AUCKLAND EXPECTS ITS URBAN ENVIRONMENT TO BE AS BEAUTIFUL AS ITS NATURAL ENVIRONMENT.

KO TE ARO WHAKAARO O TĀMAKI MAKAURAU, KIA WHAKAĀTAAHUA TE WHENUA-Ā-TĀONE, PĒRĀ I TE TAIAO

Strategic Direction 10

554_ Auckland has been constantly changing and evolving since its earliest days of occupation by both Māori and European settlers, who recognised its strategic attractiveness as a place to live and as a focus for commerce and trade.

555_ Since the first European development in the 1840s, advances in transport technology have defined the growth of the urban area. The initial settlement was clustered about the port, with few roads, and transport limited to walking or horses. The advent of a tram and ferry network in the early 1900s saw suburban development extend over the central isthmus and to the north shore along these transport routes, and living and working activities concentrated by the public transport stops. More recently, the dominant pattern of development has been that of lower-density suburbs, enabled by the motorway system and the rise in car ownership since the Second World War.

556_ Urban Auckland is characterised by its outstanding coastal and harbour settings, its narrow isthmus, volcanic landscape and rural surroundings. The natural environment has provided communities and neighbourhoods with unique character and amenity. Housing styles range from tightly packed working neighbourhoods to Victorian and Edwardian villa suburbs, to low-density developments from the 1950s on larger sections. These stand-alone residences were attractive because they were often set near quieter rural and coastal environments.

557_ More recently there has been renewed interest in living close to the central city, as some people want to be closer to work, education opportunities, and the vibrancy of the city. This has seen the revitalisation of inner city areas such as Ponsonby and Freemans Bay, showing that more intensive living can be highly desirable and provide the lifestyle choices that Aucklanders want. In contrast, some examples of infill housing and medium-density housing developments have been of variable quality and have degraded parts of the urban environment.

558_ The way that business operates in the urban area has also changed over time. Traditionally there was a clear distinction between different types of business activity, with commerce and trade in Auckland’s town centres, and industrial activities in other locations. As Auckland has grown, industry has moved towards the periphery, opening up brownfield and redevelopment opportunities. Continued change in the makeup of Auckland’s economy is expected, and the urban area will need to respond to these changes; for example, by leveraging off Auckland’s agglomeration potential, which is a key attractor for business and workers to locate and live here (see Chapter 6: Auckland’s Economy). Auckland must be an attractive place for businesses to locate to, to ensure ongoing economic development and wealth creation.

559_ Auckland’s population will increase significantly over the next 30 years. The environmental consequences and range of costs associated with a larger, more sprawling city, (including transport, water and wastewater infrastructure), support the challenge for Auckland to create opportunities for more intensive living and working environments, and accommodate growth around centres. This chapter provides direction to strengthen the network of centres, liveable neighbourhoods, and business areas.

560_ This chapter outlines the priorities for creating successful urban places that suit all Aucklanders, and indicates how a quality compact environment can be achieved. Emphasis is on development that improves the places where we live and work; reinforces and enhances local character, identity and heritage; creates a sense of place; and is supported by quality local amenities, good accessibility and public transport connections.

561_ As Auckland grows and develops, a range of living environments must be provided for our diverse population. All new development will be designed appropriately to enhance the attractiveness and functionality of areas. High-quality design is a key priority in this Plan’s approach to accommodating future growth.

562_ It is expected that the private sector, local communities, iwi, the Auckland Council, central government and third sector parties will work together to ensure we achieve the best development possible in our urban environment.

563_ This Plan aims to maintain the attractive qualities of Auckland’s urban areas and the distinction between rural and urban areas, by promoting urban intensification and carefully managing peripheral growth. The Rural Urban Boundary (RUB) provides a clear strategic signal to guide the majority of future development into the existing urban area, while at the same time providing certainty to the market regarding areas for future development (see Section D: Auckland’s High-Level Development Strategy).

Directive 10.1

Adopt a Rural Urban Boundary in Auckland’s Unitary Plan that provides for land capacity over the next 30 years for 280,000 new dwellings within the 2010 Metropolitan Urban Limit baseline, 160,000 new dwellings in new greenfields land, satellite towns and other rural and coastal towns, and at least 1,400 hectares of new greenfields business land.

Directive 10.2

Plan for a seven-year average of unconstrained development capacity (zoned and serviced with bulk infrastructure) at any point in time with a minimum of five years’ and a maximum of 10 years’ capacity.

564_ Achieving a quality compact urban environment requires a shift towards using land resources in a more efficient way. This necessitates urban intensification to achieve a higher density of housing and business activity, both in brownfields and greenfields, with emphasis on well-designed higher-density development in the right places. Planning for intensification will focus on the areas most suited to it, and be developed in consultation with local communities, taking into account their aspirations for an area (including character, heritage, transport and environmental considerations).

565_ Well-located and designed higher-density development will provide Aucklanders with living choices that deliver a wide range of benefits, including:

• greater accessibility through expanded public transport services and greater opportunities to walk and cycle
• increased productivity, economic growth and job opportunities
• reduced infrastructure costs improved vitality and security of urban areas by increased social activity and interaction
• greater preservation of natural environmental qualities through a reduced urban footprint
• increased protection of rural and coastal areas, productive agricultural potential, and lifestyle opportunities through a reduced urban footprint
• a wider range of housing types and choice.

566_ By providing more opportunities for intensification it is expected that the overall proportion of detached dwellings will decrease over time. If we achieve the aim of 70% of growth within the urban footprint over thirty years, it is likely that around 60% of all new dwellings will be attached.

567_ Photographic examples showing the characteristics of different housing types for different growth locations are included in this chapter (see Figure 10.1, 10.1b). It is expected that dwelling types will vary from place to place, and there will not be a ‘uniform’ density across areas. Over thirty years, the result will be a range of dwellings and varying levels of intensification – all of quality design and structure. The priorities that follow expand on this.

Figure 10.1 Expected Housing Types In Centres and Neighbourhoods

Figure 10.1 Expected Housing Types In Centres and Neighbourhoods

Directive 10.3

Focus urban intensification in areas that have:

• permeable street and block networks that easily connect residents to amenities, or can be adapted to do so

• infrastructure in place or which can be provided in a timely and efficient manner

• close proximity and good walking access to community facilities, open space, high-frequency public transport, centres and business areas.

568_ Some urban expansion will occur through new greenfield development on the urban edge. Development of the greenfield areas will occur in a manner which makes efficient use of land, creates liveable and walkable neighbourhoods, and provides good accessibility for residents to employment opportunities and services. The location of greenfield development will consider and protect important environmental qualities.

Directive 10.4

Locate and develop greenfield areas as sustainable
liveable neighbourhoods in a way that:

• demonstrates the most efficient use of land

• protects and enhances biodiversity, air quality, water quality, and heritage values

• provides community facilities, open space, infrastructure (including transport, communications, power and water utilities) in a timely and efficient manner

• provides opportunities for walking and cycling, and public transport, and a well-connected street network

• provides a broad range of housing choice to cater for the diversity of housing needs in Auckland

• provides or supports local employment opportunities avoids risks from natural hazards

• demonstrates high-quality design with high environmental performance.

569_ A renewed focus on good design will ensure our built environment is successful, and better contributes to our sense of place and to Auckland’s liveability. As Auckland grows and opportunities for more intensive development are realised, this will be vital.

570_ Development proposals, including those of public agencies, will be expected to take a ‘design-led’ approach and incorporate the principles of good design (outlined in Box 10.1) that create enjoyable places. These principles affect all development, as outlined in Figure 10.2. Auckland Council will lead the development of an Auckland Design Manual, which will expand on these principles and provide acceptable solutions and best practice associated with Auckland’s unique landscape and natural values, landform, climate, local context, historic heritage and public open space qualities. In addition, the development sector will be encouraged to consider environmental design principles (see Box 10.2).

Box 10.1 Good Design Principles

Figure 10.2 Applying The Good Design Principles At Different Scales

571_ No area should be compromised by poor design quality or inappropriate density. The best way to achieve this is through a design-led approach (see Figure 10.3). Careful planning and design will make best use of a development opportunity, and include a mix of uses appropriate to its location and context. Development opportunities must maximise the potential of each site, but never at the expense of high-quality living environments.Some areas have little capacity to accommodate intensification without compromising the values that make them special (for example, the unique bush environments in the Titirangi/Laingholm area, where residences are nestled into the extensive forest of the Waitākere Ranges). In other areas, such as the larger urban centres, higher densities will complement the existing built form.

Figure 10.3 Design-led Approach

572_ As Auckland grows, the amenity of the public realm (social and recreational spaces) will become more important. Such areas must be designed with an underlying structure that accommodates how people (of all age groups) will use these spaces. Our public spaces must therefore be designed to enable more Aucklanders to use and enjoy them. Where appropriate, public spaces must also cater for special occasions, such as the events held in the new shared spaces around the Central City, the Pasifika Festival at Western Springs, the Kowhai Festival in Warkworth, and Santa Parades across Auckland.

573_ In particular, the streetscape must contribute to the wider cityscape of Auckland and enhance the sense of place in a given area.

574_ Streets serve many functions: not only for traffic circulation but also for walking, cycling, and as places to congregate and to meet people. As the main component of our public realm, streets must be designed as public spaces, not just movement corridors (see Chapter 13: Auckland’s Transport). To support this, the design of new developments must respect and contribute to the streetscape, particularly the public/private interface, to create high-amenity, pedestrian-friendly, walkable neighbourhoods.

575_ Our streets must complement and link local networks of public spaces and integrate with other streets and paths to increase connectivity. They are important parts of the public realm and must be designed accordingly.

Directive 10.5

Assess all development proposals, including public realm and infrastructure improvements and redevelopment, against the design principles in Box 10.1 and the transport single system principles in Box 13.1.

576_ Inappropriate regulations and inflexible standards can impact negatively on good design. They impede the development of more intensive housing and mixed developments. For example, at times traditional parking standards (minimum numbers of car parking spaces) are imposed in areas where alternative options (parking buildings or investment in public transportation) imply that such minimums are counterproductive to delivering the goal of intensification, mixed use and affordability. The Auckland Council intends to review its approach to parking, as part of the development of the Unitary Plan (see Chapter 13: Auckland’s Transport).

Directive 10.6

Parking standards and innovative parking
mechanisms should take account of multiple
objectives, including the need to:

• facilitate intensive and mixed-use developments within strategic locations

• improve housing affordability

• reduce development costs

• encourage use of public transportation

• optimise investments in public parking facilities, civic amenities and centre developments

• foster safe, convenient and attractive walkable neighbourhoods.

577_ Good design should incorporate a commitment to environmental sustainability, which includes green buildings, the adaptive re-use of historic buildings, protection of important natural areas, and the support and enhancement of Auckland’s ’urban forest’ (see Chapter 7: Auckland’s Environment).

578_ Box 10.2 outlines Environmental Design Principles developed by the New Zealand Green Building Council,⁵⁹ an industry organisation dedicated to accelerating the adoption of market-based green building practices. The first principle reinforces the ideal city form, where land use and transport opportunities are intrinsically connected, and this is supported by principles relating to energy, water, water pollution and biodiversity.

Box 10.2 Environmental Design Principles

Directive 10.7

All urban development should take into account the environmental design principles outlined in Box 10.2.

579_ Auckland’s urban area consists of a variety of interconnected neighbourhoods, centres and business areas, which support where most Aucklanders live, work and spend their leisure time. Much of Auckland’s urban area will change as the population grows, ranging from least to moderate to most change across different areas. Apart from the city centre and metropolitan centres like Takapuna, typical town and local centres are likely to include 4- to 6-storey buildings.

580_ Auckland’s neighbourhoods will be the focus of varying degrees of suburban intensification. In particular, neighbourhoods that have the potential for viable intensification due to good amenity and accessibility, and where there is physical and social infrastructure capacity, are highlighted within the Development Strategy as areas for change (see Maps D.1 and D.2). Neighbourhoods will increasingly provide a mix of housing types to meet people’s changing needs over their lifetime (see Priority 1 above).

581_ Neighbourhoods are important not just for the physical environment they provide, but also for the social networks they support. Developing Auckland’s neighbourhoods as distinctive places will contribute to residents’ sense of identity, place, and pride in their community. Increasing the density of housing in a neighbourhood also supports the provision of new and better services. A design-led approach, as outlined in Priority 2 above, will be employed in any transition towards a higher-density environment. This would consider factors that can improve neighbourhoods, such as planting street trees, calming traffic, establishing walk/cycleways and connections, and restructuring streets and public spaces to facilitate centre development, new parks, housing intensification, and safe, attractive streets. Figure 10.4 emphasises some of the benefits of higher-density neighbourhoods as opposed to more dispersed, lower-density areas.

Figure 10.4 Dispersed vs. mixed-use neighbourhoods

582_ Auckland’s network of centres will accommodate future population and employment growth. Centres provide focal points for communities at different geographical scales, foster economic activity and business productivity, create higher-density clusters of jobs, support the public transport system and maximise investment in infrastructure. The growth of higher-density housing in and around centres provides a population base to sustain businesses and community facilities. A centre is a defined area that comprises a concentrated mix of activities, and is supported by a surrounding residential area that is within an easy walking distance, as shown in Figure 10.5.

Figure 10.5 Centres and Walkable Catchments

583_ Auckland’s urban centres are classified according to their existing and future role and function. The range of urban centres in Auckland is described in the hierarchy outlined in Box 10.3, which is presented as a network of centres in Map 10.1 and in more detail in Table 10.1.

BOX 10.3 Urban Centres’ Hierarchy

584_ The hierarchy also identifies emergent centres, which are those that are either in a formative stage of development or require significant change through redevelopment to support their transition to more intensive, mixed-use centres. The emergent category is an overlay used in conjunction with other classifications for metropolitan, town and local centres.

585_ Over the 30-year period of the Plan there will be considerable changes to many of Auckland’s centres, particularly those that have the greatest development potential. These centres need strong planning frameworks to guide their development, and against which to monitor their progress. Table 10.1 highlights emergent centres, including those that may have started as shopping malls, where planning needs to focus on guiding future development towards a form which supports a greater range of attributes for that centre type.

586_ All centres perform an important role as a focus for the community they serve. However, different interventions are required to reach the potential of each centre. The following categories reflect the degree of intervention necessary to realise the development opportunity within a given centre (also see Table 10.1 and Chapter 14: Implementation Framework).

1. Regeneration centres – centres that require a mix of public sector actions to address economic, social and physical inequalities
2. Market-attractive centres – centres where there is strong market potential for growth, and which require limited public sector support.

587_ Where character, heritage and/or environmental constraints limit growth within particular centres (usually in local centres), these are not prioritised for growth and/or transformation. The centres, associated suburbs and places that are prioritised in the first three years include:

1. The City Centre
2. The Southern Initiative
3. Hobsonville/ Westgate, Massey North
4. New Lynn
5. Onehunga (see Box 10.4)
6. Tāmaki
7. Takapuna
8. Warkworth
9. Pukekohe.

Box 10.4 Onehunga Town Centre and Suburban Area

City Centre Masterplan

An Auckland City Centre Masterplan has been developed to guide the transformation of the city centre and to maximise its potential. A Waterfront Masterplan has also been prepared to realise that area’s development opportunities (see the end of this chapter for further details). The Masterplan supports the role and function of the City Centre as Auckland’s pre-eminent hub for office-based employment and business and financial services.

588_ New retail and office activities are focused in centres. It is expected that new malls and large format retail activities will locate in centres; they will be designed to integrate with other centre activities, and contribute to the ‘place-making’ of the centre (see Box 10.1). Retail draws people to centres, and is critical in retaining and attracting other activities. There must be sufficient development capacity in centres to accommodate commercial growth, and to support the centres’ network. Proposals for out-of-centre commercial activity will be considered, using criteria in the Unitary Plan.

589_ The network of centres is important for fostering economic activity and clustering commercial activity, and within this network the metropolitan centres have the strongest emphasis on business activity. Their scale provides opportunities for specialisation or strategic roles, and distinctive precincts. In contrast, the emphasis for local centres is to provide local services within a walkable catchment.

Directive 10.8

Strengthen Auckland’s network of metropolitan, town, local and neighbourhood centres so they are well-connected and meet community needs for jobs, housing, and goods and services, at a variety of scales. Auckland’s network of centres will:

• be the primary focus for retail and other commercial activity, providing a wide range of outlets in a competitive environment, while limiting out-of-centre retail and office development

• accommodate an increase in the density and diversity of housing in and around centres

• develop sufficient scale, intensity and land-use mix (appropriate to a centre’s position in the hierarchy) to support high-frequency public transport

• concentrate activities which generate a high number of trips

• maximise access by walking, cycling and public transport and support a reduction of car trips

• be attractive, mixed-use environments with high-quality public spaces.

590_ In addition to centres, Auckland has a number of key business areas that provide opportunities to accommodate and intensify future business and employment growth (see Chapter 6: Auckland’s Economy for employment growth projections). These areas complement the activities in centres and provide a strong contribution to Auckland’s employment base, which should be safeguarded for business activity (see Map 10.1). A strategic classification of the broad business and employment areas outside centres includes:

• heavy industry
• light industry (including production, distribution and trade activities)
• business parks (with an emphasis on office and commercial activities)
• special activity areas (including a range of activities from airports, government facilities and infrastructure, to health and education).

591_ Future growth and intensification of business activity should make the most efficient use of land available in the existing centres and business areas, and support improvements to local transport accessibility, especially by public transport. The trip-generating potential of business and employment activity should be managed to ensure minimal impact on local communities and the environment.

Development in existing centres and neighbourhoods

Directive 10.9

Develop and manage business areas to complement centres, without undermining their role and function in the centres’ network, and to provide for a diversity of opportunities for business and employment growth.

592_ In an increasingly competitive global economy where cities seek to attract high-technology and knowledge-based activities, campus-style business parks that provide locations to accommodate office, research and development, and warehousing enterprises are attractive. In particular, large concentrations of such businesses can foster innovation and agglomeration economies. Auckland already has some established business parks and any future provision should build on these and integrate them into the existing urban environment.

Directive 10.10

Business park development should promote clusters of technology and innovation, and meet the following criteria:

• excellent access to public transport (preferably high-frequency networks)

• necessary access to freight routes and terminals

• locational relationships with other relevant economic infrastructure (such as the airport, ports, universities, technical and research institutes, hospitals, recreational or cultural facilities, or clusters of knowledge-based and entrepreneurial activity)

• integration with established centres and residential areas

• excellent proximity to the workforce (within 30 minutes’ commuting time)

• suitable land size to support business park functions (≥ 30ha)

• necessary facilities to support employees (such as cafés, outdoor seating and open space).

Map 10.1 Auckland's Network of Urban Centres and Business Areas (urban core)

593_ While each centre is unique, Table 10.1 identifies the strategic classification of each centre, and Table 10.2 outlines a set of shared key attributes that are generally applicable to the different types of centres. It is not intended that every centre will have all the attributes listed.

594_ This information should be read alongside Chapter 9: Rural Auckland, which outlines the rural centres’ classification.

TABLE 10.1 Urban Centres’ Hierarchy - Classification

Table 10.2 Urban Centres’ Hierarchy – Key Attributes

Map 10.2 Relationship Between the Network of Urban and Rural Centres

THE CITY CENTRE

CREATE A STUNNING AND ECONOMICALLY DYNAMIC CITY CENTRE FULL OF LIFE AND ACTIVITY THAT RESIDENTS CAN CALL THEIR HOME AND BUSINESSES AND VISITORS FLOCK TO.

595_ Successful cities have strong centres, and the City Centre plays a pivotal role in Auckland’s present and future success (see Chapter 6: Auckland’s Economy).

596_ The City Centre Masterplan supports the Auckland Plan’s vision of the world’s most liveable city, and of a significant increase in population living within, and commuting to and from the City Centre. It will expand the transport network to suit this purpose, by making the City Centre a highly desirable place to live, work, and invest in, and by adding to Auckland’s identity and vibrancy.

597_ The City Centre should be for everyone: a place where people feel welcome and comfortable; a place where there is a strong and inclusive community; where people can access social activities; and where their culture is reflected in the physical and social environment.

598_ The City Centre Masterplan provides a 20-year transformational direction for the future of the City Centre. This direction consists of the following key moves:

Move 1: Uniting the Waterfront with the City Centre – the Harbour Edge

Move 2: Connecting the Western Edge of the City to the Centre – the East-West Stitch

Move 3: Queen Street Valley, the CBD and Retail District – the Engine Room

Move 4: Nurturing the Innovation and Learning Cradle

Move 5: New Public Transport Stations and Development Opportunities at Karangahape Road, Newton and Aotea Quarter – Growth and the City Rail Link

Move 6: Connecting Victoria Park, Albert Park and the Domain with the Waterfront as part of a blue-green network – the Green Link

Move 7: Connecting the City and the Fringe – City to the Villages

Move 8: Revitalising the Waterfront – Water City

599_ Masterplan objectives include improving the amenity of the City. A successful centre has great amenity and choices for residents, workers and visitors, and attracts an increasing number of businesses, employees and households. While improving technologies enable us to work remotely, paradoxically, research shows the benefits of spatial proximity. The agglomeration effects of more businesses and people will lift the productivity of the City Centre. A productive City Centre, as the pre-eminent hub for office-based employment and business and financial services, means a productive Auckland.

600_ Intensified use of the ’Engine room’ and waterfront land, intensified land use within 800 metres of the proposed City Rail Link stations (Aotea, Karangahape Road and Newton), and an increased number of people employed (from 55,000 to 70,000) in central locations will reduce congestion. This will lift living standards and business productivity.

601_ In addition, the long-term strategy for unlocking the potential of the waterfront is detailed in the Waterfront Plan, prepared by Waterfront Auckland, which is a companion document to the City Centre Masterplan.

602_ The waterfront is an area rich in character and activities that link people to the city and the sea. As a place for all people, the Waterfront Plan envisages a world-class destination that excites the senses and celebrates our sea-loving Polynesian culture and maritime history. It aims to achieve this through five specific goals:

• a public waterfront
• a smart working waterfront
• a green-blue waterfront
• a connected waterfront
• a liveable waterfront.

603_ The Waterfront Plan contains a number of projects and initiatives to achieve these goals. These include a pedestrian walkway and cycleway, improved ferry services and development of a low-impact waterfront transit service, development of land and water space for the marine, fishing and cruise industries, support for innovative and creative businesses, and new public spaces such as Headland Park, a 4.2ha open space on Wynyard Point.