An evaluation of shared space

in the Fort Street Area,

Auckland, New Zealand
Executive Summary - July 2012

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Prepared for Auckland Council by

Auckland Transport
Nazla Carmine
CBD Streetscapes Team
and
Ascari Partners Ltd
John Williamson

31 July 2012

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Contents
1 Background4
1.1

Purpose of this evaluation............................................................................................ 4

1.2

What is shared space?..................................................................................................4

1.3

Fort Street area upgrade.6

1.4

New shared spaces in the area.....6

1.5

User perceptions .7

2 Information and data ......................................................................................................7

2.1

Measuring success ..................................................................................................... 9

3 How did the new shared spaces measure up? ..................................................................9

3.1

An area attractive to pedestrians ............................................................................... 10

3.2

A high-quality streetscape where people can visit, spend time and shop ................. 11

3.3

A distinct destination offering diverse street activities .............................................. 12

3.4

Improved pedestrian environment............................................................................. 12

3.5

Fewer vehicles and slower speeds..... .13

3.6

Improved safety (traffice and personal).14

3.7

Improved economic performance..15

4 Pedestrians and vehicles ................................................................................................ 17

5 Aspects to consider..17

6 Conclusion.....18

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1. Background
Aucklands City Centre Master Plan 2012 and the 10-year CBD upgrade programme
that started in 2004, set out a vision to transform the central business district (CBD)
into an internationally successful business and cultural centre. As the engine room of
the city, the performance of the CBD is central to achieving Auckland Councils aim of
establishing Auckland as the world's most liveable city.
As part of this revitalisation, inner-city streets and open spaces will be upgraded and
maintained to international standards. Since this work began, well over $100 million
has been spent on creating well-designed, world-class, people-friendly streetscapes.
Developing shared spaces in key locations is an important part of this programme.

1.1 Purpose of this evaluation

An evaluation of Stage 1 of the Fort Street area upgrade was conducted in order to
understand the impact of the new shared space. This will enable the Council to:

evaluate the shared spaces and how they are working against objectives
create a comprehensive framework for monitoring and assessing future
streetscape upgrades
identify longer-term impacts against which future evaluations can be
compared
inform design decisions for Stage 3.

This report offers a summary of the evaluation results. For further evaluation, data
and analysis, refer to Shared space in the Fort Street area, Auckland, An Evaluation,
Full Report March 2012, on which this summary is based.

1.2 What is shared space?

Shared space is an urban design concept that aims to combine rather than separate
the functions of a street. The result is a slow-speed environment where pedestrians
have priority.
The design of a shared space may vary according to environmental and cultural
needs. One typical approach is to remove kerbs and install a single level of paving
across the full width of the street. Conventional traffic control devices such as signs,
barriers bollards and road markings are kept to a minimum. The absence of
conventional traffic control devices creates uncertainty, particularly for vehicle users,
and an important element in the shared space philosophy is that uncertainty creates
caution. When drivers encounter a zone without traditional street markings or
signage, they tend to reduce speed as they assess the new environment. In this way,
shared spaces encourage motorists and pedestrians to slow down, engage with their
surroundings and make eye contact with other users.

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In Aucklands city centre, signs identify each shared space at its entrance and exit,
though other traffic control devices are kept to a minimum and are largely absent.
Figure 1. Traffic signs at the exit/entry points to shared spaces in Aucklands CBD

Typically, shared spaces within the CBD provide a level surface across the width of the
road reserve. They feature a 1.8m Accessible Zone that runs the length of each side
of the street adjacent to the building edge, which is intended to be clutter free and
provide greater certainty of separation for those users that require it. An activity
zone is a shared zone that offers space for fixed activities, street furniture and
vegetation. The trafficable area is a shared zone that provides for vehicle movement.
These zones are laid out in the cross section below.
Figure 2. A typical shared space in Aucklands CBD

Accessible Zone
Non-shared zone
- clutter-free
- pedestrian only

Activity Zone
Shared zone
- fixed activities
- pedestrians
- loading vehicles
- outdoor dining
- street furniture
- trees

Trafficable Zone
Shared one
- trafficable area
- pedestrians
- moving vehicles

Activity Zone
Accessible Zone
Shared zone
Non-shared zone
- fixed activities - clutter-free
- pedestrians
- pedestrian only
- loading vehicles
- outdoor dining
- street furniture
- trees

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Removing the traditional distinction

between the footpath and road
provides more room for people,
outdoor dining and other street
activities and events. Design
elements such as street furniture,
artworks and vegetation encourage
vehicles to slow down.

1.3 Fort Street area upgrade

Set in the heart of the CBD near restaurants, shops and facilities, the Fort Street area
was a tired and somewhat neglected part of downtown, mostly used to reach other
places of work or business, shops and services. It was perceived predominantly as a
throughway by both pedestrians and vehicle traffic, rather than a destination in its
own right.
In 2008 it was identified as having significant potential for transformation into a more
attractive and user-friendly environment. Consequently, six streets were tagged for
upgrade: Fort Street, Fort Lane, Jean Batten Place, Gore and Commerce streets
(between Fort and Customs streets), and Shortland Street (between Queen and
OConnell streets).

1.4 New shared spaces in the area

Four areas in and around Fort Street were identified for development into shared
spaces: Jean Batten Place, Fort Lane, and two sections of Fort Street between
Queen and Commerce streets, and between Gore Street and Customs Street East.
Figure 3. Fort Street area

Stage 1 includes upgrades to Fort Street between Queen and Commerce

streets, Fort Lane, Jean Batten Place and Shortland Street (southern footpath
only) between Queen and OConnell streets. The upgrade of this stage was
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completed in September 2011.

Stage 2 includes upgrading Commerce Street, Gore Street and the mid-block
section of Fort Street as a conventional streetscape. Completion of this stage
is scheduled for September 2012.

Stage 3 covers upgrading the eastern end of Fort Street (between Gore Street
and Customs Street East), potentially as a shared space. Completion is
scheduled for mid-2013.

The total cost of the upgrade for the whole of the Fort Street area is about $23
million.

1.5 User perceptions

A key aim of the project is to attract more pedestrians to the area. Therefore, users
perceptions of the new environment are an important early gauge of the impact the
shared spaces are having.
It is worth noting that at this early stage in their lifecycle, perceptions could relate to
the more general upgrade and beautification of the area, rather than to the upgrade
to a shared space. With the benefit of time, future evaluations will likely offer a
clearer picture of user perceptions about shared spaces as distinct from their feelings
about a more general programme of beautification.

2. Information and data

The findings in this report are based on a range of information and data, collected in
the months after the new shared space environment was completed. Information
sources are listed in the table below.
Table 1: Surveys used for this report
Author

Title

Period

Focus

Gravitas

CBD
Streetscapes

2008 Pre-works

User perceptions of the Fort Street area

before upgrade

Pre-works
survey, Fort
Street
CBD
Streetscapes
Post-works
survey, Fort
Street

2011 Postworks

User perceptions of the Fort Street area

after upgrade

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Auckland
Transport

Traffic analysis
of Fort Street
west of
Commerce
Street

2009 Pre-works

Vehicle volumes and average vehicle

speeds before upgrade

Traffic
Engineering
and
Management
Ltd (TEAM)

Fort Street
Shared Space,
Auckland CBD,
Traffic
Monitoring
Report

2011 Postworks

Pedestrian and vehicle monitoring

OPUS

Pedestrian
survey

2009 Pre-works

Pedestrian monitoring (peak hours at key

intersections)

AUT (Leslie
Wooller MHSc
(Hons),
Faculty of
Health and
Environmenta
l Science)

Pedestrian
intercept survey

2011 Postworks

Pedestrian perceptions of shared space

Pedestrian
online survey

Vehicle users
online survey
2011 Postworks
Retailer
interviews and
retailer focus
groups

Canvas drivers views about shared space

Canvas (ground floor) retailers views

about shared space
2011 Postworks
Canvas property owners and (above
ground) tenants views about value of
being near a shared space

Property
owner/tenant
surveys
2011 Postworks

Works for Stage 1 of the Fort Street area upgrade were completed in September
2011. Information and data was collected after late October 2011 and the
completion of the Rugby World Cup 2011.
Percentages in this summary have been rounded.

2.1 Measuring success

The evaluation sought to obtain information that could be measured against the
Councils broader objectives for the inner city, which are:

Creating areas that are attractive to pedestrians.

Providing high-quality streetscapes where people can visit, spend time and shop.

Establishing distinct destinations that offer diverse street activities.

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Building better pedestrian environments.

Reducing vehicles and slowing vehicle speeds.

Improving safety (traffic and personal).

Improving economic performance.

3. How did the new shared spaces measure up?

Users and key stakeholders in the area were surveyed about the upgrade. A clear
majority were positive about the improvements.

How people rated the upgrade

Pleasant, relaxed, attractive
Very easy to walk along
People have greater priority than cars
Delays dont affect business
Would visit more often
Value owning property in close proximity
Feel more safe in the area now

80%
64%
81%
100%
49%
75%
80%

Fort Street from Queen Street looking east

Before July 2009

After December 2011

3.1 An area attractive to pedestrians

Foot traffic in the upgraded area has increased. Over 19,700 people were recorded in
the Fort Street area per day over three days of monitoring in October 2011 and
pedestrian volumes peak at midday (12pm-2pm) between 2,800-3,700 per hour. No
24 hour data is available from before the upgrade to shared space was completed so
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a 24-hour comparison of pedestrian volume is not currently possible. Subsequent

counts planned for 2012 and 2013 will however provide comparative figures.
However, comparing pre-works (2008) and post-works (2011) pedestrian counts at
key locations during peak hours revealed a significant increase in pedestrian numbers
throughout the area. Over 4800 pedestrians were recorded during peak hours
(morning, midday and afternoon) in 2008. This increased to over 7390 in an identical
count taken after the shared spaces were opened in 2011. At midday Fort Street
recorded peak flows of up to 3700 people per hour.
Pedestrian numbers increased by over 50% during peak hours.
A 140% increase in pedestrian volumes was recorded in the Fort Lane shared space
during peak hours, when compared to 2009 figures. This included a significant 235%
increase in usage during the afternoon peak (3pm6pm). Over 4500 pedestrians now
use Fort Lane per day.
An additional 1600 pedestrian movements were recorded in Jean Batten Place during
peak hours a 243% increase on the 2008 level. However, nearby private
construction work at the time is likely to have suppressed pedestrian numbers in the
initial 2008 count. Therefore the large increase to 2011 levels should be viewed in
that context. Counts in coming years will provide a clearer indication of pedestrian
trends in Jean Batten Place.
Other shared spaces show similarly positive trends. For example, pedestrians using
the Darby Street shared space increased by 32% on an average weekday and 59% on
an average Saturday, when compared to pre-construction counts from 2009. The
shared space on Lorne Street outside the Auckland Library showed a weekday
increase of 8% and a 51% increase on a typical Saturday.
Users perceptions of the Fort Street area shared space were also positive. People
rated user-friendliness higher after the upgrade, and 64% said that walking along Fort
Street was now very easy, compared with only 34% before.
Upgrading the Fort Street area to shared spaces has provided an additional 1191
square metres of space for people. Over 85% of the road reserve area in these
streets is available for pedestrians to use.

Its more pedestrian-orientated and encourages people to walk

Like it, find it works for pedestrians
Convenient for resting
A great atmosphere
A lot better
First step in the right direction

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3.2 A high-quality streetscape where people can visit, spend time and
shop
Results suggest that the area has become more of a destination in itself rather than a
shortcut to shops, businesses and other amenities.
Around 28% of people surveyed stated they were in the area because of work or
business, and a further 27% because they lived or were staying nearby. These figures
were largely the same as in 2008. However, 26% of people questioned in 2011 said
they now used or visited the area to take a break a significant increase from only 1%
in 2008. In addition, almost half those surveyed (49%) would visit the area more
often as a result of the upgrade, while 47% would continue to visit at the same
frequency as before.
Reasons prompting people to revisit the area included:

unique street seating

spacious layout

more comfortable, friendly and quiet

better look

cleaner, less rubbish.

Jean Batten Place looking south towards Shortland Street

Before July 2009

After December 2011

Ninety-one percent of users were highly complimentary about the new shared
space, compared with 17% before. People particularly liked the new paving and
street furniture.
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3.3 A distinct destination catering for diverse street activities

There was no significant change in the number of people who consider the Fort Street
area to be unique to Auckland. This will be a point to re-evaluate as the area
develops and people become more aware of the new environment.
Perception surveys also questioned where visitors to the area lived. There was a
significant increase in respondents from the wider Auckland region over those living
in the CBD, when comparing the pre-works survey of 2008 and the post-upgrade
survey of 2011. This may suggest the area now appeals to a wider group than those
who live or work nearby, but further monitoring would be required to confirm this.
The shared space is designed to provide a flexible space for diverse outdoor activities
and the new layout yields significantly more public space (1194sq meters) for these to
occur. Prior to the upgrade, protest rallies, photo shoots and film events were the
main types of event activities using the area. Any changes in use will be assessed in
future years, though 54% of general users suggested there were good opportunities
for a broad range of social and cultural activities to occur. The number and types of
events staged around Fort Street post-upgrade will provide a useful indicator of how
distinctive the area is as an event destination.

Prior to the introduction of the shared space, one of the seven local eateries located
in the area utilised street space for the purposes of offering outdoor dining. There
appeared to be limited space in the footpath for additional outdoor areas. Since the
upgrade five businesses have established outdoor dining areas in front of their
premises, utilising over 65sq meters of street space between them and providing
more than 15 tables and 50 chairs for patrons choosing to sit outdoor.

3.4 Improved pedestrian environment

Pedestrians and drivers believed that pedestrians had a high priority in the
shared spaces.

The upgraded area was perceived to be much easier to walk across.

Where pedestrians and cars did meet, in 63% of cases pedestrians gave way.
But as the number of pedestrians grows to a threshold of 1000 or more per
hour, their priority increases noticeably. Consequently, vehicle speeds
appear to slow.

52% of pedestrians felt that there were still too many cars in the area.

60% of pedestrians felt that crossing the new shared space was very easy
compared to the previous, more conventional road and footpath layout.

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3.5 Fewer vehicles and slower speeds

There has been a general reduction of vehicles using the area per hour and over the
full day in comparison to 2008 volumes. About 4700 vehicles use Fort Street per day
now, with an average of 320 vehicles per hour during peak hours. This is a reduction
of 1450 cars per day, or 60 cars per hour from earlier volumes of around 6150
vehicles per day.
In Jean Batten Place a similar reduction of 1000 vehicles per day or 40 vehicles per
hour was evident. Daily vehicle flows through this shared space totalled 1918.
In addition:

Vehicle speeds dropped by 59 km/hr.

Vehicle delays due to pedestrians were not long (averages of 6 and 11 seconds
on different streets).
100% of drivers said delays didnt impact on business performance.

72% of drivers thought their journey through the area took the same time as
before, or less time.

The opening of and the shared space on Darby Streets also observed an immediate
reduction in vehicles. Vehicle numbers fell by about 10%, from 10001200 per day
to 9001000.
The traffic monitoring also examined vehicle loading and delivery services. Surveys
indicated that 75% of delivery agents found it much easier to make deliveries to
businesses in the shared spaces after the upgrade.
About half the drivers surveyed indicated the introduction of shared spaces had been
disruptive, but a large proportion of this group felt that driving through the shared
spaces was a positive experience.
From the 2011 perception surveys, users were asked what they disliked about the
shared space environment.
A small number (6%) stated that they disliked that the area had a lack of
boundaries between traffic and pedestrians.
A further 8% felt that the shared space was confusing/not well understood or
that more education about the concept was required.
A quarter of respondents (25%) stated that they disliked that the area was not
pedestrian-only or that vehicle access was not more limited.
Almost one third or respondents (30%) stated there was nothing they disliked
about the shared space concept in Fort Street.

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Fort Lane looking north to Customs Street East

Before July 2009

After December 2011

3.6 Improved safety (traffic and personal)

How people perceive safety is important as this influences their desire to use a
location.
Over 80% of users said they felt very safe in the area.

Most users felt safer in the area at all times compared to perceptions recorded
in 2008. In addition, perceived night-time safety greatly improved.

Traffic offending was down and no injury crashes were reported.

Incidents of disorder rose, but this could be attributed to the Rugby World
Cup. Most other incidents decreased.

Perceptions of pedestrian safety in traffic improved slightly, though some

users (5%) felt that the space was dangerous, confusing or unsafe for
pedestrians.

3.7 Improved economic performance

Economic information specifically about the upgrade area is limited given the shared
space environment has been operating for only a relatively short period of time.
Additional data for 2012 and 2013 will provide a clearer picture of the economic
performance of the area over time. However, the early signs are encouraging.
Consumer spending data for the area suggests spending volumes have increased
steadily from 2009 to June 2012. Comparing spending levels in the first half of 2012
with the same period in previous years suggests an increase in the volume of spend in
the area since the shared space environment was introduced, though it is too early to
determine whether this is a direct influence of the new shared space given it has been
operating for less than a year. The initial signs, however, are encouraging. Significant
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growth in consumer spending in the hospitality sector is evident from analysis of data
for BNZ credit and debit card data, which also indicates that the area is attracting
greater spending levels from those living in suburbs further from the CBD. Moreover,
the positive public perception of the area is a likely early indicator of improved
economic performance over time.
Table 2: Consumer spending (Jan-June) 2009-2012 from Paymark eftpost activity

Pre-shared space
Pre-shared space
Construction period
Post- shared space

Time period
(Jan-June)
2009
2010
2011
2012

Total spend
(Paymark)
$4,211,304
$4,767,987
$5,507,237
$6,988,452

% change from
year before
+13%
+15%
+22%

Source: Marketview

NOTES: Construction activity took place between November 2010 and August 2011. Paymark data
covers approximately 75% of the eftpost activity within the area.

Other general economic information shows that around $29.7 million and $31.1
million was spent in the Queen Street valley area (excludes the Fort Street area) in
2010 and 2011 respectively, compared to about $61 million annual spend in the CBD
for 2010 and 2011.
Table 3: Consumer spending (Jan-June) 2009-2012 from BNZ credit/debit card
activity

Pre-shared space
Pre-shared space
Construction period
Post-shared space
Source: Marketview

Time period
(Jan-June)
2009
2010
2011
2012

Total spend
(BNZ data)
$445,957
$774,934
$896,485
$1,758,164

% change from
year before
74%
15%
96%

NOTE: Construction activity took place between November 2010 and August 2011.

Table 4: Retail and hospitality sector spending 2009 - 2012BNZ credit/debit card
activity

Pre-shared space
Pre-shared space
Construction period
Post-shared space

Pre-shared space
Pre-shared space
Construction period

By first half year only

(Jan-June)
2009
2010
2011
2012
By calendar year
(Jan-Dec)
2009
2010
2011

Retail Spend

Hospitality Spend

$218,814
$511,808
$501,535
$595,703
Retail Spend

$192,861
$210,064
$341,492
$1,112,216
Hospitality Spend

$622,896
$1,038,001
$1,059,303

$410,735
$463,632
$871,715

Source: Marketview
NOTE: Construction activity took place between November 2010 and August 2011.

Although only limited information about ground floor tenancies was available at the
time of this evaluation, property owners were canvassed about vacancy rates in the
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months of September and October 2011. Within the area there are 8 (of 12) buildings
that have ground floor tenancies that open onto a shared space. Between these
buildings there are 20 ground floor tenancies. Survey responses indicated there was
one ground floor tenancy vacant. This data establishes a baseline to which vacancies
and any future increase in the number of ground floor tenancies - that open on to the
shared space - can be compared to in the coming years.
To get a feel for the potential impacts that the shared spaces might have on local
businesses (and to signal property value effects), property owners were surveyed and
asked to rate the importance of having a shared space nearby. Overall, 59% thought
this was very important and 17% thought it important. A further 17% felt it was
slightly or not important.
When asked whether improving pedestrian access to their property was important,
58% agreed that it was important or very important. It was slightly important to 17%
and not important to 8% of owners. From these results it is clear that property
owners in Fort Street generally do value having a shared space adjacent to their
property.
Over 75% of property owners said it was valuable being sited near or adjacent to a
shared space.
Average prime upper Auckland retail rents rose by 4.5% in 2011 to $1900 per square
metre. This sets a baseline for comparing future rental rates. Changes in land values
and rentals in the Fort Street area relative to the CBD will be long-term indicators of
the economic performance of the area. Future evaluations will scrutinise the shared
spaces value to business.
A breakdown of employment by sector for the Fort Street area (Stage 1 and 2) shows
that business services predominate. Further monitoring of employment activity will
provide a gauge of economic activity trends over time. By relating this to productivity
of sub-sectors it will be possible to indicate whether the area is attracting highervalue activities.

4. Pedestrians and vehicles

Further analysis is needed on how pedestrians and vehicles interact. A minority of
users still feel uncertain or unsafe sharing the street with vehicles. This group favours
further restrictions on vehicle use and in some instances creating a completely carfree zone.
Pedestrian perceptions of safety from cars and other vehicle traffic have improved
slightly since the upgrade. However,

25% disliked the fact that vehicles were not more restricted.

8% felt that the shared space was confusing/not well understood/more

education is required about the concept. A further 6% disliked the lack of
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boundaries between traffic and pedestrians, and believed that more space is
required.

Just over half of pedestrians felt there were still too many cars, and most
agreed that aspects of the space could be improved further.

5. Aspects to consider
A small number of users surveyed felt the shared spaces could be improved further
and made safer, particularly for pedestrians. The relationship between pedestrians
and vehicles was central to this view. Some users disliked the lack of boundaries
between pedestrians and vehicles, and favoured more conventional roading
treatments (e.g. carriageway marking, signs etc) to differentiate vehicle zones from
pedestrian space while others felt greater limits restricting vehicle traffic to the area
were warranted.
Further monitoring and evaluation of these shared spaces and how they are operating
will help inform whether changes should be made. In the meantime however,
uncertainty about the spaces indicates the need for ongoing education and
communication with the wider community on shared spaces.
Nice but could be safer
Bit confusing
[Pedestrians] and drivers are not educated about shared space
Not fully thought through
Good idea, needs a bit of work

6. Conclusion
The Fort Street shared spaces are still relatively new and therefore the results of this
evaluation need to be seen as very early indications of progress towards achieving
Auckland Councils objectives for upgrading the area. However, the evidence
suggests that even in the short time this area has been open, the space has been
successful in encouraging more people to visit and spend more there.
The upgrade to a shared space has proved significantly more attractive for
pedestrians. More people now visit the area and find it easier and safer to walk
through, particularly at night. Many users indicated they would continue to visit and
re-visit the area now it is a more pleasant environment.
There are noticeably fewer vehicles, and they are travelling at slower speeds,
compared to when the streets had a more conventional layout. Yet this has not
triggered significant delays. Some users do however feel that vehicles could be
further restricted, to make an even safer environment for people.
The collection and analysis of additional data will help determine the impact the
shared space environment has on the economic performance of the area. Initial
findings suggest there has been an increase in consumer spending since the shared
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space was introduced, though the extent to which this can be related to the shared
space development is not yet able to be determined given the shared space has been
in operation for a relatively short period of time. The signs are, however, encouraging
given the significant rise in hospitality sector spending in the area in the first half of
2012 compared to previous years and the positive public perception of the area,
which is a likely early indicator of improved economic performance over time. The
positive value property owners place on proximity to shared space is also
encouraging.
Overall, findings of this initial evaluation of the Fort Street area offers a high level of
confidence that the shared space environment will contribute positively to the CBD
and be of value to those who use the area

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