Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
INVESTMENT & DELIVERY
COMMITTEE PAPER
Opening the Auckland Harbour Bridge for Events
In confidence
Meeting Date
19 April 2021
1982
ELT Sponsor
Brett Gliddon, General Manager Transport Services
Prepared By
Kathryn King, Urban Mobility Manager
Act
Legal Reviewer
Jessica Andrew, General Counsel Environment & Property
Version
Final
Date
14 April 2021
Pages
6
Purpose
Information
This paper informs the Board of a proposal to develop regular events on the Auckland Harbour
Bridge.
Recommendations
It is recommended the Committee recommends the Board:
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Notes the contents of this paper.
the
Strategic relevance
The Waka Kotahi national mode-shift plan
Keeping Cities Moving establishes the importance of
closing missing links in cities’ strategic cycling networks, and the role that great communications
and events can play in building public support for investment.
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The Northern Pathway shared user path is a critical missing strategic link in the Auckland active
modes network. While the project is one of the 24 projects in the NZ Upgrade Programme, it is
likely to be several years before Aucklanders can cycle or walk across the harbour. Opening the
Auckland Harbour Bridge for events could demonstrate Waka Kotahi commitment to walking and
cycling in the intervening years.
Background
Events that open the bridge for people to walk and cycle would provide the opportunity to
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demonstrate how the wider network will function with this ‘missing link’. Allowing more trialling of
the route during the planning phase of the Northern Pathway would provide valuable information
about patronage, journeys, customer profiles and opportunities for mitigations.
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Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
Similar events held regularly in cities like Los Angeles, Bogota and London have helped to build
public support for safer, more accessible streets. The Auckland Harbour Bridge is a significant
landmark for Aucklanders and could attract people from across the city, giving them a safe and
pleasant experience that would build demand for safer streets in their own neighbourhoods. This in
turn could support the entire Auckland programme of cycling investment.
Generation Zero and Bike Auckland have proposed a rally across the bridge on 30 May 2021 to
make the case for the use of a lane on the bridge for walking and cycling.
Approach Taken
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Two core approaches were considered, based on similar events abroad. These were to either (a)
hold a single event to experience the bridge as an attraction, or (b) regular events designed to build
demand for the broader programme of investment.
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Under these approaches, a range of options were investigated, each with different operational,
financial and strategic considerations.
The development process sought to:
Align to strategy
Enable access to as many people as possible, including families
Limit the impact on the wider transport system
Be sustainable over the period of the permanent structure’s development.
The approach provides opportunity to scale the event from weekly to monthly over the
Information
spring/summer period.
Cost and Resourcing
An internal project manager would be required to oversee the development of the events and a
team of people from across Waka Kotahi would need to contribute to it. Marketing of the events
could be scaled depending on the impact desired, from a low-cost approach of utilising Waka Kotahi
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and partner communication channels through to paid advertising.
To maximise potential uptake an event management company could be employed. The combined
event management and marketing could cost approximately $100,000 p.a. for regular events over a
the
single spring/summer season. Initial investigations indicate a per event cost for traffic management
of $40,000.
While this event will be less intensive when compared to the running of a Marathon event, there will
be significant operational resources required to manage the movement of people on the bridges
itself and the traffic impacts on the wider network. We would most likely need to look at developing
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plans to reduce the operational overhead if we were to run more regular weekly or monthly events
which may incur additional costs.
Also currently not accounted for are any costs associated with improved access for people walking
and cycling via the local road network, this would need to be developed in partnership with
Auckland Transport and Panuku, and could involve local road closures to enable safe access. This
is a significantly lower cost than traffic management for the Auckland Marathon, for example, due to
there being a much lower number of local road closures and traffic control personnel required.
Sponsorship
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Similar events held in other cities are often organised in partnership with a commercial organisation
to offset the cost of the events. Developing a sponsorship model would require a significant
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Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
investment of time and the right skill set to negotiate, but would help to maximise the impact of
events.
Operational Considerations
Traffic Management Operations
Average traffic volumes on Sundays indicate that one lane on the Harbour Bridge could be
utilised without significant impact to other road users, however this would not provide
sufficient space to manage an event safely.
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Opening two lanes, operating three traffic lanes in either direction, would require travel
demand management to reduce the impact on the transport system. The period of time over
the weekend when demand would exceed capacity is limited to late morning through to late
afternoon (see Figure 1 below). A morning event would therefore be recommended.
Act
While utilising the eastern (southbound) clip-ons would align to the proposal for the
permanent structure, it would be far less disruptive to operate the event on the western
(Northbound) clip-ons. The Auckland Marathon utilises the eastern clip-ons due to the
course alignment at either end of the bridge. The marathon requires a significant number of
ramp closures along with the bus lane at Onewa, which is particularly disruptive to public
transport. The use of the western clip-ons would enable access at Curran Street and
Stafford Road.
Figure 1: Average Sunday Auckland Harbour Bridge traffic volumes
Information
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the
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Safety
The bridge parapet is below standard, at 1.4m high, for safe walking and cycling. This could
be remedied by constructing a lightweight tensioned wire restraint above the top of the
barrier to be left in situ for regular events, subject to further investigations to establish
feasibility and price. Alternatively it could be achieved by excluding people from immediately
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next to the parapet utilising marshals on the bridge.
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Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
A single lane closure requires cones along the centreline between lanes 1 and 2, with safety
zone requirements which reduces the available width to 2.5m. This would be too narrow for
safe operation and a risk remains of errant drivers entering the closed lane.
Closing two lanes of the Harbour Bridge would enable 7m of useable space for an event.
The majority of the clip-on lanes are separated from the main bridge, however temporary
options for safe separation of cars and people on each of the approaches needs to be
investigated.
Access
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The event would be designed to be accessible to people of all ages and abilities. Further
investigation is required with partners to develop the plan for connecting people to the Harbour
Bridge, however the recommended access points are Curran Street and Stafford Road. Closing
these two onramps would have limited impact to people driving across the bridge and there would
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be no impact to public transport users. We would work closely with Auckland Transport and Panuku
to ensure there is convenient and safe access via local streets and public transport.
Options Analysis
Option
Pro
Con
Costs
Do Nothing
No risk of negative
Reputational risk of
Nothing.
feedback from people
Waka Kotahi not
who don’t support the
demonstrating
use of the bridge for
leadership.
events for walking and Lack of alignment to
Information
cycling.
strategic goal.
Risk of negative
feedback from people
who want walking and
cycling access across
the bridge.
No opportunity to build
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demand for the
crossing or test
access implications.
the
Single Event
Some ability to
Unclear alignment
Approx $150,000
demonstrate demand
with strategic goal.
for the harbour
Risk of negative
crossing.
feedback from people
Test how the crossing
who don’t support the
might be used be
use of the bridge for
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people walking and
events for walking and
cycling, and how
cycling.
regular events could
Greater numbers of
be operated, before
people than
investing in regular
anticipated attempt to
events.
attend and traffic
Lower cost associated management is
with a single event.
insufficient.
There is demand for
more events, or to
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utilise lanes of the
bridge for walking and
cycling, which would
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Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
require further
investment.
Regular Events
Stronger alignment
Risk of negative
There would be a cost
with strategic goal.
feedback from people
of approx $150,000 -
Build demand for the
who don’t support the
$600,000 for a spring
future crossing over
use of the bridge for
to summer season,
the period before the
events for walking and depending on
crossing is
cycling.
frequency of events.
constructed.
Greater overall cost
This would include
Provide momentum
associated with
event and traffic
for the programme of
ongoing events.
management.
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investment for walking
For a more permanent
and cycling across
barrier system, there
Auckland.
would be a cost of
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Provide greater
approximately $2.5m.
opportunity for people
to take part and
therefore be of greater
value to Aucklanders.
Next steps
If the Board wants to proceed with opening the bridge to people walking and cycling, the following
next steps are proposed:
1. Commence discussions with Auckland Transport and Panuku
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2. Develop a detailed budget and investigate a partnership model for the events with Auckland
Council
3. Come back to the Board with final proposal and costs
4. Employ a project manager and procure an event management team
5. Undertake investigations to design an appropriate barrier system and adapt the access
points
6. Develop a communications plan and commence marketing of the event series
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7. Develop an evaluation plan to ensure data and experiences of the events are captured.
Key issues
the
The key issues for the series of events are:
Strategic alignment to the Northern Pathway project: The proposed event is designed to
maximise uptake by as broader audience as possible, including families, to demonstrate
latent demand and build public support for the crossing, and the wider Auckland programme
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of investment. The proposal of utilising the bridge on Sundays would require careful
messaging around the Northern Pathway’s wider purpose of all week access, and design for
commuting as well as recreational use.
Stakeholder expectations: The Northern Pathway is one of the most anticipated projects in
the country and consultation indicates high demand for the crossing. There have also been
repeated requests to utilise the Auckland Harbour Bridge for people walking and cycling.
This series of events would contribute to the wider communications approach for the
Northern Pathway, however risk remains that it will not sufficiently meet stakeholder
expectation of permanent utilisation of the bridge, or that such events unduly impact other
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users of the bridge. There is also the risk that events unduly impact other users of the
bridge, or in surrounding neighbourhoods, resulting in negative feedback from people who
don’t believe this is a good use of tax payers dol ars.
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Investment & Delivery Committee 19 April 2021 - Auckland Harbour Bridge Events
Impact on the transport system: There is a traffic congestion risk of holding an event, which
could impact operations for public transport and the wider network.
Crowd management: There is a risk that there is significantly more demand to attend the
event than anticipated, and that the works required to make it safe are underestimated. The
event series would be designed to safely accommodate a maximum number of people, and
marketing will ensure the events are well attended. Risk of overcrowding could be managed
by ticketing the event.
Legal and compliance: Due to the unknown ‘reason’ for people attending the event (unlike
the marathon where is following a set route and time period) crowd control is a risk. We are 1982
limited to time available on a Sunday morning which would require the bridge to be cleared
at a certain point in time, this could create dissatisfaction from participants if asked to move
on. A closely monitored ticketing, access and exit plan would be required along with
emergency protocols for the event licence.
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Cancellation: In inclement weather we may need to make the decision to cancel the event
(high winds etc), if the series were regular we would likely roll to the next date rather than
reschedule. This would need to be tested once maximum numbers and level of interest are
confirmed.
Health & safety, customer/stakeholder & environmental impact
While the impact of this decision is considered by the NZ Transport Agency to be neutral in terms of
health and safety, the public and other stakeholders, and the environment. It will be important for
the initial event to have sufficient observers and event management staff on the bridge itself to
ensure any unforeseen safety risks or concerns are dealt with immediately and capture any
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improvements needed for future events.
There will be environmental implications in terms of effects on the natural environment as a result of
construction, however there will also be health and environmental benefits due to the increase
mode share for active users.
Public interest in this decision and the next steps in the project’s development wil be high. A
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communications plan will need to be developed as part of an implementation plan to set public
expectations around the nature and purpose of the events.
the
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Document Outline
