Proposed Plan Change 2016 to the Rangitikei District Plan
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PROPOSED PLAN CHANGE 2016 TO THE RANGITIKEI DISTRICT PLAN IN THE MATTER of the Resource Management Act 1991 AND IN THE MATTER of Proposed Rangitikei District Plan Change 2016 requested by Rangitikei District Council FINAL DECISION AND REPORT 18 August 2016 INDEPENDENT HEARING COMMISSIONER: Phillip Percy Table of Contents 1 Introduction ................................................................................................................................. 4 2 Appearances ................................................................................................................................ 5 3 Statutory and Planning Framework ............................................................................................. 6 3.1 Statutory context .................................................................................................................. 6 3.2 Planning context ................................................................................................................... 8 4 Procedural Matters ...................................................................................................................... 8 4.1 Delegation ............................................................................................................................. 8 4.2 Power to make changes to the Plan Change ......................................................................... 8 4.3 Submissions that are out of scope ........................................................................................ 9 4.4 Submissions withdrawn ...................................................................................................... 10 5 Approach of Decision Report ..................................................................................................... 10 6 Assessment of Matters Raised in Submissions .......................................................................... 12 6.1 Advertising Signs ................................................................................................................. 12 6.2 Historic Heritage ................................................................................................................. 18 6.3 Natural Hazards .................................................................................................................. 30 6.4 Building Setbacks – Residential Zone .................................................................................. 51 6.5 Villages - Rezoning for Commercial and Residential Activities ........................................... 54 6.6 Commercial Zone – Activity Setbacks ................................................................................. 57 6.7 Commercial Zone – Residential Activities ........................................................................... 59 6.8 Rural Zone – Setbacks for Buildings and Structures ............................................................ 62 6.9 Rural Zone – Setbacks for Network Utilities ....................................................................... 65 6.10 Rural Zone – Setbacks for Effluent Management Facilities ................................................. 67 7 Other Matters ............................................................................................................................ 71 7.1 Removal of Buildings ........................................................................................................... 71 7.2 Building Heights .................................................................................................................. 72 7.3 Earthworks .......................................................................................................................... 73 7.4 Matters of Discretion – Marae and Community Facilities .................................................. 74 Decision on Rangitikei District Plan Change 2016 Page 2 of 107 7.5 Building Setbacks – Education Zone ................................................................................... 74 7.6 Commercial Zone – Pedestrian Verandas ........................................................................... 75 7.7 Industrial Zone – Relocated Buildings ................................................................................. 76 7.8 Transportation – tracking curves and green strip ............................................................... 77 7.9 Definitions – Buildings ........................................................................................................ 78 7.10 Grammatical Errors and Cross References .......................................................................... 82 8 Section 32AA Overall Summary ................................................................................................. 84 9 Consideration of Part 2 of the Act .............................................................................................. 84 10 Conclusions and Decision ........................................................................................................... 86 11 Appendix 1 – Decisions on individual submission points ........................................................... 87 12 Appendix 2 – Marked up version of the District Plan .............................................................. 107 Decision on Rangitikei District Plan Change 2016 Page 3 of 107 1 Introduction 1. Rangitikei District Council publicly notified Rangitikei District Plan Change 2016 (“the Plan Change”) on 4 March 2016. The Plan Change was prepared by the Council in response to monitoring and observations of Plan implementation since the Rangitikei District Plan became operative in October 2013. A number of issues with the Plan were identified that the Council considered needed to be resolved to ensure that the Plan remained an efficient and effective tool to assist the Council in fulfilling its duties and obligations under the Resource Management Act 1991. 2. The main matters that the Plan Change covers are: a. General Rules and Standards, including management of signs b. Natural Hazards including flooding, Taihape West Slip Zone, liquefaction, ground shaking, active faults and landslide c. Historic Heritage in the Marton town centre d. Setbacks and other activities in the Residential Zone e. Management of non-commercial activities in the Commercial Zone f. Relocated buildings in the Industrial Zone g. Setbacks in the Rural and Rural Living Zone h. Transportation i. Definitions 3. Twenty-three original submissions and 4 further submissions were received on the Plan Change. Of those submissions, a number were subsequently withdrawn. Withdrawn submissions are identified in section 4.4 of this report. A list of submitters and associated further submitters is included in Appendix 1. 4. Prior to the hearing, which was held in Marton on 28 June 2016, the Council initiated a number of pre-hearing meetings and discussions with submitters to attempt to refine and, Decision on Rangitikei District Plan Change 2016 Page 4 of 107 where possible, reach an agreed position on matters in contention. Those pre-hearing meetings resulted in a significant number of matters being resolved between the parties and assisted significantly in streamlining the hearing. Subsequent to the hearing on 28 June, Council officers and submitters with a particular interest in the historic heritage components of the Plan Change worked together to further refine a set of provisions that were, for the most part, agreed between the parties. 5. This decision report sets out my decision as an Independent Commissioner appointed by the Council to hear and make decisions on submissions. The report provides the reasons for the decisions and includes, where relevant, a further assessment of the appropriateness of any changes made to the provisions since the Plan Change was notified in accordance with s32AA of the Resource Management Act 1991. The changes arising the decision are provided in a marked-up version of the District Plan (Appendix 2). 2 Appearances 6. The following people appeared at the hearing on 28 June 2016: Person appearing at the hearing Party represented Katrina Gray Rangitikei District Council Greg Carlyon Rangitikei District Council Alistair Beveridge Rangitikei District Council Lisa Thomas Horizons Regional Council Mr and Mrs Roberts MJL and MS Roberts Mike Maher Mike Maher Paul Hoyle Paul Hoyle and JP Baker Finbar Kiddle Heritage New Zealand Alison Dangerfield Heritage New Zealand Cole O’Keefe New Zealand Transport Agency Lisa Poynton New Zealand Institute of Architects Western Branch Robert Snijders Robert Snijders Tim Matthews Federated Farmers of New Zealand Decision on Rangitikei District Plan Change 2016 Page 5 of 107 3 Statutory and Planning Framework 7. The requirements for what must be addressed in a district plan, the process for determining the appropriateness of plan provisions, and the process for determining a plan change application are set out in the Resource Management Act 1991. The following is a summary of the statutory framework for the District Plan, which must be applied in the context of this Plan Change. 3.1 Statutory context 8. The following summary has been adapted from Long Bay-Okura Great Park Society Inc v Auckland RC1. A. General requirements 1. A district plan should be designed to accord with and assist the territorial authority to carry out its function (s31) so as to achieve the purpose of the Act (s72 and s74(1); 2. A district plan must give effect to any National Policy Statement (“NPS”)