BEFORE THE AUCKLAND UNITARY PLAN INDEPENDENT HEARINGS PANEL
IN THE MATTER of the Resource Management Act 1991 and the Local Government (Auckland Transitional Provisions) Act 2010
AND
IN THE MATTER of TOPIC 081d Rezoning and Precincts (Geographical Areas)
AND
IN THE MATTER of the submissions and further submissions set out in the Parties and Issues Report
STATEMENT OF EVIDENCE OF ERYN JAMES SHIELDS ON BEHALF OF AUCKLAND COUNCIL
WEST SUB-REGIONAL OVERVIEW 26 JANUARY 2016
TABLE OF CONTENTS
1. SUMMARY ...... 2 PART A – OVERVIEW AND BACKGROUND ...... 3 2. INTRODUCTION ...... 3 3. CODE OF CONDUCT ...... 3 4. SCOPE ...... 3 5. STATUTORY AND POLICY FRAMEWORK ...... 4 6. RELEVANT PLANNING DOCUMENTS ...... 4 PART B - SUB REGIONAL OVERVIEW ...... 7 7. DESCRIPTION OF WEST AUCKLAND ...... 7 8. STRATEGIC OVERVIEW OF INFRASTRUCTURE ...... 9 9. KEY TRANSFORMATIONAL PROJECTS WITHIN WEST AUCKLAND ...... 11 10. PRECINCTS WITHIN THE WEST ...... 12 11. SUMMARY APPROACH TO ZONING WITHIN THE WEST AREA ...... 14 12. OVERVIEW SUBMISSIONS FOR SUB REGION ...... 18 13. CONCLUSION ...... 19
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1. SUMMARY
1.1 In this evidence I set out an overview of the pattern of zoning and precincts under the Proposed Auckland Unitary Plan (PAUP) for the western area of the Auckland region.
1.2 I have relied upon the evidence of John Duguid for Topic 080 Rezoning and Precincts (General) (Topic 080) and Topic 081 Rezoning and Precincts (Geographical Areas) (Topic 081) in particular, which sets out the relevant statutory and policy framework, relevant planning documents and a strategic overview of the Council’s approach to zoning and precincts within the PAUP. Mr Duguid highlights priorities from the Auckland Plan for urban Auckland to achieve quality compact urban environments with good design and enduring neighbourhoods, centres and business areas while also meeting the following aspirations:
Increasing housing supply and choice
Aligning with essential physical and social infrastructure
Balancing increased development potential with a reinforced sense of place.
1.3 In essence these priorities and aspirations underpin the proposed zonings and precincts for the West. They also reinforce the established pattern of urban development on the West. This concentrates the West’s most intensive residential and business development opportunities in a growth corridor starting with New Lynn at its eastern end, along Great North Road to Henderson, along Lincoln Road, with Westgate being the northern of the three Metropolitan Centres. A series of Town, Local and Neighbourhood Centres are interspersed between the three Metropolitan Centres. The North Western Motorway is an important transport corridor that links the West to central Auckland, and provides ready access the various centres. The North Auckland Rail line links a series of town centres from New Lynn to Swanson, with suburban stations serving residential hinterlands. These two transport links have shaped the nature and extent of urban growth in the West. The West is also bounded by the Waitemata and Manukau Harbours, and the Waitakere Ranges forms the forested and rural western backdrop to Auckland.
1.4 Infrastructure provision, particularly multi-modal transport initiatives (such as the public transport nodes at Henderson and New Lynn), combined with private and public development opportunities at New Lynn, Westgate and in the Hobsonville Corridor further support the spatial pattern of the zoning in the West.
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1.5 Beyond the central growth corridors of the North Western Motorway, Great North Road and the North Auckland Rail Line and the Metropolitan Centres of New Lynn, Henderson and Westgate, the development capacity provided through the zoning and precinct pattern is more conservative. This is due to a combination of historic centres (such as Glen Eden) and industrial areas that, while have been established last century are now poorly located in the context of the modern Auckland and are now served by a less efficient road network with reduced access to public transport via the rapid and frequent service network (RFN). Consequently there are edge areas that have a lower housing density, and legacy zoning for industry and local centres.
PART A – OVERVIEW AND BACKGROUND
2. INTRODUCTION
2.1 My full name is Eryn James Shields. I hold the position of Team Leader Planning North and West at Auckland Council (Council). My qualifications and experience are provided in Attachment A.
2.2 The purpose of this evidence is to set out a sub-regional overview of the approach to zoning and precincts within the Western area of the Auckland region.
3. CODE OF CONDUCT
3.1 I confirm that I have read the Code of Conduct for Expert Witnesses contained in the Environment Court Practice Note 2014 and that I agree to comply with it. I confirm that I have considered all the material facts that I am aware of that might alter or detract from the opinions that I express, and that this evidence is within my area of expertise, except where I state that I am relying on the evidence of another person.
4. SCOPE
4.1 In this evidence I provide a brief description of the Western topic area, an overview of the area’s infrastructure and particular development opportunities and constraints, significant transformational projects and an overview of the Proposed Auckland PAUP rezoning and precinct approach.
4.2 In preparing this statement of evidence I have relied upon the evidence of John Duguid for Topic 080 and 081, which sets out a strategic overview of the Council’s
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approach to zoning and precincts within the PAUP. I have also referred to the following statements of evidence where relevant:
Alastair Cribbens, Steve Wrenn and Liam Winter (Auckland Transport)
Mark Bourne (Watercare Services Limited)
David Mead – Zoning and Natural Hazards
Deborah Rowe (Pre-1944 Overlay Zoning Principles)
Lisa Mein (Historic Character Overlay Zoning Principles)
Peter Reaburn (Volcanic Viewshafts and Height Sensitive Areas).
4.3 In addition I have relied on the AT witnesses’ sub-regional overview joint statement of evidence for Topic 081 about major transport projects and public transport initiatives in specific areas.
5. STATUTORY AND POLICY FRAMEWORK
5.1 The statutory framework is detailed in the zoning and precinct evidence of John Duguid, dated 3 December 2015, and has not been repeated here.
6. RELEVANT PLANNING DOCUMENTS
6.1 The evidence of John Duguid makes specific reference to the New Zealand Coastal Policy Statement 2010 (NZCPS), the Auckland Plan and the Regional Policy Statement (RPS).
6.2 In terms of the NZCPS, Mr Duguid’s evidence notes the provisions that are of particular relevance for zoning. The provisions are not repeated here. However, they have particular relevance for the West, which has an extensive coastline that covers a range of marine environments. These environments include the inner Waitemata Harbour in the vicinity of Te Atatu Peninsula and Hobsonville Point, the Manukau coastline from Green Bay to Whatipu and the Tasman Sea coastline from Whatipu to Bethells / Te Henga. Many of the residential areas along the inner Waitemata Harbour are orientated to the coast. Along the Manukau Harbour and Tasman Sea, numerous beaches are a significant recreational asset that attract day visitors from across Auckland.
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6.3 Mr Duguid’s evidence also refers to the Auckland Plan and its role in setting out the overall vision for Auckland to become the world’s most liveable city. The evidence notes Section D of the Auckland Plan as being of particular relevance to zoning as it sets out a development strategy for Auckland 2040, the key element of which is moving to a more compact quality form. At paragraph 5.15 of his evidence Mr Duguid lists the following three priorities for urban Auckland from Strategic Direction 10 of the Auckland Plan:
(a) Realise quality compact urban environments
(b) Demand good design in all development
(c) Create enduring neighbourhoods, centres and business areas.
6.4 These priorities underpin the zones proposed in the PAUP for the West urban areas. In particular the zones are aimed at helping to achieve the aspirations sought in Chapters 11, 12, 4 and 7 as listed in paragraphs 5.18 – 5.20 in Mr Duguid’s evidence, which in broad terms are:
Increasing housing supply and choice
Aligning growth with essential physical and social infrastructure
Balancing increased development potential with a reinforced sense of place.
6.5 At paragraph 5.16 of his evidence, Mr Duguid refers to Strategic Direction 9 of the Auckland Plan that seeks to “keep rural Auckland productive, protected and environmentally sound”. This strategic direction applies to the rural parts of the West, in particular the Waitakere Ranges Heritage Area and the pockets of rural land in the northern part of the west approaching Kumeu / Huapai. The rural land outside the Rural Urban Boundary (RUB) is variously zoned for rural purposes, as are the rural and coastal villages that are located along the Manukau Harbour, Tasman Sea and the rural hinterland.
6.6 There are extensive areas of business and centre zoning, as identified in paragraph 1.3 above. The priorities under Chapter 6 Auckland’s Economy are also relevant. Generally, these are about growing a business-friendly, creative, vibrant and well- functioning city with a skilled local work force.
6.7 Mr Duguid’s evidence (pages 16-19) also sets out the key sections of the Regional Policy Statement, that need to be considered and given effect to through the
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application of zones and precincts. The sections quoted in Mr Duguid’s evidence are applicable to the West context with its diverse mix of centres, employment areas, residential environments and historic and natural character features. In particular, the zones and precincts are applied in the West to achieve a compact and quality urban form within the RUB, while providing greenfield development capacity in Future Urban zoned land and carefully managing the West’s natural, cultural and historic character. The Waitakere Ranges Heritage Area is a significant constraint to extensive urban development westwards into its Foothills.
6.8 Several West centres had various plans and strategies completed by the former Waitakere City Council in the 10 years prior to the inception of the Auckland Council in 2010. This included the Northern and Western Sectors Agreement in 2001 and the Council’s response to the Local Government (Auckland) Amendment Act 2005. This response included six plan changes, underpinned in Plan Change 16 to the Auckland Council District Plan (Waitakere Section) by a schedule for new and existing town centre and suburban development. This included plan changes for new urban areas at Westgate, along the Hobsonville Corridor and at Hobsonville Point. These changes sought to locate a sub-regional centre and industrial land in a location that was easily accessed from the Auckland isthmus, the North Shore and the rural hinterland north to Helensville. A plan change to regenerate New Lynn was also completed.
6.9 Other non-statutory documents included the New Lynn Urban Plan, the Glen Eden Masterplan, the Ranui Action Plan and numerous other documents. These strategies, policies and plans were generally a combination of growth strategies and council initiated and funded projects. The Council has incorporated these into the Auckland Plan, and has continued implementing a number of these projects, the most recent examples being:
New Lynn where the Town Centre has been redeveloped including a new library and public space, as part of its Urban Plan
Ranui has recently had a new library completed, as part of its Action Plan
Westgate and Hobsonville where substantial infrastructure has been installed to provide the framework for the growth of this new Metropolitan Centre.
6.10 Planning strategies completed since the Council’s inception in 2010 include:
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Henderson Implementation Plan, which provides a list of potential actions in and around Henderson Metropolitan Centre. It provides the Henderson Massey Local Board with a basis for advocacy to the Governing Body in relation to Annual Plan matters.
Muddy Creeks Local Area Plan prepared under the Waitakere Ranges Heritage Area Act 2008, which expresses the Laingholm, Woodlands Park, Waima and Parau communities’ vision for that area on the Manukau Coast.
6.11 At its meeting on 8 December 2015 the Auckland Development Committee approved 19 locations where Panuku Development Auckland, Auckland’s new urban regeneration agency, will lead improvement initiatives. Within the group of 19 there are “unlock” opportunities, which include Henderson Metropolitan Centre. New Lynn was identified as a centre that Panuku will support. Both these opportunities involve strategic Council owned land holdings where significant planning work has already been undertaken, and substantial engagement with the private sector to coordinate their developments to assist in meeting the Council’s strategic direction.
PART B - SUB REGIONAL OVERVIEW
7. DESCRIPTION OF WEST AUCKLAND
7.1 This section addresses the submission topic area groupings in their sub regional context. The topic areas (see Attachment B) are:
Glendene, Glen Eden and New Lynn
Henderson
Massey / Ranui / Non Rural Swanson
Northwest Waitakere, Hobsonville, West Harbour and Herald Island
Te Atatu
Waitakere Ranges Heritage Area
7.2 The West Auckland sub-region is largely made up by the boundaries of the former Waitakere City Council. It incorporates the Whau, Waitakere Ranges, Henderson Massey and the Hobsonville/Whenuapai part of the Upper Harbour / Kaipatiki Local Board Areas. The map at Attachment C identifies the key features of these areas.
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7.3 The area is characterised by an extensive coastal edge, the forested western backdrop and the urban development that initially followed Great North Road and the Railway line and then infill residential development spreading out from arterial roads such as West Coast, Te Atatu, Lincoln, Swanson, Don Buck, and Hobsonville Roads. The urban part of the West is undulating, rising from the Waitemata Harbour as it approaches the Waitakere Ranges.
7.4 The present development pattern in the area reflects historic changes to modes of transport. Early settlement was based on the rail line and areas where water borne transport could reach. The development of the North Western Motorway from the 1960’s onwards saw rapid growth in suburbs such as Massey.
7.5 The varied natural environment, the historical and recent patterns of settlement and periods of urban growth have resulted in a diversity of residential character, which ranges from suburban streets in places such as Te Atatu South and Glendene to village development in parts of the Waitakere Ranges. The most recent phase of residential development includes the intensification in New Lynn (medium density housing in the mid to late 1990’s and more recently the centre’s first large (10 storey) apartment building) and residential infill of residential areas and brownfield industrial sites.
7.6 The West is generally well served by social and community infrastructure. It has an extensive range of community, sports and leisure facilities and services, including the Massey and New Lynn Community Centres, the Trusts Stadium, West Wave swimming facility, numerous sports fields and arts and cultural facilities such as the Lopdell House/Gallery, the Glen Eden Playhouse and the Corban Estate Arts Centre. It has Waikumete Cemetery located adjacent to Glen Eden, which is a major regional asset with a lengthy history. The Waitakere Hospital on Lincoln Road is the centre of an emerging pocket of specialist medical services and related businesses. The area has numerous schools and some tertiary campuses. The new Metropolitan Centre at Westgate will include a library replacing the current Massey Library and a new civic square.
7.7 The three Metropolitan Centres (New Lynn, Henderson and Westgate) and the zoning around those centres and the transport corridors that connect them will play an important role in accommodating a large proportion of future residential, retail and employment growth. These in turn will be supported by Town and Local Centres located around the three Metropolitan Centres.
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7.8 The area has substantial greenfield development opportunity in the Hobsonville and Whenuapai areas. Substantial investments in the motorway system (widening the North Western Motorway) and the revision of public transport routes throughout the West have the potential to better connect residential suburbs to the Metropolitan Centres and to the City centre.
7.9 There are local factors that have shaped and will continue to influence the degree and direction of growth in the West, including:
(a) Transport infrastructure. The North Western Motorway is a vital connector for the West. The current expansion of the motorway, the redevelopment of the approaches to the motorway system and the associated reconfiguration of the bus public transport system in the West will assist with peak hour congestion. The double tracking and electrification of the Western Rail line, plus the completion of the Central Rail Loop will substantially improve rail commuter services. This is further detailed in Auckland Transport’s sub-regional overview joint statement of evidence for Topic 081 at Part C Section 11.
(b) Coastal environment: The West is bounded by the Waitemata Harbour, the Manukau harbour to the south and the Tasman Sea on its western coastline. Urban development occurs right to the edge of the Waitemata Harbour, and ribbon development occurs along the Manukau Harbour. The West Coast has coastal villages of Karekare, Piha and Bethells / Te Henga.
(c) Historic and natural heritage: West Auckland contains many individual sites and structures that define historic patterns of Maori and European history and development. The heritage values of these original sites will continue to be protected through the Heritage provisions of the PAUP. The West also has the significant natural heritage associated with the Waitakere Ranges. The Ranges have shaped the urban form of the West, and the valley and stream systems that flow from the Ranges define local areas and the modern day suburbs.
8. STRATEGIC OVERVIEW OF INFRASTRUCTURE
8.1 In general terms the West is well served by its road network and utility infrastructure. Substantial improvements in roading infrastructure are currently being constructed that will improve the accessibility of the West to employment, retail and entertainment located in the North Shore, the Central Isthmus and South Auckland.
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8.2 The roading comprises a hierarchy of local, collector and arterial roads linking to the North Western Motorway and Great North Road. The Upper Harbour Bridge (part of State Highway 18) connects the West to Greenhithe and the North Shore, particularly the employment opportunities in Albany.
8.3 In their joint statement of evidence for Topics 080 and 081 Alastair Cribbens, Steve Wrenn and Liam Winter explain Auckland Transport’s (AT) management of the transport network. They state on page 11 of their statement “generally, we consider that growth in a compact urban form accompanied by appropriate transport infrastructure and services can and will result in an effective and efficient transport outcome for Aucklanders”.
8.4 Pages 13 and 14 of their statement explains the management approach to support the growth of a compact urban form. Broadly it comprises sub-regional and localised programmes and studies to identify transport initiatives for a 30 year horizon. The initiatives range from large scale “city-shaping” projects through to localised network improvements. They are based upon a multi-modal approach, but in meeting the travel demands of additional growth AT is placing a strong focus on public transport, walking and cycling.
8.5 For the West there are ongoing localised road improvements, such as the upgrade to Te Atatu Road (currently being constructed). For public transport AT’s “New Network” is a major initiative aimed at maximising bus travel patronage around the RFN. The structure of the New Network and how and where it is to be applied in the West is explained in Parts C and D of AT’s joint statement of evidence.
8.6 The AT evidence notes the inevitability of some level of traffic congestion that comes with growing, economically successful cities. The West, like much of the rest of urban Auckland, faces that challenge, particularly along the main commuter routes and links to the motorways.
8.7 The evidence of Mark Bourne for Watercare explains Auckland’s water supply and waste water networks. There are no significant water supply constraints identified for the West’s growth. For waste water Mr Bourne explains on pages 20 and 21 of his evidence that the West is serviced by a series of branch sewers connecting to the Western Pump Station in Te Atatu. He notes that a number of legacy projects and new growth planned to occur within the RUB have been carried forward into Watercare’s programme of works.
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8.8 The management of storm water, particularly flood plains, is a significant factor in rezoning decisions. The Council’s proposed approach to zoning within flood plains is discussed in the evidence of Mr Mead for Topics 080 and 081. In essence, the approach is to apply zoning that does not increase intensity of vulnerable development beyond existing levels. The principles for applying zones within flood plains are attached at Attachment D of Mr Duguid’s Topic 080 and 081 evidence. Generally, those properties most vulnerable to flood plain impact are zoned Single House. In the West, the areas of particular vulnerability, which are proposed for Single House (SH) zone include housing west of Henderson and Glen Eden, coastal areas in Massey East and Te Atatu Peninsula, and Herald Island, as well as smaller pockets associated with localised flood issues.
9. KEY TRANSFORMATIONAL PROJECTS WITHIN WEST AUCKLAND
9.1 As with much of the Auckland region, West Auckland is experiencing a surge in residential and commercial development interest, most notably in the vicinity of Hobsonville Road. The notable land extensive residential development is located at Hobsonville Point, and will be augmented by Special Housing Areas (SHAs) at Scott’s Point (south of Hobsonville Point), and in locations in the Whenuapai area. Westgate is experiencing a significant growth surge as plan changes from the first decade of this century come on line.
9.2 Elsewhere in the West a combination of private and public development opportunities have potential to be significant catalysts for residential and commercial growth. These include:
Strategically located Council owned sites in New Lynn and Henderson which Panuku Development Auckland is promoting as “support” and “unlock” development opportunities respectively.
9.3 The Auckland Housing Accord is a joint government and Auckland Council initiative to address Auckland’s housing supply and affordability issues. Under the Accord Special Housing Areas have been identified for fast-track development. For the West these areas are primarily focussed around potential growth areas adjacent to Westgate and New Lynn, with smaller SHAs scattered through the western suburbs.
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10. PRECINCTS WITHIN THE WEST
10.1 The notified PAUP contains 10 precincts in the West, excluding the Waitakere Ranges Precinct and its sub precincts that have been addressed in Topic 075 Waitakere Ranges. The other West precincts have a broad range of functions. Submissions to the PAUP sought an additional 8 new precincts.
10.2 Mr Duguid’s evidence for Topics 080 and 081 on precincts (3 December 2015) explains the Council’s management of the requests for new precincts. Page 17 of that evidence lists the three criteria applied to determine whether or not the requests for new precincts passed an initial gateway test. Seven of the eight new precincts requested for the West failed the gateway test as listed in Attachment E of Mr Duguid’s evidence. I note that in some cases the same new precinct was sought in several submissions.
10.3 On pages 19 and 20 of his evidence Mr Duguid then explains the next stage of assessment, being a merit assessment. The precinct that passed the gateway test (Corban Estate) failed the merits assessment and therefore the Council reporting planner is not supporting the inclusion of this precinct in the PAUP. Of the 10 existing precincts (excluding the Waitakere Ranges Precinct), all passed the merits assessment. Attachment D sets out how each of the new and existing precincts has been addressed in evidence.
10.4 The 10 existing precincts which have met the merits assessment are listed as follows, with a brief summary of their nature and how they contribute to the overall strategy for growth in the West. This list does not include the Waitakere Ranges Precinct. The list below also includes the Corban Estate, which as discussed above is a new precinct that passed the gateway test, but is not supported by the reporting planner.
(a) Metropolitan Centres: There are two Metropolitan Centre precincts – Westgate and New Lynn – these two precincts support the PAUP regional policy statement direction to intensify and strengthen Auckland’s network of centres, while responding to their own particular locations. Both are Metropolitan Centres with significant opportunities for further growth. The Westgate precinct is made up of sub-precincts that concentrate retailing in the existing Westgate Shopping Centre and a new sub precinct located immediately to its north, where the NorWest Mall has recently opened. These sub precincts are surrounded by other precincts that serve to provide
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commercial, light industrial, mixed use, and residential activities to support the function of the retail core. There is also substantial public open space which is also utilised for infrastructure provision (such as storm water ponds). The New Lynn precinct is also comprised of sub-precincts, which support New Lynn’s growth in terms of the relationship between Lynn Mall, the adjacent finer retail and public open space, the transport node and opportunities for intensive residential development south of New Lynn on the former industrial sites associated with brick making.
(b) Rural Residential subdivision: The Birdwood and Swanson North precincts carry over site specific legacy subdivision provisions for sites within them. Both are located outside the RUB, and their objective is to manage limited subdivision within them. These two precincts were assessed in the context of the environmental constraints that exist in those catchments and subdivision potential allocated on a site by site basis. Given the constraints, not every site is allocated subdivision potential.
(c) Residential Precincts: The Penihana North and Babich Precincts provide for land extensive residential development in two locations inside the RUB, and have their genesis in Environment Court appeals to the 1998 Waitakere City District Plan. The residential density and environmental requirements are based upon site specific analysis. The Penihana North precinct is located adjacent to the Swanson Railway Station, inside the RUB. The Babich precinct is located at the end of Babich Road, and has a mix of industrial activities (associated with the Babich winery) together with residential development on the former vineyards.
(d) Westpark Marina: Westpark Marina is located on the Waitemata Harbour, and has been addressed in conjunction with several other marinas as these activities have several common issues that are addressed collectively.
(e) Avondale : There are two precincts in the vicinity of the Avondale Centre, The purpose of the Avondale 1 precinct is to provide for a range of compatible activities and development which will provide for intensive residential development with some commercial activity which will not detract from Avondale Town Centre or nearby New Lynn Metropolitan Centre. The purpose of the Avondale 2 precinct is to provide for the full range of Town Centre zone activities with limits on gross floor area, reflecting the precinct’s
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location away from the main street and the focus on intensive residential activities.
(f) Corban Estate: This is a new Precinct request that passed the Gateway test. The reporting planner does not support this precinct, as it is considered him that the matters that the submitters are seeking to address via a precinct are already provided for by the underlying zones.
(g) Lincoln – This relates to an area of land at 211 Lincoln Road. This has been reported on as part of Topic 080.
11. SUMMARY APPROACH TO ZONING WITHIN THE WEST AREA
11.1 In his evidence for Topic 080 and 081 Mr Duguid explains the PAUP zones and the strategy for how they have been applied to achieve the objectives and policies of the RPS. In particular, his evidence explains how the zones work with precincts and overlays to achieve the primary outcome of a quality compact urban form within a RUB.
11.2 In the West that approach results in a zoning pattern shown in Attachment E with the following overarching characteristics:
(a) Concentrated residential and business capacity within and close to the three Metropolitan Centres of New Lynn, Henderson and Westgate. New Lynn and Westgate form two ends of a residential and business growth corridor, which extends from New Lynn, along Great North Road to Henderson, along Lincoln Road to the North Western Motorway to Westgate. Westgate also forms the end of a longer transport connection along the Hobsonville Corridor to Albany. Outside of the three Metropolitan Centres the business areas are largely proposed to be zoned Light Industry, especially along Lincoln Road and in Henderson South. There are pockets of heavy industry at the Concourse (at the motorway end of Lincoln Road), and along Hepburn Road .
(b) The Waitakere Ranges topic area comprises the entire area identified as the Waitakere Ranges Heritage Area under the Waitakere Ranges Heritage Area Act 2008. A significant part of the Heritage Area is covered by the Waitakere Ranges Regional Park. The rest of the Heritage Area generally comprises rural zones other than land located within the RUB in Titirangi and Laingholm which is predominantly Large Lot zone. Countryside Living is the predominant zone along the eastern foothills of the Waitakere Ranges. There are pockets
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of Rural Conservation zoning in the coastal settlements and in the area that is the transition between the eastern foothills and the Regional Park. The area includes parts of the urban fringe suburbs of Titirangi, Oratia, Glen Eden and Henderson Valley, Swanson and Waitakere and the West Coast coastal villages of Te Henga, Piha, Karekare and Huia. Most of the topic area is subject to the Significant Ecological Area, High Natural Character, and Outstanding Natural Landscape and Feature Overlays. There are not a large number of submissions seeking rezoning that have been supported in this topic area.
(c) The Massey, Ranui / Non Rural Swanson topic area includes the four residential suburbs of West Harbour, Massey, Ranui and Swanson. In the notified PAUP, the area is generally comprised of residential zones with pockets of land zoned Public Open Space, Special Purpose, Business and Light Industrial. The residential zones is mainly Mixed Housing Urban (MHU) and SH zones with pockets of Terrace Housing and Apartment Buildings (THAB) zones in close proximity to the Westgate Metropolitan Centre and Ranui Railway Station. There are small pockets of Mixed Housing Suburban (MHS) and SHzones in parts of Massey and Ranui. A large area in West Harbour that is not located in close proximity to the RFN is also zoned MHS. There are large areas of SH zone in Massey adjacent to Henderson Creek and on land located in Ranui and Swanson in the vicinity of the rural zoned areas outside the RUB.
(d) The North West Waitakere, Hobsonville, West Harbour and Herald Island topic area is located northwest of the city centre. The topic area is wide ranging and encompasses Redhills, Westgate and Northwest Swanson at its westernmost extent, and extends eastwards across State Highway 16 to encompass Whenuapai, West Harbour, Herald Island and Hobsonville. The topic area is comprised of large areas of Future Urban zone. There are also significant pockets of urban residential zoning around Hobsonville Point, Hobsonville Corridor, West Harbour and Westgate. There is also the Metropolitan Centre of Westgate, plus Town and Local Centres, notably along Don Buck Road, and Hobsonville Road. Areas of Mixed Use and Light Industry zoning are also located around Westgate and to the north and along Hobsonville Road. SHAs are located next to Whenuapai Village, across Hobsonville Point, Scott Point and in parts of Redhills. There are two areas of Marina zone located in the Waitemata Harbour in the area. The southwest of
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the area, which is located outside of the RUB, is generally zoned for Countryside Living.
(e) The Henderson topic area is comprised of four main business clusters. These are:
Lincoln Road and the heavy industry area through Selwood Road and on to the Concourse; Swanson Road light industry edge up to Larnoch Road; the Henderson Metropolitan Centre; and Henderson South light industry and manufacturing.
There are THAB, MHU, MHS, and SH residential zones radiating out from the Metropolitan Centre, Town Centre and Local Centre zones. There are a number of schools west of Lincoln Road. Large areas of land is zoned Open Space and is located in and around the Henderson Metropolitan Centre. Smaller pockets of open space are located throughout the Henderson area and along the Opanuku and Oratia Streams, Henderson Creek and Waitemata Harbour coastal edges.
(f) The Te Atatu topic area includes Te Atatu Peninsula and Te Atatu South. These two suburbs are separated by the North-western Motorway. There is a large area of open space on the eastern side of Te Atatu Road north of the motorway and reserves along many of the Waitemata Harbour the coastal edge. Both areas are predominantly residential in character, but also include Neighbourhood, Local and Town Centres and pockets of Light Industry along Hepburn Road, Mixed Use and Special Purpose zoning.
(g) The Glendene, Sunnyvale, Glen Eden and New Lynn topic area includes the Metropolitan Centre of New Lynn, the Town and Local Centres of Glen Eden, Kelston, Glendene and Green Bay, along with numerous smaller Neighbourhood Centres. It has the RFN comprising the western railway corridor (New Lynn, Fruitvale, Glen Eden and Sunnyvale Stations) and Great North Road. Along with the bus routes and main arterial roads, these transport nodes often create overlapping walkable catchments to centres, employment, public transport and community facilities. This results in a significant concentration of opportunities for higher density residential zones as reflected by the notified PAUP. New Lynn is a Metropolitan Centre with a mix of business and industry zones reflecting its importance as a centre for
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retail, services, employment and manufacturing. As a major centre on the RFN, along with a growth area for residential and employment activity, New Lynn is generally surrounded by the THAB zone, with a gradual transition to the MHU zone. Glen Eden is a Town Centre based on its retail core and train station. It services a predominantly residential catchment with some areas of industrial development. Reflecting its role on the RFN , Glen Eden has a large area of THAB and MHU zones. Glendene and Kelston are local centres based on the arterial and RFN of Great North Road. Their proximity to New Lynn and Henderson (further to the west) create opportunities for continuous corridors of THAB and MHU zones. Standalone industrial areas for employment and manufacturing are located on Great North Road, West Coast Road and Hepburn Road. The Waikumete Cemetery (Special Purpose Zone) is also a significant activity in the area. The primary overlays affecting development opportunities are flooding constraints (non-statutory) and Pre- 1944 Building Demolition Control.
11.3 To illustrate the extent of proposed changes to zoning, Tables 1 and 2 below compare the residential and business zones in the West as notified in the PAUP with the Council’s position for the Topic 081 hearing.
Percentage of Percentage of residential Area (%) residential Area (%) Zone (Proposed Auckland Unitary Plan as (Position for hearings) notified 2013) Terrace Housing and 9.4% 10.3% Apartment Buildings Mixed Housing 23.0% 28.5% Urban Mixed Housing 18.8% 24.0% Suburban Single House (inside Rural 32.0% 20.8% Urban Boundary) Large Lot (inside Rural 16.80% 16.38% Urban Boundary) TOTAL 100.0% 100.0%
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Table 1 Percentage changes in residential zones from the notified PAUP to theproposed position for hearings.
Percentage of residential Percentage of residential Area (%) Area (%) Zone (Proposed Auckland Unitary Plan as notified (Position for hearings) 2013) Metropolitan 13.3% 13.7% Centre Town Centre 2.8% 2.8% Local Centre 3.1% 3.0% Neighbourhood 1.2% 1.2% Centre Mixed Use 5.7% 6.6% General 3.5% 3.3% Business Business Park 0.0% 0.0% Light Industry 57.3% 56.1% Heavy Industry 13.1% 13.2% 100% 100%
Table 2 Percentage changes in business zones from the notified PAUP to the proposed position for hearings. 12. OVERVIEW SUBMISSIONS FOR SUB REGION
12.1 A summary of the number and key themes of the submissions received for each of the West’s six topic areas is at Attachment E.
12.2 John Duguid’s Topic 080 and Topic 081 zoning evidence (3 December 2015) listed at Attachment E Auckland wide submission points which sought rezoning of residential zones or business zones in respect of particular geographical areas. The attachment indicated that those submissions requesting changes of zoning in particular geographical areas would be addressed in the evidence for Topic 081. For the West no such submissions were received.
12.3 Having regard to the Panel’s powers under the Local Government (Auckland Transitional Provisions) Act 2010, Mr Duguid also explains in his rezoning evidence the Council’s approach to making zoning proposals that were not subject to a submission (‘out of scope’). In essence, ‘out of scope’ proposals have been made where they clearly support the zoning principles developed to assist the Council in responding to rezoning requests and achieve the statutory framework. For the West the main reasons for the out of scope and where they apply are:
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(a) Rezoning to a higher density residential zone where managing flooding risks does not require maintaining the lower density zone and spot zoning is avoided. This is mainly SH zone to MHS or MHU zones in low lying areas of the around New Lynn, Glen Eden, Massey East, and areas adjacent to waterways and the Waitemata Harbour
(b) Rezoning to higher density residential where there are no environmental constraints and the higher density supports the RFN and centre development. This is mainly SH and MHS zone to MHU or THAB zone along main transport corridors such as Great North Road.
13. CONCLUSION
13.1 In this evidence I set out an overview of the pattern of development for the West, including key infrastructure and transformational projects. I also provide an overview of the approach taken for the proposed zones and precincts for the PAUP for the West to give effect to the provisions of the RPS and other planning documents, to achieve the objectives of the PAUP zones and meet the other relevant statutory criteria.
Eryn James Shields
28 January 2016
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ATTACHMENT A
Career Summary
November 2010-present
TEAM LEADER AREA PLANNING – AUCKLAND COUNCIL Manage resolution of legacy Plan Changes and Environment Court appeals Draft policy for Unitary Plan (focus on rezoning of West Auckland and the West Precincts)
1999 - 2010
PLANNER / PRINCIPAL PLANNER - WAITĀKERE CITY COUNCIL Statutory planner
1996 - 1999
POLICY ANALYST – MINISTRY FOR THE ENVIRONMENT Resource Management Policy Analyst
Qualifications Bachelor of Social Sciences (University of Waikato) 1988 Bachelor of Planning (University of Auckland Council) 1990
Affiliations
Member New Zealand Planning Institute
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ATTACHMENT B
WEST GEOGRAPHICAL TOPIC AREAS
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ATTACHMENT C
WEST SUB REGIONAL MAP
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ATTACHMENT D
PRECINCT SUMMARY TABLE
Precincts Supported Not Multiple (existing) (standalone supported Precincts statement of (combined evidence) statement of evidence) Avondale 1 ● Avondale 2 ● Babich ● Birdwood ● Hobsonville ● Corridor Hobsonville Point ● New Lynn ● Penihana ● Swanson North ● Westpark Marina ● Precincts (new) Corban Estate ●
Precincts (new) Failed gateway list in John Duguid statement of evidence Topic 081 Attachment E North West Redhills 1 Redhillls 2 Swanson Te Atatu Peninsula Te Atatu South Te Atatu Town Centre
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ATTACHMENT E
Topic Area No. of Key Themes Submissions Glendene, Glen Eden and 538 Mixed Housing Urban/Mixed Housing New Lynn Suburban/Single House Expansion/Contraction Centres/Terrace Housing Apartment Buildings /Mixed Use Expansion / Contraction Spot zoning Residential Properties subject to a Key Overlay Heavy Industry Zone & Light Industry Zone Centres hierarchy Combined rezoning and existing precinct submissions Public Open Space Henderson 318 Mixed Housing Urban/Mixed Housing Suburban/Single House Expansion / Contraction Spot zoning Any residential properties subject to a key overlay Centres/Terrace Housing and Apartment Buildings / Mixed Use Expansion / Contraction Heavy Industry Zone and Light Industry Zone Business to other Business Zone (excludes MU and centre zones) Massey / Ranui / Non Rural 466 Mixed Housing Urban/Mixed Housing Swanson Suburban/Single House Expansion/Contraction Spot zoning Centres/Terrace Housing Apartment Buildings / Mixed Use Expansion / Contraction Residential properties subject to a key overlay Northwest Waitakere, 90 Business to other Business Zone Hobsonville, West Harbour (excludes mixed use and centres and Herald Island zones) Centres/Terrace Housing Apartment Buildings /Mixed Use Expansion/Contraction Combined rezoning and new precinct Future Urban Zone (FUZ) and rezoning Mixed Housing Urban/Mixed Housing Suburban / Single House Expansion / Contraction
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Topic Area No. of Key Themes Submissions Te Atatu 239 Any residential properties subject to a key overlay Any residential properties subject to a key overlay Business to other Business Zone Centres/Terrace Housing Apartment Buildings Mixed Use Expansion / Contraction Mixed Housing Urban/Mixed Housing Suburban/Single House Expansion / Contraction Waitakere Ranges Heritage 51 Rural Urban Boundary and rezoning Area Spot zoning Rural - Countryside Living Centres/ Terrace Housing Apartment Buildings / Mixed Use Expansion / Contraction Rural – other Large Lot
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