QTS-008 · Indicative business case · 2017
Queenstown Town Centre Parking Indicative Business Case
Indicative business case prepared by Rationale Limited for Queenstown Lakes District Council (QLDC) as one of a set of business cases making up the Queenstown Town Centre Masterplan programme. It finds town centre parking is at about 90% occupancy at 1pm, that circulating traffic searching for parking contributes around 30% of town centre congestion, and that cheap or free parking undermines public transport. From a longlist of options, three programmes were shortlisted and Programme 6 (multiple new and upgraded fringe parking sites with 'appropriate supply') was preferred. The programme combines intelligent transport systems, enforcement, marketing, demand management pricing, conversion of free on-street parking to paid parking, park and ride (at least 600 spaces, 2018-2026), bike parking and new or upgraded off-street parking buildings on the town centre fringes. The ten-year cost is about $56.7 million, of which $42.9 million is for parking buildings that may be privately funded, leaving about $14.1 million to QLDC. Parking was assessed within the wider masterplan programme, which achieved a BCR range of 2.5-4.7. The case seeks endorsement to proceed to a detailed business case and proposes a QLDC-NZTA-ORC alliance to oversee transport projects. It refers in passing to a future mass rapid transit solution, possibly mass rapid transit or light rail, from 2037, and reproduces a masterplan schedule showing mass rapid transit planning from 2028 and construction by 2037.
What the document says
Context and purpose. This Indicative Business Case (IBC), Rev 2.3 (October 2017), was prepared by Rationale Limited for Queenstown Lakes District Council. It is one of a set of business cases forming the Queenstown Town Centre Masterplan programme, alongside public and passenger transport, town centre arterial routes, the spatial framework and public realm, and community and civic facilities (p.7). It seeks endorsement to develop a Detailed Business Case for the preferred programme (p.13). Problems and benefits follow an Investment Logic Map completed at a stakeholder workshop in March 2017 (p.9).
Evidence. Town centre parking is around 90% full at 1pm; circulating traffic searching for parking contributes about 30% of congestion; the cost of congestion in Queenstown in 2016 was estimated at $35 million and forecast to more than double in 30 years; free and cheap parking and low penalties ($12 fines) discourage mode shift (pp.10, 16). The 2016 inventory was 5,605 spaces, 42% of them public free all-day (p.14). The document records QLDC's parking fee changes from December 2017 and March 2018, timed with the $2 bus fare introduced with ORC and NZTA (p.19).
Options. A longlist of programmes was assessed by multi-criteria analysis to a shortlist of Programmes 5, 6 and 7 plus the do-minimum. Programme 6 (multiple new and upgraded sites, appropriate supply) scored highest; Programme 7 (one large car park) scored lower on congestion, environment and risk (pp.85-86). A single large parking site and unlimited supply are excluded from scope (p.90).
Preferred programme. Components include an ITS operations centre, communications network, on-street data gathering, variable message signs, ITS in existing and new car parks, conversion of free on-street parking to paid parking with resident schemes, ride-share parking, variable pricing, bike parking, a digital interface potentially linked to the 'Choice' app and mobility as a service, technology-assisted enforcement, possible higher penalties, marketing and communications, park and ride (at least 600 spaces, construction spread 2018-2026), and off-street changes on the town centre fringes (pp.92-102). Modelling by Abley (Appendix 11) proposes removing 312 on-street spaces by 2025 and building about 400 off-street spaces (Lakeview and Boundary Street, or the Recreation Ground), then removing 170 more by 2045 and adding about 700 (Skyline, private, 350; Ballarat Street, 350). Modelled 1pm paid parking occupancy in the walking zone is 64% (2025) and 74% (2045), below the 85% KPI (pp.107-110). Parking buildings are to be designed for possible later conversion to other uses (p.100).
Economic, commercial and financial cases. Parking was assessed within the wider masterplan programme, with a BCR range of 2.5-4.7 (pp.11, 117). The ten-year cost is $56,743,000: DBC/parking strategy $0.1m, technology Phase 1 $5.4m, Phase 2 $8.3m, parking buildings $42.9m (may be funded privately), leaving about $14.1m to QLDC (p.123). Indicative revenue modelling shows a 350-space Ballarat Street building ($25m) needs about $6.27/hour to break even in 10 years and a 242-space Boundary Street building ($17.8m) about $6.73/hour (pp.125-126). Funding assumptions: private operator for buildings, NZTA subsidy for park and ride, QLDC for on-street, inventory and technology (with NZTA and ORC as potential partners), and possible central government/Tourism Infrastructure Fund support (p.126). The document states QLDC cannot afford the programme without support and innovative arrangements (p.126).
Management case. A planning and delivery alliance of QLDC, NZTA and ORC is suggested, being progressed by the three Chief Executives (pp.127-128); monthly reporting, risk register updates, change management, a new QLDC Parking Management Strategy and formal masterplan consultation in March 2018 are proposed (pp.128-130).
Mass rapid transit: The document makes passing references only. Citing Beca's demand projections, it states that 'a mass rapid transit solution may be required from 2037 onwards' (p.34) and that the mass transit solution 'is not yet identified but it could include a gondola or light rail service' (p.72). The masterplan implementation schedule reproduced in the case (Figure 64) shows 'Gondola planning' from 2028 to 2034 and 'Gondola construction' completing in 2037 (p.113). It does not assess MRT, which falls to other masterplan business cases. Other references are to the existing Skyline gondola (parking at its base and 350 new parks at Skyline), which is not mass rapid transit, and to 'gondola' among modes in a mobility-as-a-service concept (p.140). The risk register includes a mitigation to 'Include PT benefits (ie. gondola landing)' in the arterials MCA (p.152).
Key figures
- Town centre parking around 90% full at 1pm (p.10)
- Parking circulation contributes around 30% of town centre congestion (p.10)
- Estimated 2016 cost of congestion in Queenstown $35 million (p.10)
- 2016 parking inventory 5,605 spaces (p.14)
- Ten-year programme cost $56,743,000, incl. $42,920,000 parking buildings that may be privately funded (p.123)
- Estimated cost to QLDC about $14.1 million after privately funded buildings (p.123)
- Masterplan programme BCR range 2.5-4.7 (pp.11, 117)
- Park and ride: at least 600 spaces, 2018-2026 (p.98)
- 312 on-street spaces removed and ~400 off-street added by 2025; 170 removed and ~700 added by 2045 (pp.107-109)
- Implementation schedule: gondola planning 2028-2034, construction to 2037 (p.113)
- Modelled 1pm paid occupancy 64% (2025) and 74% (2045) vs 85% KPI (pp.107-110)
- Ballarat St building 350 parks, ~$25m; Boundary St 242 parks, $17.8m (p.125)
Rapid transit
Mass rapid transit means light rail, gondola/cable car, bus rapid transit and similar dedicated rapid-transit technologies. It does not include ordinary bus services or ferries.
Passing. Mentions mass rapid transit without assessing it.
Notes mass rapid transit may be required from 2037; reproduces a schedule of planning from 2028-2034 and construction to 2037.
The parking IBC treats mass transit as a future context rather than a subject of its own analysis. Drawing on Beca's projected demand by mode graphic (Figure 17), it states that 'a mass rapid transit solution may be required from 2037 onwards' (p.34). In explaining 'appropriate supply' it notes the need for car travel to stabilise while other modes accommodate growth, 'ultimately a mass transit solution', which 'is not yet identified but it could include a gondola or light rail service (for example)' (p.72). The masterplan implementation schedule reproduced as Figure 64 shows 'Gondola planning' (2028-2034) and 'Gondola construction' (to 2037) in an 'Arterials / Gondola' row (p.113). No route, cost or responsible agency for MRT is given. The masterplan risk register (Appendix 7) records, for the arterials, a mitigation to 'Include PT benefits (ie. gondola landing) within MCA for Stage 2 Option 4.1' (p.152). Other references concern the existing Skyline gondola and parking near its base (pp.40, 90).
"The graphic below demonstrates this demand and highlights that a mass rapid transit solution may be required from 2037 onwards." (p.34) | "ultimately a mass transit solution (shown in green). The mass transit solution is not yet identified but it could include a gondola or light rail service (for example)." (p.72) | "Gondola planning... Gondola construction... 2037" (p.113) | "Include PT benefits (ie. gondola landing) within MCA for Stage 2 Option 4.1 to justify as the preferred option." (p.152)
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Actions recorded
Develop a Detailed Business Case and parking strategy for the preferred parking programme (Programme 6), budgeted at $100,000.
Not assessed · QLDC · 2017/18
Detailed Business Case/ Parking Strategy $100,000... 2017/18
Establish an operations centre for ITS parking interventions (real-time monitoring, adjusting charges, VMS updates), aligned with or part of the proposed Transport Operation Centre.
Not assessed
An operations centre is proposed to provide day-to-day operation of the ITS parking interventions
Provide a communications network linking all ITS parking interventions, combining upgrades to existing networks and new infrastructure.
Not assessed
A communications network is required to link all ITS interventions
Implement on-street real-time parking data gathering (sensors/CCTV) and review on-street hourly rates through six-monthly occupancy surveys.
Not assessed · QLDC · Ongoing (6-monthly reviews)
this monitoring and price adjustment is an ongoing (6 monthly) process
Install variable message signs on approaches to Queenstown (including SH6 and SH6A between the Shotover River and Queenstown) and at parking decision points and facilities.
Not assessed
It is proposed that a combination of sign types is implemented
Apply ITS interventions to existing off-street car parks: layout redesign to maximise spaces, occupancy detection and smart signage.
Not assessed
It is proposed that more effective use of existing off-street car parks... is made through ITS interventions
Incorporate ITS technology (smart entry gates, occupancy detection, smart signage) in proposed parking buildings at Boundary Street, Ballarat Street and Lakeview.
Not assessed
It is proposed that ITS technology is incorporated into the proposed car parking buildings
Convert free uncontrolled on-street parking to controlled paid parking (sensors, payment machines, line markings), staged to convert 50% of free all-day and 100% of restricted all-day spaces.
Not assessed · QLDC · Staged to 2025 and 2045
a staged approach is proposed to convert 50% of free all day and 100% of restricted all day on-street parking
Show all 34 actions
Create a resident parking zone scheme reserving some controlled on-street spaces for local residents, with numbers and locations set through consultation.
Not assessed · QLDC
potentially rolled out progressively once a resident parking zone scheme is created
Allocate a proportion of on-street parking to ride-share users, with an identification system (stickers or RFID tags) for participating vehicles.
Not assessed
A proportion of on-street parking is proposed to be allocated for ride-share users
Introduce demand management through increased and variable (time and occupancy dependent) parking pricing, less free parking and a hypothecated fund subsidising public transport.
Not assessed · QLDC
introducing flexible time and occupancy dependent parking prices
Develop a new QLDC Parking Management Strategy as part of the detailed business case.
Not assessed · QLDC · With detailed business case
It is proposed that a new QLDC Parking Management Strategy will be developed
Provide additional covered and uncovered bike parking at strategic locations and consider re-purposing underground parking as an end-of-trip facility.
Not assessed
Additional bike parking is proposed in strategic locations around Queenstown
Deliver a digital interface (websites and apps) for parking information and remote booking, possibly linked to public transport for a 'mobility as a service' approach with NZTA.
Not assessed · NZTA
in association with the New Zealand Transport Agency
Increase parking enforcement personnel and use technology-assisted enforcement; enforcement and inventory management to be done within QLDC.
Not assessed · QLDC
increased enforcement area and inventory management will be done within QLDC
Consider increased parking infringement penalties, which would require changes to legislation, or escalating hourly rates for long stays.
Not assessed
Changes to Legislation to allow increased penalties
Run a marketing and communications programme: maps and leaflets, tourist information, staff training, airport/hotel marketing and workplace and school travel plan workshops.
Not assessed
it is proposed that a programme of marketing and communications is implemented
Deliver integrated Park and Ride facilities (at least 600 spaces) for commuters, visitors and campervans, possibly renamed 'transport hubs'; NZTA subsidy assumed eligible.
Not assessed · 2018-2026
The construction programme of the Park and Ride areas is based on likely demand, and spread between 2018 and 2026
Remove 312 on-street spaces with the new arterials and public realm works and provide about 400 off-street spaces (Lakeview 200 and Boundary Street +200, or Recreation Ground 400).
Not assessed · By 2025
approximately 400 off-street parking spaces will need to be constructed
Remove a further 170 on-street spaces with additional public realm works and provide about 700 more off-street spaces (Skyline private 350; Ballarat Street/Community Heart 350).
Not assessed · By 2045
approximately additional 700 off-street parking spaces will need to be constructed by 2045
Engage a private development partner to design, build, fund and operate the new parking buildings (about $42.9m), with QLDC potentially providing land.
Not assessed
A private operator may be engaged to fund the new parking buildings establishment and operations
Enhance and repurpose existing off-street sites: Boundary Street, Ballarat Street, Stanley Street, Warren Park, Athol Street and Queenstown Gardens parking.
Not assessed
enhancement of existing parking sites at Boundary Street, Ballarat Street and Stanley Street, Warren Park
Implement user-type management: commuter, shopper, event and visitor demand management, tourist operator pick-up/drop-off, coach and bus layover, special needs and freight spaces.
Not assessed
User type management actions including commuter, shopper, events and visitor demand management
Fund the parking technology programme (Phase 1 $5.4m, Phase 2 $8.3m) and on-street and inventory management changes, with NZTA and ORC as potential partners.
Not assessed · QLDC · 2018/19-2023/24
QLDC are assumed to be funding the technology programme, with potential partners in NZTA and ORC
Test eligibility for central government investment, including the Tourism Infrastructure Fund.
Not assessed
further work should be done to test eligibility
Establish a QLDC Commercial Team and consider engaging commercial advisers on structuring and operating commercial parking facilities.
Not assessed · QLDC · Detailed business case phase
QLDC may benefit from establishing a Commercial Team
Manage procurement in two phases: services for the detailed business case, then services and products to deliver the programme to 2050.
Not assessed · QLDC · To 2050
QLDC will manage the procurement process using their existing policies and procedures
Work through land use designations for QLDC-owned parking sites and develop a consenting strategy with planning and legal advisers.
Not assessed · QLDC
the next logical step will be to work through land use designations
Adopt a planning and delivery alliance of QLDC, NZTA and ORC to oversee transport-related masterplan projects; discussion being progressed by the three Chief Executives.
Not assessed · NZTA · As quickly as possible
It is suggested that this approach be adopted as quickly as possible
Update the programme risk register monthly and develop a Change Management Plan and a detailed Project Management Plan.
Not assessed · Monthly; with detailed business case
It is recommended that it be updated every month
Hold formal consultation on the full draft masterplan programme.
Not assessed · QLDC · March 2018
A formal consultation period is scheduled for March 2018
Plan mass rapid transit, as shown in the masterplan implementation schedule (Figure 64) under 'Arterials / Gondola'.
Not assessed · 2028-2034 · Relevant to rapid transit
Gondola planning 2028... 2034
Construct mass rapid transit, shown in the masterplan implementation schedule as completing in 2037.
Not assessed · 2034-2037 · Relevant to rapid transit
Gondola construction... 2037
Develop a benefits management plan, testing KPIs, benchmarks and measurement intervals, through the detailed business case.
Not assessed · Detailed business case phase
The benefits management plan for this project should be further informed through the detailed business case
Study cost
A study cost has been requested under the Official Information Act or LGOIMA. No figure has been received.
Citation
QLDC. Queenstown Town Centre Parking Indicative Business Case (2017). Rationale job number J000621.