DISTRICT PLAN REVIEW - Rotorua...Commercial H (Commerce Park) The area known as Eastgate, providing for mixed use commercial activity. Residential D (Residential/Office) Applies over

JULY 2009

DISTRICT PLAN REVIEW

DISCUSSION PAPER 6B – POLICY DIRECTIONS

COMMERCIAL

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DISCUSSION PAPER 6B

COMMERCIAL POLICY DIRECTION

CONTENTS

1. INTRODUCTION 2

2. STATUTORY FRAMEWORK 3

3. EXISTING DISTRICT PLAN ADEQUACY (RAID ASSESSMENT) 8

4. ISSUE IDENTIFICATION 11

5. STRATEGIES FOR RESPONSE – POLICY OPTIONS 12

6. RECOMMENDATIONS 17

7. POLICY DISCUSSION 19

8. POLICY DIRECTION 26 Doc No: RDC-184155 File No: 65-17-036

This document has been produced for discussion purposes to assist with the review of the Operative Rotorua District Plan. The views expressed in this paper do not represent a policy decision of Council, nor do they represent the views of Planning Services. None of the recommendation and resulting decisions hold any statutory weight. This document remains a discussion paper only.

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1 INTRODUCTION The purpose of this paper is to review the major issues that need to be considered in the development of policies, objectives, and rule framework for the management of commercial activities in areas other than those in the CBD. The CBD will be discussed at a later workshop. Council has a number of zones set aside for commercial activity, 11 in total within the district. These range from small suburban areas for dairies to large format retail (LFR) activities. Each has its own character, function, and context which requires different management approaches. The following table was included in the discussion paper on zones and summarises each zone intended for commercial activity: Commercial A (CBD Core) Core of the CBD and encompasses the area between Amohau and

Hinemaru Streets, extending along Tutanekai Street. Commercial B Area around the outskirts of the CBD and surrounds the Commercial

A area. Commercial B1 (Rotorua Central) Encompasses the Rotorua Central Mall. Commercial C (Major Urban Centres) Provides for commercial development at Ngongotaha, Te Ngae Road,

and Westend. Commercial D (Suburban Centres) Zones of retail that are situated in the middle of residential areas, of

which there are 34 pockets in and around the city. Commercial E (Service Station) Provides for service stations in the urban area (Springfield, Old Taupo

Road, Fairy Springs Road. Commercial F (Rural shop) Commercial activities in rural areas, of which there are seven. Commercial G (Mixed enterprise) Overlaps with activities that may occur in the industrial area and are

not suited for the CBD, such as car yards. There are currently 2 Commercial G zones to the east and west of the city.

Commercial H (Commerce Park) The area known as Eastgate, providing for mixed use commercial

activity. Residential D (Residential/Office) Applies over the Ranolf/Pukuatua/Whakatau Street triangle area, and

provide for limited professional office and other non-residential activities.

Transitional Development Zone Applies over a small area to the north and west of Salisbury and

Victory Roads, and provides for industrial, trade, transport, and storage facilities.

Council has a number of projects under way that deal with management and/or redevelopment of commercial areas in the district. Many Council’s have developed, or are currently developing commercial area management approaches and these are summarised in Section 2 of this paper. Following consideration of the legislative context, an analysis of the existing district plan and issues that arose during community consultation is provided. The paper examines the planning framework of the operative district plan and identifies what is working, what is not, and what gaps exist. Issues are then identified from this analysis and also from the ‘Issues Paper’ resulting from the fresh ideas consultation process. The paper concludes with a number of options for consideration that will influence the way in which commercial areas are to be managed in the new district plan.

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2 STATUTORY FRAMEWORK The following table overviews the key national, regional, and local government statutory frameworks that provide guidance for addressing any key issues that have been raised. Key issues to note: � The Environment Bay of Plenty and Environment Waikato Regional Policy Statements (RPS) identify

matters that Council ‘must give effect to’ as a part of the plan review process. These documents are currently being reviewed;

� Commercial decisions are largely market-driven and care must be taken not to unnecessarily affect the workings of the market;

Table 2.1 Statutory Framework

STATUTE/

DOCUMENT

RELEVANT SECTION COMMENTARY

NATIONAL LEVEL

Resource Management Act 1991. (RMA)

5 Purpose To promote the sustainable management of natural and physical resources. 6 Matters of national importance all persons... shall recognise and provide for (f) The protection of historic heritage from

inappropriate subdivision, use, and development.

7 Other matters …all persons…shall have particular regard to – (c) The maintenance and enhancement of

amenity values;

The RMA does not specifically refer to commercial activities. However, the Act aims for sustainable management of all natural and physical resources. The Act also identifies, as a matter of national importance, the protection of historic heritage, and requires that particular regard shall be had to maintaining and enhancing amenity values, and the quality of the environment.

Local Government Act 2002

10 Purpose of local government The purpose of local government is— (b) to promote the social, economic,

environmental, and cultural well-being of communities, in the present and for the future.

14 Principles relating to local authorities ...a local authority must act in accordance with the following principles: (h) in taking a sustainable development

approach, a local authority should take into account —

(i) the social, economic, and cultural wellbeing of people and communities; and

(ii) the need to maintain and enhance the quality of the environment; and the reasonably foreseeable needs of future generations.

The provisions of the LGA enable Council to play an active role in the promotion of economic wellbeing. The Act also promotes a balanced approach to development that maintains resource quality, protects resource availability for the future, ensures that the environment is not degraded, and considers community wellbeing.

Local Government (Rating) Act 2002

3 Purpose The purpose of this Act is to promote the [purpose of local government set out in the Local Government Act 2002] by— (a) providing local authorities with flexible

powers to set, assess, and collect rates to fund local government activities:

(b) ensuring that rates are set in accordance with decisions that are made in a transparent and consultative manner:

The LG(Rating) Act enables Councils to collect revenue for certain matters in certain ways. This includes targeted rates which Council currently collects for the promotion of Rotorua as a tourism destination.

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STATUTE/

DOCUMENT


National Guidelines for Crime Prevention Through Environmental Design in New Zealand

(CPTED)

The seven qualities for well-designed, safer places are: � Access: � Surveillance and sightlines: � Layout: � Activity mix: � Sense of ownership: � Quality environments: � Physical protection:

Well designed spaces are safe, welcoming and can encourage positive experiences in commercial areas, making them desirable places to carry out commerce.

REGIONAL LEVEL

EBOP RPS and Regional plans

Policies 13.3.1(b)(iv) To protect transportation and utility networks, infrastructure and public works from the adverse effects of subdivision and land use. 13.3.1(b)(vi) To avoid or reduce the adverse effects on the environment, relating to the use and development of the built environment and the construction, operation, and decommissioning of physical resources and infrastructure. 13.3.1(b)(viii) To discourage uses of land, for example for urban development or settlement growth, which would: (h) Result in the loss of recognised historic heritage. District Councils are encouraged to: 13.3.1(c)(xi) Promote consolidation of existing urban areas as a means of ensuring efficient use of land and existing infrastructural resources. 13.3.1(c)(xiv)Discourage unnecessary ribbon development.

The RPS provides general guidance with regard to the management of the built environment. Matters such as the protection of the transportation network, protection of historic heritage, consolidation of urban areas, and the discouragement of ribbon development are important considerations for commercial areas. The RPS is currently being reviewed.

LOCAL LEVEL, INCLUDING RDC CORPORATE DOCUMENTS

Draft 10 Year Plan 2009-2019

The Ten Year Plan contains three key themes. These are: (1) economic growth, (2) sustainability, and (3) affordability. The Mayor and Councillors’ ‘Top Ten’ Strategic Issues are included and prioritised in the Plan as follows: 1 A vision for the district 2 Affordable/equitable rates 3 Lake water quality 4 Crime 5 Trans-Tasman Airport 6 Sustainable development 7 Economic development 8 Waste management (including recycling) 9 Tourism promotion 10 Air Quality Most of the top 10 issues have some level of bearing to the management of commercial areas. The Grow Rotorua Development Fund has also been established as a part of Council’s response to the decline in economic conditions. A policy as to how the policy is to be administered is currently being developed.

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STATUTE/

DOCUMENT


Bylaws There are a range of Bylaws relevant to commercial areas. These include the following: Prostitution Bylaw 2009 � Public Places and Liquor Control Bylaw Traffic Bylaw 2008 � Water Services and Trade Waste Bylaw 2004 � Signs on Roads Bylaw 2008

Engineering Asset Management Plans

Some Council assets have strong relationships with commercial activities and commercial areas. The following Engineering Asset Management Plans are relevant to commercial activities and areas: � Airport � Land Drainage and Stormwater � Roading � Wastewater Supplies � Water Supplies (Rural and Urban)

Operative Rotorua District Plan

The Operative Rotorua District Plan includes provisions for the management of commercial activities and zones. These provisions are subject to a RAID assessment in Section 3 of this paper.

Other district councils

A number of Councils have different approaches to managing commercial areas. A summary is provided in Table 2.2.

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Table 2.2 Summary of District Plan Provisions from other Councils

COUNCIL TOPIC / COMMENT

Tauranga City Council

The draft Tauranga district plan has four areas of policy direction. These are general policies addressing servicing and the design of commercial areas, the City Centre, specific area policies, and for Town, Neighbourhood, and Local Centres.

The plan recognises the different roles each type of commercial centre type plays and also seeks to enhance or maintain particular amenity characteristics of certain commercial areas.

Alignment with servicing and transport modes is a key policy direction, along with the inclusion of urban design and CPTED measures.

Western Bay of Plenty District Council

The strategic framework of Western Bay Proposed Plan has a strong focus on ‘Town Centres’ and ‘Town Centre Plans’. These plans are statutory design guides Other parts of the commercial zone are not specifically mentioned in the Objectives and Policies.

Hamilton City Council

The Hamilton City Proposed District Plan (partially operative) provides a focus on the CBD area, and includes provision for inner-city living. However, new centres of commercial activity are encouraged to establish in areas where adjoining activities and the transportation network can cope with their effects.

Note: The provisions have provided for the establishment of a Large Format Retail (LFR) complex (The Base) which has resulted in a perceived loss of vitality in the CBD. It has been indicated to Officers that the plan is to be reviewed to examine retail consolidation and will incorporate the CityHeart revitalisation project.

Hastings District Council

The Hastings District Plan has an approach based on allocating areas (centres) of commercial activity zoning according to their role and function in the District. This centres based approach seeks to protect the specific amenity and heritage factors within each commercial centre type. This includes the CBD centre, heritage precinct areas, an LFR centre, commercial service centres, and suburban commercial centres.

Specific provisions for development and redevelopment in character areas seek to retain, where possible the existing character/heritage buildings, or for new buildings, enable redevelopment to be compatible with existing development.

Christchurch City Council

The Christchurch City Plan identifies three commercial zone types, ‘Central City’, ‘Suburban Centres’, and ‘Low Density Retail Parks’ (LFR). The focus of management appears to be on the maintenance of the form and function of the central commercial area and the maintenance and enhancement of the amenity of the areas surrounding other commercial centres, and maintaining the effectiveness and efficiency of the transport network. This includes consideration of cumulative effects.

The plan identifies that other suburban centres provide a legitimate service to the local community it serves. It also highlights that a broad range of commercial resource is desirable, particularly for non-retail type activities to meet the needs of the community.

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COUNCIL TOPIC / COMMENT

Papakura City Council

This plan identifies and supports four commercial zones based around the differing effects, sizes, and types of commercial centres. The objectives and policies of the Papakura Plan highlight issues such as visual/building design and pedestrian integration. The plan also focuses on consolidating and supporting the existing town centres recognising their value as focal points and as a means of identity for locals and visitors alike.

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3 EXISTING DISTRICT PLAN ADEQUACY (RAID ASSESSMENT) The operative district plan has 11 commercial centre zones including Commercial A to H, Residential D, and the Transitional Development Zone. The issues around managing commercial areas are about getting the right balance between provisions that enable, but also manage the effects of commercial activities. This makes clarifying the issues and developing a clear policy framework difficult to achieve – clearly a balancing act is required. However, given that commercial centres are the ‘engine rooms’ of a community it is critical that the policy direction is clear and supportive of management, development, and growth of existing and future centres. A RAID technique was applied (detail in table below) to the ‘snapshot’ and provided below.

Recommendation What it Means

R REMAIN The wording and intent of the issue, objective or policy is still relevant and should be included in the next district plan, as it appears in the existing plan

A AMEND The intent or purpose of the issue, objective or policy is still valid, but the wording requires amendment to align it with current best practice

I INCLUDE The issue, objective or policy does not currently exist in the district plan and needs to be incorporated

D DELETE The issue, objective or policy no longer has relevance and should not be reflected in the next district plan.

3.1 Issues There are three directly relevant issues in the plan that are still considered to be current. The issues are current and accurately reflect most of the issues facing commercial centres with some amendments. Table 3.1 Assessment of issues relevant to the Commercial Zones in the Operative District Plan

Issues Plan part

RAID Assess

Reason

Inappropriate extensions to the central business district may result in a loss of amenity arising from fragmentation and loss of integration.

4 Amend The issue is current, but is not identified in the current chapter that deals with commercial areas. The issue should remain, but its scope extended to reflect factors other than amenity that may be lost, and its location should be revised.

Commercial activities may threaten the amenity of neighbouring residential and other areas.

8 Remain This issue is current and should remain.

Some activities can threaten the amenity of existing commercial centres.

8 Amend This issue is current but it has been expressed in a manner that is too broad, does not identify which type of activities affect amenity, or how this occurs. The issue should identify which activities affect the amenity of commercial centres and include a statement as to why.

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3.2 Objectives

There are two directly relevant objectives in the existing plan. The objectives, while relevant, do not appear to provide comprehensive or significant direction, and are therefore inadequate on their own. Table 3.2 Assessment of objectives relevant to the Commercial Zones in the Operative District Plan

Objectives Plan part

RAID Assess

Reason

Commercial activities which do not adversely affect the amenity values and environmental quality of neighbouring areas, particularly in those areas where people reside.

8 Remain The objective is relevant, but would benefit from some re-wording.

Protection, maintenance and enhancement of amenity values in centres of commercial activity.

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Remain This objective is relevant, but could be broadened to include elements of amenity values such as heritage and character in the built environment.

3.3 Policies The following table provides a snapshot in the current district plan. Most of the current policies in the plan focus on the CBD and do not provide significant direction for the management of other commercial areas. The existing policies highlight that there is a relationship between commercial areas and the CBD with regard to environmental effects. Therefore, some of the policies referring to the CBD have been included in the assessment. Table 3.3 Assessment of Policies relevant to the Commercial Zones in the Operative District Plan

Policies in the Operative District Plan Plan Part

RAID Assess

Reason

Commercial activities will be restricted in those areas outside existing centres of commercial activity where the amenity values and environmental quality are less resilient, unless any adverse effects on amenity values and environmental quality are minor.

8 Amend This policy may conflict with the policies in other zones that seek to maintain and enhance amenity, or promote consolidation within existing commercial footprints. The policy may also encourage poor levels of amenity for new commercial areas. Additional sprawling development is encouraged by this policy.

To avoid, remedy or mitigate potential conflicts between pedestrian and vehicular traffic, including the provision of adequate car parking.

8 Remain This policy is relevant, but will benefit from minor rephrasing.

To ensure that new development or redevelopment is appropriate to Rotorua and to the particular environs or streetscape.

8 Remain This policy is appropriate as development that is not compatible with the environment in which it is located can result in significant adverse environmental effects.

To improve legibility within the city with particular consideration of its function as a tourist centre.

8 Remain This policy is relevant, but will benefit from increasing the scope of visible identity beyond its focus on the function of the city as a tourism centre.

Commercial activities shall be required to avoid, remedy or mitigate adverse effects on the amenity and environmental quality of the centres of commercial activity in which they are located.

8 Remain This policy is appropriate, but may benefit by specifically identifying what amenity targets are appropriate for each type of commercial area.

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Policies in the Operative District Plan Plan Part

RAID Assess

Reason

To ensure that commercial development and expansion outside existing commercial areas occurs only where adverse effects on the amenity of those commercial areas are avoided.

8 Amend The policy is current, but is limited in terms of the issues it addresses. Amenity is not the only issue identified in the existing plan, and as such, the terms of reference should be expanded to include these matters.

3.4 Summary of district plan evaluation The existing district plan identifies a number of issues that are still current. The objectives are generically comprehensive enough to address or provide desired outcomes in regard to the issues identified at this point. As a result there are several policies that are inconsistent with each other. Many of the policies have little or no relationship to the objectives. It is also evident that much of the policy framework is directed at the CBD, with many zones and subzones not receiving any specific guidance from the objectives and policies of the plan. However, a number of policies require only minor amendment in terms of how they are expressed to improve their workability and effectiveness. As such, a significant portion of the existing policies are recommended to be retained in some form. Table 3.4 Summary outcomes from district plan evaluation

Issues � Revise wording to improve clarity � Broaden their scope � Amend the location of several issues � Insert statements that address developing issues identified through

consultation and discussion

Objectives � Remove ambiguity and improve clarity � Adjust wording of objectives to simplify and reflect outcomes of discussion � Insert objectives that have been identified as a result of consultation and

discussion

Policies � Improve clarity of the policies so that they provide more constructive guidance for assessing and deciding on consent applications in relation to identified objectives

� Improve clarity of policy direction � Insert policies that flow from revised issues and objectives statements

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4 ISSUE IDENTIFICATION Consideration of the issues raised by the community and the review of the strengths and perceived weaknesses of the existing district plan, will lay the platform for the review of the issues in relation to urban design. The ‘Towards a New District Plan Issues Paper’ consolidates all of the issues from the Fresh Ideas community engagement process, including issues from technical feedback, community meetings, elected members input, and from Iwi. The following section identifies five issues of particular relevance to this theme and provides focus on key issues in contention. Table 4.1 Issues raised during consultation.

TYPE/ORIGIN ISSUES RAISED DURING CONSULTATION

Technical

Iwi

Community

Elected Members

SUMMARY NOTES FROM CONSULTATION

Character and context of commercial areas

X X Areas of commercial activity in the district have their own character, operate in a particular context, and performs particular roles/functions.

Commercial leakage, sprawl, and conflicts of uses

X X X Commercial leakage and sprawl outside the CBD has been identified. Commercial sprawl can weaken the efficient function and operation of the CBD and can have amenity effects. Commercial activities can conflict with existing uses and vice versa. Commercial sprawl out of commercially zoned areas is also of consequence.

CPTED and Urban Design X X X There is a perception that commercial areas can be un-safe, particularly at night due to the physical design of the neighbourhood. Safety is not restricted to design; some uses in commercial areas are not compatible with surrounding non-commercial uses.

Retain Ngongotaha commercial character

X X A number of submitters encouraged further development within Ngongotaha, while maintaining its character, keeping it physically separated from urban Rotorua, but developed strategically.

Traffic, parking, turning, loading and accessibility

X X X A number of submitters felt that these provisions were in need of review, particularly as they relate to roads carrying significant amounts of traffic.

Managing the balance of providing for signage

X X The majority of the sign rules in the plan have not been updated since the transitional plan.

Availability of suitable land X X Finding larger blocks of land for comprehensive development is difficult.

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5 STRATEGIES FOR RESPONSE – POLICY OPTIONS The major issues described in Sections 3 (district plan analysis) and 4 (community consultation) were consolidated into the following topics, some containing multiple issues. The topics are summarised below, followed by a short discussion of salient points.

Action points

DP

Evaluation

(Section 3)

Consultation

Theme

(Section 4)

Character and context of commercial areas

� Identification of the character and context of commercial areas to provide for the variety of commercial activities within the district.

� Active management of commercial character, reinforced through the management of commercial amenity.

X X

Commercial leakage, sprawl and conflicts of uses

� Consolidation of commercial activity within areas able to service and provide for a quality commercial experience.

� Managing existing areas of sprawl and provision of strong policy direction to reduce continual commercial leakage throughout the district

X X

Crime Prevention Through Environmental Design

� Increase the importance of the promotion of CPTED principles throughout areas of commercial activity

X X

Retain Ngongotaha commercial character

� Continued support for the Ngongotaha commercial and retail area as being core to the village feel of the town

X X

Traffic, parking, turning, loading and accessibility

� Off-site parking, loading, and turning can provide ‘dead areas associated with commercial activity

� Needs to be a considered balance between the needs of parking and turning and efficient commercial activity areas

X X


� Applicability of a balanced approach to signage that enables commercial activities to advertise

� A level of signage permissible that contributes to commercial character

X X

Availability of suitable land

� Restricted availability of appropriately sized commercial land parcels in strategic locations.

X X

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5.1 Character and context of commercial areas



Response There are a number of distinct areas of commercial activity in the district. Ngongotaha, as an area of village character servicing a small residential and rural catchment context is quite distinct from the commercial strip development along Fairy Springs and Old Taupo Roads, the Te Ngae Shopping Centre, or the many suburban commercial dairy type activities. Other areas have some specific characteristics, but many areas appear un-cohesive as there is very little differentiation in the provisions for the 11 different zones in the current plan. Poorly managed and/or located activities can adversely affect the character of areas of commercial activity, and also affect the functions of other commercial areas. It is essential to note that the roles and functions that commercial areas perform extend far beyond economic exchange. Commercial areas provide a community focus and identity at a range scales. Managing commercial areas using character and context in the Rotorua environment allows informed decisions regarding moving forward on the make up of these areas, and commercial areas as a whole. Given that many of these zones are either located along highly visible transportation routes or are located adjoining sensitive (often residential) uses, it is appropriate to consider the implementation of design methods beyond the CBD. 5.2 Commercial leakage, sprawl, and conflict of uses


� Managing existing areas of sprawl and provision of strong policy direction to reduce continual commercial leakage throughout the district.

Response There is a perception that some commercial areas suffer from a lack of vitality, and that leakage of commercial activities from existing commercial areas is a part of this issue. In reality, a number of factors have contributed to this, including the relocation of central government administrative agencies away from Rotorua, and rules that do not significantly differentiate between the character and context between differing commercial areas. There are a number of areas of ribbon development, such as Old Taupo Road, that contribute to this, and also contribute to potential effects on amenity and may create use conflicts. The underlying result is that Rotorua appears to be oversubscribed in terms of commercially used land. A point for consideration by Elected Members is the consolidation of commercial uses within existing commercially zoned areas in order to support the roles and functions of the existing areas of commercial activity. There are a number of concentrated areas of commercial activity within the district that require management review. For example, the ribbon development along Old Taupo Road and Marguerita Street is extensive. A pragmatic approach to the management of these areas is required. Given the pervasiveness of this development, it is unlikely that Council policy can effectively reverse the existing development. However, Council may develop a framework around existing areas to better manage and control what activities locate there, and what amenity requirements are appropriate. A decision, area by area, is required to determine which areas should be integrated into a commercial zone framework, which part of these areas are to be included, and what is expected of each area moving forward. It is noted that clearly ‘putting a ring’ around these areas will allow Council to both prevent further development if desired, and support any policy direction given in terms of consolidation. Commercial activities have differing amenity requirements to non-commercial activities, particularly at the interface between other zones or roads. Depending on the character of the commercial area, conflicts may arise within that area between commercial activities, or between commercial and non-commercial activities.

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Commercial areas are also part of the community. Strong linkages between these areas and the community strengthen both the community and commercial areas with strong patronage, reduced crime such as tagging, and provides for a more cohesive and safe community. Matching appropriate uses with the surrounding environment, the community, and the purpose of the commercial area, will help avoid conflicts, reinforce character, and provide some cohesion within commercial areas and between these areas and the community. 5.3 CPTED


Response Places and spaces can promote opportunities for crime, or make the user feel vulnerable to crime. This can create avoidance behaviour, or reduce the amount of time (and therefore money) people spend in places. Safety and vitality is an issue that is not limited to just the CBD. By using CPTED techniques more widely in the design of both public and private spaces Rotorua can be a safer, more enjoyable, and more energetic place to live, work and play. While ‘public safety’ is an assessment criterion for many activities identified in the existing district plan requiring a resource consent, there is little detail on methods of achievement other than in the CBD. There is scant attention paid with regard to amenity and safety paid to ‘other’ commercial areas in the current plan. The CBD Design Guide, placed in the particular context of the character of each zone, implemented across all commercial zones with more explicit guidance over what is expected in terms of design, is an option to consider. A benefit of this approach is that such a guide would support the retention and enhancement of the character of particular the commercial area it is being applied in. Elected members should be aware that not only poor design can create risk, but also the mix of activities. Certain uses may not be appropriate in particular contexts, or at particular times. It is also noted that a corporate response to urban design principles is currently being discussed as it relates to Rotorua. Elected Members have already provided policy guidance on both CPTED and urban design. However, recommendations will be reflecting the specific scope of implementation and potential methods. 5.4 Ngongotaha � Continued support for the Ngongotaha commercial and retail area as being core to the village feel of

the town Response The Western basin structure plan was put out for public comment in early 2008. The plan examines development in the Ngongotaha, Kaharoa, Hamurana, and western hills looking ahead 50 years. As a recommendation of the plan, significant amendments to the orientation of Ngongotaha town centre were publicised. This followed from previous extensive discussions that Council has had over a number of years with Ngongotaha residents. As discussed previously, the commercial area at Ngongotaha has a unique village feel that is not replicated in other areas of Rotorua. There is strong community support for additional development in Ngongotaha, but within the existing village character. An assessment of the current plan framework suggests that there is currently little support in the way of planning provisions to continue to enable the area’s existing character. A discussion from Elected members in this regard should be had within the upcoming commercial workshop. Community feedback has highlighted that Ngongotaha has a distinct identity from the rest of the urban areas in the district. Much of this was the result of the current physical separation between the two built areas. Given the unique nature of the commercial area additional measures such as a Ngongotaha specific plan overlay and/ or design guide are options that may be considered by elected members if they turn their minds to reinforcing Ngongotaha’s identity.

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5.5 Traffic, parking, turning, loading and accessibility

� Off-site parking, loading, and turning can provide ‘dead areas associated with commercial activity.

� Needs to be a considered balance between the needs of parking and turning and efficient commercial activity areas.

Response Comment received on current provisions noted that parking and turning for activities located on higher level roads in the district was potentially prohibitive. This would include areas like Old Taupo Road, Te Ngae Road, Lake Road, and others. It is considered that more responsive parking provisions would allow better use of sites for commercial activities as opposed to creating dead areas. Conversely, if sufficient parking is not provided for, then roads or adjacent sites become congested, and safety compromised. This matter has recently been discussed as part of Plan Change 33 – Roading Hierarchy and, after consultation with affected parties no substantial changes have been made to the district plan. Given the decision for that plan change has only recently been notified, it is not considered appropriate to make any additional recommendations on this matter. It is however, an important component of developments to assess, usually undertaken on a case by case basis. An observation that current parking and turning provisions give rise to ‘dead space’ does need thoughtful consideration. While the matters regarding off-site parking and turning on main roads has been recently determine, onsite parking and turning matters have not. Commonly design solutions can remedy parking areas and integrate them more with proposed developments. The engineering code of practice is being reviewed in tandem with provisions of the district plan. Included in the matters contained in the code is parking and turning. As a part of this review there will be a review of all engineering standards, including car parking. 5.6 Maintaining the balance of providing for signage


� A level of signage permissible that contributes to commercial character Response Signage is a district wide issue and will be the subject of commissioned research and will be a specific matter for a further Workshop. As has been earlier conveyed to Members the existing signage provisions of the district plan are the only matters that exist from the Transitional District Plan (that plan that predates the 1996 Operative District Plan). Signage continues to be a vexed issue for the district. The balance to be met in order to provide signage for activities, weighed against the “how much is too much” approach is one that particular research is being commissioned for. In the commercial areas of the district a component of amenity is a relatively high ‘bar’ with respect to signage. There is an expected and accepted level of signage associated with commercial activities. The challenge is to ensure that the signage is related to the commercial activity, that no unfair advantage is ascribed to any one particular activity, and that it is the effects of signage that are truly being concentrated on, not looking to use the district plan to control matters of trade competition. 5.7 Availability of suitable land

� Restricted availability of appropriately sized commercial land parcels in strategic locations.

Response The lack of larger commercial titles as being a barrier to establishing larger commercial developments is an issue that has been raised. This is a reflection of past land use and subdivision patterns, in particular the creeping nature of past commercial development.

Given that this is also a reflection of market conditions, it is unlikely that there are any practical measures in brownfield sites that will assist in this matter. However, any future rezoning of land, or the need to rezone land for future commercial development will need to consider appropriate site sizes appropriate for the market and the function of the particular centre in which that land may be located. Assessment will be required in terms of any need for additional commercial land, and for what purpose.

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Land tenure was also highlighted as an issue. Given a significant proportion of commercial land is multiple owned Maori land, purchasing of this land is not possible. Given that freehold title can not be obtained there, a perception is that this reduces the ability to finance development, maintenance, and redevelopment by private firms. While this is an important factor to note in terms of the issues affecting commercial centres, this is not an issue that Council can address, other than addressing the issues of maintenance and the provision of development options.

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6 RECOMMENDATIONS The following are recommendation and options that will provide the basis for discussion, and subsequent direction from Members. The recommendations draw together information presented in the paper and propose a way forward for the district plan. In some instances there may only be one option, but most will have a number of options. Members may wish some of the options to be reported on in more detail, and this will be done once initial reaction and direction has been gauged. 6.1 Character and context



Options A. Retain the current situation. B. Establish objectives and policies to identify commercial areas by the specific character and context

and to promote the specific character and context of each particular area. C. Establish objectives and policies to protect and enhance the role and function of each commercial

area. D. Investigation into the establishment of design guides for all areas of commercial activity. E. Design guide to remain for core commercial areas only with little or no guidance provided to smaller

commercial areas

6.2 Commercial leakage, sprawl, and conflict of uses



Options A. Retain the current situation where commercial activities are encouraged to locate in areas that have a

commercial type character. B. Promote the establishment of commercial activities anywhere in the district as long as the effects of

the activities on the surrounding environment can be internalised. C. Encourage consolidation of commercial activities by requiring new activities to locate in existing

commercial areas. D. Establish objectives and policies to protect the vitality of existing commercial areas. 6.3 CPTED


Options A. Retain the current situation, where CPTED measures only implemented in the CBD. B. Amend existing planning framework for commercial areas to take account of CPTED principles C. Develop a CPTED guide for all commercial development.

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6.4 Ngongotaha � Continued support for the Ngongotaha commercial and retail area as being core to the village feel of

the town Options A. Establish objectives and policies to promote the specific village character and context of the

Ngongotaha commercial area. B. Establish objectives and policies to protect and enhance the role and function of the Ngongotaha

commercial area. C. Develop specific design guide criteria that reinforce the perception of the village feel of the village. D. Provisions for Ngongotaha to remain as they are, similar to other commercial areas of the district

6.5 Traffic, parking, turning, loading and accessibility

� Off-site parking, loading, and turning can provide ‘dead areas associated with commercial activity


Options A. Retain the current situation; do not review the parking, turning, loading and accessibility standards in

the district plan and code of practice. B. Review parking, turning, loading and accessibility standards. C. Include assessment criteria in the revised plan that ensures car parking areas positively assist in the

amenity of commercial areas. 6.6 Managing the balance of providing for signage


� A level of signage permissible that contributes to commercial character As this is a matter that will be the purpose of a separate workshop policy options have not been outlined.

6.7 Availability of suitable land

� Restricted availability of appropriately sized commercial land parcels in strategic locations. Options A. Retain the current situation, where no assessment of appropriate parcel size is required for

commercial land plan changes. B. Require information regarding the suitability of site sizes to be provided as a part of plan change

applications. C. Acknowledge that this is a market function and is best left to the market to determine, provided the

district plan provides a degree of flexibility for those wishing to establish commercial activities

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7 POLICY DISCUSSION This section of the paper records Members feedback from Workshop 14 (1 July 2009). One recommendation, section 6.12 (commercial leakage, sprawl and conflict of uses) was not resolved after considerable debate and discussion. This matter was held over for further discussion at Workshop 15 on 24 July 2009. 7.1 Character and context Issue:



Recommended policy direction: Combined Options B and D and new F B. Establish objectives and policies to identify commercial areas by the specific character and

context and to promote the specific character and context of each particular area. D. Investigation into the establishment of design guides for all areas of commercial activity. F. Incentives for redevelopment in appropriate locations.

Key discussion points: 7.1.1 Tryon Street and the commercial activities there have been a topic of community discussion for some

time. 7.1.2 Try for individual flavour reflecting that community. 7.1.3 Would be good to give guidance on colour palettes. 7.1.4 Needs a design guide element. 7.1.5 Need to put commercial activities in appropriate place, particularly the big box stuff. Bearable if they

are all together, abhorrent if it is in a suburban context. 7.1.6 Queenstown an example – managing the corporate colourisation of a retail area. It is the change of

mindset we need here. 7.1.7 Will prescriptiveness on colour schemes discourage investment? Balance is the key. Can’t let

economics be the key driver.

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7.2 Commercial leakage, sprawl, and conflict of uses Issue:



Recommended policy direction: None. Further discussion required at next workshop. Policy team to present further information on “co-location” concepts. Key discussion points 7.2.1 Broad range of issues/opinions canvassed. 7.2.2 Option B was supported by several, with others very much opposed to it. 7.2.3 Opponents of Option B argued that there was a need to manage commercial activities, need to

preserve CBD, inner city living needs to be promoted. Old Taupo Road – a line needs to be drawn. 7.2.4 A or C not B were the preferred options of these Members. 7.2.5 Others raised the need to build sustainable communities – is it realistic to expect everyone to come

to the CBD – definitely favour Option C. Need to look to future - new rating model could assist. People need to have the ability to walk and/or ride to a community centre, particularly with aging population. Don’t see a problem with Old Taupo Road.

7.2.6 Others were leaning towards C, but wanted “encourage” rather than “require”. 7.2.7 Supporters of Option B argued that world is changing; work from home will increase. As long as

effects can be internalized don’t see the problem. “What is a commercial activity anyway?” No good saying “make people go to the CBD”. Any business would do its homework and decide whether they need to be in the CBD or not. Open the doors and cut the red-tape, beggars can’t be choosers.

7.2.8 Towards the end of the roundtable discussion it was becoming evident that the supporters and opponents of Option B were not that far apart – all agreed that it is all about appropriateness and flexibility.

7.2.9 The discussions highlighted that “commercial activity” could mean many things. Some members liked Option D but needed to have a clear idea of those areas where we did not want commercial to go.

7.2.10 Good cities are where “like” congregate with “like”. Don’t want the sanctity of residential areas destroyed. Even quiet businesses are a problem. Want to go home and talk to neighbours. Don’t want to be a control freak. Want the market to dictate. The point was made that this equated to doing away with zones but the Option B supporters clarified that this was not intended.

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7.3 CPTED Issue:


Recommended policy direction: Option B B. Amend existing planning framework for commercial areas to take account of CPTED principles. Key discussion points: 7.3.1 Discussion was brief given the unanimous agreement about the need for all commercial areas, not

just the CBD, to have CPTED principles applied to them.

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7.4 Ngongotaha Issue: � Continued support for the Ngongotaha commercial and retail area as being core to the village feel of

the town Recommended policy direction: Combined Options A and C A. Establish objectives and policies to promote the specific village character and context of the

Ngongotaha commercial area C. Develop specific design guide criteria that reinforce the perception of the village feel of the

village. Key discussion points: 7.4.1 Good design is happening by default. Want to see it continue on from the starts that have been

made. 7.4.2 Be careful we don’t start designing buildings that are too expensive. 7.4.3 Focus on facades, and don’t be too precious on materials.

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7.5 Traffic, parking, turning, loading and accessibility Issue:

� Off-site parking, loading, and turning can provide ‘dead areas’ associated with commercial activity


Recommended policy direction: Modified Option B B. Review parking, turning, loading and accessibility standards on a district wide level. Key discussion points: 7.5.1 Need to move toward park and ride. 7.5.2 Need better layout of car parks – car size is changing. 7.5.3 If Appendix F gives us Central Mall car park sizes then it needs review. 7.5.4 Ties in with CBD/TDM. What’s happening is people are car-pooling and cost-sharing the meter in

the city.

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7.6 Managing the balance of providing for signage Issue:


� A level of signage permissible that contributes to commercial character Recommended policy direction: A separate workshop addressing the issue on a district-wide basis is required. Key discussion points: 7.6.1 Signage will be left for another day. 7.6.2 Needs a lot of work, as it’s the only part of the district plan that dates back to 1981.

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7.7 Availability of suitable land

Issue:

� Restricted availability of appropriately sized commercial land parcels in strategic locations. Recommended policy direction: Option C C. Acknowledge that this is a market function and is best left to the market to determine, provided

the district plan provides a degree of flexibility for those wishing to establish commercial activities

Key discussion points:

7.7.1 Not much discussion, as it was generally agreed that its best left to the market to determine.

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8 POLICY DIRECTION The policy directions provided by Members at the workshop at which policy options were discussed are summarised below, and will provide the platform for development of the issues, objectives and policies in relation to commercial activities in the district plan.

ISSUE POLICY DIRECTION

Character and context

1. Establish objectives and policies to identify commercial areas by the specific character and context and to promote the specific character and context of each particular area.

2. Investigation into the establishment of design guides for all areas of commercial activity.

3. Incentives for redevelopment in appropriate locations.

Commercial leakage, sprawl and conflict of uses

4. No policy direction provided as further discussion is needed. [Further discussion needed]

CPTED 5. Amend existing planning framework for commercial areas to take account of CPTED principles.

Ngongotaha 6. Establish objectives and policies to promote the specific village character and context of the Ngongotaha commercial area.

7. Develop specific design guide criteria that reinforce the perception of the village feel of the village.

Traffic, Parking, turning, loading and accessibility

8. Review parking, turning, loading and accessibility standards on a district wide level.


No policy direction provided as a separate district wide workshop is to be held.

Availability of suitable land 9. Acknowledge that this is a market function and is best left to the market to determine, provided the district plan provides a degree of flexibility for those wishing to establish commercial activities.

Documents

DISTRICT PLAN REVIEW - Rotorua...Commercial H (Commerce Park) The area known as Eastgate, providing for mixed use commercial activity. Residential D (Residential/Office) Applies over