AIRPORT ZONE URBAN DESIGN REPORT

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1 Review of PNCC District Plan AIRPORT ZONE URBAN DESIGN REPORT CONTENTS 1 Introduction 1.1 Executive Summary 1.2 Scope 1.3 General Intentions 2 Urban design issue identification 2.1 City urban design related strategic intentions 2.2 Coordinated and comprehensive planning 2.3 Suitability and nature of Industrial zoning 2.4 Building development quality 3 Field Study Observations and Recommendations 3.1 Streetscape treatment of Airport Drive 3.2 Relation to Mahanga Kakariki Reserve 4 Approach to controls 4.1 Assessment table 4.2 Airport Drive design 4.3 Building development 4.4 Assessment criteria for residential uses Appendices A1 Precedent: Zoning Controls for Mangere Airport McIndoeURBAN Draft: 10 September

2 1 INTRODUCTION 1.1 EXECUTIVE SUMMARY Recommendations 1 Develop the Airport Drive boulevard to include continuous footpaths and street trees, maintaining consistency with Airport Drive to the west. This is a matter of the highest priority. 2 Develop a Comprehensive Development Plan for the Airport Drive and Railway Road streetscape and potentially for the Airport Zone as a whole to cover activity location, street connections and site access as well as streetscape. 3 Manage the type of activities within this zone so they complement but do not compete with activities in the Industrial and Business zones, and prioritise airport related functions. 4 Apply the city-wide residential interface controls. 5 Integrate controls to cover development of site frontages. 6 Consider relation of all adjacent activities to Mahanga Kakariki Reserve. The current configuration presents potential access and egress problems, and consequent safety and security risks unless adjacent development and its access is planned to coordinate with this reserve. This justifies undertaking a comprehensive development plan integrating street landscaping, connections to Industrial lots here and relation to this Reserve. 1.2 SCOPE This report records urban design based analysis the current situation in relation to stated intentions, recommends where any new controls are desirable and the reasons for those controls. It follows discussion at PNCC on the Industrial, Institutional and Airport Zones, and is founded on a drive through and photographic field study of the Airport Zone and surrounds including the North-east Industrial Area, and adjacent residential streets. 1.3 GENERAL INTENTIONS This urban design report is based on the following assumptions on general intention for the Airport Zone: The development here is likely to be some form of industrial activity, and if so this might optimally freight, warehousing and distribution activity linked to the airport. Activity here should not compete with or compromise activity in the Business Zones. McIndoeURBAN Draft: 10 September

3 Due to airport noise effects, development will not include residential other than potentially motels and residential centre, with these subject to resource consent. Potential effects at the residential interface should be addressed. Streetscape and street boundary conditions on main arterials and city approach roads require careful consideration and management. 2 URBAN DESIGN ISSUE IDENTIFICATION A number of issues emerged in discussion and field study: city urban design related strategic intentions; the role of coordinated and comprehensive planning; and extent of Industrial zoning Two further issues arise which are discussed in detail in section 3 on field study observations and recommendations: streetscape treatment of Airport Drive; and relation to Mahanga Kakariki Reserve. 2.1 CITY URBAN DESIGN RELATED STRATEGIC INTENTIONS Urban Design Strategy for Palmerston North (September 2010) DRIVER SUB-DRIVERS Public realm Making places people-friendly and inviting Actively managing and maintaining the City s public spaces Ensuring coherency in design Developing the Manawatu River as a destination Welcoming and memorable entrances to the City Creating a vibrant city centre Diversity Promoting a mix of uses Vibrancy lots of things going on Vitality people on the streets Versatile and adaptable buildings and spaces Providing choices of living spaces and lifestyles Connectivity Well connected multipurpose streets and spaces Developing an integrated paths and walkway network Easy way finding Clear sub-regional connections Easy access to transport and facilities Character Creative city-making Strengthening the City s identity and culture Expression of Rangitaane culture in the City Active promotion of heritage, key buildings and places Appreciation of everyday architecture Celebrating iconic architecture Environmental Incorporating environmental features into design Maintaining the City s compactness and centrality Investing in biodiversity and green infrastructure Constructing healthy and energy efficient buildings and homes Low-impact urban drainage systems Sub-drivers particularly relevant to the Airport Zone are identified in bold. The Urban Design Strategy also identifies eight urban design initiatives, and outlines the rationale for each. Those that are relevant to the Airport Zone are: 3. Street designs For the City s main entrances and routes to create a good impression. 6. District Plan design criteria To facilitate good design outcomes from private development. 7. Structure plans for new development areas included in District Plan McIndoeURBAN Draft: 10 September

4 To ensure new areas are connected and integrated with the existing urban area, provide a range of lifestyle choices, and include green infrastructure. To facilitate good design outcomes from private development. To coordinate infrastructure provision. 2.2 COORDINATED AND COMPREHENSIVE PLANNING An annotated aerial photograph identifying available lease sites (dated February 2010) indicates Airport Company development intentions. This simply identifies potential uses and sub-zone boundaries, however lacks the level of detail necessary to achieve an appropriate urban design outcome. Common practice is to include a Structure Plan in the District Plan to assist with development, or potentially also require comprehensive development planning. The Airport Zone has characteristics such as single ownership, clarity of intent and relatively small size which would readily allow this type of approach. The Airport Zone is also of a significance which justifies that such an approach is taken. Urban design considerations: Refer PNCC Urban Design Strategy requirements for quality design at main entrances to the city and along entrance routes. Coordinated site access and street edge treatment is important along airport entrance routes. Its gateway function demands a high level of streetscape quality, and good quality frontages to Airport Drive. o The primary design consideration here is dealing appropriately with the experience of entering or leaving the airport and city and the experience of travelling along Airport Drive. o A designed landscape treatment that responds appropriately to this important function is necessary, with ideally a strong landscaped edge along the length of this gateway route through towards the city and connecting with John F Kennedy Drive with continuity in treatment along its length. That is, this should be a carefully crafted road corridor with a new and strong landscape design concept. Relation to Mahanga Kakariki Reserve, both edge conditions and public space connection, should be re-examined. This is a cul-de-sac, offering limited access options, and currently has poor conditions along its edge. The interface with the airport zone requires careful consideration, as the rear of airport related activities would be a poor edge to this reserve. The combination of shape, limited connection, existing and potential future edge conditions and lack of informal surveillance mean that the benefit of this reserve is relatively low, and it may present safety and security risks. Precedent from other places: Plan Change 14 to the Manukau District plan relating to Auckland International Airport rezoned land under the previous Airport Designation as Airport Activities Zone. This included a structure plan, but anticipated a Comprehensive Development Plan (CDP) on certain sites. This Plan Change proposed New Mangere Gateway Business Zones. The zonings include special rules relating to height, urban design, setback, landscaping, amenity controls and subdivision, with a particular emphasis on McIndoeURBAN Draft: 10 September

5 managing the design of development adjoining an identified heritage route and the proximity of existing residential development. A mix of uses is proposed with offices and other uses related to the primary warehouse and distribution functions permitted, and restrictions on intensive retail. Plan Change controls require that any visible built development at the edges of the corridor should be of high visual quality with an appropriate, high quality landscaping treatment. 2.3 SUITABILITY AND NATURE OF INDUSTRIAL ZONING Observations Freight and warehouse distribution linked to the airport is in principle a suitable use which complements the airport as a strategic asset. However general industrial should be considered only with great caution and care. Activity should be that which achieves efficiencies from being co-located with the airport. Activities which potentially compromise that relationship, as well as the viability of general business and retailing in other parts of the city would not be appropriate. The clustering of airport and related business is consistent with leading thinking and practice on the form and economic health of the 21 st century city which recognises the special needs of airports in a competitive global economy. Just as the design, image and amenity of a city centre and the various neighbourhoods that make up a city are important to for a city to be socially competitive in a global environment, the nature and efficiency of infrastructure assists with global (and national) competitiveness from a functional and economic perspective. Writing as far back as 1999, Kasarda concluded: Advances in transportation and telecommunications are spawning a new speed-driven economic era which is considerably altering the location decisions of business and industry. Just as seaports, rivers and canals, railroads, and highway systems provided competitive advantages and shaped the locus of commercial development in the past, major gateway airports will increasingly do so in the future. In the coming fast century, where globalization and time-based competition will increase aviation utilization, these airports will become increasingly powerful drivers of commercial development. 1 That is, accessibility infrastructure, for example international gateway type airports with sufficient space for the necessary related activity, is becoming increasingly important. At the same time, regional airports also must be wellconnected into the network, and can offer their city similar benefits in terms of convenience and efficiency of goods processing and transfer. As a fundamental principle, agglomerating uses that benefit from being in close physical proximity will assist both efficiency and vitality. Clustering of appropriate activity around the airport would be consistent with maintaining and developing the airport as a regional infrastructural asset. This benefit is, in a broad sense, also supported by Soja and Kanai: 1 Kasarda, J. Time based competition & industrial location in the fast century. P 29 in Real Estate Issues, Winter 1998/1999, pages McIndoeURBAN Draft: 10 September

6 Few human activities gain as much from being located in dense urban agglomerations as industrial production or manufacturing. The clustering of producers and consumers in urban space gives rise to a variety of agglomeration economies, which can lead to greater productivity and technological innovation, thus creating a potential snowball effect that stimulates urban-industrial expansion. This holds true not only for making pins and needles but also for the production and exchange of information, and the development of what are now being called the creative or cultural industries. 2 While Soja and Kanai are referring initially to cities as a whole, they also refer to clustering in what might be called city districts, concepts that have been widely accepted in New Zealand and elsewhere. Prominent economists, drawing on the pioneering work of Jane Jacobs in The Economy of Cities, have been arguing that what can be called the stimulus of urban agglomeration is the primary cause of economic development in the world today. Dense and heterogenous cities and city regions have become the driving forces of the global economy, generating enormous wealth as well as technological innovation and cultural creativity. Planners and policymakers are accordingly giving increasing attention to promoting efficient regional economic integration, developing clustered forms of economic activity and enhancing conditions conducive to creativity and innovation. 3 While the above are generalised observations on the city, they demonstrate that the clustering of airport and related business is consistent with leading thinking and practice on the form and economic health of the 21 st century city. Placing related activities close to and in some instances directly linked into the airport, is also consistent with what is, at a local level, recognised as good urban design practice. 4 Recommendations Limit permitted activity within the Airport Zone to that linked to and complementing the airport. Potential to establish and specific airport related activity in the Airside Precinct should be maintained. At the same time, activity at the airport should not compete with that in the Business and Industrial Zones. Require a comprehensive development plan addressing lots, frontages, access, parking and streetscape. This is a significant location, and poor quality uncoordinated development will lead to a sub-optimal result and therefore is unacceptable. Given single ownership of the land, an appropriately comprehensive coordinated approach is possible, which can maximise the efficiency and effectiveness of land use, in a way that delivers a high quality public environment. 2 Soja, E. And Kanai, M. The Urbanisation of the World. In The Endless City: The Urban Age Project by the London School of Economics and Deutsche bank s Alfred Herrhausen Society. Phaidon: London. 2007, p63 3 Soja and Kanai, 2007, p68 4 For example, the NZ Urban Design Protocol (2005, p21) notes under Connections : Places with good connections between activities and with careful placement of facilities benefit from reduced travel times and lower environmental impacts. McIndoeURBAN Draft: 10 September

7 Figure 1: proposed Airport-related Industrial Zoning Figure 2 Industrial land opposite the airport 2.4 BUILDING DEVELOPMENT QUALITY Observations Existing development and new buildings associated with the terminal and Core Airside Precinct offer potential to enhance legibility and wayfinding by making air operations visible. However, much airport related development, particularly that in the Airport Environs Precinct to the south of Airport Drive is likely to be in the form of simple large warehousing and industrial type facilities, along with related service areas and yards. This requires particular care in the way it addresses Airport Drive. Airport Drive itself is part of the Zone, and the quality of its streetscape and that of the adjacent frontages is important, and should be controlled by the Plan Change, if it is not otherwise under Council control. McIndoeURBAN Draft: 10 September

8 Recommendations Apply development controls that both facilitate the use and operations of the airport, and ensure quality development, particularly around Airport Drive, and adjoining McGregor Street and Mahanga Kakariki Reserve. 3 FIELD STUDY OBSERVATIONS AND RECOMMENDATIONS 3.1 STREETSCAPE TREATMENT OF AIRPORT DRIVE The Urban Design Strategy identifies under the Public Realm sub-driver of Welcoming and memorable entrances to the City that: The airport, bus facilities, and rail station and routes to these City entrances create a good first impression. Not only is this established as a PNCC intention, considering and managing the quality of major approaches to the city also represents good urban design practice. Observations Because the airport is a main entry to the city, conventional industrial development here presents a major risk to the first impression of the city unless it is of very high quality. The current situation is not consistent with the expectations of the Palmerston North City Urban Design Strategy for the following reasons: The boulevard treatment lacks the necessary trees and other streetscape elements. There is a discontinuity of footpath and street trees along Airport Drive. However, that portion within the residential zone includes footpaths and street trees, which extend the treatment from John F Kennedy Drive. Given the number and size of proposed lots, it is likely that development will be uncoordinated. There is also a risk that buildings of relatively low quality will be established here. In this circumstance, good quality, large scale and coordinated streetscape treatment will give visual integration as well as create a memorable approach route to and from the airport. Such a treatment, with reasonably closely spaced street trees can partially screen and integrate edge development of variable quality, and compensate for variation in the private realm. Recommendations Develop the Airport Drive boulevard to include continuous footpaths and street trees, maintaining consistency with Airport Drive to the west. This is a matter of the highest priority and important as a means of achieving aesthetic coherence and legibility. Place an emphasis on the quality of development fronting to Airport Drive. Standards and assessment criteria should apply, and these might require a Limited Discretionary consent. McIndoeURBAN Draft: 10 September

9 Figure 3 Airport Drive: a boulevard, without the necessary trees The footpath ends opposite the airport entry. This is a critical entrance route to the city, and to and from the airport but lacks streetscape quality. The significance of this as a city entrance route demands continuity of the treatment on the adjacent section of Airport Drive, which continues through to John F Kennedy Drive. Figure 4 Approach from the south Figure 5 Airport Drive lacking landscape treatment and a footpath. McIndoeURBAN Draft: 10 September

10 Figure 6 Streetscape on the established and immediately adjacent portion of Airport Drive, complete with street trees at the edges, and footpaths both sides. Figure 7 Streetscape on the eastern and central portion John F Kennedy Drive. Figure 8 Streetscape within the Industrial Zone at the western end of John F Kennedy Drive. This demonstrates the minimum quality that is appropriate. McIndoeURBAN Draft: 10 September

11 Figure 9 Indications of the sale process underway underlines the importance of establishing appropriate site planning, streetscape and design controls in a timely manner. Figure 10 Looking north-west along Airport Drive, with residential appearing at the left. 3.2 RELATION TO MAHANGA KAKARIKI RESERVE Observations The reserve is at the edge of the residential area and cut off from adjacent residential properties. Being long and narrow, with a short side connecting with McGregor Street, it is a form of cul-de-sac. The single direction of entry along a short edge inhibits accessibility and its potential to be part of a recreational walking circuit, and in certain circumstances could lead to a risk of entrapment for reserve users. This reserve has few of the qualities associated with successful urban parks and reserves. It is poorly located at the edge of rather than within a residential area, and will therefore be relatively inaccessible. It has very poor edge conditions. Nevertheless, the playground offers amenity at the street edge. What will be the rear of adjacent airport zoned land directly adjoining the reserve is likely to be service dominated or inactive and blank. In either case that McIndoeURBAN Draft: 10 September

12 is a low visual amenity outcome, and if comprising large blank walls could visually dominate the edge of the park. As a cul-de-sac which is long and narrow in shape with access only from one narrow edge this present a potential safety risk to users in some situations due to lack of surveillance (and limited choice of direction of egress) and a security risk to the houses that back it, even if the industrial activities are able to secure their sites with security fencing. This reserve risks being a negative amenity feature as currently configured, particularly if compromised further at the interface with the airport zone. Given that development has yet to occur on the adjacent non-residential land here, there is potential to reconsider the shape and treatment of the reserve and access to it, while at the same time providing access to the adjoining part of the airport zone. Recommendations: Provide a public space connection through towards the park connecting with the airport entry road. This allows views through, a point of escape from the reserve, and provides for access into sites here. Undertake a comprehensive development plan integrating street landscaping, connections to airport zone lots here and relation to this Reserve. If this is not achieved, consider disposing of the rear portion of the Reserve. Require that all development directly adjoining the reserve provides a reasonable frontage to it. This would include avoiding high blank walls or overt security fencing, and providing an element of overlooking. Any commercial accommodation that might be integrated into the zone would be well-placed here opposite the airport entry, and should be required to provide an appropriate interface with the reserve. This includes windows overlooking the reserve. Figure 11 Playground at the entrance of a park with play equipment which references the nearby airport. McIndoeURBAN Draft: 10 September

13 Figure 12 Industrial edge Figure 13 The residential edge of Mahanga Kakariki Reserve is completely shut off with high blank boundary walls. McIndoeURBAN Draft: 10 September

14 4 APPROACH TO CONTROLS 4.1 ASSESSMENT TABLE The following is a high level review and comment on general direction for development controls and approach. Some of the issues identified within this table are considered in more detail in the following sections. Issues to Address Existing Controls Comment on Controls and Recommendations R Permitted Activities The following activities are Permitted Activities in the Airport Zone provided they comply with the specified Performance Conditions: (a) Airport operations including freight and passenger facilities. (b) Airport navigational, control and safety equipment. (c) Aviation, educational and training and recreational facilities and activities. (d) Maintenance and servicing of aircraft. (e) Retailing. (f) Warehousing, storage and distribution of goods. (g) Fuel installations and fuel servicing facilities. (h) Restaurants, takeaway bars and licensed premises. (i) Catering and preparation of food. (j) Car parking and storage. (k) Farming. (l) Training Facilities. (m) Buildings for any Permitted Activity. (n) Minor and Extended Temporary Military Training Activities Performance Conditions (a) Size Limitation No building intended for retail or restaurant activities shall exceed 250 m2 in gross floor area. (b) Separation Distances No building or activity shall come within 6 m of any boundary with a residentially zoned site. (c) Signs Compliance with Rule (d) Hazardous Substances Compliance with the provisions of Section 14 - Hazardous Substances of this District Plan. (e) Air Noise Control Compliance with Rule (h). (f) Vehicle Parking, Loading and Site Access Compliance with Rules Parking Spaces for People with Disabilities Parking Provision Standards for All Zones Except the Inner Business Zone Car Park Landscape Design Formation of Parking Spaces Loading Space Standards Access Standards R Discretionary Activities (Unrestricted) (i) Accommodation Motels and Residential Centres (excluding those prohibited by R ). (ii) Any activity which does not meet the performance conditions (a) to (d) and (f) shall be a Discretionary Activity (Unrestricted). In determining whether to grant consent and what conditions to impose, if any, Council will in addition to the City View objectives in Section 2 and the objectives and policies of this Zone, assess any application in terms of the following: (i) The objectives and policies of the Plan relating to noise sensitive activities in the vicinity This set of activities appears to relate most specifically to the activities that occur within an airport, the terminal and directly connected ancillary buildings. This list might be retained for the designated airport, but is not applicable in its entirety to the possible airport industrial sites, that is in the Airport Environs Precinct. Permitted activities for this area should complement the airport and not compete with the Business Zones. For example retailing other than that related to the airport terminal should be precluded to avoid emergence of vehicle oriented or large format retail here, which is better located in the Business Zones. Restaurants and takeaway bars, again other than those in the terminal, should be precluded or restricted in size so that they only serve the airport and local market. This set of criteria does not address: Airport Drive and this important entry to the city. The cross-boundary and zone wide coordination of access and streetscape that will be necessary to achieve a result appropriate in this situation, including parking on private sites at the street edge. Relation of development to the Mahanga Kakariki Reserve. Residential interface. Recommendations: Require a CDP for the entire area, and place controls on all private development sites fronting Airport Drive and the Mahanga Kakariki Reserve, and at the residential interface. McIndoeURBAN Draft: 10 September

15 Issues to Address Existing Controls Comment on Controls and Recommendations of Palmerston North Airport. These are consistent across a number of zones. Please refer to Section 9.3. (ii) Alterations and additions to existing buildings accommodating these noise sensitive activities shall only be permitted if fitted with appropriate acoustic insulation to achieve a satisfactory internal noise environment. R Coordination of development All activities in the Inner and Outer Control Zone that do not comply with Rule (h) shall be a non-complying activity. In considering whether to grant the application and what conditions, if any, to impose, Council shall take into account the objectives and policies of the Airport Zone, Objectives 5 and 6 within the Rural Zone, and the following further policies: (a) To take into account any circumstances that would make compliance with the noise reduction standards in R (h) inappropriate or unreasonable; and (b) To demonstrate that the level of noise reduction by the proposed development can be less than the level required by R (h) without compromising the overall health and amenity of the occupants within the respective building. R Prohibited Activities in the Air Noise Zone identified on Map The following activities are prohibited activities in the Air Noise Zone identified on Map : (i) New accommodation motels and new residential centres. These activities are expressly prohibited and no resource consent shall be granted. None No comment No comment Require a CDP for the entire area to cover at least the following issues: General location and type of development. Building frontage setbacks for streets and other public spaces. Site accesses. General location of carparking and service yards. Streetscape treatment including carriageway, lighting, trees and other landscape elements and treatments as noted below. Enhanced access and building relation to Mahanga Kakariki Reserve. A CDP can be used to optimise the value and benefits of the zone, reconciling public amenity requirements with efficient functioning of the airport and related facilities, and optimising use of the land within the zone. Airport Drive and entry to None Develop Airport Drive as a boulevard. Include: the city Avenue of closely spaced trees of a consistent species Closely spaced, large scale trees will visually compensate for the likely diverse frontages along the street edge. At the same time, if the crown of the tree is high, they will provide desirable screened views through to these frontages. Footpath both sides. This is important for continuity of treatment along Airport Drive, to civilise the street edge and to ensure that vehicles are not necessary for McIndoeURBAN Draft: 10 September

16 Issues to Address Existing Controls Comment on Controls and Recommendations short trips between adjacent sites. Consistent cross-section and landscape treatment, relating to existing streetscape to the west. That is, relate to and develop/extend existing themes and crosssections. Consider retaining key views through to the airport from Airport Drive. In addition, place additional controls on development sites and buildings fronting Airport Drive as for Fringe and Outer Business Zones Frontages to the street Frontage landscaping Service yards at the street edge. Signage controls Signage controls are important to avoid frontages being dominated by signs denoting a businesses on site, and particularly by third party advertising hoardings. The cross-boundary and zone wide coordination of access and streetscape that will be necessary to achieve a result appropriate in this situation including potential parking provision at the street edge. Relation of development to the Mahanga Kakariki Reserve. None None Apply controls to on-site parking at the street edge such as apply to Fringe and Outer Business Zones that front arterial roads. It is appropriate that in this area, and in combination with intensive avenue type planting along Airport Drive that there be parking at the frontages, and this may be a feature of much activity here. Integrate controls to achieve an appropriate edge to the reserve Allow for a second means of public connection in the form of a street to the Reserve Refer CDP recommendation above and related rationale. Establish frontage controls requiring overlook and avoidance of dominant blank walls or security fences. Promote potential for commercial accommodation here. This is the type of use that would be readily compatible with and would benefit from overlook over the reserve Residential interface None Apply controls to residential interface such as apply to Industrial, Fringe and Outer Business Zones, except that the treatment at the Mahanga Kakariki Reserve interface requires additional controls as noted above. 4.2 AIRPORT DRIVE DESIGN Streetscape potential The following simple diagrammatic studies have been undertaken to illustrate the role and benefits of intensive street tree planting, and investigate the optimal means of delivering a high quality streetscape. Figures 14 and 15, based on Google Streetview images, show the effect of street trees on the streetscape of Airport Drive. These are simple diagrams to indicate the potential approaches to and benefits of coordinated street landscaping, and are not a design as such. McIndoeURBAN Draft: 10 September

17 Figure 14 Streetscape diagram investigating the effect of extending existing street trees at the northern end of Airport Drive Figure 15 Streetscape diagram showing the role of street landscaping in developing an avenue effect, potentially signalling the main airport entrance and integrating potentially disparate commercial development within the proposed Airport Environs Precinct. McIndoeURBAN Draft: 10 September

18 4.2.2 Scenarios for streetscape delivery The responsibility for providing street edge landscaping will determine the success of the overall effect. To help understand the implications for streetscape quality, Figure 16 describes various scenarios for the delivery of streetscape along Airport Drive. Figure 16 Airport Drive streetscape delivery scenarios. The dotted red line indicates the front boundary of lots. Considering the above: The existing verge might be wide enough to allow Council / the Airport Company to plant street trees (Scenario 1). However spatial constriction means the design options are limited and low level planting is not controlled. This could lead to loss of coordination along the street and would be sub-optimal. Private frontage landscaping as described in Scenario 2 will not achieve the quality of streetscape necessary for Airport Drive, particularly if required by standards. This might possibly be addressed with a limited discretionary application, and very tight criteria, based around a streetscape plan provided by Council. But that creates unnecessary risks including lack of coordination and therefore ineffectiveness. The optimal solution is to ensure the verge is wide enough for street trees, and footpath, and implement a whole of Airport Drive streetscape approach McIndoeURBAN Draft: 10 September

19 as described in Scenario 3. This provides for a generous frontage and gives potential for good quality landscaping design Suggested integrated streetscape planning approach An optimal means of delivering on the above is a Comprehensive and Coordinated Streetscape Plan for Airport Drive. The draft Airport Masterplan focuses on airport operations, and while identifying the location Airport Drive and entry routes does not address their quality. Because of this other means will be necessary to ensure certainty of delivery of good quality streetscape, and this would be a mechanism that requires comprehensive, whole of street design, such as a Comprehensive Development Plan (CDP). Within these areas, Airport Drive is the priority. However for the sake of consistency of the landscaping of the approaches to the city, Railway Road should also be considered. If the streetscape and street landscaping is subject to a CDP for the whole of length of Airport Drive, this would desirably extend: On the Airside Precinct side along the full length of Airport Drive and Railway Avenue; and On the Airport Environs Precinct side along the full length of Airport Drive up to and including the roundabout at the Railway road intersection, and along Railway Road Means of controlling design quality Limited discretionary consent with appropriate assessment criteria addressing the design of a CDP for Airport Drive would provide greater certainty of high quality amenity outcomes than would otherwise be achieved, and for design coordination over the length of Airport Drive. This would be usefully supported by an additional streetscape-related policy for the Airport Zone: To require a comprehensively planned and coordinated streetscape along the length of Airport Drive. At the same time, criteria are recommended to ensure the allowance and flexibility in design to accommodate the needs of Airport operations and consideration of the frontages and entrance points to lots that would be developed within the Airport Environs Precinct. (These criteria are listed in section below.) Legal Road Width It is recommended that the legal road width is based on the carriageway and the 10 metres beyond each kerb line on both sides. This would provide the widened public verge indicated in figure 16 above. 10m both sides of the carriageway gives the potential to develop the necessary high quality streetscape and a sense of generosity and spaciousness along this main entrance route to the city. This provides for a generous mown verge, and placement of street trees within it at and/or back from the street edge, and also allows for pedestrian facilities to be integrated into both sides of the street. Some low level planting might also be included within this area. McIndoeURBAN Draft: 10 September

20 Street trees will help create an avenue of memorably high quality, and will allow integration of disparate commercial and potentially airport development behind without loss of amenity. Strong street tree planting within this space also means that trees are not required at the frontages of the lots behind, which contributes to the usability of the front of private lots. However considering the actual useable land at the frontage of each lot, these scenarios are likely to be similar. To obtain the necessary streetscape effects, Scenarios 1 and 2 would have a wide frontage landscaping requirement including large trees on the front of the lot. Scenario 3 reduces the depth of the lots, but the frontage landscaping is instead provided in the public realm. So although the lots created would be slightly shallower, there is minimal or no loss in their effective useable area. There is also no need for a wide verge extends along the entire frontage of the lot, as it is already provided for within the public realm Footpaths A continuous footpath should be provided along both sides of the street. While at the moment and prior to development, pedestrian use is not likely, once the precincts are developed pedestrian use becomes possible, and even likely. For example this may between some of the commercial facilities that might be established in the Airport Environs Zone and most importantly on the city side of Airport Drive. If not placed at this time, a footpath is unlikely to be provided later Recommended limited discretionary assessment criteria: The acceptability of the Airport Drive streetscape design will be determined by the extent to which: 1. Street landscaping provides a distinctive effect of memorably high quality. 2. Trees are spaced and generously scaled to give a strong sense of definition to the street. 3. Coordination and continuity of the quality of aesthetic treatment is achieved along the entire length of the street and all aesthetic variation is provided for in a way that is part of an overall, whole of street design concept. 4. Timing of planting is coordinated to ensure consistency of growth and visual effect along the length of the road. 5. Streetscape elements and treatments are coordinated with placement of accessways into planned lots in the Airport Environs Precinct, and to entranceways to the Airside Precinct. 6. Landscape elements are strategically placed to provide for views into key activities and destinations on both sides of the street, including in McIndoeURBAN Draft: 10 September

21 particular entrance to the terminal access road and views of the passenger terminal 7. A transition to existing street landscaping within the residential zone is achieved at the western end of Airport Drive. 8. Tree species are selected with consideration of winter sun and summer shade, seasonal change, and relation to the scale and type of street tree treatments along other main entrance routes to the city. 9. The extent to which growing conditions are provided for, that will ensure the successful establishment, growth and ongoing viability of planting. 10. The landscape treatment of the verge is designed to be readily maintained along its length. 11. A continuous, high quality environment for pedestrians is created along both sides of the street. Explanation As a major entrance route to the city, the street should provides a sense of spatial generosity, and a strong avenue effect with high quality, well scaled planting. Attractive streets are typically based on continuity and a consistency with a concept. However a successful concept may also include variation and diversity which give visual richness, and a distinctive local sense of place. These qualities contribute to memorability and legibility. All development of those areas identified as requiring a Comprehensive Development Plan should proceed in a co-ordinated and integrated manner. Coordinated timing of planting is desirable to provide visual consistency along the street. The street design must provide for the activities along both sides. This includes physical and visual access. Glimpse views and views under high level vegetation can contribute to wayfinding, a positive sense of place and quality of space and experience. Such views are also important to signal the presence of commercial activities. Should a decision be made not to require a limited discretionary consent for the streetscape, then the above criteria might form the basis of a design brief for Airport Drive. 4.3 BUILDING DEVELOPMENT Building frontage setback: Minimum 8 metres This, to match the industrial zone, recognises that the type of activity and the setback here is likely to be of an industrial nature. With the 10m kerb to road boundary setback, and an 8m setback that gives a minimum setback from kerb to building front of 18m. McIndoeURBAN Draft: 10 September

22 This is generously spacious, and to make efficient use of the site is likely to lead to even greater frontage setbacks to allow carparking to be placed in front of the building. Building setbacks would need to be around 13 metres for one row of cars and 18 metres for two rows with a central aisle. In both cases the plan change requires landscaping within the carpark. In the circumstance that there is very strong landscaping within the road verge, then in this Airport location a landscaped carpark at the frontage is acceptable, whereas it would not be acceptable within certain parts of the various Business Zones. Potential to consider minimum setback of 3m along Airport Drive and Railway Road Should a CDP and limited discretionary application be required for the final design of Airport Drive, then there is a possibility that in combination with a 10 metre road verge (including intensive street trees as indicated with Scenario 3 in figure 16 above) a compelling case could be made for a 3 metre minimum frontage setback. The total setback would be 13 metres, comprising 10m (verge) + 3m (front yard). This compares with the alternative of a narrow verge to Airport Drive of say 5m plus a building setback of 8m (front yard) which also gives a total building frontage setback from the kerb of 13 metres. This scenario of a 3 metre frontage setback would avoid any concerns about loss of yield of land. It would also provide ready access to any activity that might benefit from location close to the stet edge. However, this is recommended only if a strong street edge landscaping and a 10 metre wide verge is guaranteed along Airport Drive and Railway Road Frontage landscaping In combination with this at the private frontage: Low level planting to a height of not more than 900mm where the frontage provides for carparking, and where such low level planting is not proved for within the public road verge. Alternatively where there is no parking, and open frontage that extends open landscape up to the building would be acceptable. 4.4 ASSESSMENT CRITERIA FOR RESIDENTIAL USES Residential uses such as Accommodation Motels and Residential Centres are proposed to be provided for through a discretionary process. Both motels and residential centres are a form of multi-unit development, and the assessment criteria that have been developed for multi-unit development should be applied here. This is to ensure poor amenity outcomes are avoided for temporary residents in this inherently challenging industrial setting. Given the prominence of development along Airport Drive at this entry point to the city, and the possible compromise due to noise effects, it is important that the amenity and quality of McIndoeURBAN Draft: 10 September

23 any residential development here is at least as good as that for similar residential types in other parts of the city. As well as general quality controls, this location demands particular attention to mitigating noise effects on any residential activity, and these have been included in the draft plan change provisions The most recent version of the proposed assessment criteria for Multi-unit Housing is: 1.0 Character The extent to which: (a) any significant planting and trees are retained, and neighbourhood character is reinforced with the type and species of new planning. (b) new development relates to common and defining patterns of the height and width of primary building forms, and predominant roof types and pitches. (c) new development relates to common and defining patterns of frontage orientation and alignment. (d) new development relates to common and defining patterns of façade composition and articulation, and qualities of materials and landscaping. 2.0 Site Planning The extent to which: (a) buildings and related open spaces and landscaping are planned and designed together to deliver high levels of amenity within dwellings and well-located, good quality open spaces. (b) private and public areas are differentiated and defined. (c) habitable rooms are orientated towards the east, north or west for good sun, and south only facing rooms are avoided. (d) new buildings retain reasonable visual privacy and daylighting for all adjacent residential units and properties. (e) garages and parking are located and designed to avoid monotony and domination of any street frontage or spaces within the development. (f) driveways and entrance courts are designed and landscaped to give visual interest and create an attractive entrance to the development. (g) the planning of the development allows views of the street and common spaces within the development to be maintained, including views of open carparking spaces from the dwelling served. 3.0 Building Design The extent to which: (a) dwelling fronts including entrances and windows to habitable rooms are orientated to the street edge, and views are maintained to and from the street. (b) modelling of building form, and secondary forms and detail gives visual interest and a sense of human scale at the occupied and/or publicly visible edges of buildings. (c) windows are provided to optimise both daylighting and views while providing for privacy, and large blank walls are avoided. (d) the living areas of dwellings are located and oriented to optimise sun exposure, natural lighting and views, including to the street or adjacent public open spaces. (e) circulation within the dwellings is sufficiently planned, and spaces including storage are provided and sized to be fit for purpose. (f) new buildings retain reasonable visual privacy and daylighting for adjacent residential properties. (g) individual units are expressed and entrances are signalled and readily visible from the street or entranceways. (h) the design of the development incorporates energy efficient and water conservation principles. 4.0 Open Space Design The extent to which: (a) main outdoor spaces are associated with a living area within the dwelling, are reasonably private and of a useable size and are orientated to the sun. (b) usable, well-orientated balconies are provided to above ground units and where quality atgrade private open space is not reasonably achievable. McIndoeURBAN Draft: 10 September

24 (c) good quality shared private open space is provided as a complement to smaller private open spaces or balconies allocated to individual units. (d) boundary treatments such as walls or planting between units balance openness and closure, and are varied to both privacy and views out, and avoid monotony and complete fragmentation of the open space within the development. (e) planting is integrated to provide an attractive setting for and outlook from the dwelling, and provide for privacy, summer shade and winter sun. (f) carports and garages are visually compatible with and of a similar standard to the development as a whole. (g) large, highly visible retaining walls are avoided or screened with appropriate planting. (h) front yard boundary treatments are sufficiently low to provide for visual connection between the dwelling and the street, and allow safe vehicle access across the footpath. (i) suitably screened and located provision is made for rubbish storage and collection. (j) suitable, reasonably private and sunny space is provided for open air laundry drying. 5.0 Infrastructure and Servicing The extent to which: (a) site and building design mitigates any increase in peak stormwater run-off and peak stormwater flow due to the reduction in permeable surfaces. (b) the development is consistent with the engineering standards I have been through these criteria, and consider that with the exception of character criteria which are not needed in the Airport Zone, they can be applied to any types of multi-unit residential that might be located here. These are proposed to apply to Residential Centres (R ) in other parts of the city, so for consistency should also apply here. These criteria can equally apply to motel development within this zone. Motels are a permitted activity in residential zones subject to specific rules, but as the Airport is not a residential zone, there is justification for applying the criteria here to motels as well As with application of these criteria to development on any site, while all criteria are to be considered, only those criteria that are relevant to any development type or setting are applicable. For example: A motel may, but is unlikely to have carports and garages, so if not, that criterion would not apply to the project, but would if the motel proposal did include carports. The open space design criteria can apply to motels equally as to any other form of multi-unit development, with adjustment in the expectations of amount and type of space to reflect these specialised accommodation types. For motels, private open space is not as important as for multi-unit dwellings, and shared facilities and spaces are likely to be more important. McIndoeURBAN Draft: 10 September