LIVING AROUND TE TĀTUA A RIUKIUTA

Transcription

1 01 Fig 01 Panoramic view looking west showing Three Kings Road (later Mount Eden Road, foreground) part of Three Kings mountains (J Richardson, 1920), Sir George Grey Special Collections, Auckl Libraries, ID /4231 LIVING AROUND TE TĀTUA A RIUKIUTA Lscape rehabilitation urban redevelopment of Three Kings Richard Reid from Richard Reid & Associates Citymakers outlines two different approaches for lscape rehabilitation urban redevelopment of Three Kings Quarry, Auckl. 1 Our involvement with this project began in May 2015 when we were engaged by two community groups to assess a proposed plan change by Fletcher Residential for redevelopment of Three Kings Quarry. Our expertise was sought by South Epsom Planning Group Three Kings United Group who were aware of our local work on Puketapapa Mt Roskill Volcano Basin Reserve Roundabout in Wellington. Te Tātua a Riukiuta City Plan Three Kings Quarry is situated within Three Kings suburb of Auckl. Both quarry suburb took ir name from Three Kings Volcano which is an outsting natural feature of area. The volcano is considered geologically scientifically valuable for its original mix of five, not three scoria cones, numerous scoria mounds a lava lake nested inside a one kilometre diameter tuff ring. The whole feature was called by Maori Te Tātua a Riukiuta, belt of Riukiuta (Fig 01). The local area is strongly defined by Te Tātua a Riukiuta, including historic arrangement of streets. As early as 1860, a city plan showed Mt Eden Road aligned on centre of Te Tātua a Riukiuta Maungawhau, creating a gr lscape urban axis between two volcanoes. No two or volcanoes were embedded in city plan in this way (Fig 02). On same plan, four boundary roads formed a near-perfect square frame around Te Tātua a Riukiuta, with alignment of Mt Eden Road incorporated into symmetrical structure. A square frame is an unusual typology in Auckl s early ongoing city planning. It demonstrated that a high level planning order was overlaid on volcanic complex which accommodated its distinctive size features. The scale of this order is usually seen in planning of imperial cities such as Beijing which are planned to align a divine organisation of human settlement with an auspicious natural lscape, typically

2 Fig 02 Map of Eden County (c.1900), Sir George Grey Special Collections, Auckl Libraries, ID 7-A14275 (Te Tātua a Riukiuta Maungawhau highlighted by RRA) Fig 03 Te Tātua a Riukiuta tuff ring encircles Three Kings Quarry, Reserve Suburb: Town Centre (foreground), Three Kings Reserve (south west of quarry), Big King Reserve (north-west of quarry) Mt Eden Road (to north). Photo: Fig 04 Panorama view showing Three Kings Quarry (foreground), Big King (middle background), Te Tātua a Riukiuta tuff ring (right background), Three Kings Reserve adjoining quarry (left foreground background), Three Kings Town Centre (out-of-view to left) (RRA, 2015) mountains. These cities also have a rich suburb is subtle has largely gone been replaced by scale, shape depth hierarchy of spatial definition from ir unnoticed. The city remains poorly informed of Three Kings Quarry. centre outwards which is articulated by a as to value of early city plans series of nested structures (buildings inside recognition of what y originally related to courtyards inside compounds inside city provided for. regulatory In 2011 Environment Court granted The streets inside square frame authorities have enabled quarrying of Te Winstone Aggregates, a division of Fletcher, also reflect this. Beginning in 1890 s, Tātua a Riukiuta at expense of its right to clean-fill 15.1 hectare quarry. street system pushed inside frame physical integrity, lscape prominence The Court s consent conditions set out a bifurcated around scoria cones. complementary relationship with process by which final fill levels could The streets on western side took ir city plan. The volcano has been divided rehabilitate 25-40m deep hole line from circular structure radial along significantly integrate site with Big King, Three arrangement of volcano s features, compromised as a result (Fig 03). Four of Kings Reserve, adjacent properties fitting between or around cones, scoria cones have been quarried away, surrounding streets. Engineering drawings crusted lip of lava lake walls leaving only Big King, second highest, as referenced of tuff ring. Even plots of l for state most visible recognisable remnant. quarry filled close to adjoining ground housing in s were uniquely Te Tātua a Riukiuta now chiefly refers to levels which also remedied worst effects proportioned to maintain legibility of this one remaining cone (Fig 04). While from quarrying. Winstone Aggregates volcano. circularity of tuff ring is still imprinted on two community groups supported suburb, centrality of volcano has Court s decision. walls). The order evident in planning of Since property late lines 1800 s, Fletcher s plans for Three Kings Quarry by Court showed 2

3 Fig 05a Fletcher PC372 Masterplan 17H1 (May 2015) Fig 05b Masterplan 17H1 Proposed lform viewed from north-east (3D model by RRA) In late 2014, Fletcher Residential applied to rezone quarry for residential of suburb in partnership with mana quarry by itself was too restrictive for traffic whenua, (including distribution, too constraining for recreational major lowners two Fletcher), local community or open space too remote from Three private plan changes for public feedback. stakeholders called Three Kings Plan Kings Town Centre surrounding open Both finished fill levels of quarry which was based upon a presumption space network. At same time, Fletcher metres below street level, principally quarry would be filled to street level. development. Fletcher submitted to shorten lead-in time for construction Private Plan Change 373 (PC373) Auckl Council considered Three Kings Reserve was compromised of dwellings. The significant change in final sought rezoning of quarry. PC372 by fill level conflicted with expectations included poor of local community Puketapapa Kings Reserve adjacent to quarry. Council supported Fletcher s application Local Board (PLB). PLB had prepared a Fletcher chose to progress PC372 (Fig. 05a) for a public l exchange because it thirty year strategic guide for development after determining that development of considered an integrated comprehensive 3 rezoning 6.5ha of Three past quarrying connectivity, suffered amenity from safety.

4 Fig 06a RRA Development Plan Fig 06b RRA Development Plan Proposed lform viewed from north-east (3D model by RRA) development could maximise residential majority of submitters opposed both Each application needed to be assessed intensification increase recreational open plan change l exchange. PLB against different legislation: plan change space adjacent to emergent Three Kings considered PC372 failed to involve in relation to Operative Auckl City Town Centre. These were cited as two key Local Board; meet long term planning District Plan, l exchange chiefly objectives of The Auckl Plan, Council s objectives Plan under Reserves Act precinct long-term, overarching spatial plan to ensure including rehabilitation of lscape; rezoning as part of a special statutory Auckl grows in a way that will meet provide process for Unitary Plan. opportunities challenges of future. consider alternative options. for approved, with only one design change Opposition to Plan Change 372 PC372 to become a special precinct in from l exchange decision which Proposed Auckl Unitary Plan furr required removal of 15 terrace houses complicated process. from north-western area of Three Kings A PLB, two community groups a of l third Three equity; application by Kings adequately All three applications were subsequently Fletcher 4

5 Fig 07a Fletcher PC372 Masterplan 17H1 Proposed Zoning (west-east cross-section) Fig 07b RRA Development Plan Proposed Zoning (west-east cross-section) Reserve. The two community groups appealed to Environment High Courts on plan change Unitary Plan decisions, with Government of time joining legal proceedings in support of Fletcher. Richard Reid was engaged eir by community groups or PLB to provide lscape urban design evidence through three processes. At same time, Richard Reid & Associates (RRA) was commissioned by PLB to develop an alternative Masterplan aligned with Three Kings Plan for public consultation. Reid was accompanied in Environment Court by Jan McCredie, one of Australasia s foremost urban designers, who also peer reviewed RRA Development Plan. In short, Environment Court preferred Reid McCredie s evidence on PC372 s poor connectivity integration with surrounding neighbourhood in an interim decision required Fletcher to review thirteen key aspects of its Masterplan. The Court s findings countered Unitary Plan decision which sought no changes to Masterplan. 1 Fletcher community groups chose to settle legal impasse out-of-court in June 2017, outcome of which will be discussed in Conclusion. Reid McCredie s evidence Reid s alternative proposal are now focus of this paper. Critique of Fletcher Masterplans 2 Reid McCredie s evidence stated: 1. Fletcher s decision to set quarry s final fill level metres below Mt Eden Road fundamentally compromised development s ability to integrate with Big King, Three Kings Reserve, Town Centre surrounding streets, as well as provide easy access a walkable neighbourhood. 2. Fletcher s Masterplan required significant excavation of existing quarry walls Three Kings Reserve (c.680,000 tonnes) in order to make access to quarry floor viable enable apartment buildings to be built around its edges (Fig 05b). 3. Fletcher Council argued lower fill level would expose more of Big King to view yet proposed zoning enabled whole norrn half of quarry to be filled with up-to-five-storey buildings which would block se potential views (Fig 07a). 4. The Masterplan treated Big King as a background feature retained quarry access road s severe cut into its eastern face. Prominent volcanic features left from past quarrying of or scoria cones were proposed to be removed, concealed or significantly modified. 5. The location amount of open space did not contribute to enhancement of Big King or future-proof Council s significant recreational open space needs for wider area (Fig 08a,c). 6. The existing open space was re-oriented in an east-west direction, swinging focus away from Big King its lscape extension to south (Fig 04, 05a). 7. Fletcher argued its residential re-zoning of south-western area of Three Kings Reserve was to improve passive surveillance public safety, yet little evidence of social problems was presented to warrant this privatisation of public space. 8. The Masterplan arranged ten 9-10 storey apartment buildings around 5

6 eastern sourn sides of quarry, despite relevant District Plan residential zoning enabling 4 storeys. Fletcher used 15-17m lower fill level to hide bottom 5-6 storeys from Mt Eden Road, exposing full height of buildings to Big King. In total length, apartment buildings stretched over 750metres around site, creating a monumental wall competing with Big King in scale visual dominance. 9. Yet apartment buildings location against quarry walls significantly reduced ir potential housing yield. A typical cross-section showed apartments on only one side of seven of building s ten storeys, with carparking sharing six of floors. This is an extremely inefficient typology a prime reason for Fletcher needing public l to increase yield of 1200 dwellings it cited in Environment Court. The above-ground car parking also added substantially to bulk cost of buildings. 10. An excessive amount of l, 4.59 ha, was dedicated to roading due to circuitous routes down into quarry an inefficient street pattern (Fig 09a,b). 11. The convoluted street pattern was reflected in shape of many buildings. Their irregular curvature would create a high number of bespoke building elements, inefficient use of materials wasted space. These inefficiencies furr reduced potential housing yield. 12. The convoluted street pattern termination of streets by buildings increased inward focus perceived density of development rar than visually connecting people with Big King or green open spaces. 13. Few street pedestrian access points into 21.6 hectares site were provided. These were distant from one anor abrupt level changes reinforced depth of final fill level its separation from surrounding street network. 14. The lower fill level, limited entry points, circuitous roading wall-effect of apartment buildings isolated development from Town Centre neighbourhood, effectively creating a gated community within. 15. No alternative plan was developed by Fletcher or investigated by Auckl Council which sought to combine residential intensification with a higher fill level large recreational open space adjacent to Big King. Yet public l exchange with Fletcher placed an onus on Auckl Council to consider this approach, espcially when l exchange was deemed inequitable by PLB local community. Alternative Concept Masterplan by RRA Richard Reid submitted an alternative Concept Masterplan as part of his assessment of PC372 in May The RRA Concept Masterplan applied a methodology Environment Court had proposed to Winstone Aggregates in 2011 for investigating how quarry could integrate with its surrounds. This required analysis of a much wider context than PC372 provided, which in turn enabled different insights into how an integrated comprehensive development could be achieved. The RRA Concept Masterplan had three main points of difference from Fletcher s Masterplan. Firstly, it designated a significant area of open space alongside Big King to provide an appropriate curtilage spatial setting for Big King, which also futureproofed recreational needs (Fig 07b, 08b,10). Secondly, it connected western eastern sides of Three Kings suburb toger for first time by joining ir separate street systems (Fig 09b,c). This could principally be achieved by re-routing Smallfield Ave through three Housing New Zeal properties a Council Parks Depot site to link up with Grahame Breed Drive. The subsequent extension of western side s radial street pattern through Town Centre Fletcher s property would fulfil ultimate goal of Three Kings Plan to Develop a sense of local character identity around presence of Te Tātua a Riukiuta. Thirdly, RRA Concept Masterplan re-visioned development potential of privately-owned Town Centre adjacent Housing NZ l to maximise business street activities, residential intensification urban porosity (Fig 09c). The fundamental features of RRA Concept Masterplan aligned with key objectives of PLB s Three Kings Plan. It also brought or major lowners into frame who may wish to redevelop ir properties. RRA Development Plan Puketapapa Local Board (PLB) engaged RRA to develop Concept Masterplan in two stages between June 2015 May The first stage translated it into graphic language used by Three Kings Plan correlated its outcomes with Plan s five key moves. The second stage required Masterplan to be developed to a detailed level in which fill levels, open space areas housing yields could be measured. In summary, RRA Development Plan (Fig 06a,b): 1. Established that higher fill levels were needed to integrate quarry with Big King, Three Kings Reserve surrounding neighbourhood as well as to remedy past abuses from quarrying. The higher fill level significantly enhanced Big King without needing to modify cone itself. 2. Raised ground level of Three Kings Reserve between Town Centre quarry by 8 metres in conjunction with raising fill level of quarry. This significantly reduced 17 metre level difference transformed weakest part of reserve into critical join between all areas. 3. Shaped clean-fill to give impression it had been carved into an existing lform. Reference points were depressed sports fields around Pukekaroro in Pukekawa Auckl Domain raised earth-shaped stadium beside Mt Kronos at Olympia in ancient Greece. 4. Planned development to fit within remnant volcanic lscape, not quarry. The Fyvie Ave, Barrister Ave Grahame Breed Drive bluffs were used as markers to frame open space define location for buildings. 5. Extended neighbourhood street grid pattern over Fletcher s l Town Centre with a street block size linked to a conventional apartment building 6

7 a Existing b RRA Development Plan c Fletcher Masterplan 18H1 Fig 08 Open Space Analysis (Big King with contours; public reserves in green) typology (Fig 06a, 09c). 6. Provided free-sting mediumdensity housing of mainly five storeys height, with carparking in basements to reduce fill needed. 7. Integrated all components of Three Kings suburb by building upon underlying structure of volcanic lscape historic city plan. Comparison of outcomes The RRA Development Plan provided: Up to 1200 dwellings, same yield Fletcher nominated for PC372. However, RRA s dwellings covered only half of Fletcher s property only one third of plan change area. The RRA yield also excluded residential redevelopment of Town Centre adjacent HNZ properties Over 1,000m² of private communal space for each apartment building against none provided by PC372 Nearly double amount of public open space compared to PC372 Three additional playing fields versus Fletcher s one Under half road area of PC372 Seven traffic dispersal points to surrounding streets compared to PC372 s three (Fig 09) 3 Pedestrian pathways which followed existing desire lines avoided conflict with traffic. These outcomes demonstrate that RRA Development Plan s compact urban form is much more efficient productive than PC372. It achieves a similar number of dwellings without needing public l for housing or creating adverse effects on environment neighbourhood. It also resolves planning problems that dissuaded Fletcher from developing only its l (see page 3). The higher fill levels for quarry lower reserve establish a continuous ground surface, making for a more accessible, liveable cohesive suburb (Fig 06b, 10). The amount of time required to fill to RRA Development Plan s levels, based upon a realistic filling rate, would take one year ten months longer than Masterplan Fletcher gained resource consent for in November 2015, according to community groups civil engineer Garry Law (55 months vs 33 4 months). Yet RRA Development Plan s levels are still well below those originally agreed by Fletcher for rehabilitation of quarry in Mr Law also considered re was no difficulty in servicing RRA Development Plan for stormwater wastewater, an analysis confirmed by Fletcher. In contrast, Fletcher s need to furr excavate quarry Three Kings Reserve was a cost associated with preparation of area for residential development, not rehabilitation. The lower fill level also required use of new sports fields for retention of surface flooding during 100 year storm events, a potential loss of public amenity considering uncertain frequency of se wear events. Environment Court recommendations Although Environment Court preferred Reid McCredie s evidence on PC372 s poor connectivity integration with surrounding neighbourhood, it recommended an approach different from those proposed or tested by conflicting parties. The Court supported southwestern area of Three Kings Reserve two volcanic bluffs being protected from residential development. This reduced Fletcher s yield by 58 dwellings. It also directed an 8m higher ground level for reserve l below Town Centre a 4m higher level for new sports fields, as specified in RRA Plan. However, Court also supported Fletcher s lower fill level in norrn half of quarry ir arrangement of streets buildings. The Court s directive left a substantial part of development within a deep hole in ground. The Court appeared to prioritise 7

8 a Fletcher Masterplan 17H1 b Existing c RRA Development Plan Fig 09 Street Network connection of sourn part of development with Town Centre rar than achieving integration across whole area, a holistic outcome which both 2011 clean-fill decision PLB s Three Kings Plan had focused on. In this respect, Court s view that PC372 fitted with key objectives of PLB s Three Kings Plan sat uncomfortably with PLB s public rejection of PC372 for not taking account of substantial aspects of its plan, including a failure to integrate development with wider local area. The Masterplan s use of a large-scale, l-hungry suburban typology was also antisis of fine-grained, inter-connected street grid plan favoured in Three Kings Plan. The RRA Development Plan had adopted this pattern because it was a logical extension of neighbouring street network would facilitate easy pedestrian movement to Town Centre, community facilities, public transport open space. Conclusion Negotiations between Fletcher community groups post-court continued to weaken this compromised arrangement furr reduced housing yield by c. anor 110 dwellings. Precious areas of volcanic lscape, like Grahame Breed Drive volcanic bluff, have been unnecessarily sacrificed for inconsequential housing opportunities. 5 In Reid McCredie s opinion, intrinsic problems associated with Fletcher s fill levels street network will not be able to be remedied over time. Nor will new plan respect or enhance Big King. Most of issues raised in Reid McCredie s critique of PC372 remain. Judged against principles of Three Kings Plan priorities of The Auckl Plan, a quality compact environment will not be achieved. The development does not maximise efficient use of existing l for urban development; provide greater preservation of natural environmental qualities through a reduced urban footprint; reinforce enhance local character, identity heritage; significantly increase or enhance local amenities; enable good accessibility. This lack of understing of good urban outcomes seems reflective of whole process. The result is poor fails to capitalise on opportunity to build an examplar urban development that ensures lscape rehabilitation residential intensification. The housing yield in RRA Development Plan now appears substantially greater than revised Fletcher Masterplan. The differential of c.170 dwellings is unlikely to change given that increases in height levels along Mt Eden Road agreed by Court could equally be applied to RRA Plan. Although RRA Plan specifies a higher fill level at norrn end of quarry, re cannot be too much time difference between filling to this level versus new levels proposed by Court as well as time Fletcher needs for furr regulatory processes. This apparently will involve a new plan change anor public l exchange to help increase Fletcher s housing yield. Redevelopment of exchanged site, Council Parks Depot area, would permanently block Reid s proposed unification of local street network around Big King, a more equitable social environmental outcome. Jan McCredie concluded in her evidence: Urban areas require more than intensification. An urban city is not a suburban city with bigger buildings. The public domain is critically important great care needs to be taken as to how streets built fabric are organised relative to lform when people are located close toger, are less car dependent using public transport. Urban is a different model has to be considered in long term framework of a city how a city changes. The approach must be holistic. 8

9 Fig 10 RRA Development Plan New lform viewed from Town Centre Re-development of Auckl or any city undergoing change should not be by a site by site approach. All avenues should be kept open so best outcome can be developed. The RRA design does precisely this. It enables possibility over time for an integrated outcome that celebrates Maunga creates a cohesive, urban, memorable place. Endnotes 1. Our design was commissioned by Puketapapa Local Board submitted to Environment Court on behalf of two community groups to highlight key outcomes neccessary for successful intensification of area: integration of final quarry lform residential development with volcanic lscape, Town Centre, open space network neighbourhood; provision of more open space to enhance Tātua a Riukiuta recreational activities; revitalisation of Town Centre. 2. Fletcher produced at least four iterations of masterplan for assessment after Masterplan 15-H1 was submitted with PC372 in November Masterplan 17-H1, re-presented by RRA here, was submitted by Fletcher for plan change hearing in May The yield is calculated using an average floor space area for apartments which can vary depending upon mix of apartment sizes wanted. A range of yields was calculated by Jan McCredie, an expert urban designer from Sydney, based upon different average floor space areas. The methodology used is stard practice in NSW for assessing development capacity of building envelopes. It is derived from tested assumptions over many projects delivers a high level of accuracy. 4. Mr Law s evidence to Environment Court estimated commented upon respective fill volume, rate time differences between Fletcher, RRA 2011 (EC214) proposals. 5. The author s involvement with this project lasted from May 2015 until completion of an Environment Court hearing in May He has had no furr involvement with project or parties concerned including ir negotiation of a final settlement in June The author Richard Reid is an architect, lscape architect, urban designer transport planner with thirty years professional experience. Richard has worked with nationally internationally recognised design practices in Sydney (Neville Gruzman) London (Sir Colin St John Wilson). Richard is director of Richard Reid & Associates Citymakers, a multi-disciplinary design practice based in Auckl. Over past twenty years, practice has focused on large-scale infrastructure projects ir integration with local communities sensitive urban/natural environments. All drawings in this article were prepared for RRA by Richard Reid Carlos Charlton except Fig 5a 6a by Richard Reid Yiqiu Hong. Drawings of Fletcher s Masterplans were prepared by RRA using information published by Fletcher Residential. The RRA Development Plan RRA drawings are protected by copyright. RRA Ltd May All rights reserved. ISBN: (PDF) ISBN: (Softcover) 9