Infrastructure Strategy - Tauranga City Council
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
05 Infrastructure
Strategy
I N FRA S T RUC T URE S T RAT EGY 209
Infrastructure Strategy (2018-2048)
Introduction Strategic Context
This Infrastructure Strategy, alongside the Financial Supporting this context is a series of city strategies
Strategy, demonstrates how Tauranga City Council developed alongside the Infrastructure Strategy and
(“Council”) plans to manage its assets prudently and 2018-2028 Long Term Plan. These include the Tauranga
sustainably through future periods of growth and other Urban Strategy, the Community Wellbeing Strategic Plan,
pressures. A 30-year strategy provides long-term the Environment Strategy and an updated Transport
thinking to significant decisions around investment in Strategy. All aspects of this strategic framework
infrastructure. have been used in development of the 2018-2048
Infrastructure Strategy.
Council’s Infrastructure Strategy focuses on the following:
In order to provide the quality of life and quality of
• Providing the infrastructure required for resilience
economy that will enable a higher standard of living for all
and growth in a manner that aligns with our
in Tauranga, the city needs ‘sound city foundations’.
Financial Strategy;
Some, but not all, of these foundations relate to physical
• Ensuring we are able to maintain current levels of
infrastructure, the ‘hardware’ that enables the provision
service through growth and other pressures; and
of core services across the city. Again, some, but not all,
• Maintaining our assets in a prudent and of this infrastructure is provided or owned or managed
sustainable manner. (or all three) by Council. Other ‘core’ infrastructure
WHAT IS ‘INFRASTRUCTURE’? that helps form ‘sound city foundations’ includes
telecommunications networks, electricity networks, gas
Infrastructure, in this strategy, is defined as the ‘hardware’ networks, the rail network and the state highway network
delivered by Council which is required to deliver core (owned by the New Zealand Transport Agency).
services. This includes structures, pipes, pumps,
treatment plants, reservoirs, roads, footpaths, bridges, This Infrastructure Strategy recognises the importance of
drains etc. as well as the hardware that provides for social those other networks but focuses only on Council’s role in
amenity such as libraries, community centres, reserves, infrastructure.
sports facilities, performance facilities, etc.
For the purposes of this strategy, the following types of
infrastructure have been excluded:
• Airport infrastructure;
• Council’s ICT infrastructure; and
• Council’s administrative and property
infrastructure.
Long Term Plan 2018-2028
210
Infrastructure Strategy (2018-2048)
Summary of key issues However, following the recent adoption of the Tauranga
Urban Strategy, it is anticipated that a greater proportion
This model reduces Council’s up-front costs relating to
growth management.
of future growth will occur in the existing urban areas,
This Infrastructure Strategy addresses key infrastructure- Council has applied to the government’s Housing
specifically in the City Centre and in and around existing
related issues facing the city. To a greater or lesser extent Infrastructure Fund for funding assistance with key
town centres. This is unlikely to mean an early change to
these relate to all asset types. The key issues are: growth projects. Detailed business cases have been
where growth goes, but over the next 5-10 years it is the
prepared for funding related to the Te Tumu growth area,
• Growth intention of Council to plan and invest for more growth
the Waiari water supply project, and improvements to the
• Resilience occurring within the city.
Te Maunga wastewater treatment plant. The outcome of
• Amenity The content and direction of the Tauranga Urban Strategy the Housing Infrastructure Fund process will be known
will be a core component of Council’s contribution to the later in 2018.
• Delivery
Future Development Strategy required to meet the National
Across the various growth areas, this Infrastructure
GROWTH Policy Statement on Urban Development Capacity.
Strategy includes the following capital costs:
Tauranga is a growing city. This growth puts pressure The core components of the draft Tauranga Urban
on existing infrastructure and creates the need for new Strategy are: Years 1-10 Years 11-30
infrastructure. • A greater number of houses within existing urban Wairakei and Te Tumu $173,000,000 $126,000,000
The assumptions underlying the Infrastructure Strategy areas; The Lakes, Tauriko and $146,000,000 $129,000,000
(and the rest of the Long Term Plan) are that initially the • Provision of greater housing choice including Tauriko West
majority of this growth will occur in greenfield sites on the smaller, more affordable houses; Future developments at nil1 $160,000,000
city’s edges. This growth, currently totalling more than Keenan, Merrick, Joyce
• More people living within easy access of shops and Belk roads
80% of new dwellings, is occurring in greenfield areas
and facilities;
and is assumed will continue in:
• An enhanced public transport network to service Intensification
• Wairakei and Te Tumu in Papamoa; and
growing town centres; and
• The Lakes, Tauriko West, Keenan Road, Merrick In addition to the above, provision is being made to
• Investment in infrastructure, facilities, services, accommodate additional growth in existing parts of
Road, Upper Joyce Road and Upper Belk Road in
amenity, streetscape and quality urban design in the city, especially in the City Centre but also other
the south and south-west of the city.
and around town centres. town centres. In the first ten years of the Infrastructure
In the short term, the remaining 20% of growth is
For new urban growth areas, the funding model promoted Strategy the following budgets have been allowed for,
assumed to occur in the existing urban area.
by Council is that Council provides infrastructure to the predominantly in years 7 to 10:
boundary of the growth area but all infrastructure within • $27 million for Parks & Recreation land purchases
the growth area is funded and delivered by the developer.
• $19.35m for water, wastewater and stormwater
1
Planning will commence for the Keenan Road area in accordance with an agreement with Council’s SmartGrowth partners. No work has been agreed on or commenced regarding the other potential areas. The
Future Development Strategy to be prepared in 2018 will determine the future development pattern post Te Tumu and Tauriko West. The outcome from the Future Development Strategy will be built into the 2021-51
Infrastructure Strategy.
Long Term Plan 2018-2028
I N FRA S T RUC T URE S T RAT EGY 211
Infrastructure Strategy (2018-2048)
network improvements • Creating a transport network that enhances Project costs (operational expenditure) of $1.7 million
• $29.55m for transportation network improvements the attractiveness and liveability of the urban have been budgeted for in the first three years of the
environment. Long Term Plan. At the conclusion of the operational
At this stage specific projects or locations have not been Resilience expenditure project, Council will have good information
allocated to this funding. on the priorities for capital expenditure to improve the
The fragmented, spread-out nature of the city, and its resilience of its infrastructure assets.
To reflect the expected increase in urban intensification location in a hydrologically and volcanically active region,
presents a number of resilience issues for infrastructure To implement the expected capital works projects
in later years of the Infrastructure Strategy period and the required to provide for more resilient infrastructure, the
impact this is likely to have on transportation networks, provision.
following ‘placeholder’ budgets have been allocated in
the following budgets have been allowed for in years 11- Council recognises that while it has reasonable the Infrastructure Strategy:
30 (and again, no specific projects or locations have been information on the potential impact of many natural
allocated to this funding): hazards its information is incomplete. As such, Council
• $140m for transportation network improvements is embarking on a significant project to better understand Years 1-3 Years 4-10 Years 11-30
risk and resilience issues across the city – specifically as
Transportation they apply to infrastructure and urban planning.
Parks Nil $8 million Nil
While the impacts of growth are felt on all infrastructure Transportation Nil $125 million $200 million
This will ultimately inform expenditure within the 2021/31
types, the most visible impacts for most residents relate Long Term Plan as well as having the potential to inform Stormwater Nil $14 million $40 million
to the transportation network. land-use planning processes. While the initial focus of the Wastewater Nil $14 million $40 million
In response to this, the key elements proposed in the work will be on Council-owned infrastructure, this project Water Supply Nil $14 million $40 million
Long Term Plan and this Infrastructure Strategy relate to sits within a broader intention to address resilience issues
the following key priorities: more holistically across the city. The broader resilience
project may apply to other infrastructure owners, Social Infrastructure and Amenity
• Providing better transport choices – improved
communities / geographical areas (which may influence In establishing and maintaining ‘sound city foundations’
walking, cycling and public transport;
urban planning, land use and subdivision), and also Council recognises that cities are about people. Achieving
• Reliable journey times for people and freight – other aspects of resilience such as ‘social resilience’ and a higher standard of living for all requires delivering
lane and intersection capacity improvements; ‘economic resilience’. targeted responses to identified and understood social,
• Improving safety on our roads – targeted The scope of work covered by this project is guided and environmental, economic and cultural wellbeing gaps. A
safety projects, speed management and minor to some extent governed, by Council’s responsibilities range of responses will be required, including,
improvements; under four sets of legislation: the Local Government Act; • improvements to amenity and public safety,
• Creating well connected communities and local the Resource Management Act; the Building Act; and the
Civil Defence and Emergency Management (CDEM) Act. • protection of the environment,
services, improved connections for all modes to
local services or housing; and
Long Term Plan 2018-2028
212
Infrastructure Strategy (2018-2048)
• establishment of strong communities, and Additional amenity projects in years 11-30 will be amenity investments, including the enabling of
• the delivery of appropriate infrastructure to protect provided to support growth in and around town centres Development Contribution funding following
and enhance current and future residents. as articulated in the Tauranga Urban Strategy. Additional introduction of the Local Government (Community
work is underway to identify the locations and extent of Well-being) Amendment Bill in 20182; and
In many cases, the Council is only one of a number of
these investments. • increasing the organisational capacity to plan for
agencies and stakeholders responsible for the delivery of
Delivery and deliver infrastructure projects.
these.
A range of delivery options have been assessed, Council’s forward infrastructure programme is significant.
ranging from a complete reliance on developers or other In total it is markedly larger than in previous years. This is Infrastructural context
stakeholders, through to full funding by TCC. In balance, a direct result of the growth in the city, the need to invest
TOPOGRAPHY
Council’s preferred contribution to this is focussed in ‘stepped’ increases in capacity for core infrastructure
investment in a range of social infrastructure outcomes like water supply and wastewater, and of the need to Tauranga City can be considered as two distinctive areas,
over the next 10 and 30 years, spread across the city improve access to social infrastructure facilities and separated by the Tauranga Harbour. The city is within
centre, existing urban area and future greenfield sites. amenity for current and future residents and visitors. the Bay of Plenty region and forms the most populated
Council’s investment will usually only be a part of the total portion of the Western Bay of Plenty subregion.
All planned projects on or related to existing infrastructure
funding mix for each project, alongside a wide range of The southern/western side of the harbour (commonly
assets are included in asset management plans and
other funders and stakeholders. Major projects include: referred to as Tauranga) is rolling country of volcanic
supported by the asset management system (Accela)
origin. It consists of ridges and peninsulas comprised
which incorporates factors such as renewal programming.
Years 1-10 Years 11-30 from volcanic ash that generally run north-south from
Asset Management Plans are regularly maintained
the hills to the harbour. Between the ridges are deep,
New Central Library $39 million recognising asset condition and assessing renewals
low lying gullies which have been eroded into the ash
Performance venue in CBD $79 million
requirements. There is currently no back log or deferred
by streams. Urban development in this part of the city
expenditure as all asset management requirements are up
City centre investment fund $24 million generally takes place on the volcanic ridges rather than in
to date.
Recreation and leisure hub $30 million
the gullies.
at Memorial Park Council has taken a number of steps to ensure that the
On the other side of the harbour lies the Coastal Strip,
planned infrastructure is deliverable. These include:
Parks in urban $27 million extending 25km from Mount Maunganui through Omanu,
intensification areas • the negotiation of agreements with developers Papamoa, Wairakei and Te Tumu to the Kaituna River at
Land purchases for social $28 million whereby infrastructure within a development the eastern end.
infrastructure in Te Tumu area is provided by the developer leaving Council
and western corridor The Coastal Strip consists of a series of long relic sand
to focus on the trunk infrastructure to the dunes extending inland about 1km to 1.5km from the
Community centres, $108 million development’s boundary;
indoor pools, libraries and coast. Between the dunes are low lying swales. Inland
community centres in Te • consideration of the range of contributors of the relic dune system lies an old peat swamp which
Tumu and Tauriko West
and funders for social infrastructure and has been drained for agricultural purposes. In general,
2
http://www.legislation.govt.nz/bill/government/2018/0048/latest/LMS30972.html?src=qs
Long Term Plan 2018-2028
I N FRA S T RUC T URE S T RAT EGY 213
Infrastructure Strategy (2018-2048)
urban development on the Coastal Strip is confined to to be subject to a natural hazard are subject to the of this assessment;
the relic dune system, leading to a long ribbon type of provisions of the Operative City Plan. • undertake hazard assessments for specific
development along the coast. hazards and/or locations where data is currently
RESILIENCE
NATURAL HAZARDS unavailable or of low confidence (this phase
Infrastructure risk and resilience assessment includes assessing cascading hazards i.e. impact
The City is located on land that is geologically sensitive Council recognises the importance of helping create of coastal erosion and flooding in areas where
and partly in a coastal environment which is hydrologically and sustain community resilience in all its guises. The future groundwater rises are expected);
dynamic. It is also located within a volcanically active resilience of Council’s infrastructure assets is just one • undertake a criticality assessment of assets and
region which may present localised effects. element of a wider approach to resilience but, given improve any relevant asset information where it is
Natural hazards are defined in the Resource Management the value of assets involved and the importance of the found to be missing or of low confidence; and
Act. Natural hazards identified within the Tauranga City services those assets deliver, it is an important one in
• undertake a risk assessment and outage
environs include, but are not limited to: delivering ‘sound city foundations’. assessment for critical assets and services to
a) Earthquake induced subsidence and/or flooding, For many years Council has been gathering data and determine where the risk of full or partial asset
including liquefaction; information about specific hazards and the potential failure has the greatest impact.
impacts on existing and planned infrastructure. Some of Future steps for the project, depending on the findings
b) Peat deposits and other highly compressible soils;
this data and information is current while some needs to from the above steps, may include:
c) Erosion and land slippage associated with be updated. Some was gathered for a specific purpose,
relic land slips and slip debris or overly steep • development of high-level risk mitigation
such as during the planning for new growth areas, and is
topography; improvements for priority risks;
specific to a particular geographical area within the city.
d) Flooding associated with stormwater overland • development of rough-order costings for such
To improve its understanding of the hazards facing the
flow paths and/or ponding; mitigation measures; and
city and the consequent risks to the resilience of the
e) Flooding associated with sea-level rise; city’s infrastructure and the impacts on future urban • development (or adaptation) of a prioritisation and
planning, and to be able to identify and assess the range decision-making process to consider financial
f) Tsunami or storm-induced flooding and coastal and non-financial costs and benefits of potential
of response options, Council is embarking on a significant
erosion along and within the open and harbour mitigation improvements.
project over the next three years. Initially this project will:
coastlines, in particular, the consequences of
• review current natural hazard and asset data to Ultimately, this project will enable the identification of a
less stable weather patterns resulting from global
prioritised list of projects that will improve the resilience
warming. ensure it is of sufficient quality and confidence,
of Council’s infrastructure assets, and therefore the city’s
and to identify any further work to fill data gaps;
The emphasis in the management of natural hazards is resilience capacity, for consideration for inclusion in the
to encourage people to avoid situations in which they, • review current approaches regarding identifying 2021/31 Long Term Plan and 2021/51 Infrastructure
or their property, could be at risk. Subdivision, use and criticality and risk management, and develop or Strategy.
development, and the protection of natural and physical adapt a fit-for-purpose approach for the purposes
resources contained within an area subject to or likely
Long Term Plan 2018-2028214
Infrastructure Strategy (2018-2048)
In the meantime, ‘placeholder’ projects have been This growth is attributed to Tauranga’s location, nationally All assumptions regarding growth and demographics
included in the 2018/28 Long Term Plan and this strategic assets, climate and geography which combine align to assumptions throughout the Long Term Plan,
Infrastructure Strategy to recognise possible future to make the City and its hinterland a desirable area to live, Financial Strategy and supporting documentation.
expenditure patterns. No decisions have yet been made work, learn and play. A slowing of growth is anticipated
on specific projects, costs or timings. from around 2039, but the city is expected to reach
around 200,000 people by 2065.
The inclusion of placeholder budgets is a prudent
approach that plans for the likely financing and funding As a growing city, a main driver for Council infrastructure
requirements in these areas over the next ten years. The development is ensuring that there is sufficient
placeholder budgets are based on existing information on infrastructure to provide for population growth. Council
likely costs of upgrading assets including geotechnical also aims to maintain current levels of service and ensure
strengthening of bridges, upgrading wastewater plants, that assets are resilient and well-maintained during this
strengthening and restoration of coastal roads. These growth period.
costs reflect latest knowledge of unit costs in Waters and
Transportation. The placeholder budgets will be reviewed Growth Projections for Tauranga City
and refined at the conclusion of the investigation stage
of the resilience study. Key decisions will be made
regarding prioritisation, funding and project management
according to appropriate governance policies.
Key City Growth Assumptions,
Opportunities and Uncertainties
Tauranga has been one of New Zealand’s fastest growing
cities for the last 30 years. It is one of the few cities in
New Zealand that is expected to grow significantly over
the next 30 years. This growth puts significant pressure
on the need to build and maintain infrastructure.
Based upon information produced by the National
Institute of Demographic and Economic Analysis (NIDEA),
by 2048 there is predicted to be another 52,000 people
living in Tauranga.
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 215
Infrastructure Strategy (2018-2048)
Predicted Growth (Source: Tauranga City Population includes optimum (cost effective and timely) locations for As much as possible the growth-related costs of
and Household Projection Review 2017 – combination future communities underpinning many of the projected infrastructure developments have been transferred to
of Statistics NZ and NIDEA) infrastructure developments in this Infrastructure Strategy. developers through development contributions (more
An important step that has anchored the sub-regional information can be found within Council’s Development
2018 2048 growth management approach has been to embed Contributions Policy at http://www.tauranga.govt.nz/
Area 13,440 ha 13,950 ha3 SmartGrowth settlement pattern policies into the Bay of council/council-documents/development-contributions).
Population 134,600 186,700 Plenty Regional Policy Statement, the Tauranga Urban In recent history Council has reached financial
Strategy and the Operative City Plan. This ensures that agreements with developers, resulting in them directly
Proportion of people over 65 22% 39%
the infrastructure development proposed is grounded in funding infrastructure for new greenfield urban growth
Number of dwellings 57,300 91,900 all relevant planning documents. areas to minimise Council debt. Council intends to
Number of one person 13,860 27,940
More information on Smartgrowth can be found here: continue and extend this approach to the funding of
Households growth related infrastructure.
https://www.smartgrowthbop.org.nz/
Major growth areas currently under development and still
INVESTMENT IN URBAN GROWTH AREAS
PLANNING FOR THE FUTURE requiring major infrastructure investment include:
Over the last 20 years Tauranga has developed a number
In response to growth issues, Council, Western Bay • Tauriko Business Estate
of new or ‘greenfield’ growth areas. These include
of Plenty District Council and Bay of Plenty Regional • Wairakei
Bethlehem, Pyes Pa, Pyes Pa West, Tauriko Business
Council, along with Tangata Whenua, developed
Estate, Ohauiti, Welcome Bay, Papamoa and Wairakei. In • Pyes Pa West.
SmartGrowth in 2004.
addition there are housing development opportunities in
SmartGrowth is a 50 year, subregional growth strategy Key decisions regarding infrastructure requirements, both
older, more established, city suburbs.
originally based on population, household and growth and level of service for activities such as Waters
Building infrastructure in the main greenfield growth and Transportation are included in existing structure
employment forecasting out to 2051. The strategy was
areas is a continuing balancing act. Council’s focus is on plans. Decisions regarding other areas such as social
reviewed in 2013 and has been extended to 2065.
providing housing and business/employment choice while infrastructure will be made as growth areas continue to
The main purpose of SmartGrowth (in a sub-regional managing the timing and scale of infrastructure projects develop. These decisions will include consideration of
context) was to identify the level of long-term growth to support the development of land. level of service, community needs.
and respond by guiding planning decisions on areas
The principle followed is to plan ahead (by way of
for greenfield development, residential intensification,
identifying and structure planning growth areas) and then
industrial and business growth (including new commercial
to deliver ‘just in time’ infrastructure to these areas in
centres) and space for reserves, schools, community
order to minimise Council’s debt loading.
facilities and support infrastructure such as stormwater.
SmartGrowth has provided a holistic approach which
3
Assumes boundary changes relating to Tauriko West, Keenan Road, and the Tauriko Business Estate.
Long Term Plan 2018-2028216
Infrastructure Strategy (2018-2048)
Over the next 30 years the SmartGrowth strategy
indicates a number of new growth areas within Tauranga:
• Tauriko Business Estate southern expansion
• Keenan Road
• Te Tumu
• Wairoa / Tauriko West
Planning processes are underway for the Te Tumu and
Tauriko West areas. Proposed changes to the City Plan
regarding these areas are expected to be notified in the
2018/19 financial year.
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 217
Infrastructure Strategy (2018-2048)
National Policy Statement
The National Policy Statement (NPS) on Urban
Development Capacity 20164 requires that Council
plans for and well functioning urban environments that
provide for people and communities’ wellbeing, including
sufficient development capacity for housing and business
activity as the city grows. Further, the NPS requires that
an additional 20% of development capacity is available
beyond projected demand in the short to medium term
(out to 10yrs) and 15% beyond projected demand in the
long term (10-30yrs). This over-provision of development
capacity is required in an effort to ensure the efficient and
competitive function of development markets.
Council is not currently meeting the medium-term
requirements of the NPS. To ensure the requirements
are met, current planning processes for Te Tumu, Tauriko
West and Keenan Road need to continue, and an
increase in development intensity must occur both in new
greenfield areas and in established parts of the city.
4
http://www.mfe.govt.nz/sites/default/files/media/Towns%20and%20cities/National_Policy_Statement_on_Urban_Development_Capacity_2016-final.pdf
Long Term Plan 2018-2028218
Infrastructure Strategy (2018-2048)
TAURANGA URBAN STRATEGY these will occur multiple times over the timeframe of this Plans from the original planned completion date
infrastructure plan. Council would form a view on the of 2013 to the current proposed commissioning in
The impetus for the development of this strategy was
challenge or change and participate in the right way at 2022.
in part recognition of the lack of future rural land for
the appropriate time.
greenfield development within Tauranga city boundary. It
was also due to a recognition that greenfield expansion Council monitors changes in the economic environment Renewals
has led to some poor urban outcomes for Tauranga. to understand when any deferred investment should be
Accordingly the Tauranga Urban Strategy seeks to brought back into the programme to match changes in Council owns infrastructural assets (excluding road
encourage, plan and invest for a greater proportion of the city once the economy picks up again. Council also: corridor land) to a total value of $1.34 billion. Council
future growth within the existing urban area. This means prepares comprehensive asset management plans to
• provides for infrastructure solutions that are
additional investment in infrastructure to facilitate private ensure the best maintenance and decision making around
adaptable (are planned/constructed in stages and
sector development of more compact forms of housing in these assets.
giving consideration to unexpected changes)
growth locations. Information and assumptions relating to asset age,
• allows for financial flexibility to ensure capacity
This is wholly consistent with the approach in the physical description, condition and performance is
is available and impacts are minimised from
SmartGrowth strategy and will feed directly into the contained in the Asset Management Plans developed
external events
Future Development Strategy as required by the National for each of the asset types considered within this
• has built, or is building, infrastructure that can Infrastructure Strategy. These are available on request.
Policy Statement on Urban Development Capacity.
cope with potential natural disasters Uncertainty around the assessment of asset life is
UNCERTAINTY: HOW WILL TAURANGA CITY mitigated by regular condition assessment of the asset
• undertakes its renewals and maintenance
COUNCIL REACT TO FUTURE CHANGE? and timing of renewals in the Asset Management Plan.
programme based on the principle of ‘looking
Council needs to be responsive to changes outside its after what we already have’. Council’s asset management approach comprises day
direct control. This could include any of the following: A recent example of adapting to external change was to day operations, monitoring and planning. This is all
• Legislative, regulatory or funding changes Council’s response to the 2008-13 economic slowdown managed in-house by Council staff.
and the associated slowing of local population growth. Renewing existing infrastructure may be through a)
• Fluctuations in the world’s economy in terms of
A large amount of growth-related infrastructure that replacing what is there or b) rehabilitation (fixing what
cycles of growth and recession
was initially budgeted to occur in the 2006-16, 2009-19 is broken). A renewal strategy provides a progressive
• Responding to natural or unexpected events and 2012-22 Long Term Plans was deferred. Examples programme that maintains the overall standards and
• Changes in political climate include: value of all assets. This programme includes proactive
• The Southern Pipeline (in total c.$100M) was inspections to monitor the condition of assets.
• Changes in organisational structure e.g.
amalgamation originally projected to be open by 2010 but will When planning a renewal programme Council considers
now be completed in 2018. the financial and customer risks of having sufficient
• Changes in technology impacting on infrastructure
• The Waiari water supply project (in total c.$110M) ongoing funds to deal with demand and increases in
While it is impossible to accurately predict the timing, maintenance or operational costs, balanced against the
has been moved out in successive Long Term
frequency or severity of these events, it is accepted that
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 219
Infrastructure Strategy (2018-2048)
cost of renewal. This is called optimised decision making
and is recognised as best practice.
How is infrastructure funded?
Most of the Council infrastructure types are mature in the Council’s current approach to the funding of most growth New infrastructure, once in place and being used, brings
sense that the oldest parts of the network have reached related infrastructure is that where possible, ‘growth additional operating costs and depreciation charges
the end of their useful lives and are being renewed on pays for growth’. New city-wide and urban growth area which are charged to the general ratepayer.
an ongoing basis. The exception is the stormwater infrastructure projects are funded by loans, and the costs
The following tables set out estimates of overall capital
infrastructure, which generally has a 100 year predicted of the loans are funded by development contributions.
expenditure for the next 30 years. These figures have
life and the oldest pipes are only part way through their
All assumptions regarding costs, sustainability, growth been adjusted for inflation.
useful lives.
and timing align with the Long Term Plan’s Financial
Council’s Lifecycle Management approach is to manage Strategy, Supporting Documentation and various Asset
assets through the various lifecycle stages or phases from Management Plans. Additionally, there are challenges in
conceptual phase to disposal whilst meeting the required setting development contributions accurately which over
level of service, maximising benefits and minimising time results in ratepayers picking up a portion of these
whole of life costs. Elements of lifecycle are: ‘growth costs’.
• Requirements Definition
• Asset Planning Total Capital Expenditure (CAPEX) by Type 2018-2048
• Asset Creation
• Operations and Maintenance
• Asset Monitoring
• Renewal/Rehabilitation
• Disposal
Levels of service
Levels of service for each activity at Council are regularly
reviewed to ensure they remain up to date and in
alignment with community demand, expectation and
ability to pay.
The relationship between levels of service and the cost
of the service (the price/quality relationship) is agreed
through consultation with the community to determine the
levels of service they are prepared to pay for.
Long Term Plan 2018-2028220
Infrastructure Strategy (2018-2048)
Total Capital Expenditure (CAPEX) by Activity 2018-2048
Operating Expenditure for all Infrastructure activities (including inflation)
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 221
Infrastructure Strategy (2018-2048)
COMPARISON OF 2018 INFRASTRUCTURE inflation projections for 2018-2021 being higher of the system and could become more of an issue as
STRATEGY TO 2015 INFRASTRUCTURE STRATEGY than assumptions for the same period made in development moves further south into higher ground in
2016. the future.
Comparing the first three years of the 2018 Infrastructure
Strategy to the respective years of the 2015 Infrastructure An earlier issue of finding suitable reservoir sites at
Strategy (years 4 to 6) shows a significant increase in Key Infrastructure Areas the appropriate height above sea level has now been
expenditure. There are a number of reasons for the resolved with sites secured for all of the storage that will
increase, the major ones of which are: 1 Water supply be required for the next 30 years and beyond. The raw
water intakes are sited in low lying streams to the south
• bringing forward projects relating to the Te Tumu
Tauranga City uses an average of 38,800 m3 of water per of the city. The water is pumped up to treatment facilities
and Tauriko West proposed urban growth areas
day and in summer this can rise to 57,000 m3 per day. positioned on the ridges and then gravitates to service
to meet housing demand and the National Policy
storage sites around the city.
Statement on Urban Development Capacity, and Tauranga’s water supply comes from the Tautau and
(for Te Tumu) to enable the option of accessing the Waiorohi Streams and is treated at two processing plants INFORMATION ON COUNCIL ASSETS – WATER
government’s Housing Infrastructure Fund (impact - Oropi and Joyce Road. Both the Oropi and Joyce Road SUPPLY
on first three years approximately $120 million); water treatment plants using microfiltration to provide a
• 14,156,000 m3 of water per year (or about 38,800
• the deferral of projects from 2015-2018 for Grade “Aa” product to customers.
m3 per day)
practical or sequencing reasons or following Council is committed to supplying a resilient and
• two treatment plants with a peak load capacity of
elected member direction ($45 million); sustainable water supply. Council focuses on providing
67,000 m3 per day
• the increase in value and change in timing of a resilient water supply in a number of ways, including
protecting against contamination and providing storage • average total water supply consumption of 256
assets expected to be vested to Council, being
reservoirs to increase resilience against network outages. litres per person per day
assets built by others and transferred to Council
($50 million); Water supply consumption influences the volume of • average residential consumption of 180 litres per
wastewater requiring treatment, and as such these person per day
• the inclusion of non-Parks social infrastructure
in this 2018 Infrastructure Strategy ($80 million, two infrastructure/asset types are interconnected. A • catchment 2,500 ha
excluding Te Tumu and Tauriko West); reduction in wastewater inflow was observed at the
• length of pipes 1,360 km
treatment plants following universal metering and water
• an increased focus on cycling and public transport • 15 reservoirs
conservation education initiatives.
projects ($30 million);
• hydrants 5,020
TOPOGRAPHY
• timing and budget changes on the Waiari water
• metered water connections 54,440
treatment plant and Te Maunga wastewater The main effect of the topography on the water supply
treatment plant projects ($40 million); and is the need for more pressure zones in steeper parts of
• general cost increases and construction cost the city in the south. This complicates the management
Long Term Plan 2018-2028222
Infrastructure Strategy (2018-2048)
CRITICAL ASSETS • Network flexibility to manage outages through Government enquiry into Havelock North Drinking
interconnected trunk mains. Water
The Water Supply Asset Management Plan includes a
detailed assessment of the criticality of individual assets • Utilises more than one surface water source Council has considered the two reports from the
within the water supply network. The most critical assets (stream). Havelock North Drinking Water Inquiry. Council has not
within the network include: • Upgrading a number of reservoirs for resilience made additional provisions in the Long Term Plan or
against seismic events. Infrastructure Strategy as Tauranga’s treatment plants
• the Joyce Road and Oropi Road river intakes,
deliver A-grade supplies, which is at the top end of the
raw water rising mains, treatment plants, storage • Mitigating the risk of contamination through a quality spectrum. The Havelock North report focuses
reservoirs and associated trunk mains; backflow prevention programme on water treatment (specifically disinfection prior to
• pump stations and associated trunk mains at • Ongoing maintenance of assets which prevents reticulation) which is part of our existing processes at
Cambridge Road, Roger Guy Place, Waikite Road, failure. Oropi Road and Joyce Road and integral to the planning
Oropi Road and Kaitemako Road; and of the future Waiari scheme.
• Standby generation at the treatment plants.
• trunk mains to and from the Mangatawa, Mount Other than the hard infrastructure issues requiring
• Telemetry system to improve reaction time and
Maunganui, Cambridge Road and Poplar Lane investment by some local authorities (which we don’t
prevention of issues.
reservoirs. anticipate for Tauranga), the financial implications of the
• Obtained 35 year consents for water takes. remaining relationship and organisational issues covered
All critical assets are currently performing as required
and, subject to the resilience study, are considered to be PROTECTION OF PUBLIC HEALTH in the recommendations of the report are difficult to
reliable. The work undertaken on resilience and urban anticipate at this stage.
Council undertakes a number of tasks to protect public
intensification may identify future scenarios including
health. These include: DEMAND MANAGEMENT
environmental conditions and demand due to changes
in urban density under which assets may need to be • providing “Aa” Grade water quality as defined In order to meet demand for drinkable water, Council
upgraded or enhanced. This information will be known by the MoH Drinking Water Standards for New has undertaken a number of initiatives to slow down the
once investigations are complete. Zealand (2008) and the Public Health Grading need for major investment in new infrastructure. A public
of Community Drinking Water Supplies (2003) education program was implemented in 1997 to provide
RESILIENCE assistance and education to promote the efficient use of
guideline.
Council provides Water Supply resilience in the following water, and water meters were installed on all residential
• using micro-filtration as leading international
ways: and business properties by 2002.
technology at treatment plants, to produce high
• Catchment management and protection to reduce quality water The impact of universal metering and education on water
the risk of water supply contamination. demand resulted in the reduction in peak demand of
• preventing cross contamination of the supply
approximately 30%, with average demand reducing by
• Providing service storage reservoirs to increase system through a backflow protection programme
about 25%. Such water demand management initiatives
resilience against network outages. 48 hour • mitigating the risks of contamination to the water have enabled Council to delay investment in a new water
storage at average flow. supply through Water Safety Plans. supply facility by 15 years.
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 223
Infrastructure Strategy (2018-2048)
Water-use restrictions were imposed for the first time network requirements such as the bulk mains and service PROJECT HIGHLIGHTS5 – WATER SUPPLY
in 17 years (since before universal water metering was reservoirs.
introduced) during the 2017/18 summer. It is likely Delivery Total
Consents for this project were obtained with construction Large Projects
that similar restrictions will occur over the next three Year Costs
for Stage 1 to start no later than 2019.
summers, negatively impacting on businesses and 2019-22 Waiari Project incl intake, treatment $95M
households. These restrictions will no longer be required Prior to the commencement of the project, the Water plant, reservoir, trunk mains
once the Waiari water treatment plant is commissioned Source Strategy was reviewed and updated in 2016. 2019-22 Trunk Main Projects to Support Growth $26M
(see below). The review reached the same conclusions and as such in the Coastal Strip
the Waiari project commenced in 2016 and will be 2022-26 City-wide automated meter reading $10M
INCREASE IN SUPPLY – WAIARI WATER TREATMENT commissioned in 2021.
PLANT 2022-48 Provision for future resilience ($2M $54M
The Oropi Water Treatment Plant is also planned to be p.a.)
Growth predictions show that by 2022 the capacity of the expanded in around 2040 to provide additional water for 2023-31 Three new reservoirs $10M
two existing treatment plants will be exceeded. growth.
2024-25 Bell Road trunk main $12M
A Water Source Strategy Review was undertaken in 2010 SIGNIFICANT CURRENT DECISIONS 2025-27 Joyce Road treatment plant renewals $5M
in which the following options were considered:
The key investments in the water supply network in the 2029-32 Waiari Water Supply Project – $17M
• new water sources including groundwater sources additional main
early years of this Infrastructure Strategy reflect decisions
and surface water sources such as the Wairoa,
already made. Principal among these decisions include: 2029-48 Te Tumu reticulation and internal mains $14M
Kaituna and Mangorewa rivers
• the servicing of existing urban growth areas; 2029-48 Reticulation mains for new growth $8M
• expansion of existing treatment plants areas
• the servicing of proposed urban growth areas at
• increased demand management methods. 2030-33 New urban growth area trunk mains $12M
Te Tumu and Tauriko West; and
After significant assessment and consideration, the 2030-43 Three reservoirs servicing Tauranga $18M
• the development of a third water treatment plant Central and West
preferred infrastructure development option was selected.
at the Waiari Stream close to Te Puke.
This is to build a new water treatment plant to source 2035-37 Waiari water supply – increase intake $30M
water from the Waiari Stream in order to service growth in There are no significant current decisions relating to the and process capacity
the east of Tauranga. water supply network being consulted on through the 2036-45 Four reservoirs servicing coastal strip $21M
2018/28 Long Term Plan process.
Based on this option, a 50-year, staged, Network 2037-38 New trunk main servicing Mount $13M
Maunganui
Development Plan and Waiari Water Treatment Plant
Plan was prepared, which included the stream intake, 2038-40 Waiari to Te Tumu trunk main $21M
treatment plant and associated facilities and distribution 2039-40 Oropi treatment plant upgrade $4M
2041-43 Mains, reservoirs and pumps to service $30M
Belk Road growth
5
Project highlights have been identified by a combination of scale and likely reader interest. ‘Business as usual’ projects such as renewals and maintenance projects have not been included.
Long Term Plan 2018-2028224
Infrastructure Strategy (2018-2048)
RISKS Western Bay of Plenty District Council WHAT WILL THIS MEAN IN 30 YEARS?
There are a number of serious short and long term risks The water abstraction consent for the Waiari is jointly held We will have:
that the City would face if we did not proceed with this with Western Bay of Plenty District Council (WBoPDC).
• Provided new infrastructure for new urban growth
new infrastructure. These include: By agreement between the two councils, WBoPDC
areas, including the Waiari Water Supply scheme,
have rights to 15 million litres per day and Tauranga City
• inadequate future water supply to service reservoirs, bulk mains and upgrades to existing
Council to 45 million litres per day.
population growth or industrial growth plant.
WBoPDC have indicated no need for water from the
• inadequate pressure and flow to supply water and • Implemented initiatives to further extend the life of
Waiari in the short-term. As such, planning for the initial
fight fires water resources and existing infrastructure.
stages of the Waiari Water Supply Project do not include
• public health would not be protected specific provision for WBoPDC’s abstraction needs. • Improved network resilience and security of
• inability to provide a safe and resilient water Planning does, however, provide for a relatively quick supply.
supply. upscaling of the plant if such a demand is forthcoming
from WBoPDC. Depending on the timing of any demand
FUTURE DECISION-MAKING POINTS from WBoPDC this may require the acceleration of
Consents future plant upgrades. Note that upgrades to meet
WBoPDC demand for water are expected to be funded
In 2026 the water abstraction consents for the Tautau and
by WBoPDC.
Waiarohi streams expire. These streams currently provide
all of the city’s potable water, processed at the Joyce RESILIENCE
Road and Oropi Road water treatment plants respectively.
The resilience of Council’s water supply network is
Proposed Plan Change 9 to the Regional Council’s Water of critical importance to the city. The infrastructure
and Land Plan guarantees that municipal consents will be resilience project discussed earlier in this Strategy will,
renewed but does not guarantee that consented volumes once completed, provide a clear understanding of the
will remain the same. This creates some risk for the city prioritised mitigation measures needed to improve the
when new consents are sought. The most likely outcome resilience of the network. At present a ‘holding’ budget
is that the consents will be renewed but with reduced of $2 million per annum has been included in the water
consented volumes. This has been anticipated and built supply budgets from the 2022 financial year onwards.
into the planning for the development of the Waiari Water This will be reassessed once the project is complete and
Supply Project. In the event that consented abstraction updated information will be reflected in the 2021/31 Long
from the Tautau and Waiarohi streams falls to below the Term Plan and 2021/51 Infrastructure Strategy.
anticipated amounts, capacity increases at Waiari may
have to be brought forward.
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 225
Infrastructure Strategy (2018-2048)
2 Wastewater INFORMATION ON COUNCIL ASSETS –
WASTEWATER
All critical assets are currently performing as required
and, subject to the resilience study, are considered to be
reliable. The work undertaken on resilience and urban
Wastewater from the southern and western parts of the • There are two advanced treatment plants
intensification may identify future scenarios including
city is treated at the Chapel Street Waste Water Treatment
• These plants service over 50,000 properties environmental conditions and demand due to changes
Plant (WWTP). The eastern part of the city (the Coastal
• All effluent passes through wetlands after in urban density under which assets may need to be
Strip) is served by the Te Maunga WWTP. Treated effluent
advanced treatment upgraded or enhanced. This information will be known
from both WWTPs is directed through wetlands, ponds
once investigations are complete.
and an ultra-violet treatment unit at Te Maunga before • 10,767,543 m3 was treated in 2016/17
being pumped out to sea through a 950m long marine RESILIENCE
• 225 litres is the average amount of wastewater
outfall off Papamoa Beach.
produced per person per day Council provides Wastewater resilience in the following
Biosolids from the Chapel St WWTP are reused as ways:
• There are 1,179 km of public wastewater mains
fertiliser.
• There are 160 pumping stations. • Southern Pipeline provides network flexibility for
As with water supply, Council is committed to supplying flows between treatment plants
a resilient wastewater network. The Southern Pipeline CRITICAL ASSETS
provides network flexibility for flows between treatment • Telemetry system to improve reaction time and
The Wastewater Asset Management Plan includes a prevention of issues
plants, while the large Council site at Te Maunga will
detailed assessment of the criticality of individual assets
provide for future growth expansion. Council has also • Acquired large site at Te Maunga to provide for
within the wastewater network. The most critical assets
been granted 35 year consent for wastewater discharge. future growth expansion
within the network include:
TOPOGRAPHY • Ongoing maintenance of assets which prevents
• the Chapel Street and Te Maunga wastewater
failure
In the rolling country on the Tauranga side of the harbour, treatment plants;
wastewater reticulation generally consists of gravity • Standby generation at the treatment plants
• Memorial Park, Maleme Street, Judea, Opal Drive,
wastewater pipes flowing downhill around the land Bethlehem, Totara Street, McDonald Street and Te • Acquired 35 year consents for wastewater
contour to a small number of pump stations located in Maunga outfall pump stations; discharge.
gullies or alongside the harbour. By contrast, the flat
• trunk mains and rising mains greater that 450mm FUTURE DEMAND AND OPTIONS CONSIDERED
nature of the Coastal Strip means only short lengths
in diameter including the Southern Pipeline (when
of gravity pipe are possible before the pipe reaches Southern Pipeline
commissioned), mains servicing the Tauranga
maximum depth, resulting in a large number of pump
Hospital, and mains in proximity to, or crossing, Facing a growing city, and in recognition that Chapel St
stations. As a result the city has one of the largest fleets
rail lines, state highways or the harbour and WWTP was reaching capacity, investigations began in
of pump stations in the country.
estuaries. the early 1990s to look at solutions for future wastewater
provision. The Southern Pipeline project was the result
Long Term Plan 2018-2028226
Infrastructure Strategy (2018-2048)
of these investigations and was approved by the Council process to decommission that pond is now underway and PROJECT HIGHLIGHTS6 – WASTEWATER
in 2008. the replacement process to thicken and dewater sludge
The Southern Pipeline will be commissioned in 2018 before being trucked off-site is under construction. Once Delivery Total
Large Projects
decommissioned as a sludge maturation pond it is likely Year Costs
and allows flows to Chapel St to be capped. All future
increases in flow resulting from growth will then be that Pond 1 will provide a critical flow-balancing function 2019 Landward section of ocean outfall $16M
at Te Maunga, contributing to the efficient operation of upgrade
diverted to Te Maunga.
the plant and outfall. A final decision on the future of 2019-23 Second bioreactor at Te Maunga $12M
Te Maunga Pond 1 is expected within the next three years. 2019-21 Te Tumu pump station and rising main $10M
The Te Maunga WWTP will be expanded stage by stage Chapel Street 2019-28 Additional pump stations on coastal $13M
over the 30 years to treat the increase in wastewater flow strip
as the city’s population grows at a cost of around $105 With the Southern Pipeline allowing the flows to the
Chapel Street WWTP to be capped, the plan is to 2019-22 Papamoa rising main $10M
million.
continue to operate the treatment plant largely as is. Only 2024-28 Papamoa trunk main replacements $13M
The other significant planned project over the 30 years maintenance and normal renewals are planned.
is the replacement of the ocean outfall pipeline when the 2025-28 Seaward section of ocean outfall $68M
upgrade
current outfall reaches capacity. This is currently forecast SIGNIFICANT CURRENT DECISIONS
to occur by 2028 at an estimated cost of around $68 2029-30 Tauriko West rising main $7M
The key investments in the wastewater network in the
million, but investigations are proceeding to optimise the early years of this Infrastructure Strategy reflect decisions 2029-32 Third bioreactor at Te Maunga $16M
performance of the existing outfall and thereby enable the already made. Principal among these decisions include: 2022-25 Biosolids treatment improvements at $8M
new project to be deferred for a number of years. Te Maunga
• the servicing of existing urban growth areas;
Council holds a range of consents from Bay of Plenty 2029-32 Reticulation and pump station for Te $22M
• the servicing of proposed urban growth areas at Tumu
Regional Council associated with the operation of the
Te Tumu and Tauriko West; and
WWTPs. The most significant is the consent to discharge 2029-48 Reticulation for future growth areas $25M
treated effluent to the ocean (BOPRC No 62878) which • the concentration of future treatment capacity, 2029-35 Expansion of biosolids capacity at Te $16M
has a 35 year term and expires in April 2041. However, a and therefore capital investment, at the Te Maunga
new consent will be required for the ocean outfall project. Maunga wastewater treatment plant. 2022-48 Provision for future resilience ($2M $54M
Planning for this is likely to commence within the next There are no significant current decisions relating to the
p.a.)
three years. wastewater network being consulted on through the 2035-39 Further mains and pump stations to $35M
service Western Corridor
In late 2015 Council became aware that it had breached 2018/28 Long Term Plan process.
a resource consent condition requiring that one of the
ponds (referred to as Pond 1) at the Te Maunga WWTP
be decommissioned as a sludge maturation pond. The
6
Project highlights have been identified by a combination of scale and likely reader interest. ‘Business as usual’ projects such as renewals and maintenance projects have not been included.
Long Term Plan 2018-2028I N FRA S T RUC T URE S T RAT EGY 227
Infrastructure Strategy (2018-2048)
RISKS additional expenditure would be required on both the WHAT WILL THIS MEAN IN 30 YEARS?
reticulation network and the Te Maunga WWTP. This has
There are a number of serious short and long term risks We will have:
not been provided for in the Infrastructure Strategy.
that Council would face if we did not proceed down this
• Provided new infrastructure to provide for new
infrastructure development path. Expansion of Te Maunga WWTP
urban growth areas; including the southern
These include: The Te Maunga treatment plant will be expanded pipeline, a new ocean outfall pipeline and Te
as required to meet additional flows resulting from Maunga WWTP staged expansion.
• economic impact on the city as a whole and its
population and business growth.
ability to grow
Biosolids
• businesses and industry would not be supported
Council is currently installing equipment to thicken and
• consent compliance unable to be maintained –
de-water biosolids prior to transporting to landfill. During
this would lead to abatement notices, fines, and
the next three years, decisions will be made regarding the
‘reputation damage’
long-term use of residual biosolids with a view to ensuring
• increased blockages a beneficial re-use rather than simply disposing to
• overflows into the environment. landfill. Investment in drying technology is the most likely
outcome (though other options are under investigation)
FUTURE DECISION-MAKING POINTS and has been provided for in years 2022 to 2025 of this
Levels of service Infrastructure Strategy.
Over the next year, Council will consider, with the Resilience
community, its city-wide targets for the management The resilience of Council’s wastewater network is
of wastewater. This project will inform future resource of critical importance to the city. The infrastructure
consent applications (including for the ocean outfall) and resilience project discussed earlier in this Strategy will,
patterns of capital expenditure. once completed, provide a clear understanding of the
Long-term future of Chapel Street WWTP prioritised mitigation measures needed to improve the
resilience of the network. At present a ‘holding’ budget of
The Chapel Street WWTP is a valuable element of
$2 million per annum has been included in the wastewater
the wastewater network. This Infrastructure Strategy
budgets from the 2022 financial year onwards. This will
is prepared under the assumption that it will remain
be reassessed once the project is complete, and updated
operational until beyond 2048. However, given its
information will be reflected in the 2021/31 Long Term
proximity to retail and residential areas, this assumption
Plan and 2021/51 Infrastructure Strategy.
may be challenged over the next 30 years. If the Chapel
Street WWTP was to be decommissioned, significant
Long Term Plan 2018-2028You can also read
