Before the Auckland Unitary Plan Independent Hearings Panel

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 017 RUB South

AND

IN THE MATTER of the submissions and further submissions set out in the Parties and Issues Report

STATEMENT OF PRIMARY EVIDENCE OF STEPHEN KENNETH BROWN ON BEHALF OF AUCKLAND COUNCIL

(PUHINUI – LANDSCAPE)

16 October 2015

SUMMARY

1. Hearing Topic 017 RUB South covers (amongst other matters) application of the Rural Urban Boundary (RUB) to the area of, and in the vicinity of, the Puhinui Peninsula, South Auckland. My evidence addresses the RUB in relation to Crater Hill, immediately north of that Peninsula and the Manukau Memorial Gardens, and directly west of SH25. Specifically, it addresses the landscape values and sensitivities of Crater Hill – which is identified in the Proposed Auckland Plan (PAUP) as an Outstanding Natural Feature (ONF) – and the implications that my assessment has for development on and around the feature.

2. I do not support the relocation of the RUB to include Crater Hills, as this would facilitate development on or across Crater Hills that conflicts with section 6 of the Resource Management Act 1991 (RMA).

INTRODUCTION

3. My name is Stephen Kenneth Brown. I am giving evidence in these proceedings on behalf of the Auckland Council (Council). I hold a Bachelor of Town Planning degree and a post-graduate Diploma of Landscape Architecture. I am a Fellow and past president of the New Zealand Institute of Landscape Architects, an Affiliate Member of the New Zealand Planning Institute, and have practised as a landscape architect for 33 years.

4. During that period, the great majority of my professional practice has focussed on landscape assessment and planning. This has included evaluating the landscape effects associated with a wide variety of coastal development projects, including those of: . Various Waitemata Harbour crossing options in 2002/3 (for OPUS and NZTA); . the current Waterview Connection upgrade of S16 and the North- western Motorway (for Transit NZ); . the Sandspit Marina proposal (for Auckland Council); . the ALPURT B2 Waiwera River crossing on SH1 (for the Auckland Regional Council); . the proposed Weiti River bridge and highway (for the Auckland Regional Council);

. the Southdown Power Station (Mercury Energy / Transalta); . the Papamoa Gateway Project (for Tauranga City Council); . the Marsden Point port development (for Northport); and . a number of marina proposals in the early 1990s for the Americas Cup Planning Authority.

5. More strategically, I have undertaken and participated in many landscape assessments aimed at identifying landscape values at the district and regional levels. Of relevance to the current application, I have twice undertaken landscape assessments of the Auckland Region (in 1982-4 and 2002-13), and – among others – have also been responsible for studies of: . the West Coast Region - Buller / Grey / Westland Districts: Landscape & Natural Character (2012); . Buller District: Landscape & Natural Character (2010/2011) – for Meridian Energy Ltd in relation to the Mokihinui River appeals; . the Waikato Region: peer review of Outstanding Natural Landscapes (2011/12); . the Auckland Region: Outstanding Natural Features – Geological / Geomorphological (2012); . the Auckland Region: Amenity Values (2012); . the Auckland Region: Natural Character (2010 & 2012/13); . the Auckland Region: Landscape (2001-8); . Otorohanga District (2009/10); . the Horizons (Manawatu Wanganui) Region: Landscape – for Mighty River Power in relation to the Turitea Wind Farm application (2009/10); . the Thames Coromandel District: Landscape and Natural Character (2006-12); . the Kawhia and Aotea Harbour catchments: Landscape (2006); . the Mahia Peninsula and Wairoa District: Landscape (2003); . Waitakere City's Northern Strategic Growth Area Study: Landscape (2000); . North Shore City: Landscape (1997-2000); . Eastern Manukau City: Landscape (1995); . Auckland’s urban coastlines: Landscape (1995); . Whangarei District: Landscape (1994 & 2005); . the Far North District: Landscape (1994/5);

. Waiheke Island: Landscape (1988); and . the Auckland Region: Landscape (1982-4).

6. In 2006 I was also part of a team under the ‘umbrella’ of Urbis Ltd that was awarded the (UK) Landscape Institute’s Strategic Planning Award for the “Landscape Value Mapping Study of Hong Kong”. My contribution included development of an assessment method and evaluation criteria that were employed in that study.

7. In relation to Crater Hill, I was engaged in early 2014 by Council to undertake an assessment of landscape values and sensitivities as part of the Puhinui Structure Plan process. I have since assisted both Council and Te Akitai with the mapping of Cultural Heritage values in the vicinity of the Peninsula, together with Crater Hill, Waokauri Creek and Pukaki Crater.

CODE OF CONDUCT

8. 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.

SCOPE

9. My statement addresses the following matters:

 Description of the Crater Hill landscape;

 Evaluation of its sensitivity to modification and potential development; and

 My conclusions about the RUB in relation to Crater Hill.

THE CRATER HILL LANDSCAPE

10. Crater Hill lies at the strategic nexus of the upper Waokauri Creek – abutting both the northern edge of Manukau Memorial Gardens and the western margins of SH20. At its core, Crater Hill is one of the two most significant remaining explosion craters and tuff rings within the former Manukau City (the other crater is nearby Pukaki Crater / Te Pukai Tapu o Poutukeka – see Annexure 1). Crater Hill’s form is complex, with a large, embayed tuff ring that is some 600m in diameter enclosing a partly quarried, scoria cone and small lava flow. Uniquely, within the wider Auckland volcanic field, Crater Hill contains the cooled remnants of a lava lake that filled the maars (explosion crater), and then largely withdrew back down the volcanic vent. Furthermore, it is the only remaining explosion crater within the field that retains external walls around the crater rim, which are almost entirely intact and unmodified (Annexures 2 & 3). Two lava caves are also present: Selfs Lava Cave is approximately 48m long, loosely following the circumference of the tuff ring, while the 40m long Underground Press Lava Cave contains a large main chamber that was reputedly used for the clandestine, subversive publishing during WWII – hence, its name. Although the Crater Hill quarry faces and exposures clearly disfigure part of the internal crater, they also have educational value as they display successive layers of lithic tuff, basaltic lapilli, areas of crater rim collapse and a thin layer of rhyoltic tephra from the Central North Island volcanic emissions.

11. In addition to these geomorphic values, the gentle, but clearly articulated, profile of the crater is a local feature that is apparent from the lower reaches of Tidal Rd, the nearby Memorial Gardens, and Waokauri Creek and its margins. The pastoral land cover across most of the lower slopes and coastal apron surrounding the crater helps to express its volcanic profile – making it much more legible than if its subtle landform was covered in vegetation and/or buildings – while the crater’s central lake and island display considerable aesthetic appeal. The clearly defined physical character of the internal crater, framed by its circumference of crater walls, serves to enhance both its character and visual attraction.

12. Again, while the area of previous quarrying activity clearly erodes some of this appeal in relation to the southern and eastern sides of the crater, the distinctive

volcanic form of the crater remains sufficiently apparent that it still has a strong sense of intactness and continuity. Indeed, the quarrying has exacerbated the breach of the crater wall on its eastern side which allows for a degree of engagement between Crater Hill – especially its lake area, island and internal tuff ring – with the motoring public using SH20.

13. The relatively undeveloped and unmodified nature of Crater Hill’s external slopes also creates a strong sense of contrast with the more ‘developed’ land in its vicinity: an area of state housing then light industrial premises stretching up Tidal Rd and along Portage Rd; rural-residential development and market gardening at the end of Tidal Rd and down Retreat Drive; SH20 itself; and the rather different patina of ‘development’ stretching across the Manukau Memorial Gardens. Even the Air New Zealand workshops lend their presence to the wider landscape farming Crater Hill and Waokauri Creek.

14. This contextual situation is further complicated by the presence of multiple sites of archaeological and cultural significance on the crater apron – extending down to the various arms of Waokauri Creek. Symbolically linked to nearby Pukaki Marae (Te Akitai), together with multiple former pa and settlement sites around Waokauri Creek, and an urupa at the ‘mouth’ of Pukaki Crater and lagoon, this creates the strong sense of a nexus of culturally significant sites – perhaps even a ‘cultural landscape‘ – that embraces Crater Hill and the wider coastal landscape directly west of it.

SENSITIVITIES

15. There are also three key public vantage points that afford visual access to Crater Hill:

. Tidal Rd merging with Portage Rd;

. the Papatoetoe section of the Manukau Memorial Gardens; and

. SH20.

16. Of these vantage points, SH20 is the most important, offering glimpses and brief views into the crater – of the central lake flanked by pasture across the crater floor

and steeper, inside walls of the tuff ring. This interaction relies on retention of an open ‘apron’ between SH20 and the crater covering most of the area previously subject to quarrying activity and equipment storage.

17. More subtle are the geomorphological values of the crater, which – although related to the physical structure of Crater Hill and the formative process that underpin it – also pertain to its crater form, and the way in which this is clearly articulated by the pastoral open space both within explosion crater and across its outer mantle running down to Waokauri Creek and its tributaries. Although interrupted by both SH20 and, more obviously, the signs of past quarrying, the crater’s form remains both clearly apparent and its origins are distinctively volcanic. Crater Hill’s very special geological structure – combining a large tuff ring, small scoria cone and area of lava outflow – is inseparable from its overall profile and the spread of its broader mantle out to Waokauri Creek, SH20 and Tidal Rd. These characteristics cannot be simply ‘ring fenced’ and treated as a discreet package of volcanic features.

18. Finally, there is the more vexed issue of cultural perceptions and appreciation of Crater Hill. Although numerous archaeological sites have been identified, especially across the outer margins of the crater near Waokauri Creek, the matter of values and sensitivities attached to those sites can only be addressed in detail by Te Akitai. Consequently, beyond acknowledging that there are likely to be sites of significance to Te Akitai across the crater apron, and that Crater Hill as a whole may be important to local iwi, I am unable to offer any more insight into this aspect of the crater’s values and sensitivities.

19. I also note that Ms Melean Absolum has addressed the relationship of Crater Hill’s quarry area to the rest of the explosion crater at paragraphs 6.4 and 6.5 of her evidence on ONFs, as follows:

6.4 “ ……….. The internal crater and lake have high visual coherence, particularly away from the quarry area. The lake, islands and rocky outcrops all have aesthetic value and the wetland bird species add to the natural character of the area. As shown in Photographs 1 and 2, the quarry area does detract aesthetically from the landscape values of the whole area, although it is clearly legible that the resource being quarried is directly related to the geological feature

as a whole.

6.5 In my opinion, the inclusion of the quarry area within the identified ONF is defensible, from a landscape perspective………….”

20. I agree with this analysis.

CRATER HILL AND THE RUB

21. Most of Crater Hill’s tuff ring and internal area is already proposed for use as a reserve. However, the volcano’s external slopes and much of the area including and around the former quarry site could be developed for housing if the RUB was to extend over Crater Hill. The proposed area of development within, and near, the old quarry would be physically linked to Tidal Rd, together with Portage Rd and its motorway overbridge. However, it would also be physically isolated by the reserve land across most of the ‘internal’ crater, SH20 and its margins. Although located close to the conventional state housing area on Tidal Rd, the crater walls would preclude any visual or physical integration of the current and proposed housing areas. The outlook from the new housing ‘pocket’ would be predominantly to the east and west: either towards the highway or into the crater; perhaps also southwards towards both the Mangere Memorial Gardens and Waokauri Creek tributary.

22. Development outside the tuff ring – presumably interspersed between archaeological sites – would be connected by a road network following the circumference of the tuff ring and would also be physically connected to Tidal Rd, then Portage Rd.

23. These two areas of development would have somewhat different effects in relation to Crater Hill and its surrounds. Turning firstly to effects generated by development within the crater, in the vicinity of the former quarry, several effects would arise:

. Most obviously, any development in this area would disrupt the integrity of the tuff crater as both a landform and geological feature. Apart from the area of past quarrying, Crater Hill remains a remarkably intact, and very legible, tuff

ring feature. Housing or other development within it would completely disrupt the crater’s natural form and its inherent sense of being a ‘natural’ geological feature. Given the subtlety of Crater Hill’s physical profile, it seems inevitable that such development would repeat the pattern of destruction already apparent on nearby Pukaki Crater, where housing completely screens much of that feature’s external crater wall, destroying any sense of integrity and much of its value (Annexure 4). Times have moved on since the 1960s and ‘70s when most of that damage occurred, and it might be hoped that we would have learnt from past lessons in relation to management of Auckland’s volcanic cone field.

. Such development would also obstruct views into the crater from SH20 (Annexure 5). Visual access would be limited to the very crest of the crater near Tidal Rd and its highway overbridge, so that passing motorists would lose any sense of the crater’s more complete profile. The lake area, crater floor and tuff ring walls would be obscured and, as a result, the regional community would effectively lose contact with Crater Hill. It would cease to present a visual ‘whole’ and would be reduced to small-scale fragments around the periphery of the developed area.

. At the same time, those parts of the Manukau Memorial Gardens which currently face Crater Hill’s external slopes and open pasture would lose part of their bucolic outlook and the residual ‘cone’ profile currently presented by that quarter. Instead, the Papatoetoe section of the Memorial Gardens (especially, but not exclusively) would end up facing a mixture of fragmented residual open space and a large block of potentially multi-storey, development. This change would only affect the northern margins of the Gardens, but would still have an appreciable effect for those visiting that part of the cemetery.

24. Development across the ONF’s external slopes would repeat the experience of Pukaki Crater and Lagoon. Although more clearly expressed (both physically and visually) than Crater Hill, most of that feature has lost any sense of integrity and coherence because of the swathe of conventional residential development that wraps around its western, northern and eastern crater rim, with development

around Prangley Ave and Richard Rd stretched across the very crest of the crater rim.

25. Development around Crater Hill’s tuff ring has the additional potential to sever the volcanic feature from Waokauri Creek and its tributaries – which serve the important function of directly framing the ONF near Tidal Rd and the Manukau Memorial Gardens. Because of the very subtlety of Crater Hill’s form, such development would effectively enclose the crater and place its ring within a ring of development. The ‘cone’ would lose any sense of being an actual feature when viewed from current receiving environments in the vicinity of Waokauri Creek, Pukaki Crater, Puhinui Peninsula’s margins and the Memorial Gardens. In its present form, Crater Hill has the potential to remain a distinctively volcanic feature that continues to contribute to the character, value and meaning of the Puhinui landscape into the future; however, wrapping development around it would negate any such potential.

26. In summing up, it is clear that Crater Hill has been affected by past quarrying activities on site. Yet the same applies to Mt Albert (lowered by nearly 15m, with half the cone’s volume removed for railway ballast), while both Mt Eden and Mt Wellington still show the scars of past quarrying on their southern slopes. Yet, no- one appears to be suggesting that this renders new development acceptable on those cones. Although Crater Hill lacks the public profile associated with Mangere Mountain or even Pukaki Crater, there is now the opportunity to integrate it into a network of public reserves – linked to Pukaki Lagoon, Mangere Mountain and Ambury Park – that ultimately affords such exposure and education.

27. Conversely, the placement of housing, or other development and related infrastructure, across key parts of the crater would irrevocably affect both its profile (physical and public) and impair the educational potential and recreational utility of the crater as a whole. In my assessment, residential development within the crater, and/or across its margins, would therefore have a wholly detrimental effect on Crater Hill as a key landscape and geomorphological feature. Although some development may well sit on or within part of the crater that has already been modified by quarrying activity, any such development would still have a profound impact on perception of the rest of the feature. Its sense of integrity and

coherence would be effectively destroyed, and a key visual gateway to the maars (explosion crater) would be effectively lost.

28. Given that Crater Hill is identified in Schedule 6E of the Operative District Plan as a ‘Geological Feature To Be Protected’ and has been identified as an ONF in the PAUP, it is my opinion that any such development must inevitably conflict with implementation of section 6(b) of the RMA, together with key objectives and policies found in RPS Chapter B.4.3.2 of the PAUP (Appendix A).

29. Accordingly, it is my opinion that the RUB should not be relocated to a position that would enable, or promote, such development. Relocation of the RUB so as to facilitate development on or across Crater Hill would have a direct and significant adverse impact on it as a geomorphological feature and landscape, and would conflict with the statutory protection proposed for it as an ONF.

CONCLUSION

30. South Auckland’s wider network of volcanic features – including Puketutu Island, Otuataua, Maungataketake, Pukaki Crater, McLaughlins Mountain / Matukutureia, Matukutururu and Kohuroa (Annexure 6) has been dramatically affected by post- colonial occupation, to the point where very few remnants still provide a sense of connection with this key aspect of the area’s natural heritage. I therefore consider it absolutely critical that Crater Hill is protected in its (current) entirety and does not suffer the sort of fragmentation and progressive erosion of values that has so afflicted virtually all of the South Auckland volcanic field to date.

Stephen Brown 16 October 2015

APPENDIX A.

Chapter B4.3.2 – Proposed Objectives & Policies

B4.3.2 LANDSCAPE, NATURAL FEATURES, VOLCANIC VIEWSHAFTS AND HEIGHT SENSITIVE AREAS

Objective 1 Auckland’s ONLs and ONFs are protected from inappropriate subdivision, use, and development. Objective 2 The ancestral relationships of Mana Whenua with, and their perspectives on, the landscapes and natural features of Auckland are identified and provided for.

Identification and Protection of Outstanding Natural Features

Policy 1 Identify ONFs using the following criteria: a. the extent to which the landform feature or geological site contributes to the understanding of the geology or evolution of the biota in the region, New Zealand or the earth, including type localities of rock formations, minerals and fossils b. the rarity or unusual nature of the site or feature c. the extent to which it is an outstanding representative example of the diversity of Auckland's natural landforms and geological features d. the extent to which the landform, geological feature or site is a component of a recognisable group of geologically associated features e. the extent to which the landform, geological feature or site contributes to the value of the wider landscape f. the community association with, or public appreciation of, the values of the feature or site g. the potential value of the feature or site for public education h. the potential value of the feature or site to provide additional understanding of the geological or biotic history i. the state of preservation of the feature or site j. the extent to which a feature or site is associated with an historically important natural event, geologically related industry, or individual involved in earth science research k. the importance of the feature or site to Mana Whenua l. the contribution of the feature to the more publicly valued groups of landforms and geological sites associated with Auckland's volcanoes, coastlines, Hauraki Gulf islands, and the Waitākere Ranges.

Policy 2 Protect ONFs (including volcanic features that are ONFs) by: a. avoiding the adverse effects of subdivision, use and development within the ONF on the natural elements, patterns, processes or qualities that contribute to the ONF’s values. b. ensuring that the provision and upgrading of public access, recreation and infrastructure within the ONF is consistent with the protection of the ONF’s values c. avoiding a reduction in Mana Whenua values associated with ONFs. In implementing this policy the following matters should be taken into account:

. the value of the feature in its wider historic heritage, cultural, landscape, natural character, and amenity context . the educational, scientific, amenity, social, or economic value of the feature . the value of the historical, cultural, and spiritual associations with the feature held by Mana Whenua . the extent of man-made changes to the natural elements, patterns, processes or qualities . the presence or absence of structures, and buildings or infrastructure . the temporary or permanent nature of adverse effects . the physical and visual integrity, and natural processes of the location . the physical, visual, and experiential values that contribute significantly to the natural feature’s values . the functional need for any proposed infrastructure to be located in the area . the location, scale and design of any proposed development

Management of Natural Landscapes and Natural Features

Policy 6 Manage ONLs and ONFs, including volcanic features, in an integrated manner to protect and, where practicable and appropriate, enhance their multiple values (which may include social, cultural, historic, geological, archaeological, scientific, ecological, amenity and open space values) including: a. across jurisdictional, tribal, or ownership boundaries b. to maintain their range and diversity c. to maintain, and where practicable, enhances Mana Whenua values.

Policy 7 Manage subdivision, use and development on areas adjacent to an ONL or ONF by: a. protecting visual and biophysical linkages between the site and the ONL or ONF b. avoiding adverse cumulative effects on the values of an ONL or ONF c. avoid adverse effects on Mana Whenua values In implementing this policy the following matters should be taken into account:  the extent of man-made changes to the natural elements, patterns, processes or qualities  the presence or absence of structures, and buildings or infrastructure  the temporary or permanent nature of adverse effects  the physical and visual integrity, and natural processes of the location  the physical, visual, and experiential values that contribute significantly to the natural feature’s values  the functional need for any proposed infrastructure to be located in the area  the location, scale and design of any proposed development

Policy 8 Enable works and development that maintains or enhances the values or appreciation of the ONL or ONF

Policy 9 Maintain and enhance significant landscape values, sense of place and identity or amenity values found within landscapes and natural features that are not identified as being outstanding, by ensuring that zone and overlay provisions (including mapping) recognise and provide for the elements, patterns, processes and qualities that contribute to such values, taking into account: . the extent of man-made changes to the natural elements, patterns, processes or qualities . the presence or absence of structures, and buildings or infrastructure

. the temporary or permanent nature of adverse effects . the physical and visual integrity, and natural processes of the location . the physical, visual, and experiential values that contribute significantly to the natural feature’s values . the functional need for any proposed infrastructure to be located in the area. . the location, scale and design of any proposed development

Policy 10 Ensure appropriate processes are followed with accidentally discovered natural features of potential significance when trenching or excavating in: a. basalt lava in the Auckland volcanic field b. organic deposits of pre-European age or greater rock strata known to contain fossils.

Volcanic Features, Viewshafts and Height Sensitive Areas (Additional Policies)

Policy 14 Protect the visual character, identity and form of regionally significant volcanic maunga, together with local views to them, by: . Identifying Height Sensitive Areas around the base of the volcanic maunga; and . Establishing height limits which prevent future encroachment into views of the volcanic maunga that would erode their profile and remnant open space values.

Policy 15 Manage subdivision, use and development to ensure that the overall contribution of the regionally significant volcanic maunga identified as ONFs to the landscape of Auckland is maintained and where practicable enhanced, including by protecting physical and visual connections to and views between the volcanic maunga.