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Research to Understand the Planning Risks Associated with the Kapiti Expressway (Rons)

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Research to Understand the Planning Risks Associated with the Kapiti Expressway (Rons) Research to Understand the Planning Risks Associated with the Kapiti Expressway (RoNS) April 2011 Andrew Guerin and Kirsty van Reenen (MWH) January 2011 1 Table of Contents 1. Introduction 3 2. Purpose 4 3. Methodology 3.1 Lifting of LAR and potential plan changes 5 3.2 Expressway Interchanges 6 4. Development Potential 4.1 Lifting of LAR status on SH1 7 4.2 Under potential plan changes 8 4.3 In relation to expressway interchanges 9 4.3.1 Introduction 9 4.3.2 Otaki North 9 4.3.3 Otaki South 10 4.3.4 Peka Peka Road 10 4.3.5 Waikanae 11 4.3.6 Poplar Avenue 11 4.3.7 Summary 12 5. Overall Findings 13 6. Development potential in relation to Waikanae North 15 6.1 Introduction 15 6.2 Existing district plan provisions 17 6.3 Reduction in development potential 19 7. Demand Side Factors 22 8. Recommendations 23 Appendix 1 Planning around interchange areas Appendix 2 National/international best practice Appendix 3 Growth Management Strategies Appendix 4 Extract from NZTA’s PPM Appendix 5 Implications of removing LAR January 2011 2 1. Introduction The New Zealand Transport Agency (NZTA) proposes to replace the current State Highway 1 (SH1) with a four lane expressway. NZTA are in the process of designing and planning for the construction of a four lane expressway through the district in four stages from Transmission Gully northwards (Transmission Gully (Linden to Mackays), Mackays to Peka Peka, Peka Peka to Otaki and Otaki to Levin). It is likely that the regional consents, NZHPT archaeological applications and Notices of Requirement applications will be lodged with the Environmental Protection Agency in late 2011/ early 2012. If the applications are approved (via Board of Inquiry or Environment Court) it is likely that the current SH1 ownership and responsibility will be transferred to Kapiti Coast District Council with the Limited Access Road restrictions (LAR) lifted or transferred to Council. The current LAR restricts the subdivision, development and potential rezoning of land fronting SH1. This also applies to some extent to land in close proximity but with indirect access to SH1. In addition, where development requires access on or near to, or is likely to impact on turning movements/traffic volumes on SH1, NZTA is an affected party. In many cases they oppose any new access and subdivision and resulting development onto the highway for road safety reasons. Thus, NZTA have acted as a significant constraint on development and on any plan changes to intensify landuse. With the lifting of the LAR status and transfer of the road to Council and with less traffic using the road NZTA are likely to be less concerned or have no concerns about development or plan changes involving access to the road. Further, the current restrictions and NZTA interpretation is likely to be less onerous resulting in more development potential. January 2011 3 2. Purpose The purpose of this research is to: A. Assess the development potential with the removal of the LAR restrictions on SH1. This involves assessing the development potential of land with direct access to SH1 under the current District Plan subdivision and development rules. B. To consider the impacts around the potential expressway interchanges at Otaki (2), Peka Peka, Waikanae Beach, Paraparaumu Central and Raumati under a restricted and full interchange scenario. C. Assess the development potential of land adjacent to or within close proximity of SH1 under potential and credible plan change scenarios. The plan change scenarios were identified as being related to either the removal of the LAR restrictions, the impact of the expressway or a combination of both influences. The potential plan changes include two scales of rural residential development (1ha and 2,500m2 averages) and rezoning to urban in some areas. D. Assess the impact of the expressway on the Waikanae North Ngarara Zone and Precincts. E. Identify best practice and provide recommendations to manage potential intensification of land use along or within close proximity to SH1. Recommended actions to manage development are explored based on national and international best practice. January 2011 4 3. Methodology 3.1 Development Potential: Lifting of LAR and Potential Plan Changes With regard to calculating the development potential as a result of lifting the LAR status on SH1, those parcels of land within the district which are adjacent to and have direct access to SH1 were identified. This land was grouped into character areas based on its zoning so that the development potential could be calculated based on the rules relating to that zone and to allow the areas to be mapped easily. For example the land between Otaki and Waikanae zoned alluvial with direct access to SH1 formed one character area. A total of 24 character areas were identified (refer attached maps). An assessment was undertaken to identify potential and credible plan changes adjacent to in close proximity to the existing SH1. A total of 18 potential plan change areas were identified (refer attached maps). These potential plan changes were identified as being influenced by either the lifting of the LAR status on SH1, the expressway or a combination of both influences. The subdivision/development rules and associated density levels for each zone under the District Plan were collated. Natural and physical constraints within each of the areas were identified. An assessment was then undertaken to determine the development potential under the current provisions. Calculations of development potential for the lifting of the LAR and the plan change scenarios took into account natural and physical constraints. This included flood hazards, ecological sites, and topography. In rural areas there is more room to design around constraints whereas in the urban areas constraints significantly reduce the development potential of the land. The following provides an outline of the constraints and the % of land excluded from the estimated development potential: Table 1: Development constraints assumptions Rural Rural Rural Urban 4ha-20ha Residential Residential Res 250m2 to 600m2 average 1ha 2,500m2 average average Apartments 150m2 Industrial/Commercial Flooding - Nil Nil 25% of 50% of ponding area Ponding ponding area Flooding - variable variable 100% of 100% of flood hazard overflow, flood hazard stream or river corridor, flood storage Ecological Sites Nil Nil variable 100% of eco site unless 300m2 + access way clear per building site can be provided Roads, Nil Nil 10% of total 20% of total area Reserves, storm area January 2011 5 water Utilities - Nil Nil Nil 70m corridor 220/110KV Utilities - Gas Nil Nil Nil 20m corridor Peat/swamp Nil Nil Nil 50% Slope >28 Nil Nil variable 100% degrees For the urban areas all land identified as subject to fast flowing flood hazards including overflow path, river and stream corridors or flood storage areas were taken out of the potential developable area. For ponding areas which generally do not pose a significant threat, the level of development was reduced by 50%. Likewise for low lying peat and swamp land the development potential was reduced by 50% for potential urban development. This land was identified by vegetation type (rushes and sedges vs. grassland) and soil maps. Where utilities currently traverse a site that has been identified as having the potential to be subject to a plan change a 70m corridor was excluded for 220/110KV power lines and a 20m corridor was excluded for natural gas lines. Steep land with a slope greater than 28 degrees was excluded as were ecological sites. It was assumed for land containing protected native vegetation that there would have to be at least 300m2 and access way land with no native vegetation per site. The average lot size for the residential zone was 600m2 for Greenfield (lots >3,000m2) and 450m2 for infill (lots < 3,000m2). A 10% allowance was given for roads, reserves and stormwater infrastructure in rural residential areas (2,500m2). This allowance was 20% in urban areas for greenfield subdivision (i.e. lots >3,000m2). 3.2 Development Potential - Expressway Interchanges For the interchanges, partial and full design options were analysed for Otaki South and Peka Peka, partial for Otaki North and Raumati and full for Waikanae and Paraparaumu. It was assumed there was limited space and logic to providing a full interchange. Any potential development however is significantly influenced by the route taken. The area of influence of the interchange design on development potential was derived from the road network and ease of access. It was assumed that full interchanges would encourage urban development due to the ease of access to employment/retail centres and schooling. January 2011 6 4. Development Potential 4.1 Lifting the Limited Access Road (LAR) status on State Highway 1 (SH1) Table 2 below illustrates the development potential of land within the district as a result of the lifting of the Limited Access Road status on State Highway 1. The figures in Table 1 below are those calculated for each of the distinct areas. It is noted that SH1 through some of the urban areas is not declared limited access road. These areas have, however, been included as they are likely to be affected by the lifting of the LAR. At present the NZTA is likely to be consulted (depending on the scale of the proposed development) as an affected party for developments within the urban area which have an impact on the volume of traffic on SH1. The transferring of SH1 to council and the lifting of the LAR status will mean that NZTA will have less or no influence on development decision along SH1 in the urban areas. Table 2: Development potential of land adjacent to and with direct access to SH1 under current provisions Area Area Development potential (No.
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