report.

Risks: Legal / Health and Safety etc.

There are risks with not providing pedestrians enough space on the footpaths. Risks include potential exposure to COVID-19 transmission if there is not enough space for physical distancing between people, and people moving into parking and live traffic lanes to pass other people with enough space.

Conflict of Interest

There are no known conflicts of interest.

Community Boards

If there are areas identified from the proposal, Community Boards will be involved in any engagement.

Chairperson	Cr David Benson-Pope
Deputy Chairperson	Cr Sophie Barker	Cr Steve Walker
Members	Cr Rachel Elder	Cr Christine Garey
	Cr Doug Hall	Mayor Aaron Hawkins
	Cr Carmen Houlahan	Cr Marie Laufiso
	Cr Mike Lord	Cr Jim O'Malley
	Cr Jules Radich	Cr Chris Staynes
	Cr Lee Vandervis	Cr Andrew Whiley