Te Tumu Strategic Planning Study PART TWO – SUMMARY TECHNICAL INFORMATION
Page | 35 Background and Context
SmartGrowth Settlement Pattern The SmartGrowth Settlement Pattern Review (SPR) seeks to determine the temporal and spatial blueprint for allocating residential and industrial growth within the Western Bay of Plenty sub-region over the next 30 years, whilst retaining a 50 year strategic horizon. The SPR also signals work required in terms of structure planning and plan changes to ensure adequate land supply out to a 10 year horizon. These planning horizons are illustrated below:
50 Year Strategic Horizon
30 Year Settlement Pattern and Infrastructure Strategy
Ten Year Plan Plan changes Structure Planning
Figure 3 – SmartGrowth – The Planning Horizons (Settlement Pattern Review Project Plan)
Page | 36 The SPR was intended to be delivered as part of the 2013 SmartGrowth Strategy update. However, following the postponement of the 2011 census, the SmartGrowth Implementation Committee delayed this review, but determined that some work would be required to ensure adequate development capacity in the face of strong growth. The Option 3B projects, which include the Te Tumu Strategic Planning Study, are an accelerated work programme aimed to address the Western Bay of Plenty sub-region’s continuing growth pressure.
The Western Bay of Plenty sub-region and Tauranga in particular, continues to experience strong population growth and this growth trend is projected to continue. Population projections for Tauranga see it reaching a population of 161,565 by 2033 (an increase of 38,814 from 2016). Recent monitoring of resource consent data to the end of December 2015 has signalled growth is currently tracking faster than projected, at approximately eighteen percent above projections (over the period from mid-2013 to the end of 2015).
The Western Bay of Plenty District is growing at a slower rate. For the two years from the 2013 Census to June 2015 the District’s number of new dwellings was 32% lower than that projected in the SmartGrowth review. The average annual figure was 320 new dwellings against the SmartGrowth figure of 386. However, the growth rate has increased significantly in the current year (2015 -2016) equating to an annual figure of 426 new dwellings for the June 2016 year.
At 30 June 2015, there was capacity for approximately 10,500 additional residential dwellings in zoned urban growth areas within Tauranga City. In the Western Bay of Plenty District, there is capacity for an additional 2,735 residential dwellings within the zoned urban growth areas. This is a theoretical capacity and local shortages of available sections exist in Katikati and Te Puke in the short term.
For Tauranga City an additional 47,900 dwellings are projected between 2013 and 2063 according to the adopted SmartGrowth projections. With the current estimated greenfield residential land supply of 10,500 dwellings, and assumed infill (+5,100 dwellings) and intensification (+2,100 dwellings) yields, deducted from the projected dwelling total, a shortfall of 27,400 dwellings to be accommodated in future greenfield areas remains. The remaining 10,500 greenfield land supply is estimated to provide for 10 years of residential greenfield growth.
The following timeframes for delivering additional greenfield land supply are thought to be reasonable based on the current process for rezoning further land, assuming parallel Resource Management Act processes for the District Plans and the Bay of Plenty Regional Policy Statement.
Page | 37 Key Step Timeframe Complete Settlement Pattern review Option 3B Project 1 Year + Preparation of Plan Changes (RPS, City/District Plans) 1 Year + Notification of Plan Changes, including submissions/further 1 Year submissions and hearings Appeals 1 Year Contingency 1 Year Total 5 years
Based on the current timelines for the SPR and subsequent Resource Management Act processes, the current 10 year greenfield land supply is expected to diminish to only 5 years of land supply before further land would be rezoned for residential development. It is anticipated that it may take a further 1 to 2 years to supply the necessary infrastructure to a new growth area that would enable development to actually commence (which may leave only 3 years of greenfield land supply).
Additional capacity is therefore required to address the projected shortfall in capacity. It is anticipated that without delivering the additional capacity provided by the proposed Te Tumu Urban Growth Area and the other Option 3B projects, there will be no more greenfield capacity available by 2026. New greenfield areas need to be identified and planned well in advance of this date, to ensure capacity can be taken up at the appropriate time.
Page | 38 Introduction to the Te Tumu Strategic Planning Study
The Te Tumu Strategic Planning Study area is located in Papamoa East, around 20-30km from the Tauranga City Centre. It is bounded by the Pacific Ocean to the north, the Kaituna River, rural land to the east and south and the Wairakei Urban Growth Area to the west, in which residential development is now underway. It sits within the SmartGrowth Eastern Corridor as shown in Figure 4.
The Te Tumu Strategic Planning Study area has been identified for future urban development by the Tauranga City Council (TCC) for some time.
The role of Te Tumu as a future urban growth area was formalised through the SmartGrowth Strategy in the early 2000’s and subsequently through Change 2 to the Bay of Plenty Regional Policy Statement. The Te Tumu Strategic Planning Study area was rezoned from Rural to Future Urban in the development of the now operative Tauranga City Plan.
The Te Tumu Strategic Planning Study area covers 746.4ha which is currently used for farming purposes. Other lesser land uses include forestry, sand mining, market gardening and a small number of lifestyle blocks.
Approximately 343.7ha of the total land area is assessed as being developable land free of planning constraints through this Study.
Figure 4 – SmartGrowth Eastern Corridor
Page | 39 The 7 main landowner groups within the Te Tumu Strategic Planning Study area are as below, noting there are other smaller land blocks within the growth area – being 14 landowner areas in total (refer Attachment A – Part 3 for identification of landowner block identification):
Owner
Site 1 Tumu Kaituna 14 Trust. Site 2 Tumu Kaituna 7B1. Site 3 Tumu Kaituna 7B2. Site 4 Tauranga City Council/Western Bay of Plenty District Council (Carrus/Hickson Development Interests). Site 9 Tumu Kaituna 8B1. Site 10 Catalyst (Highrise) Limited.
Site 11 Ford Land Holdings. Site 12 Tumu Kaituna 11B2. Site 14 Tumu Kaituna 16.
The majority of the land holdings in the Te Tumu Strategic Planning Study area are large, although there a small number of more fragmented blocks throughout the area. 87.4% of the land area is owned by three parties:
· Tumu Kaituna 14 Trust – 240ha; · Tauranga City Council/Western Bay of Plenty District Council (Carrus/Hickson Development Interests)) – 170ha; and · Ford Land Holdings/Properties – 243ha.
Page | 40 Purpose of the Te Tumu Strategic Planning Study The purpose of the Te Tumu Strategic Planning Study is to: · Consider resource management issues and responses for the possible urban development of the Te Tumu Urban Growth Area within the wider Eastern Corridor: · Document (collate, analyse) key opportunities and constraints to urban development in the study area; · Assess and identify potential fatal flaws having regard to development impacts on the wider environment, and the commercial feasibility of urban development consistent with the SmartGrowth strategy and the Regional Policy Statement; · Determine (at a high level), and in conjunction with the key landowners, the most appropriate location and density of housing, commercial, industrial and social infrastructure in order to deliver a compact, live, work, learn and play community as part of the continued development within the Eastern Corridor having regard to the opportunities and constraints; and · Make recommendations as to whether the planning for the Te Tumu Urban Growth Area should proceed to the next step of a structure planning and Plan Changes pursuant to the RMA (including public and private plan change options) as well as either stand alone or conjoint Regional Policy Statement and City Plan changes.
The Te Tumu Strategic Planning Study does not deliver a future zoning change, final structure plan or section 32 analysis. Rather the Study is being undertaken to ensure that a zoning change process is viable and that all high level issues that have been identified can be resolved prior to work being undertaken on a structure plan.
The Te Tumu Strategic Planning Study takes account of land use and infrastructure integration of the Te Tumu Urban Growth Area within the context of the SmartGrowth Eastern Corridor and its components as set out in Figure 5.
Figure 5 – Regional Context and SmartGrowth Corridors Page | 41 Therefore, this Project, and this ‘Outcomes Report’, is Stage One of a potential two stage process, as outlined below:
· Stage One: Te Tumu Strategic Planning Study (main opportunities/constraints/situation context – potential fatal flaws determination); and · Stage Two: Detailed structure planning exercise and Schedule 1 Resource Management Act plan change process, including, potential operative Regional Policy Statement (RPS) change.
To deliver on the project four key workstreams (Figure 6), were established and are reported on separately in this report:
· Constraints mapping and investigation including consideration of the operative Regional Policy Statement and relevant regional plans and the Tauranga City Plan. · Infrastructure Servicing Requirements; · Financial Viability for both the public sector and developers / landowners; and · Cultural/Heritage/Tangata Whenua.
The key workstreams are summarised in the adjoining diagram, and further discussed in each key section of this Report.
Figure 6 – Workstream Summaries
Page | 42 While the above is the means in which the Te Tumu Strategic Planning Study has proceeded, it is however required to deliver on one core task.
That is to ‘determine any ‘fatal flaws’ to the delivery of the Te Tumu Urban Growth Area’.
For the purposes of this Study a definition of a ‘fatal flaw’ has been identified as the identification of a reason why the growth area could not be urbanised or proceed any further’.
Page | 43 Te Tumu Landform Assessment
Landscape (& Site) Characterisation Growth Are Location The Te Tumu Urban Growth Area/Te Tumu Strategic Planning Study Area is outlined in Figure 7 and encompasses approximately 5.5km (in length) of rural land. It is bordered by Papamoa suburb to the west, the Pacific Ocean to the north and Kaituna River to the south and east.
Figure 7 – Te Tumu Urban Growth Area/Te Tumu Strategic Planning Study Area
Page | 44 Topography The topography of the study area is variable as shown in Figure 8. The stretch of land along the coastline consists of sand dunes which are undulating and at a higher elevation (ranging from approximately 3m to 9m above sea level) whereas the land along the Kaituna River is relatively flat and at a lower elevation (ranging from approximately 1m to 2.5m above sea level). Those lower areas, identified in the purple and blue hues below, are potentially floodable in high rainfall events or as a result of the Kaituna River being in flood.
Figure 8 – Te Tumu Urban Growth Area Elevation.
Page | 45 Geology Published geological information indicates that Te Tumu is mostly underlain by coastal beach deposits to the north, and swamp or alluvial deposits to the south. Both sets of deposits are identified on the geological maps as Holocene-aged. The coastal beach deposits comprise sand and minor gravel of the Tauranga Group. The southern swamp/alluvial deposits run adjacent to the northern bank of the Kaituna River and comprise dark brown to black peat, organic rich mud, silt and sand also of the Tauranga Group.
Hydrology Te Tumu is divided into three main catchments, identified as the northern, middle and riverside. The northern catchment sits within the wider Papamoa Comprehensive Stormwater Catchment area and is governed by the consent that applies to that catchment.
The middle and riverside catchments are also covered by this consent, however are they are specifically defined catchments. The northern catchment which comprises the Wairakei Stream corridor is used for stormwater purposes for all of Papamoa. All stormwater within this catchment is managed through ground soakage.
The middle catchment is generally a closed catchment, where all rainfall soaks into the ground and groundwater table. The riverside catchment flows generally into the Kaituna River, or into the ground.
However there is a northern, middle and riverside catchment, further analysis using the ARC GIS Watershed Tool (Figure 9) allows specific delineation of the total area of a specific contributing catchment to a final outlet point (i.e. the sea or river). The tool is useful in understanding hydro- dynamics, but also defining specific individual sub catchments.
Figure 9 – ARG GIS Watershed sub Catchments Page | 46 Land use Almost the entire Te Tumu Urban Growth Area is used for pastoral farming. Specific areas along the eastern half of the coastal dune system have been planted in pine forests, as are specific areas along the edges of the Wairakei Stream, and the in land higher tertiary dune systems within the eastern end of the Growth Area. There is an existing sand mine within Site 1 of the Growth Area.
The entire Te Tumu Urban Growth Area has been zoned as Future Urban, with this occurring through the development of the now operative Tauranga City Plan. A range of Plan Areas exist over the Urban Growth Area within the operative Tauranga City Plan, including Outstanding Natural Features and Landscapes, Important Amenity Landscapes and Special Ecological Area (Category 1 and 2) Plan Areas.
Vegetation As the majority of the Te Tumu Urban Growth Area is in pastoral use and forestry, limited vegetation remains outside of grassed areas. Areas where native vegetation remains are either along the river banks of the Kaituna River or form part of the wider coastal dune system. Within these areas high value ecological areas exist, which are further described in the body of this report and are recognised as Special Ecological Areas (Category 1 and 2) in the Operative Tauranga City Plan.
Page | 47 Constraints Mapping – Te Tumu
The constraints investigations and mapping component of the Study aimed to address the following matters: · Development of a composite list of all known or potential constraints, including natural hazard risks such as tsunami and liquefaction; · The undertaking of modelling to understand risks of potential constraints, where known constraints may lead to future growth risks; and · The determination of whether any of those potential constraints would significantly limit the ability to provide for future urban growth to be provided for within the Te Tumu Urban Growth Area, in terms of progressing a Resource Management Act zone change, or the growth areas financial viability.
To deliver on the above the following potential constraints were researched, modelled and considered:
· Outstanding Natural Features and Landscapes; · Important Amenity Landscapes; · Natural Character Areas; · Special Ecological Areas (Category 1 and 2); · Significant Archaeological Sites; · Significant Maori Areas; · Sea Level Rise; · Flooding (from the Kaituna River); · Stormwater Management; · Liquefaction; · Coastal Erosion; and · Tsunami.
Each of these constraints are analysed below, with additional technical information provided in Part 3 (where relevant).
Page | 48 Outstanding Natural Features and Landscapes and Important Amenity Landscapes A significant amount of research has been undertaken by both the Bay of Plenty Regional Council (BOPRC) and TCC in relation to landscape value and natural character value identification within the Western Bay of Plenty sub region. These reports include:
· Boffa Miskell (1993) A Landscape Assessment of the Bay of Plenty Coastal Environment, Report prepared for Environment Bay of Plenty · Boffa Miskell (1993) Western Bay of Plenty District Visual Landscape Evaluation, Report prepared for the Western Bay of Plenty District Council. · Boffa Miskell (2006) Outstanding Natural Features and Landscapes: Bay of Plenty Coastal Environment, Report prepared for Environment Bay of Plenty. · Boffa Miskell (2007) Outstanding Natural Features and Landscapes Review, Report prepared for Environment Bay of Plenty. · Boffa Miskell (2009) Outstanding Natural Features and Landscapes Review in Inland Bay of Plenty, Report prepared for Environment Bay of Plenty. · Environment Bay of Plenty Planning Documents: o Regional Coastal Environment Plan, o Regional Water and Land Plan, o Regional Policy Statement (RPS). Figure 10 - Outstanding Natural Features and Landscapes and Important Amenity Landscapes
Page | 49 These reports, and others which exist, all aid in forming a position on the constrained landscape and natural character areas within the Te Tumu Growth Area.
Through the development of the Tauranga City Plan, TCC undertook specific investigation into the landscape values within Tauranga and Te Tumu. The Tauranga City Landscape Study: A review of the landscape study for the City of Tauranga (Boffa Miskell 2009) was prepared to identify outstanding natural features and landscapes through utilising the criteria outlined within the operative Regional Policy Statement.
The assessment concluded that the Te Tumu area contained both outstanding natural features and landscapes and important amenity landscapes, both of these being along the open coastal dune system (Figure 10). These features were identified, assessed and ranked based upon a scoring methodology as outlined in the Boffa Miskell report and undertaken in accordance with the requirements of the operative Regional Policy Statement.
These areas have since been recognised within the operative Tauranga City Plan and afforded protection from varying forms of development and modification in accordance with the requirements set out in that Plan.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by the outstanding natural features and landscapes and important amenity landscape plan areas is:
· Outstanding Natural Features and Landscapes: 37.77Ha. · Important Amenity Landscapes: 28.25Ha.
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process Through the structure planning process additional investigation could be undertaken to further refine boundaries. In considering this further work, it should be recognised that on-site ground-truthing investigations were undertaken through the development of the City Plan - Plan Areas. Thus any refinement identified is likely to be very limited and will have limited consequences in terms of the extent of the outstanding natural features and landscapes and important amenity landscapes plan areas.
Page | 50 Natural Character Areas In 2013 BOPRC commissioned an assessment of the natural character of the Bay of Plenty Coastal Environment. This was undertaken to meet the requirement of the New Zealand Coastal Policy Statement – Policy 13 (and section 6(b)) of the Resource Management Act 1991.
The focus of the assessment was to map areas with high and outstanding natural character.
The assessment concluded that the Te Tumu Urban Growth Area contained two locations where the natural character features were ranked of high natural character, being part of the open coastal dune system and the Kaituna Wetland.
In the context of this report it is recognised that these areas are now specifically provided for within the operative Reginal Policy Statement and afforded recognition through the varying policies in place.
It is noted that these areas (Figure 11) are not identified within the operative Tauranga City Plan as no formal plan change has been promoted by TCC to recognise and provide for their protection at this time.
Irrespective, these areas are to be considered to be constrained as the assessment process undertaken has given effect to the Resource Management Act and New Zealand Coastal Policy Statement.
Figure 11 – Natural Character Areas
Page | 51 Through the development of the structure plan, the relevant Natural Character Areas that apply to Te Tumu Urban Growth Area will need to be provided for within the operative City Plan and appropriate protection regimes put in place through the structure plan process.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by the Natural Character Areas is:
· Natural Character Areas: 53Ha.
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process Through the structure planning process, additional investigation could be undertaken to further refine boundaries, however it is recognised that on-site ground truthing investigations were undertaken through the development of the now operative Regional Policy Statement. As a result, if any refinement likely to be made will have limited consequence on the extent of the areas considered to be areas of Natural Character. .
Page | 52 Esplanade Reserves Under s230 of the Resource Management Act, an esplanade reserve or esplanade strip can be taken for one or more of the purposes of s229 of the Resource Management Act, including protection of conservation values, provision of public access, or provision of recreational use (that is compatible with the conservation values) when privately owned land is subdivided.
The taking of an esplanade reserve or esplanade strip when land is subdivided is restricted to allotments which abut the coast, lakes or rivers.
Where an allotment of less than 4 hectares is created, the presumption is that an esplanade reserve of 20 metres width will be set aside where the lot adjoins the coast, rivers, whose bed width is an average of 3 metres or more, or lakes whose bed is 8 hectares or more in area.
No specific assessment has been undertaken into the specific nature of esplanade reserves and the way in which land would be subdivided and vesting of esplanade reserves would occur if the Te Tumu Urban Growth Area were to be subdivided. Figure 12 – Natural Character Areas
Page | 53 For the purposes of this Study a 20m wide esplanade has been analysed as part of a modelled constraint analysis (Figure 12) along the length of the Kaituna River.
The 20m wide corridor aligns with Resource Management Act requirements and would run the length of the Kaituna River. Wider reserve requirements would also be required within the Te Tumu Urban Growth Area, including other esplanade reserve requirements along the open coast, noting that these are located within areas already considered to be constrained.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by the esplanade reserve along the margin of the Kaituna River is:
· Esplanade Reserve: 9.2Ha.
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Page | 54 Special Ecological Areas TCC has undertaken significant research into identifying special ecological areas within Tauranga City and Te Tumu. These reports include: · Wildland Consultants (1994) Significant Indigenous Vegetation of the Bay of Plenty Coastal Zone, Report prepared for the Bay of plenty Regional Council; · Wildland Consultants Ltd (2000) Biodiversity Monitoring for Tauranga District 2000 - Category 1 Significant Ecological Sites: Ecological Condition & Photopoint Monitoring, Report prepared for the Tauranga District Council, Contract Report 315. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – Selection of Indicators for State of the Environment Monitoring and Reporting, Report prepared for the Tauranga District Council, Contract Report 287. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – State of the Environment Reporting, Report prepared for the Tauranga District Council, Contract Report 309. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – Monitoring Manual, Report prepared for the Tauranga District Council, Contract Report 329. · Wildland Consultants Ltd (2000) Ecological Assessment of Papamoa East, Tauranga District, Report prepared for the Tauranga District Council, Contract Report 358. · Wildland Consultants Ltd (2002) Biodiversity Monitoring for Tauranga District 2002 - Category 1 Significant Ecological Sites: Ecological Condition Assessment & Photopoint Monitoring, Report prepared for the Tauranga District Council, Contract Report 483. · Wildland Consultants Ltd (2005) Indigenous Biodiversity of Tauranga City – State of the Environment Reporting, Report prepared for the Tauranga City Council, Contract Report 1256. · Wildland Consultants Ltd (2008) District Plan provisions Relating to Indigenous Biodiversity in Tauranga City (Part 1: A Review of District Plan Effectiveness), Report prepared for the Tauranga City Council, Contract Report 2027. · Wildland Consultants Ltd (2008) Indigenous Biodiversity of Tauranga City – State of the Environment Reporting – Updated 2009), Report prepared for the Tauranga City Council, Contract Report 2053.
Further studies undertaken by Wildland Consultants Ltd for the Bay of Plenty Regionals Council are also relevant, as listed below: · Wildland Consultants Ltd (2008) Significant Indigenous Vegetation and Significant Habitats of Indigenous Fauna in the Coastal Environment of the Bay of Plenty Region – addendum, to 2006 Report, Contract Report 1742. · Wildland Consultants Ltd (2008) Natural Areas in Tauranga Ecological District, Report prepared for Environment Bay of Plenty, Contract Report 1914.
It is noted that the key report that underpins this Study is the Wildland Consultants Ltd (2008) Indigenous Biodiversity of Tauranga City – State of the Environment Reporting – Updated 2009), Report prepared for the Tauranga City Council, Contract Report 2053.
Page | 55 The methodology used to assess and identity Special Ecological Areas was based upon the requirements of the operative Regional Policy Statement. The two tiered system of ranking ecological areas is based upon the relevant values present within each area. To achieve this Categories are defined as below:
Category 1 Special Ecological Areas Category 1 Special Ecological Areas are the best-quality or only remaining representative examples of indigenous flora and/or habitat of indigenous fauna within the City. This Category also includes intact altitudinal or geographic sequences across the City, or diverse assemblages of landform units, vegetation, and bioclimatic character. It is of prime importance that the factors, values and associations of these areas are protected.
Category 2 Special Ecological Areas Category 2 Special Ecological Areas are good-quality representative examples of indigenous flora and/or habitat of indigenous fauna. They include: a) Relatively small areas with vegetation types or plant taxa under-represented within the City; b) Relatively large areas with features that are represented in Category 1 Special Ecological Areas, but which are, nevertheless, worthy of protection;
Page | 56 Figure 13 – Special Ecological Areas c) Areas containing vegetation types which would once have been more common in the Tauranga Ecological District and are under- represented in Category 1 Special Ecological Areas, but which have been degraded by weed invasion, animal damage, or other similar agents; d) Relatively small areas which still retain their indigenous character or support indigenous fauna.
Category 2 areas often contain more weed species or younger, more common vegetation types that are not nationally rare. It is therefore more appropriate to consider mitigation of activities within this category, as long as these areas are managed in a way that will maintain and enhance the ecological values they support.
The assessment concluded that Te Tumu contained both Category 1 and Category 2 Special Ecological Areas (Figure 13), with these located along the open coastal dune system, Wairakei Stream and Kaituna River. These areas have since been recognised within the operative Tauranga City Plan and afforded protection from varying forms of development and modification in accordance with the requirements set out in that Plan.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by the Special Ecological Areas is:
· Category 1 Special Ecological Areas: 59.5Ha · Category 2 Special Ecological Areas: 45.48Ha
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process Through the structure planning process while additional investigation could be undertaken to further refine boundaries it is recognised that on- site ground-truthing investigations were undertaken through the development of the now operative Tauranga City Plan. As a result, if any refinement is to be made it will have limited consequence for extent of the area considered to be Special Ecological Areas.
Page | 57 Significant Maori Areas Te Tumu has a history of pre-European Maori occupation and as a result there are numerous areas of significance to local iwi and hapu throughout the City. Under section 6(e) and (f) of the Resource Management Act 1991 the Council is required to recognise and provide for the protection and cultural relationships of these areas. The operative Regional Policy Statement assessment process recognises that it is only appropriate for Maori to identify their relationship and that of their culture and traditions with their ancestral lands, water, areas, waahi tapu and other taonga; and the extent of the values associated with these areas.
Through the development of the now operative Tauranga City Plan identification of a number of areas that are culturally significant to Tangata Whenua as Significant Maori Areas were identified within Te Tumu. Significant Maori Areas were only included where the features of those areas remain and where subdivision, use and development of the Significant Maori Areas could compromise the cultural values and relationships within those Significant Maori Areas.
Te Tumu Significant Maori Areas (Figure 14) include only those areas located within the Te Tumu Future Urban Zone. These areas are generally physically intact or unmodified relative to their original function or purpose and as such are of high value to Tangata Whenua. Te Tumu Significant Maori Areas have been identified and spatially defined to ensure the values of these areas are not adversely affected through subdivision, use and development and to provide opportunity for further refinement, if appropriate through future structure planning processes.
Although the operative Tauranga City Plan has identified a number of Significant Maori Areas it is acknowledged that this list is not exhaustive, and there may be other areas which Tangata Whenua have a relationship with were not able to be included in the operative Tauranga City Plan because their values have been compromised by existing development.
Only through further engagement with iwi/hapu and development of cultural assessments will any new areas be able to be considered. However so, the work undertaken as part of the development of the operative Tauranga City Plan was extensive with many of the identified sites aligning with additional archaeological assessment work undertaken through the structure plan process.
The recognition of these sites has been further supported by additional archaeological investigation.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by Te Tumu Significant Maori Areas is:
· Te Tumu Significant Maori Areas: 12.4Ha
Page | 58 For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process Further engagement with iwi/hapu through the development of cultural assessments needs to be undertaken through any structure plan process. If additional identification of sites is undertaken then assessment is required to be undertaken in regard to significance in accordance with the operative Regional Policy Statement.
It is noted that an assessment of the cultural significance of an area can only be competently made by the affected tangata whenua. It should be noted that an assessment of cultural significance might not necessarily correlate with an assessment of archaeological significance.
Figure 14 – Significant Maori Areas
Page | 59 Significant Archaeological Sites Archaeology BOP were commissioned to undertake a desktop review of the 36 currently recorded archaeological sites within the Te Tumu Urban Growth Area.
The report reviewed archaeological information provided in the ‘Papamoa Lowlands Archaeological Survey and Heritage Assessment’ produced by Gumbley & Phillips in 2000 and subsequent archaeological and historic studies and mapping of these features through the use of geographical information systems. The outputs are provided in Figure 15. As a desk top review no field inspections of recorded archaeological sites were undertaken. It is noted that accurate assessment of the extent and significance of individual sites can, in most cases, only be achieved by additional fieldwork and investigation.
The current inventory of archaeological sites within Te Tumu represents both prehistoric and historic activity representing a diverse range of human activity spanning as much as 600 years.
While each archaeological site is itself separately identified, four different “complexes” (being similar site types focused on a defined topographical or geographical feature and being described as forming an archaeological landscape), the Fore dune site complex, the Inland Site complex, the Kaituna River complex and the Back Dune Site Complex have been identified within Te Tumu.
Within the Urban Growth Area two archaeological site concentrations that may be contemporaneous and would benefit from preservation within a single land parcel are the fore dune site complex and the concentration of river side sites extending east from Paroa to Te Tumu. Recommendations are provided for further field work to provide more accurate site boundaries, interpretation and significance to assist in developing appropriate management plans for archaeological resources within the urban growth area.
It is noted that there are likely to be unrecorded archaeological sites within the Urban Growth Area additional to the current inventory of sites. Any development proposals within land where no sites have been recorded should have in place a mitigation strategy to appropriately manage unrecorded subsurface archaeological sites if they are encountered during ground disturbance.
The technical report (Attachment C – Part 3) provides an assessment of archaeological values and does not include an assessment of Maori values.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by Archaeological Site Extents is:
· Archaeological Site Extents: 154.8
Page | 60 For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process Through the structure planning process, the following additional work is required to be undertaken:
Establishing site extent · Subsurface testing should be carried out in order to more accurately determine the extent of known archaeological sites within the study area. · Possible links between sites should be established by subsurface testing especially within the Kaituna River site complex. · The revised extent of all sites should be defined by a polygon on Council planning maps.
Establishing site location · Sites that have been identified from archival sources but have no visible archaeological Figure 15 – Archaeological Areas features should be investigated in order to better understand their location and extent.
Page | 61 Establishing site significance (of thirty six recorded sites) · Following further field survey and subsurface testing the significance of archaeological sites should be reassessed in order to determine if they should be protected or preserved.
Establishing archaeological landscapes (of thirty six recorded sites) · Following further field survey and subsurface testing links between archaeological sites that may indicate a relationship indicative of an archaeological landscape should be established and appropriate polygons established to encompass the landscape.
Establishing appropriate management strategies · Appropriate management strategies should be established for sites and groups of sites within the study area that are to be preserved.
Page | 62 Sea Level Rise As part of the assessment of tsunami hazard risk modelling undertaken by Tonkin and Taylor, considerations of future sea level rise was assessed.
The model to determine potential inundation effects was built in DHI’s Mike 21 two dimensional hydrodynamic flow model. The model operation occurred by setting the initial water level at 0.8m above Moturiki Vertical Datum. This water level is exceeded by approximately 50% of high tides and lies halfway between Mean High Water Spring (0.95m RL) and Mean High Water neap (0.687m RL). To simulate sea level rise an additional 0.8m was added to the initial water level for a total 2100 sea level of 1.6m RL.
The decision to use 0.8m as the appropriate value was taken from prior work undertaken by Tonkin and Taylor in 2014 to determine a 2100 sea level rise scenario for a separate work program being undertaken by TCC. It is noted that Tonkin and Taylor predict through their work that at 2215 sea level rise will be at 1.0m with the operative Regional Policy Statement recommending additional increases post 2115.
The sea level rise was applied to the model by ‘ramping up’ the water level over a 30minute period then allowing it to settle for 2 hours. This enabled the consideration of a still water level and also for full incursion of a rising sea through incursion onto the land.
The result is a reflection of inundation of a risen sea alone with regard to Te Tumu (Figure 16). The effect is recognised along the Kaituna River where inundation occurs of the lower reaches of the Te Tumu. Erosion effects are not considered through this modelling. Figure 16 – Sea Level Rise Page | 63 Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by the Sea Level Rise is:
· Sea Level Rise: 29.5Ha
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
The areas affected by potential future sea level rise are all contained within the floodable extents of Te Tumu. It is likely that the areas identified are greater than those mapped when higher sea level rise calculations are made and additional modelling undertaken that recognised the potential flows of the Kaituna River, rather than using still water levels. Also the mapping is made in regard to wetland and swamp areas so the extents shown on the map appear more limited that what may actually be upon detailed modelling being undertaken.
Future Structure Plan Process Effects of sea level rise (in regard to inundation alone, rather than a rising ground water table) will be limited in regard to Te Tumu. The greater inundation hazard, via current known information, will be that of flooding from the Kaituna River. While the mitigation of climate change at a global scale is not likely to affect current sea level rise predictions within this century, opportunities for earth working within the Urban Growth Area may potentially result in a greater land area be able to be developed via natural hazard mitigation opportunities.
Additional modelling is required to determine the future effects of sea level rise on Te Tumu, specifically in regard to the hazard itself, but also its result on other hazard risk such as liquefaction and coastal erosion.
Page | 64 Flooding (from the Kaituna River) The flood constraints mapping for the Kaituna River is taken from Bay of Plenty Regional Council assessment work. It is based upon a series of work programs and hydraulic design dating back to 1983, with the first hydraulic model being developed in 1991. The most recent hydraulic modelling assessment was undertaken in January 2009 with the outputs utilised as the flood map constraint for this report.
The flood model outputs show potential for significant inundation of the lower river margins of the growth area.
The outcomes of the assessment are provided for in Figure 17.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by Flooding (from the Kaituna River) is:
· Flooding (from the Kaituna River): 134.1Ha Figure 17 – Flooding from the Kaituna River
Page | 65 For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Future Structure Plan Process The Bay of Plenty Regional Council is currently building a new hydrodynamic model for the Kaituna River. This model will then give a more accurate picture of flood inundation for Te Tumu and will take into account the recently constructed Tauranga Eastern Link. The model is due for completion in the 2015/16 financial year.
The model can then be used to undertake risk based analysis to determine acceptable levels of development in accordance with the operative Regional Policy Statement and determine appropriate inundation extents.
The model will also allow for the testing of potential mitigation options of filling in parts of the floodable plains not otherwise constrained by other identified planning constraints.
As this consideration has not formed part of this assessment, it is recommended to be undertaken through additional flood modelling based upon risk assessment and earthworks management, noting potential yieldable areas may be similar to that provided in Figure 18. This analysis identifies that there is an additional 70ha potential which may be able to be provided for as future potential Figure 18 – Potential Amendment Flood Extent from the Kaituna River development areas (through reducing the risk within both tsunami and flooding susceptibility).
Page | 66 Stormwater Stormwater within the Te Tumu Urban Growth Area is required to be undertaken in accordance with the approved Comprehensive Stormwater Consent for Papamoa, consent number 63636.
For the purposes of the assessment an indicative stormwater network (Figure 19) has been developed to determine the quantum of land required for stormwater ponds, soakage and discharge to the Kaituna River via a swale system. It is noted that as part of this analysis, and for the purposes of financial assessment, an indicative location of the Kaituna Overflow from the Wairakei Stream has been selected over Site 4 (Figure 20).
Further investigation is required through the structure plan process to determine the appropriate location of the Kaituna Overflow.
The approved Comprehensive Stormwater Consent for Papamoa provides for a range of means to ensure stormwater quality and quantity is managed within set limits. The consent provides for discharge to the Kaituna River via a maximum of 6 discharge points and two of three optional high level weir discharge structures.
Timing is also provided within the consent for the selected high level discharge from the Wairakei Stream to the Kaituna River in regard to urban development commencing in the northern catchment of the urban growth area or in regard to the performance of the stormwater network within the Wairakei Stream Corridor in relation to flood event return periods and flood levels. Figure 19 – Indicative Stormwater Network
Page | 67 For Te Tumu, any new urban developments within the northern catchment are required to provide storage equal to 40% of the difference in volume between the 1 in 100 year (1% AEP) 48 hour rainfall event runoff hydrograph for the land in its modelled undeveloped state (as included in the Papamoa Comprehensive Stormwater Consent Catchment Management Plan) and the 1 in 100 year (1% AEP) 48 hour rainfall event runoff hydrograph in its developed state.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by storwmater infrastructure (ponds/swales/Wairakei Stream Corridor) is:
· Stormwater Infrastructure 87.9Ha · Kaituna Overflow (indicatively shown over Site 4): 4.9 Ha (estimate as size is location dependent.
Future Structure Plan Process Through the structure plan process consideration will need to be given to the design and location of ponds/sawles to provide for the requirements of the Comprehensive Stormwater Consent for Papamoa. Included in this will be the need to consider the timing and location of development in regard to specific infrastructure delivery targets for the construction of new assets (i.e. Kaituna Overflow).
Further investigation is required through the structure plan process to also determine the appropriate location of the Kaituna Overflow. Figure 20 – Indicative Kaituna Overflow Location
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations.
Page | 68 Liquefaction Tonkin & Taylor Ltd were engaged to undertake a high- level, preliminary assessment (Attachment D – Part 3) regarding the liquefaction vulnerability for Te Tumu. A secondary objective was to assess the increase in liquefaction vulnerability that may occur due to a shallowing of groundwater levels associated with sea level rise.
The outputs from the assessment include: · The ground conditions and results of the geotechnical investigations undertaken; · The groundwater models created for the purpose of the liquefaction assessment; · The seismic shaking hazard for the Wairakei/Te Tumu area; and · The high-level liquefaction assessment results and recommendations.
The purpose of the assessment work was to inform liquefaction vulnerability for the areas within Te Tumu and the impact sea level rise may have on the liquefaction vulnerability in those areas.
The assessment identified that there were two distinct areas within Te Tumu that had different characterises and would respond differently in regard to liquefaction. These are shown in Figure 21: Figure 21 – Liquefaction Areas
Page | 69 The liquefaction assessment at 25 years and 500 years return period levels of earthquake shaking were undertaken to account for a 0.5m and 1.0m rise in sea level. The impact of the sea level rise on liquefaction vulnerability is presented below:
SLS (1/25yr Return Period) ULS (1/500yr Return Period) Area 1 No impact. Minimal impact. Liquefaction is not expected to trigger at 25yr levels In most instances, the depth to groundwater is still greater than of earthquake shaking. 3.5m so ground surface damage is generally not expected. Area 2 No impact. Moderate impact. Liquefaction is not expected to trigger at 25yr levels The depth to groundwater is generally less than 3.5m and shallower of earthquake shaking. as a result of sea level rise so ground surface damage is expected to increase.
The conclusions reached recognise that Area 1 and 2 have similar soil profiles in the upper 10m from the ground surface. However, the two areas have different vulnerability to liquefaction. Area 1 is less vulnerable to liquefaction damage at the ground surface because it generally has a greater crust thickness whereas Area 2 has a thinner crust and is therefore more vulnerable to liquefaction damage.
Liquefaction is not expected to trigger at 25 year return period levels of earthquake shaking. At 500 year return period levels of earthquake shaking, liquefaction is expected at depth in Area 1 resulting in little or no ground surface expression of liquefaction. In Area 2, liquefaction is expected close to the ground surface, likely resulting in ground surface expression of liquefaction (e.g. sand boils). Lateral spreading may also occur in both areas at 500 year levels of earthquake shaking.
Sea level rise will increase the site’s vulnerability to liquefaction damage, particularly in Area 2 since the groundwater table is already close to the ground surface. The increase of sea level in this area will thin the non-liquefiable crust, increasing the vulnerability of the site to liquefaction.
The preliminary high-level liquefaction assessment suggests the land is likely to be suitable for urban development purposes. However, a more detailed liquefaction assessment for the 100 year level of earthquake shaking needs to be undertaken to confirm this, along with undertaking risk based analysis in line with Change 2 of the operative Regional Policy Statement. The preliminary assessments also suggests some of the land (in particular Area 2) is likely to require specific foundation design and/or ground improvement to mitigate the potential effects of liquefaction damage due to the presence of liquefiable soils below the ground surface.
Total Area Constrained for Analysis For the purposes of this Study it is not considered that there is a constrained land area that requires further consideration for financial analysis. This is because the analysis to date suggests that development will not be impeded by liquefaction within the unconstrained areas of Te Tumu, however further research is required to determine risk in accordance with Change 2 to the operative Regional Policy Statement.
Page | 70 Future Structure Plan Process Through the structure plan process (and prior to in regard to the last two bullet points, below) additional detail analysis on liquefaction will be required to be undertaken. This includes the following key matters:
· Undertake a detailed liquefaction assessment for the 100 year level of earthquake shaking to inform subdivision consenting and plan change processes, including undertaking a risk based assessment in accordance with Change 2 to the operative Regional Policy Statement.
· Undertake detailed geotechnical investigations to inform future foundation design and building consent applications.
· Reassess the liquefaction vulnerability using design profiles prior to or following any earthworks design or liquefaction mitigations works (i.e. changes to the soil properties and/or site topography are likely to impact the liquefaction vulnerability of the site).
· Undertake a detailed lateral spreading assessment using available empirical methods to get a better understanding of the likely extent of lateral displacements at different levels of earthquake shaking.
· Continue to monitor groundwater levels in existing monitoring wells, particularly if earthworks are expected to take place. This would allow for more accurate future liquefaction assessments.
· Consider installing additional monitoring wells in the western part of the Te Tumu Urban Growth Area to gain a better understanding of groundwater levels in that area. This would also allow for more accurate future liquefaction assessments.
Page | 71 Coastal Erosion For the majority of the open coast TCC operates a managed retreat based regulatory framework. This includes the assessment and mapping of likely erosion over the 100 year period based upon beach profile monitoring and LiDAR surveys. Three lines are provided being the Current Erosion Risk Zone, 50 year (2060) Erosion Risk Zone and the 100 year (2110) Erosion Risk Zone. All three combined are known as the Coastal Hazard Erosion Plan Area (CHEPA).
For Te Tumu, a coastal protection area was created. This was developed to identify areas of the undeveloped future urban zoned land along the open coast. The hazard zone of 74m from the toe of the fore dune was adopted to identify the actual likely to be at risk areas of Te Tumu from coastal erosion within a 100 year period (Figure 22).
In 2009, TCC commissioned Tonkin & Taylor to update the coastal erosion hazard risk zones along the open coast between Mount Maunganui and the southern end of Papamoa, but excluding Te Tumu. Council undertook this review as it committed through the then operative District Plan to undertake 5 yearly reviews, taking into account any new information and the ongoing profile monitoring.
Since this time TCC has also increased its beach profile monitoring locations and undertakes quarterly surveys of these. Te Tumu has now been included in monitoring of beach profiles with surveying being undertaken from early 2016
As part of this Study, TCC re-ran the coastal hazard erosion methodology for Te Tumu to determine the likely CHEPA. This has been run over the length of the Te Tumu open coast to determine potential future erosion. Figure 22 – Coastal Plan Protection Area Page | 72 The outputs are provided in Figure 23.
The effect of future erosion is considered to be relatively low given the significant volume of sand within the existing dune area.
Any erosion which may occur is also within fully constrained areas that are landscape and ecological areas, and therefore not likely to affect future urban development.
Figure 23 – Coastal Hazard Plan Area – Draft Test
Page | 73 Tsunami In November 2013 Tonkin and Taylor submitted a report to TCC titled Tauranga Tsunami Inundation Modelling. This report analysed likely peak flood depth and safety in response to a credible upper bound tsunami on the Tauranga coastline. The analysis was based upon the tsunami occurring against sea level for the year 2015. The outputs were used for both tsunami inundation mapping and evacuation planning.
As part of the Te Tumu Strategic Planning Study Tonkin and Taylor were recommissioned to undertake tsunami modelling. The additional modelling included re-running the tsunami inundation model using an estimate of sea levels at 2100 (and described elsewhere in this Study) rather than present day (2015) sea levels. The final assessment report is provided in Attachment E – Part 3.
As part of all tsunami modelling three digital elevation models were run separately to determine effects of tsunami inundation on varying ‘potential’ development landforms. The purpose of this is to not only model incursion on current landforms, but a likely landform following earthworks to enable urban development considerations.
The three scenarios are identified as: · Scenario 0 – Existing Landform; · Scenario 1 – Flat Earth with Mitigation; and · Scenario 2 – Flat Earth.
Scenario 0 uses the existing topography determined from LiDAR by TCC which was flown during 211/12. The LiDAR data was modified to represent the topography of the Tauranga Eastern Link.
Scenario 1 maintains the mapped constrained areas of: · Outstanding Natural Features and Landscapes; · Important Amenity Landscapes; · Natural Character Areas; · Special Ecological Areas; · Significant Archaeological Sites; · Significant Maori Areas; and · Flooding (from the Kaituna River).
The ground level adjacent to the Kaituna Cut is raised to between 7.1 and 8.1m RL also to reflect likely finished ground levels following earthworks.
Scenario 2 relates to the current LiDAR ground model with estimated ground level at Te Tumu and Wairakei to reflect likely earthworks to the area to create building platform levels of 6.1m and 5.1m respectively.
Page | 74 For the purposes for constraints mapping a hybrid of the outcomes of Scenario 0 and 1 are considered. This is because the outputs provide the more likely extents based upon earth working within Te Tumu and will reflect likely credible upper bound tsunami inundation.
Total Area Constrained for Analysis The total area within the Te Tumu Urban Growth Area identified as being constrained by Tsunami is:
· Tsunami: 273.4Ha
For the purposes of the financial assessment these land areas are considered fully constrained and no allowance is made for any form of urban development within these locations, however in it is likely, as this is the credible upper bound tsunami development is likely to be able to occur within these risk areas.
Future Structure Plan Process As TCC has developed a working tsunami model, a range of wave heights can be analysed to undertake risk based assessment to deliver upon Change 2 to the operative Regional Policy Statement acceptable risk requirement. However so, further analysis can also be undertaken in regard to the digital elevation model to determine if full mitigation is possible in regard to the credible upper bound tsunami, rather than undertake risk assessment at all.
Figure 24 – Tsunami Inundation Directional Flow
Page | 75 As this consideration has not formed part of this assessment, it is recommended to be undertaken through additional tsunami modelling based upon risk assessment and earthworks management.
It is noted that initial investigation has begun on this matter which considers how the tsunami flows over the dune system and up the Kaituna River.
An example of this, for the eastern end of the Te Tumu Urban Growth Area, is shown in Figure 24. Cross sections were taken to determine how energy is dissipated by the frontal dune system and how additional volume of storage along the back of the dune system, (such as a road corridor) could aid in alleviating certain risk.
This is particularly shown in Figure 25 which recognises the benefit of the Wairakei Stream to provide storage and dissipate energy.
Such methods to dissipate the tsunami, and also provide for storage behind the dune system, may aid in reducing the credible upper bound tsunami and free up land for potential development.
Testing of potential mitigation options can be Figure 25 – Tsunami Inundation Cross Section undertaken through the model, including consideration of ground levels and infrastructure design.
Wider risk assessment can also be undertaken as part of tsunami modelling, as Change 2 to the operative Regional Policy Statement recognises a limited range of consequences as part of an acceptable risk.
Page | 76 Constraints Mapping The constraints mapping component of this project has been completed. This covers off the following:
Constraints Considered Outstanding Natural Features and Landscapes Important Amenity Landscapes Natural Character Areas Special Ecological Areas Significant Archaeological Sites Significant Maori Areas Tsunami Sea Level Rise Flooding (from the Kaituna River) Stormwater Management Liquefaction Coastal Erosion
The outputs have resulted in the determination of constraints and unconstrained land, as outlined in the table below, and as shown on the total constrained land area map (Figure 26). The outputs revel that only 46% of the land area is free of planning constraints and considered potentially developable.
Total Ha - All Development Blocks Constrained: 402.7 Unconstrained: 343.7 Total Assessed Area 746.4
The above excludes: · provision for a 20ha active reserve; · potential school sites (of which it is anticipated that there would be two primary schools and one secondary school); and · land required for roading purposes, such as collector roads (i.e. extension of Te Okuroa Drive through Te Tumu).
Opportunities exist to increase the developable area for additional development through flood plain and tsunami risk mitigation. This would require more in-depth analysis including modelling and risk analysis to determine whether such developable land areas can appropriately be mitigated to acceptable risk levels.
Page | 77 Legend Te Tumu Future Urba n Zo n e Amen ded Archa eo lo gica l Exten t City Pla n , Sign ifica n t Ma o ri Area s CityPla n , Outsta n din g Na tura l Fea tures An d La n dsca p es Pla n Area City Pla n , Imp o rta n t Amen ity La n dsca p es Pla n Area City Pla n . Sp ecia l Eco lo gica l Area - Ca tego ry 1 City Pla n , Sp ecia l Eco lo gica l Area - Ca tego ry 2
UM78 Sea Level Rise In un da tio n Sto rmw a ter Reserve Wa ira kei to Ka itun a Overla n d Flo w Pa th Ka itun a Po ssible Flo o d Area City Pla n , Co a sta l Pro tectio n Area Regio n a l Po licy Sta temen t, Na tura l Cha ra cter - Ra tin g: High Pro p o sed Esp a n a de Reserve TCC Tsun a mi – Po ssible In un da tio n Area
UM76
UM77
UM74
UM79
UM75
UM80
UM81
0 0.25 0.5 1 Km
1:7,200 GIS - 2746 Constraints - Te Tumu Future Urban Zone Displaying Amended Archaeological Extent - Tauranga City Council - E Outcomes of Tangata Whenua; Cultural and Heritage Engagement
Introduction The Tangata Whenua /Cultural and Heritage component of this project aimed to address: • The identification and mapping of Significant Maori Areas and Significant Archaeological Sites, cultural landscapes and other taonga. Discussions with iwi and hapu associated with these as to desired/potential mechanisms including the extent of land area affected in the overall Te Tumu Growth Area; • Potential environmental concerns of iwi/hapu in relation to development in Te Tumu and desired potential mechanisms to address these concerns; • Potential concerns and impacts on the Kaituna River of development in Te Tumu with a particular focus on the issues of concern to Te Maru o Kaituna River Authority; • Statutory Acknowledgements and potential impacts on development within Te Tumu; • The aspirations of Maori landowners in relation to utilisation of their land holdings in Te Tumu.
Under section 6(e) and (f) of the Resource Management Act TCC is required to recognise and provide for the protection and cultural relationships of these areas. The operative Regional Policy Statement assessment process recognises that it is only appropriate for Maori to identify their relationship and that of their culture and traditions with their ancestral lands, water, areas, waahi tapu and other taonga; and the extent of the values associated with these areas.
The Te Tumu Urban Growth Area and the adjoining Wairakei Urban Growth Area is an area where historically multiple iwi and hapu have been associated, including both Tauranga Moana iwi and hapu and Te Arawa iwi and hapu. Given this, a large number of iwi and hapu have been involved in this component of the Study.
Identification of Iwi and Hapu of the Study Area As identified in the preceding constraints section of this report Te Tumu has a history of pre-European Maori occupation and traditionally the Papamoa area has been associated to Mataatua, Te Arawa and Takitimu waka.
In identifying the iwi and hapu with relationships to this area reference was made to TCC’s Relationship Agreements with Tauranga Moana and Te Arawa hapu iwi and hapu; iwi and hapu management plans for the area and other records and documents held by TCC including previous Cultural Impact Assessments prepared for the Papamoa East Urban Development Strategy.
In addition reference was made to Statutory Acknowledgments arising from Treaty Settlements and the Office of Treaty Settlements website as well as Te Kahui Mangai, the website owned and maintained by Te Puni Kokiri, which provides information to local authority on iwi authorities and groups that represent hapu for the purposes of the Resource Management Act.
Page | 79 Using these sources the following Iwi and Hapu were identified as being associated with the Study Area:
Ngai Te Rangi; Ngati Pukenga; Nga Potiki; Tapuika; Ngati Whakaue ki Maketu; Waitaha; Ngati Pikiao; Te Ure O Uenukukoopako; Ngati Whakaue; Ngati Rangiwewehi; Ngati Rangiteaorere.
Of these iwi and hapu Ngai Te Rangi; Ngati Pukenga; Nga Potiki; Tapuika; Ngati Whakaue ki Maketu; Waitaha have relationships with the Tauranga City Council and are based in the Western Bay of Plenty. Cultural Impact Assessments for the previous Papamoa East Urban Development Strategy involved Nga Potiki; Tapuika; Ngati Whakaue ki Maketu; Waitaha.
These have been the key iwi/hapu in relation to the cultural heritage workstream the Study team have worked with and an initial hui was held for these parties (with Ngati Pukenga and Ngai Te Rangi also invited) to provide an overview of the Strategic Planning Study. These have been followed with ongoing hui with Nga Potiki; Tapuika; Ngati Whakaue ki Maketu; Waitaha resource management representatives to discuss progress on the study and discussion of outcomes as they have emerged.
Other iwi hapu identified as having links to the area were also advised of the Study and invited to participate. At this stage of the Study many of the Rotorua based Te Arawa iwi and hapu have opted to be kept informed of progress of the Study through newsletter updates.
In addition contact was made with the SmartGrowth Combined Tangata Whenua Forum; the Tauranga Moana Tangata Whenua Collective (Tauranga City Council) and the Partnership Forums of the Western Bay of Plenty District Council. These groups received presentations and the opportunity for feedback on the Study so that all tangata whenua in the wider context of the Western Bay of Plenty were aware of the Study and the contacts for the study.
Outcomes of Discussions on Te Tumu Strategic Planning Study In terms of response to potential urban development itself in Te Tumu it was realised early on that given the high level nature of the Te Tumu Strategic Planning Study (the Study) detailed cultural assessments by the iwi and hapu of the area would not be possible as part of this early phase as there was no detailed structure plan or zoning pattern for the overall study area to respond to. It was recognised that level of response from the iwi hapu should be part of a more detailed planning process when urban development proceeds as a result of the findings of the Study.
The focus of the subsequent meetings with iwi/hapu was therefore to discuss the progress on the constraints and modelling work being undertaken and provide for feedback/information exchange between the project team and the iwi/hapu. It is noted that tangata whenua concerns and commentary ranged across the workstreams with some overlap due to the holistic world view of tangata whenua.
Page | 80 Recognition of Significant Maori Areas and Significant Archaeological Sites, cultural landscapes and other taonga; Constraints Mapping Prior to meeting with iwi/hapu groups (Nga Potiki; Tapuika; Waitaha and Ngati Whakaue ki Maketu) a mapping exercise was undertaken for each that drew on the relevant iwi and hapu management plans for the area and other records and documents held by TCC including previous Cultural Impact Assessments prepared for the Papamoa East Urban Development Strategy. The mapping also drew on Statutory Acknowledgments and Deeds of Settlements.
For each of the iwi/hapu a series of maps were produced that identified: a) City Plan based information: Outstanding Natural Features and Landscapes; Important Amenity Landscapes; Special Ecological Areas; Significant Maori Areas; Te Tumu Archaeological Management Areas, Significant Archaeological Sites; b) Significant Maori Areas (Tauranga City Plan); Significant Archaeological Sites (Tauranga City Plan); Tauranga City Council GIS information on archaeological sites; c) Maps of the Te Tumu Strategic Planning Area in the context of the iwi/hapu wider area of interest; and d) Maps of the Significant Features identified by each iwi/hapu in the surrounding area e.g. maunga, awa etc.
These maps provided the basis for the first meetings with representatives of these iwi and hapu. The plans were provided for discussions and for amendment if other features needed to be recorded. (It is noted that the Significant Maori Areas and Te Tumu Archaeological Management Sites of the operative Tauranga City Plan were also identified and addressed as part of the constraints mapping workstream as detailed in the preceding section of this report.)
The feedback received on the mapping exercise was: · It was stressed by a number of the iwi/hapu that each iwi/hapu had their own whakapapa and oral traditions in relation to the Study area and that each could only speak for themselves in terms of their sites/features of significance. It was also indicated that matters of overlap between iwi/hapu were an issue for the relevant iwi/hapu to discuss with each other and then provide feedback to TCC. · There may be further sites which iwi hapu have not identified in the past for cultural reasons. · It was noted that earthworks could uncover unknown sites, findspots or koiwi. Iwi and Hapu would look to ensure that TCC’s earthworks protocol was applied and followed in the event of discovery.
No new sites were directly identified for addition to the maps at this point in time. It was identified that the protection of these various types of sites/features was a key issue. The potential use of silent files to protect previous sites that had not been identified through the previous City Plan review for cultural reasons was raised. The concept was that an area could be generally identified and then iwi monitors would be present on site when earthworks were undertaken. Other suggested mechanisms for the protection of sites was to manage them through zoning, conservation and management mechanisms.
Page | 81 Keen interest was expressed in the archaeological desk top review and involvement in reviewing that work and participating in further fieldwork which might arise in relation to archaeological sites and their extents. .
Nga Potiki was concerned to ensure that the cultural landscape/context of the Study area was identified and celebrated/marked for ongoing reference. It was suggested that “markers” could range from physical markers, to ensuring access to mahinga kai/other resource areas to reserves being placed over sites.
Impacts on Physical Resources Kaituna River and Wetlands; Wairakei Stream The importance of the Kaituna River and wetlands to iwi and hapu was highlighted, as was the desire for the wetlands to be a filter to protect the river. A key point of concern was whether there would be any earthworks in the flood plain areas and it was noted that there was a desire to understand what this might look like. It was signalled that canal styled development would be of concern to Tapuika. For Ngati Whakaue ki Maketu the potential development of marinas and bridging of the Kaituna were identified as a concern. Nga Potiki identified their relationship with the Wairakei Stream.
Infrastructure Servicing Requirements, Costs and Options for Alternative Infrastructure Potential for Alternative Water Supply The potential for alternative systems for water in the Te Tumu area was identified as a matter of interest. The use of deep water bores/and storage of water/water tanks/ trucking in water were raised as was the potential for alternative supplies in different stages of development and later connections to the wider City network.
Feedback was also received in relation to the need for water supply to cross the Kaituna and for this to be part of a proposed bridge. It was advised that the bridging of rivers had cultural implications and that pylons should not be placed within the river.
Waitaha hold concerns in relation to the Waiari Stream being used for water supply to Te Tumu. Their concern was the effect of water allocations from the Waiari on the stream itself.
Potential for Alternative Wastewater Disposal The harvesting of greywater and its reuse was raised as alternative infrastructure to be considered. The treatment of wastewater through wetlands was also identified as desirable.
Potential for Alternative Stormwater Disposal The potential to use stormwater tanks as well as soak holes and rainwater collection for water supply was identified.
Page | 82 Density and height of potential urban development The concept of potential urban development and what it might look like (e.g. density) was also discussed at a high level and it is understood that densities, and locations of greater densities, will need to be the subject of further discussion as part of any potential structure planning. The generally held view of iwi/hapu was that the area along the coast and the Kaituna River should not be intensively developed.
For Ngati Whakaue ki Maketu the density of development as viewed from Maketu was of concern. The ability to look back to Mauao and to retain the Kaituna River banks as currently (i.e. not for development) for cultural lifestyle (swimming and gathering/forage area) was identified as key to the lifestyle of Maketu.
The placement of a reserve over Te Tumu Pa was also sought.
The potential to utilise 3D modelling enable all the parties to see what differing height levels might look like was discussed. A common theme was the need to see what was actually being proposed to enable a response to be made by iwi/hapu in terms of densities and their locations.
Feedback from other Tangata Whenua Forums The SmartGrowth Combined Tangata Whenua Forum advised that there was a need to be aware of the Te Maru O Kaituna River Authority and to engage with this forum. A concern was expressed that the potential impacts on archaeology, heritage and ecology not be left to a plan change process and decision making at that point of how to mitigate a loss. The need for updated fieldwork for the best evidential base was raised as was access to the Study Area to carry out such fieldwork.
The SmartGrowth Combined Tangata Whenua Forum also requested and received a presentation on the Tsunami Modelling and Mapping for the Study Area.
Te Maru O Kaituna River Authority Te Maru O Kaituna River Authority is a co-governance partnership between local authorities and iwi that share an interest in the Kaituna River established under the Tapuika Claims Settlement Act 2014. The purpose of the Authority is the restoration, protection and enhancement of the environmental, cultural and spiritual health and well-being of the Kaituna River. A key role of the Te Maru O Kaituna River Authority is the preparation of the Kaituna River document. The Kaituna runs alongside t the Te Tumu Planning Study Area to the sea. Presentations and ongoing Update Reports on the progress of the Te Tumu Strategic Planning Study have been made to Te Maru O Kaituna River Authority since the Study commenced.
Page | 83 Key matters raised by Te Maru o Kaituna River Authority (TMOKRA)have been: · The need to take into account the development of the Kaituna River Document in terms of the Strategic Study and the need to ensure TMOKRA was kept up to date on study and its outcomes; · Potential impacts on the Kaituna with a request for a specific TMOKRA on the Study outcomes with a focus on the river; · The cultural effects of development on Maori Stakeholders; · The likely housing densities and stormwater and infrastructure provisions; and · Water takes, water usage and quality and the roading network at the eastern boundary of the Study area.
As noted above in relation to iwi/hapu discussions, queries in relation to potential urban development densities and infrastructure planning were a key part of the discussions and the level of detail of queries posed, in some cases could not be addressed, due to the strategic level of the Study.
The outcomes and recommendations of this workstream are: 1. Recognise that the mapping work undertaken to date provides a base to progress a structure plan process subject to additional sites being identified for addition that meet the criteria of significance within the operative Regional Policy Statement.
2. Recognise that more detailed comment by iwi/hapu by way of Cultural Impact Assessments will be required as part of any structure planning exercise and Schedule 1 Resource Management Act process.
3. Recognise that appropriate management strategies will need to be developed through the structure plan and Schedule 1 Resource Management Act process to ensure identified cultural values are either protected, or maintained and enhanced.
4. Recognise that the ongoing relationship/information provision with iwi and hapu is an essential part of any structure planning and Schedule 1 Resource Management Act process.
5. Recognise that the ongoing relationship/information provision with Te Maru o Kaituna River Authority is an essential part of any structure planning and Schedule 1 Resource Management Act process.
6. Recognise that the ongoing relationship/information provision with Maori Land Trusts in the Te Tumu Growth Area is an essential part of any structure planning and Schedule 1 Resource Management Act process.
Page | 84 REVIEW OF TITLES AND IDENTIFICATION OF ENCUMBRANCES
As part of undertaking an assessment of constraints an assessment of encumbrances for all Te Tumu land blocks was undertaken. Part of this has been to identify what, if any, the identified encumbrances will have on urban development.
The assessment covered the following: · Review all titles within the study area; · Identifying any encumbrances/risk to potential urban development on any title; and · Describe the implications of any encumbrances/risk to potential urban development on any title and pathway to remove encumbrance and likelihood of removal.
This assessment did not consider private rights such as easements, which would largely become redundant once infrastructure is put in place. It is also noted that this assessment only considers encumbrances listed on the Certificates of Title. Attachment F– Part 3 provides the full assessment of all title assessment information.
It is noted, in summary, the following:
· Site 1 (Kaituna 14 Block, 10348L Papamoa Beach Road – owners: 4503; · Site 2: (Kaituna 7B1 Block, 12082L Papamoa Beach Road– owners: 166; · Site 3 (Kaituna 7B2 Block, 12084L Papamoa Beach Road)– owners: 605; · Site 9 (Kaituna 8B Sec 1 Block, L12086 Papamoa Beach Road) – owners: 520; · Site 12 (Kaituna 11B Sec 2 Block, 15580L Papamoa Beach Road) Road – owners: 2: and · Site 14 (Kaituna 16 Block, 581D Bell Road, Papamoa) – owners: 30. are Maori freehold land held under the provisions of the Te Ture Whenua Maori Act 1993 (TTWM).
Maori freehold land cannot be alienated, other than in accordance with the provisions of TTWM (s146 TTWM). This means that the Trustees of those particular blocks have the capacity to alienate whole or part of Maori freehold land in accordance with s150A (which sets out further restrictions, including on the sale of Maori freehold land). Alienation includes every form of disposition of Maori land, making or granting of leases or licences for more than 3 years, easements, encumbrances or an agreement to taking land under the Public Works Act (PWA).
Page | 85 In order to create easements over Maori freehold land an application would be required to the Maori Land Court under s315 TTMW. That application could be made by TCC. However, if the intention is to provide a roadway over the land under s316 TTWM then s317(1) TTWM applies and the Court cannot lay the roadway unless it is satisfied that the owners have had sufficient notice of the application and sufficient opportunity to discuss and consider it, and that there is sufficient degree of support among the landowners to the application. The Court can also determine whether compensation is payable, the amount and the person(s) to whom it should be paid.
Site 2: (Kaituna 7B1 Block, 12082L Papamoa Beach Road) has been declared a Maori Reservation. This applies to 2.0234ha of the block. The purpose of the reservation is to establish a village site and meeting place for the common use and benefit of the original 105 owners and their descendants. The land is also Maori freehold land. If easements, and in particular roading infrastructure is required across Site 2, then applications will need to be made to the Maori Land Court to approve the easements and provide a recommendation to remove that part of the property from the Maori Reservation. In order to be successful, it is likely that significant support from the beneficial landowners will be required.
Sites 4, 6, 11, 17, 18, 19 are listed as subject to Part IVA Conservation Act 1987 which provides for marginal strips 20m wide along the landward margin of the bed of the Kaituna River. If these marginal strips are an impediment to development, TCC could consider the exchange of the marginal strips for another strip of land. However this requires an authorisation by the Minister of Conservation by way of notice in Gazette, and cannot be authorised unless the Minister is satisfied that the exchange will better achieve the purposes specified in s24C Act (conservation purposes (as specified), enabling public access to adjacent watercourses or bodies of water or for public recreational use of marginal strips and adjacent watercourses). In reality the Part IVA Conservation Act 1987 will likely serve the purpose of esplanade reserves.
Page | 86 Open Space and Community/Recreation Facility Assessment
An initial assessment has been prepared for the purpose of identifying open space network and community/recreation facility requirements for the Te Tumu (and Wairakei) Urban Growth Areas. The information in this assessment is largely driven by existing TCC strategy and levels of service. It is intended to provide a starting point to assess open space and community/recreation facility requirements mainly in terms of land area and locational considerations that will inform the future structure plan process.
The assessment covers four key areas: · active reserve requirements; · local reserve requirements; · community and recreation facilities provision; and · subregional/regional park provision.
It is recognised that further work is required in some areas, and that given the timeframes for development of Te Tumu, levels of service or strategic direction could change what the requirements are and how they might be delivered.
Active Reserves Assessment Key documents that determine level of service requirements · Sport and Active Living Strategy 2012; · Active Reserve Level of Service Policy 2012; · Winter code and summer code demand and supply reviews – 2009 and 2013; and · Active Reserves Management Plan 2005.
Background Council’s Sport and Active Living Strategy aims to increase participation in sport and active living to get more people, more active, more often, recognising the health and social benefits from this. The strategy recognises that our environment (built and open space) plays a key role in encouraging and motivating people to be active in their daily lives.
Council’s Active Reserve Level of Service Policy determines Council’s approach to the provision, development, and management of the existing and future active reserve network. The level of service for provision of grass sportsfields is driven by demand from winter codes of rugby, rugby league and football. This is because winter codes are the highest and most regular users of grass sportsfields. Summer codes such as kiwitag, touch, cricket and summer football are all high users as well and benefit from the level of service provided for grass sportsfields and winter codes as they use the same space.
Page | 87 The model used to determine demand is a peak demand model aimed at determining the surplus or shortfall of fields for regular week by week community use. The main calculation used to determine demand is the number of field hours used per week. The number of field hours is determined by the field size used and the length/duration of the game.
Demand for sportsfields is generally through weekend use mainly for competition, and weekday use mainly for training. Further work is being undertaken on demand and provision of specialised surfaces (e.g. bowling greens, tennis courts) through joint Council project work and through individual codes thinking more strategically about their future requirements.
The Active Reserve Management Plan is a requirement under the Reserves Act 1977. New active reserves will be included in this plan to ensure a consistent approach to development and management of the active reserves network.
Te Tumu Active Reserve Requirement A review of sportscode demand was undertaken in 2013. This highlighted that Council’s approach to delivering a programme of capacity increasing projects on existing active reserves and development of new sportsfields at Parau Farms means that there is a reasonable supply of sportsfields until at least 2028 when further supply interventions are required. Figure 27 identifies demand and supply from winter sports codes from 2010 to 2045.
The location of additional sportsfields from 2028 onwards needs to ensure that there is a reasonably geographic distribution of active reserves across the City. The provision of a new active reserve in the Papamoa East area will ensure that Council is both responding to future sportsfield demand from 2028 onwards and providing good accessibility to the active reserve network across the city. This also Figure 27 – Demand and supply from winter sports codes from 2010 to 2045 recognises the significant population growth occurring to the east of the city over the next 15-20 years.
Page | 88 The location criteria for this active reserve will assist in ensuring that it is located in the most appropriate place for this catchment and the wider active reserve network. To this extent, consideration of the Wairakei Urban Growth Area is included in application of the criteria.
Size of active reserve Based on the 2013 demand analysis, 20 hectares of land is required to enable development of approximately five sportsfields which would yield around 70 additional field hours per week.
An assessment of infrastructure and space requirements on three existing active reserves (Waipuna Park, Gordon Spratt Reserve, Blake Park) has confirmed that the 20 hectares is sufficient to provide for necessary active reserve infrastructure requirements including: · 5 x playing fields · Hard surfaces such as internal roads, pathways and carparks · Hard courts or specialised surfaces if required · Public toilets, changing facilities, club rooms and storage · Playground · Vegetation · Balance areas
Waipuna Park is the closest size reserve to use as a comparison (23ha). This park has 4 full size grass sportsfields + 1 ¾, 4 ½, and 2 ¼ sportsfields , internal roads, pathways and carparking, no hardcourts or specialised surfaces, one building used for club spaces, public toilets, storage and changing rooms, a playground, and the balance land planted and connecting into the adjacent Johnson Reserve.
Location Criteria The criteria is based on TCC staff knowledge of what contributes to the success of existing active reserves, and general urban design principles and considerations for the provision of active reserves. The criteria is split into first order criteria – these are the most important considerations that drive the success of an active reserve, and second order criteria – these are the detailed considerations that help to determine a final location.
Page | 89 First Order Criteria Criteria Description Outcomes Connectivity · Direct and safe access onto a collector or arterial road Safe access into and from reserve. · Full integration into surrounding road network · Connected into wider walking and cycling network Ability to access using variety of transportation modes. · Ability to connect into areas that create ecological corridors e.g. stormwater, walkway reserves Active reserve has good connections to wider open space network. Co-location · Complement and support adjacent activity nodes: Provision of a community hub and focal point. - Advantage to co-locate with commercial activities, particularly retail and hospitality Active reserve stimulates and complements use of other facilities - Advantage to co-locate with community facilities and activities in the area. e.g. community centre, library, schools Advantages include complementary land use and activity, stimulate activity across a range of areas, one stop shop, generate high traffic and parking in one area to minimise impact on residential areas or protected areas.
Development · Flat land Management and maintenance focused on provision of quality · Free draining land assets, maximising capacity of use. · Ability to develop active reserve infrastructure e.g. sportsfields, buildings Users · Located within catchment to minimise travel required Accessible active reserve network provided across the city (a key for majority of local users principle of the Active Reserve Level of Service Policy). · Located to provide reasonable geographic distribution of active reserves network across city
Second order criteria include availability of services, irrigation, impact of any land encumbrances, and other matters relative to the more specific siting of the active reserve, once the first order criteria has been achieved.
Page | 90 Alternative land ownership or partnership arrangements The preferred land ownership, development and management model for the active reserve is for the land to be owned and fully managed and operated by TCC. This is consistent with the approach to the majority of the TCC owned active reserve network. It is recognised under this arrangement that clubs also invest in some active reserves through provision of buildings or playing surfaces or other types of infrastructure and this is typically managed through a lease arrangement with TCC.
The advantage of TCC being the owner and operator is that this provides the ability for TCC to align the development, management and use with strategic objectives and the purpose of the space, and balance out the wider community interests with the needs of specific stakeholders.
There is the potential for two other ownership models to be considered for the Te Tumu active reserve and these are explained below. Further work would be required to assess the benefits, costs and risk of each ownership arrangement, against the preferred approach of TCC having full ownership of the land required for the active reserve.
Maori Land Maori owned land is located adjacent to the proposed town centre in Wairakei and due to this proximity to the town centre, provides an ideal co-location opportunity for an active reserve. TCC does not have experience of operating an active reserve (or any other open space area) under a lease arrangement for use of the land with another entity. Therefore it is difficult to determine whether this arrangement would be a viable option for TCC to consider.
An initial assessment of the potential risks of this arrangement relate to: · Governance and management expectations of the landowner; · Flexibility for development of the active reserve to respond to community demand; · Viability of the financial model required under a lease arrangement; · Expectations regarding status of the land e.g. reserve under Reserves Act; and · Ability to respond to changing circumstances outside of Council’s control.
Discussions with the land owners prior to structure planning occurring, to fully understand expectations on how this arrangement would work, should be undertaken. This would then enable further analysis on the benefits, costs and risk to inform decision-making on a final active reserve location.
Page | 91 Education Land A community share agreement is in place with Aquinas College for use of their sportsfields. This specifies community access hours to the sportsfields. As is the case with a number of community share agreements the school use tends to increase over time often impacting on available hours for general community use. This needs to be managed carefully so that any community share agreement recognises current and future projected demand and use. The Ministry of Education has also advised TCC that a licence to occupy agreement is required for community share arrangements and further discussions are required on the detail of these agreements to ensure that it provides a “win-win” outcome for the school and TCC.
Given the size of the active reserve requirement in Te Tumu it is not recommended that this be provided solely through a community share agreement with a school. However the active reserve and a school site could be co-located in the same way that Gordon Spratt Reserve is with Papamoa College to provide potential efficiencies of management and use of both the TCC and school provided sportsfields and associated facilities.
Further considerations The 2013 demand analysis identifies that an active reserve is not required until 2028 where demand starts to exceed supply of field hours per week. Timeframes for development of the Te Tumu active reserve is for this to be completed by 2028, but this could occur earlier as it is preferable to be in a position of oversupply.
The way that people participate in sport and recreation activities could change over the next 10-15 years and will influence what is eventually provided on a new active reserve. The key is providing the opportunity through the provision of suitable land first and foremost.
The demand information is reviewed every three years recognising that there are a number of key influences that determine future sporting needs and expectations. The next review will occur in 2016/2017 with the outcomes used to influence TCC decisions on sportsfield supply for the 2018-2028 Long Term Plan. This review and changing trends and expectations will influence the final requirements for the new active reserve in Te Tumu.
Page | 92 Local Reserves Assessment Key documents that determine level of service requirements · Open Space Strategy 2006 · Tauranga Transport Strategy 2012 · Open Space Level of Service Policy 2010 · Best Practice Guide for Open Space · Neighbourhood Reserves Management Plan 2002
Background The Open Space Strategy aims to protect, enhance and develop a network of open spaces for people to appreciate and enjoy. The strategy recognises the important role that the open space network plays within the urban environment through providing places for recreation, community use, social gathering places, culture and heritage protection, amenity, landscape protection and ecological benefits.
The purpose of the open space network is to create a clearly defined, linked system of public spaces that provides a visual contrast to the built urban environment and caters for a range of active, passive and community leisure activities. Generally networks of open space have more value than isolated areas. Open space networks are more accessible and provide a much wider range of opportunities than isolated recreational areas. They also provide important corridors for wildlife. Although in some instances there may appear to be conflict between promoting recreational use of open space and protecting natural areas within the open space network, through good design and management both of these objectives are achievable.
The network also contributes to the provision of connected walking and cycling linkages throughout the City consistent with Council’s Transport Strategy outcomes that: · People enjoy easy and cost-effective access to key services, independent of travel mode, · People get healthier, and · [there is] More efficient use of the Tauranga transport network.
TCC’s Open Space Level of Service Policy outlines the approach and level of service standards for the provision and development of the open space network. The Policy identifies how TCC is responding to the different growth needs of the City through addressing the quantity, quality, accessibility and function of the open space network.
The policy sets in place four standards that are designed to ensure people have good access to the open space network and the variety of open space experiences that it provides while ensuring that the open space network is highly valued by the community and is the outcome of good design and best practice. The four standards are:
Page | 93 · Accessibility – how far people should travel to reach a particular type of open space · Quality – the level of quality that all open spaces should be developed to · Function – the different types of open space experiences we want to provide · Quantity – how much open space we should have
It is recognised that different areas of the City have different characteristics, communities, development patterns and levels of existing open space provision, therefore application of these standards needs to recognise and respond to the differences within the City.
Te Tumu Local Reserve Requirements It is recognised that Te Tumu has a significant amount of constrained land (approx. 400ha) that has limited development potential. This provides an opportunity to look at how the open space level of service requirements can be realised utilising as much of this constrained land as possible. The characteristics of the constrained land can add considerable value to the provision of a public open space network for this area and for the City. There will be development limitations in terms of parks infrastructure requirements (e.g. buildings, playgrounds boardwalks etc.) however taking a comprehensive approach to the management and development of this land will assist in identifying where additional land may be required and/or where the most appropriate location is for development of this infrastructure.
It is not proposed to have full reliance on the constrained land solely providing the open space network for this growth area due to the location of this land around the perimeter of the growth area. This limits the ability to meet TCC’s level of service standards for accessibility. Therefore there is a requirement for additional land to be vested in TCC for neighbourhood and local area open space purposes.
Te Tumu is included in the definition of a Comprehensive Development Area (CDA). The Policy requires the following approach to provision of the open space network within this CDA.
Level of Service Te Tumu application
Quantity 1.7ha/1000: Based on 20,000 people = 34 ha: - 50% neighbourhood reserve (can include walkways, · 50% - neighbourhood reserve + can include walkways, historic, heritage and schools) schools = 17 ha. - 50% other reserves This can be achieved through applying a 400m radius to residential areas to determine location of new neighbourhood Ideal size of a neighbourhood reserve is 3000m2 as a reserves and then developing walkways (utilising stormwater minimum. reserves where possible) to connect these spaces. · 50% - other reserves = 17 ha. This can easily be achieved through provision of constrained land.
Page | 94 Level of Service Te Tumu application
Quality Application of best practice criteria to location and All reserves located and developed to meet best practice criteria. development of reserves:
- Location: central, prominent - Landform: compatible with purpose - Proportion: avoid narrow, irregular shapes - Access: intersection of movement - Visibility: direct road frontage - Identity: reflect and enhance site identity - Wellbeing: shade, locate facilities in prominent areas - Public use: reflect user needs, sense of ownership encouraged - Adaptability: flexible space Function Variety of size of neighbourhood and local area reserves Variety of size of reserves located throughout. to provide a variety of experiences. Development of reserves to provide different experiences throughout.
Connectively of open space network required across and along Te Tumu area. Accessibility Provision of neighbourhood area open space within 400 Refer quantity standards. metres of most residences (95%).
Further considerations As more detailed planning of Te Tumu occurs, a public open space schedule will need to be developed and mapped to clearly show how the level of service is being achieved.
Page | 95 Community and Recreational Facilities Provision Key documents that determine level of service requirements · Our Community Places Strategy 2008; · Sport and Active Living Strategy 2012; · Aquatics Strategy 2012; · Libraries Level of Service Policy 2013; and · City Events Policy 2014.
Background TCC’s Our Community Facilities Strategy recognises that community facilities play a key role in developing and supporting strong communities through the provision of space for people to participate in community activities, the provision of services to the community, and for provision of accessible and often highly valued community focal points. The strategy identifies requirements for the provision of community halls, community centres, and libraries.
TCC’s Libraries Level of Service Policy identifies criteria used to assess requirements for future library development. The principles of the policy are that the libraries network will be accessible, responsive and adaptive, cost effective and efficient.
TCC’s Sport and Active Living Strategy seeks to increase participation in sport and active living opportunities and includes a number of actions that help to achieve this. One of the key goals in the Strategy is that our environment (built and open space) encourages and motivates people to be active in their daily lives. The Strategy has a number of actions relating to future facility provision in new growth areas particularly with regard to indoor sports facilities, surf clubs, destination playgrounds, action areas, water based sports such as rowing, and walking and cycling connections.
TCC’s Aquatic Strategy recognises that the aquatics network contributes to developing and supporting physically active and healthy communities. Water safety education is promoted through the development of confidence and skills gained from both recreational play and learn to swim programs. TCC provides aquatic facilities to the community because of the significant health and social benefits that come from being in the pool.
TCC’s City Events Policy objectives are to create a collaborative, positive and encouraging environment for the city’s event industry, and to recognise the social, cultural, economic and environmental values that events bring to the City. TCC has developed a new framework that increases the focus on attracting and maintaining major events to the city, recognising the significant economic and social benefits that can be achieved for the city.
Page | 96 Te Tumu Community and Recreational Facility Requirements Community Centres The Our Community Facilities Strategy requires that in future growth areas TCC needs to plan early for the provision of land for community facilities. The Strategy includes two projects for development of a community centre in Wairakei and in Te Tumu. This was rationalised in 2012 and a project is now included in 2036 for development of one community centre to service both the Wairakei and Te Tumu area. A charitable trust has been set up comprised of church leaders to explore options for joint provision of a community centre in the Wairakei or Te Tumu area and TCC will work with this organisation to explore potential synergies or partnership arrangements.
Community facilities (such as a community centre and a library) need to be located in places that support other types of activity (community and/or commercial) and that are destination points for the local community. The ideal location for a library and community centre in Papamoa East would be within the town centre to achieve co-location requirements and to provide a central geographic location within the Wairakei and Te Tumu catchment.
Libraries Following the completion of Greerton Library, there is no new library development projects included in the Long Term Plan 2015-25. New library developments will be considered when: · Community demand demonstrates that additional space or services are required that cannot be easily achieved through the existing library network; and · There is broad community support for the level of financial investment required for a new library development; and · The existing library network is proven to be working as efficiently and effectively as possible, including virtual access to library services.
New library developments could be provided in a number of ways including: · Extensions to existing library buildings, · New stand-alone library buildings, or · Leased library spaces (e.g. in shopping centres).
Partnerships with other organisations to enable a new library development will also be explored. Provision of a co-located library and community centre (based on Papamoa Library and Community Centre) requires approximately 5500m2 of land for the building and car parking.
A review of TCC’s level of service for libraries will influence the requirements for land for library development in the Papamoa East area.
Page | 97 Surf Lifesaving Facilities An action in the Sport and Active Living Strategy is to actively explore options through the Papamoa East planning process to secure suitable reserve land to enable the establishment of a surf club in Papamoa East, or other options for addressing the need. The location would be at a key coastal access point along the coastal area in Te Tumu to allow for provision of appropriate public infrastructure such as car parking, toilets and change facilities. This would encourage the community to use this space in the same way that other surf club locations achieve this (e.g. Omanu, Papamoa).
The provision of this main coastal access point could be achieved within the identified constrained land. If consideration was to be given to a coastal camping ground this would ideally be located in close proximity to the surf club base.
Destination Playground An action in the Sport and Active Living Strategy is to build a destination playground in the Mount/Papamoa area. This would ideally be located on a premier park or help to create a premier park within the Papamoa East area. Examples of successful destination playgrounds on premier parks are Memorial Park and Mount Drury.
There is currently no project included in the budget system for provision of a destination playground but this could be reconsidered as part of the planning for development of the open space network in Te Tumu.
Events TCC is placing increased focus on event opportunities in Tauranga. High profile events spaces often share use with other activities such as sports use and as the popularity or demand for both increases, this creates competing use and conflict for access to the space.
The active reserve has the potential to provide for some events use, but there is an opportunity to create a dedicated events space to allow flexibility for both sports and events to grow without having to compromise between the two types of activity. The dedicated events space would contribute to the range of experiences provided through the open space network and when not being used for events, would be utilised as a passive reserve.
The key requirements for location of a dedicated events space are ability to provide events infrastructure on the site, car parking provision, encouraging other forms of access to the site e.g. walking and cycling, and consideration of noise requirements (relating to adjacent land uses) to minimise restrictions on the type of events that could occur.
Water sports access The Sport and Active Living Strategy refers to consideration of access to water and potential future growth of water based sports such as waka ama and rowing. The constrained land along the Kaituna River provides the opportunity to consider river access points along this area that will require infrastructure such as boat ramps and car parking facilities.
Page | 98 Swimming pools The Baywave Aquatic Centre is the closest swimming pool complex to the Wairakei and Te Tumu area. Papamoa Primary School also has an outdoor swimming pool that is contracted to the Papamoa Swimming Club to operate and manage. It is not known whether the public have any access to this pool (e.g. through a key system).
The Aquatic Strategy includes an action to investigate the location and potential partnerships with existing non TCC owned swimming pools. The investigation will consider the needs of the future population, the current provision of swimming pools in the area and access required. The purpose of this action is to provide additional community aquatic capacity at locations where required by maximising existing facilities. The majority of actions in the strategy focus on maintaining and improving the existing swimming pool network rather than development of new facilities.
It is unlikely that any future school provision will include a swimming pool due to reduction in Ministry of Education funding for these facilities. The only other swimming pool provision could be through a privately operated learn to swim school.
Further work would be required on capacity of the existing aquatic facility network to determine if there is a requirement for TCC to build a new community swimming pool complex in the Papamoa East area.
Indoor sports facilities Council’s indoor sports facilities blueprint initiated the development of the ASB Arena. The blueprint also specifies a level of service for provision of local indoor sports facilities in the City. This requires that local level facilities provide 1 court per 39,000 people.
Currently there are four full sized indoor sports courts provided at a local level, with three of these provided through a community share arrangement (note these are counted as .75 of a court as they are not fully available for public use). Based on a 2015 population of 120,819, this means that the current level of service is 1 court per 37,175 people. This has gradually increased over the past few years as the population increases with no further provision of indoor court space at a local level. Council has a project in 2027/28 of the budget for development of an indoor sports facility in Papamoa East.
The level of service will be reviewed as an outcome of the Sport and Recreation Spaces and Places Plan which is under development is likely that it will move away from a population based standard to a level of service that is based on actual and projected demand for these types of facilities. This will assist in determining whether an indoor sports facility is required in the Papamoa East area. Consideration will need to be given to location and utilisation of existing facilities (including ASB Arena) and provision of school facilities within the Mount/Papamoa peninsula.
Page | 99 Partnership arrangements Council has a history of entering into community share partnerships for provision of local facilities such as indoor sports facilities (Merivale Action Centre, Otumoetai Action Centre, Aquinas Action Centre) and community halls. There are pros and cons of continuing to enter into these types of partnerships. These include: Pros Cons Assists both council and the community partner to achieve their Restricted public access for times and hours available. goals Demonstrates a commitment to working with the community Greater need to compromise to meet the objectives of both parties. Reduced capital and operational costs to both parties Less flexibility to respond to community change (as Council does not have full control over the facility) Should increase use of the facility during off peak hours Potential for inconsistent levels of service being provided across facilities. Should increase geographic accessibility as well as physically Possible loss of public identity and doesn’t provide a neutral allowing more facilities to be provided environment Should result in a better quality facility given investment by two Limitations on branding parties pooling resources
Community share partnerships for community centres are unlikely to be provided with schools as these types of facilities are not built by schools in the same way that community halls or school halls have in the past. There is the potential for a partnership with the trust mentioned above however this would need to be carefully managed to ensure that the facility and its use is not restricted in anyway.
A community share partnership could be considered for the provision of an indoor court facility if this opportunity became available in the Wairakei and Te Tumu area. However Ministry of Education have advised that a licence to occupy arrangement is now required and further discussions are needed should Council head down this track to assist in achieving a win-win situation for both parties involved.
Further considerations The Sport and Recreation Spaces and Places Plan will provide a starting point to determine local indoor sports facilities provision and levels of service. Further discussions are required with the Ministry of Education regarding potential community share agreement with schools for provision community and recreation facilities.
A service delivery review carried out in 2015 may trigger a review of TCC’s Libraries Level of Service Policy and influence the delivery of library services to the Te Tumu area.
Page | 100 Subregional/Regional Park Provision Key documents that determine level of service requirements · Joint TCC and WBOPDC Subregional Parks Policy 2000; and · BOPRC Regional Parks Policy 2003
Background In 2000 Tauranga District Council and Western Bay of Plenty District Council identified that they want to build on their existing reserves to create an extensive reserves network that provides for a diverse range of recreational opportunities for their residents, as well as protecting significant landscapes, heritage, ecological and cultural features and green areas.
Five park categories were identified in the Joint TCC/WBOPDC Subregional Parks Policy. Three park purchases are complete – Papamoa Hills Cultural Heritage Park, TECT All-Terrain Park and the Huharua Harbour Park. One park category was identified as not required due to extensive provision of Department of Conservation land that provides a rural wilderness experience.
The outstanding park category is provision of a passive coastal park described as an area of land (50-100ha) that will protect areas of significance, and for education and passive recreation.
The policy was reviewed in 2012 and now focuses on maximising use and enjoyment of the existing subregional parks network. Land purchase opportunities for new parks (or extensions to existing parks) will be considered on a case by case basis. No budget is provided in either Councils LTP for purchase of a subregional park.
The following criteria are identified in the policy to assess new proposals: · Resource values – significance of natural, landscape, ecological or cultural values on land · Recreational value – suitability of the land for outdoor recreation (passive and/or active). · Availability – potential threat from subdivision or development. · Site suitability – suitability for development as a subregional park · Access – quality of roading access · Linkages with other reserve land or other significant natural, landscape or cultural features
Bay of Plenty Regional Council developed a regional parks policy in 2003 as this reflected their involvement in the joint purchase of the Papamoa Hills Cultural Heritage Park, and desire to consider other regional park opportunities for the region.
Page | 101 Te Tumu subregional/regional park requirement The following provides a chronology of discussions on the potential for a subregional/regional park within the Te Tumu area. Year Document Explanation 1975 Papamoa East Brought together existing information and set objectives and policies for directing future expansion of the Strategic Policy Report Tauranga Urban area into Papamoa. Included a proposal for a substantial regional park at the far end of Papamoa East (304ha). 2000 Joint TCC and Identifies five park categories including provision of a passive coastal park. WBOPDC Subregional Parks Policy 2001 Preliminary site A preliminary site suitability assessment for an area comprising 78.5 ha at the far eastern end of suitability assessment Papamoa East (adjacent to the Kaituna River Mouth) as a possible Regional Coastal Park was made for subregional parks (Tauranga District Council/Western Bay of Plenty District Council report "Subregional Park Suitability Assessment", May 2001) as part of the adoption of the subregional parks policy. The identified benefits of the sites were considered to be that it:
· Has both river and coastal margins, providing a diversity of landscapes, scenery and recreation potential · Contains many areas with ecological and historic significance · Could provide ecological link to the Kaituna Wildlife wetland reserve (administered by the Department of Conservation) and could form part of the "mountains to sea" concept with the Papamoa Hills, Kaituna River margin and Te Tumu. · Is the most central location of any coastal park options identified in the Western Bay of Plenty, and therefore is the most accessible to the most number of people. 2003 Regional Parks Policy Environment Bay of Plenty will consider the use of regional parks as a tool to achieve any of the following purposes, where these values or issues are of regional significance, or where there is a regional community of interest: · Preserving the special character of and the quality of life in the Bay of Plenty Region; or · Enhancing public access to and enjoyment of the environment; or · Environmental education and interpretation; or Engaging people in the protection and enhancement of natural and cultural heritage values. Coastal regional park high priority – open coast headlands and spits, features could include Dunelands, land adjoining sandy beaches, islands, rocky headlands and shores, spits, islands. Also freshwater lakes rivers and wetlands is high priority, check re Ohiwa Harbour
Page | 102 Year Document Explanation 2003 Submission to draft The submission stated that the land identified in the Papamoa East Planning Study as (the far eastern Papamoa East end of Papamoa East, adjacent to the Kaituna River mouth) is a preferred site for the Passive Coastal Strategic Policy Report Subregional Park. This is the outcome of a site assessment process whereby criteria relating to from the Regional recreation value, linkages, resource value availability of land, access and site suitability were applied to Parks Working Group various sites around the subregion. (a group of elected members from In conclusion, the Regional Parks Working Group supports the concept of the passive coastal TCC/WBOPDC/BOPRC) subregional park in Part 2 (Te Tumu) of the Papamoa East Planning study for the following reasons: · The area is a preferred site being consistent with the criteria outlined in the Joint Policy for subregional park purchase. This relates to the suitability of the land for passive recreation, linkages with other significant areas, resource value of the land, potential threat from subdivision or development, access and site suitability. · Supports 'live' and 'play' concepts through the provision of a large area of passive recreational space · Could form part of the "mountains to sea" concept with the Papamoa Hills, Kaituna River margins and Te Tumu pa. · Supports objective to retain part of the coastline in an essentially natural, undeveloped state to avoid the natural hazards risk experienced on the developed coastline. · Supports protection of the ecological, cultural, archaeological, landscape and natural character values of the fore dunes and Kaituna River. 2004 Papamoa East Urban Included an action for a Coastal Regional Park: Development Strategy · Investigate and consider providing, through the Regional Parks Working Group, a passive coastal park consisting of 70-100ha of land in the vicinity of the Kaituna River Mouth at Te Tumu. A potential coastal park may link/include the coastal sand dunes and river wetlands & margins, or as a block of land encompassing present rural farmland on either or both of the eastern and western sides of the Kaituna River. Other relevant actions include: · Investigate and where possible enable the development of a public camping ground within the coastal park, or alternatively within some other form of recreation area within the Te Tumu area. The strategy notes that the identification of a possible sub-regional park at the far eastern end adjacent to the Kaituna River mouth and incorporating Te Tumu pa would fulfil passive recreational needs for the whole Western Bay of Plenty sub-region. The area fulfils the criteria for a coastal regional park with its access to the Papamoa- Kaituna coastline, sandy beaches, and the Kaituna River.
Page | 103 Year Document Explanation 2004 SmartGrowth Included an action to purchase and develop a passive coastal regional park, recognises importance of securing coastal land for public access, recreation, heritage values and ecological protection.
The idea of a coastal regional park adjacent to the Kaituna River has been raised in planning documents as early as 1975 (Papamoa East Strategic Policy Report).
The Papamoa East (Wairakei – Te Tumu) Urban Development Strategy also identified the potential for a coastal park located adjacent to the Kaituna River.
Acquisition by 2011, EBOP/TCC/WBOPDC, $3 million, link to coastal environment actions. 2012 Joint TCC and Policy reviewed. Focus on maximising existing subregional parks and considering opportunities for new WBOPDC Subregional subregional parks on a case by case basis. Recognises that passive coastal park has not been acquired. Parks Policy 2013 SmartGrowth Included an action under the sustain and improve the environment – protect, restore and maintain the amenity of our unique environment: · Regional coastal park – conduct a subregional stocktake of recreational facilities on DOC and council land to determine whether a regional coastal park is and camping ground is likely to be required within the SG time horizon – BOPRC to lead, short term action.
Given the extensive background to potential provision of a regional park in the Te Tumu area, the characteristics of the land and the extent of constrained land within the Te Tumu area, it is recommended that serious consideration be given to provision of a subregional/regional park experience in the Te Tumu growth area.
This has the potential to be achieved largely within the existing area of constrained land, creating a liner park that connects the river to the wetlands and through to the coast. This would also include water access nodes for watersports and recreational use, the coastal reserve access node (where the surf club would be located), and could potentially include provision of land for a campground.
Further considerations This concept will need to be discussed with WBOPDC, BOPRC, Department of Conservation and landowners. Iwi/Hapu may also be interested in exploring this concept and being part of a potential partnership to create something unique to this area. Particular attention will need to be given to progress against the 2013 SmartGrowth action by BOPRC which required a recreational facilities stocktake to determine whether a regional coastal park is likely to be required.
Page | 104 Once a potential concept has been developed this will need to be discussed with the Joint Governance Committee to determine what the next steps could be in terms of creating this park and an associated partnership around it. This fits with the existing policy direction to consider opportunities on a case by case basis.
Other Community Requirements / Social Infrastructure In addition to Council-supplied community requirements as described above, there is a need to consider and provide sufficient land for the delivery of facilities by other parties.
Education –For Te Tumu there is a need to work closely with the Ministry of Education to understand the requirement for primary education both within the local area and any residual demand from the Wairakei area and ensure that adequate land in appropriate locations is provided. The appropriate location aspect is particularly important to ensure that education is provided close to other activities and that un-necessary demands are not placed on transportation infrastructure at peak times.
In addition, there is a need to consider the secondary (and potentially tertiary) education needs of the wider Papamoa East area to determine if an additional secondary education facility is required in the long term. Again, locating these in appropriate areas will ensure minimal impact on surrounding infrastructure networks. With the new University of Waikato campus located in the city centre (25km to 30km away) and the Bay of Plenty Polytechnic located in the city centre and at Windermere (over 20km away from Te Tumu), there is a need to work with these providers to understand the potential for additional tertiary education facilities in the Te Tumu area, and what the potential land requirements of these might be.
Health –There is a need to work with the Ministry of Health, Bay of Plenty District Health Board, Public Health Organisations and private operators to determine in advance the potential depth and scale of any provision, and understand the land requirements of this. Within the context of an ageing population, and a journey of some 25km to 30km to other main health centres within Tauranga, there appears to be opportunity to provide health facilities within Te Tumu that can cater for the medical needs of the Wairakei and Te Tumu areas and the wider coastal plain area.
Emergency Services – TCC understand that each of the emergency services is currently considering their needs for the wider Papamoa East. The Te Tumu growth area significantly extends the reach of emergency services and there is a need to work closely with these providers to determine whether additional facilities are required within Te Tumu to achieve service response levels, and whether these could be co-located with each other and potentially with other facilities, such as health.
Page | 105 SUMMARY OF REQUIREMENTS
Facility Strategy Project Budget Approx. Location preferences Co-location opportunities Further work required action or land area (also dependant on co-location opportunities) LOS Wairakei Town Te Tumu Te Tumu east* Centre west east Active reserve Yes Yes 2018/19 for land purchase and 2028 for 20ha x Ö Ö x - Town centre Detail on benefit/cost/risk for potential lease development - Community facilities arrangements for Maori land. - Events space - Schools Potential specialised surface requirements from Sport and Recreation Spaces and Places Plan work.
Detail on co-location opportunities e.g. school locations, town centre development etc.
Local Yes No Ideal would be for developer to vest and develop varies x Ö Ö Ö - Connects into wider open Develop schedule identifying location and neighbourhood reserves. space network (including size of reserves as part of more detailed reserves Wairakei) planning for Te Tumu.
Community Yes Yes Project included in 2036/37 for land purchase and 3000m2 x Ö Ö x - Town centre Work with community trust to identify centre development. - Community facilities potential synergies. - Active reserve - Schools Report back to Council on outcomes to determine financial requirements.
Library No No 3000m2 x Ö Ö x - Town centre Outcome of service delivery review to - Community facilities determine more specific library provision - Active reserve requirements for Te Tumu.
Indoor sports Yes Yes Project included in 2027/28 for land purchase and 6000m2 x Ö Ö x - Town centre Outcome of Sport and Recreation Spaces facility development of an indoor sports centre. Ideally a - Community facilities and Places Plan to assist in determining 2 court facility would be developed as this would - Active reserve approach to indoor sports facility provision. have significant operational advantages. A - Schools Community Share partnership could be entered into with a local school or other organisations could allow for the provision of a larger centre or reduced costs. Subregional/ Yes No Assume a large amount of this land would be 50ha - 350ha x x Ö Ö - Water and coastal access Discuss concept with Regional park vested in Council as limited opportunity to develop points TCC/WBOPDC/BOPRC/DOC at a staff in any other way. Costs would be associated with - Events space level. Discuss concept with Joint development and maintenance of the land. Governance Committee. Dedicated No No Could be achieved through implementation of 10-15ha x Ö Ö Ö - Active reserve Events team to refine requirements for this events space local/neighbourhood reserve requirements or - Regional park space. Location to be determined as part regional park or adjacent to active reserve to of wider open space network provision. utilise some of the balance land. Surf Club base Yes No Could be achieved through development of a 5000m2 – x x Ö Ö - Local reserves Discuss requirements with Surf Lifesaving coastal reserve access node, as part of 12ha - Regional park NZ. Location to be determined as part of implementation of local/neighbourhood reserve wider open space network provision. requirements or regional park. Destination Yes No Could be achieved as part of implementation of 5000m2 – x Ö Ö Ö - Local reserves Consider potential for this as part of playground local/neighbourhood reserve requirements or 1ha - Regional park provision of wider open space network. regional park.
Page | 106 Facility Strategy Project Budget Approx. Location preferences Co-location opportunities Further work required action or land area (also dependant on co-location opportunities) LOS Wairakei Town Te Tumu Te Tumu east* Centre west east Swimming pool No No 3000m2 x Ö Ö x - Town centre Outcome of Sport and Recreation Spaces - Community facilities and Places Plan to assist in determining - Active reserve approach to swimming pool facility - Schools provision.
Water sports Yes No Could be achieved as part of implementation of varies x x Ö Ö - Local reserves Consider potential for this as part of access local/neighbourhood reserve requirements or - Regional park provision of wider open space network. regional park.
*Note: some of the facilities could be located within the Wairakei east area due to the co-location opportunity with the town centre, however ideally the facilities will be more central to the wider catchment (i.e. on the Te Tumu side of the town centre), and given the speed of development occurring on the Wairakei side and the further work required on some of this facility provision, it is unlikely that we will be ready to move quickly enough to secure land for these purposes. This position could be revisited if required.
Page | 107 Residential Density Commercial Employment Assessment
Within Tauranga City there has historically, and recently, been a low level of medium and high density residential development. In terms of the successful delivery of higher densities, the high rise / high density zoned areas in the Mount North area are where the most dense development residential development has occurred (31.3 dwellings per hectare). This area shares some common features with Te Tumu such as the proximity to the ocean beach.
In respect of greenfield development in Tauranga there is little in the way of substantial residential developments that have delivered yields in excess of 15 dwellings per hectare. The notable exceptions to this are the large retirement/lifestyle villages that have been developed within the City’s new suburbs.
To aid in the consideration of potential future densities for Te Tumu, and to enable potential financial viability scenario testing, a wider investigation into potential residential densities which may be delivered within Te Tumu was undertaken.
Included in the two assessments were the following. · Whether higher density residential development may be a commercially feasible option in Te Tumu (similar to that being delivered in Hobsonville, Auckland) and whether Te Tumu landowners and developers are supportive of this type of development concept. This relates back to the SmartGrowth aim of a compact city; · The linkages between the proposed Rangiuru Business Park and the quantum of industrial land required in Te Tumu itself; and · The appropriate size and scale of the Wairakei Town Centre including how far it extends into Te Tumu and what institutional land uses (e.g. hospital or tertiary education) may be desired to ensure Papamoa East is developed as far as possible as an integrated community of its own in the context of the larger city.
In August 2015 RPS (Australia) were commissioned to undertake two assessments processes, with the project goals outlined below:
Commercial/Retail (Sub Regional Assessment of Commercial Opportunities) – Te Tumu/Wairakei (and the wider Tauranga Eastern Corridor) Project Goals · To determine what is the sustainability of the existing quantum of commercial and industrial land land/floorspace (as appropriate) currently provided for within the Eastern Corridor; · To determine what is the quantum of commercial and industrial land land/floorspace (as appropriate) provision for future predicted growth within the Te Tumu Urban Growth Area; · To determine what is the appropriate size land/floorspace (as appropriate) and scale of the Wairakei/Te Tumu Town Centre, including how far it should extend into the Te Tumu Urban Growth Area and what institutional land uses (e.g. hospital or tertiary education) may be desired to ensure Papamoa East is developed as far as possible as an integrated community of its own in the context of the larger City;
Page | 108 · To determine what are the likely expected commercial uses that the market will deliver within the Wairakei/Te Tumu Town Centre; · To determine what are the key aspects that need to be adhered to ensure the future viability of the development of the Wairakei/Te Tumu Town Centre; · To determine an appropriate land use mix (commercial/industrial and residential) within Te Tumu and the wider Eastern Corridor to meet the SmartGrowth principle of ‘Live, work, learn and play;’ · To understand the potential impacts of delivering a town centre in Wairakei/Te Tumu on other commercial/industrial areas within the City (especially the Tauranga CBD); · To understand the likely desirability of Te Tumu for industrial business that do not directly service a local population within Te Tumu/Wairakei; and · To understand the likely timing of commercial/industrial development within Te Tumu and Wairakei based upon current growth and predicted growth within Papamoa East.
Te Tumu Residential Densities Project Goal · To assess whether a range of residential yields would be realistic, commercially feasible and supported by consumer demand, with a particular focus on the proposed medium to high density and mixed use components. This took into account of the 20-50 year timeframe for the full development of Te Tumu. · To provide an independent assessment of the likely number of dwellings that could be delivered in Te Tumu when fully developed, including the amount, location and typology of medium to high density development and mixed use development that could be supported.
It is recognised with the work undertaken by RPS that at the time of initiation of their work the outputs of tsunami investigation had not been completed, nor had decisions been made in regard to the indicative stormwater network nor inclusion of the Kaituna Overflow (as now indicatively shown over Site 4 for assessment purposes). As a result the outputs are considered in relation to the land which is not considered to be constrained by tsunami and within areas now identified for potential stormwater reserves. As a result, the RPS assessment generates potentially higher densities which may be able to be achieved, however calculations are also made in regard to this, and shown further below on what density may be able to be delivered if full consideration of all constraints was achieved.
RPS also, as part of their assessment, considered methods to increase density within Wairakei and Te Tumu, but also considered means to provide for better urban form and delivery of the Town Centre within Wairakei through re-balancing the location of the employment land currently provided within Wairakei to Te Tumu.
The final reports are provided in Attachments G and H – Part 3.
Page | 109 Summary Outcomes of RPS Assessment - Commercial/Retail (Sub Regional Assessment of Commercial Opportunities) – Te Tumu/Wairakei (and the wider Tauranga Eastern Corridor) Economic planning for major growth corridors and large master planned communities has reached the third (general) generation where social and economic outcomes (live, work, play) are treated as equally important as the delivery of a residential land use outcome. To understand these changes the following table is provided to understand these distinctions for the evolution of new urban communities:
Feature Gen 1 Gen 2 Gen 3 Indicative Timing Up to the 1980’s 1990’s and early 2000’s Mid 2000’s and on Residential Mainly single family dwelling. Increased housing choice. Diverse housing choice –affordability is a key issue. Retail, commercial and Based on the location of the Created large multi-use ‘town centres’ that are Attempting to move from a ‘big box’ outcome services shopping centre primarily driven by the retail outcome. to a series of urban and main street solutions. Successful corridors also benefited from public Economic and employment diversity is still investment and service provision (public heavily reliant on public sector investment in transport, tertiary education and health). public transport, tertiary education and health. Recreation and open Provided quality open space Provided high quality public open space with Focuses on high quality networks that space with an emphasis on private reduced emphasis on private facilities. reinforce community activity nodes and facilities (almost all of the large (where possible) employment outcomes. communities had a golf course). Employment and Not generally considered. Provides land for industrial and other Generates deliverable economic signatures to enterprise Local employment was generally employment (planning lead). underpin the provision of employment lands population driven (e.g. retail, Attempted to provide value added employment and employment (outcome lead). schools). but generally failed due to the lack of an economic vision/focus and investment. Downside Created commuter based The new facilities (esp. retail) often competed Requires active involvement from the public communities on the urban edge. with established centres and the extensive sector agencies in the delivery of desirable provision of open space, health, education etc. urban outcomes. This involvement must does create issues of intergenerational equity. consider operational issues in addition to Many are commuter communities as the base line analysis and planning. planning has not delivered the intended Many communities now have mandated or employment. adopted employment self-containment levels to encourage the desired urban outcomes of work, live and play.
Page | 110 The Commercial/Retail (Sub Regional Assessment of Commercial Opportunities) – Te Tumu/Wairakei (and the wider Tauranga Eastern Corridor) recognised that TCC was seeking for Te Tumu / Wairakei and the wider Tauranga Eastern Corridor to evolve as a desirable urban corridor and not as a residential community with a series of shopping centres, in line with the generational development of economic planning. The assessment of retail, commercial and industrial opportunities therefore extended beyond straightforward economic planning and considered how the private and public sectors (in concert) can take full advantage of specific economic and social opportunities in order to deliver the intended outcomes.
These outcomes are summarised as follows: · The creation of a new sustainable community that provides high levels of local employment while contributing to broader regional social and economic outcomes; · The creation of a new sustainable community that is anchored to this place and delivers on the opportunities created by specific local economic signatures; · The scale of retail, commercial and employment provision will be built in response to local circumstance; · The planning and provision of retail, commercial and employment uses will respect the role and function of other regional centres and nodes. In particular, the planning and delivery will reinforce the role and function of the Tauranga CBD; · The planning and delivery of the community will not have a ‘one size fits all’ approach to social and economic issues; and · The planning and delivery of the social and economic outcomes will be flexible to take advantage of evolving opportunities.
However so, Wairakei/Te Tumu, market dynamics and planning controls produced two key challenges for the economic evaluation being: · The Commercial Centres Network cannot be effectively enforced as the planning controls do not provide a floorspace cap or other fine grain measure. Consequently, the designated role and functions are effectively void as centres can extend to the extent of their zoning. The key challenge for Te Tumu and Wairakei will be to develop activity centres that can serve the needs of the local population in line with the stated Commercial Centres Network. · The demand for industrial and employment land is based on broader economic drivers and is not strongly linked to local population growth. This often results in lagging demand or poorly planned areas. Poor local employment planning does not support the SmartGrowth philosophy.
In order to understand the potential future implications for Te Tumu, RPS analysed employment signatures, and considered case studies against population growth analysis.
Page | 111 RPS identified that: · The Coast area of Tauranga City had a population of 42,214 in 2013, or 35% of the total population of the TCC jurisdictional area; · By 2063 (when all areas are built out) the Coast population (medium scenario) is projected to be 74,506. This equates to 38% of the total population of the TCC jurisdictional area; · The difference between the low population scenario for Te Tumu and Wairakei (20,009) and the medium population scenario (25,259) demonstrates the potential variation in demand for employment and services/facilities. Consequently, any recommendations need to be viewed with a degree of flexibility in order to accommodate the likely variation in demand; · The Wairakei and Te Tumu areas will host about 78% of the growth in the coastal area (excluding any growth attributed to new greenfield areas).
RPS recognised that in practical terms, the implications for economic planning at Te Tumu include: · Economic planning needs to consider the longer term with the focus on social and economic outcomes for the community; · The planning needs to accept and encourage change and innovation. This will require an adaptable approach that does not focus on individual businesses or business sectors; and · The activity centres and employment areas in Te Tumu will be developed without reference to major public sector employment precincts. Uses such as Universities, hospitals and other regional drivers are best located in the CBD or as an extension of existing facilities.
Through case study analysis it was identified the following implications for future development within Te Tumu: · It is a straightforward proposition to provide retail, large format retail and service industry uses that will be needed to service the catchment population. The demographic profile of future residents will further shape this demand. An example of this is a community with a concentration of families will generate higher levels of demand for schools, child care and related facilities; · Industrial and employment land will respond to regional demand and locational drivers with large scale employment lands needing high quality regional road access; · It is difficult to activate an extensive amount of main street frontage, particularly in a location that also provides a standalone shopping centre of some form; · In the absence of major government investment (major public transport, hospital, university or public sector employment hub), the employment lands will only respond to broader regional demand and will be competing in this more diverse market. The timing of development of industrial and employment lands is therefore dependent upon regional economic drivers, competitive responses and the willingness of the land owners to pursue an employment/industrial outcome for their lands; · Careful attention must be paid to how the activity centres and employment areas are staged. This is essential if the initial stages are to preserve longer term opportunities; and · Higher density residential, developed last after the amenity and services are established, is the ‘fall back’ land use for large mixed use town centres.
Page | 112 RPS identified that the provision of industrial land at Wairakei and Te Tumu needs to address the economic future of the region, the nature of work and the tension between planning objectives and the (usually) shorter term market demands. RPS identify that their preferred recommended outcome is best delivered by a 75% employment self-containment option which provides the opportunity for the majority of employment to be hosted locally with the reminder supporting other precincts. The result is the need to provide 110Ha (+/- 10%) of industrial land at Wairakei / Te Tumu (in total) which provide the best balance between the employment needs of the community, the desire to establish local employment opportunities while generating a regional supply of industrial land that is the best match for the long term needs of the community.
The above analysis also supports TCC’s current planning approach to Wairakei and the creation of Special Housing Areas and rezoning of employment land to residential along the southern side of Te Okuroa Drive. This will enable provision of greater employment opportunity being located around the core of the Wairakei Town Centre.
In terms of commercial land supply, RPS recognised the need for the delivery of activity centres. For the activity centres network for Wairakei and Te Tumu RPS recommend this to include: · A town centre that will serve as the retail core and central focus for employment, services and retail. This area will be proximate to the industrial area to allow for a scaling of land uses and the creation of strong economic and social linkages. The retail footprint of the town centre will range from 30,000 Sq M to 40,000 Sq M and the zoned area should be 26Ha (+/- 10%). This is the currently zoned Wairakei Town Centre; · 2 secondary centres (including Papamoa Junction) – these are intended to contain a supermarket and related retail. At the low or medium density population scenarios, one of these areas may not host a supermarket (due to lack of demand). Papamoa Junction is the likely location for the third supermarket (ahead of the other centre) as it is capable of being developed in the short term. These centres are expected to host 6,000 to 7,000 Sq M of retail space; · A series of local centres; and · Up to 11,000 Sq M of LFR (not including a major hardware store), this will most likely locate in the Town Centre or Papamoa Junction.
Summary Outcomes of RPS Assessment - Te Tumu Residential Densities The Tumu Residential Density analysis focused on a range of local, national and Australian examples of density delivery. The outcomes of the work are that: · The Te Tumu Urban Growth area is an important and necessary development within Tauranga City; · The median average residential density of the reviewed New Zealand and Australian developments that could be applicable to development within Te Tumu was 17. 1 dw/ha Net; · Allowing for an anticipated increase in density of 5-7 dwellings per hectare, over a 30-50 year development horizon, the projected density for Te Tumu is expected by RPS to be approximately 24.0 dw/ha; · This would achieve, if delivered, approximately 7,846 dwellings and 15,817 people (note when full assessment of constraints is made approximately 7,705 dwellings and 14,878 people could be delivered); and
Page | 113 · A ‘High Growth’ scenario was developed to provide an alternative staging solution to delivering higher dwelling yield, increased density and population at the later stages of the Te Tumu phasing. This is also considered to potentially offset any non-delivery of multiple owned Maori land if residential development is not realised, The High Growth scenario achieves approximately 29.0 dw/ha, 8,923 dwellings and 17,599 people.
The assessment also considered what, if anything, TCC could do to encourage the delivery of higher residential densities. The following are the outcomes: · Reduced infrastructure charges if dwelling targets are reached, in particular if certain dwelling types are delivered, i.e. terrace or townhouse product. Turn on and off subject to demand levels; · Height concessions (above 17.5m) if good design prevails, i.e. increased sustainability measures or demonstrated affordability with ‘x’ no. dwellings below the median price; · Reduced parking rates if medium density is delivered in the nominated zones and less than 100m to public transport route; · Design and locate neighbourhood reserves to deliver on core urban design principles; · Investigate alternate form of house delivery model with builders, i.e. 20-30 houses designed, tendered and built at a fixed price, similar to apartment sales model; and · Council build a demonstrator small lot house (below median price) in conjunction with a builder.
It is recognised that within the assessment there are a range of key factors/assumptions that if altered could result in materially higher or lower residential densities: 1. An ageing population; 2. The large amount of multiple owned Maori land, estimated to be approximately 179.46ha of developable land when no tsunami constraint is considered; 3. Price of land increases as a result of demand due to affordability levels in Auckland. We actually need this to occur to drive down lot sizes and change current market demand for large lots; amd 4. Increase in constrained land as a result of tsunami studies or additional stormwater treatment/conveyance.
Additional recommendations to TCC are provided on page 38 of the RPS report (Appendix H – Part 3) which should be considered through the structure plan process.
For the purposes of financial analysis, the outputs of the RPS density study work have been considered for assessment as part of considering financial viability.
Page | 114 Infrastructure
The general component of this high level workstream focused on ensuring that the three waters, transportation and energy can be provided to the Urban Growth Area. To deliver on this certain broad modelling assumptions were developed to enable comparison modelling to be undertaken.
TCC utilised the assumed population projections from TCCl demographics modelling and SmartGrowth projections for Te Tumu, including the outputs of the RPS work further outlined in this report, and developing a low population scenario of 15 dwellings per hectare delivered over the Urban Growth Area.
It is noted that the above was used to enable modelling of the infrastructure considerations. However so, the strategic component of this workstream has sought to investigate the implications of undertaking varying landuse scenarios (location and density) within the Te Tumu Urban Growth area within the eastern and central corridors. This has been a composite of existing modelling work undertaken and ensuring that analysis sits within identified urban development scenarios proposed.
The infrastructure investigation is focused on assessing and detailing the available infrastructure at main entry / exit points to the Te Tumu Urban Growth Area, specifically, water supply, wastewater and transportation. The outputs of each component of the modelling is provided in Attachments I (Transport) and J (Water & Wastewater) – Part 3.
Any future network design will need to recognise the likely means in which infrastructure would be delivered under a standard reticulation model. This includes:
Transportation · A main network of transport routes linking to the Tauranga Eastern Link, Te Okuroa Drive the Boulevard and Papamoa Beach Road supported by a network of local and collector roads.
Wastewater · A wastewater network that aligns with the transport route with connection back to Te Maunga and supported by two main pump stations and a network of minor pump stations. o A network of internal pipes and pump stations, including two main pump stations; o Upgrades or replacement of pump stations and trunk pipes between Te Tumu and the Te Maunga wastewater treatment plant; and o Upgrades to the Te Maunga wastewater treatment plant and outfall pipeline.
Page | 115 Water · A water network that aligns with the transport route supplied by the Waiari Water Treatment Plant and includes: o Connection to the water network developed to the west in Wairakei; o Dedicated water main from the Waiari water scheme to the eastern end of Te Tumu; and o Internal trunk and local network of water pipes.
It is noted that the Waiari water supply scheme is required to provide for ongoing growth for the entire City, including Te Tumu. It is currently planned to commence operations in 2021 with construction commencing in 2018.
Stormwater · A stormwater network that includes the construction of on-site stormwater mitigation storage and treatment in accordance with the Papamoa Comprehensive Stormwater Consent; the Wairakei Stream to Kaituna River stormwater overflow and other consented stormwater outfalls to the Kaituna River.
Transportation Assessment The transportation assessment component of this analysis assessed three possible land-use permutations for Wairakei and Te Tumu, in terms of confirming the need for four-lane arterial and collector roads and their timing relative to two road networks, with or without the provision of the PEI on the TEL.
The sensitivity testing is Stage 1 of a two-stage modelling scope and process. Stage 2 which is now underway will model a single feasible land-use scenario across a variety of refined road network permutations that have been informed by these Stage 1 findings. Outputs will be reported on separately to relevant parties and will inform the structure plan process and Council investment strategies.
The Stage 1 results from a sensitivity analysis of land use densities in Wairakei and Te Tumu have confirmed that the earlier provision of the PEI has the potential to avoid the need for widening a number of local arterial and collector roads. This may be desirable from both an economic (cost avoidance) and urban planning (e.g. liveability and safety) perspective.
The findings of Stage 1 indicate sensitivity to land use density assumptions on some of the roads in question. However, there appears to be greater sensitivity to the provision of regional access in terms of the PEI and the Kaituna Link. The next Stage 2 modelling will therefore be focussed on modelling a single, refined land use to investigate these network effects in more detail as to their need and timing.
Page | 116 Water & Wastewater Assessment Summary of Water/ Assessment Water supply to the Te Tumu Urban Growth Area has been planned for from the existing (and planned) TCC reticulated network. The supply would be taken from the coastal strip area (Wairakei) supplied by the new Waiari Water Treatment Plant which is due to be constructed in 2018 and operational by 2021.
The modelling undertaken by MWH estimated peak demand for Te Tumu in 2051 of 100 L/s, or approximately 6,800 m3 per day based on a 15,100 population. This aligns with TCC design standards of the base population scenarios considered throughout the wider Study.
The long term potable water servicing of Te Tumu has been re-modelled as part of this current analysis. The purpose of the analysis was to check the capacity available ’at the gate’ of Te Tumu in 2023 and the infrastructure predicted to 2051. Two scenarios were run: · Development at 15 dwellings per hectare; and · Development at mixed housing densities as per RPS Te Tumu Density Analysis Report.
The results of this modelling indicated: · There is no difference between the two scenarios; · The proposed network at 2023 can support around 2750 dwellings (or dwelling unit equivalents);
It is noted that within the assessment report planning controls are recommended to address issues around development staging and infrastructure provision (i.e the requirement for a sequencing schedule to align growth with infrastructure provision and capacity).
Summary of Water/ Assessment The provision of wastewater services for Te Tumu into the City network was modelled by URS in 2010 and has been included in TCC’s long term planning.
The URS waste water model (Wairakei - Report 2, Pipe line upgrades) provides for approximately 20,000 residential population in Te Tumu at 2051. It is expected the final population will be between 11,000 and 16,000 given the constraints of the land based upon market analysis undertaken by RPS. The modelling by URS is considered sufficient to assess the feasibility of servicing the area at medium density 16,500. The proposed form of the Te Tumu system would follow Wairakei as trunk mains with a series of pumps stations and service mains. This has the ability to be extended as development occurs/and or as density increases.
The upgraded Wairakei trunk waste water system will need to be completed to enable development in Te Tumu, which is currently being planned. The new Wairakei trunk pump station is due to be constructed from 2018-19. This first stage (Stage 1) does not include for significant flow from Te Tumu, however extra capacity (Stage 2) is provided for in current design work through pump upgrades. Therefore, capacity to service Te Tumu can be catered for as development is undertaken and the flow increases.
Page | 117 The TCC plant (Te Maunga) is the primary waste water treatment facility for this area. Significant upgrades are planned to for both the existing reticulation system and treatment system to cater for growth. Funding is provided within the Council Long Term Plan and 30 Year Infrastructure Strategy.
Summary Conclusions (Water/Wastewater) The provison of water and wastewater to the Te Tumu Urban Growth Area commencing around 2021 can be accomodated from the TCC systems as existing and planned, and capacity will be aviable within the existing water and wastewater networks to enable growth to proceed within Te Tumu once provided to its boundary. Additional network upgrades would pregorssively be requried as development and density is delivered.
The analysis has assumed a maximum population of 16,500 which could be provided for under the designed networks.
Planning controls (development of a sequencing schedule) are recommended to address issues around development staging and infrastructure provision.
Page | 118 Alternative Infrastructure
However infrastructure planning for the growth of the City has assumed that Te Tumu would be serviced by reticulated water from the planned Waiari water treatment plant and reticulated wastewater that would be processed by the expansion of the Te Maunga wastewater treatment plant, additional investigation has been made into alternative forms of infrastructure provision to supply and deliver water and, wastewater network infrastructure within Te Tumu, using other options than TCC normal reticulated water/wastewater network.
The assessment included: · Identifying ways in which development in Te Tumu could commence at an appropriate time without the need for significant lead infrastructure (water/wastewater) investment by TCC that would need to be debt funded; · Allowing development costs to be reduced, which would make it possible to deliver housing that is more affordable; and · The provision of private infrastructure.
GHD were engaged to undertake this assessment. The outcomes of this work are provided for in Attachment K – Part 3.
The assessment project goals were: · To undertake a desktop assessment of alternative water and waste water infrastructure to the Te Tumu growth area. The study will need to consider all costs from source- service to property and treatment/discharge; · To provide a report outlining the options assessed, construction/maintenance costs and whole of life costs; · To determine the feasibility of alternative infrastructure provision against a standard service provision model; · Infrastructure will need to provide a Level of Services (LOS) no less than the existing TCC standards (as set out in Councils Performance Standards) and relevant NZ Standards (NZS 4509- Fire Fighting, Drinking water standards); · High level consideration of consenting and policy risks with regard to water take and discharge; · Timing of service provision and development within the growth cell and adjacent areas; · Consideration of ownership options and operational options; · Consideration of location of services and interconnectivity with the existing and planned reticulation for the area; · Consideration of delivering development through alternative infrastructure as a staged approach to development; and · To make recommendations on additional assessment work that could be undertaken on identified viable outcomes when assessed against the standard supply and reticulation from existing TCC services.
Page | 119 The assessment included: · Identifying ways in which development in Te Tumu could commence at an appropriate time without the need for significant lead infrastructure (water/wastewater) investment by TCC that would need to be debt funded; · Allowing development costs to be reduced which would make it possible to deliver housing that is more affordable; and · The provision of private infrastructure.
A preliminary feasibility assessment was used to better define and shortlist options for further consideration. The assessment showed alternative servicing options to generally consist of low levels of feasibility. The assessment showed a viable and consentable raw water source to be critical to developing an effective alternative potable water option. Similarly, the assessment showed alternative wastewater servicing options to be reliant on identifying a socially, culturally and environmentally acceptable effluent disposal option. Based on the findings of the preliminary feasibility assessment, the following alternative servicing options were shortlisted, costed and assessed.
Potable Water Options Selected for Further Consideration: · Groundwater from Te Tumu (noting no source has been identified and further investigation would be required); · River water via Kaituna River (noting that an intake location has previously been identified, further investigation would be required); · Sea water via desalination (noting no in-take location has been identified and further investigation would be required); and · Groundwater from Rangiuru (via deep water bores in Rangiuru Business Park).
Wastewater Options Selected for Further Consideration: · Wastewater treatment via a dedicated Wastewater Treatment Plant in Te Tumu (disposal to be confirmed); and · Wastewater treatment via Western Bay of Plenty District Council’s Te Puke Wastewater Treatment Plant (disposal to existing source).
A number of alternative options identified for consideration were also deemed infeasible, or unsuitable for further consideration as part of this study, as follows:
Potable Water Options Not Selected for Further Consideration · The use of rainwater harvesting tanks, as the primary source of potable water supplies for Te Tumu, was deemed unviable. A public water supply system, designed to meet public health requirements, and seasonal and peak time variations, including firefighting requirements, is considered necessary at a development of the proposed scale and density, to meet principles established under TCC’s City Plan, Infrastructure Development Code, and SmartGrowth; · Communal rainwater harvesting, where stormwater runoff is collected and treated centrally, prior to supply as potable water, was deemed infeasible due to risks associated with the reliability of service, similarly to the option of rainwater harvesting tanks; and
Page | 120 · The reuse of recycled wastewater, for supplying potable water purposes, was deemed unviable under the current social and regulatory context in New Zealand. The reuse of wastewater is not currently practiced in New Zealand, and is a rarity globally. This option is therefore expected to face significant regulatory challenges, with respect to meeting (or confirming) public health requirements, and principles established under TCC’s City Plan, Infrastructure Development Code, and SmartGrowth. This option is also expected to generate considerable resistance from the public, and Mana Whenua.
Wastewater Options Not Selected for Further Consideration · The use of septic tanks to manage wastewater discharges from Te Tumu was deemed unviable with respect to principles and requirements for wastewater reticulation, treatment and disposal, established under TCC’s City Plan, Infrastructure Development Code, and SmartGrowth. The option is also considered unviable under the BOPDC’s Water and Land Plan. · The collection of wastewater within a communal storage facility, for trucking to the Te Maunga Wastewater Treatment Plan, was also deemed unlikely to be viable, except on a very short-term basis, due to the high volume of truck journeys (and associated risks relating to traffic) that would be generated. · The reuse of recycled wastewater, for supplying non-potable water purposes, has been deemed unviable, as non-potable residential demand is only expected to account for up to 30% of the recycled wastewater source. The feasibility of this option therefore relies on an alternative use, such as irrigation, to sufficiently compensate the costs associated with the higher level of treatment and reticulation networks required. This option also requires considerable further consideration with respect to social, cultural and environmental effects.
A multi criteria analysis was undertaken to allow the water and wastewater servicing options to be assessed in a quantitative manner, to reflect the wide set of drivers that would influence the likelihood of each option being deemed viable, should further investigations be undertaken. Results of the MCA are summarised below, with a wider discussion on the methodology within the relevant section of Part 2 of this report, and contained within the appendices.
Option MCA Score Water Options Baseline Option 36 Groundwater Bores in Te Tumu 29 Kaituna River Take 24 Desalination 19 Groundwater from Rangiuru 29
Page | 121 Wastewater Option Baseline 35 Dedicated WWTP in Te Tumu 26 Discharging to Te Puke WWTP 26
The multi criteria analysis shows the baseline options to score considerably better than the alternative options considered. This reflects the high risk associated with alternative servicing options when considered against key criteria such as feasibility, costs, and deliverability (statutory requirements and established timeframes).
The conclusions, in summary, are that TCC’s proposed strategy for servicing Te Tumu aligns with its Infrastructure Strategy for servicing the wider region. The baseline options for both water and wastewater services are therefore considered the most developed, and as such viable, for meeting regulatory requirements and established timeframes for development (i.e. 2021).
Pursuing alternative servicing options poses a high risk of significant expenditure, with no guarantee of a viable alternative servicing option(s) being identified. Key reasons for this include:
· A lack of viable alternative raw water sources, or wastewater disposal options, having been identified to date; · Timeframes and costs generally associated with confirming the viability of water and wastewater schemes of the scale that will be required for Te Tumu; and · Delivering additional water and wastewater schemes specific for Te Tumu, when baseline options based on consented citywide schemes are available, generates a risk of duplicating social, cultural, environmental and economic effects (additional social, cultural, environmental and/or economic benefits are therefore expected to be required to meet consenting requirements for a separate stand- alone option for Te Tumu).
Page | 122 Financial Viability
The financial viability aspect of the project aims to address whether development is financially viable in Te Tumu, based predominantly on infrastructure and land development costs.
The term financial viability refers to whether development would be sufficiently profitable for the developer/landowner to be willing to undertake, and for project finance to be secured. This is assessed: · To ensure that the SmartGrowth settlement pattern is realistic and could be delivered. It is important that growth is not allocated to areas that would be financially unviable to develop; · The Tauranga City Council has, and would need to continue to invest millions of dollars to service new growth areas. To enable new urban growth areas to occur this investment is often in the form of lead infrastructure and is required prior to development commencing. Given this, any Council like TCC can face significant financial challenges if infrastructure investment occurs in areas that prove to be financially unviable to development; · In a general sense it is much more difficult to put together a financially viable development now than it was say 10 or 20 years ago in the Western Bay of Plenty; and · There can be a significant difference between the financially viability of development in different parts of the sub region due to varying development costs and market prices for sections in different locations.
To assess the feasibility of development in Te Tumu a financial model was built which assessed development scenarios. This is a model that includes all of the costs and revenues associated with land development and the timing thereof, including all infrastructure required to deliver development. The model allows the financial performance of a development proposal to be calculated from the perspective of the developer (at either an Urban Growth Area level, or specific landowner development land area). The technical report of the financial model and methodology is located in Attachment L – Part 3.
One key scenario was modelled, as summarised below: · 15 dwelling p/ha residential scenario over land identified; · Full planning constrained land considered; · No active reserve (however a 20ha reserve will be required to provide for recreational use and demand); · 66ha of employment land; · No education land (however 2 primary schools and 1 secondary school are expected to be required to provide for education requirements); · Infrastructure network providing for a population of 16,500 persons; and · No provision for Stage 1 and 2 of the Papamoa East Interchange, nor the Kaituna Link (which has been estimated to cost $67.8M).
Page | 123 4
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Tauranga City council Te Tumu growth area, Proposed Utilities Document Path: Q:\ServiceDeskRequests\2001-3000\2508_Te_Tumu_Tsunami_Proposed_Models\PumpStations\Te Tumu Growth Area proposed utilities.mxd The above scenario is considered to be the low (and ‘worst case’) scenario at 15 dwellings per hectare. For the purposes of the assessment 2.2 persons per dwelling was utilised. As a result the following population and dwellings would be delivered within the Urban Growth Area under this scenario. Scenario 15 dwellings per hectare scenario Population 8,646 Dwellings 3,930
No specific modelling was undertaken to determine financial modelling above the assessed scenario. This is because the outputs of the tested scenario performed well against the considered ‘worst case’ scenario. Given a low population was tested with a high infrastructure provision it is considered that any density above the baseline assessed will also be viable (up to a population of 16,500).
While this is the case, if density were increased in accordance with the market analysis undertaken by RPS then the timing of development would be extended and likely result in changes as shown in Figure 29. This would result in a likely change to the extent in which greenfield land supply would be available within Papamoa East, as potential increases in density along the coastal margin was undertaken.
It is noted however that there are a range of factors in regard to the delivery of density within Te Tumu much of which is covered elsewhere within this report which includes the need to appropriately design Te Tumu to encourage density in key locations, provision of infrastructure and acknowledgement of market conditions that ultimately determine viability of changes in density. It is recognised that Tangata Whenua, as outlined in the cultural and hertigage sections of this report have stated concerns in regard to higher density being located in the eastern end of Te Tumu, the location where density is most likely to be achievable.
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Tauranga City council Te Tumu growth area, Proposed Utilities Document Path: Q:\ServiceDeskRequests\2001-3000\2508_Te_Tumu_Tsunami_Proposed_Models\PumpStations\Te Tumu Growth Area proposed utilities.mxd The base model outputs for the base modelled scenario of 15 dwellings per hectare show that the overall growth area as having a high level of viability. The Gross Margin is over 37% and the Return on Equity 11.7%. As well as looking at Te Tumu from an overall basis, TCC also modelled the development viability of the four land blocks with unconstrained land areas in Te Tumu on an individual basis. The principle difference from the overall model related to the key infrastructure to be completed by the developers. In the overall model this was averaged into a general cost per ha. In the individual models, these projects were specifically allocated to each land owner.
Site 4 5. This development is expected to be the first development area within Te Tumu. The model assumes that the developer of Site 4 will first construct Te Okura Drive (with water and wastewater) through the Tumu Kaituna 14 block – Site 1. This scenario includes the reimbursement for the Kaituna Overflow Stormwater swale which is indicatively considered to be located over this Site. This block is expected to take 6-7 years to fully develop. This block looks highly viable, with a Gross Margin of 37% and an internal Rate of Return of about 20%.
Site 11 6. This development is expected to be the second development area within Te Tumu. The model assumes that the developer of Site 11 will initially connect to the infrastructure on Te Okura Drive at the shared boundary with the Site 4 block. By 2030 it is expected that traffic volumes along Te Okura Drive will require the construction of the Boulevard (from Wairakei) through Sites 1 and 9 to the boundary of Site 11. The model assumes that the developer of Site 11 will construct the Boulevard with water and wastewater infrastructure as part of the road construction). This block is expected to take 9-10 years to fully develop. The major difference with this development is the desire of the current landowner to achieve a much higher density and to construct the Kaituna Link Road. Therefore this scenario uses an average density of 23 lots per ha and the costs of developing this road ($67.8M for road and an assumed project cost of $12M for link to TEL). This block looks highly viable, with a Gross Margin of 30% and an internal Rate of Return of about 20%. This return is highly reliant on achieving the targeted densities, with a reduction in density to 20 lots per ha only giving a 16% Gross Margin. (The Report writers note that the development of Site 11 without the Kaituna Link project on ramp and at 15 lots per ha is viable).
Site 1 7. This development is modelled to commence after 2035. The model assumes that this developer will refund the other developers who have already constructed infrastructure through this land at this time (i.e. developers of Site 4 and 11). Due to the distance into the future this is a very approximate model and assumes a very slow development rate (around 2.5 ha per year). It does not take into account the impact of any industrial development that may also be happening (which would be likely to improve viability). This block looks viable, with a Gross Margin of 31%, but only has an internal Rate of Return of about 4% due to the very slow growth assumptions. It is noted that Site 1 is multiple owned Maori land.
Page | 127 Site 9 8. This development is modelled to commence after 2035. The model assumes that this developer will refund the other developers who have already constructed infrastructure through this land at this time (Site 11 developer). Due to the distance into the future this is a very approximate model and assumes a very slow development rate (around 2.5 ha per year). However there is a relatively small amount of key infrastructure required in this area (e.g. Te Okuroa Drive does not go through it). This block looks very viable, with a Gross Margin of 37%, and an internal Rate of Return of about 18%. Because of its relatively small size (15.8ha) it is not significantly impacted by the slow growth assumptions. It is noted that Site 1 is multiple owned Maori land.
Both the model itself, the outputs and conclusions have been independently reviewed and found to be reasonable. Further, the proposed methodology to deliver Te Tumu (i.e. all internal infrastructure being developer funded) will enable the Tauranga City Council (TCC) to see considerable development occur (up to around 800 sections) before it undertakes significant levels of debt. This considerably reduces TCC’s balance sheet risk.
Based upon the information assessed, and modelling undertaken, there is no reason why Te Tumu should now not be progressed towards the development of a structure plan and Resource Management Act planning process. It is logical that development of Te Tumu is staged to commence once infrastructure is available to its boundary and all required structure planning and Resource Management Act planning is undertaken.
Page | 128 PART THREE – ATTACHMENTS
Page | 129 ATTACHMENT A – Site Identification
Page | 130 ATTACHMENT B – Project Plan
Page | 131 ATTACHMENT C - Archaeology
Page | 132 ATTACHMENT D – Liquefaction Assessment
Page | 133 ATTACHMENT E - Tauranga Tsunami Inundation Modelling
Page | 134 ATTACHMENT F – Review of Titles and Identification of Encumbrances
Page | 135 ATTACHMENT G - Commercial/Retail (Sub Regional Assessment of Commercial Opportunities) – Te Tumu/Wairakei (and the wider Tauranga Eastern Corridor)
Page | 136 ATTACHMENT H – Te Tumu and Wairakei Density Study
Page | 137 ATTACHMENT I – Transport Infrastructure Assessment
Page | 138 ATTACHMENT J – Water & Wastewater Assessment
Page | 139 ATTACHMENT K – Alternative Infrastructure Assessment
Page | 140 ATTACHMENT L – Financial Viability Report
Page | 141 PART FOUR – REFERENCE DOCUMENTS
Outstanding Natural Features and Landscapes · Boffa Miskell (1993) A Landscape Assessment of the Bay of Plenty Coastal Environment, Report prepared for Environment Bay of Plenty · Boffa Miskell (1993) Western Bay of Plenty District Visual Landscape Evaluation, Report prepared for the Western Bay of Plenty District Council. · Boffa Miskell (2006) Outstanding Natural Features and Landscapes: Bay of Plenty Coastal Environment, Report prepared for Environment Bay of Plenty. · Boffa Miskell (2007) Outstanding Natural Features and Landscapes Review, Report prepared for Environment Bay of Plenty. · Boffa Miskell (2009) Outstanding Natural Features and Landscapes Review in Inland Bay of Plenty, Report prepared for Environment Bay of Plenty. · Environment Bay of Plenty Planning Documents: o Regional Coastal Environment Plan, o Regional Water and Land Plan, o Regional Policy Statement (RPS). o Tauranga City Landscape Study http://www.tauranga.govt.nz/documents-reports/councils-regulatory-documents/tauranga-city-plan/supporting-documentation.aspx
Natural Character Areas · Boffa Miskell (2013) - Natural Character Assessment of the Bay of Plenty Coastal Environment https://www.boprc.govt.nz/media/367889/boffa-miskel-final-natural-character-report-t10089_02-part-1-web.pdf, and https://www.boprc.govt.nz/media/367890/boffa-miskel-final-natural-character-report-t10089_02-part-2-web.pdf
Page | 142 Special Ecological Areas · Wildland Consultants (1994) Significant Indigenous Vegetation of the Bay of Plenty Coastal Zone, Report prepared for the Bay of plenty Regional Council; · Wildland Consultants Ltd (2000) Biodiversity Monitoring for Tauranga District 2000 - Category 1 Significant Ecological Sites: Ecological Condition & Photopoint Monitoring, Report prepared for the Tauranga District Council, Contract Report 315. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – Selection of Indicators for State of the Environment Monitoring and Reporting, Report prepared for the Tauranga District Council, Contract Report 287. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – State of the Environment Reporting, Report prepared for the Tauranga District Council, Contract Report 309. · Wildland Consultants Ltd (2000) Indigenous Biodiversity of Tauranga District – Monitoring Manual, Report prepared for the Tauranga District Council, Contract Report 329. · Wildland Consultants Ltd (2000) Ecological Assessment of Papamoa East, Tauranga District, Report prepared for the Tauranga District Council, Contract Report 358. · Wildland Consultants Ltd (2002) Biodiversity Monitoring for Tauranga District 2002 - Category 1 Significant Ecological Sites: Ecological Condition Assessment & Photopoint Monitoring, Report prepared for the Tauranga District Council, Contract Report 483. · Wildland Consultants Ltd (2005) Indigenous Biodiversity of Tauranga City – State of the Environment Reporting, Report prepared for the Tauranga City Council, Contract Report 1256. · Wildland Consultants Ltd (2008) District Plan provisions Relating to Indigenous Biodiversity in Tauranga City (Part 1: A Review of District Plan Effectiveness), Report prepared for the Tauranga City Council, Contract Report 2027. · Wildland Consultants Ltd (2008) Indigenous Biodiversity of Tauranga City – State of the Environment Reporting – Updated 2009), Report prepared for the Tauranga City Council, Contract Report 2053. · Wildland Consultants Ltd (2008) Significant Indigenous Vegetation and Significant Habitats of Indigenous Fauna in the Coastal Environment of the Bay of Plenty Region – addendum, to 2006 Report, Contract Report 1742. · Wildland Consultants Ltd (2008) Natural Areas in Tauranga Ecological District, Report prepared for Environment Bay of Plenty, Contract Report 1914.
Flood · River Edge Consulting Limited (2009) Hydraulic Modelling of the Kaituna River, Report prepared for Environment Bay of Plenty. http://www.boprc.govt.nz/media/32662/PWallace-090803-HydraulicModellingKaituna.pdf · Environment Bay of Plenty Operations Publication 2005/01 (2005) Kaituna River Major Scheme Hydraulic Review. http://www.boprc.govt.nz/media/32857/Report-0502-KaitunaRiverMajorSchemeHydraulicReview.pdf
Page | 143 Tsunami · Prasetya, G. and Wang, X 2011. Tsunami inundation modelling for Tauranga and Mount Maunganui, GNS Science Consultancy Report 2011/193. 36 p. · Beban, J.G.; Cousins, W.J.; Wang, X; Becker, J.S (2012), modelling of the tsunami risk to Papamoa, Wairakei and Te Tumu assuming altered ground level due to development of Wairakei and Te Tumu and the implications for the SmartGrowth Strategy, GNS Science Consultancy Report 2012/54. 168p. · Power, W.L. (compiler). 2013. Review of Tsunami Hazard in New Zealand (2013 Update), GNS Science Consultancy Report 2013/131. 222p. · NIWA (2015) Review of tsunami inundation and evacuation modelling undertaken by GNS Science and Tonkin and Taylor for Tauranga City Council – Memorandum to Tauranga City Council. · GNS (2014) Does the ‘Variation of whole Kermadec Scenario’ (Prasetya and Wang, 2011) lie outside of the 2500 year (84% confidence) tsunami as defined by Power (2013)? Letter to Tauranga City Council. · Tonkin & Taylor (2013) Tauranga Tsunami Inundation Modelling, Report prepared for the Tauranga City Council, job No. 28757/Final.
Infrastructure · BECA Infrastructure Limited (2006) Kaituna Link Scoping Study, Prepared for the Tauranga City Council and Western Bay of Plenty District Council. · BECA Infrastructure Limited (2007) Kaituna Link Study Report No. 2 – Te Puke Bell Road Link and Kaituna River Crossing Location, Prepared for the Tauranga City Council and Western Bay of Plenty District Council. · Environment Court Decision on Resource Consent 65637 – Water Take from the Wairakei Stream Municipal Supply.
Tangata Whenua, Cultural and Heritage · Ngai Te Rangi & Nga Potiki Deed of Settlement Study; https://www.govt.nz/treaty-settlement-documents/ngai-te-rangi-and-nga-potiki/ngai-te-rangi-and-nga-potiki-deed-of-settlement- summary-14-dec-2013/ · Ngaiterangi Iwi Protocol Agreement and Addendums, Tauranga City Council and Ngaiterangi Iwi · Te Akau Ki Te Tumu Kaituna; H Cooper, KM McLeod, prepared on behalf of Nga Potiki A Tamapahore, November 2001 · Ngati Pukenga Deed of Settlement Summary 7 April 2013; https://www.govt.nz/treaty-settlement-documents/ngati-pukenga/ngati-pukenga-deed-of-settlement-summary-7-apr-2013/ · Ngati Pukenga Iwi ki Tauranga Trust Iwi Management Plan August 2013 · Tapuika Deed of Settlement Summary 16 December 2012 https://www.govt.nz/treaty-settlement-documents/tapuika/tapuika-settlement-summary/ · Tapuika Statutory Acknowledgement (Tauranga City Plan) · Tapuika Environmental Management Plan 2014-2024
Page | 144 · Tapuika Protocol Agreement and Addendums, Tauranga City Council and Tapuika · Waitaha Deed of Settlement Summary 20 September 2011; https://www.govt.nz/treaty-settlement-documents/waitaha/waitaha-deed-of- settlement-summary-20-sep-2011/ · Waitaha Statutory Acknowledgement (Tauranga City Plan) · Waitaha Iwi Management Plan 2014 · Waitaha Protocol Agreements and Addendums, Tauranga City Council and Waitaha · Waitaha Cultural Heritage Assessment, Papamoa East. Peter Rolleston, July 2001 · Ngati Whakaue ki Maketu Protocol Agreement and Addendums, Tauranga City Council and Ngati Whakaue ki Maketu · Ngati Whakaue Iwi Resource Management Plan Phase 2 2011 · Te Runanga o Ngati Whakaue ki Maketu – Cultural Heritage Report Te Tumu Kaituna – Papamoa East 2005 · Kaituna River and Ongatoro/ Maketu Estuary Strategy, September 2009 · Ngati Rangiwewehi Iwi Environmental Management Plan 2012, Te Maru O Ngati Rangiwewehi Iwi Authority, 30 December 2012 · Te Kahui Mangai Website; http://www.tkm.govt.nz/ · Wairakei – Waaihi Tapu and Tribal Boundary Marker, D Kahotea, September 2000 · Papamoa Lowlands Archaeological Survey and Heritage Assessment July 2000, Gumbley W and Phillips K.
Archaeological · An Archaeological Survey of the Papamoa Coastal Zone, Tauranga District Council, May 1996, Frederickson C, Kahotea D, Felgate M for Tauranga District Council and New Zealand Historic Places Trust. · Papamoa Lowlands Archaeological Survey and Heritage Assessment July 2000, Gumbley W and Phillips K.
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