QTS-010 · Indicative business case · 2017
Queenstown Public and Passenger Transport Facilities Indicative Business Case
Part of: Rapid transit evidence →
Indicative business case (Rev 2.6, November 2017) prepared by Rationale Limited for Queenstown Lakes District Council (QLDC) as part of the Queenstown Town Centre Masterplan programme, drawing on Beca's Passenger Transport Requirements report. It finds that SH6A is at 88% of capacity (100% by 2026), buses are frequently late due to congestion, the Camp Street bus hub is at capacity and a new hub is needed by 2023, and peak-hour PT mode share must rise from 5% (2018) to 22% (2025) and 41% (2045). Of three shortlisted programmes, Programme 5, an on-street interchange on Stanley Street with 6-8 bus bays and a passenger building, was preferred over an 11-bay off-street option on cost, operational and safety grounds. The programme also reallocates coach, taxi and loading zones, adds bus priority, develops ferry wharves and scheduled ferry services, ITS and marketing. It costs about $33.8 million, with NZTA funding assumed at 51% FAR and PPP options to be investigated; the wider masterplan BCR is 1.7. The case recommends acceptance and progression to a Detailed Business Case in 2018. It explicitly proposes that a mass transit solution (mass rapid transit. The source also names a ferry, which is not mass rapid transit,) between Frankton and the town centre be studied and planned, with construction around or beyond 2037, and notes a designation may be required for the route.
What the document says
Context and purpose. This Indicative Business Case (IBC), Rev 2.6 'QLDC/NZTA updates' (November 2017), was prepared by Rationale Limited for Queenstown Lakes District Council (QLDC) as part of the Queenstown Town Centre Masterplan programme (p.7). Much of the programme detail is drawn from Beca's Public and Passenger Transport Requirements report (Appendix 8) and Abley's modelling (Appendix 7) (pp.97, 114). It notes that ORC manages public transport services, while QLDC and NZTA need to provide supporting facilities (p.7).
Evidence. The district is forecast to grow by 29% (residents) and 25% (visitors) in ten years; SH6A between Frankton and the town centre is at 88% of its 28,500 vehicles/day capacity and expected to reach 100% by 2026; up to 60% of morning-peak and 77% of afternoon-peak buses run late; Camp Street is at capacity and a new hub is required by 2023 (p.7). Modelling indicates peak-hour PT mode share must rise from 5% in 2018 to 22% in 2025 and 41% in 2045, plus 'the use of a new mass rapid transit solution by 2045' (pp.8-9).
Options. A long list (Table 18) included a do-minimum plus option with 'alternate passenger transport modes such as gondola and water taxi' (p.86). Shortlisted programmes 1, 5 and 6 were compared; Programme 6 (11-bay off-street interchange bounded by Ballarat, Stanley and Shotover Streets) scored highest against objectives (70%) but was marked down for land cost, bus access, pedestrian and night-time safety concerns, so Programme 5 (on-street Stanley Street) was preferred (pp.93-95). Stanley Street was favoured partly because it allows 'easy access to the lake for potential water-based transport or up Turner Street for a potential gondola to the airport' (p.91).
Preferred programme. Camp Street is expanded to four bays as an interim (about two years), then a 6-8 bay Stanley Street interchange with an approximately 800 m2 passenger building, bus priority and restricted private access is delivered by 2023, requiring at least Stage 1 of the new arterials (pp.96-98). Coach parking on Camp Street is removed; passenger transport, taxi and loading zones are reallocated; inter-city buses move to Stanley Street (pp.100-101). Water taxis grow by 2023, wharves are upgraded, all Frankton Arm piers become pontoons by 2027 and a scheduled ferry network is expected by 2030 (pp.112, 116-118). Bus priority on Frankton Road is recommended by 2023 (p.116). Bus services reach maximum practical frequency by 2025, and the Frankton Road bus service is expected to reach capacity around 2035 even with ferries (p.118).
Economic, commercial and financial cases. The programme sits within the masterplan BCR of 1.7 and is assessed as 'High' and potentially 'Very High' results alignment (pp.11, 134-135). 2045 modelling estimates 300 peak-hour Frankton Road passengers by bus/water taxi and 490 by Mass Rapid Transit (p.129). The cost is $33,848,000: DBC $75,000, marketing $156,000, property $5.2m, public ferry wharf $5.7m, Stanley Street interchange $22.7m, all loaded in 2017/18-2023/24 (p.139). NZTA funding is assumed at 51% FAR, with PPP, ORC/NZTA ITS co-investment and possible central government funding (pp.12, 139-140). QLDC is reaching its debt ceiling (p.140). Procurement is in two phases, with QLDC working with NZTA and ORC through a steering group (p.137).
Management case. A QLDC-NZTA-ORC alliance is proposed, with the Chief Executives' next meeting on 6 December 2017 (pp.141-142); risk, benefits and change management plans, March 2018 consultation and further studies are planned (pp.144-146).
Mass rapid transit: This is the most explicit of the 2017 Rationale business cases. Table 1 states that 'A mass transit solution (such as a gondola, ferry or light rail system) between Frankton and the Queenstown Town Centre will be studied and planned, with construction expected around or beyond 2037' (p.10). The mid-term section recommends that the feasibility of Frankton-Queenstown mass rapid transit 'is studied and planning takes place' (p.118); the 2023-2035 map shows 'Gondola planning and construction underway' along a route over Queenstown Hill (p.118), and the schedule shows planning from 2028-2034 and construction to 2037 (p.114). The consenting strategy notes 'a designation may be required to secure the future mass rapid transit route' (p.137). The demand graphic is cited as indicating MRT 'may be required from 2040 onwards' (p.54). MRT is not costed in the $33.8 million programme.
Key figures
- Programme cost $33,848,000 (p.139)
- Stanley St Interchange and associated works $22,693,000 (p.139)
- Public ferry wharf $5,699,000; property $5,225,000 (p.139)
- Masterplan programme BCR 1.7 (p.11)
- SH6A at 88% of 28,500 vpd; 100% by 2026 (p.7)
- Up to 60% (AM) and 77% (PM) peak buses late (p.7)
- Peak-hour PT mode share 5% (2018) to 22% (2025) and 41% (2045) (p.8)
- 2045 Frankton Rd peak hour: 300 by bus/water taxi, 490 by Mass Rapid Transit (p.129)
- Frankton Road bus service at capacity around 2035 (p.118)
- Shortlist scores vs objectives: P1 18%, P5 56%, P6 70% (p.93)
- Average fare reduction $5.20 to $2 (p.7)
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.
Substantive. Discusses, assesses, recommends or programmes mass rapid transit.
Recommends a Frankton-Town Centre mass rapid transit option be studied and planned; construction around or beyond 2037. The source also names a ferry, which is not mass rapid transit.
The IBC treats mass transit as a planned long-term element of the public transport strategy, outside its costed programme. Table 1 lists 'Mass Transit solution: A mass transit solution (such as a gondola, ferry or light rail system) between Frankton and the Queenstown Town Centre will be studied and planned, with construction expected around or beyond 2037' (p.10). Modelling assumes 'the use of a new mass rapid transit solution by 2045' (p.9) and 490 peak-hour Frankton Road passengers by Mass Rapid Transit in 2045 (p.129). The mid-term (2023-2035) section states that the Frankton Road bus service 'is expected to reach capacity around 2035 even with improved ferry services. A gondola could be introduced provide an additional option for travel between Frankton and Queenstown. We recommend the feasibility of this is studied and planning takes place' (p.118). The accompanying map shows 'Gondola planning and construction underway' and a mass rapid transit route from the PT hub to Frankton near the airport (p.118); Figure 66 shows planning from 2028-2034 and construction to 2037 (p.114). The Stanley Street hub was preferred partly because it allows 'up Turner Street for a potential gondola to the airport' (p.91), and the scope encourages 'further investigation into previously identified gondola facilities' (p.97). The consenting strategy notes 'a designation may be required to secure the future mass rapid transit route' (p.137). The demand graphic is cited as 'from 2040 onwards' (p.54).
"A mass transit solution (such as a gondola, ferry or light rail system) between Frankton and the Queenstown Town Centre will be studied and planned, with construction expected around or beyond 2037." (p.10) | "The bus service along Frankton Road is expected to reach capacity around 2035 even with improved ferry services. A gondola could be introduced provide an additional option for travel between Frankton and Queenstown. We recommend the feasibility of this is studied and planning takes place" (p.118) | "A designation is only required for the PT Hub if the land cannot be secured. However, a designation may be required to secure the future mass rapid transit route." (p.137) | "easy access to the lake for potential water-based transport or up Turner Street for a potential gondola to the airport." (p.91) | "The use of a new mass rapid transit solution by 2045 to supplement buses, ferries and coaches." (p.9) | "encourages further investigation into previously identified gondola facilities that connect with the proposed Community Heart and new public transport facilities on Stanley Street." (p.97)
Files
- Open Main document (PDF, 11 MB) Opens in a new tab.
Main document
Public copies
Publisher’s own file.
Actions recorded
Accept the Public and Passenger Transport Facilities IBC and progress the project to the Detailed Business Case phase, aligned with the masterplan projects; DBC to be completed in 2018 ($75,000).
Not assessed · QLDC · DBC completed in 2018
The Queenstown Town Centre Public and Passenger Transport Facilities IBC be accepted. The project be progressed to the Detailed Business Case (DBC) phase.
Expand Camp Street to a 4-bay bus facility as an interim measure with an expected two-year life.
Not assessed · Immediate (late 2017)
The preferred way forward is to build the Camp Street 4 bay facility initially
Obtain demand information from ORC to set interim arrangements and confirm the Stanley Street hub is sufficient to 2050.
Not assessed · QLDC · DBC stage
QLDC will need clear assurance form ORC regarding the level of demand
Establish an on-road public transport interchange on Stanley Street (Shotover to Ballarat) with 6-8 bus bays and an interchange building; NZTA funding assumed at 51% FAR.
Not assessed · NZTA · By 2023 (2022/23 in schedule)
Establishment of an on-road Public Transport interchange at Stanley Street with 6-8 bus bays and an interchange building, by 2023.
Implement bus priority measures, including bus lanes, along Stanley Street from Frankton Road to the interchange, with restricted private vehicle access.
Not assessed · By 2023
Bus priority measures along Stanley Street from Frankton Road... by 2023.
Introduce bus priority measures on Frankton Road.
Not assessed · By 2023
it is recommended that bus priority measures are introduced on Frankton Road by 2023.
Add a mid-block signalised pedestrian crossing on Stanley Street and signalise and expand the Stanley-Memorial-Gorge-Shotover intersection, removing Camp Street coach parking.
Not assessed
A new mid-block signalised pedestrian crossing is proposed
Provide new passenger transport (coach/shuttle) zones on Shotover Street (2) and Duke Street (1), with Shotover Street footpath expansion and Duke/Brecon corner works.
Not assessed
New allocation includes: 2 zones along Shotover Street; 1 zone along Duke Street.
Show all 33 actions
Relocate inter-city bus stops to Stanley Street between Ballarat and Beetham Streets.
Not assessed
Inter-City buses will be re-located to Stanley Street
Provide additional day-time taxi ranks (Shotover and Ballarat Streets) and late-night taxi ranks (14 bays on Stanley Street).
Not assessed
Additional taxi ranks are proposed
Increase passenger and goods loading zones (3 on Shotover Street, 1 on Camp Street).
Not assessed
it is proposed to increase the number of loading zones in the town
Re-purpose Camp Street after public transport moves to Stanley Street.
Not assessed · After Stanley Street hub opens
re-purposing of camp street after public transport moves into Stanley Street
Develop a public ferry wharf near the town centre ($5.7m), evaluating location options A-E in the DBC with guidance from ORC and NZTA.
Not assessed · QLDC · Programmed 2018/19; spend 2019/20-2023/24
The benefit of the wharf development currently programmed for 2018/19
Grow the water taxi fleet and commence a wharf upgrade programme focused on Queenstown Town Centre, the Gardens and Kelvin Heights.
Not assessed · By 2023
A growth in water taxi fleet and services is expected to meet the increased demand by 2023
Upgrade all Frankton Arm piers envisaged for scheduled ferries to pontoons and establish a scheduled ferry network, possibly linking the Frankton wharf to the airport.
Not assessed · Pontoons by 2027; ferry network by 2030
By 2027, all piers within Frankton Arm... A scheduled ferry network/system is expected to be established by 2030.
Provide park and ride facilities outside Queenstown (Shotover Bridge and Jack's Point shown) to feed bus routes.
Not assessed · Mid-term (2023-2035)
Park and Ride (P&R) facilities are needed to enable people to drive to and from the bus route
Upgrade the Frankton Track and extend a safe cycling route into the town centre.
Not assessed
Upgrading Frankton Track and extending a safe route into the town centre.
Study and plan mass rapid transit between Frankton and the Queenstown Town Centre. The source also names a ferry, which is not mass rapid transit.
Not assessed · Construction expected around or beyond 2037 · Relevant to rapid transit
A mass transit solution (such as a gondola, ferry or light rail system)... will be studied and planned
Study the feasibility of mass rapid transit between Frankton and Queenstown and undertake planning so construction could be completed in the long term.
Not assessed · Planning 2028-2034; completion around or beyond 2035 (2037 in schedule) · Relevant to rapid transit
We recommend the feasibility of this is studied and planning takes place
Further investigate previously identified mass rapid transit facilities connecting with the Community Heart and the Stanley Street PT facilities, at the detailed design stage.
Not assessed · Detailed design stage · Relevant to rapid transit
encourages further investigation into previously identified gondola facilities
Consider a designation to secure the future mass rapid transit route as part of the consenting strategy.
Not assessed · QLDC · Relevant to rapid transit
a designation may be required to secure the future mass rapid transit route
Seek legal and planning advice on RMA consenting and designation requirements for the programme.
Not assessed · QLDC · DBC phase
QLDC will need to seek legal and planning advice
Deliver intelligent transport systems (real-time signage, traveller apps, mobility as a service, integrated smart ticketing), with possible shared investment by ORC and NZTA.
Not assessed · NZTA
ORC and NZTA may also have an interest in the ITS solutions
Deliver marketing and communications on transport options (tourist information, maps, website, airport and hotel marketing).
Not assessed · QLDC · 2018/19-2019/20 ($156,000)
Marketing and Communications $156,000
Acquire property for the programme ($5.2m).
Not assessed · QLDC · 2019/20
Property Costs $5,225,000
Investigate PPP arrangements for the PT facility and commercial lease revenue around the hub.
Not assessed · QLDC · DBC phase
potential commercial leases around the bus hub should be further investigated in the detailed business case
Work with NZTA and ORC so all eligible parts of the programme receive the appropriate subsidy.
Not assessed · NZTA · DBC phase
QLDC also needs to work closely with NZTA and ORC
Assemble a QLDC Commercial Team to shape procurement; steering group of QLDC, NZTA and ORC to plan, review and appoint suppliers.
Not assessed · NZTA
A Commercial Team assembled by QLDC would play a key role
Confirm a transport planning and delivery alliance of QLDC, NZTA and ORC; Chief Executives' next meeting on 6 December 2017.
Not assessed · NZTA · Next meeting 6 December 2017
The next meeting on this topic is due to occur on 6 December 2017.
Update the risk register early in detailed planning to assign responsibilities to partners; develop benefits register, benefits management plan and Change Management Plan.
Not assessed · Early detailed planning phase
It is recommended that it be updated again in the early part of the detailed planning phase
Hold formal consultation on the full draft masterplan programme.
Not assessed · QLDC · March 2018
A formal consultation period is scheduled for March 2018
Next steps: pedestrian cameras and public life survey, Martin Jenkins economic study, arterial Stage 3 design, transport modelling tool, March 2018 parking survey, and work on active transport movements.
Not assessed · QLDC · 2018
The following steps are also planned to better inform this project
Monitor the first three months of the new Orbus service and discuss the Choice app's performance with NZTA and ORC.
Not assessed · NZTA · From November 2017
Monitoring of the first three months of the new Orbus service operations
Study cost
A study cost has been requested under the Official Information Act or LGOIMA. No figure has been received.
Citation
QLDC. Queenstown Public and Passenger Transport Facilities Indicative Business Case (2017). Rationale job number J000621 (as printed in QA statement; file path refers to J000622).