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TAURANGA CITY COUNCIL CITY PLAN SECTION 32 REPORT
Page created by Julio Ramsey
125 TAURANGA CITY COUNCIL CITY PLAN SECTION 32 REPORT Chapter 14 – Residential Zones
Appendix 6 - Section 32 Assessment 2 Table of Contents 1. INTRODUCTION ___ 3
2. PURPOSE OF THE CHAPTER ___ 3
3. RECORD OF DEVELOPMENT OF PROVISIONS ___ 4
3.1 Background Research ___ 4
3.2 Consultation Outcomes ___ 10
3.3 Council Meetings ___ 12
3.4 Relevant Legislation, Strategies and Policy ___ 14
4. ISSUES ___ 23
4.1 Summary of General Issues in relation to Urban Form and the Sustainable Management of the Residential Land Resource ___ 23
4.2 Issue 1: Urban Form and Sustainable Management of the Residential Land Resource ___ 24
4.3 Issue 2: Residential Diversity and Density ___ 31
4.4 Issue 3: Activities in the Residential Zones ___ 36
4.5 Issue 4: High Density Residential – Character and Amenity ___ 44
4.6 Issue 5: Suburban Residential and Large Lot Residential Zone – Character and Amenity ___ 52
4.7 Issue 6: Provision for Urban Marae ___ 61
4.8 Issue 7: Rezoning of Urban Growth Areas ___ 68
RECOMMENDED OBJECTIVES, POLICIES AND METHODS . 76
Appendix 6 - Section 32 Assessment 3 1. INTRODUCTION The Council is required under section 32 of the Resource Management Act 1991 (the RMA) to carry out an evaluation of alternatives, costs and benefits, and efficiency and effectiveness of the various components of the proposed City Plan. Section 32 of the Act requires that the evaluation must examine: (a) the extent to which each objective is the most appropriate way to achieve the purpose of the Act; and (b) whether, having regard to their efficiency and effectiveness, the policies, rules or other methods are the most appropriate for achieving the objectives.
An evaluation must also take into account: (a) the benefits and costs of policies, rules, or other methods; and (b) the risk of acting or not acting if there is uncertain or insufficient information about the subject matter of the policies, rules or other methods.
This report fulfils the obligations of the Council under s32 of the RMA. The following is a section 32 analysis in regard to Chapter 14 Residential. It should be read together with the text of the proposed City Plan itself. 2. PURPOSE OF THE CHAPTER The objectives, policies and plan provisions relating to Chapter 14 Residential Zones fulfils Council’s duties under the Resource Management Act 1991 (RMA). Under section 31 of the RMA Council is required to give effect to the RMA through the establishment, implementation, and review of objectives, policies and methods to achieve integrated management of the effects of the use and development or protection of land and associated natural and physical resources of the City.
This section 32 document relates to the review of the City’s policy approach to the Residential Zones and how these provisions give effect to the Act, particularly its purpose and principles (Part II, sections 5, 6, 7 and 8). The purpose of the RMA is to promote the sustainable management of natural and physical resources for current and future generations in a way that enables people and communities to provide for their social, economic and cultural wellbeing while supporting ecosystems and the air, water and soil systems of which they may be a part. In addition the effects of the use of resources and activities are to be managed (adverse effects of activities to be avoided, remedied or mitigated).
Chapter 14 Residential Zones promotes the sustainable management of natural and physical resources of the City in setting aside areas for residential development which do not adversely impact on the City’s rural productive areas, (a finite resource, section 7g), or on the effectiveness and efficiency of redeveloping land, (section 7b), identified through the Bay of Plenty Regional Policy Statement for future urban development. This in turn provides for the social, economic and cultural wellbeing of the City’s residents now and in the future by providing opportunities for a variety of residential opportunities and ancillary activities in these areas of the City.
Appendix 6 - Section 32 Assessment 4 In carrying out its RMA duties, Council is also required to recognise and provide for:
the natural character of the coastal environment, wetlands and lakes and rivers and their margins, and the protection of them from inappropriate subdivision, use and development. (section 6a), Within this Proposed Plan these matters are addressed within the Natural Features and Landscapes Chapter which applies additional provisions to some parts of the City covered by the Residential Zone. (Refer to Section 32 – Chapter 6 Natural Features and Landscapes).
the relationship of Maori and their culture and traditions with their ancestral lands, water, sites, waahi tapu and other taonga (section 6e); Chapter 14 includes provisions designed to provides opportunities for development within the City’s urban marae. The chapter also provides for the efficient use and development of natural and physical resources of the City through subdivision and land use controls particularly in relation to the City’s urban growth area, the maintenance and enhancement of the amenity values (section 7c) of it’s various residential environments and the quality of those environments (section 7f) through provisions designed to ensure that the character and amenity of the residential areas is not adversely impacted by the use, subdivision and development of land in these Zones.
In preparing the proposed provisions regard has been had to the National Coastal Policy Statement, the Bay of Plenty Regional Policy Statement, the relevant provisions of the Operative Regional Plans, consistency with the Operative and Proposed District Plan provisions of the Western Bay of Plenty District Council and relevant planning documents lodged with Council by iwi (section 74, RMA). 3. RECORD OF DEVELOPMENT OF PROVISIONS 3.1 Background Research 3.1.1 Strategic approach to provision of residential opportunities within the City The rapid growth of population in the Western Bay sub-region and in Tauranga City itself and the implications of that growth have been the subject of extensive background research which fed into the development of SmartGrowth and is part of the continuing monitoring being undertaken by SmartGrowth itself.
This information has also been utilised in the development of Plan Change No 2 to the Bay of Plenty Regional Policy Statement which sets out a sub-regional settlement pattern and staging for future growth areas of the City. This background research has been drawn on in the preparation of the residential provisions for the Proposed Plan.
3.1.2 Tauranga City: Landscape Study June 2009 Under the RMA Part 2, section 6(b), the Council must recognise and provide for: “The protection of outstanding natural features and landscapes from inappropriate subdivision, use and development.”
Appendix 6 - Section 32 Assessment 5 In addition Part 2, section 7(c) requires that regard be given to the maintenance and protection of amenity values. As part of the preparation for the District Plan Review, a review of Council’s 1995 Tauranga District Landscape Study was undertaken. The evaluation of outstanding natural features and landscape was undertaken by applying the criteria set out under the Bay of Plenty Regional Policy Statement.
The findings of a broad scale character analysis undertaken through a SmartGrowth Study in 2002 (SmartGrowth Phase 2. Biophysical Constraints Research Brief: Landscapes and Natural Features, Boffa Miskell Ltd) were also utilised in this review process. The outcome of this review work was the production of the Tauranga City: Landscape Study June 2009 (the Study).
The following built form characteristics of each landscape character area of the City and the threats to them were identified as follows: Landscape character area Defining elements and Amenity Characteristics Threats Could be managed through: The Mount Medium to high density living. Coastal and harbour beach environments for recreation. Mixed use development. Views to landscape features. Active street interface between public and private open space. Loss of street interface due to non commercial or liveable ground floor areas dominating the streetscene.
Built form not relating to the dominant land formations of Mauao and Hopukiore.
Protection of identified viewshafts. Provide for liveable ground floor space and active edges to streets. Omanu – Arataki Suburban residential form of detached dwellings. Some medium density apartment housing. Coastal residential edge. Open street frontages with detached houses enhancing the streetscape. Commercial creep into residential areas. Loss of active street interface due to non liveable ground floor. Built form incongruent with coastal land from and surrounding residential character. Bulk and scale of built form in conflict with suburban landscape character. Improve the streetscene interface between medium density living through liveable ground floor space and visual connections.
Built form, scale and character in keeping with residential character. Built form and scale to fit with the coastal landscape.
Appendix 6 - Section 32 Assessment 6 Landscape character area Defining elements and Amenity Characteristics Threats Could be managed through: Residential building and landscape design being out of character with the coastal landscape. Bayfair Park Suburban character. Variety of residential built form. Commercial creep into residential areas. Manage built form, scale and character in keeping with suburban landscape character. Papamoa East and West Open character with tree lined streets. Single to double storey residential housing. Built form of a bulk and scale that dominates the natural and coastal character.
Cumulative effects of future suburban sprawl and subdivision at uniform densities. Manage built form, scale building curtilage and character considering the coastal and natural environment. Maungatapu and Welcome Bay Suburban residential development, detached housing, single/two storey housing Redevelopment of sites on ridgelines creating dominant form. Provide building controls for housing along the harbour margin and ridgelines and the top of harbour edge escarpments. Manage built form scale and character considering the rural/residential interface.
Avoid where possible built form on ridgelines.
Oropi – Ohauiti – Kaitemako Suburban residential development, detached housing single/ two storey housing. Redevelopment of sites on ridgelines creating dominant form. Provide building controls for housing along ridgelines.
Appendix 6 - Section 32 Assessment 7 Landscape character area Defining elements and Amenity Characteristics Threats Could be managed through: Waimapu Lowlands Suburban residential development, detached housing. Manage built form, scale and character considering the natural character values of the Tauranga harbour edge. Pyes Pa/Tauriko Recent residential development. Redevelopment of sites on ridgelines creating dominant form. Provide building controls for housing along ridgelines. Greerton Suburban residential. The Avenues Older suburban streets with nature vegetation and large open space areas.
Loess of private vegetation pattern through infill housing. Strip commercial development and non residential built form extending into residential nodes. Continue residential height controls. Provide for building setbacks from harbour margin to protect amenity values. Otumoetai Dominant suburban character. Loss of private vegetation pattern through infill housing. Commercial development and non residential built form extending into residential nodes. Continue residential height controls. Provide for building setbacks from harbour margin to protect amenity values. Matua Dominant suburban character – large lots and detached dwellings.
Loss of private vegetation pattern through infill housing. Commercial development and non residential built form extending into residential nodes. Provide for building setbacks from harbour margin to protect amenity values. Bethlehem/Tauriko Plateau Detached dwellings on large rural residential and suburban lots. Dominant built form along ridgelines.
Appendix 6 - Section 32 Assessment 8 3.1.3 Plan Change 48 Non Residential Activities in the Residential Zones As part of the ongoing Plan monitoring process Council identified that there were significant resource management issues relating to the impacts of permitted non residential activities on the residential amenity and coherence of the City’s Residential Zones and upon the sustainable, efficient and effective use of the City’s Business Activity Zones.
Plan Change 48 Non Residential Activities in the Residential Zones was notified in May 2008 and proposed substantial changes to the provisions for non residential activities in the Residential Zones. Decisions on Plan Change 48 were notified in November 2008. In its annotated decision form Plan Change 48 provides for home-based business and small scale home based visitor accommodation where ancillary to the residential activity on site as a Permitted Activity and limited community support activities such as schools, health centres as Discretionary Activities in view of the role that they play in the community.
All other activities which were more appropriate within Business Activity Zones are proposed to be Non-complying.
Council has directed that the provisions of Plan Change 48 as annotated by decisions (and supported by the background research and section 32 for that Plan Change) be adopted into the Proposed Plan. 3.1.4 High Density Residential Zone A review of the Council’s records of issues arising in relation to implementation of the current Operative District Plan for the Residential H Zone was undertaken and raised two resource management issues. One was related to parking requirements for visitor accommodation units. The review of parking provisions was undertaken as part of the development of Chapter 4 General Rules (see Section 32 Chapter 4 General Rules).
The remaining resource management issue was in relation to the heights permitted in the Zone and in particular the impact of a limited discretionary activity status for buildings exceeding the height controls on the preservation of the landscape between Mauao and Hopukiore.
3.1.5 City Living Zone The City Living Zone provides for a new medium density development area in the Tauranga CBD surrounds. The development of this zone was the subject of a wide range of background research and consultation which is fully detailed in the separate Section 32 prepared for that Zone. 3.1.6 Suburban Residential Zone and Large Lot Residential Zone - Character and Amenity Background research in relation to the Residential A Zone, being the Suburban Residential Zone of the Proposed Tauranga City Plan, its desired character and amenity and potential changes to the provisions of the Operative District Plan to maintain and protect character and amenity in these residential areas commenced in 2005.
The research commenced as a response to community and council concerns in relation to the adverse environmental impacts over dense developments in the Residential A Zone were having on the character and amenity of the City’s residential areas.
Appendix 6 - Section 32 Assessment 9 These concerns were identified through public consultation relating to Council’s Residential Intensification Project, the development of SmartGrowth, the Western Bay of Plenty Subregional Growth Strategy, the development of Tauranga Tomorrow, (the Community outcomes under the Local Government Act 2002), the development of the Tauranga City Urban Design Strategy, resident perception studies undertaken as part of the City’s State of the Environment Monitoring and through feedback from Council staff implementing the residential provisions of the Operative District Plan.
Concerns raised about the effects of high density developments included onsite/off site effects such as: loss of privacy, noise, potential daylight and open space losses, traffic and parking congestion, loss of suburban appearance of the streets, lower quality developments with lower quality design and materials impacting on the look and feel of the street. Work commenced on a plan change, including the release of a public Discussion Document in December 2005, to address these issues, initially in relation only to plan provisions to apply to residential development not meeting the density provisions of the Operative Plan.
In the course of the project it was recognised that wider changes to the Residential A provisions were required to address these issues. This was because the development provisions of the Operative Plan allowed for a comparatively dense on site development which was at odds with people’s expectation of the “suburban”, “low density” residential area.
The development of a plan change to address these wider issues began in December 2006, with a focus on identifying the amenity and character expected and desired in the Residential A zone, the factors that contributed to this amenity and the methods that could be utilised to maintain or enhance this amenity. This work included urban design analysis and desktop exercises looking at the current character and amenity factors in the Zone including calculations of existing site coverage, size of residential sites and residential buildings etc.
The main factors identified as cumulatively contributing to the character and amenity of the Zone were:
sections, of a similar size, shape or dimension, open to the street with low or no fences;
on site vegetation and private useable open space with a relatively green feeling across the neighbourhood;
One to two storey buildings with planted front yards;
Relatively low percentage of site coverage;
Other factors such as a feeling of privacy, peace and quiet and access to sunlight. This work culminated in September 2007 with the release for public comment of a Draft Proposed Plan Change based on maintaining and enhancing these factors. The Plan Change also contained provisions relating to the control of the spread of non-residential activities into the Residential A Zone with adverse impacts on residential character and amenity.
Subsequent to the release and public feedback on the Draft Proposed Plan Change Council resolved that further work would be undertaken in relation to developing the residential provisions through the District Plan Review with the exception of the provisions relating to non-residential activities which were notified as Plan Change 48 in April 2008. The provisions of Plan Change 48 as amended by Council’s decisions have been incorporated into the proposed residential provisions as part of the District Plan Review.
Appendix 6 - Section 32 Assessment 10 The further development of the suburban residential provisions of the Proposed Plan included ground testing of the provisions by draughtsmen and further discussions with developers and builders in relation to the proposed provisions.
The Large Lot Residential Zone in the current Operative Plan is subject to the same Objectives and Policies and rules as the Residential A Zone, with the exception of it’s minimum site size. This approach was continued as part of the background research. 3.1.7 Wairakei Residential Zone Plan Change 44 to the operative plan introduced a suite of new zones to support the development of the new Wairakei Urban Growth Area. A significant part of the Wairakei area is to be zoned Wairakei Residential under PC 44. This zone provides for a range of housing types and forms by way of a comprehensive design approach.
The intent of the new City Plan was to mirror the agreed provisions of PC 44 (as agreed by appeals) in the new Plan format and chapters. This has been done primarily through using submissions to the City Plan. This was seen by parties with a direct interest in Wairakei as the most effective and appropriate method of inserting PC 44 into the new Plan. 3.2 Consultation Outcomes In August of 2008 general consultation of issues associated with the Residential Issues and Options was undertaken. The issues canvassed with the community were:
The creation of specific areas of the city for different densities of residential development – areas for suburban style development, medium density areas, high density areas. Where could these be?
New means to provide for and protect areas of suburban style living – site coverage, size of yards, outdoor living areas, subdivision sizes and how big or small lots should be in residential areas.
Idea of more housing in some locations, particularly around the main shopping areas and transport routes.
Idea of special character areas – Avenues, coastal environment, potentially some state housing.
Further discussions around provisions for urban marae. The key concerns raised by the community in relation to the issues and options were:
Concerns about impacts of urban sprawl and the need to control this.
Concerns about infill housing and the desire to restrict this and the ability for affected neighbours to be consulted.
Opposition to high density housing, particularly in already established residential areas.
Support for initial small scale rezoning of inner city and suburban areas for residential intensification.
Suggestions that high density development be restricted to certain areas such as the CBD, the northern end of the Mount and around commercial areas.
Roading and infrastructure must have sufficient capacity to cope with high density development prior to the developments proceeding.
Appendix 6 - Section 32 Assessment 11
Support for residential development to be restricted to single storey or two storeys and retaining, or increasing setback, (yard) requirements.
Opposition to the amount of single storey brick and title homes within the city.
Create specific areas for different residential densities.
Protect areas that have special characteristics, such as larger sites.
Support for requiring outdoor living space and setting a site coverage.
Opposition to greater control of development on residential properties.
Inclusion of provisions to restrict the maximum height of trees and shrubs planted as a hedge.
Introduce provisions to stop or restrict commercial activities operating in the Residential A Zone.
Amend the rule relating to noise in the Residential zone to include noise from residential activities. In April of 2009 a community feedback exercise was undertaken on draft content for the City Plan. The key issues canvassed with the community were:
A “suburban building envelope” with minimum nett site sizes, no averaging of lots over a parent title, site coverage provisions, outdoor living areas, changes to height calculation, building modulation, setbacks, exemption for private motor homes form heavy machinery provisions.
Provisions of secondary dwellings as a permitted activity, maximum 3 unit multi unit development as a controlled activity in the Suburban Residential Zone.
The Urban Marae Community Zone and the Large Lot Residential Zone porposed to retain their current provisions.
Proposed City Living Zone and proposed provisions. (For further details in relation to the development and consultation in relation to the proposed City Living Zone see Proposed Tauranga City Plan: Section 32 City Living Zone). As a result of this process the following key issues were raised:
Concerns about the rate and volume of growth in Tauranga and affordability of housing.
Support for change to provisions around non-residential activity in the Residential Zones.
Requests for a reduction in permitted heights in the High Density Zone (previously known as Residential H) and in High Rise Policy Area.
Support and opposition to a move to a nett site area in the Suburban Residential Zone (previously known as the Residential A Zone).
Requests for a reduction in permitted heights in the Suburban Residential Zone, particularly in coastal areas.
Support and opposition to site coverage applying in the Suburban Residential Zone.
Support and opposition to a move to requiring and outdoor living area in the Suburban Residential Zone.
Opposition to controls on the heights of front fences in the Suburban Residential Zone.
Opposition to controls on the length of buildings in the Suburban Residential Zone.
Support and opposition to provisions for secondary dwellings in the Suburban Residential Zone.
Support and opposition to provision for limited Multi Unit developments in the Suburban Residential Zone.
Appendix 6 - Section 32 Assessment 12
Opposition to the removal of the ability to vary setbacks and overshadowing through neighbours consent at building permit stage in the Suburban Residential Zone.
Support and opposition to provision for critical development controls in the Suburban Residential Zone.
Support and opposition to exempting motor homes from the controls applying to heavy machinery being stored in the residential zones.
Several requests were received form parties who wished their properties to be zoned for intensification.
Support and opposition to rezoning of urban growth areas. Specific consultation meetings were also held with landowners within the urban growth areas of Northwest Bethlehem, Hastings Road and Kennedy Road. In each area an introductory meeting about the rezoning process, a second meeting reporting back specialist technical information such as land suitability, archaeological research, traffic impacts and preliminary urban design matters and a third meeting reporting back the draft rezoning proposed. Hui were also held for tangata whenua on the overall District Plan Review Process. The desire to establish papakainga on Multiple Owned Maori Land was highlighted as a significant issue by those attending these hui.
3.3 Council Meetings Elected Members discussed the development of the Residential Chapter on the following dates. The outcomes of each discussion are also listed. Meeting: Strategy and Policy Committee – 8 July 2008 Issues Discussed:
Issues and Options Paper for Initial Consultation discussed.
Issues identified – Overall strategic approach to Residential Development; Need for a wider range of residential environments; Special Character Areas; Residential A Zone, Urban Marae Community Zone and Residential H Zone – Amenity; Residential Activity Zones - Approach to activities not meeting permitted activity standards; Non Residential Activities in the Residential Activities Zone; Residential Intensification; Urban Marae Community Zone.
It was also noted that at its meeting of 6 December 2007, the Strategy and Policy Committee had approved a series of recommendations relating to the direction to be taken in the ongoing development of the Residential Zone provisions for the District Plan Review. Meeting Outcomes:
Issues and Options Paper for Initial Consultation approved for release.
Direction to undertaken preliminary investigations as part of consideration of new zoning and accompanying plan provisions for special character areas.
Direction that the provisions of Plan Change 48 Non-Residential Activities as confirmed through the Plan Change process be incorporated into the final text of the Review.
Direction to consult with tangata whenua related to urban marae as to any further development/type of development anticipated and develop options to address their anticipated needs.
Appendix 6 - Section 32 Assessment 13 Meeting: Strategy and Policy Committee –18 December 2008 Issues Discussed:
The outcomes of the initial community and stakeholder consultation
Possible District Plan responses to the issues raised in relation to the Residential A Zone. Meeting Outcomes:
Direction to develop a “Suburban Building Envelope” for the Residential A Zone.
Direction to develop general provisions for secondary dwellings in the Residential A Zone.
Direction to develop general provisions for Multi Unit Developments in the Residential A Zone.
Meeting: Strategy and Policy Committee – 10 March 2009 Issues Discussed:
Draft Residential Chapter and key changes proposed as part of the review.
Key Changes: “suburban” building envelope for the Suburban Residential Zone (renamed Residential A Zone) – nett site area, site coverage, outdoor living area, building modulation, setback provisions: , changes relating to the way height is calculated; provision for “heavy” motor homes to park on site in the Residential Zones; removal of neighbour to neighbour variation criteria for setbacks and overshadowing exemptions.
Tougher activity statuses for activities not meeting permitted activity standards; high density proposals, over density proposal; and over site coverage proposals to be assessed as Discretionary Activities, all activities breaking three or more permitted activity standards to be assessed as Discretionary Activities.
Provision for secondary dwellings and Multi Unit Development (maximum of 3 units) as permitted activities on larger sites in the Suburban Residential Zone.
Residential H Zone renamed High Density Urban Residential Zone. Over height activities in the Zone to be Discretionary Activities (rather than Limited Discretionary).
Provisions for non residential activities in Residential Zones be amended to reflect the decisions of Plan Change 48.
Urban Marae Community Zone to retain its current provisions.
Large Lot Residential Zone to retain its current provisions with additional provisions on site coverage and secondary dwellings.
City Living Zone to be introduced. Meeting Outcomes:
Draft Chapter to be released for public comment. Meeting: Strategy and Policy Committee – 5 August 2009 Issues Discussed:
Public Feedback to draft residential provisions and proposed responses.
Appendix 6 - Section 32 Assessment 14 Key Changes Recommended
That a height control apply across the High Density Residential Zone at Mount Maunganui to ensure heights do not exceed heights that are prohibited in the High Rise Policy Area of the Zone.
Site coverage in the Suburban Residential Zone be raised to 45% nett site area and 45% gross site are in the Large Lot Residential Zone.
Outdoor living areas to have a maximum dimension, can be accommodated at ground level, or by a unenclosed balcony at second floor level.
Draft front fence height control rule removed.
Do not proceed with draft multi unit rules in the Suburban Residential Zone. Meeting Outcomes: Draft Plan provisions endorsed for inclusion in the Proposed City Plan as recommended with the following changes:
Draft building modulation rule removed.
Neighbour to neighbour variation criteria for setbacks and overshadowing as per the Operative Plan to be provided for in Residential Zones
PC 44 outcomes be incorporated when appeal outcomes known. 3.4 Relevant Legislation, Strategies and Policy 3.4.1 Resource Management Act 1991 (RMA) The purpose of the RMA is to promote the sustainable management of natural and physical resources for current and future generations in a way that enables people and communities to provide for their social, economic and cultural wellbeing while supporting ecosystems and the air, water and soil systems of which they may be a part. In addition the effects of the use of resources are also to be managed (adverse effects of activities to be avoided, remedied or mitigated).
In carrying out its RMA duties, including the review of a District Plan, Council is required to recognise and provide for:
the natural character of the coastal environment, wetlands and lakes and rivers and their margins, and the protection of them from inappropriate subdivision, use and development. (section 6a),
the relationship of Maori and their culture and traditions with their ancestral lands, water, sites, waahi tapu and other taonga (section 6e); and have particular regard to:
Kaitiakitanga (section 7(a))
The efficient use and development of natural and physical resources (section 7(b))
The maintenance and enhancement of amenity values(section 7(c))
Intrinsic values of ecosystems(section 7(d))
Appendix 6 - Section 32 Assessment 15
Maintenance and enhancement of the quality of the environment(section 7(f))
Any finite characteristics of natural and physical resources (section 7(g)) In addition in achieving the purpose of this Act, all persons exercising functions and powers under it, in relation to managing the use, development, and protection of natural and physical resources, shall take into account the principles of the Treaty of Waitangi. (Sec 8 Treaty of Waitangi). Residential areas within the City area are a finite natural and physical resources of the City which needs to be sustainably managed for the City’s current and future generations. This will be involved ensuring the effectiveness and efficiency of use of the resource particularly when redeveloping land for residential purposes. However this will need to be balanced by the need to ensure the quality and amenity of residential environments. 3.4.2 New Zealand Coastal Policy Statement The New Zealand Coastal Policy Statement (NZCPS) 2008 is the only mandatory National Policy Statement under the RMA. The NZCPS’s purpose is to state policies to achieve the purpose of the RMA - to promote the sustainable management of natural and physical resources – in relation to the coastal environment of New Zealand. Local authorities must give effect to the NZCPS through their plans and policy statements. A large proportion of the City’s Residential Zones adjoin the coast. The NZCPS requires that Council consider what form of subdivision, use and development would be appropriate in the coastal environment.
3.4.3 Regional Policy Statement Under the RMA a District Plan must give effect to a Regional Policy Statement or changes to a Regional Policy Statement. The Bay of Plenty Regional Policy Statement (RPS) promotes the sustainable management of the Bay of Plenty Region’s natural and physical resources and identifies the resource management issues facing the region and the objectives, policies and methods to achieve the integrated management of these resources across the Bay of Plenty. The contents of the RPS are therefore very broad in scope and contain a number of provisions that are broadly relevant to the Council’s policy approach to the Residential Zones. Chapter 6 Land of the RPS is concerned with the land resource of the Region and identifies resource management issues related to this resource. The issues of relevance to the residential zone are as follows:
Land use and management practices can adversely affect natural character and indigenous ecosystems.
High quality land may be adversely affected by urban expansion and subdivisions.
The need to enable the productive use and safe guard the life-supporting capacity of the region’s soils.
The natural values of riparian areas are threatened by inappropriate land uses and development.
Appendix 6 - Section 32 Assessment 16
Inappropriate riparian management adversely affects water quality, intrinsic and heritage values ad natural character.
Inappropriate land management practices and development can easily destroy or impair the values and functioning of the few remaining wetlands.” The RPS seeks to address these issues through management of the land resources to met the requirements of section 5 of the RMA and in particular through encouraging the inclusion of provisions within district plans to protect and maintain the productive land resource and its use for production and for provisions around the protection of wetlands and riparian margins. Chapter 8 Water identifies the potential adverse impacts of land use activities on water quality and seeks to encourage District Councils to provide in their District Plans for the protection of riparian margins etc.
Chapter 13 Physical Resources/Built Environment identifies the potential adverse impacts urban expansion can have in terms of competition for the use of land. This issue is further addressed through Plan Change No 2 Growth Management to the RPS. Plan Change No 2 has 3 main aims:
to clearly identify areas for urban growth
to protect versatile soils outside these limits and promote their productive use
to assist the development of multiple owned Maori land The most relevant policies and objectives of this Plan Change to the development approach to the City’s residential land resource are as follows: “Objectives and Policies 17A.3.1 Growth Sequencing and Integration 17A.3.1(a) Objective Subdivision, use and development are sequenced in a way that integrates with the long-term planning and funding mechanisms of local authorities, central government agencies, and network utility providers and operators.
17A.3.1(b) Policies 17A.3.1(b)(i) Except as provided for in 17A.3.1(b)(ii) and 17A.3.2(b)(iii), Urban Activities shall not be developed, or be permitted to be developed, outside the Urban Limits shown on maps 13–22. 17A.3.1(b)(ii) Outside the Urban Limits shown on maps 13–22, Papakainga including marae based housing shall be provided for as long as development is in accordance with a Structure Plan approved by the relevant territorial authority. ... 17A.3.1(b)(v) There must be coordination between: (a) the structure, timing and sequencing of new urban development, and
Appendix 6 - Section 32 Assessment 17 (b) the development, funding, implementation and operation of the transport and other infrastructure serving the area.
In satisfying this policy, regard must be had to the indicative Growth Area timing shown in Figure 1. 17A.3.1(b)(vi) Territorial authorities shall generally accommodate population within the western Bay of Plenty sub-region out to 2051 as follows: (a) By providing for 75% of projected growth within new Greenfield Development Growth Areas (e.g. Papamoa East, Omokoroa, North-west Bethlehem, Pyes Pa West, Te Puke, Katikati and Waihi Beach) and (b) By providing for 25% of projected growth through intensification of residential development within existing urban areas through such techniques as infill development, mixed use zones and specifically identified Intensification Areas; at densities which achieve the net yield requirements set out in policy 17A.3.1 (b) (vii).
17A.3.1(b)(vii) In each Growth Area, district plans shall provide for a target Net Yield of Dwellings per hectare as follows: (a) An average Net Yield of 15 Dwellings per hectare of Greenfield Development area. (b) An average Net Yield of 20 Dwellings per hectare within any Intensification Area.
17A.3.1(b)(viii) Local authorities shall demonstrate adherence to the New Zealand Urban Design Protocol (March 2005) Key Urban Design Qualities. In achieving this, territorial authorities shall include appropriate policies, methods and other techniques in their district plans and strategies. 17A.3.1(b)(ix) Urban Growth Area development shall proceed in a way that provides for: (a) The efficient utilisation of Infrastructure within the immediate proceeding Growth Area before the development of the subsequent Growth Area shown in Figure 1 and Diagram 1; and (b) Network Infrastructure is able to be provided to serve the proposed new Growth Area or new infill/Intensification Area shown in Figure 1 and Diagram 1.
Urban Growth Area development may proceed in a manner other than sequential growth per (a) where it can be demonstrated that concurrent development of a subsequent growth area will provide more efficient utilisation of Infrastructure overall and the conditions in (b) are met.
For the purpose of this policy, efficient utilisation of Infrastructure shall include consideration of matters referred to in Policy 17A.3.1 (b) (xiii). Figure 1 and Diagram 1 are an indicative guide for the expected timing and sequencing of Growth Areas. 17A.3.1(b)(x) Greenfield Development within the Urban Limits shall proceed in a way that does not compromise the Net Yield requirements of policy 17A.3.1(b)(vii). In particular, territorial authorities shall ensure through effective Structure Planning and monitoring under
Appendix 6 - Section 32 Assessment 18 section 35 of the Resource Management Act 1991, that land within the Urban Limits is not fragmented in a way that jeopardises the future urbanisation of the area.
17A.3.1(b)(xii) Structure Plans shall be prepared for all Large-scale land use changes. 17A.3.1(b)(xiii) Territorial authorities shall Rezone or otherwise permit the development of land subject to: (a) sustainable rates of land uptake; and (b) sustainable locations; and (c) community investment in existing Infrastructure; and (d) the reasonably foreseeable requirements of present and future generations. ... 17A.3.1(b)(xv) Territorial authorities shall ensure that the design and location of subdivision, use, and development is managed to address potential adverse effects on the operation and planned upgrading of infrastructure.
17A.3.1(b)(xvi) Territorial authorities shall ensure that rezoning of land or Large-scale land use change proceeds only after taking into account the objectives and policies of the Regional Policy Statement.” The major mechanism the RPS change uses to achieve these aims is the setting of urban limit lines for urban development. Outside of these limits urban activities are not to be developed and productive uses become the dominant land use. The Council is required to give effect to the RPS and will need to develop its policy approach particularly that taken to the development of urban growth areas, in line with these policies; For example; Wairakei Urban Growth Area.
In relation to the development of Multiple Owned Maori Land the RPS clearly directs that papakainga are to be provided for (subject to a structure plan to be approved by Council) and marae development is to be enabled. As part of the Proposed Plan development consideration has been given how this policy direction will be given effect to. (The proposed policy approach to land outside the urban limits line is documented in the Section 32 Report for Chapter 16 Rural Zone). It is noted that the Proposed RPS was notified for submissions on 8th November 2010. It is acknowledged that this document has legal weight under the RMA, however given its recent release, it is more appropriate to have regard to the Operative RPS.
It is noted however that the Proposed RPS has the same policy approach in terms of the approach to growth management and the protection of versatile soils outside urban limits and the promotion of their productive use as the Operative RPS. The policy approach towards the development of multiple owned Maori land is likewise retained.
3.4.4 Bay of Plenty Regional Water and Land Plan 2008, Regional Coastal Plan Council is required to have regard to Regional Plans in preparing its Proposed Plan. The Bay of Plenty Regional Water and Land Plan 2008 (Water and Land Plan) addresses issues relating to the management of the environmental effects of the use and development of land, water and geothermal resources within the Bay of Plenty Region.
Appendix 6 - Section 32 Assessment 19 The focus of the Water and Land Plan is on meeting the purposes and principles of the RMA in relation to regional council functions and responsibility in relation to soil conservation, water quality and allocation and the use of geothermal resources.
The residential provisions in the Proposed Plan are not inconsistent with this. The Regional Coastal Plan identifies the need to consider the impacts on the subdivision, use and development in coastal environment in relation to its natural character. 3.4.5 SmartGrowth SmartGrowth (2007) is the 50 year growth management Strategy and Implementation Plan for the Western Bay of Plenty Sub-Region to which the Tauranga City Council is a party along with the Western Bay of Plenty District Council and the Bay of Plenty Regional Council.
A key action of the SmartGrowth Strategy was the development of a Sub-regional Settlement Pattern. This Settlement pattern is being implemented through Plan Change No 2 to the RPS as outlined above. Other key actions to consider during the development of the Proposed Plan are:
Action 7.2.3.2 Implement the pattern of residential development shown on the Subregional Settlement Pattern Map.
Action 7.2.3.3 Implement the development of Greenfield residential areas to 2021 as follows: North West Bethlehem – Land to be available for Development by 2011; North East Bethlehem – In progress Pyes Pa – In progress Papamoa (Stage 1 – Wairakei) – 2007 Papamoa )Stage 2 – Te Tumu) – 2021
Action 7.2.3.4 Undertake a project to plan for the development of Te Tumu (Papaloa East Part 2) with the view to development occurring in 2021.
Action 7.2.3.5 Investigate the potential for and establish the planning framework to ensure the sustainable management of residential intensification in the established, non Greenfield, urban areas of Tauranga City. This action is to cover, in priority order the following work; (a) Primary Intensification Areas (Part 1), (b) Secondary Intensification Areas (Part 2), (c) General Intensification (Part 3). (The SmartGrowth document provides further detailed actions for each of these parts of the Action).
Action 7.2.3.6 Develop Structure Plans for all proposed Greenfield residential development areas.
Another key area of SmartGrowth is the facilitation of Multiple Owned Maori Land – this is largely within the rural area of the City and is addressed in detail in the Section 32 Chapter 16 Rural Zones. The facilitation of papakainga however could equally apply to urban marae communities within the City.
Appendix 6 - Section 32 Assessment 20 3.4.6 Tauranga Tomorrow Tauranga Tomorrow is the City’s Community Outcomes documentation as required by the Local Government Act 2002. Key Actions in Tauranga Tomorrow relevant to the development of the Plan’s Residential Zones are as follows: B1 Emphasise pro-active planning and urban design to “put the right kind of development in the right place.” B4 Develop more specific land use zones that match particular landscape settings, such as near the coast and harbour and along ridgelines.
B6 Investigate the environmental effects of taller high-rise buildings on such things as shading, privacy, the amenity of adjacent streets and public open spaces. B13 Investigate how new developments, from new neighbourhoods to new buildings, can adopt design strategies that improve public safety and security. This might be achieved through design guidelines, design reviews, education and awareness or incentives. B17 Provide incentives for improved urban, architectural and landscape design quality such as: strengthening the design rules and assessment criteria in the District Plan , introducing deign guidelines, requiring more complete materials and drawings at time of applying for resource consent including landscape plans /urban design assessment criteria.
B21 undertake more pro-active planning to encourage alternative forms of development, adequate housing supply, and an adequate variety and choice of housing types and price ranges.
B22 Link the planning, location, timing and type of housing development with the provisions for all forms of transportation, particularly non-vehicle transport modes. B23 develop and implement urban design guidelines and design guidelines and design reviews for major new housing subdivisions and developments, and encourage privatesector design standards to improve quality and avoid conflicts between housing types. B24 Encourage more multi-unit housing and mixed use development, could include such methods as changes to the District Plan and associated regulations, mixed used developments (e.g.
houses over shops) in the city centre and well-defined growth nodes. B25 Investigate housing affordability, particularly for commonly owned Maori Land and lowincome sectors of the community.
B26 Investigation the potential obstacles to providing a wider choice of housing types and density. In developing the Residential Zones provisions additional controls would need to be considered in relation to these matters. 3.4.7 New Zealand Urban Design Protocol (March 2005) Council is a signatory to the New Zealand Urban Design Protocol and The RPS requires Council to demonstrate adherence to the key principles of this of context, character, choice, connections, creativity, custodianship and collaboration. These principles together require residential provisions that are appropriate for their locality, have regard to existing amenity of areas, provide choice in terms of housing opportunities available, have good transport
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