CPTED ASSESSMENT OF PROPOSED SKYPATH AUCKLAND HARBOUR BRIDGE. Prepared for Woodward Infrastructure Limited by Peake Design Ltd

Transcription

1 CPTED ASSESSMENT OF PROPOSED SKYPATH AUCKLAND HARBOUR BRIDGE Prepared for Woodward Infrastructure Limited by Peake Design Ltd

2 CONTENTS Page No. CPTED ASSESSMENT OF PROPOSED SKYPATH... 1 AUCKLAND HARBOUR BRIDGE... 1 EXECUTIVE SUMMARY... 4 INTRODUCTION... 5 SCOPE... 6 CRITERIA... 8 General Impressions... 8 Ownership... 8 Passive Surveillance... 9 Avoiding Entrapment Environmental Quality KEY FACTORS Access Streetscape Elements RESULTS OF THE ASSESSMENT General Introduction Safety Issues Summary of Results... 16

3 General Impressions North Landing Passive Surveillance Avoiding Entrapment Environmental Quality Access Streetscape Elements CONCLUSIONS... 24

4 EXECUTIVE SUMMARY A CPTED assessment was carried out of the proposed SkyPath to be attached to the Auckland Harbour Bridge. The purpose of the assessment was to identify any features and qualities that could make the proposed landing areas unsafe, and to recommend solutions and strategies to improve safety. Evaluation criteria included: General impressions Ownership Passive surveillance Avoiding entrapment Environmental quality Access Streetscape elements The CPTED review did not include an accessibility audit or barrierfree assessment (refer to scope on page 6).An assessment of the safety aspects of the overall project was not included as part of the assessment. The assessment results show that the proposal supports CPTED principles and will provide an attractive and useful space that is accessible and safe for all users. While there are some recommendations, there are no matters that would need attention at this stage in the planning and design for the facility in order to address safety. 4

5 INTRODUCTION Bevan Woodward, Project Director and Trustee of the AHB Pathway Trust on behalf of Woodward Infrastructure Limited, requested Peake Design carry out a CPTED assessment following a Section 92 request from Auckland Council. The specific matters raised in the request are summarised as follows: Northern landing - natural surveillance across street, in and around entrance portal, and within the SkyPath structure Plaza, northern landing potential entrapment and usability Southern landing level of illumination/daylight, potential entrapment and/or blocked sightlines Consequently the scope of the assessment focussed on the above matters including investigating any solutions and strategies to improve safety. The review is based on drawings prepared by RESET Urban Design, and included discussions with landscape architect/urban designer Garth Falconer. The National Guidelines for Crime Prevention through Environmental Design in New Zealand and NSW Safer by Design Guidelines (including Guidelines for Queensland) have been used as reference documents in formulating criteria for the assessment. The assessment was carried out in September and October 2014, with visits to both landings during the day and in the evening (after dark). 5

6 SCOPE The purpose of the Resource Management Act is 'to promote the sustainable management of natural and physical resources' (s5(1)). In exercising their functions and powers, local authorities must ensure that this purpose is realised. Sustainable management means 'managing the use, development, and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic, and cultural wellbeing and for their health and safety while (among other things) avoiding, remedying, or mitigating any adverse effects of activities on the environment ' (s5(2)). Providing for the safety of people and communities is specifically referred to as an objective. In addition, adverse effects on the environment can include the potential for crime and fear of crime. The Resource Management Act also requires local authorities to have particular regard to 'the maintenance and enhancement of amenity values'. Amenity values are defined as 'those natural or physical qualities and characteristics of an area that contribute to people's appreciation of its pleasantness, aesthetic coherence, and cultural and recreational attributes'. Safety is a prerequisite for people to appreciate the pleasantness, aesthetic coherence, and attributes of an area. In 2003, in response to the concerns of CBD stakeholders during consulting with stakeholders as part of the Auckland s CBD: Into the Future Strategy, Safer Auckland City (SAC) developed an Inner City Safety Strategy. This identifies the key safety issues and initiatives for Auckland City Council in the CBD. Its aim is: To make Auckland City's CBD safe for workers, residents and visitors, and contributing to the CBD becoming a place that is 6

7 liveable, vibrant and safe. 1 Its objectives include: To create a safe physical environment To increase the perceptions of safety for residents, workers and visitors CPTED principles have been incorporated in the Central Area section of the Auckland District Plan. The Plan seeks to make places feel safer and deter crime by making it harder to commit crime. The Plan also seeks to remove conditions that create confusion about required norms of behaviour in different areas, as this can lead to intimidating or criminal behaviour taking place in these areas. 1 Inner City Safety Strategypage 2 7

8 CRITERIA General Impressions First impressions of a place are important in deciding how comfortable or safe you feel, especially when alone. Key factors Does the location feel like a safe place? Is the locality well cared for or abandoned? Is the nature of the area likely to make the place feel isolated or relaxed would there be people around if needed? Does the place feel welcoming and appear well cared for? Ownership Sense of ownership is often considered a vital factor in making a place less or more safe. Not knowing who has formal ownership can be an important contributor to insecurity since in order for people to feel and be safe, it is important that they know there are people to help in times of distress. Key factors Are spaces designed to say whether they are private or public through design or visual cues and signs (especially at entrances)? Is the overall design and layout of spaces legible simple clear layout of activities and routes? Is the use clear, does it make sense or is it confusing, and are there unused, dead spaces? Is there a variety of attractively designed elements to signify care for the place? 8

9 Is the space designed to ensure there other people or facilities that will attract other (legitimate) people? Is the area to be used at night and if so are all spaces adequately lit to the same level as adjacent streets. Is there a clear demarcation between areas that are likely to be deserted at night and areas where there is likely to be activity? Is care and security demonstrated by design for ease of maintenance and repair eg avoid areas prone to graffiti, weeds and rubbish accumulation? Are there signs to identify where you are e.g. street names or directional signs? Are there signs indicating who to contact in case of emergency or for repairs? Passive Surveillance A positive consequence of activity is passive surveillance which gives a perception of safety in an area. Having activities that spread from private spaces into public areas increases safety and activity within the space. Key factors Are there other places which adjoin and overlook the space? Are there ancillary activities incorporated within the space or area? Is the space close to other well travelled routes adjacent to a busy thoroughfare, connected to or part of a key route eg to a school, shops or bus route? 9

10 Avoiding Entrapment Entrapment spots are small, confined areas, adjacent or near a well travelled route, shielded from view on three sides. They are often associated with movement predictors a predictable or unchangeable route that offers no choice to pedestrians eg tunnel or bridge, narrow passageway. Having clear lines of visibility will reduce the opportunity for crime. Key factors Are spaces designed to ensure there are clear sightlines into/out of the space from the street? Are safe pedestrian routes provided, are potential concealment and entrapment spots avoided? Are multiple entry and exit points provided where appropriate eg to avoid someone or somewhere? Are there pathways and access routes with impeded sightlines eg where they curve or change grade? Are there movement predictors? Is there an alternative safe route for night-time use where appropriate? Do confined spaces have surveillance overlooked by housing or commercial premises, mirrors to see out, CCTV, monitored by staff? Are obstructions along pedestrian routes avoided physical and visual eg vegetation, barriers, grade changes? Is the lighting adequate to street lighting levels, providing a safe route to streets, exits or a carpark, without shadows? Would you be able to identify a face at 20 paces? 10

11 Environmental Quality An attractive environment encourages use, and a quality urban environment should incorporate spaces for enjoyment and pleasure, as well as providing access to a safe transport route. Places may be divorced or separated from activity areas but should not appear desolate or dangerous. Key factors Is the environment enjoyable does it have aesthetic value and an attractive image (or is it barren and sterile, repelling use)? Are flexible spaces provided offering an appropriate choice between to see and be seen, sun and shade, places to sit, places to meet (with no unwelcome noise or smell)? Have opportunities for mixed use/ activity generators been recognised and integrated? Is there good information on facilities, way-finding, agency responsible for upkeep and repairs? Is there a high standard of design and good quality finishes for ease of maintenance and to deter vandalism? Access Providing good access will encourage use of a place/facility, which will increase safety and activity within it. Key factors Is the place close to other transport routes and facilities main thoroughfares, open spaces, buses, other? If parking is provided, does it have good vehicular and pedestrian access? With good visibility/signage extending to the street? And adequately lit? Is an appropriate level of pedestrian access provided, in the right locations? 11

12 Are access routes to different spaces or areas appropriately managed? Is the approach to SkyPath and its landing layout legible, with a clear view of where to go? Are streets and access routes adequately signposted and lit where appropriate? Are areas to be used at night adequately lit to the same level as adjacent streets? Is there a clear demarcation between areas that are likely to be deserted at night (to be avoided) and areas where activity is proposed? Streetscape Elements The design of streetscape structures and elements can contribute to the safety of places by reducing the opportunities for crime to occur and assisting in community wellbeing. Key factors Is SkyPath s entry clearly visible and identifiable from the space (for visitors and emergency services)? Are there any landscape features, fencing or other structures that present a security/safety risk by screening SkyPath and access routes? Are level differences managed through semi-transparent fences rather than solid walls or fences? Are places and access opportunities to reach areas favoured by graffiti artists avoided building and natural ladders, ledges, exposed blank walls? Are pedestrian routes and spaces clearly demarcated? And is there clear visibility between these spaces and the vehicle zone? Has the space been designed to cater for a variety of outdoor activities to enliven and activate the street? 12

13 Does the design of underpasses and overbridges meet best practice and the Pedestrian Planning and Design Guide (NZTA, 2007)? 13

14 RESULTS OF THE ASSESSMENT General Introduction CPTED emphasises the employment of natural strategies where possible, integrating security and behavioural concepts into how human and physical resources are designed and used. This results in less reliance on organised strategies eg security guards/patrols and mechanical strategies (grilles, locks and CCTV), and more emphasis on design and management. Simply put, in relation to public places and spaces, this means that where a space is well designed and managed, it will attract users and encourage the place to be valued by the community and visitors, which in turn is likely to deter crime and unsociable activity. Using this approach to crime prevention it can be seen that safety is as much about creating a comfortable and inviting environment to encourage use as it is about keeping out undesirable people. As a consequence, the way people approach a place and their impressions on arrival are very important in terms of deciding whether a space feels safe. Similarly, if there are lots of other people in and around a place (including workers and user groups), this will add to perceptions of comfort and safety. Equally as important as the safety of the community and visitors, is the perception of safety for workers in spaces and buildings, including contractors such as cleaners. Some of these people may be alone in a building, or be working at night, when safety and security concerns are heightened. 14

15 Safety Issues No survey was undertaken of current safety concerns or issues with regard to the adjacent existing street or area, although the Police were approached for feedback. A survey of public safety perception in the CBD in revealed that most people feel safe in the city centre. It was also found that frequency of visits and gender were statistically significant i.e. respondents who visit the CBD less frequently were more likely to consider the CBD to be unsafe and women were more likely than men to consider the CBD unsafe. Not surprisingly, a sizeable number of responses qualified their statement with a remark that at night they felt it was less safe. The most frequent reason cited for feeling unsafe in the CBD was that there were people who loitered in the CBD at night while, conversely, the presence of a lot of people on the streets of the CBD also made people feel safe. Traffic offending was a particular issue for international students. There were no particular design issues raised in the survey, although good lighting and CCTV were mentioned as positive safety initiatives. 2 PERCEPTIONS OF PUBLIC SAFETY IN THE AUCKLAND CBD: A discussion of some of the results of the Auckland City District Police customer satisfaction survey, AUT,

16 Summary of Results General Impressions Northern Landing The Northern Landing area is at the end of a residential street at Northcote Point. The area may be separated into two different character areas within and outside the bridge footprint. Outside the footprint, the location feels safe, quiet and relaxed typical of a residential neighbourhood. Within the footprint, the area is less welcoming, although the presence of vehicles and houses makes the place feel less isolated. The area appears to be well cared for, assisted by the design/artwork. Auckland Harbour Bridge SkyPath.org The proposal will enliven the space under the bridge and will attract people both those moving through and staff. As a result, general impressions will be enhanced. Southern Landing The Southern landing area is at the end of Westhaven Marina, where it joins with Curran Street. Although part of a busy marine area, the area has a relaxing and quiet ambience, which may be partly attributable to the proximity of the harbour, as well as the recreational use of the area. While generally well cared for, the area has been in a state of transition for a long time so that there are areas that less developed/maintained than others (including the proposed location of the landing, which is currently a works/storage area). The proposal has the opportunity to improve sense of comfort and safety as it provides a destination and space that connects the marina and Curran Street. Lighting will make a significant improvement to the general impression at night. 16

17 Ownership Existing artwork - northern landing Public domain - southern landing Northern Landing Currently the space under the bridge suffers from a lack of clear ownership although recent artwork has increased its perception as a public space. The proposal will reinforce the fact that the space is for public use and will include staff andsecurity which will help increase actual and perceived safety. The design will provide clear routes and spaces although signs should be used to provide formal information on ownership. A high quality design is proposed, which will help signify that the place is cared for, and paving and fencing is expected to define ownership boundaries. Lighting will need to be carefully managed to avoid creating dark or dead spaces and to connect with other lighting/spaces. Southern Landing This area is anticipated to have fewer issues regarding sense of ownership, as it will be located within a clear area of public domain. If the NZTA work area is intended to remain, however, the design of this interface will be important, in terms of information on access and ownership. Similarly, the interface with other activities and routes will need to be designed to ensure clarity with regards to ownership and security.lighting will need to be managed currently the public areas are dark while a floodlight within the NZTA fenced area is very bright. 17

18 Passive surveillance - northern landing Passive Surveillance Northern Landing The space is surrounded by residential development, although intervisibility varies depending on house design and height of fencing. In addition, there is passive surveillance from Stokes Park. Some surveillance could be expected from Princes Street, but views into the space are not clear and there is the possibility that the street might be closed to vehicles except for residents/visitors. It is also understood that there may be some visual/aural screening, but these have not been sighted for this assessment. However, the majority of passive surveillance will come from users of the facility, and from staff. The security/ticket office also has the opportunity to provide active surveillance, while seating provides additional opportunity for passive surveillance. Southern Landing The south landing has prime location for passive surveillance as it is on a well used route and is overlooked by commercial premises, including a popular cafe/restaurant(during daylight hours only). In addition, it will have on site staff/security that will provide active surveillance. (It is suggested that the ticket office could be moved to afford greater overlooking of the space.) At night there is little surveillance and greater use of active surveillance may be needed, although again staff and security will be present during hours of operation. Passive surveillance - southern landing Avoiding Entrapment Northern Landing While there are no entrapment spots, the support piers for the motorway give the illusion of creating visual obstruction and 18

19 potential hiding places. And as the area is quite confined (with little space either side of the motorway structure), and the access and plaza areas are set back from the street under the motorway, the piers are visually quite oppressive. In reality, however, it is considered that this is only a perception issue and can be overcome through onsite security and lighting. During opening times it is also expected that the increased activity will discourage unsocial behaviour. Signage may be needed to discourage use outside opening hours and indicate alternatives. Support piers obstruct views - northern landing Stokes Point Park asset northern landing Southern Landing Similar to the northern landing, there are bridge piers within the landing area but they are fewer and less visually obtrusive. There are no other potential entrapment spots and the proposed design structures and fences are located and designed to minimise visual obstruction. It is not considered there are any entrapment issues. Environmental Quality Northern Landing While the area is at the end of a cul de sac and relatively isolated, the proposal increases access and connections to transport routes and incorporates features for amenity and activity. In this regard, the proximity to Stokes Point Park is considered an asset and there is unrealised potential to incorporate this space into the proposed design. While the SkyPath facility includes seating, a more attractive location could be the park, especially as the space under the bridge is noisy and shaded. Generally, however, the facilities will attract use and have the potential to incorporate activity generators. The proposal will also bring increased aesthetic and attractive value to the area as well as high quality design and materials. 19

20 Southern Landing The facility is located on a route regularly used by vehicles and will increase available public space to meet and pass through. Similar to the comments for the Northern landing, there is opportunity to provide seating outside the plaza, although the current location of benches would be sunny. The Motu seating will also provide additional amenity and activation. Overall, the proposal is designed to a high standard and will attract use. It is considered important that the peripheral proposals for connections with adjacent areas be implemented and potentially extended (e.g. to the adjacent grassed area in front of AJ Hacklett). Princes Street northern landing Access Northern Landing The proposal inherently forms part of the street network as it connects the Harbour Bridge with Princes Street, and falls within the area of the Northcote Point Heritage Walk. It therefore has the potential to encourage use of a currently isolated area, although it feels perceptually remote from shops and buses on Queen Street. There is also the opportunity for linkages with the proposed SeaPath as well as the ferry terminal. All these destinations should be signposted, preferably with a time indication and clear route marking. It is understood that vehicular access and parking is to be managed, but details are not yet known and may be outside the scope of the project. A safety assessment of this aspect cannot therefore be made. The wider area and streets are adequately lit, and the site is currently lit with a variety of lights that provide an adequate and generally even level of illumination over the whole area under the bridge. It is considered, however, that there is opportunity to improve the lighting, and have varying levels of illumination 20

21 indicating areas of activity and areas not intended to be used at night. Lighting should also extend to the street, with an appropriate level of illumination to clearly identify the entrance portal (and people) from the street. Piers should be lit where they have the potential to obstruct views (similar to existing piers with text), and it is suggested that a safety review of the proposed lighting be carried out as part of the detailed design. Southern Landing The location of the landing is well connected, and there is existing signage to other destinations. The design provides clear lines of visibility along the adjacent streets and into the plaza, although care will be needed that the security fence does not obstruct views from Westhaven Drive. As noted for Environmental Quality, it is considered important that the connections and access to surrounding areas and activities are implemented as part of the proposal, including the proposed crossing and speedtable that will improve safety. Westhaven Drive southern landing It is noted that the existing lighting in the area is very poor. There is no street lighting and flood lights in carparks create glare. Although lighting of the motorway provides some illumination, a complete lighting design of the area will be required in order to make the proposed facility safe. This includes the approach roads, cycle/footpath connections, and any parking areas to be used as part of the proposal. An assessment also needs to be made as to the safety of the facility at night as there is no passive surveillance from buildings (although people fish on Curran Street and Westhaven marina security staff patrol the area). It is suggested this should form part of the detailed design phase. 21

22 Streetscape Elements Northern Landing The design is expected to contribute to safety through activation of the space and its design. The proposed location of the entry portal is separated from the street by the access roads under the bridge as well as the bridge piers, so that views will not be readily available from any distance. In addition the area is dark (magnified in sunny weather). The form and size of the SkyPath structure is, however, designed to make it visible, and other elements will also contribute to the overall visibility of the entry. Notwithstanding this, it is suggested that lighting and signage should be employed. The vertical artwork should also be located and sized so that it does not obstruct views of the entry portal, plaza space, or Stokes Point Park. It is also suggested that routes to Stokes Point Park and the ferry be integrated into the design with clear visibility to the plaza space. Column prevents climbing northern landing Apart from the above matters there are no features that present a security/safety risk. The totara palisade sections frame the entry turnstile area and screen views of adjacent residential properties though there is a security kiosk centred in this area which maintains surveillance as well as providing information and management). In the Northern Landing area SkyPath fences, ribs and screens are respectively a combination of steel, laminated timber and composite material and the loop ramp is cantilevered on a decorated column that prevents climbing. It will be difficult to make the space graffiti-proof but it is anticipated that removal of any graffiti will form part of a maintenance regime. Southern Landing The design will enliven and activate a space where the public is currently excluded and will make the area more attractive for use. The elements are designed to a high standard and there are no 22

23 features that present a security/safety risk. Fencing and archways are mesh steel, and the security fences combined with the rock walls are designed to prevent access to the ramp structures. While there are fewer structures under the bridge (and the plaza is less hidden) than the north landing, the area is still dark so that lighting during the day is recommended. 23

24 CONCLUSIONS The assessment results show that the proposal supports CPTED principles and will provide attractive and useful facilities and spaces that are safe for all users. In addition, the proposal will contribute to improving the safety matters raised as concerns in the 2005 public safety perception survey (refer to page 15, Safety Issues), provided that the recommendations with regard to lighting are implemented. Generally, there are no major concerns arising from the proposal or design, with the following recommendations provided as suggested improvements that could be made to improve safety: Northern Landing Incorporate signs to provide formal information on ownership and wayfinding to local destinations (and SkyPath entry). Signage to clearly show opening hours (to discourage use outside these hours). Use lighting to accentuate routes and areas of activity as well as places to avoid (to include lighting during daylight hours). Use onsite security and lighting to address potential entrapment issues. Ensure the vertical artwork does not obstruct vierws. Encourage surveillance from surrounding houses (through engagement with neighbours). Integrate access routes to Stokes Point Park and the ferry into the development, including seating in Stokes Point Park close to SkyPath. Actively manage security and graffiti. 24

25 Southern Landing Implement proposed connections (new crossing, speed table and link to Westhaven Drive) and potentially extend to grassed area in front of AJ Hackett. Implement a lighting strategy including the approach roads to include lighting during daylight hours. Consider providing seating within adjacent grassed area. Manage /design interface with NZTA s work area to avoid discomfort (including lighting at night). Ensure SkyPath security fence does not obstruct views of plaza from Westhaven Drive. Review safety of area at night. 25