Assessment of Crime Prevention through Environmental Design [CPTED]

Transcription

1 Technical Report 11 Assessment of Crime Prevention through Environmental Design [CPTED] B Prepared by: C P T E D C O R P O R A T E S E C U R I T Y R I S K M A N A G E M E N T Wellington, New Zealand 27 May 2013

2 Basin Bridge Project: Technical Report 11 ASSESSMENT OF CRIME PREVENTION THROUGH ENVIRONMENTAL DESIGN Contents page 1 EXECUTIVE SUMMARY INTRODUCTION Qualifications and Experience Purpose and Scope of Report Assumptions and Exclusions in this Assessment PROJECT DESCRIPTION Overview Transport Improvements Urban Design and Landscape Related Projects METHODOLOGY Approach Safety Maps ASSESSMENT CRITERIA Introduction National and International Best Practice Criteria Statutory Considerations EXISTING ENVIRONMENT Introduction Community Safety and Security Concerns Crime Profile Pedestrian Travel Summary of Baseline PROJECT SHAPING Introduction Cambridge / Buckle Bridge Interface Zone (Figure 11.8) Kent / Cambridge Basin Gateway Zone Kent / Ellice Street Integrated Building Zone Paterson / Ellice / Dufferin Interface Zone Dufferin / Rugby Streets / Schools /Church / Government House Interface Zone The Bridge Walkway and Cycleway Basin Reserve Mitigation MEASURES TO AVOID Operational Construction CONCLUSIONS AND RECOMMENDATIONS Assessment of Effects Summary Recommendations REFERENCES APPENDICES May 2013 i

3 Technical Report 11 1 EXECUTIVE SUMMARY Overview This technical report covers Crime Prevention through Environmental Design (CPTED) aspects of a project to construct, operate and maintain new transport infrastructure for State Highway 1 at the Basin Reserve from the western Mount Victoria Tunnel portal to the entrance of a new tunnel under the National War Memorial Park. As an experienced CPTED specialist I have described the possible reasons for, and the extent to which the Basin Bridge Project will have effects on both the perceptions, and the likely actual safety and security of the general public in the public spaces in the Project Area. CPTED assessment criteria and methods used are described together with the present (baseline) safety and security conditions in the Project Area. This is followed by a description of the CPTED features that have been embedded throughout the design process to minimise the risk of harm from crime or the fear of crime. As part of summarising effects, I have considered residual risks and made a small number of recommendations I believe are necessary to sustain an environment which is low risk and feels safe. Project Description The Project Area extends along SH1 from the western Mount Victoria Tunnel portal around the northern side of the Basin Reserve through to the Sussex Street junction with Buckle Street where the project ties in with the Buckle Street underpass and the National War Memorial Park. Proposed works and associated improvements generally include a grade separated route (the bridge element) for SH1 westbound traffic on the northern side of the Basin Reserve; a walking and cycling facility to the north of the proposed bridge; landscaping and urban design treatments under and adjacent to the bridge; related landscape, road and pedestrian improvements; a new building at the corner of Cambridge Terrace and Ellice Street; a northern gateway building by way of mitigation for the Basin Reserve; and improvements to road junctions (hereafter referred to as the Project). CPTED Process The process adopted was to: consider safety and security matters raised by the community during the engagement stage of the project and from public information days; ascertain baseline incidence of crime from statistical and anecdotal information obtained from the Police and others; and consider pedestrian travel within the Project Area. Several field visits were conducted during the day and at night in order to evaluate the baseline safety and security of the Project Area using recognised international CPTED evaluation criteria refer s A Safety Map is used to summarise the findings refer Fig 11.5 on page 22. Design workshops with the project team throughout the project explored opportunities for treating the safety and security concerns identified during the baseline assessment plus potential safety and security issues identified as the design progressed, enabling them all to be dealt with. The CPTED features that were the subject of this process are illustrated in the report. Baseline Assessment There is no suggestion from community feedback arising from the engagement programme and the information days that the Project Area is already a high crime area. The community is concerned about the future possibility of safety and security issues in relation to the design seen during the engagement programme, but does not reference existing safety and security concerns. Safety and security matters raised as social and community effects in Other Topics feedback were about dead Assessment of Crime Prevention through Environmental Design. 27 May

4 Technical Report 11 spaces under the bridge expected to encourage antisocial behaviour, crime, graffiti, accumulation of rubbish, and to become a refuge for homeless people. Reported crime statistics and Police anecdotal experience would suggest the Project Area experiences offending towards the lower end of the spectrum of frequency and seriousness relative to the city generally. Currently the Project Area is not known for serious personal crimes, as distinct from disorderly behaviour, or annoying property crime such as tagging and wilful damage but even the latter is minimal relative to nearby suburbs and the CBD. From the safety mapping process no locations were identified as being of high potential risk to passers-by. The traffic island between Kent and Cambridge Terraces near the north entrance to the Basin Reserve presents a potentially moderate perceptual risk as distinct from actual risk to pedestrians. Redesign of the traffic island and the entry to the Basin Reserve as part of the Project will mitigate this risk. This is not to say the wider Project Area is without some risk to pedestrians, but this is due a number of potential entrapment spots on private property immediately off the footpaths outside of the Project Area. Other CPTED features noted in the baseline assessment include consistently high standards of lighting which is relatively uniform due to close-spacing of road lights; street frontages and footpaths that are clear, uncluttered and legible; excellent clear sightlines around corners in advance of travel for pedestrians and cyclists; and very little evidence of graffiti and vandalism. But there are very few premises within the Project Area that would form active edges, contribute spill lighting and provide natural supervision of pedestrians. Given the number of people who traverse the Project Area, to and from the Courtenay Place area in particular, who may be vulnerable having consumed excess alcohol, or who may be vulnerable from people under the influence of alcohol, particularly after hours, I consider it important that the pedestrian thoroughfares and adjoining physical environment need to be designed to be (and to feel) intrinsically low risk, particularly for crimes against the person. This became one of the drivers for embedding CPTED principles in the design of the landscaped outdoor places around the project works. Project Shaping The main examples of where CPTED has been considered in the public place design to address the concerns of the community, prevent crime, and to maximise utilisation which is important for vitality, utilisation and safety, include the following (refer Figs 11.8 to 11.30): a. In the Cambridge / Buckle Bridge Interface Zone: design of road edges and bridge abutments with slopes and greening to prevent tagging and graffiti underneath the bridge alongside the footpaths removal of a bridge pier to improve sightlines and legibility for pedestrians use of wetlands to discourage access to bridge piers to discourage graffiti being able to see well in advance of travel when walking around the corner under the bridge from Kent Terrace to Buckle Street movement choices to enable pedestrians of all kinds to keep at arm s length or be within arm s reach of others wetland and rain gardens under the bridge between the pathways that are intrinsically simple, legible and discourage fears of encountering those with antisocial intentions, or who appear rough, implied by some of the community during the engagement programme Assessment of Crime Prevention through Environmental Design. 27 May

5 Technical Report 11 purpose-designed lighting to showcase the bridge and present the spaces under it, as quality amenity spaces needed to promote positive behaviours and feelings of safety and security b. in the Kent / Cambridge Basin Gateway Zone: quality safe landscape treatments (as referred to in the previous zone) improvements to legibility and sightlines at the approaches to the northern entry of the Basin Reserve restyling and making the space on the traffic island at the northern end of the Basin practically more generous, thus providing more room for pedestrian movement and safe pausing spaces at the same time quality, legible, surface treatments under the bridge, and greened bridge abutments as described for the western end of the bridge c. In the Kent / Ellice Street Integrated Building Zone: a proposed (as yet unnamed) new building on the corner of Kent Terrace and Ellice Street (known by the community as Bogart s Corner ) providing a new, key active edge around the basin - a wayfinding device, a milestone, and contributor of spill light, whilst preserving excellent sightlines around a busy pedestrian corner. quality, legible, surface treatments under the bridge, and greened bridge abutments at the eastern end of the bridge d. In the Paterson / Ellice Dufferin Interface Zone: after many options were explored for having the Dufferin Street to Ellice Street footpath go underneath Paterson Street it was determined that an underpass would not be or feel sufficiently safe. CPTED considerations pointed to an at-grade crossing instead. e. In the Dufferin / Rugby Streets / Schools / Church/ Government House Interface Zone provision of additional street lighting landscaping improvements along Dufferin and Rugby Streets that will improve the appearance and sense of amenity of both streets with corresponding benefits for crime prevention. f. For the Entrance to the Basin Reserve. I consider that any of the options and alternatives developed for this Project for screening and upgrading the northern entrance of the Basin Reserve to be beneficial for CPTED purposes. Measures to Avoid Mitigation measures to avoid are those that do not maintain an enduring high standard of appearance. This is necessary to avoid excessive maintenance. The well preserved physical environment commands respect and is cared for. These are important factors in crime prevention and perceptions of safety and security. Materials, finishes and planting that are intrinsically low maintenance and have good appearance retention are less prone to the consequences of imperfect maintenance regimes. Run-down environments are likely to be claimed by those who instil fear in others and usually suffer further physical deterioration typically tagging and vandalism. Construction works should not unnecessarily shut down, or modify pedestrian and cyclist thoroughfares to the point they will be placed at risk or feel unsafe using alternate or modified routes, and should not (even temporarily) create the sorts of risks that have been designed-out of the completed project. Given that public safety measures in the construction methodology have an injury Assessment of Crime Prevention through Environmental Design. 27 May

6 Technical Report 11 prevention as distinct from a crime prevention context, I believe CPTED principles should be added and form part of any safety audits during the construction period. Positive Effects The key positive CPTED effects from the Project are: a. a significant improvement in the actual and perceived quality of the environment that is expected to minimise if not eliminate the sense of risk for users and occupants of the thoroughfares and associated spaces. I anticipate a compounding effect with more people using the spaces with more natural supervision making spaces feel safer b. being able to sustain perceptions of quality and safety of public space by minimising opportunities for graffiti and vandalism c. provision of safe movement and connections by eliminating entrapment spots and providing movement choices. A positive effect related to the latter is the rejection of an underpass for crossing Paterson Street because it could not be made sufficiently safe in CPTED terms d. the achievement of clear, uncluttered and logical layouts that are legible to pedestrians and provide no surprises as they move through the Project Area. Also, footpaths and pause spaces that are generous enough to allow people to regulate the extent of interaction with other users e. spaces designed with clarity of purpose such that unusual or potentially antisocial activity would become immediately conspicuous to nearby observers, thus tending to reduce the likelihood of being used inappropriately f. avoiding the creation of places that are out of public view where offences can occur unnoticed g. activation of Bogart s Corner and the street frontage at the northern gateway to the Basin Reserve and associated improvements to the quality of the streetscape in these areas respectively h. lighting improvements which assist pedestrians to see properly and to be seen by others. Adverse Effects The potential for adverse effects was examined in relation to the concerns of the community; the crime profile ascertained for the baseline study, and any knowing failure to achieve the CPTED principles of safe public places in this Project. With the shaping of the design and particular attention to the safety and security matters raised by the community I do not believe those concerns will materialise into adverse effects. The crime profile of the area is already low. With the increased quality and legibility of the public spaces, together with the elimination of potential spaces to commit crimes, I expect the crime profile will be no worse. It is foreseeable that disorder, breaches of the liquor ban and graffiti offences could decrease. CPTED principles have been applied to eliminate the small number of safety and security risks identified in the baseline study and to check that new safety and security risks have not been introduced inadvertently into the design as it has progressed. In my view the CPTED approach has gone beyond simply neutralising potential security problems and has materially contributed to the quality of the Project for its part in project shaping for example the abutment treatments, openness of public space and walkways in particular, positioning and treatment of bridge piers, greening for amenity (and graffiti reduction) and the like. I do not believe the northern gateway building for the Basin Reserve introduces any adverse effects, nor do I believe the size of the gateway building options is material in CPTED terms. Rather, the Assessment of Crime Prevention through Environmental Design. 27 May

7 Technical Report 11 presence of a well-designed building which does not introduce adverse CPTED effects would be of benefit. Assessment of Crime Prevention through Environmental Design. 27 May

8 Technical Report 11 Recommendations Recommendations are made to consider accepting the CPTED features embedded in the design for the proposed improvements; checking the safety and security implications of any subsequent design changes; taking CPTED principles (as described in para 5.2.1) into account during the construction period; and to consider the maintenance dependencies of the key physical elements of the design as necessary to preserve the standard of design quality indefinitely. It should also be noted that safety and security outcomes of the Project upon completion depend on CPTED principles continuing to be applied commensurate with the remaining design stages through to construction. Assessment of Crime Prevention through Environmental Design. 27 May

9 Technical Report 11 2 INTRODUCTION 2.1 Qualifications and Experience My name is Francis (Frank) Gerard Stoks My qualifications are: a. Doctor of Philosophy University of Washington (College of Architecture and Urban Planning Crime Prevention Planning); b. Master of Architecture Victoria University of Wellington (Security Design); c. Bachelor of Architecture (1st class honours) Victoria University of Wellington; and d. Graduate of Pacific Northwest Crime Prevention Institute (Washington State) I am a Registered Architect and an Associate of the New Zealand Institute of Architects I am the Director of Stoks Limited, a consultancy specialising in a wide range of crime prevention, corporate security, and risk management advice for government, local authorities, state owned enterprises, the corporate sector and larger private developments Indicators of my general security consultancy experience are: a. 30 years security and risk management consultancy in New Zealand, Australia, Singapore, Hong Kong, Malaysia, USA - including the planning of outdoor public space, strategic security planning for corporate governance, and security design for specialist facilities (e.g. public buildings, courts, prisons, universities and schools, art galleries, museums, data centres, control centres); b. A client base which includes many government departments, State Owned Enterprises, City and Regional Councils in Wellington and other cities, and several corporate organisations in New Zealand and Australia Indicators of my crime prevention through environmental design (CPTED) experience are: a. International recognition as a pioneer of CPTED research leading to the development of the CPTED assessment tool now used internationally for evaluation and review of public space safety (used herein); b. Advisor on CPTED strategy and design detail for the Christchurch re-build program c. Major contributor to the Ministry of Justice National Guidelines for Crime Prevention through Environmental Design in New Zealand; d. CPTED lecturer at the Royal New Zealand Police Training College; Victoria University School of Architecture; and several local authorities; A full range of CPTED advice including: a. development of project safety and security briefs; b. assistance with site masterplanning; design reviews; safety assessments; c. Resource Management Act 1991 (RMA) related CPTED advice for local authorities and developers; d. CPTED improvement plans for existing developments; e. detailed CPTED advice at all stages of infrastructure lifecycle and; f. CPTED consultancy across public spaces, housing, and commercial developments. Assessment of Crime Prevention through Environmental Design. 27 May

10 Technical Report Examples of CPTED projects include: a. CPTED advice related to bus rail interchanges and rail commuter infrastructure; b. CPTED design clinics for Re-Build Christchurch c. over 30 safety audits for Wellington City Council and other local authorities throughout NZ; d. security and CPTED advice for Defence House, Supreme Court, Pipitea House and Meridian s Kumutoto building and several different stages of the Wellington Waterfront development; e. safety and security assessments of the Wellington Waterfront and precincts within the Wellington city CBD; f. community housing redevelopment for Housing New Zealand and Wellington City Council; g. reviews of city lighting and assistance with lighting strategies for Wellington and Napier city councils; h. co-author of Guidelines for Design Against Crime produced for Wellington City Council; i. CPTED reviews of various types of space including civic centres, school and university campuses, parks and gardens, commuter car parks, railway stations, bus depots, walk ways, public parking garages, pedestrian underpasses, public toilets; and high profile public facilities, including CPTED driven redevelopment of Palmerston North City Square. 2.2 Purpose and Scope of Report The purpose of this report is to examine the extent to which the Project will have effects on both the perceptions and the likely actual safety and security for the general public who pass through the public spaces of the Project Area as pedestrians or cyclists More specifically, the purpose of the crime prevention through environmental design (CPTED) assessment is to: a. ascertain the present (baseline) safety and security conditions in the Project Area; b. ascertain if and how any present safety and security concerns will be affected by the Project; c. determine whether the Project introduces any additional safety and security effects of its own; d. be able to make informed recommendations for improving safety and security of the Project to the extent that baseline improvements fall within the scope of the Project, and importantly, to embed only positive safety and security features into the new works associated with the Project. 2.3 Assumptions and Exclusions in this Assessment The scope of the CPTED assessment covers: a. the Project Area within the boundaries as defined in Fig on page 12; b. public spaces within the project boundaries; Assessment of Crime Prevention through Environmental Design. 27 May

11 Technical Report 11 c. crime and fear of crime against the person (e.g. intimidation, assault, disorder); public property crime (graffiti and vandalism) The CPTED assessment excludes crime on private property or commercial property out of the public domain. Nor does it include safety in the injury prevention sense such as from pedestrian vehicle conflict, pedestrian-cyclist conflict, and tripping or falling. 3 PROJECT DESCRIPTION 3.1 Overview The Project proposes to construct, operate and maintain new transport infrastructure for State Highway 1 at the Basin Reserve. A key component of the proposal is a multi-modal bridge that connects Paterson Street with Buckle Street. The bridge will provide a two lane one-way carriageway for SH1 westbound road users and includes a shared walking and cycling path on its northern side Proposed at-grade road improvements include changes to Dufferin Street and sections of Paterson Street, Rugby Street (including the intersection with Adelaide Road), Sussex Street, Buckle Street (SH1), Taranaki Street, Vivian Street (SH1), Pirie Street, Cambridge Terrace, Kent Terrace (SH1), Ellice Street and Hania Street. The overall road layout is shown diagrammatically on Figure 11.1 below. N Figure 11.1: Project Area showing the proposed roading layout and land to be designated The Project also provides urban design and landscape treatments. These include new landscaped open space areas, a new building under the bridge, a new entrance and Northern Gateway Building to the Basin Reserve, an improved streetscape entrance to Government House and adjacent schools, a revised car park for St Joseph s Church, dedicated bus lanes and bus stops around the Basin Reserve, as well as new walking and cycling paths. Assessment of Crime Prevention through Environmental Design. 27 May

12 Technical Report Proposed landscaping and urban design treatments include low level plantings, rain gardens, trees, terracing, architectural bridge design including sculptured piers, furniture and paving. These measures aim to contribute to the overall integration of the proposed bridge structure into the surrounding urban environment. 3.2 Transport Improvements The Project proposes a grade-separated route (the bridge element) for SH1 westbound traffic on the northern side of the Basin Reserve. As a result, SH1 traffic will be removed from the local road network around the eastern, southern and western sides of the Basin Reserve The bridge soffit will be up to 7.3m above the ground surface and the top of the guard rail will up to 10.5m high above the ground. The bridge is approximately 263m long or 320m long if abutments are included. It will be supported by six sets of piers (2 are double piers) and six smaller diameter piers to support the western end of the shared pedestrian and cycleway. The bridge has a minimum width of approximately 11.3m and a maximum width of approximately 16.7m. There are 2 bridge joins, one at each end The Project proposes changes to the SH1 westbound route, the SH1 eastbound route, and other roads on the network where they connect with SH1, including clearways on the eastern part of SH1 Vivian Street (from Tory Street to Cambridge Terrace). These propose to improve the efficient and safe movement of traffic (including buses), pedestrians and cyclists through intersections and provide entry and exit points for SH1. Supplementary works on the existing local road network are also proposed to be undertaken to take advantage of the additional capacity created by the SH1 improvements The Project proposes new pedestrian and cycling routes throughout the Project area as well as improvements to existing infrastructure. The majority of the works to improve the walking and cycling routes are located on the north side of the Basin Reserve and connect with Mount Victoria, Mount Victoria Tunnel and schools on Dufferin Street. These improvements will also connect with the National War Memorial Park which is currently under construction and also with potential future duplication of Mount Victoria Tunnel A reduction in state highway traffic on the roads around the Basin Reserve allows for more efficient northbound and southbound movements from Kent and Cambridge Terrace to Adelaide Road. Accordingly, new dedicated bus lanes are proposed to provide for better public transport movements around the Basin Reserve The key traffic flows around the Basin Reserve following the implementation of the proposed Project are shown in Figure 11.2 on the next page and described thereafter The package of transportation improvements proposed by the Project are summarised below and followed by a brief description of the works: SH1 westbound (from Mount Victoria Tunnel to Buckle Street) The Bridge - new direct link from Paterson Street to Buckle Street via a bridge; Buckle Street three laning - provision of third lane along Buckle Street between Sussex Street (including minor modifications to Sussex Street) and Taranaki Street to improve capacity and accommodate the two lanes from the Bridge; and Assessment of Crime Prevention through Environmental Design. 27 May

13 Technical Report 11 Taranaki Street improvements modifications to the layout of Taranaki Street and Buckle Street intersection to accommodate the three laning of Buckle Street and to increase capacity. N Figure 11.2: Proposed traffic directions for the Project SH1 eastbound (from Vivian Street Kent Terrace - Mount Victoria Tunnel) SH1 Eastbound re-alignment - realignment of SH1 eastbound between Hania Street and Brougham Street; and Vivian Street and Pirie Street Improvements as part of the modifications to the intersection of Pirie Street and Kent / Cambridge Terrace and Vivian Street, clearways on Vivian Street are proposed. The combination of improvements increases the capacity of the intersection for all traffic movements including public transport. Improvements to roads around the Basin Reserve Paterson Street / Dufferin Street intersection modifications to the layout of Paterson Street/Dufferin Street and change in priority at the signals to provide a significant increase in priority to Dufferin Street (south bound traffic from Kent Terrace/ Ellice Street); Adelaide Road / Rugby Street intersection reducing through lanes along Rugby Street from 3 lanes to 1 and allowing Adelaide Road traffic and Rugby Street traffic to flow at the same time. Pedestrian and cycling crossings will be via on-demand signals. Two lanes for access into Adelaide Road would remain with one operating as a bus lane; Ellice Street link new road link from Ellice Street to Dufferin Street/Paterson Street intersection (a similar vehicular movement can currently be made between Ellice Street and Dufferin Street). A new shared pathway for pedestrians and cyclists would Assessment of Crime Prevention through Environmental Design. 27 May

14 Technical Report 11 be provided adjacent to this link to facilitate movements between the Mount Victoria suburb, the schools on Dufferin Street, and further south toward Adelaide Road; Dufferin Street improvements works to modify the layout of the road space and bus drop off zones on Dufferin Street and Rugby Street on the south east corner of the Basin Reserve and to improve vehicular access to Government House; and Basin Reserve Gateway treatment to Buckle Street where it meets Kent/Cambridge Terraces, and retains an entry point to the re-aligned SH1 eastbound. Walking, Cycling, Public Transport (throughout the Project Area) Walking and cycling path on bridge new walking and cycling path on the bridge between Paterson Street and Buckle Street / National War Memorial Park; Existing pedestrian and cycle routes existing at-grade pathways are retained or enhanced and additional and alternative routes are provided. Additional and improved pedestrian and cycling access would be provided in the landscaped area on the corner of Cambridge Terrace and Buckle Street and between Brougham Street and Kent Terrace. These routes link to the proposed pedestrian and cyclist facilities proposed through National War Memorial Park; Public Transport - new dedicated bus lanes are proposed on Ellice Street, Dufferin Street and Buckle Street, and the southbound bus stop is proposed to be relocated from Adelaide Road onto Rugby Street; and Public Transport - existing priority for buses from Kent Terrace onto Ellice Street is retained For further detail on the proposed transport improvements refer to Volume 3: Technical Report 4: Assessment of Transportation Effects of these documents. Details of the road design layouts are shown in Volume 5: Plan and Drawing Set. 3.3 Urban Design and Landscape Proposed urban design and landscape treatments to areas outside of the road carriageway form part of the Project works. The development of the proposed Project design has been iterative, responsive and collaborative. As such, it has been developed through an Urban Landscape and Design Framework (refer to Volume 3: Technical Report 2) to address the specific urban design principles for the Project. The Project proposes treatments to areas adjacent to the road network that would assist with the integration of the proposed bridge into the surrounding urban context Six zones and elements for the Project area have been identified within which character and zone specific principles for those areas have been developed to provide a framework for post RMA consenting detailed design development. The zones are shown on Figure 11.3 below. Assessment of Crime Prevention through Environmental Design. 27 May

15 Technical Report 11 N Fig. 11.3: Urban and landscape zones for proposed works outside of the traffic lanes These are briefly described for the urban and landscape zones below: Zone 1 Cambridge/Buckle Bridge Interface Zone- proposed landscape treatments to land between Cambridge Terrace and the National War Memorial Park, which includes rain gardens and wetland plantings for storm water treatment. This landscape area has been designed as a continuation of National War Memorial Park. The terracing design philosophy applied to the National War Memorial Park stems from Kent and Cambridge Terraces and is reflective of the cultural heritage of the area, as cultivation terraces and Waitangi Stream which was once at grade when the Basin was a wetland area. The landscaping also provides an interface with the curtilage of the newly relocated Home of Compassion Crèche (former) 1. Zone 2 Kent/Cambridge Basin Gateway: proposed landscaping between Kent/Cambridge Terrace responds to tangata whenua values in relation to the proposed historical wetland ecology and provides a safe public access and gathering area relative to the Basin Reserve entrance. The proposed landscape aims to 1 The Home of Compassion Crèche (former) is being relocated as part of the National War Memorial Park project and those works are approved by the National War Memorial Park (Pukeahu) Empowering Act ( The Crèche is a listed heritage building in the Wellington City District Plan and as part of its relocation a new dedicated access and car parking facility from Tory Street would be provided. Assessment of Crime Prevention through Environmental Design. 27 May

16 Technical Report 11 facilitate gathering and includes reconfigured pedestrian crossings, bus stops and Basin Reserve entrance. Element 2.1 Structure and Entrance to the Basin Reserve proposes a combination of planting (pohutukawa trees) and a new Northern Gateway Building on the northern boundary within the Basin Reserve. The combination of new Northern Gateway Building and pohutukawa trees screen the bridge from general views from within the Basin Reserve. The new Northern Gateway Building is designed to specifically remove potential views of traffic on the bridge from the views of batsmen (facing bowlers from the north). The new Northern Gateway Building) would provide space for player facilities and includes a wider entrance for visitors to the Basin Reserve that is aligned with the new entrance plaza located between Kent and Cambridge Terrace. The new structure will occupy the space between the RA Vance Stand and the existing toilet block at the edge of the northern embankment. It will be approximately 65m long and up to 11.2m high and includes a screen above the existing player s pavilion between the new building and the RA Vance Stand. This option is preferred by the Basin Reserve Trust. Alternative mitigation proposals entail a 45m long structure and a 55m long structure and consequent increases in proposed tree planting have also been considered and are assessed within this report. Zone 3 Kent/Ellice Street corner zone proposes a new building under the proposed bridge at the corner of Kent Terrace and Ellice Street which would be made available for commercial use. It is intended to re-establish the historical built / street edge in this location and the building helps incorporate the bridge into the built urban environment. A green screen is proposed to be located above the new building to provide a level of screening for the adjacent apartment building. Zone 4. Paterson/ Ellice/Dufferin Interface zone proposes to continue ground landscape linking from across Kent/Cambridge Terraces and additional tree planting around the Basin Reserve s outer square. The Project proposes works within St Joseph s Church property using land that is currently used for car parking. Thus, the Project proposes to remove the existing building at 28 Ellice Street and to adjust the existing car park and provide landscape improvements for the Church within the remaining space. All of these works are located on land owned by the Church. Zone 5. Dufferin/Rugby Streets, Schools/Church/Government House Interface zone which serves as a vehicular and pedestrian access area serving key adjacent land uses of the schools and Government House. Proposed works include the reallocation of space in the roading corridor, layout modification and urban design and landscape treatments. Zone 6. The Bridge Element the horizontal alignment of the Bridge has retained a close reference to the historic street pattern (the Te Aro Grid) to strengthen and define the Basin square. The vertical alignment has utilised underlying landform to achieve grade separation between north-south and east west routes. The width of the bridge has been kept to a minimum that meets safe traffic design standards for a 50km/h Assessment of Crime Prevention through Environmental Design. 27 May

17 Technical Report 11 road. Abutments are integrated and grounded in the form and material of the landscaping. Lighting on the bridge seeks to minimise glare and spill onto surrounding areas and integrates with the bridge form and with the adjacent National War Memorial Park. Architectural lighting is provided underneath highlighting forms, surfaces and textures of the superstructure, undercroft, piers and abutments. The combination of treatments and design promote the perception of the bridge being an elevated street rather than motorway flyover The Project will result in a number of transport benefits for the State highway network and the local road network (including public transport and walking and cycling) as well as new buildings, structures and landscape treatments for the Basin Reserve area Construction of these transportation improvements is currently scheduled to start in 2014/ Related Projects The Project forms part of the Tunnel to Tunnel package of works that in combination will improve traffic and transportation between the Terrace Tunnel and Mount Victoria Tunnel. The Tunnel to Tunnel package also comprises: Buckle Street Underpass as part of the National War Memorial Park project by the Ministry of Culture and Heritage. This project is currently under construction and expected to be completed by the end of Other NZTA studies of SH1 sections that are also being considered or are being progressed concurrently within Wellington: Duplication of Mount Victoria Tunnel (construction planned for 2017/18). Duplication of the Terrace Tunnel (subject to feasibility investigation in 2013/14). Roading improvements along Cobham Drive and Ruahine Streets (construction planned for 2017/18) While there are linkages between these projects, each one is complex and entailing significant use of resource. As a consequence they are being progressed separately while maintaining the appropriate design standard and specification in order to achieve the NZTA s strategic objectives for the RoNS. 4 METHODOLOGY 4.1 Approach As an experienced Crime Prevention through Environmental Design (CPTED) specialist I have prepared this report describing the extent to which the Project will have effects on both the perceptions, and the likely actual safety and security of the general public in the public spaces in the Project Area The approach taken to carrying out the CPTED assessments was to: a. Consider safety and security matters raised by the community during the engagement programme at an earlier stage of the Project; Assessment of Crime Prevention through Environmental Design. 27 May

18 Technical Report 11 b. Ascertain baseline incidence of crime from statistical and anecdotal information obtained from the Police and others; c. Consider pedestrian travel within the Project Area from a survey conducted by Opus International Consultants for this Project; d. Carry out a CPTED assessment of the Project Area by means of several field visits conducted during the day and at night. The field surveys were conducted in order to evaluate the baseline safety and security of the Project Area using CPTED evaluation criteria described in Section. 5 below; e. Prepare the baseline Safety Map of the Project Area (Figure 11.5 on page 22); f. Participate in design workshops with the project team so as to: i explore opportunities for treating the safety and security concerns identified during the baseline assessment; ii identify any safety and security issues with the design as it progressed and suggest how they could be dealt with; iii provide CPTED advice on design matters as they were explored in the course of design development, including suggestions as to how safety and security considerations could be used positively rather than constraining the design. g. Carry out CPTED assessments and provide advice throughout the course of the design development leading to the current proposed design as shown in the plans (Vol 4) and as described in Technical Report 3: Urban and Landscape Design Finally I have drawn conclusions regarding public safety and security matters in relation to the proposed improvements and have provided a small number of CPTED recommendations for consideration. 4.2 Safety Maps I have developed a Safety Map to record in a convenient visual form, the field observations of the present environment gained from use of the CPTED assessment criteria. The safety map provides an indication of places where I believe members of the public are likely to feel unsafe or to be unsafe. The map includes a colour graded scheme to show places I consider to be more or less risky than others Based on the CPTED assessment criteria, the coloured shading on the baseline safety map (Fig 11.5 on page 27) is intended to be interpreted as follows: Low Risk (unshaded areas): low risk relative to other shaded areas on the map. This is not to say that a crime could not occur in uncoloured areas or that everyone would feel safe at all times however, the uncoloured places are considered to have the least likelihood for crime and fear of crime to occur; Marginal (orange shaded areas): places which are likely to cause some users to feel insecure most likely when it is dark and when the area is largely deserted; High Risk (red shaded areas): potentially dangerous especially after dark; usually entrapment spaces adjoining walkways having the potential to be used for serious personal crime; Assessment of Crime Prevention through Environmental Design. 27 May

19 Technical Report 11 5 ASSESSMENT CRITERIA 5.1 Introduction Activities or places which are beneficial for enhancing safety and security, for example, by providing capable guardians - reliable sources of active supervision - or passive supervision CPTED assessment criteria used to review the baseline Project Area and the Project were based on Council guidelines and other relevant CPTED publications (listed in para 5.2.1). 5.2 National and International Best Practice Criteria The references of particular relevance, in my view, are: Wellington City District Plan Guidelines for Design Against Crime (WCC 2003) 2 ; Ministry of Justice National Guidelines for Crime Prevention Through Environmental Design (MOJ 2005) 3 ; New Zealand Transport Agency Pedestrian Planning and Design Guide (NZTA 2009) 4. The assessment criteria taken from these references along with Stoks Limited s assessment factors may be summarised as: a. Informal and formal surveillance, pedestrian sightlines see and be seen, active (occupied) edges, appropriate lighting, minimisation of concealment opportunities, vegetation clear of walkways; 5 b. Safe movement and connections avoidance of entrapment spaces and cul-desacs, elimination of long pedestrian movement predictors without frequent exit choices; 6 c. Clear and logical layout legible and uncluttered space for pedestrians (enhancing perception of safety) with easy way-finding, logical and obvious entrances and exits, and clarity of purpose between adjoining spaces having different intended uses; d. Activity mix, eyes on the street good use of public spaces and a mix of compatible uses appropriate to the location with extended hours of activity to maximise natural supervision and sense of safety in numbers; e. Sense of ownership - showing spaces are cared for through clear indications of what is public, communal, semi-private or private space, plus expressions of key stakeholder involvement; f. Quality environments - well designed, managed and maintained environments necessary to sustain high standards of presentation and minimise vandalism and graffiti which engender a sense of risk; provision of a quality environment designed with management and maintenance in mind; g. Physical protection use of basic, active security measures such as access control and security lighting. 2 Wellington City District Plan: (Non Statutory) Guidelines for Design Against Crime. 3 Ministry of Justice National Guidelines For Crime Prevention Through Environmental Design In New Zealand Part 1: Seven Qualities of Safer Places. 4 New Zealand Transport Agency Pedestrian Planning and Design Guide. Wellington: New Zealand Transport Agency 5 Also in Wellington City Council Walking Policy Wellington City District Plan, Section 1.6.1, Quality Q3 Healthy/Safe City". Assessment of Crime Prevention through Environmental Design. 27 May

20 Technical Report The Ministry of Justice guidelines and Stoks Limited s assessment approach is considered to be international exemplary practice and is adopted for CPTED assessments in Australia, the United Kingdom, Canada and the Netherlands. 5.3 Statutory Considerations Statutory considerations in relation to safety and security (crime prevention and fear of crime) for the Project Area are: a. Building Act : In achieving the Act's purpose, a territorial authority (among others) must take into account certain principles including the need to ensure that any harmful effect on human health resulting from " the use of a particular building design, or from building work, is prevented or minimised". [s.4 (2) (b)]. Territorial authorities also have powers in respect of dangerous buildings. b. Health and Safety in Employment Act 1992: Requirement to identify and manage all hazards in workplaces including threats to personal safety and security. c. Health Act 1956: Local authorities have a duty to improve, promote and protect public health and are empowered and directed, among others, to inspect and deal with nuisances or any conditions likely to be injurious to health or offensive.(s23(b) and (c)). d. Resource Management Act 1991: The Act's purpose is "to promote the sustainable management of natural and physical resources" (s5(1)). "Sustainable management" means managing, inter alia, physical resources in a way that enables people and communities to provide for their social, economic and cultural well-being and for their health and safety. I consider the reference to social well-being and health and safety includes freedom from fear of crime and security and freedom from all harm. Section 5 of the Act also requires avoiding remedying or mitigating adverse effects of activities on the environment. I note that environment includes amenity values and the social, economic, aesthetic and cultural conditions which affect " amenity values " [Part 1; s.2, s3]. 6 EXISTING ENVIRONMENT 6.1 Introduction The existing safety and security environment within the Project Area has been assessed in order to establish a baseline against which any safety and security impacts of the proposed roading improvements can be assessed. The objectives are to identify any safety and security concerns within the Project Area with a view to: Assessment of Crime Prevention through Environmental Design. 27 May

21 Technical Report 11 a. minimising any existing adverse safety and security conditions by means of the Project if this is practicable and within the scope of the works; b. being able to check that the proposed design does not introduce new or additional safety and security concerns what is termed in risk management literature as being no less safe. 6.2 Community Safety and Security Concerns To ascertain the concerns of the community regarding safety and security in and around the Project Area, I referred to the summaries from the NZTA s community engagement programme which was designed to gather information to among other things, identify issues that could influence the Project s design and implementation. (NZTA 2012) 7. The programme engaged with and tried to engage with a wide range of stakeholders including communities living close to the Project, schools, and residents associations The NZTA received 2,137 submissions of which 12% (197) were from people resident in Mount Cook and the Central City, 11% (173) were Mount Victoria/Roseneath residents, and 7 5% (113) were Hataitai residents being the areas closest to the Project Area. NZTA also consulted local schools. I assumed that people in these suburbs would be more likely to represent pedestrians walking through the Project Area than people in the other city suburbs further away from the Basin Reserve Safety and security matters were raised as social and community effects in "Other Topics feedback. Almost all the comments on the space under the bridge for (Options A and B) were that these dead spaces would encourage antisocial behaviour, crime, graffiti (..a taggers delight ) a rubbish collection area, and a refuge for homeless people, and would thus pose a risk to safety or security To mitigate these expected safety and security risks, submitters suggested lighting to protect users of the bridge at night and designing the undercroft to attract [I assume positive] human activity and passive surveillance Safety and security matters did arise in relation to pedestrians and cyclists in the Mount Victoria Tunnel. These concerns are specific to the design of the tunnel which is out of scope for the Project Area at the present time. Nonetheless I believe I can usefully infer from some of these comments and suggestions, that there is a general concern about the possibility of graffiti and vandalism in public spaces in the general area including the Project Area I also attended the public information days and took into account the safety and security questions and comments made by the people who came to them I believe I have addressed all of the safety and security concerns raised in the community engagement submissions and will address these later in section There is no suggestion from the community feedback arising from the engagement programme or from the information days that the Project Area is already a high crime area. It is seemingly not known for serious personal crimes, as distinct from disorderly behaviour, or annoying property crime such as tagging and wilful damage. 7 New Zealand Transport Agency Wellington Northern Corridor. Cobham Drive to Buckle Street Transport Improvements. Community Engagement Summary Report, March Assessment of Crime Prevention through Environmental Design. 27 May

22 Technical Report Crime Profile Provisional crime statistics for the Project Area were obtained from the Police for the calendar year of 1 March 2011 to 1 March The crime statistics are for reported offences in the public domain and deliberately exclude offences at commercial and private addresses. This is to capture offences on the streets being the only domain that design initiatives under this project are likely to be able to adjust if required A total of 20 incidents were reported for the one year period, of which there were: seven common assaults on the streets (Kent Terrace, Dufferin and Buckle Streets) six reports of disorder on the streets (Sussex Street, Buckle and Tasman Street corner) five instances of wilful damage (Paterson Street, Tory and Buckle Street corner) two cases of intimidation (Ellice Street) no instances of graffiti mentioned no reports of offences in the Mount Victoria Tunnel Notwithstanding the small sample it is of interest that several of the offences occured late in the evenings and in the small hours on Thursday through Saturday nights. I believe this is related to pedestrian traffic between suburbs near the Basin Reserve and the Courtenay Place entertainment precinct. The local (Newtown) police community constable also notes that entertainment precinct patrons are regularly seen enroute to and from Courtenay Place and that low level crime such as drinking in public places ( preloading 8 on the way) and minor disorder on the way home, is commonplace and largely unreported. During the course of my CPTED assessment, I found several beer bottles and RTD 9 cans discarded along the south side of Buckle Street between Cambridge Terrace and Taranaki Street Police also suspect the Basin Reserve itself, which until recently provided a 24 hour shortcut to the public when not secured in preparation for scheduled events, harbours a variety of low level (often alcohol fuelled) offences such as drinking, soiling and consensual sexual offending in public. Local community crime prevention patrols are reported to quite often find people inside the Basin Reserve grounds after dark. I noted the sign at each of the entry gates which advises the Basin Reserve is closed between the hours of 9.00 pm and 6.00 am daily and that the closure is regrettably taken in response to increased acts of vandalism and anti-social behaviour within the ground at night Importantly, the public do not need to go through the Basin Reserve at night and can walk safely in well lit conditions around the eastern or the western perimeter. This is a longer route but it does provide an opportunity for passing motorists to provide a degree of natural supervision for pedestrians, however fleeting that may be The Graffiti Flying Squad is a company contracted by the Wellington City Council to remove graffiti. They find graffiti themselves and are also despatched by the Council s call centre when reports are received from members of the public. I spoke with both the contractor and a representative of the Council s call centre who advised me that levels of graffiti in recent times are quite low compared with Newtown, the CBD, and increasingly Kelburn. Some of the local residents also paint-out graffiti as soon as it happens. It appears graffiti is only reported to the Police infrequently. 8 Drinking inexpensive pre-purchased alcohol by way of priming for the evening and to defray costs of higher priced drinks at the bars. 9 Ready to drink (RTD) alcohol / soft drink premixes. Assessment of Crime Prevention through Environmental Design. 27 May

23 Technical Report Overall, the reported crime statistics and Police anecdotal experience would suggest the Project Area experiences offending towards the lower end of the spectrum of frequency and seriousness relative to the City generally Given the number of people who traverse the Project Area, some of whom may be vulnerable having consumed excess alcohol, or who may be vulnerable from people under the influence of alcohol, particularly after hours, I consider it important that the pedestrian thoroughfares and the adjoining physical environment need to be designed to be intrinsically low risk, particularly for crimes against the person In addition to being intrinsically low risk the Project Area needs to look and feel safe to ensure members of the public continue to pass through it at all times of the day and night, helping to keep it active and safe by their presence. Low level crimes can also be mitigated by design to ensure people can pass through the Project Area while distancing themselves from (say drunk or rough) people they may find threatening had they been forced into close proximity by the lack of convenient alternative pathways. Management of tagging by design will also help to maintain high standards of presentation necessary to assuage any potential public fear of crime and to promote activity Once public spaces become dead (in terms of lacking the presence and activity of bona fide members of the public) those with antisocial tendencies are likely to claim such spaces for their own and perpetuate the negatives. The design therefore needs to ensure public spaces remain vital and active. Such spaces should be legible and unfold in advance of travel so people can see any circumstances they would prefer to avoid well in time to either distance themselves or take another route. Pathway choices enable pedestrians to pass unnoticed by people who imbue discomfort people who for the most part are harmless and equally deserving of access and enjoyment of public spaces. 6.4 Pedestrian Travel Pedestrian surveys carried out by Opus International Consultants (Opus 2012) 10 were useful for quantifying the relative volumes of pedestrian traffic and indicative lines of travel that were observed in the course of the CPTED Site Assessments for the baseline review The main movement through the site is from Adelaide Road to Kent Terrace / Cambridge Terrace and return. During the day much of this travel occurs through the Basin Reserve or around the eastern side along Dufferin Street, the route seemingly depending on whether the pedestrians are associated with school traffic or not. (Figure 11.4 on the next page) The main movements of junior school students occurs north/south through the Dufferin / Paterson Street intersection and north/south through the western arm of the Tory / Tasman Street intersection. The demand line around the east side of the Basin Reserve involves about 170 persons per day who cross Paterson Street which has implications for future crossing options, be that at-grade or an underpass Given the strong desire line through the Basin Reserve and continuation of it being locked off at night, I would expect more travel around the Basin Reserve after hours. This has implications for travel near the bridge abutments and under the bridge structure There are strong desire lines around Bogart s Corner between Kent Terrace and Ellice Streets which have CPTED implications for how the corner is developed Significant movement of young people occurs between the schools and McDonalds fast food restaurant and the bus stops on Adelaide Road. 10 Opus International Consultants Limited Basin Reserve Pedestrian Survey [Summary map]. Wellington: Opus International Assessment of Crime Prevention through Environmental Design. 27 May

24 Technical Report 11 Fig. 11.4: Pedestrian Volumes During the Daytime Surveyors observed students lingering during the day around the Buckle Street / Tory Street / Tasman Street intersections The diagrams suggest there will continue to be pedestrian travel under the bridge in the vicinity of the abutments The pedestrian survey did not extend beyond 4 pm into the evening hours. Anecdotal information and my own limited and informal observations suggest that when the Basin Reserve is locked off after hours, pedestrian traffic reverts around the west side of the Basin Reserve along Sussex Street and Tasman Street. Field Assessment and Safety Map Environmental design criteria to assist with crime prevention (as presented above in the methodology s.5.1) were used to assess the present safety and security of the Project Area. The assessment has been presented in the form of a safety map which is shown in Figure 11.5 on page The numbered callouts on the diagram are used as references to pinpoint what is described below The CPTED Safety Map in Figure 11.5 is interesting for the fact that, unlike the other safety maps I have produced from numerous other safety assessments throughout New Zealand, there is nothing significantly negative and risky to report in regards to safety and security in the public spaces This is not to say the wider Project Area is without some risk to pedestrians. Some examples of potential entrapment spots on private property can be found up Paterson Street just beyond the Project Area in the form of small disused open (and blind) garages that are unlit and front onto the public footpath. Assessment of Crime Prevention through Environmental Design. 27 May

25 B 8 6 Fig. 11.5: Baseline Safety Map Assessment of Crime Prevention through Environmental Design. 27 May

26 Similarly there are secluded vegetated areas immediately off the public footpath along Buckle Street. However these risky areas are not shown on this safety map because they are outside of the Project Area. The analysis which follows needs to be read with reference to Figures Locations referenced by a number are shown on Figure Locations referenced by a letter are shown in Figures 11.6 and An area to note from the safety and security point of view is the traffic island [2] (as numbered on the baseline safety map - Fig on the previous page) which forms part of a pedestrian route between the pedestrian crossing on Kent Terrace and Cambridge Terrace to its immediate north, and the footpaths around the Basin Reserve or the pathway through it. Refer Figures 11.6 and I do not consider this to be high risk but I do observe that pedestrians having crossed onto the traffic island who are walking south along the footpath [A] towards the Basin Reserve (to either walk through it or around it) cannot see in advance of travel and disappear from view. The reasons for this are that the shrubs in this area have overgrown and the pathway doesn t line up with the entrance. B C B C A A Fig. 11.6: Traffic Island and Basin Reserve Entrance Fig. 11.7: Approach to Basin Reserve Entrance The safety and security issues are that the destination, being the entrance [B] is not visible, the route is neither direct nor legible, and the vegetation [C] forms a zone where people whom one may wish to avoid given the choice, may lurk unseen. The risk of personal harm (rather than pedestrian discomfort) is only moderate because there are no cul-de-sacs or entrapment spaces immediately off the footpaths an offender might exploit. Moreover the shrubs could simply be trimmed or the area re-landscaped in a more legible manner. But the overall design and appearance are presently not commensurate, safety-wise with what is an important threshold and entrance to the Basin Reserve As to the other parts of the Project Area the key CPTED matters noted were: a. consistently high standards of lighting which is relatively uniform due to closespacing of road lights, particularly around the Basin Reserve and west along Buckle Street. While this is primarily road lighting, the levels of illuminance onto the footpaths are sufficient for safety and security purposes. The lighting from Assessment of Crime Prevention through Environmental Design. 27 May

27 Brougham Street eastwards up Paterson Street is the usual widely-spaced low level street lighting consistent with inner city suburbs b. the street frontages and footpaths around the Basin Reserve and west along Buckle Street are clear, uncluttered and legible with no safety and security hazards on Project Area land adjoining them c. for pedestrians and cyclists, there are excellent clear sightlines around corners in advance of travel. Bogart s Corner [3] (from which the old buildings shown on the plan have since been removed and a simple park put in its place) is an excellent example of transition around corners. In terms of openness, it now matches the sweeping corner opposite [4] where Buckle Street joins onto Cambridge Terrace, and the Dufferin Street to Paterson Street corner [5] d. whilst there are several occupancies bordering the streets within the Project Area, the places where the capable guardians (people who would report observed crime) who might otherwise provide natural supervision of the streets tend to be in buildings that are set back from the street edge or have screened windows for example the car yards, motel and liquor store. There are very few premises with active edges that could provide opportunities for natural supervision of pedestrians in the public spaces within the Project Area. Practically the only premises are the shops and offices [6] along the west side of Adelaide Road just before the Rugby Street corner; and residents of the apartment block on the west side and northern end of Sussex Street who occupy the entrance [7] to smoke and in doing so, provide good supervision of this part of the street e. I was very surprised to note the incidence of vandalism and particularly graffiti was very slight within the Project Area given the numerous blank surfaces presented by the fences around the Basin Reserve making for perfect informal billboards with high volumes of passer-by. But I am aware of pockets of extensive tagging on properties on minor streets just outside of the Project Area in the vicinity of Belfast Street and Rugby Street [8] Because of the lack of vandalism and high standards of property maintenance around the road edges in the Project Area, the Project Area has, in my opinion, a reasonable standard of presentation. While more plain and natural than opulent, this standard of appearance, particularly without tagging, contributes significantly to reducing the sense of fear of crime in and around the Project Area. 6.5 Summary of Baseline The existing environment within the Project Area in terms of safety and security matters can now be summarised. Perceived Future Possibility of Crime The community is concerned about the future possibility of safety and security issues in relation to the design they saw during the engagement programme and information days, but do not reference existing safety and security concerns. It can be inferred from the small number of comments about crime (i.e. potential fear of crime as distinct from existing actual crime made worse) within the present Project Area (excluding the tunnel), that concerns are around dead spaces under the proposed bridge with associated expectations of antisocial behaviour, graffiti, and unspecified crime. Assessment of Crime Prevention through Environmental Design. 27 May

28 6.5.3 The existing crime profile for the Project Area is characterised as having a small number of reported incidents of assaults and disorder. It is believed alcohol fuelled disorder is underreported and attributable to people walking between the suburbs adjoining the Basin Reserve and the entertainment precinct at Courtenay Place, and mainly on Thursday through Saturday evenings. There is very little tagging and vandalism evident or reported. Low Crime Profile In terms of the physical characteristics of the environment within the Project Area there do not appear to be any places which have the potential for serious risk to passers-by. The traffic island between Kent and Cambridge Terraces near the north entrance to the Basin Reserve presents a moderate perceptual risk as distinct from actual risk to pedestrians. I will show in section 7, how the latter is expected to be mitigated. There are numerous informal billboards in the area but despite these, the prevalence of graffiti is very low. Overall, I consider the environmental security risks within the Project Area (as distinct from risky areas on private property at the interface with the public domain) to be very low. 7 PROJECT SHAPING 7.1 Introduction Safety and security considerations have been taken into account and have shaped the developed design of the roading improvement project. The process for achieving this involved: a. participating in workshops with the design team and reviewing design documentation as the design evolved as an outcome of all of the inputs to the design process not just the CPTED factors b. taking into account the concerns of the community ascertained from the engagement programme c. considering the design in terms of CPTED criteria for safe design d. considering observations from the baseline CPTED review, in particular to ensure the evolved design was at least no less safe and ideally had features to enhance real and perceived safety and security e. noting current pedestrian desire lines and how, if at all, these would be changed by the roading improvements f. conveying the above mentioned objectives to the design team in performance terms to allow them to apply their expertise to identify the best solutions taking into account other design constraints (e.g. undercroft clearances, road alignment, levels, and column spacings, etc) as well The key areas where CPTED matters have been taken into account to shape the design are summarised below. This summary might be considered as a CPTED Features Report. 7.2 Cambridge / Buckle Bridge Interface Zone (Figure 11.8) Assessment of Crime Prevention through Environmental Design. 27 May

29 7.2.1 The aspects of this zone between the east side of the crèche [A] and Cambridge Terrace that are important for CPTED are: the Buckle Street abutment [B1] and [B2]; the series of A C F transverse paths and steps down the slope to Cambridge Terrace [C]; treatment of the ground under the bridge; and the footpath where it goes under the elevated roadway [D]. G E West Abutment The west abutment [B1] where Buckle Street becomes elevated, wraps around three sides, one of which faces Sussex Street. Traditionally the Sussex Street side has had large commercial billboards and the fences have provided informal billboards for taggers. This is an ideal location for billboards because they are in full view of all oncoming traffic flowing north up Sussex Street (including politicians travelling into the city from the airport). B2 B1 Fig. 11.8: Crèche and Cambridge Terrace / Buckle Street Interface Zone. F D Under the proposed design, the land between Sussex Street and Buckle Street [B2] will planted and sloped up to meet Buckle Street thus eliminating an exposed potential graffiti wall (see Fig 11.9) The three faces of the abutment walls [B1] under the bridge are also variously sloped and will be planted. Once the plants mature they will not only eliminate opportunities for tagging and graffiti, but importantly, they will visually enhance the immediate environment, especially for pedestrians. Refer Figs to (below) for precedents and refer to note [A] in Fig and (on the next page) pointing to the planting on the abutments. B2 Slope Fig. 11.9: Integration of Buckle Street into the Landscape to eliminate walls Assessment of Crime Prevention through Environmental Design. 27 May

30 Fig Example of vulnerable unsightly abutment. [Clifton Tce car park] Fig Example of planted abutment Fig Example of planted abutment Assessment of Crime Prevention through Environmental Design. 27 May

31 7.2.5 The abovementioned abutment [B1] (Fig 11.8) has been shaped to allow clear sightlines for pedestrians walking in either direction under the bridge between Cambridge Terrace and Buckle Street. Moreover there are three different pathway choices under the bridge for pedestrians [D] (Fig 11.8). Figure A Clear views under bridge. Indication of abutment treatment Pathways will be suitably illuminated to the NZ Lighting Standard 11 and there will also be supplementary feature lighting of the bridge structure from underneath As part of the Project shaping a column was removed to make the thoroughfare under the bridge more legible, less cluttered and less confining. One column remains at [E] (Figs 11.8, 11.17) and meets the ground in the wetland and rain garden which will help sustain a creeper and discourage opportunistic access to it. Moreover, standing in a water filled wetland constitutes conspicuous behaviour which attracts attention and can thus be a deterrent to antisocial behaviour. See also the wetland image, Fig on p Figure (above) also shows how the faces [A] of the abutment under the bridge which pedestrians pass close to, would be planted with a suitable climber to prevent disfiguration by graffiti. Paths and Steps Between Crèche and Cambridge Terrace The area between the crèche and Cambridge Terrace contains a series of ramped pathways and steps traversing a sloped open space with low height amenity planting, wetland and rain gardens. Pathways and steps are wide and generous (between 2.5 and 8 m). Multiple steps, ramps and pathways provide a variety of pedestrian movement choices and places to pause Ramps may well invite free skating which of itself is not a CPTED issue except when less confident, usually older folk hold fears for being knocked over or are worried about young people congregating. Fig : But in mitigation, this area is very large which together with an A Clear views under bridge. Abutment treatment 11 Category P8, ASNZS Primary Pedestrian Circulation. Assessment of Crime Prevention through Environmental Design. 27 May

32 abundance of movement choices should enable pedestrians of all kinds to keep at arm s length or be within arm s reach of each other - as they choose. Being open and legible there are no sheltered congregation points of the kind that are sometimes problematic in other parts of the city such as Opera House Lane All primary pathways will be lit including the steps and pathway extending along the north boundary [F] (Fig 11.8) to Buckle Street and the car park running out to Tory Street The wall along the north side of the path will be necessary to contain activities along the steps and landings and to keep this edge safe from the property to the immediate north. This wall, like the wall further to the east described previously, is also likely to require specific design to prevent graffiti, for example a palisade or mesh type of fence rather than a solid one. Under-bridge Treatment The planted areas [G] (Fig 11.8) under the bridge between the pathways will be in the form of wetland and rain gardens. In addition to their manifestation as a landscape interpretation, the rain gardens are intrinsically simple, legible and useful from the CPTED point of view. They discourage occupation under the bridge and thus deflect occupancy to adjoining open spaces designed for that purpose. This will help assuage the community s fears about these spaces being occupied by people who live roughly or people with dubious intentions they may wish to avoid. Refer Figures and (on the next page) Purpose-designed lighting will also help to showcase the structure from beneath the bridge and present the spaces under it as quality amenity spaces. Expressions of quality such as these are known to promote positive behaviours, feelings of safety and security and discourage being sought out for antisocial behaviour Collectively, the CPTED techniques described above are expected to ensure low risk of crime and fear of crime when passing through this area as a pedestrian or a cyclist. Fig Wetland, rain garden surface treatment. Fig General view of simple and safe landscaping under the bridge. 7.3 Kent / Cambridge Basin Gateway Zone. Assessment of Crime Prevention through Environmental Design. 27 May

33 7.3.1 The aspects of this zone between Cambridge Terrace and Ellice Street (Figure 11.17) that were shaped with CPTED principles in mind are: the areas under the bridge e.g. [G]; the reformed traffic island and plaza across the slip road at the northern entrance of the Basin Reserve [G]; turning of the corner from Kent Terrace into Ellice Street [I]; and the proposed building on the corner [J]. E K G L H I J The CPTED ground surface treatments Fig [G] under Key the to CPTED bridge features within this in the zone Kent are / the same simple and legible planting and wetland treatments Cambridge that carry Basin through Bridge Interface from Buckle Zone Street and as such are expected both to be seen as and to be a low risk area in terms of personal safety I note planting and the lack of landings along the kerbs on both sides of the curved section of the road would appear to diminish the current suggestion of a shortcut [K] which I have observed pedestrians taking at great risk of being struck by vehicles sweeping around the corner The pedestrian approach to the Basin Reserve gates via the associated traffic island [L] has been simplified and formalised. With the removal of shrubs the island is much more legible than at present (as mentioned in the baseline review) and pedestrians will be able to see clearly ahead. Refer Figures and below. Fig : Northern and western street approaches to northern entrance of the Basin Reserve. Fig : Simplified northern approach to Basin Reserve entrance and Buckle Street. Assessment of Crime Prevention through Environmental Design. 27 May

34 7.3.5 The island is spacious and there are opportunities to walk on wide footpaths on either side of the seat at the base of the bridge column [H], thus pedestrians can maintain comfortable separation distances from anyone they feel unsure of (see Figure below) I note from the draft sunlight shade study 12 that the shade from the bridge in this sector is mostly cast immediately under and slightly to the south of the bridge onto the road. As shown in Figure there are footpaths in this area but no open space where the public is encouraged to pause, the landscaping being more in the nature of a wetland than a grassed area for people to stay and occupy. Bridge shading is not incompatible with the CPTED objective and the community s wish to deter loitering under the structure, in deference to encouraging occupancy of the other unshaded open spaces (such as the west and east abutment areas) within the project that have been designed as public amenity areas I believe this area will seem significantly safer than at present (as commented on in the baseline study). For people traversing or pausing on the island there will be a significant sense of natural observation provided by motorists Fig : driving past, however unreliable this may actually be in CPTED terms because motorists concentrating on negotiating bends and traffic can hardly stop - except for the Police. H Bridge column set out 7.4 Kent / Ellice Street Integrated Building Zone I support the way the proposed replacement building [J] (indicated in Figs and 11.21) at Bogart s Corner (and shown in Figure 11.21) is set back from the road edge. This set back together with the broad curve [I] (annotated in Fig 11.17) around the corner between Kent Terrace and Ellice Street presents excellent visibility in advance of travel in both directions for pedestrians. J J I Fig Proposed new building showing Fig Elevation of Fig showing visual CPTED-suitable set backs and edge transparency and potential for treatments. jewel/beacon. 12 Athfield Architects Sunlight Shade Study. Version RO, Version Wellington. Assessment of Crime Prevention through Environmental Design. 27 May

35 7.4.2 Part of the sightlines are likely to be available by seeing through the glazed corner of the building, further creating a sense of openness I believe the building proposed on the corner potentially has a worthwhile crime prevention function by providing an active edge in the Project Area the makings of a jewel on the necklace. I think it is important as a wayfinding device, a milestone, and contributor of spill light onto the footpath and seeming vitality even after hours when the building is closed The building has the potential to add visual amenity and help sustain an ambience of quality in the immediate area which is rare in similar environments under suspended roads. I have already mentioned that maintaining a sense of quality (without necessarily opulence) is an important CPTED principle for setting expectations of appropriate behaviour, respect and appreciation, and a sense of safety in an environment that is well presented I note that service access for the building will be off Hania Street well back from Ellice Street (Figure 11.21). This is preferable to servicing off Ellice Street as it avoids access recesses in the Ellice edge which can be problematic for crime prevention. It is more practicable to secure the service access for the building off Hania Street, as indicated in the design. 7.5 Paterson / Ellice / Dufferin Interface Zone The main CPTED points of interest in this zone (referenced in Fig 11.23) are: the areas under the bridge [D]; bridge abutments [B]; the main pedestrian pathway [M] (see Fig on the next page) and the atgrade crossing of Paterson Street [K]; pedestrian access between Ellice Street and Paterson Street [L] and the retaining walls [N]; and the church car park [O]. D M Ellice St K B L O N The surface treatments under the bridge [D] Fig. and 11.23: between Paterson the / roads Ellice Dufferin generally Interface comprise Zone amenity planting and wetland & rain gardens as part of the continuum of treatments elsewhere under the bridge, that I have previously mentioned as being positive CPTED measures. Refer Figure below Similar to the west abutment at Buckle Street (which I earlier commented on positively) the east abutment [B1] will also be sloped and planted to soften the structure and minimise opportunities for graffiti. Two other places where there is a risk of tagging are the retaining walls [N] alongside Paterson Street by St Joseph s church and at the southwest corner of the church car park [O]. Both of these walls will be greened like the bridge abutments. Fig Walkway [M] Dufferin to Ellice Street Assessment of Crime Prevention through Environmental Design. 27 May

36 7.5.4 The direct pathway [M] (Fig 11.23) between Ellice and Dufferin Streets acknowledges and provides for the strong pedestrian desire line largely associated with school traffic as determined by the traffic studies (see Technical Report 4). In the early design stages options were explored for having the footpath go underneath Paterson Street in the form of an underpass. This was to try and eliminate the need to cross that road at grade and the additional work was to find an underpass solution that would be safe and would be perceived to be safe for pedestrians A number of models were prepared to explore the implications of different alignments under the road, and of changing road levels to the extent that was feasible given the more onerous vehicular traffic engineering constraints. Q P Fig Model image of possible underpass under SH1 Eastbound (Paterson Street), from Dufferin Street looking north towards Ellice Street Even the most promising underpass model (in terms of balancing competing engineering and crime prevention requirements) did not resolve two important safety and security issues that resulted from the need for users to descend out of view in order to pass underneath Paterson Street and then ascend to the higher road level at Ellice Street. Refer Fig on the previous page. Q N P Q Ellice St P Fig : Underpass feasibility Fig : Blind spot and eddy below Assessment of Crime Prevention through Environmental Design. 27 May

37 studies roads As shown in the diagrams above the best of the models referred to was unable to eliminate a blind corner [P] created by the abutment (which cannot be shifted due to bridge span constraints). In addition the convergence of ramps and steps necessitates a space [Q] hidden below road level which will be a problematic eddy where antisocial behaviour and congregation by persons that pedestrians cannot avoid, is likely to occur Given there are no reasonable alternative routes and exit choices along this prime pathway, and having regard to the wide cross-section of users in terms of their possible vulnerability and likely perceptions of risk, together with seemingly irresolvable constraints that prevented a safe underpass from being designed, I advised that an underpass would not be prudent. This CPTED analysis has shaped this part of the Project by pointing to the need for an atgrade solution instead of an underpass The location of the crossing has been determined by others and is shown at [K] in the diagram (Figure above). An at-grade crossing presently exists on Paterson Street It is expected the pathway [M] (Figure on page 38) between Ellice and Dufferin Streets (shown as [M] will be safe and feel safe for pedestrians on account of the simplicity and legibility of landscape treatments within its immediate vicinity, clear sightlines and no places that promote congregation. Suitable lighting will also be provided for safe use at night. 7.6 Dufferin / Rugby Streets / Schools /Church / Government House Interface Zone From the pedestrian point of view there is little change to the inner edges around the Basin Reserve [R] (shown on Figure below) Although I believe the present lighting is adequate in this area, lighting improvements proposed for south side of Rugby Street [S], the east side of Dufferin Street [T] and the southern entrance of the Basin Reserve [U] will be beneficial for the safety of pedestrains. U Fig : T Dufferin St S R Rugby St Dufferin Street / Rugby Street Zone Landscaping improvements along Dufferin and Rugby Streets are expected to improve the appearance and sense of amenity of both streets. This will have corresponding benefits for Assessment of Crime Prevention through Environmental Design. 27 May

38 crime prevention in that people tend to be better behaved and feel safer in higher quality settings This zone is already low risk in terms of safety and security. I believe the proposed improvements of lighting and landscaping will only enhance perceptions of safety and amenity. I am not aware of any negative effects. 7.7 The Bridge Walkway and Cycleway A pedestrian walkway and cycleway has been provided separate from but closely alongside the vehicle carriageway of the bridge. It commences at the intersection of Brougham and Paterson Streets at the west end and extends to the west some 50 metres to a point near the northwest corner of St Joseph s Church. At this point pedestrians and cyclists can choose to take a lower path of about 80 metres to arrive at Ellice Street or to continue westbound along the bridge some 240 metres to land at the western bridge abutment just east of the relocated crèche. It is four metres wide and has a glazed outer protective screen In CPTED terms, long paths, underpasses, long stair ways and long overbridges (typically in excess of 50 metres) are termed movement predictors where as the term suggests, the movement, direction and intentions of people are strongly predicted by the shape and construction of these types of structures. Movement predictors play a role in predator behaviour and what is termed the moving crime scene, when a prospective victim is followed until reaching such point as they arrive near or at a dangerous location in the immediate environment, typically an entrapment point, when they are intercepted by the offender. Of themselves, movement predictors are not usually safety and security risks unless associated with entrapment points. For this reason care needs to be taken to eliminate potential entrapment points along movement predictors or adjoining them, as often occurs at or near their ends I believe the CPTED safety and security risks associated with the pedestrian and cyclist bridge are low on account of: a. the absence of entrapment points at any point along the pathways or at the ends of the pathways b. clear visibility for pedestrians and cyclists there are no blind corners c. some, albeit few exit choices d. alternate pathways at the exit points, and e. a degree of perceived natural supervision from other pedestrians and cyclists on the bridge and from passing motorists (albeit they have limited ability to read situations let alone intervene when travelling along the road) and from other people in the area to whom they may be visible if not immediately accessible. 7.8 Basin Reserve Mitigation I have participated in workshops to consider options for screening views of the bridge and traffic thought to be distracting for players on the cricket pitch in the Basin Reserve. The mitigation design proposals have culminated in a 45m long building and planting of pohutakawa trees along the northern boundary of the Basin Reserve; and a proposed Assessment of Crime Prevention through Environmental Design. 27 May

39 alternative screening mitigation which is the preference of the landowner comprising a 55m or a 65m long building within the Basin Reserve, the effects of which are also contained within the conclusions in Section 9 of this report In reviewing the iterations of various screening options from the CPTED point of view, I have used the same CPTED assessment criteria applied to other parts of the project I have considered the CPTED implications of the screen and northern gateway building options and the associated pedestrian plaza (shown in Fig below), and separately the changes to the southern entrance, in two parts: a. above ground predominantly the northern gateway building, and; b. any related structures on the ground (where pedestrians encounter it) be that the supporting structure of any new building associated with or forming the screen, or the entranceways, or associated changes to fencing and landscaping. Fig : View of northern entrance to the Basin Reserve from Kent Terrace / Cambridge Terrace There is of an important crossover between a key CPTED principle and urban design, in relation to wayfinding, legibility and manifestations of quality. The clear identification and articulation of the entrance along strong pedestrian and cyclist desire lines from the approaches to the Basin, help form a cohesive and integrated environment overall, with the elimination of any doubt as to the route of travel and the location of destinations (of which the Basin Reserve may be a final or an interim one). Such milestones, wayfinding devices and beacons 13 contribute to the positive, high quality overall image and milieu of the Basin Reserve environment. This helps to promote utilisation and to imbue respect which enhances capable guardianship and minimises petty vandalism and tagging respectively. The design suggests the use of quality materials. I believe the each of the proposed design options delivers on these objectives At ground level, the street entry [A] (Fig on the next page) which leads to fire escape and access stairs to the upper level of the building, will have a suitable gate and a wall at the street frontage. This will eliminate street frontage recesses and access to the 13 Similar to the Wahine Memorial and the lighthouse structure with the children s slide in Frank Kitts Park, for example. Assessment of Crime Prevention through Environmental Design. 27 May

40 passageway between the street and the upper level of the building which if not controlled would create risks for passers-by and invite antisocial behaviour The gates [B] are also flush with the outer wall and there is likely to be under-soffit lighting. The landscaping to the immediate east of the entry gates [C] will require careful open treatment, such as a simple lawn or low ground covers (as distinct from heavy tree planting) as shown in the design (in Fig 11.30) so as not to create a secluded outdoor room between the building and the fence The occupancy of the upper floors of the proposed building, be that 45, 55 or 65 metres long corresponding to whatever option is finally determined will help to activate the street frontage, albeit at an upper level rather than at ground level. I expect occupants of the stand will look down over the entry forecourt and the immediate public spaces beyond. I would also expect lighting inside the building when it is used at night to some extent spill onto the adjoining public footpaths. So from the CPTED point of view the stand could have similar benefits to those I have mentioned in relation to the proposed building on Bogart s Corner which I have mentioned I am also in favour of for CPTED reasons. N A A B C Fig Plan of northern entrance to Basin Reserve As part of the redevelopment of the northern entrance of the Basin Reserve it is proposed to relocate the Dempster Gates alongside the Reid Gate. I do not believe this raises any CPTED concerns at the southern entrance Subject to acceptance of the overall design for the northern gateway building I would anticipate considering some of the more detailed aspects of CPTED during design development, for example: a. checking for and defining sufficient, safe and resilient space for queuing outside the gates for contemporary event entry without impeding other users of the slip road and footpaths; b. the method of enclosing the outer side of the ticket stalls; and any corresponding apertures on the Basin Reserve side that pedestrians travelling in a south to north Assessment of Crime Prevention through Environmental Design. 27 May