Hokowhitu Campus Urban Design Report

Hokowhitu Campus Urban Design Report Prepared for Palmerston North City Council McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 1

Contents 1 Introduction 2 Context Location Site characteristics Institutional/mixed use 3 Design intentions 3.1 Design and development brief 3.2 Design rationale 3.3 Indicative planning and design outcome 3.4 Cultural responsiveness 4 Planning Controls 4.1 Structure plan 4.2 Provision for multi-unit housing 4.3 Development standards 5 Conclusions Authors: Graeme McIndoe Matt Wenden FNZIA, MA Urban Design, BArch(Hons), BBSc MArch(Prof), BAS McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 2

1 Introduction This report addresses the background and intentions for development on the Hokowhitu Campus, and describes both the intended structure plan and the background to formulating that plan. McIndoe Urban was commissioned by PNCC to assist with the development of planning and development approaches for the site in a collaborative process with both PNCC and Wallace Developments. In response to identified high level briefing intentions a number of site planning scenarios were prepared and these led to a preferred development plan with a focus on residential development. We also advised PNCC throughout the PC20 process leading to the district plan controls that are proposed to be applied to this site should it be rezoned as residential. This report describes some of the site analysis that informs the structure planning, the design and planning intentions for the project, and the design rationale for the solution chosen. 2 Context 2.1 Location The site, circled in figure 1 below is in a high amenity location well within the developed urban areas, close to Fitzherbert Avenue and bridge and both the city centre and the Massey University Turitea campus. It is also close to existing schools, the Esplanade recreational facilities and the Hokowhitu shops. Considering potential for residential growth in Palmerston North this, being well-serviced and central, is optimal. Figure 1: Site location McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 3

The local neighbourhood context is described in figure 2. This illustrates the unusual nature of the site and its immediate surroundings. This is the result of flood protection and water recreation to south and west, and recreation (the golf course) to the north and east. A Tangata Whenua site is located at the south east corner and the closest land zoned residential is at the south-west by the intersection with Jickell Street. This location therefore presents an exceptional setting for residential development surrounded by high amenity open space and the recreational facilities associated with those spaces. Figure 2: Extract from the district plan with graphic development including building footprints overlaid Vehicle access from Centennial Drive provides connection to the west and east. This is complemented by existing pedestrian and cycle routes that provide access along the river bank and across the oxbow lake to the north. This combination of features make the site suitably accessible. The existing high level of streetscape and open space quality experienced along Centennial Drive contributes to the quality of accessibility and the identity of any development on this site. This is illustrated in figure 3. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 4

Figure 3: Access and connections 2.2 Site characteristics Buildings, landscape and amenity In addition to the unusual degree of on-site amenity afforded by the quality of the surroundings and views towards these, the site includes existing landscape features, buildings and activity that further contribute. Figure 4: Building footprints, heights, site access, notable planting and on-site circulation McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 5

Existing buildings The central part of the site contains a cluster of high quality institutional buildings. Most buildings are occupied or are suitable for occupation with ongoing institutional uses, and most are sound. The exceptions are the gymnasium and related buildings at the central south-eastern portion of the site, that is, the one and two storey buildings against the golf course boundary to the south of the existing access road. These buildings are seismically unsound and have been vacated. The remaining, generally Modern era buildings, are typically robust and of high quality, and have been placed to form a coherent sequence of open spaces at the centre of the campus. These refer stylistically to the Brutalist architectural movement, an approach to architecture that is currently being reassessed and recognised internationally for its inherent architectural value. The substantial construction contributes gravitas, and the articulation of surface, form, structure and shadow casting detail contributes visual richness. These buildings and the spaces they form contribute significantly to the quality of the central part of the campus. Figure 5: Illustration of existing institutional buildings Trees and vegetation An existing kānuka grove at the north end of the site may contribute to the character of the area and the quality of the public realm there. This has a distinctive visual quality that merits at least part retention. The existing Memorial Grove located at the south-eastern end of the site against the flood-bank comprises a mixed collection of indigenous specimens. While these are mature and may have some merit as individual specimens, the net visual effect of the group is of the complexity of garden planting as distinct from the coherence of a natural grove. Nevertheless, these might provide amenity at the floodbank and at the rear of residential lots that are located there, and because they are located at the south boundary of the site, their shading effects will be minimal. Various mature exotic species are scattered around the campus, north of the Memorial Grove, and fronting Centennial Drive. While these have a strong visual presence these do not have sufficient merit to McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 6

justify retention. Any eucalypt species may be inconsistent with nearby residential, given a propensity to drop branches. Views The stopbank along the south boundary and trees along the eastern boundary with the golf course screen views. Nevertheless, while visually enclosing the site, trees along both of these boundaries offer some visual amenity here. There are however expansive views over the golf course at the northeast corner of the site, and towards the oxbow lake. Both of these views should be recognised in design with consideration of both maintaining view links from the public realm, and maximising the intensity of development with overlook towards the oxbow. Furthermore the nearby riverbank is signalled by the stopbanks. As a major landscape feature and recreational space, the existence of the river should also be signalled with view (and physical) connections towards the south. Figure 6: Analysis of site edge conditions and view potential Services and infrastructure A sewer main extends across the southern part of the site from the golf course to the pumping station at the south-west corner of the site. The oxbow lake has an overflow stormwater connection to the riverbank. Both of these services require access for maintenance and have been considered in the placement of buildings and open space. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 7

2.3 Institutional/mixed use Most of the buildings remain in use with institutional/educational tenants. This maintains continuity with the original purpose of this facility while at the same time avoiding compromise with the intensity of commercial activity in the city centre. The marae is an important cultural establishment, being the first pan-tribal urban marae in New Zealand. It is a valuable community asset. These uses contribute a mix of activity and the vitality that results from that to an otherwise residential environment. Being well established they are well integrated and compatible with the residential neighbourhood to the west. Continuation of such uses offers a number of neighbourhood benefits: Potential for community use of some facilities from time to time, including the marae and the lecture theatre facilities Support for local facilities such as a café Presence of people during the day contributes to informal surveillance and security within the neighbourhood. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 8

3 Design intentions 3.1 Design and development brief This, being a planning and design collaboration between PNCC and Wallace Developments required a response that integrated both public amenity/services and private development objectives. An overarching brief was: High end development Meeting the market Maximising amenity value Providing a liveable urban neighbourhood High residential amenity and choice, and Certainty of high quality Recognising the importance of this area to Rangitāne, cultural factors were also to be considered in planning and design. In response to this McIndoe Urban prepared a return brief that identified overarching intentions and principles to inform design. This brief was aspirational, and used to inform early design thinking. It is recorded below: OVERARCHING INTENTIONS 1 Attractive residential/mixed use precinct This will be achieved by: Comprehensively planned development that optimises urban development within this unique setting, and integrates a mix of activities and potential for types of residential development. High quality public realm as an integral part of a successful high-end residential environment and an attractor for tenants within the existing institutional buildings. Maximisation of the benefits of proximity to open space assets of oxbow lake, golf course and Manawatu River bank Retaining visibility of the Institutional activities and buildings from Centennial Drive. 2 Liveable urban neighbourhood This will be achieved by: Integrating the places, spaces and activities that provide for a sense of community to develop. Quality public open spaces and recreational opportunities that will attract and support families and residents of all ages. Concentrating residents and provision for visitors to support local services and activities. Re-purposing character buildings for community uses. 3 Flexibility and choice This will be achieved by: Providing urban blocks capable of accepting a mix of lot sizes, to accommodate a range of housing types, provide for a variety of residents and respond to changing market expectations. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 9

Providing a mix of lot sizes, types and situations to provide for a variety of resident expectations. 4 Public generosity This will be achieved by: Open space within the southern end of the development and view corridor connections from the interior to the golf course and oxbow lake. Ensuring private development connects with and addresses the public realm in a positive way. 5 Certainty of high quality This will be achieved by A comprehensive public space plan Development framework, guidelines and processes to assure quality outcomes. Scope for design flexibility in the framework and guidelines to optimise the type and quality of development as it is implemented over time. In my opinion these intentions have all been realised in the site development plans which have been used to create the structure plan. In addition, the following design principles were established at the predesign stage in order to inform design: DESIGN PRINCIPLES Urban Form 1. Encourage two storey and possibly three storey buildings to maximise aspect over the oxbow lake and golf course, and achieve a scale transition to the institutional buildings that remain. 2. Breakup large building forms to achieve sense of verticality and intricacy, and avoid a monolithic effect or excessive horizontality. Achieve this with skyline variation, offsets between building alignments, and gaps between. 3. Maximise the intensity of development along the Centennial Drive edge. Structure 4. Develop a comprehensively designed system of streets and open spaces of memorable character and quality that provides an attractive setting for residents, and when implemented in stages is coherent and logical at each stage. 5. Maintain visible links to the centre of the campus from Centennial Drive, and from there to key open space features so that all residents have a sense of, and benefit from, the uniquely high quality of the setting. 6. Draw from alignments of major institutional buildings, boundary alignments and Centennial Drive to eliminate as far as possible awkward shaped lots, and to achieve a sense of linkage with site and context. 7. Express a sense of visual hierarchy in the street system. Landscape 8. Retain intensive planting of the Memorial gardens and stopbank as a green backdrop at the south edge of the development. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 10

9. Retain good quality existing planting where its location is consistent with public realm plans. This will give a sense of establishment and soften predominant built form. 10. Green links/views to the planted stopbanks. 11. Constructed open spaces including promenade and village green on the flat. Urban Space 12. Place buildings to front onto and define the edge of Centennial Drive (as well as benefit from this high quality frontage and views over the oxbow lake) 13. Integrate a variety of public spaces and places that are available to and support all residents, and contribute to the sense of public space and landscape generosity that is the unique aspect of the setting for this campus. 14. Provide for everyday recreation within the development including kick-about spaces. 15. Provide visitor car parking in strategic locations, integrated in a way that does not dominate streets and public spaces. Activity mix and location 16. Maintain provision for a mix of activities in the long term that will support residents in a high quality residential neighbourhood. 17. Retain key institutional buildings in the long term to contribute to mix of uses. Lot Planning 18. Locate garaging and private parking away from the street edge, behind and/or under development to provide a high degree of on-site amenity and respond positively to the public realm. Character and identity 19. Ensure visual connections from within the development to the oxbow lake, golf course and riverbank 20. Foster intricacy and variation with multiple development sites, integrated by a comprehensively designed and coherent public realm. The indicative design outcome develops from this initial pre-design thinking. As more work was undertaken including further site analysis and refinement of the development brief, the design principles were also refined. However insofar as these principles can be responded to at a structure planning stage, the general intent of these principles has been maintained. 3.2 Design rationale In responding to these briefing intentions and principles, seven project-specific directions have been followed. These establish the structure and form of the development proposal and the structure plan which is derived from that. These directions establish the design rationale for the plan and are as below in figure 7: McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 11

McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 12

Figure 7: Design rationale 3.3 Indicative planning and design outcome Responding to the design brief and in accordance with the design directions described above, the planning and design logic is as described with the indicative planning and design outcomes below. Two variants of a potential/likely design outcome are shown, and this is the optimal outcome preferred by both Wallace Developments and Council officers. The first (figure 8) would be the overarching and possible end state that would be facilitated by the plan change. The second (figure 9) describes the proposed first two stages of development and shows how urban structure and land use can be coordinated with ongoing use of the institutional buildings. These drawings show logical lot layouts, and the recommended location of a rear lane in the lot facing Centennial Drive and between the proposed Kānuka grove and the oxbow lake. The intent of these lot layout studies is to demonstrate the suitability of the street and block layout which can be then taken into a structure plan within the District Plan. The precise configuration of lots may change as development occurs over time so this lot layout should be taken as indicative. Similarly the landscaping shown is indicative, describing an approach to streetscape design and the space connecting the oxbow lake to the river, but not an actual design. Detailed landscaping design would be undertaken as part of future work but in general accordance with this illustrative approach. The logic behind this detailed layout is described on figure 8 and related text: McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 13

Figure 8: Indicative lot layout and design of complete residential development, with planning and design logic described by the numbered points below: 1. Large, highest value lots with north, golf course orientation 2. Lots with views over the kānuka grove 3. Established trees (kānuka grove) give a sense of place and provide a pleasant outlook from intensive housing 4. Maximise number of lots with views to the oxbow lake 5. Blocks configured to allow alternative lot layouts 6. 7m wide rear lane access to maximise frontage to lake and kānuka grove respectively 7. Street alignments provide for staged development, relate to the grid of the existing campus, and allow connection to and through these buildings 8. Interconnected street system for good access and to allow for staged development 9. Narrower (14m) road reserve width and moderately sized street trees to internal streets 10. Widest (16m) road reserve width and large street trees to the perimeter street 11. Realigned sewer main under road reserve 12. Public connection kānuka grove and area to the south 13. Park integrates cultural elements, provides spatial connection, high quality open space and landscape link from oxbow lake to the river, with storm-water main below 14. Potential to celebrate the story of historical Rangitāne occupation of this area 15. River link signals historical connection and provides for recreational circuit 16. Public view connection to the golf course 17. Corners of lots angled for accessibility and view connection The street and block structure is formed to facilitate retention of the institutional buildings in stage three and the access to and around them. The layout also allows for partial implementation of the stage 3 residential development should that be required. This is because the McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 14

alignment of most parts of the street grid proposed for this area is the same as the alignments of the buildings in this area. Figure 9: Plan of Stages 1 and 2 demonstrating how the proposed street and block layout allows for continued use of the intuitional buildings and facilities in the stage 3 area of the site In this scenario as described in figure 9: existing institutional use remains, allowing for a mix of uses and activity, adding to the vibrancy of the area; the Te Wānanga o Aotearoa administration building may be relocated and the layout allows for multiple alternate sitings; and car parking is retained for institutional uses. 3.4 Cultural Responsiveness Parts of this site are of significance to Rangitāne, and this is recognised in the district plan. This is a major opportunity to develop a layer of cultural richness that is an authentic response to history and cultural significance of the site. The approach has been to respond to this in a comprehensive way which integrates cultural features with public space, access and storm-water management. There is potential to link the oxbow lake to the river in a way that expresses historical occupation by Rangitāne. The plan diagram shown in figure 10 is extracted from the indicative layouts above and is purely conceptual. It is intended to highlight opportunities that might be explored in this area by Wallace Developments and PNCC with Rangitāne. The first and most significant concept is collaboration. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 15

Figure 10: Indication of potential for cultural expression Design possibilities for cultural responsiveness and expression here include but are not limited to: Paths and planting to make visual and physical connection Representation of water flows with landscape Rain gardens for water treatment Locally sourced indigenous riparian planting Markers to signal historic occupation This potential was described and discussed in a meeting of PNCC officers, Wallace Developments and McIndoe Urban with Rangitāne representatives. At that meeting landscape design precedents from other places were also presented to describe some possibilities. This was well received. The principles described above might be used to inform a brief for the design of this space, a brief and subsequent design which should be developed in consultation with Rangitāne. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 16

4 Planning Controls 4.1 Structure plan The concept has been extended to create a recommended structure plan for inclusion in the district plan. This is described in figure 11. Figure 11: Recommended structure plan 4.2 Provision for multi-unit housing Multi-unit housing is appropriate in this location because of the unusual nature of both the site and its surroundings: Proximity to city services, facilities and destinations, makes the site suitable for higher intensity housing. Considering potential for residential growth in Palmerston North this site is close to optimal being within the existing urban area, well-serviced and reasonably central. Surrounded by high amenity open space and the recreational facilities associated with those spaces, the site presents an exceptional setting for residential development. This setting can accept higher density development, and will provide visual amenity and recreational benefits to residents here. As a consequence of the openness of the setting, from a residential perspective this part of the city may be underdeveloped. Providing potential for multi-unit housing may to a minor extent addresses that. Considering character, existing relatively large and tall institutional buildings allows larger multi-unit developments to be readily McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 17

visually integrated. Even if there were to be large terraced developments (although the block structure would tend to preclude very large developments), they will be in scale with the existing large buildings. These features together establish the conditions where provision for multi-unit housing is desirable, and where that housing can fit well within its context. 4.3 Development standards The intention is that the decision-version of the city s general Residential zone controls (PC20) be applied to the site, and this is appropriate. These controls, including the assessment criteria for multi-unit housing, apply to development in the residential zones across most of the city and have recently been confirmed following the intensive scrutiny and deliberation of a statutory process. However, variation should be provided to accommodate maintenance of institutional activity, frontage and fence conditions, and the intended provision for terraced housing. These matters are discussed below. Maintenance of institutional activity This use is defined so as not to dissipate the commercial vitality of the city s Business zones. Being well-established, it is also demonstrably compatible with the local neighbourhood. Mixed use such as this contributes to choice and diversity, both of which are valued in urban design values, and continuation of institutional use within a primarily residential area offers a number of specific neighbourhood benefits as noted in section 2.3 above. Frontage and fence conditions Characteristics of this site including frontages to the public realm including public open space on all four sides and the intentions for development on it demand greater control over frontages than is provided for by the operative residential controls. These intentions of achieving high quality development and a high quality public realm, mean that frontage and public open space boundary treatments become increasingly important. Particularly sensitive frontages include those along the boundary with the golf course, around the proposed kānuka grove, and the public open space at the south-east corner of the site which links the oxbow lake and the river reserve. The quality of the edges of that latter space are crucial given its significance to Rangitāne, therefore frontage control must be maintained. There is both a need for and an opportunity with this greenfield site to establish optimal conditions, and this includes restricting closure with high fences right along frontages. In addition the block layout has been designed to provide for sunny and private rear yards, avoiding any need for private open spaces at the street frontages for most lots. (see figure 7: Block alignment to optimise lot orientation to the sun ) McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 18

Considering the quality and amenity of the public realm: Proliferation of continuous high front fences compromises the quality of the environment for pedestrians, and the quality of the street environment. Evidence demonstrates that security is enhanced by frontage treatments which allow the front of the dwelling to be in view, and that security is compromised by high solid front fences. This is because high solid fencing blocks informal surveillance from the street or neighbouring dwellings and in doing so provides cover for any intruder. The proposed controls allow for considerable design and planning flexibility. Provision for one third of the fence to be high solid fencing allows for private space in the form of an outdoor room - to be screened at the street frontage. Planting can also be used to contribute to privacy and spatial definition in the front yard. The safety of small children is provided for with fencing that is permitted to 1.1m, or 1.8 m if suitably visually permeable, and by maintaining low front fencing close to the driveway. While covenants might be used in combination with a district plan approach, the site and development intended on it have a special character which should be maintained over time, and controls within the district plan will ensure continuity of control of this important matter. Setbacks for garages fronting a lane A rear lane is intended in combination with provision for multi-unit / terraced housing here, specifically. A rear lane, by definition, is not a frontage. Instead it provides for vehicle access and garages, and allows the frontages of the lots here facing both the kānuka grove and the oxbow lake to be unencumbered by vehicle access. It is both acceptable and desirable that garages are not set back from a lane boundary because setback requirements would: compromise the spatial definition of the lane which relies on being relatively narrow; unnecessarily restrict the utility and development potential of the relatively small sites intended for terraced housing here; and a 7m lane width provides for turning into the garage no further width is required. While setbacks should not be required, one or more garages may be set back should the site planning of any development determine that is an optimal solution, or that some variation is desirable along the length of the lane. The proposed standard does not preclude that option. Landscaping to street frontage by side entry garages A standard is proposed to require landscaping at the frontage of side entry garages facing the street edge. Highly visible, blank garage walls at the street edge can compromise the streetscape and this is unnecessary and detrimental to the image of the development that is to be created, as well as to the public realm. Furthermore, the site McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 19

fronts to Centennial Drive and there are high expectations for the quality of the streetscape there as well as within the site. This matter can be readily addressed by the proposed standard. In addition to contributing to the visual appeal of each frontage, appropriately scaled planting will not be onerous to establish. More rigorous controls such as articulation or openings in the façade or large scale landscaping such as trees are not required. This is because the combination of the lower level landscaping that will result from the proposed standard in combination with the street trees that are signalled by the subdivision controls will ensure any blank garage façade will not be visually dominant. Additional setback requirement The plan change provides for reduced setbacks at the side boundaries of corner dwellings. This is in combination with requiring a minimum proportion of glazing to the walls facing towards this side, but secondary, street boundary. While that control is primarily to facilitate good quality terraced housing it applies, appropriately, to all corner lots within this area. This degree of flexibility is consistent with the planning intentions for the development here, which anticipates multi-unit, terraced housing in particular associated with the lanes, and both greater intensity and a variety of development intensities. The minimum glazing requirement also recognises the need for an appropriate frontage to the street. Reduced setback for the side boundary of all corner sites allows for optimal use of land in a high amenity neighbourhood, and for better use of land and higher amenity on any corner site within that neighbourhood: Because site coverage standards remain in place, a reduced side yard will not lead to over-intensification or over-development on any site. Rather it will allow optimal placement of the un-built portion of land on the corner lot. Specifically, it will allow a larger proportion of private open space to be located away from the street edge. It will give a degree of spatial definition to side streets, which is a positive townscape outcome in that it contributes spatial variety. There will be no privacy compromises given the combination of road reserve and frontage setback giving appropriate separation. A separation distance of 17 metres (assuming a minimum 14m road reserve and 1.5 metre setbacks both sides) is acceptable for visual privacy. Privacy is further enhanced due to the screening of views across and along the street resulting from the intended street landscaping. A 1.5 m setback provides sufficient distance from the street edge which allows window and on-site planting design to readily provide for privacy from the adjacent footpath. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 20

5 Conclusions 1. The site is well located and ideal for residential development. 2. Residential development is compatible with ongoing institutional use of parts of the site. 3. Detailed planning and design investigations have resulted in a design approach which is consistent with best-practice principles of urban design, and which responds well to the characteristics of its setting and wider context. 4. The proposed structure plan is principle-driven, and is optimised as it is informed by investigation of multiple development options for the site. 5. Provision is made for positive recognition of Rangitāne interests with appropriate facilities integrated into a generous public space at the entrance to the site, linking oxbow and river, and this approach has been positively received by Rangitāne. 6. The District Plan provisions including the structure plan will achieve an appropriately high degree of on-site amenity. 7. The city s residential controls are, with addition of the proposed site-specific standards, an appropriate means of ensuring quality. Additional controls are required to address frontages given the high degree of frontage to public areas within and around the site, and the intention of providing for lane access and terraced development. McIndoeURBAN Hokowhitu Campus Urban Design Report 14 March 2017 21