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Fifteenth Avenue to Welcome Bay

Tūhono Ngā Tangata – mai Te Papa ki Tikorangi

Connecting the people. Fifteenth Avenue to Welcome Bay

Our city is growing fast. The Fifteenth Avenue, Turret Road and Welcome Bay Road route links many communities and is going to become increasingly important as our city grows.

As well as reducing congestion, this project will help improve transport choice by providing improved walking and cycling facilities and help to improve social wellbeing and connectivity.

Update August 2026

Structural assessment of the Hairini Bridge shows it is strong enough to carry the proposed upgrades included in this project.

As a result, Council's City Delivery Committee endorsed the project to progress to the next phase of design at a meeting on 5 August 2026.

As the project moves through the design phase, the focus will be confirming how features such as tidal traffic flows will operate safely, particularly at side streets.

We're also working to ensure the project stays within budget while delivering the best outcomes for the community and will be seeking community feedback on the design later this year.

In mid-2027 Council will be seeking construction funding from NZ Transport Agency Waka Kotahi (NZTA). Subject to funding being confirmed, construction is expected to get underway in late 2027 to early 2028 and be completed by mid-2029.
 

What are we proposing?

Based on our technical investigations and community feedback gathered in 2023, we are proposing improvements to Fifteenth Avenue, Turret Road, and Hairini Bridge and causeway, and the signalisation of the Welcome Bay Road/James Cook Drive intersection and a mini roundabout at Victory Street/James Cook Drive. All other walking and cycling and road safety improvements along Welcome Bay Road and some of the roads surrounding Fifteenth Avenue will be funded and delivered separately outside the scope of this project.

Fifteenth Avenue, Turret Road and Hairini Bridge and causeway improvements map

Fifteenth Avenue, Turret Road and Hairini Bridge and causeway improvements

Fifteenth Avenue, Turret Road and Hairini Bridge and causeway improvements map (518kb pdf)

Zone 2 map

Welcome Bay improvements

Welcome Bay improvements map (1.3mb pdf)

Proposed improvements

The proposed improvements include:

  • Four-laning of Fifteenth Avenue from Cameron Road to Burrows Street, one lane in each direction for general traffic and one high occupancy lane (T2) for vehicles with two or more passengers (including buses)
  • Raised centre median on Fifteenth Avenue from Cameron Road to Fraser Street
  • New signalised crossing at intersection of Fifteenth Avenue and Devonport Road
  • Other intersection changes along the corridor
  • Shared use path on Fifteenth Avenue between Fraser Street and Hairini Bridge (on the south side)
  • Shared use path on Fifteenth Avenue between Fraser Street and Grace Road (on the north side)
  • New signalised crossing on Turret Road
  • Potential new traffic signals for the Silver Birch Holiday Park near Hairini Bridge (allowing both entrance and exit from the park and turnaround of southbound traffic).
  • Three-laning of Hairini Bridge and causeway, including a tidal flow system which means there could be two lanes of traffic going into the city in the morning, changing to two lanes going out of the city in the afternoon
  • Resilience works to extend the expected life of Hairini Bridge
  • A clip-on shared use path on Hairini Bridge for walking and cycling
  • Water, wastewater, and stormwater renewals
  • Utilities work and relocation
  • Opportunity to capture cultural elements.

It is also proposed to have new traffic signals at the intersection of Welcome Bay Road and James Cook Drive with two approach lanes (one for buses only during the morning peak) and a mini roundabout at the intersection of James Cook Drive and Victory Street. These improvements will be included in the design but will not be constructed at the same time as the Fifteenth Avenue and Turret Road improvements. The need for these further improvements will be considered in the post-implementation review of how the Fifteenth Avenue and Turret Road changes are working.

Protecting our flora and fauna

The Pōhutukawa trees next to Turret Road are protected as Notable trees under the City Plan. They will not be impacted by changes proposed in any of the options. There may be opportunities to enhance the space around these trees to ensure they are protected and continue to be valued by the community.

The Hairini Bridge is home to a colony of protected white-fronted terns which nest on the historic piers on the western side of the bridge. We are investigating options to ensure a good nesting habitat for the tern population is available before any changes are made to the area.

FAQs

There is a need to invest in transport improvements in this area.

This is because the corridor has reached capacity at peak times and there is poor journey time reliability.

There is also:

  • High reliance on private vehicles for journeys to work and education
  • Unappealing walking, cycling and public transport choices
  • Limited routes across the harbour, and a growing population that is creating more peak time congestion
  • A need to address the wider housing supply issue for the Bay of Plenty
  • A need to comply with Government’s Emissions Reduction Plan and targets.

People have identified a wide range of issues that they experience with transport in the area.

Summary of Engagement - July 2022 (57kb pdf)

  • Moving people and goods – Limited routes across the Tauranga harbour, a growing population and lack of local employment, education, goods, and services has resulted in congestion at peak times. This is causing travel delays and increased carbon emissions.
  • Transport choice – A lack of priority and poor-quality infrastructure for active and public transport modes has resulted in car-dependent communities. This makes it difficult to achieve carbon emission and mode shift targets.
  • Severed communities – High traffic volumes and reduced access to and across the corridor has severed communities. This impedes access to key destinations (schools, marae, parks, and shops) and reduces social wellbeing and connectivity.

By investing in improvements, we are aiming for:

  • Efficient access and movement - Increase the number of people in the area who are within 30 minutes of key social and economic opportunities in the morning peak hours.
  • Improved choices – More people travel to school and work by walking, cycling or public transport.
  • Improvements in our local environment – Improved quality and amenity of our local environment and reduction in carbon emissions.
  • Ability to reflect Te Ao Māori and restore and build partnerships with local hapū - Changes would allow the development of Māori land, improve access to the harbour, improve sense of community and recognise cultural links to wāhi tapu.

Learn more about the transport challenges our city faces.

Connecting the people. Fifteenth Avenue to Welcome Bay is one of the key projects in the Western Bay of Plenty Transport System Plan - a shared transport vision for the region over the next 30 years to make sure transport projects are not done in isolation and that they work for everyone.

The TSP aims to support a projected population of 258,000 residents and 34,000 new homes, resulting in more than one million extra transport movements a day by 2050.

It is focused on generating a shift from cars to public transport, improving safety, providing reliable travel times for freight, and creating better walking and cycle connections. It also aims to increase public transport use, along with cycling and walking to help reduce transport-related greenhouse gas emissions and improve road safety.

Read more here

A business case is a document that provides the justification for initiating a project and is developed in collaboration with partners, stakeholders and the wider community. Key elements of a business case include clearly defining the problem we’re trying to solve and ensuring a wide range of potential solutions have been considered. It evaluates the benefit, cost and risk of alternative options and provides a rationale for the preferred solutions.

Read more here

The method of construction has yet to be decided, but it is possible that the corridor/Hairini Bridge will close for short periods of time to allow for work to be done. As any closure would have a major impact on the remainder of the transport network in Tauranga, this is a conversation we will have with the community as the project progresses. It is unlikely that any closures would be for long periods of time i.e. possibly a few weeks at a time rather than months.

Key dates

  • Start work to prepare business case

    Early 2022
  • Engagement with partners, stakeholders and the local community

    June to November 2022
  • Development and assessment of options

    June 2022 to mid-2023
  • Engagement on options

    Wednesday 13 September - Friday 6 October 2023
  • Complete the early design with input from partners, stakeholders and community feedback

    October 2023 - April 2024
  • Council endorses business case to take forward to NZTA

    August 2024
  • NZTA endorses business case for funding

    February 2025
  • Seismic and structural investigations on Hairini Bridge

    November 2025 - mid 2026
  • Surveying works on Fifteenth Ave and Turret Road

    May 2026 - August 2026
  • Detailed design

    Mid 2026 - mid 2027
  • Community engagement on detailed design

    Late 2026
  • Construction

    Mid 2027 - 2029

Who's listening

Major Projects Infrastructure team
Tauranga City Council

connectingwelcomebay@tauranga.govt.nz 
07 577 7000

Related projects

Connecting the people. Fifteenth Avenue to Welcome Bay is part of Council's wider strategic objectives to support the city's rapid growth.

Te Papa Spatial Plan
Western Bay of Plenty Transport System Plan
Plan change 33

Neighbourhoods

Find out what other projects are happening in Te Papa.

Te Papa projects

Next steps

Detailed design is now underway, and the community will have another opportunity to give feedback later in the year.

Our partners 

The project is being delivered in partnership with NZTA, Bay of Plenty Regional Council and mana whenua.
 

Glossary of terms

Below you can find descriptions and examples of some of the features discussed above.

High occupancy vehicle lane (HOV)

A high occupancy vehicle lane (HOV) caters for vehicles carrying two passengers (T2) or three passengers (T3) or more. These lanes can also be used by buses, which means that they can avoid being stuck in general traffic, making them a more attractive transport option. HOV lanes encourage more people to carpool and assist in reducing congestion.

T3 lane

Tidal flow lane

Tidal flow lanes use overhead signs and lighting on the road to change the direction of a traffic lane depending on the time of day. Tidal flow lanes can be an effective solution to help reduce congestion without the costly and time-consuming process of building new physical lanes.

Tidal flow lane
Credit: Auckland Transport

Bus priority lane>

These are bus only traffic lanes. They can be used at peak times only, or full-time dedicated bus lanes.

Bus lane

Bus ‘jumps’ / priority lights

These are changes to signals at intersections to let buses go before general traffic. Bus jumps speed up bus travel times, making them a more attractive transport option.

Priority lights

On-road cycle lane

Cycle lanes are painted lanes within the road that are suitable for cyclists. Cycle lanes can be located adjacent to parking, next to the kerb (kerbside), and between two traffic lanes (for example, on the approach to an intersection).

On-road cycle lane

Shared path

Shared paths are intended to be used by pedestrians, cyclists, people who scooter and skateboard and people who use mobility devices.

Shared path

Flexible road safety barriers/centre median barriers

Flexible wire rope road safety barriers are installed down the middle of a road to prevent head-on collisions, or along the side of the road to help stop run-off-road crashes. These barriers catch vehicles before they hit something harder, such as a pole, tree or oncoming car. If you hit a flexible barrier, the steel cables flex, slowing down your vehicle and keeping it upright. They absorb the energy of the impact, which means that you and your passengers don’t. When safety barriers are installed, they can reduce the number of people killed or seriously injured in crashes by 75 percent.

Flexible road safety barriers
Credit: Waka Kotahi NZ Transport Agency

Turnaround bay

Where there are median barriers, you may need to travel a bit further to turn right, or turnaround, to access a road or driveway. Turnaround bays provide drivers a place to turn safely.

Benefits of turnaround bays include:

  • an easier right-turn out of a side road or driveway, as you won’t need to navigate opposing lanes of traffic
  • reducing the risk of a rear-end crash from someone driving behind a person turning right
  • combining accessways and turning points at a safe location on the road
  • providing an alternative location for people driving to safely stop, such as for maintenance and in an emergency.

Watch this video to see an example of a turnaround bay. Credit: Waka Kotahi NZ Transport Agency

 

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