Unitec Proposed Auckland Unitary Plan Submission. Wairaka Zoning and Precinct Planning Report

Transcription

1 Unitec Proposed Auckland Unitary Plan Submission Wairaka Zoning and Precinct Planning Report 29 October2015 1

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3 TABLE OF CONTENTS 1.0 EXECUTIVE SUMMARY INTRODUCTION WAIRAKA STRATEGY ZONING WAIRAKA PRECINCT HERITAGE URBAN DESIGN YIELD TRANSPORT INFRASTRUCTURE ECONOMIC CONSIDERATIONS SECTION CONSULTATION OTHER INFORMATION

4 1.0 EXECUTIVE SUMMARY 1.1 This report outlines the changes Unitec is seeking from the Council and Independent Hearings Panel for the Wairaka Precinct controls under the Proposed Auckland Unitary Plan. These changes reflect the hearing process on the underlying zoning that impacts the Unitec land (Special Purpose: Tertiary Education Zone), and the Council s decision that long-term, it does not want to have a Tertiary Education zone. 1.2 The 64ha Wairaka Precinct is made up of the Unitec site (53.5ha), the Waitemata District Health Board Mason Clinic (3.9ha), the Taylor's Laundry site (2.5ha), and Ngati Whatua land (4.4ha). The Wairaka Precinct is the largest brownfields site on the Isthmus and represents a very significant and critical opportunity for the Council to advance its urban growth management strategy while still preserving the unique environment and location of Wairaka. 1.3 Unitec's proposal acknowledges the Council s policy position to remove the Special Purpose: Tertiary Education zone and rely on the standard underlying zonings to promote appropriate development in the Wairaka area. Consequently new underlying zones need to be agreed. (The Council has decided, during the hearing process, to remove a number of other zones in the way, and in all cases new replacement zones need to be agreed.) 1.4 Unitec's proposed Unitary Plan provisions recognise the fundamental change in the Unitec educational programme. This change will see the consolidation of the campus into a core area co-located with a strategically aligned business park which will foster innovation, research and give work experience to students. It will open up a significant opportunity to create an urban village which in turn will foster significant opportunities for quality housing and employment. 1.5 Unitec is proposing a gradation of zones from the Mixed Housing Urban zone in the southern portion of the precinct which buffers the adjacent residential community, through to the Mixed Use zone in the centre and north which provides for both tertiary education and a mixed residential / commercial planning outcome. 1.6 The precinct provisions provide for the unique circumstances of the Wairaka setting. Controls apply around the open space and special environment which is Wairaka, Oakley Creek, the 4

5 heritage site to the north, and the new roading pattern necessary to give public access from the east to Oakley Creek. 1.7 The precinct makes particular provision for tertiary education and the supporting uses which will form the core of the campus. The precinct provisions also set a policy regime which will ensure development complements the adjacent Point Chevalier and Mt Albert town centres. 1.8 This proposal and the work Unitec has done in consultation with Auckland Transport and the Council provides for key public amenity and infrastructure including: the new bus interchanges on the Carrington Road frontage; the shared path connection to the Waterview and Mt Albert; stormwater management servicing both the Wairaka sites and the adjacent Council street system to the south-east; "Conservation and adaptive re-use" of the former Oakley Hospital building; public access from the east to Oakley Creek; road widening on Carrington Road for bus lanes. 1.9 A key part of the Wairaka concept plan is the commitment of Unitec to the new roading network, the stormwater management areas, the public open space and key connections through to Oakley Creek. Of the 53.5ha Unitec property: 14ha comprises the core campus area including business park; 3.1ha is the heritage building and site surrounds to the north; Approximately 7ha is public open space This supporting information also includes a detailed infrastructure analysis. It identifies that the site can be fully accommodated in terms of all infrastructure. Additional work is underway on the wastewater aspects of Wairaka This report also identifies the changes now sought by Unitec. There are changes from the original submission to the PAUP, however they are all within the scope of Unitec's original submissions, or are necessary because of Council's decision to remove the Special Purpose Tertiary Education zone The key changes from Unitec's primary submission are: 5

6 (a) The application of Mixed Housing Urban zone rather than Terrace House and Apartment Building zone in the southern portion of the precinct adjoining the residential properties to the south. (b) The reduction of the maximum 20m height limit apply to the land between 40m-60m from the southern boundary of the precinct, to a maximum of 11m. (c) The retention as a Category A building of the entire pre 1905 Oakley Hospital building. (d) The identification of the land north of the former Oakley Hospital building as site surrounds /extent of place. (e) The proposed Business Park zoning for the businesses collocated with the core campus. (f) The zoning of the core campus to Mixed Use. (g) The restriction of uses in the buildings in the north-western corner of the site to residential only in the upper floors. (h) The identification of the shared path connecting Waterview to Mt Albert within the concept plan. 6

7 2.0 INTRODUCTION 2.1 This report relates to the Wairaka Precinct within the Unitary Plan, and the zoning and precinct provisions requested by Unitec. 2.2 The report has been prepared to take account of: (a) The Council s new position on the Special Purpose: Tertiary Education zone; namely that the Council intends to provide long-term for tertiary education through the precinct provisions and not through a specific Tertiary Education zone. Consequently alternate underlying zoning(s) are required. (b) The Council s request to deal with tertiary education matters by way of specific precincts that apply bespoke provisions to individual campuses. (c) Modifications to the underlining zoning provisions advanced through the hearing process for the Unitary Plan, relating specifically to the underlying Residential and Business zones. (d) Council feedback/questions on the Unitec submission. (e) Council and Panel desire to simplify the all precincts provisions. (f) Feedback from the CLG. 2.3 The following documents are provided in support of this Unitec request: (a) Section A: An overview of the requests Unitec is seeking to the Unitary Plan (b) Section B: The modified Wairaka zoning and precinct provisions now sought by Unitec as a result of changes through the Unitary Plan process including hearing and feedback from the Council. (c) Section C: This Planning Report. (d) Section D: Unitec Development Strategy. Copy of evidence presented to the Independent Hearings Panel by William J Smith, Executive Director: Strategic Property 7

8 Development for Unitec at Topic 005, and a summary presentation given by Mr Smith to stakeholders. (e) Section E: The Urban Design Strategy prepared by Oculus in association with ASC Architects, Elliot Architects and TDG. This is an updated September 2015 version which updates previous iterations from 2013 and (f) Section F: An analysis of yield prepared by Unitec and its consultant team. (g) Section G: A Transport Report prepared by Traffic Design Group. (h) Section H: An Infrastructure Report prepared by URS. (i) Section I: An economic analysis particularly focusing on the impact of Unitec's proposal on the two adjacent town centres prepared by Market Economics, and the evidence of Dr Douglas Fairgray to the Independent Hearings Panel on business collocation at Unitec. (j) Section J: An overview of section 32 material comprising part of the Unitec request, and on an analysis of the most recent changes. (k) Section K: A schedule of the consultation with the community and stakeholders which Unitec has undertaken. (l) Section L: Core campus consents, granted (m) Section M: Plans. (n) Section N: Minutes of the Panel Topic 055 in response to Council s request to defer zoning of the Unitec land pending a private plan change. 8

9 3.0 WAIRAKA STRATEGY 3.1 Attachment D provides the evidence of Mr William J Smith of Unitec in Topic 005 Issues who outlined the key issues that Unitec is facing at its Wairaka Campus, and the core strategy behind the Wairaka Precinct. This evidence summarises Unitec s vision for, and approach to, teaching and learning at its Unitec campus, and its aspirations for the creation of an urban village within which is located this tertiary education facility. 3.2 Unitec has signalled from the beginning of this Unitary Plan process, through its detailed submission to the Draft Unitary Plan dated May 2013, the fundamental changes which are happening in tertiary education. These changes particularly impact the applied learning tertiary education institutions. Mr Smith s evidence outlined the unique and problematic circumstances facing Unitec. The Wairaka Precinct and the approach embodied in this precinct is essential to the long-term ability of Unitec to provide excellent education in the applied learning fields to Auckland. 3.3 Mr Smith s evidence and the May 2013 Unitec submission on the Draft Unitary Plan highlight: (a) (b) (c) (d) That there are fundamental changes to the way tertiary education is delivered. This is brought about partly by advances in technology, partly in a greater understanding of how to optimise learning opportunities, and partly a strong recognition of the benefit in the applied learnings area of being able to integrate work experience and teaching in an integrated learning environment. The particular problems Unitec faces in a campus spread over 177 buildings across 55ha. The physical spread and distance creates significant problems in being able to move students and staff around the campus to meet education programmes. The campus is unwalkable between lectures. This has significant impact on efficiency and the effectiveness of the site as a tertiary education campus. The dissipation of facilities also significantly impacts the ability of Unitec to build a 'heart' for the campus and to build a strong network amongst students and staff, which a focussed concentrated campus delivers. None of the 177 existing buildings are fit for purpose in terms of modern tertiary education learning methods. The vast majority are prefab type buildings brought on for temporary use. Even the purpose-built buildings reflect an era of education which is no longer relevant and/or will deliver what Unitec needs to educate its students. Some of these buildings are capable of retrofitting for education facilities 9

10 and these buildings have been designed and consented as part of the Unitec core campus resource consent issued in (e) (f) (g) (h) A Large proportion of the Unitec campus floor area is the former Oakley Hospital building, which is a listed heritage building both under the Heritage New Zealand list, Operative Plan and Unitary Plan. This structure achieves only 15% compliance with seismic codes and is a building totally unsuited to education, both because of its seismic characteristics and because of its thin narrow shape which does not enable suitable teaching spaces. Unitec needs to exit this building as quickly as possible and get its students and staff into safer, purpose-built education facilities. It should be noted that through this process and as outlined later in this report, Unitec is committed to bringing this building up to seismic standards and keeping the primary aspects of this heritage building to its successful adaptation for appropriate uses. It is this successful adaptation which will provide the long-term use that in turn will ensure that this building is retained for the benefit of the broader Auckland community. The critical importance of the co-location of business with a tertiary education campus so that business can leverage the knowledge, skills, research and innovation which can be provided by a tertiary education facility; and which will ensure that Unitec students can benefit from the work experience, jobs and opportunity for workplace learning, which the collocation of strategic businesses offers Unitec. The Unitec vision of creating an urban village at Wairaka with a broad range of uses and activities within which there is a high quality campus. Unitec seeks to establish a precinct which complements the Point Chevalier and Mt Albert town centres by increasing the residential catchment for both these centres, and constraining the amount of retail activity within the Wairaka Precinct. (i) The precinct creates an appropriate interface between the residential neighbourhoods to the south of the Wairaka Precinct, and the Unitec site, changing these interface uses from tertiary education to residential. (j) (k) The opportunity for significant student accommodation within the Unitec campus area. The mixed use nature of the Wairaka Precinct, which provides opportunities for people to live, work and learn in a unique and special environment. 10

11 (l) (m) (n) (o) The creation of a roading network which connects to the Ngati Whatua block and unlocks this land for development. The creation of a formal public access to the Oakley Creek Reserve. The opportunity to provide legal frontage for the Mason Clinic and laundry site. The opportunities the Wairaka development provides to release funding to pay for the major upgrade of the Unitec campus and to provide ongoing funding for the Unitec programmes and support structures through issues like visiting specialist staff and student scholarships. 3.4 The Wairaka Precinct concept, and the opportunity it delivers to consolidate Unitec into a focused, highly functional and efficient campus with room for future growth, co-located with a business park of strategic industries which leverage off and contribute to Unitec, is a critical component of Unitec s future strategy. It is the essential element that will enable Unitec to remain a significant tertiary education provider in Auckland. The creation of an urban village within the other land of the Wairaka Precinct area creates the natural and built environment that will make Wairaka a great place to live and work. It also creates the economic opportunity for Unitec to undertake its necessary tertiary education reformation. 3.5 This proposal will create a vibrant precinct that will: help address Auckland s housing needs; protect the key open space network of the Wairaka Precinct; connect into the significant ecological area of Oakley Creek; promote a development which emphasises public transport with integrated walking and cycling connections; and create a diverse mixed community of housing and jobs. 3.6 Within this precinct is a high quality tertiary education facility in a consolidated campus colocated with strategic businesses that provide work experience and promote innovation and research. 11

12 4.0 ZONING 4.1 Diagram 1 sets out the zoning requested by Unitec for the Wairaka area. This responds to the Council's position on Tertiary Education zoning and the hearing process on the residential zone provisions. Diagram 1: Requested zoning for the Wairaka Precinct 12

13 4.2 Core Campus zoning The proposal is to rezone the core campus site to a combination of Mixed Use and Business Park The Council through the hearing process on Topic 055. Social Infrastructure has stated that it wants to remove the Special Purpose: Tertiary Education zone and instead apply appropriate underlying zonings to the major university campuses. The Council will deal with the 'tertiary education' activity itself by way of precinct controls Unitec s position has always been that, for the core campus, it is supportive of a Tertiary Education zone. However, with the decision to remove the Tertiary Education zone from the Unitary Plan, Unitec needs the future underlying zoning of the Wairaka precinct be determined through the Unitary Plan process. It does not believe is appropriate or reasonable to undergo a plan change to determine the underlining zoning following the Unitary Plan becoming operative. Unitec simply wants to be treated in an equitable basis in the same way as University of Auckland and AUT. The Unitec view was outlined to the Independent Hearings Panel and the Council in the legal submission by Mr Bal Matheson on Topic 055. The Panel accepted this position, and recorded its very clear view in a Minute dated 26 June A copy of that minute is attached in section N to this information package Through on-going discussions following the conclusion of the Topic 055 hearing process, the Council has given feedback that it would like Unitec to consider a combination of Mixed Use and Business Park zoning as the underlining zoning for this core campus area As outlined in Diagram 1, the conclusion we have come to is that a split zoning would be appropriate for this area The Mixed Use zoning provides for tertiary education (under the mediated version of the zone provisions) and a range of other uses consistent with the types of student and staff services that need to locate within a university campus The Business Park zone provides for the office and innovation type uses that Unitec is needing to collocate at the campus. The difficulty with the Business Park zone is that it does not provide for education or tertiary education or the types of uses that co- 13

14 locate within the core campus. Importantly it does not provide for student accommodation, which is a fundamental part of Unitec s aspiration for the core campus Following a detailed analysis, it is clear that the former Tertiary Education zoned land falls into two distinct categories within the campus. Unitec is proposing that the primary teaching part of the campus, which is the heart of the traditional intensive teaching and workshop activities, be zoned Mixed Use. On the eastern portion of the campus, which is an extension of the applied learning philosophy of Unitec where colocated business offer work experience and teaching and learning opportunities, Unitec is proposing a Business Park zone. The benefits and costs of each of these zones is evaluated under the section 32 analysis set out in Section I to this information package The Business Park zoning is the zone that best reflects the current and intended use of this area. It provides a development proposition, enhanced through the Wairaka precinct provisions, which will deliver the form of development that is appropriate for a tertiary education institution. It gives effect to the principles outlined in the Interim Guidance given by the Independent Hearings Panel on Topic 055 in relation to the importance of the co-location of strategic businesses with tertiary education The Mixed Use zone best reflects the range of uses that will occur within the core campus. Essentially it is a place of tertiary education, which is now likely to be provided for within the Mixed Use zone. Critically it includes student accommodation, and provides for offices for the running and administration of the campus and the different groups that operate from the campus. It includes the necessary retail essential to a campus operation including food and beverage. This can range from bookshops to IT supplies to lunch bars These two zones create the closest fit to the form of current and proposed development at Unitec and therefore reflect the appropriate underlining zoning for this part of the Wairaka Precinct. 4.3 Residential zoning: southern portion of the Wairaka Block Unitec in its primary submission on the notified Unitary Plan sought Terrace House and Apartment Building zoning (THAB). The Unitec proposal is now that the land adjacent to the southern boundary of the Wairaka Precinct be zoned Mixed Housing Urban (MHU). 14

15 4.3.2 This change in position is brought about by the modifications to the Unitary Plan for the Residential zone provisions, including the MHU The treatment of MHU in terms of density and activity status means that the type of housing Unitec feels appropriate for this block of land can now be fully catered for within the MHU Zone. This housing is forms of terrace housing, duplex and zero lot line development of between two and three levels The MHU zone provides a transition between the one and two storey, largely detached, development in the Marks Road, Rhodes Avenue, Renton Ave, and Laurel Road area, through to the two and three storey terrace house development on the Unitec proposed MHU land, before moving further north into the more intensive typologies of the THAB zone and the campus itself. This zone is a logical progression in zoning hierarchy from the south to the north. The critical difference between the THAB zone and the MHU zone is that the earlier proposals by Unitec for apartment buildings at the campus interface of the southern section, are being replaced with a less intensive proposal. It is now intended that this area will be developed for a mix of housing of two and three storey typologies. 4.4 Mason Clinic The Council originally zoned the whole of the Wairaka Precinct Special Purpose: Tertiary Education, including the Mason Clinic site. It then used the Precinct provisions to provide for hospital activity on the Mason Clinic site Unitec adopted the Council s principle of providing an appropriate underlying zoning (namely Mixed Use) with the hospital provisions being provided for through the precinct provisions The Waitemata District Health Board has requested that the land be zoned Special Purpose: Healthcare Effectively the WDHB seeks to reverse the presumption where the sites are primarily zoned for health purposes, with any alternate activities being dealt with through the precinct In ensuring a collaborative approach with major stakeholders within the Wairaka Precinct, Unitec accepts the Special Purpose: Healthcare Facility zoning of the Mason Clinic site, but on the basis that the precinct provisions would then provide for the alternate uses which the landowner may aspire to should there be a future change in 15

16 the circumstances of the Mason Clinic. It is neither effective nor efficient for the Precinct rules not to provide for an alternative longer term use that will, at some point, come into play when the Mason Clinic relocates. Failing to provide for that alternative use will not allow any certainty as to what the long term use of that site should be. While a plan change is possible, providing for mixed use in the precinct controls would reflect an appropriate middle ground between providing for the ongoing use of the site with a Healthcare Facility zoning, but recognising that in the mid to long term a different use is possible (and likely) Consequently Unitec would accept Waitemata District Health Board in its seeking a Special Purpose: Healthcare Facility zone for the site. The Wairaka Precinct provisions would also apply to this site, which would provide the land owner additional future uses should they wish to provide any additional activities on their site either as part of the hospital or in some future reduction or relocation of hospital activity from the site. 4.5 Mixed Use zone The northern portion of the campus is zoned Mixed Use This best reflects the range of future uses which may occur on the Unitec land The current activities on the Taylor's Laundry site are consistent with the Mixed Use zone The flexibility the Mixed Use zone brings is critical for adaptation of the former Oakley Hospital building. This is a Category A building and has been recognised by the Council as needing successful adaptation to secure its long-term future. It is clearly not suitable for its original use. If this building is to remain a heritage asset enjoyed by the community, then it needs a long-term use. Adaptation is its only ability to achieve this. The Mixed Use zoning provides flexibility so that any adaptation of the building can result in a variety of uses including combinations of use. This is likely to focus around residential and offices with some support uses such as cafes, gyms or perhaps a community facility From Unitec s perspective, it is important to retain flexibility around the future uses. Appropriate interface or buffer activities will be required to the Mason Clinic and to the laundry site activity. The Mixed Use zone best delivers this flexibility. 16

17 4.5.6 The reality of the Mason Clinic is that this is a high security facility for criminal offenders with mental health illnesses. Accordingly, its characteristics are in part hospital and are, in part, similar to what might be expected from a prison Similarly the laundry with its boiler and reasonably intensive industrial form is an activity which is not necessarily suitable for residential activity directly adjoining this site. Consequently the opportunity for uses which can buffer the Mason Clinic and the laundry site are critical It is only the Mixed Use zone that, as an underlying zone, provides the opportunity for a broad range of activities and building forms that will enable the appropriate buffering of these sites and development of a broad mixed use community In the Council feedback it has been concerned that the zoning may permit full commercial activity with no residential activity It is Unitec s intention and commitment that there will be a substantial residential component to the Wairaka Precinct Consequently, and to address the specific issue, the precinct provisions provide controls which will encourage a minimum residential component Diagram 1 above shows the zoning now requested by Unitec for the Wairaka Precinct Diagram 2 shows the rezoning requested on the Unitec owned land but with the required open space land, and proposed roading as required under the Precinct Plan shown in green on the document. In addition, it also shows the heritage building classification for the former Oakley Hospital building which is agreed between the Council and Unitec and the Unitec request for site surrounds, which varies in detail from the Council position on the southern extent of the site surrounds. This is addressed later in this report This diagram shows the zoned potential development for Unitec. 17

18 Diagram 2: Usable Land Diagram 2 distinguishes between the core campus land, the business park land, and the other development properties. Diagram 3 shows the effective building envelopes. 18

19 Diagram 3: Requested zoning Unitec land realistic development opportunities What this diagram shows is that after removal of the: non Unitec owned land; committed open space; heritage building and site surrounds; and core campus area 19

20 the development potential for the Mixed Use and Business Park zoned areas is significantly reduced from that which may be initially perceived from looking at the zoning map for Wairaka This area of land equates to some 64.38ha and is summarised below: Zoning/Activity Land area (ha) Unitec owned land 54ha (approx.) Waitemata District Health Board Mason Clinic Taylors Laundry Laundry site Ngati Whatua o Orakei Vacant land southern site Vacant land northern site TOTAL

21 The 54ha owned by Unitec can be broken down into key elements. The core campus has an area of approximately 10.5ha while the business park has an area of approximately 3ha. This excludes the committed open space in the core area The area of Mixed Housing Urban on the southern boundary is 2.4ha net. The so called heritage precinct in the north, which revolves around the former Oakley Hospital building, has a land area in the order of just over 3ha. The effective remaining developable land in the north equates to approximately 10ha There is an area of Terrace Housing and Apartment Buildings zoning which equates to approximately 1.5ha Section E of this information package deals with the yield and development capacity within the Unitec land. It is noted that the transport report by TDG makes some course assumptions about the yield for the purposes of completing the traffic modelling. 5.0 WAIRAKA PRECINCT 5.1 This section outlines the modifications Unitec is proposing to the Wairaka precinct. 5.2 Section B sets out a track change version of the requested provisions. 5.3 The modifications reflect: The original publicly notified Wairaka provisions. The relief requested by Unitec but modified to take account of the changes to the underlining zoning which have come about through the Unitary Plan process, and feedback from the Council. 5.4 Sub-Precincts The Council has given strong feedback that it would prefer a single precinct for the Unitec land at Wairaka rather than three sub-precincts. 21

22 5.4.2 The Unitary Plan as notified proposed a primary precinct, with two sub-precincts; one being the Mason Clinic and one being the laundry site. The Council agrees that the Mason Clinic and the laundry site sub-precincts should remain Unitec had recommended three further sub-precincts being: (i) (ii) (iii) a sub-precinct formed around the core campus and associated Business Park; a sub-precinct formed around the residential development in the south and west; a Mixed Use sub-precinct formed around the north Unitec initially favoured the five sub-precincts because it enabled the provisions to be clearly targeted at specific geographic parts of the site, which assisted in promoting the integrated and comprehensive development of the site However, Unitec accepts that multiple sub-precincts introduce complexity. We respect the Council s and Panel's strong desire for keeping the precinct provisions more simple Consequently this modified proposal is put forward on the basis that the only subprecincts are the Mason Clinic block and laundry site. Even then with the rezoning of the Mason Clinic and, with the industrial aspect of the Mixed Use zone, these subprecincts are not necessary in Unitec s view Given the zonings that Unitec is proposing, as set out in section 3 above, the Mason Clinic use rights are provided for by the Special Purpose Healthcare Facility zone and the laundry site by the Mixed Use zone. Consequently it would be possible for the Council to remove all sub-precincts in Wairaka. However that is a decision for the Council and the landowners of those two sub-precincts In the notified PAUP, the Special Purpose Tertiary Education zoning of the laundry and the Mason Clinic necessitated the sub precinct. With the zoning proposal of Unitec, these sub precincts may not be required. However, because this is not land owned by Unitec, and because the Unitary Plan creates the two sub-precincts for these private landowner holdings, Unitec has put forward this proposal with the two sub-precincts retained. 5.5 Objectives and policies 22

23 5.5.1 Section B provides a tracked change version of the precinct objective and policies The original notified Unitary Plan text is shown in black. The Unitec primary submission is shown in blue. The revised Unitec relief following the hearing process on the underlying zone provisions and the feedback from the Council is shown in red The changes Unitec is seeking to the objectives and policies are effectively consequential amendments required through the deletion of the sub-precincts on the Unitec land. The Council feedback asked for the precinct provisions to be kept simple by keeping the Unitec land within a single precinct. Unitec is supporting this request. Consequential changes to the objectives and policies are made The changes to the objectives and policies requested by Unitec in its original submission, which Unitec continues to seek, relate to: (a) (b) (c) (d) Provision for a wide range of residential typologies within the Unitec precinct. This is a fundamental part of making the precinct an urban village. It recognises that a significant land area within the precinct is not required for tertiary education and does need to be zoned and developed for a range of uses which will help meet Auckland s growth strategy and complement the environment of Wairaka. The objectives and policies reinforce the business park associated with Unitec and the science, technology, innovation and learning opportunities which this co-location brings. That in turn reflects the guidance given by the Independent Hearings Panel on the Regional Policy Statement issues relevant to tertiary education. A policy is introduced to promote uses at Wairaka which will be complementary to the Point Chevalier and Mt Albert town centres. This reflects the key Council policy of reinforcing and enhancing town centres. The limitations on the scale of retail and food and beverage activities, recognises the function and importance of the Mt Albert and Point Chevalier town centres. The importance of cycling is included within the transport policies. With the north-western cycleway and the proposed Waterview to Mt Albert cycleway traversing the Wairaka Precinct, this is a critical policy issue. 23

24 (e) The policies make it explicit that major new development should proceed either in accordance with the concept plan set out within the precinct rules, or in accordance with an approved framework plan. The key difference relates to the concept plan. The presumption of the notified Wairaka Precinct provisions was that there would need to be a framework plan for Wairaka. The Unitec submission includes a detailed concept plan which delivers the integrated planning for the precinct. This is Unitec s up front commitment to a range of planning issues including roading, cycleways and open space. The concept plan has been updated as outlined below. Consequently, if development proceeds in accordance with the concept plan, there is no need for a framework plan. 5.6 Activities Section B shows a tracked change version of the Wairaka Precinct Rules. It shows the original text in black with strike-outs and underlining of the change provisions sought by Unitec through its original submission to the Unitary Plan. In addition, the modifications to the text now sought by Unitec are shown in red mark-up There are a number of deletions suggested in the activity table. This is predicated on the basis that the Council agrees the underlying zoning requested by Unitec. If the Council does not accept the change to the underlying zoning and wants to retain the Special Purpose: Tertiary Education zone, then the original Unitec submission to the Unitary Plan stands As outlined previously in this report, the Council has stated its intention remove the Special Purpose: Tertiary Education zone. Unitec wants the long-term zoning for Wairaka Precinct determined as part of these Unitary Plan provisions As set out in section 4, the logical zoning for this area is a combination of Mixed Use, Business Park, Mixed Housing Urban and Terrace House and Apartment Building zones These zones, and particularly the Mixed Use zone, provides for a broad range of activities highly suitable to the Wairaka Precinct. These uses go well beyond that of the Special Purpose: Tertiary Education zone included within the PAUP as notified. As a consequence of the rezoning, there are a number of activities that are now provided in the underlying zoning and therefore do not need special provision within the precinct activity table. 24

25 5.6.6 In the activity table, special provisions are included to significantly limit the range of non-residential activity in the proposed Mixed Housing Urban zone on the southern boundary of the precinct. This is to ensure this zoning and the activities provided for in this zone are consistent with the activities of the underlying Mixed Housing Urban zone As Unitec still operates in this location, additional tertiary education provisions are provided for. This is an interim provision pending consolidation of the campus and relocation further north into the core campus area Limits on the total gross floor area of retail and food and beverage within the precinct are applied. There are also limits on the size and number of supermarkets and provisions which significantly constrain the opportunity for bulk retail These provisions have all been put in place to avoid adverse effects on the two adjacent town centres at Point Chevalier and Mt Albert The retail caps and food and beverage caps ensure that the gross floor area cannot reach a scale where the Wairaka Precinct results in adverse effects on the function, role and amenity of the nearby Town Centre, (beyond those affects ordinarily associated with effects on trade competitors) The supermarket is limited to 1,500m² - a niche market suitable to serve the campus and adjacent Wairaka community The provisions and the limit on the size of any retail unit mean that the uses provided for in the precinct are not suitable for large bulk retail. They simply do not meet the gross floor area controls Broad provision is provided for student accommodation. Unitec is aspiring to create the opportunity for a far greater percentage of its student population to live within the campus site, because of the transport and other efficiencies associated with that arrangement A range of activities is specifically provided for within the scheduled heritage building (former Oakley Hospital). This is to incentivise and assist in the adaptation of this building to new future uses. It is only through this adaptation that a long-term use for of this building can be secured. 25

26 The activity rules around development ensure that large buildings are subject to design control provisions The rules also carry forward the principle that new subdivision and development should be in accordance with the concept plan. This reinforces the planning approach which the concept plan embodies. Significant development not in accordance with the concept plan triggers a framework plan. 5.7 Height Diagram 4 shows the modified height controls within the precinct overlay now requested by Unitec. Diagram 4: Height 26

27 5.7.2 There are four differences: (a) (b) Unitec is proposing to reduce the height in part of the southern MHU area by deleting the 20m height limit and substituting the 11m height limit. The height in the site surrounds on the northern side of the former Oakley Hospital building is reduced from 12m to 8m. 27

28 (c) (d) The restricted discretionary height limit in the north-western corner of the precinct is retained. However, in recognition of the Council s feedback that it would not want commercial activities in the upper levels of this building but would only want residential, the precinct plan provisions have a special control which state that no commercial or industrial activity on this particular block should occur above 12m within the building. Effectively this provides for a range of residential activities above 12m. There are some minor height adjustments in the south-eastern corner of the precinct where a 8m height limit is provided to an area of open space adjacent to the residential boundary to the south. There is a rationalisation of the 17m Carrington Road frontage height as a consequence of the 8m height adjustment The height diagram in the Precinct Plan aligns with the urban design strategy and follows the height approach in the notified PAUP The PAUP provides a 24m height limit across the significant majority of the precinct. The exception is a graded 17m height limit 20m back from the Carrington Road frontage The Unitec submission retains this primary element but suggests a reduction of the height at the northern and southern end of the precinct This reduction follows the principle of the Carrington Road frontage of stepping up height in the precinct from its exterior boundary The land to the south of the precinct boundary has an 8m maximum height limit. The Unitec proposal adopts this 8m height limit for a 10m depth into the Wairaka Precinct and then increases the height to 11m. The height only reaches the maximum 24m some 60m in from the southern zone boundary In the north, because of the unique location of the heritage building, the height grades up from 8m in the site surrounds area on the northern side of the heritage building, to 12m for the heritage building itself, and subsequently 17m and then 20m before it reaches the 24m height limit m is effectively the ridgeline of the existing heritage building, although at the very southern end of the western wing this rises to 14m. 28

29 The unique topography of the Wairaka Precinct where the land is in a basin above Oakley Creek, and then slopes up significantly to the west and the north, gives a lower perceived height over the core of the land when viewed from Carrington Road. The maximum 24m height is only achieved in the lower portions of the land topography. The southern area does not have this distinct topographical difference. Hence the 60m setback from the residential land to the south of the precinct before the standard zonal height applies. 5.8 Concept Plan The Unitec request includes a couple of minor requested changes to the concept plan: (a) (b) (c) (d) The Waterview shared path and cycleway, and the north-western cycleway, both of which traverse the Wairaka Precinct, are shown on the concept plan. This is an important part of the accessibility linkage and logically should appear on the plan. The Unitec proposal is that the north-western cycleway should be given a more direct and safer route from the pedestrian crossing on Carrington Road to the Great North Road overbridge. This will pass in front of the Category 1 heritage building. Unitec will enable this through amendments to the contractual arrangements with Auckland Transport. The other change to the concept plan is to relocate the position of the southern bus stop on Carrington Road to the position requested by Auckland Transport. This will provide a significantly improved bus stop facility for the Wairaka and Mt Albert community. It will have full facilities for buses to pull off the road, and proper shelter for passengers. The relocation is a small distance to the north. It is designed to integrate with the entry and exit of buses across Carrington Road into the bus stop facility Diagram 5 shows the new concept plan requested by Unitec. Diagram 5: Concept Plan 29

30 5.9 Other development controls The modifications to the Mixed Housing Urban, Terrace House and Apartment Building and Mixed Use zone development rules advanced through the mediation process, have significantly increased the opportunity for quality housing and mixed use development at Wairaka. The proposition agreed through mediation to reduce the number of rules and drive quality development through the resource consent process under a series of urban design criteria, is one which Unitec supports. 30

31 5.9.2 This assessment approach enables the unique circumstances of Wairaka to be considered in any development and means that the underlying zoning development controls can largely apply There still needs to be a few specific controls and these are set out in Section B to this report. These are shown in tracked change The additional rules relate to: height (addressed in 5.7 above); landscaping (where a minimum 20% landscaping for the precinct is required); special setbacks on Carrington Road to take account of the Auckland Transport aspirations for the Carrington Road upgrade, and Oakley Creek; recognition of special tree protection within the site; historic heritage; key access to the site as shown on the concept plan; parking provision and the ability to provide for parking in communal dedicated parking buildings Changes to the underlying zoning provisions through mediation means that the special provisions relating to height in relation to boundary and building coverage and additional development controls in the sub-precincts are no longer needed Precinct Assessment Criteria Unitec is seeking only minor changes to the precinct assessment criteria. These were set out in Unitec s original submission to the Council Unitec is not seeking any revisions to the original submission. 31

32 6.0 HERITAGE 6.1 Introduction The Precinct Plan provisions record the scheduled protection of the former Oakley Hospital building and the site surrounds This scheduling has been subject to extensive consultation and mediation between Unitec, the Council and Heritage New Zealand; and a hearing before the Independent Hearings Panel. This has resulted in a number of fundamental changes to the general heritage provisions and the site specific provisions related to the scheduling of this particular building. The result of these amendments is that Unitec has been able to significantly modify its position on this heritage protection The changes which have enabled Unitec to modify its position are: (a) (b) (c) (d) the agreement at mediation that the prohibited activity status for demolition of category A buildings would only apply to primary features where 70% or more of the building is to be demolished; the explicit plan provision that the calculation of floor area in terms of substantial demolition and total demolition does not include demolition of internal elements of the building; the significant reduction in the area of the building identified as primary feature ; the enhancement of the provisions relating to adaptation of heritage buildings for suitable viable uses. 6.2 Heritage building Diagram 6 shows the scheduled building which Unitec proposes as part of the Unitary Plan provisions. 32

33 Diagram 6 - Former Oakley Hospital scheduled building: Scheduling proposed by Unitec The orange colouring is the primary feature for protection. The grey colour is the nonprimary feature for protection. Both are protected elements scheduled as a category A building Diagram 7 shows the scheduled building set out in the evidence of Auckland Council. Diagram 7 Former Oakley Hospital: Council evidence Unitec and the Council are fully agreed on the extent of building that will be scheduled. 33

34 6.2.4 There is a small difference in the Unitec and Council view over the delineation of primary features. Unitec does not believe that the link building between the western wing and the western annex is a primary feature and seeks that this be scheduled but as a non-primary feature. Similarly, for one toilet block on the southern side of the main building, Unitec believes this is a non-primary feature rather than a primary feature These matters have been heard through hearing 032 before the Independent Hearings Panel. 6.3 Site surrounds Diagram 8 below illustrates the site surrounds sought by Unitec. Diagram 8 Oakley Hospital Building Site Surrounds sought by Unitec Diagram 9 below shows the site surrounds set out in the Council s evidence on hearing

35 Diagram 9: Site Surrounds Council position The key difference between the Unitec position and the Council position is the extent of site surrounds that apply to the rear or southern side of the former Oakley Hospital building Unitec is seeking that the carpark on the southern side of the building and the existing modern building not be included in the site surrounds. Unitec is including the original gardens and courtyards within the proposed site surrounds The Council position is that the central carpark and the building to be removed should be included in the site surrounds This matter has been heard by the Independent Hearings Panel under Topic Heritage Plan provisions The current Precinct Plan has a diagram showing the heritage provisions relating to the former Oakley Hospital building. 35

36 6.4.2 Diagram 10 below shows the replacement diagram that Unitec would propose to go into the Precinct Plan. However, it is recognised that there may be further modifications to this diagram depending on the decision of the Independent Hearings Panel on Topic 032. Diagram 10: Precinct Plan Heritage 7.0 URBAN DESIGN 7.1 Attached to this information package as section E is the Urban Design Strategy prepared by Oculus and updated in September A consortium of architects comprising Oculus, ASC, and Stapleton Elliot were retained by Unitec to prepare the master plan for Wairaka. In addition Boffa Miskell and Fearon Hay Architects have been involved in masterplanning for the northern end of the precinct. 7.3 This was done through 2012 and There have been two further iterations to the urban design master plan. The first in May 2014, and this update in September

37 7.5 The September 2015 version has been updated to take account of the mediation process through the Unitary Plan, and the changes outlined in this information package. 7.6 The urban design assessment was used as the core parameter to inform the Wairaka Precinct overlay provisions. 7.7 In addition, section E sets out the design guidelines for public spaces. 7.8 These two urban design documents are fundamental drivers of the quality development of the Wairaka Precinct. 7.9 There are a number of community amenities within the master plan that are designed to improve overall quality of life within the precinct, and to the broader area around Unitec. Many of these initiatives directly reflect suggestions from interested community-based groups and individual members of the community. This includes: More accessible green space across the precinct Promotion of Oakley Creek as an accessible destination Play and recreation facilities for children throughout the precinct Identified protected trees across the precinct Cycle paths linking Waterview, Unitec, Pt Chevalier and Mt Albert to existing cycle paths Landscaped public activity areas across the precinct Community gardens Provision for community facilities Pedestrian and cycle bridge across Oakley Creek connecting Great North Rd to Unitec and surrounding areas. These are summarised in diagram 9. 37

38 Diagram 9: Development Amenities 38

39 8.0 YIELD 8.1 Introduction: Yield The Council has sought clarification on the potential yield provided under the Wairaka Precinct The yield figures presented below are subsetted into: (a) (b) (c) core campus; business; housing. 8.2 Campus Unitec has obtained a resource consent for the reconfiguration and development of the core campus This consent was issued in The key plans and consent are attached in section L of this information package Unitec is currently spread across 177 buildings, none of which in their current configuration, are suitable for modern tertiary education teaching The core campus renewal programme comprises: (a) (b) (c) (d) the full retrofit of five buildings suitable for modern teaching; the construction of five new teaching buildings; the retention of three cultural buildings (conference centre, marae and associated buildings); the construction of two purpose built parking buildings This will deliver a total of 59,000m² gross floor area of teaching space. It is likely that this will be built over the next 4-6 years, with one building being consented but futureproofed for future significant role growth. The construction of this building will depend on whether there is a demonstrable need for additional space. 39

40 8.2.7 The campus will see 1,350 carparks constructed in two purpose-built parking buildings with opportunity for an additional 150 on street car spaces. These carparks are on the private road network of the Unitec core campus Diagram 10 below shows the consented master plan for the campus redevelopment. Diagram 10: Core campus consented master plan The masterplan has future proofed for up to 1,093 student accommodation units. 8.3 Business Business development breaks into two sectors The first is the critically important business park associated with the campus. This business is co-located within the campus grounds on the Carrington Road frontage on land proposed to be zoned Business Park The master plan provides for between 68,820m² gross floor area within this area This business precinct will likely proceed in a series of buildings that will be constructed over time as business partners for Unitec are secured This business park represents a significant commitment for co-location of appropriate activities which will both benefit from the research and innovation which comes with 40