Mt Victoria to Cobham Drive Study - Technical Report · PDF filePage vi Technical Report –Policy & Planning April 2011 that some alignments may not be affected by these rules or

Mt Victoria to Cobham Drive Study - Technical Report –Policy & Planning

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May 2011

Revision 5

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Page iii

Technical Report – Policy & Planning

April 2011

Record of amendment

Report reviewed by:

Name Position Signed/approved Date

Chris Hansen Statutory Approvals Manager 18/11/10

Chris Hansen Statutory Approvals Manager 01/03/11

Alistair Auburn Independent Peer Reviewer 29/03/11

Report approved by:

Name Position Signed/approved Date

Selwyn Blackmore NZTA Principal Planner May 2011

Details of Revision

Amendment

number

Description of change Effective date Updated by

Rev 1 NZTA comment 13/01/11

Rev 2 Preferred Option comment 28/02/11

Rev 3 NZTA comment 08/03/11

Rev 4 Revision in response to Independent Peer Reviewer comments 26/04/11

Rev 5 Final 23/05/11

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Technical Report –Policy & Planning

April 2011

Contents

Executive Summary .............................................................................................................................................. v

1 Introduction ......................................................................................................................................................................... 7

2 Key Policy & Planning Documents – Statutory and Non-statutory ................................................... 11

2.1 Overview ........................................................................................................................................ 11

2.2 National Legislation and Policy .................................................................................................... 11

2.3 Regional Policy & Plans ................................................................................................................. 14

2.4 Local/District Policy & Plans ......................................................................................................... 28

2.5 Other Strategic Documents .......................................................................................................... 34

2.6 Relevant Documents - Other Projects .......................................................................................... 35

3 Key Policy & Planning Themes/Issues .............................................................................................................. 37

3.1 Overview ........................................................................................................................................ 37

3.2 Key National Policy & Planning Themes/Issues ........................................................................... 37

3.3 Key Regional Policy & Planning Themes/Issues .......................................................................... 37

3.4 Key District Policy & Planning Themes/Issues ............................................................................ 38

3.5 Conclusion .................................................................................................................................... 39

Appendices .................................................................................................................................................................................................... 40

Appendix A - National Environmental Standard for Air Quality 2004 (Statutory) ........................................... 40

Appendix B - The Adelaide Road Framework .................................................................................................... 42

Appendix C- Kilbirnie Town Centre Draft Revitalisation Plan 2010 (Non-statutory) ....................................... 44

Appendix D - Relevant District Plan Provisions ................................................................................................ 45

Appendix E - Town Belt Management Plan ....................................................................................................... 57

Appendix F - Planning Issues for each Alignment ............................................................................................ 68

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April 2011

Executive Summary

This Technical Report – Policy & Planning provides an overview of the policy and planning context that the

Mt Victoria to Cobham Drive Study should consider as part of the Scoping Report assessment of options. A

series of other Technical Reports should be read in conjunction with this report.

Key policy and planning themes/issues that apply generally to all road and tunnel alignment options in the

area include:

• Achieving an affordable, integrated, safe, responsive, and sustainable land transport system (Land Transport Management Act 2003 (LTMA))

• Assisting economic development; assisting safety and personal security; improving access, mobility

and reliability; protecting and promoting public health; and ensuring environmental sustainability

(LTMA)

• Recognition of New Zealand’s most essential routes – Roads of National Significance – in the

Government Policy Statement on Land Transport Funding 2009 (GPS) and in the Wellington Regional

Land Transport Strategy (WRLTS) – both documents recognise the Wellington Northern Corridor (and

the Mt Victoria to Cobham Drive project is part of that corridor)

• Recognition of the importance of the ‘Johnsonville to the airport – the growth spine’ in the Wellington

Regional Strategy 2007 as the ‘engine room’ of the regional economy and the directions given to the

Wellington Regional Policy Statement (RPS) and WRLTS in regards to more reliable transport links

between Ngauranga and the Airport and Port

• Maintaining or improving the opportunity to access active modes consistent with Greater Wellington Regional Council’s and Wellington City Council’s Cycling and Walking strategies as well as other policy

documents.

The assessment of policy and planning documentation relevant to the project has also identified specific

provisions that need to be considered when finalising and assessing the preferred option, as follows:

National considerations

At a national level, the National Environmental Standard (NES) for Air Quality contains mandatory technical

environmental regulations that override regional plan provision if the regional plan has not been updated

in accordance with the NES (which is the case in Wellington). The NES for Air Quality includes regulation of

the quality of air within numerous airsheds around New Zealand, including the Wellington CBD airshed

covering the city area. In this context, the NES for Air Quality requires that the combined discharge of

pollutants in the Wellington CBD airsheds not exceed the standards set out in the NES.

Regional considerations

At a regional level, the Wellington Regional Land Transport Strategy 2010 – 2040 (WRLTS) is the strategic

transport document that guides the development of the region’s transport system including public

transport, roads, walking, cycling and freight for the next 10 years and beyond. The WRLTS has been

informed by the Wellington Regional Strategy 2007, which specifically sought, amongst other things,

“more reliable transport links between Ngauranga and the airport and port”.

In particular, the WRLTS identifies the Ngauranga to Airport Corridor as part of the strategic transport

network and the Ngauranga to Wellington Airport Corridor (N2A) Plan 2008 has been prepared to

implement the strategic directions included in the WRLTS for this corridor. Both the WRLTS and the N2A

Plan identify the need to duplicate the Mt Victoria Tunnel and widen Ruahine Street (and Wellington Road

in N2A) as part of implementing the objectives and policies of the WRLTS.

Also, there are regional rules relating to activities that are likely to be important to most of the alignments

identified. These activities include soil disturbance; vegetation disturbance; discharges of contaminants to

air, land and water (including fresh water); and discharge of stormwater. It should be noted, however,

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that some alignments may not be affected by these rules or be affected by other rules (e.g. if there is less

vegetation disturbance).

District considerations

At a district level, the Wellington City District Plan and Town Belt Management Plan identify issues, such as

heritage features, that are often specific to certain locations and therefore are specific to certain

alignments. Some of the key District Plan and Town Belt Management Plan issues that are likely to arise in

the context of this study include:

• A new designation is required as a new tunnel is not provided for in the District Plan, and works required to Ruahine Street/Wellington Road will be wider than the existing designation allows for

• The use of Town Belt Land for roading and legal mechanisms to acquire/remove land to the Town Belt

• Possible removal of, or effects on, heritage buildings

• Easements or leases may be needed for use of Town Belt land

• Earthworks land use consents.

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1 Introduction

The Wellington Northern Corridor (Levin to Wellington Airport) has been identified by the Government as a

Road of National Significance (RoNS). Improvements to the Wellington Northern Corridor are required to

enhance safety, ease congestion and improve reliability of travel times along this section of the State

Highway network. The overall aim of these works is to enhance the long-term economic and

transportation performance of the Wellington region.

The Mt Victoria to Cobham Drive Project is part of the Wellington Urban RoNS which is one of eight

sections of the Wellington Northern Corridor. For this section, the New Zealand Transport Agency (NZTA)

has developed RoNS objectives that build on the relevant Government Policy Statement (GPS) intentions to:

support economic growth; reduce congestion; and improve safety (refer to the Statutory Approvals

Management Plan for details on the specific RoNS objectives).

The WRLTS is a strategic transport document that guides the development of the region’s transport

system including public transport, roads, walking, cycling and freight for the next 10 years and beyond.

The WRLTS recognises the Wellington RoNS programme and the priority on investments into infrastructure

that contribute to economic growth and productivity signalled by the Government in the Government

Policy Statement 2009 (GPS).

The WRLTS establishes objectives and policies to deliver an integrated land transport network that

supports the region’s people and prosperity, and requires Corridor Plans to be prepared for four key

corridors (including the Ngauranga to Airport Corridor). More reliable transport between Ngauranga and

the airport and port is a key local outcome sought by the Wellington Regional Strategy that informed the

directions included in the WRLTS. The Ngauranga to Wellington Airport (N2A) Corridor Plan 2008

addresses transport for the multi-modal corridor starting at the Ngauranga Merge and continuing through

the Wellington City CBD to Newtown (including the regional hospital), the Eastern Suburbs and Wellington

International Airport. It includes State Highway 1, major arterial routes, the railway line where the North

Island Main Trunk and the Wairarapa lines merge and through to Wellington City rail terminals, and key

routes for passenger transport, walking and cycling.

As part of the preparation of the N2A Corridor Plan, the Greater Wellington Regional Council (GWRC)

sought public comment on the directions proposed to address the issues facing this part of the transport

network. Support for the directions in the N2A Corridor Plan was widespread, and a clear mandate was

given to undertake feasibility studies, including (amongst other things):

• Improvement in walking and cycling facilities in Mt Victoria Tunnel

• Four laning of Ruahine Street and Wellington Road

• The duplication of the Mt Victoria Tunnel, considering in particular its relationship with the Basin

Reserve flyover and improved transport links from the airport to the CBD for freight, taxis and

public transport.

Taking into account the findings of the above feasibility studies, the N2A Corridor Plan required Scheme

Assessment Reports to be undertaken for (amongst other things) the four laning of Ruahine Street and

Wellington Road and for the duplication of Mt Victoria Tunnel.

NZTA has commissioned the Wellington Tunnel Alliance (WTA) to finalise preferred options for the route

from Mt Victoria to Cobham Drive through a Scoping Report and Scheme Assessment Report process, to

consult on the preferred options, select and design a preferred option, and to prepare documentation to

gain all necessary statutory approvals.

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The background and context of the Mt Victoria to Cobham Drive Study is outlined in the Scoping Report

(SR) that this Technical Report accompanies. A map showing the study area is shown in

Figure 1. At a later date NZTA intend to add the duplication of the Terrace Tunnel, upgrade of the Inner

City Bypass, upgrade of Memorial Park, upgrade of the Basin Reserve and upgrade of Calabar Road to

complete the Wellington Urban RoNS and also intend to use the ‘Proposals of National Significance’

provisions included in Part 6AA of the Resource Management Act (RMA) and to engage with the

Environmental Protection Agency (EPA) to follow a Board of Inquiry (BOI) process. The statutory approvals

that are likely to be required for the Mt Victoria to Cobham Drive Project include:

• A new designation as “State Highway 1” under the Resource Management Act 1991 (RMA) – this

new designation will replace the existing designation (where one exists) and designate existing

parts of the State Highway that are not currently designated

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April 2011

• Regional resource consents under the RMA

• Archaeological approvals under the Historic Places Act 1993

• Approval to purchase town belt land managed under the Town Belt Management Plan

• Building consents under the Building Act 2004.

Figure 1: Map Showing Study Area

This Technical Report provides an overview of the policy and planning context that the Mt Victoria to

Cobham Drive Study should consider as part of the assessment of alternatives and recommending the

options (Scoping Report) to be taken through to the Scheme Assessment Report (SAR). In particular this

Technical Report highlights policy and planning issues and themes that are important for considering

when developing the evaluation framework to be used for the multi-criteria assessment tool (outlined in

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the Technical Report – Evaluation Framework). This evaluation framework is used to assess options

identified through the ‘Blue Skies’ workshop and as part of the finalising of a short list of options included

in the Scoping Report (SR). The weighting of the importance of these policy and planning issues and

themes is a key factor when assessing alternatives. This Technical Report also informs the other technical

reports (listed below) that support the assessment of options and the preparation of the Scoping Report.

The SAR will recommend a preferred option to be taken through to detail design and for gaining statutory

approvals. The overarching policy framework relevant to this project is depicted in

Figure 2. These policy and planning documents are reviewed in Section 2 of this Report. Information on

additional analysis undertaken to date is provided in other Technical Reports supporting the SR. These

Technical Reports cover:

• Environmental issues

• Urban design and landscape issues

• Engineering and construction

• High level costings

• Traffic and transport planning

• The identification and evaluation of options (Evaluation Framework).

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As noted, this Technical Report should be read in conjunction with these reports. In particular, it should

be read in conjunction with the Technical Report - Evaluation Framework.

Figure 2: Policy Framework

National Level

Resource Management Act

NES on Air Quality

Historic Places Act

Town Belt Management Plan

Regional Level District Level

Wellington Regional Land Transport Strategy 2010 -2040

Regional Air Quality Management Plan for the Wellington Region

Wellington Regional Policy Statement andProposed Regional Policy Statement

Regional Freshwater Plan for the Wellington Region

Regional Coastal Plan for the Wellington Region

Regional Plan for Discharges to Land for the Wellington Region

Wellington City Operative District Plan (including Plan Changes)

Bylaws

Wellington City Transport and Urban Development Strategy

Wellington City Cycling Policy

Wellington City Walking Policy

Non - Statutory Document

Land Transport Management Act

GPS on Land Transport Funding

Updated NZ Transport Strategy

Environmental Plan

National Land Transport Programme

National State Highway Strategy

Public Engagement Manual

NZTA Documents

Local Govern-ment Act

Statutory Document

Building Act

Reserves Act & Town Belt

Deed

Key:

National Level Documents

Legislation (Statutory)

Public Works Act

Ngauranga to WellingtonAirport (N2A) Corridor Plan 2008

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2 Key Policy & Planning Documents – Statutory and Non-statutory

2.1 Overview

This review of policy and planning documents provides the context for the Mt Victoria to Cobham Drive

Study. This context has been important for the development of the evaluation framework (refer to Scoping

Report for details of the evaluation framework) for the high level Multi Criteria Assessment Tool (MCAT)

process to select options for more detailed assessment through the Scheme Assessment Report (SAR)

process. This context will also be relevant for the more detailed assessment of preferred option(s), and

for the preparation of statutory approvals documentation in accordance with the requirements of the RMA

ready for lodging with the EPA.

2.2 National Legislation and Policy

2.2.1 Statutory and Primary

The Land Transport Management Act 2003

The Land Transport Management Act 2003 (LTMA) provides the legal framework for managing and

funding land transport activities. The purpose of the LTMA is to contribute to achieving an affordable,

integrated, safe, responsive, and sustainable land transport system. It seeks to achieve this by:

• Providing an integrated approach to land transport funding and management through development

of a National Land Transport Strategy (NLTS); the regional land transport strategies; a Government

Policy Statement on land transport funding (GPS); and national and regional land transport

programmes

• Improving social and environmental responsibility in land transport funding, planning, and

management by defining the function and roles of the NZTA, regional councils and regional transport

committees for land transport planning, programming and funding

• Defining the function and roles of the NZTA with a broad land transport focus

• Improving long-term planning and investment in land transport

• Ensuring land transport funding is allocated in an efficient and effective manner

• Improving the flexibility of land transport funding by providing for alternative funding mechanisms.

The GPS, national and regional land transport strategies and land transport programmes must be prepared

to ensure they contribute to the purpose of the LTMA and the following five matters:

A. Assisting economic development

B. Assisting safety and personal security

C. Improving access and mobility

D. Protecting and promoting public health

E. Ensuring environmental sustainability.

Other matters that must be taken into account in these documents include: the relevant GPS; other

national and regional land transport strategies and programmes; national energy efficiency and

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conservation strategy; national policy statement and regional policy statements and plans; regional public

transport plan; and likely funding from any source.

The NLTS must also include measurable targets to achieve the Crown’s outcomes and objectives in

relation to land transport in New Zealand over a period of at least 30 financial years. The Ministry of

Transport and the NZTA must take into account the national land transport strategy in exercising its

powers or performing its functions and duties.

Under the LTMA, options and alternatives must be given full consideration in the early stage of the project

and must not be inconsistent with the purpose of the LTMA.

Resource Management Act 1991

The Resource Management Act 1991 (RMA) is the primary environmental legislation in New Zealand with

the purpose of promoting the sustainable management of natural and physical resources, focusing on the

use of land, air and water. The RMA prescribes the content of a number of statutory documents and

details of the documents relevant to this project are included throughout this report. The Statutory

Approvals Management Plan for the Mt Victoria to Cobham Drive Study provides a more comprehensive

summary of the key provisions of the RMA relevant to the Project.

Of particular relevance to the Mt Victoria to Cobham Drive Study are the provisions included in Part 6AA

Proposals of National Significance. Recognition of the Wellington Northern Corridor as a RoNS means the

NZTA intend to use the process relating to proposals of national significance and the subsequent call-in

provisions to the EPA for gaining approvals for the Project. The Statutory Approvals Management Plan

(SAMP) accompanying this Technical Report provides detail on the assessment of the project against the

provisions contained in s.142 of the RMA.

Wellington (City) Town Belt Reserves Act 1908

The Wellington (City) Town Belt Reserves Act 1908 gives governance of the Town Belt land to the

Wellington City Council and outlines conditions and restrictions associated with leasing of Town Belt land.

It includes a schedule of Wellington Town Belt land. This Act is considered relevant to the study if any

town belt land is required for the preferred option.

Public Works Act 1981

The Public Works Act 1981 is administered by Land Information New Zealand and includes provisions for

the acquisition of land for public works. Should the NZTA require parts of the Town Belt land for the

project, it may request the Minister of Conservation to set apart public reserve land (Town Belt) for a

public work under Section 52 of the Public Works Act 1981. Land owner compensation may be required.

Government Policy Statement on Land Transport Funding 2009 (GPS)

The Government Policy Statement (GPS) is a key policy document developed and issued under the LTMA. It

details the government’s desired outcomes and funding priorities for the use of the National Land

Transport Fund to support activities in the land transport sector.

The GPS sets out the government’s priority for its investment in land transport to increase economic

productivity and growth in New Zealand. Investing in high quality infrastructure projects that support the

efficient movement of freight and people is seen as critical.

From its investment in land transport, government wishes to achieve:

• Efficient movement of freight and people

• Better value for money across all land transport activity classes and enhancing economic efficiency

of individual projects

• The objectives of the LTMA by contributing to an affordable, integrated, safe, responsive and

sustainable land transport system.

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Two key initiatives are included in the GPS to support the investment in infrastructure: the creation of an

infrastructure portfolio to coordinate, motivate and overview infrastructure activity; and the listing of

seven Road of National Significance (RoNS) as a statement of national road development priorities. The

RoNS provides a focus for investment to achieve economic growth and productivity, and these are

considered to be the most essential routes that require significant development to reduce congestion,

improve safety and support economic growth.

The Wellington Northern Corridor (Levin to Wellington) – State Highway 1 is one of the seven listed RoNS.

The Mt Victoria to Cobham Drive Project is an important component of the Wellington Urban RoNS (one of

the eight parts of the Wellington Northern Corridor) and funding of the Project is given priority under the

GPS.

Historic Places Act 1993

The Historic Places Act 1993 (HPA) intends to promote the identification, protection, preservation, and

conservation of the historical and cultural heritage of New Zealand. The HPA establishes heritage orders

and covenants; procedures for applications relating to archaeological sites; the registration of historical

places/areas, wahi tapu, and wahi tapu areas; and charges the Historic Places Trust (HPT) to prepare policy

for historic places and conservation plans.

The provisions of the HPA and involvement of the HPT are relevant to the Mt Victoria to Cobham Drive

Study, as much of this part of Wellington City was settled pre-1900 and is of historical interest.

2.2.2 Statutory and Secondary

National Environmental Standard for Air Quality 2004 (NES)

The National Environmental Standard (NES) for Air Quality was released in 2004, with amendments made

in late 2004 and 2005. The NES for Air Quality contains mandatory technical environmental regulations.

They have the force of regulation and are implemented by agencies and parties with responsibilities under

the RMA. A review of the NES for Air Quality in terms of relevance to this Project is provided in 0.

Other Statutory and Secondary Documents

Other statutory primary and secondary documents have been reviewed as part of this study but are

considered not necessarily important to the development of the evaluation framework to assess the

options, thus are not included here. These include:

• Reserves Act 1977

• Energy Efficiency and Conservation Act 2000

• Public Transport Management Act

• The NZTA Statement of Intent

• National Land Transport Programme 2009-2012 (NLTP)

• New Zealand Energy Efficiency and Conservation Strategy (October 2007).

2.2.3 Non-Statutory and Primary

New Zealand Urban Design Protocol 2005

In March 2005, Transit New Zealand (now the NZ Transport Agency or the NZTA) became an early

signatory to the New Zealand Urban Design Protocol. NZTA’s commitment to the Protocol is embodied in

its Urban Design Policy which requires that urban design is considered at all stages of highway projects

from route selection through to detailed alignments and to the design of specific road components.

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More specifically, NZTA’s Urban Design Policy is aimed at ensuring that:

• Roads fit in sensitively with the landform and the built, natural and community environments

through which they pass

• All systems of movement along and across the corridor are integrated into the design of projects

with good connections and access to communities; and

• The design contributes to the quality of public space and the road user’s experience.

The purpose of the Urban and Landscape Design Assessment (ULDA) is to demonstrate how the Mt

Victoria to Cobham Drive Study satisfies NZTA’s Urban Design Policy requirements.

The ULDA will give effect to NZTA’s Urban Design Policy by including:

• An appreciation of the policy and physical contexts to the route

• The identification of urban design issues and opportunities within the project or in the project’s

immediate surroundings

• Design objectives and principles to guide the development of specific aspects of the road

alignment and road components

• Setting a framework for further assessment at the Scheme Assessment Report (SAR) stage as a full

Urban Design and Landscape Framework is developed to inform the future detailed design of the

Project.

Other Non-Statutory and Primary Documents

Other non-statutory and primary documents have been reviewed as part of this study but are considered

not necessarily important to the development of the evaluation framework to assess the options, thus are

not included here. This includes the National State Highway Strategy 2007 (NSHS).

2.2.4 Non-Statutory and Secondary

Other Non-Statutory and Secondary Documents

Other non-statutory and secondary documents have been reviewed as part of this study but are considered

not necessarily important to the development of the evaluation framework to assess the options, thus are

not included here. These include:

• Environmental Plan 2005

• Getting There – On Foot, By Cycle 2005

• NZTA Planning Policy Manual 2007

• Public Engagement Manual 2008.

2.3 Regional Policy & Plans


Regional Policy Statement 1995; Proposed Regional Policy Statement 2009

The Regional Policy Statement (RPS) is a statutory document prepared under the RMA and sets out

objectives for the region as a whole. The RPS signals to district councils where rules should be in

conjunction to achieving the regional objectives. The operative RPS is currently under review with the

proposed RPS notified in 2009.

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The operative RPS has regional objectives relevant to the Project relating to: Iwi Environmental

Management; Freshwater; Soils and Minerals; Air; Ecosystems; Landscape and Heritage; Energy; and the

Built Environment and Transport. The proposed RPS has regional objectives relevant to the Project relating

to: Air Quality; Energy Infrastructure and Waste; Freshwater; Historic heritage; Landscapes; Regional Form

Design and Function; Resource Management with Tangata Whenua; and Soil and Minerals.

In particular, Objective 9 of the proposed RPS intends (among other things) to reduce greenhouse gas

emissions from transport through Policies 8 and 9. Policy 9 promotes travel demand management

through district plans and the RLTS. This policy is implemented through the RLTS and provides

information about travel demand management. This direction is important in informing the assessment of

options considered against the RLTS.

The RPS (operative and proposed) also set in place the provision for regional plans to regulate activities,

and in particular regional resource consents are likely for a number of activities associated with the

Project. These consents will be scoped at the SAR stage for the preferred option.

Wellington Regional Land Transport Strategy 2010 – 2040

The WRLTS is a strategic transport document that guides the development of the region’s transport

system including public transport, roads, walking, cycling and freight for the next 10 years and beyond.

The WRLTS recognises the Wellington RoNS programme and the priority on investments into infrastructure

that contribute to economic growth and productivity signalled by government in the Government Policy

Statement 2009 (GPS).

The WRLTS seeks to address key issues and pressures faced by the region including:

• Access to goods and services, employment

and amenities.

• Regional road safety, particularly for cyclists.

• Severe traffic congestion, particularly at peak

times.

• East-west connections between key transport

corridors and regional centres.

• The reliability of the transport network.

• Transport-related greenhouse gas emissions.

• Public transport capacity and mode share.

The strategy responds to the region’s projected economic and population growth and the need to manage

anticipated increases in travel demand.

The WRLTS objectives are to:

• Assist economic and regional development.

• Assist safety and personal security.

• Improve access, mobility and reliability.

• Protect and promote public health.

• Ensure environmental sustainability.

• Ensure that the Regional Land Transport

Programme is affordable for the regional

community.

The strategy identifies a number of key outcomes which the region seeks to achieve over the long term.

Outcomes have been given a hierarchical structure of ‘key outcomes’ and ‘related outcomes’ to clearly

signal priorities for the strategy over the next 30 years. Key outcomes of the strategy are consistent with

the former WRLTS, though the new WRLTS brings with it a new inter-regional outcome which is: ‘improved

safety, efficiency and reliability of strategic road, public transport and freight links to the north of the

region’. A series of targets has been developed out to 2020 for all of the strategy outcomes, and policies

have been developed to support these targets.

Implementation

The WRLTS establishes objectives and policies to deliver an integrated land transport network that

supports the region’s people and prosperity, and requires Corridor Plans to be prepared for four key

corridors, including the Ngauranga to Airport Corridor. A Corridor Plan defines the immediate priorities

for the corridor, and sets measures (improvement packages) to be implemented within 10 years, and

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measures that may be implemented beyond the 10-year period. The Ngauranga to Wellington Airport

(N2A) Corridor Plan 2008 is reviewed in Section 2.3.3 below.

Development of a Regional Land Transport Programme (RLTP) is a legislative requirement and sits

alongside the WRLTS. The Programme sets out the priorities for projects and activities in the region with

estimated timing and costs. The review process for the Programme is every three years and will use an

agreed prioritisation tool, taking into account the strategic framework provided by the WRLTS.

One of the most significant features identified in the strategy to be progressed through the supporting

implementation documents is, “Progress on the key routes of national and regional significance (including

the State Highway 1 Wellington Northern Corridor Road of National Significance)”. The WRLTS signals that

the Implementation and Corridor Plans will need to be updated during their next scheduled review to

incorporate the strategic framework provided by the GPS and ensure the Wellington Northern Corridor

Road of National Significance programme is appropriately aligned.

Funding

The WRLTS must be developed with consideration to likely funding. The funding chapter summarises the

main sources of funding available to the region. The NZTA’s National Land Transport Programme sets out

the funding available to the Wellington region over the next three years, and GWRC’s Regional Land

Transport Programme details indicative funding for the next 10 years.

The NZTA has identified $2 billion will be spent on the Wellington Northern Corridor Road of National

Significance in the Wellington region.

Monitoring, evaluation and review

The strategy concludes with measures for monitoring, evaluating and reviewing the strategy (and

supporting implementation and corridor plans) to ensure it maintains relevance and delivers its vision and

objectives within a changing environment.

The chapter on funding specifically mentions duplication of the Mt Victoria Tunnel. This section states:

In December 2009 the Government announced its decision to invest over $2 billion dollars in the

Wellington Northern Corridor Road of National Significance (State Highway 1 from Levin to

Wellington International Airport). This will significantly transform the region’s roading network

over the period of this Strategy and deliver against a number of RLTS outcomes and policies.

This funding is targeted over three phases which include:

• Aotea Quay to Ngauranga improvements

• Basin Reserve upgrade

• Mount Victoria and Terrace Tunnel duplications

• Transmission Gully

• Sandhills Expressway (between MacKay’s and Levin).

The WRLTS also references the Ngauranga to Wellington Airport N2A Corridor Plan as being in line with

the project suite identified for the Wellington Northern Corridor Road of National Significance. The timing

of some of the projects has been brought forward by the NZTA; namely, the Mt Victoria and Terrace

Tunnel duplications and widening of Ruahine Street/Wellington Road. These timing changes will be taken

into account during the next review of this Corridor Plan.

Proposed Regional Public Transport Plan

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Under the Public Transport Management Act (PTMA), the GWRC must, by resolution, adopt a Regional

Public Transport Plan (RPTP) and the PTMA specifies the requirements for RPTP. The GWRC is updating its

RPTP. The purpose of this plan is to:

• Specify how GWRC will give effect to the public transport aspects of the WRLTS; and

• Contribute to achieving an affordable, integrated, safe, responsive and sustainable land transport system.

The plan is a key tool in delivering one of the community outcomes set out in GWRC's 10-year Plan 2009-

2019: "a well-patronised public transport network that helps people get around the region easily and

reduces road congestion". The plan will set out the public transport objectives, policies and methods that

GWRC proposes to ensure the region can give effect to the WRLTS and achieve its outcomes. The plan will

primarily be an update and realignment of the existing plan to better support the design and development

of an integrated public transport network and to comply with current legislation and policies.

A four-layered public transport service approach is provided:

• A Rapid Transit Network (RTN) – a strategic public transport network that connects regionally significant centres – mostly rail but with buses linking through to Wellington Hospital and Wellington

Airport

• A Quality Transit Network – supports the RTN – connects the RTN and key centres over major corridors. Mainly serviced by buses

• A Local Connector Network – access to local centres – bus and ferry

• Targeted services – peak, school, social services.

Key aspects of relevance to duplication study:

• The vision is to enhance public transport use over motor vehicles in the region.

• Wellington CBD to airport RTN is important to the operation of regional public transport.

• Kilbirnie is a regionally significant centre (key destination).

• Hospital link is important – regional hospital.

• Ngauranga to Wellington Airport corridor reviewed in 2007, again in 2015/16.

• Peak public transport services important to consider.


Regional Air Quality Management Plan for the Wellington Region 2000 (Regional Air

Quality Plan)

The Regional Air Quality Plan applies to the discharges to air and identifies issues to be addressed so that

air can be sustainably managed. The regional rules must also be consistent with the requirements set out

in the NES for Air. Discharges to air covered by the Regional Air Quality Plan that may be relevant to the

Project are from the possible discharges of coating processes, abrasive blasting, cooling

towers/ventilation, and other miscellaneous discharge of contaminants. It should be noted the Regional

Air Quality Plan does not restrict discharges to air from vehicles.

The Regional Air Quality Plan sets out the following objective that is relevant to the Project:

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• Discharges to air in the Region are managed in a way, or at a rate which enables people and

communities to provide for their social, economic and cultural well-being and for their health and

safety while ensuring that adverse effects, including any adverse effects on:

• Local ambient air quality

• Human health

• Amenity values

• Resources or values of significance to tangata whenua

• The quality of ecosystems, water and soil; and

• The global atmosphere,

are avoided, remedied or mitigated.

The relevant policies under the Regional Air Quality Plan are as follows:

• To avoid, remedy or mitigate any adverse effect of the discharge of contaminants to air that is noxious,

dangerous, offensive, or objectionable.

• To ensure that any measures adopted to avoid, remedy or mitigate the effects of discharges of

contaminants to air, take account of the sensitivity of alternative receiving environments (e.g. water or

soil).

• To avoid, remedy or mitigate the adverse effects of the discharge of contaminants to air on amenity

values.

Regional Plan for Discharges to Land for the Wellington Region 1999 (Regional Discharges

to Land Plan)

The Regional Discharges to Land Plan applies to the discharges of contaminants to land, whether or not

the discharge enters water. Discharges to land from the Project would predominantly involve the discharge

of stormwater into the Wellington City stormwater network. The Plan has identified an issue relating to the

potential for adverse effects on the receiving environment if the discharge of liquid wastes does not enter

the reticulated sewer system. The objective and policy on the discharge of liquid contaminants that is

relevant to the Project is:

• The adverse environmental effects of discharges of liquid contaminants from point sources into or onto

land are avoided, remedied or mitigated.

• To allow discharge of liquid contaminants to land which are not likely to have adverse effects on soil,

water quality and amenity values, particularly where the effects of the contaminants would be greater

if they were discharged directly into water.

Regional Soil Plan 2000

The Regional Soil Plan identifies issues to be addressed so that the effects of large scale soil disturbance

and vegetation clearance on erosion-prone land can be sustainably managed. The Regional Soil Plan has

identified there are issues within the Wellington region relating to the adverse effects of human land use

activities on the soil resource, which are compounded by the fact that significant parts of the region are

inherently susceptible to high levels of erosion. Sediment-laden runoff can also have adverse effects on

the receiving environment during soil disturbance activities if adequate land management practices are

not adopted.

The Regional Soil Plan sets out the following objectives that are relevant to the Project:

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• On erosion prone areas vegetative cover is maintained (including maintained through revegetation),

enhanced or established; or where the retention of vegetation is not practical, other methods are used

so that the adverse effects of erosion are avoided, remedied or mitigated.

• Land management practices are adopted for the effective control of sediment runoff to water bodies.

Relevant policies are as follows:

• To promote land management practices that recognise the inherent susceptibility of some landforms to

erosion.

• To avoid, remedy or mitigate the adverse effects of vegetation disturbance by promoting the

maintenance and enhancement of vegetation in erosion prone areas.

• To ensure that recognised erosion control and land rehabilitation techniques are adopted to avoid,

remedy or mitigate any adverse effects resulting from soil disturbance activities.

Regional Freshwater Plan for the Wellington Region 2006 (Regional Freshwater Plan)

The Regional Freshwater Plan applies to activities that use freshwater or that are in the beds of rivers and

lakes. There is a waterway located within the study area that has the potential to be affected by piping

and/or discharge of stormwater during earthworks.

The Regional Freshwater Plan sets out the following objectives that are relevant to the Project:

• The natural character of wetlands, and lakes and rivers and their margins, is preserved and protected

from inappropriate subdivision, use and development.

• The life-supporting capacity of water and aquatic ecosystems is safeguarded from the adverse effects

of any subdivision, use and development.

• The amenity and recreational values of wetlands, lakes, and rivers are maintained and, where

appropriate, enhanced.

Relevant policies are as follows:

• To have regard to the following characteristics of wetlands, and lakes and rivers and their margins,

when considering the protection of their natural character from the adverse effects of subdivision, use,

and development:

- Ecosystems, habitats and species; and

- Water quality; and

- The natural flow characteristics and hydraulic processes (such as sediment transport) of

rivers or the pattern and range of water level fluctuations that occur naturally in wetlands

or lakes; and

- The topography and physical composition of river or lake beds and the course of the river.

• To have regard to the benefits arising from any proposal for the use and development of a water body

when assessing the proposal.

Regional Coastal Plan for the Wellington Region 2000 (Regional Coastal Plan)

The Regional Coastal Plan applies to the coastal marine area (CMA) of the Wellington region and identifies

issues to be addressed so that the CMA can be sustainably managed.

As the Project will not require any activity within the CMA, further assessment is therefore not required.

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Operative Regional Passenger Transport Plan 2007

The Operative Public Transport (PT) Plan is dated August 2007 and covers a period of 2007 – 2016. Public

Transport outcomes include the Vision for passenger transport:

A sustainable passenger transport system that, through significant achievements in each period, is

integrated, accessible and increasingly the mode of choice for a greater number of journeys.

The main related outcomes for passenger transport correspond to the key outcome of increased peak

period passenger transport mode share. These related outcomes are as follows:

• Increased off-peak passenger transport use and community connectedness

• Improved passenger transport accessibility for all, including people with disabilities or from low income groups

• Reduced passenger transport journey times compared to travel by private car

• Increased passenger transport reliability.


Wellington Regional Strategy

The Wellington Regional Strategy (WRS) is a ‘sustainable growth strategy’ that has been developed by the

Wellington Region’s nine local authorities, in conjunction with central government and the region’s

business, education, research and voluntary sector interests. Its aim is to make greater Wellington

“internationally competitive” by creating a region which offers a competitive package of a great lifestyle

and job opportunities, supported by a strong economy – therefore roads and public transport systems

need to be world class and facilitate links within and outside the region.

The WRS develops three focus areas for sustainable growth: “Leadership and Partnership; Grow the

Economy, Especially its Exports; Good Regional Form”. The third focus area is of most relevance to the Mt

Victoria to Cobham Drive Study as it identified integrated transport with urban and rural needs being an

essential component for sustainable growth.

The GWRC is the ‘keeper’ of the WRS and through its standing committees it has used it to inform the

thinking and direction included in the Wellington RPS and WRLTS. The WRS identified good transport

connections and efficient transport systems as an investment in Good Regional Form and this thinking is

strongly reflected in the WRLTS.

The WRS develops 8 Regional Focus Areas, with the most relevant to the Mt Victoria to Cobham Drive

Study being the ‘Johnsonville to the Airport – the Growth Spine’. It is recognised this area is critical

because it contains a number of key regional facilities (port, airport, hospital, and CBD). Increasing

pressure on road, rail and bus transport is resulting in businesses and apartment growth within the CBD

and future planning to accommodate further growth is needed. This area is identified as the ‘engine

room’ of the regional economy.

The WRS identifies a number of actions to achieve Good Regional Form, with NZTA recognised as playing a

role (amongst other things) in investing in the transport infrastructure; assisting with integrated transport

and urban needs; and assisting with a planning framework for the Johnsonville to airport area. The WRS

intends to have an impact on local authority areas, including (amongst other things) a “more reliable

transport link between Ngauranga and the airport and port”.

The Ngauranga to Wellington Airport Corridor (N2A) Plan (2008)

The long term vision for the Ngauranga to Wellington Airport Corridor (N2A) is described in the WRLTS

2007-2016:

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Along the Ngauranga to Wellington Airport Corridor, access to key destinations such as

CentrePort, Wellington City CBD, Newtown Hospital and the International Airport will be

efficient, reliable, quick and easy. Priority will be given to passenger transport through this

corridor, particularly during the peak period. Passenger transport will provide a very high

quality, reliable and safe service along the Wellington City growth spine and other key

commuter routes. The road network will provide well for those trips which cannot be made by

alternative modes and will allow freight to move freely through the corridor. Traffic congestion

through the corridor will be managed at levels that balance the need for access against the

ability to fully provide for peak demands due to community impacts and cost constraints.

Maximum use of the existing network will be achieved by removal of key bottlenecks on the road

and rail networks.

The N2A Corridor Plan predates the current GPS and announcement of RoNS.

The N2A Corridor Plan addresses transport for the multi-modal corridor starting at the Ngauranga Merge

and continuing through the Wellington City CBD to Newtown (including the regional hospital), the Eastern

Suburbs and Wellington International Airport. It includes State Highway 1, major arterial routes, the railway

line where the North Island Main Trunk and the Wairarapa lines merge and through to Wellington City rail

terminals, and key routes for passenger transport, walking and cycling.

This corridor plan aims to strengthen the four key transport elements in the city which are:

1. A high quality and frequency passenger transport ‘spine’

2. Highly accessible and attractive ‘activity’ or shopping streets

3. A reliable and accessible ‘ring’ or bypass route for vehicles

4. Interconnected and convenient local street, walking, cycling and passenger transport networks.

The plan identifies measures that should be completed over the next 10 years, as well as longer term

measures that should be developed over the next 10 years and then programmed to be implemented as

conditions and funding allows.

The immediate priorities for the corridor are identified in the plan as:

• Continuing a programme of travel demand management measures to reduce the number of car trips

(particularly sole occupant to work) and encourage alternatives such as public transport, walking,

cycling and telecommuting, flexible working hours and working from home.

• Establishing bus priority measures as a first step towards the development of a high quality, high

frequency public transport spine that will cater for travel growth, reduce vehicle congestion, improve

liveability, guide and support urban intensification and provide resilience against fuel supply and price

shocks.

• Improving traffic management at the Basin Reserve to enable more reliable bus journey times, improved reliability of the ring route and improved pedestrian and cyclist facilities.

• Improving the relatively poor cycling routes and facilities.

• Improving the already highly-developed walking routes to cater for the substantial numbers of people who walk and encourage growth in these numbers - also essential for urban vitality.

• Protecting the strategic road network to ensure the ability to provide for future development of a high

quality ‘predictable’ vehicle ‘ring route’ for inter-regional accessibility, economic linkages, time critical

travel and to support the public transport network.

Overview diagrams are provided below which depict measures to be implemented within 10 years (Figure

3) and measures that may be implemented (beyond 10 years (Figure 4)). Table 1, also below, has been

extracted from the plan and provides further details about some of the most relevant measures.

Of particular importance to the Mt Victoria to Cobham Dr Study is the inclusion of the measure to:

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undertake project feasibility studies and scheme assessment reports for both:

• Duplication of Mt Victoria Tunnel; and

• Four-laning Ruahine Street and Wellington Road within the next 10 years.

Measures of relevance to the study which were identified to be introduced within the next 10 years include

measures to:

• Implement passenger transport improvements (including bus priority measures, signal pre-emption, real time information) along the golden mile route to improve journey times, reliability and passenger

waiting and boarding provisions. Improvements to include the Golden Mile (from Lambton Interchange

to eastern end of Courtenay Place).

• Implement bus priority measures on arterial routes, including Kent/Cambridge Terrace, Taranaki

Street, and Adelaide Road.

• Implement bus priority measures to Wellington International Airport, Wellington Regional Hospital and key Suburban Centres, including:

� Newtown

� Hataitai

� Kilbirnie

� Brooklyn

� Island Bay

� Miramar

• Finalise and implement a Wellington City walking policy and a Wellington City cycling policy to make cycling safer and more convenient (these have since been released).

• Investigate water-borne passenger transport services between the Wellington CBD and Miramar

Peninsula, and improving passenger transport services to/from the airport.

• Design and construct improvements at the Basin Reserve to improve passenger transport, walking and cycling by separating north-south flows from east-west traffic.

• Investigate improvements to walking and cycling facilities in Mt Victoria Tunnel.

• Implement intersection improvements, including improved pedestrian facilities at Troy Street/Cobham Drive to reduce congestion and improve safety.

• Undertake a feasibility study for a high quality public transport system, including light rail (the most favourable option(s) will then be developed further by a more detailed scheme assessment after

2013/14).

• Review the operational performance and capacity of bus service provisions within the corridor following the completion of the Golden Mile bus lane improvements and the delivery of the new trolley buses.

This review should also assess the effectiveness of the Hataitai bus tunnel.

• Undertake a feasibility study for the four-laning of Ruahine Street and Wellington Road and for the duplication of the Mt Victoria Tunnel, considering in particular its relationship with the Basin Reserve

improvements and improved transport links from the airport to the CBD for freight, taxis and public

transport.

Many of these measures will be undertaken as feasibility studies initially and then scheme assessments

will follow for the preferred option(s).

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Figure 3: Ngauranga to Wellington Airport Corridor – Measures to be implemented within 10 years

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Figure 4: Ngauranga to Wellington Airport Corridor – Long Term Measures

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Table 1: Measures that may be implemented beyond 10 years (N2A)

Measure Responsibility Timing Indicative Cost $M

Suggested Funding

Implement further improvements to the

passenger transport spine giving

consideration to further bus

improvements, light rail or new

personal rapid transport systems

WCC (lead)

GWRC

Likely to be beyond 10

years

20-140+ To be

determined

Four laning of Wellington Rd and

Ruahine St

NZTA (lead)

WCC


years but may be

appropriate to develop

in stages, particularly to

coordinate with

improvements to access

for Hataitai Park. It

would be necessary

prior to opening any

duplicate Mt Victoria

Tunnel

43 To be determined

Duplication of Mt Victoria Tunnel NZTA (lead)

WCC


years

175 To be determined

Duplication of Terrace Tunnel and

Waterfront lane reduction

NZTA (lead)

WCC


years

167 To be determined


Regional Travel Demand Management Plan (2009)

The Regional Travel Demand Management Plan (TDM Plan) was released is 2009. The TDM Plan is one of

several plans that sets out projects and actions to implement the strategic direction provided in the RLTS.

The TDM Plan calls attention to the fact that there are both supply side and demand side measures to

contributing towards a sustainable transport system. These are illustrated conceptually in Figure 5.

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Figure 5: Demand and supply side measures role in supporting sustainable transport (Regional TDM Plan, 2009)

One of the actions relevant and under the responsibility of NZTA and territorial authorities is to optimise

use of the existing network through Road network efficiency, which is identified as follows:

Give consideration to the use of technology-based tools and other traffic management measures

when planning improvements to the road network, to ensure use of the existing network is

optimised

Measures might include:

• Intersection design

• Traffic signal and pedestrian priority phasing

• Traffic management and traveller information systems

• Variable message signs

• Ramp metering

• Driver assistance systems

• High Occupancy Vehicle lanes.

The TDM Plan notes, that:

In particular, consideration should be given to how network optimisation measures can be

implemented along the Wellington Road of National Significance (SH1 between Levin and

Wellington) as a matter of priority.

Thus, network optimisation should be fully considered in the Mt Victoria to Cobham Drive Study. This may

include for example, considering how existing intersections can be optimised to accommodate the

increased transport capacity along the route.

Regional Cycling Plan 2008

The Regional Cycling Plan adopted by the Regional Transport Committee in December 2008, identifies a

range of actions and initiatives to achieve the outcomes for cycling set out in the RLTS.

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The actions relevant to the study area include:

• Improve the cycling network.

• Improve cycling and public transport integration.

• Provide for cyclists in land development.

• Improve cycling connections between local

networks.

Regional Walking Plan

The Regional Walking Plan sets out an action plan with a series of high level initiatives aimed at

contributing to the outcomes of the RLTS. Actions identified in the plan which are relevant to the study

include: improve the pedestrian network and improve walking connections between local networks. In

addition, one of the actions identified as a responsibility of the territorial authorities is to review the

pedestrian network. Guidance for this review is given and includes the following pedestrian facility

considerations, which may be useful to guide the review and designing of walking facilities for the present

study:

• Footpath surfaces, alignment and obstructions.

• Crossing facilities and wait times.

• Personal safety/security and lighting.

• Aesthetics, shelter and street furniture.

• Route directness and connectivity.

• Signage and information.

• Needs of different types of pedestrians.

• Space allocation and traffic impacts.

• Road safety.

• Integration with other modes.


April 2011

2.4 Local/District Policy & Plans


Wellington City Operative District Plan 2000

The Wellington City Council (WCC) sets out regulations associated with land use within the City in its

District Plan via the use of zoning (illustrated on planning maps) which are linked to specific zone rules.

The zoning under the Wellington City Council District Plan for the land covered by the proposed alignment

is as follows:

Paterson Street: Inner Residential

Ruahine Street: Outer Residential (eastern side)

Open Space C (western (Town Belt) side)

Taurima Street: Open Space B (triangle of land between Taurima Street and Ruahine Street)

Open Space C (northern and southern sides – western end)

Wellington Road: Outer Residential

Open Space B (small triangle of land on southern side of Ruahine St junction and land directly adjacent to

northern edge east of Evans Bay Parade)

Open Space A (Kilbirnie Park, located on southern side of Wellington Road between Kilbirnie Crescent and

Evans Bay Parade)

A full summary of District Plan matters relevant to the study is provided in 0; however some of the key

issues relevant to the study area include:

• Numerous heritage sites.

• Numerous heritage trees.

• Existing designations, such as for educational facilities and telecommunications.

• Some of the study area lies within a section of the Inner Residential zone which contains rules related to demolition that may prove restrictive.

• Other zones in the study area include Outer Residential, Open Space A, Open Space B, Open Space C,

Suburban Centres. The Open Space zones in particular have a number of controls which may restrict

development.

• Other planning chapters which are relevant to the development, including utilities, earthworks and

subdivision sections.

• Ground shaking hazard area.

• Existing bus tunnel is listed in District Plan.

• Te Ranga a Hiwi Precinct which lies above the existing Mt Victoria Tunnel and is a Maori heritage protection feature.

• Te Akatarewa Pa is identified as being above the tunnel alignment.

• Ridgeline/hilltop overlay.

• Numerous plan changes which are reviewed in 0.

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There are no local statutory documents secondary to the project identified.


WCC Transport Strategy

The WCC Transport Strategy aims to ensure that Wellington’s transport system supports the city’s vision

for its future growth and function. The objective of the Strategy is to ensure the city’s transport system is

sustainable in the long term, meeting the economic, social, cultural and environmental aspirations of its

citizens. The Council adopted its current Transport Strategy in June 2006.

Future transport issues are identified in the WCC Transport Strategy as:

• Increasing congestion providing challenges to maintaining levels of service and travel time reliability on

arterial roads to and through the city

• Increased competition for road capacity from buses, cars, pedestrians and cyclists

• Providing better access to the port and airport.

The key ‘things to do’ identified in the transport strategy are:

• Develop the state highways and main arterial roads as the primary means of moving large volumes of traffic and freight to and through the city

• Develop public transport systems as the main means for the movement of people along the Urban Development Strategy growth spine

• Ensure continued access to the CBD for commuters

• Develop the port and airport as major contributors to the city and regional economy

• Develop measures to improve the energy efficiency of the city.

The long-term direction for transport from 2006 -2016 for Wellington is illustrated diagrammatically in

Figure 6.

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Figure 6: Long-term direction for transport 2006 -2016 (Transport Strategy, 2006)

Town Belt Management Plan 1981

The existing Mt Victoria Tunnel and potential locations for a second tunnel alignment are in and below the

Wellington Town Belt (Town Belt). In addition, some of the corridor support projects, such as widening

Ruahine Street, may impact on or be impacted by the Town Belt. An overview of the planning context of

the Town Belt, including information about the Town Belt Management Plan, is included in 0 of this report.

Key points to note are:

• The District Plan's provisions are complementary to the aim, objectives and policies of the original Deed and the Management Plan.

• In general, development is not supported unless it meets the intention of the Town Belt Management Plan.

• Where development is required for utility operations, the need for the development will be assessed

against the ability to maintain the Town Belt for public recreation and conservation.

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• Numerous Aims and Objectives of the Town Belt Management Plan, including: “A Town Belt which is

managed in accordance with the principal intention of the original Deed of 1873, which is to keep the

Town Belt land forever ‘as a public recreation ground for the inhabitants of the City of Wellington’.”

Analysis of the proposed project against these objectives and a number of other supporting policies is

provided in 0.

Wellington City Council Walking Policy 2008

This Walking Policy was reviewed as part of this Study. The purpose of the Walking Policy is to provide a

framework for initiatives to collaboratively improve the pedestrian walking environment in Wellington.

With the primary focus of promoting walking trips that would otherwise be taken by car, the policy seeks

to improve the walking environment and increase the number of short trips made by people to work or

study, either as a single journey, or as part of a journey. The policy also seeks to increase walking activity

in suburban centres by encouraging people to walk to their local services and making walking to schools

more attractive for children.

The policy promotes connectivity with the open space access network. This is of relevance to the Project in

terms of improving pedestrian connectivity with the Town Belt, particularly across Ruahine Street. Also

important to fulfilling the purpose of the Walking Policy is continuing to provide pedestrian access

through the Mt Victoria Tunnel.

Wellington City Council Cycling Policy 2008

The Cycling Policy forms part of the overall transport planning for Wellington set out in the Transport

Strategy 2006. It provides more detail on cycling in Wellington and the context set by other policies and

strategies. It also creates a framework for the development of infrastructure and measures to improve the

safety and convenience of cycling and cycling facilities throughout the city.

In order to create an effective framework to provide a basis for action, the policy sets out objectives and

policies on how implementation should be approached. These include emphasising the importance of

quality and continuity of cycle routes, including provision of consistent signage and recognising cycling as

a means of commuting and as a form of recreation.

The policy also details proposals both in general terms for ongoing support (e.g. promoting the health

and recreational benefits of cycling) and as location-specific improvements to infrastructure. The focus of

the latter is to create a safer and more convenient network in areas where existing provision is disjointed

or does not allow access to key destinations. Providing better facilities for cyclists is also a key objective of

the policy.

The policy will have relevance to the Project in terms of continuing to provide cyclist access between the

CBD and Hataitai.

WCC Urban Development Strategy

The Urban Development Strategy (UDS) was published by WCC in 2006 and WCC is a signatory to the

Urban Design Protocol. The UDS sits alongside the WCC Transport Strategy and includes a growth concept

compatible with it (similar to Figure 6). The purpose of the UDS is “to ensure that future growth and

change reinforces the physical and spatial characteristics that make Wellington so distinctive, and

contribute to the stimulating and intense urban experience it offers.”

The UDS identifies growth factors (population growth, demographics etc.) for Wellington and risks to

managing growth, such as, “if it is not managed well, it [the growth] can destroy aspects of the city’s

sense of place that are valued highly.” The UDS perceives its challenge to be: “to ensure that future growth

and change reinforces the physical and spatial characteristics that make Wellington so distinctive; focuses

on high quality urban design and development; and contributes to the stimulating and intense urban

experience Wellington offers.”

The framework in which the UDS sits is illustrated below in Figure 7.

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Figure 7: The UDS Framework (UDS, 2006:3)

The UDS includes a focus on investment and development in areas near to some of the potential locations

for a second Mt Victoria Tunnel. It includes intensification of the CBD, Te Aro, and some of Mt Victoria

and investing in roading and public transport for the corridor connecting Wellington with the Airport

(likely along the duplication corridor). The UDS is not more specific with regard to locations and

characteristics of growth spines. It includes a three-year plan which identifies some high priority capital

projects, but as depicted in Table 2 below, most of these have either been implemented or are not

detailed enough to provide substantive information for the Mt Victoria Tunnel to Cobham Drive study.

Table 2: Capital projects identified in UDS Strategy Tree and relevance or status

Capital Project Relevance to project

Shelly Bay Not relevant

Growth Spine Centres (management of Residential Infill Growth Spines Centres) Not specific

Aotea/Jervois Quay Improvements Not specific

Golden Mile/central city streets Currently being implemented

Central city squares and parks, minor public space improvements Not relevant

Suburban centres upgrades Not specific

Cog Park redevelopment Not relevant

Wellington 2040: The Future of our Central City 2009

Wellington Council is in the early stages of creating “Wellington 2040: The Future of our Central City”. In

September 2009 a series of visions, issues and opportunities were released for initial consultation.

Currently, the project is in stage two – creating a Spatial Structure Plan and a draft of the Wellington 2040

Central City Framework.

Wellington 2040 is a “holistic and integrated” initiative to provide strategic direction for the growth and

enhancement of the central city over the next 30 years.

The project has four key objectives, including to:

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• Provide coordinated direction to the Council’s management of the central city

• Identify issues facing the central city in the short and longer term

• Identify an appropriate direction for the central city, including roles of its constituent parts

• Identify opportunities to add value, leverage investment, improve outcomes and generally add to the success of the central city.

Initial indications from the project

The consultation document and initial feedback received indicate a number of potential themes in the

project that may be relevant for the Mt Victoria to Cobham Drive Study. In particular:

• The project contains assumptions of significant residential growth in the city, and that the city centre is of key importance to the function and prosperity of the wider Wellington area.

Consultation showed strong emphasis from submitters on the importance of transport into the city. In

particular, there was interest in improving public transport and active modes, and minimising car access

to the city.


The Urban Design Strategy 1994 (Non-statutory)

The Urban Design Strategy was prepared to assist WCC in achieving its vision for the future urban design

of the City. A review of this document is provided in the Environmental Technical Report.

The Adelaide Road Framework 2008

The Adelaide Road Framework outlines the vision for the future growth and development of the Adelaide

Road area. It expects significant urban changes over the next 10-20 years that will create a prosperous

and high-quality mixed-use area.

The vision provides for more residential development (to accommodate approximately 1,550 more people

by 2026), supported by public amenities and streetscape, employment opportunities, public transport,

and a transport route that works well for everyone. While the Adelaide Road Framework has some

relevance to the Mt Victoria to Cobham Drive Study as it is in the wider Ngauranga to Wellington Airport

Corridor, it is more relevant to the adjacent Basin Reserve Project.

More details about the Adelaide Road Framework, including changes to some of the planned actions, are

included in 0.

Kilbirnie Town Centre Draft Revitalisation Plan 2010

A Town Centre Plan has been developed for the Kilbirnie area as an urban design plan informed by traffic

planning and engineering. The study area examined is pictured in Figure 8 below. The Plan identifies

future growth projections for the area, issues in providing for growth and improving the overall quality of

life within the growth node together with opportunities to improve the centre.

The Plan identifies a number of key issues for the study area including:

• Transport to and from Kilbirnie is constrained by the Mt Victoria Tunnel

• Quality of street environment and urban environment in Kilbirnie is low, therefore making it hard to

attract new development

• Kilbirnie is predicted to grow by about 1000 people and 600 dwellings by 2031

• Most of the suburb is within a five minute walk to a bus stop and approximately 400 buses stop in

the town centre each week-day

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• Kilbirnie is currently made up of primarily single detached dwellings. Research into the growth spine

demand and supply of residential development has found that there is future demand for medium

density housing close to the town centre

• Improving access for pedestrians and cyclists is an important part of the revitalisation.

Further details are included in 0.

Figure 8: Kilbirnie Town Centre Area

2.5 Other Strategic Documents

Other documents have been reviewed as part of this study but are considered not necessarily important to

the development of the evaluation framework to assess the options, thus are not included here. These

include:

• The Centres Policy 2008

• WRS Projects (Non-statutory)

• WCC Working Papers (Non-statutory)

• The Northern Growth Management Framework (Non-statutory)

• Wellington Heritage Policy (September 2010) (Non – Statutory).

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2.6 Relevant Documents - Other Projects

2.6.1 The Basin Reserve

The Basin Reserve project abuts the Mt Victoria to Cobham Drive Study area and is currently in the

investigation and design phase with the preparation of a Scoping Report and Scheme Assessment Report

being completed. Options include considering a location for a proposed grade separation to the north of

the Basin Reserve.

The purpose of the project is to contribute to providing a high-quality, high-capacity and reliable

passenger transport spine as part of the Wellington RoNS from Levin to Wellington International Airport

and to improve the reliability and travel times of the route for through traffic, particularly to Wellington

International Airport and Wellington Hospital. Another important consideration is to provide enhanced

amenities, safety and convenience for people who walk and cycle.

NZTA intends to consult with the public on the findings of the Basin Reserve investigations at the same

time as consultation is undertaken on the Mt Victoria to Cobham Drive Project. Reference should be made

to the SAMP for details of the approach to combining these two projects. The construction timing of the

Basin Reserve project also has the potential to impact on works associated with the Mt Victoria to Cobham

Drive Project.

2.6.2 Wellington Tunnels Refurbishment Project

The Terrace Tunnel and Mt Victoria Tunnel in Wellington are being upgraded to meet international fire and

life safety standards. While the exact nature of the refurbishments to the Terrace Tunnel are known and

have commenced, the schedule and nature of the Mt Victoria Tunnel refurbishments will be decided once

the preferred option for the Mt Victoria to Cobham Drive corridor is decided.

2.6.3 Wellington Airport Masterplan

The Wellington Airport Masterplan was approved by Wellington International Airport Ltd in January 2010.

The Masterplan outlines the proposed development of the Airport, with an outlook to 2030. Key aspects

of the draft Masterplan include:

• An intention to double passenger numbers through the airport to more than 10 million per year by

2030.

• The airport intends to invest $450 million in its infrastructure, some of which is already underway. Infrastructure investment includes terminal development, multi-level parking, and the creation of

reserves at either end of the runway for possible future lengthening (100m at the north end and 500m

at the south).

• There is a proposal to move Calabar Road east to allow for widening of the airport runway.

Implications for Mt Victoria to Cobham Drive Study are:

• Growth of the Airport could create significant extra traffic for the route to and from Wellington City and beyond.

• The Masterplan contains mention of regional access to the airport and localised areas of congestion along this route. It specifically notes support for the Ngauranga to Airport Corridor Plan.

• Future lengthening of the runway to the north could bring the runway over Cobham Drive, and moving

Calabar Rd to the east provides an opportunity to redesign the Cobham Drive/Calabar Rd roundabout.

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• The Masterplan supports further development of the Airport Retail Park in Lyall Bay - this would be another source of traffic that could be connected to the duplication route.

2.6.4 Automated Traffic Management System (ATMS)

The Automated Traffic Management System (ATMS) project from the Terrace Tunnel to Petone is currently

underway. The project involves the installation of gantries, electronic signs, cabling and CCTV cameras to

assist with traffic management and traveller information with the intention of improving safety and traffic

flow along State Highways 1 and 2. This system is now largely operational. It is also proposed to extend

ATMS facilities through the Terrace Tunnel to Karo Dr as part of the Wellington tunnels refurbishment

projects.

2.6.5 Water Infrastructure Projects

According to the Wellington City Council Long Term Community Council Plan (LTCCP), major infrastructure

projects related to water supplies in the vicinity of the Mt Victoria to Cobham Drive Study area include:

• The water supply infrastructure along Taranaki Street (from the intersection with Buckle Street in the south to the harbour in the north) will undergo a significant upgrade.

• A second pump station will be installed in Kilbirnie near to the Cobham Drive/Wellington Road Intersection.

• A reservoir is being constructed in Newtown to provide additional supply capacity to the Wellington

CBD.

In addition, a water pump station is currently being installed at Tacy Street for the purpose of servicing the

proposed Wellington Indoor Community Sports Centre.

2.6.6 Badminton Club expansion

A resource consent application was made by the Wellington Badminton Association to expand the existing

Badminton Club buildings and undertake associated earthworks and modification, damage and removal of

indigenous vegetation within Open Space C Area. This development could have implications for the

widening of Ruahine Street proposed as part of the Mt Victoria to Cobham Drive Project. The NZTA’s

regional office made a neutral submission to the Council concerning the proposed activity. This activity

was deemed restricted discretionary under the District Plan and since has been declined by the WCC. The

decision has been appealed by the Wellington Badminton Association to the Environment Court, with NZTA

becoming an interested party under s.274 of the RMA. Currently WCC and the Wellington Badminton

Association are commencing informal mediation.

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3 Key Policy & Planning Themes/Issues

3.1 Overview

As discussed, this review of policy and planning documents provides the context for the Mt Victoria to

Cobham Drive Study. This context has been important for the development of the evaluation framework

(refer to Scoping Report for details of the evaluation framework) for the high level Multi Criteria

Assessment Tool (MCAT) process to select options for more detailed assessment through the Scheme

Assessment Report (SAR) process. This context will also be relevant for the more detailed assessment of

preferred option(s), and for the preparation of statutory approvals documentation in accordance with the

requirements of the RMA ready for lodging with the EPA.

This section of the Technical Report – Policy & Planning provides an overview of some of the key planning

themes or issues that are relevant to the Project that should be considered in the overall evaluation of

options. This should be read in conjunction with the Evaluation of Options Report which includes a

description of each of the options and the evaluation framework which has been used to assess their

suitability.

3.2 Key National Policy & Planning Themes/Issues

The following are the key planning themes/issues for the project from a national perspective:

• Achieving an affordable, integrated, safe, responsive and sustainable land transport system.

• Assisting economic and regional development.

• Assisting safety and personal security.

• Improving access, mobility and reliability.

• Protecting and promoting public health.

• Ensuring environmental sustainability (managing adverse environmental effects) including the Town Belt.

• Recognition of New Zealand’s most essential routes – Roads of National Significance – in the GPS -

including the Wellington Northern Corridor – (Levin to Wellington).

• Promoting the identification, protection, preservation and observation of the historical and cultural heritage of New Zealand.

• Complying with the NES for Air Quality that requires that the combined discharge of pollutants in the Wellington CBD airsheds not exceed the standards set out.

• Ensuring NZTA Urban Design Policy is implemented in project.

3.3 Key Regional Policy & Planning Themes/Issues

There are some key regional policy and planning themes/issues that are generally applicable to all

alignment options. These include the following:

• The intention to duplicate the Mt Victoria Tunnel and widen Ruahine Street and Wellington Road is recognised in the Wellington Regional Land Transport Strategy 2010 – 2040 and the Ngauranga to

Wellington Airport Corridor (N2A) Plan 2008.

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• The scope of the Mt Victoria to Cobham Drive Study is consistent with the Ngauranga to Airport Corridor Plan in terms of making improvements to the Mt Victoria to Cobham Drive corridor, but the

timeframe for undertaking the study has been brought forward.

• Maintaining or improving provision of a segregated public transport route that allows for a Rapid Transit Network is consistent with the Regional Public Transport Plan, WRS, Ngauranga to Wellington

Airport Corridor Plan, RLTS, and meeting the objectives of the NZTS as set out in the LTMA. Any

deterioration in public transport services would be inconsistent with these policies.

• Maintaining or improving the opportunity to access active modes is consistent with GWRC Cycling and Walking strategies as well as other policy documents. Likewise, longer (or less convenient due to

gradient) active modes will not be consistent with regional cycling and walking strategies.

• Any use of existing infrastructure rather than implementing new infrastructure will be aligned with the Regional TDM Plan.

• The need to ensure that the Regional Land Transport Programme is affordable for the regional community.

In addition, regional resource consents are likely to be required for the alignments under consideration. It

should be noted, however, that the number of regional consents will be different for different alignments:

• Soil disturbance for roading (Rule 1 of the Regional Soil Plan) and for soil disturbance of more than 1,000 cubic metres of soil on erosion prone land.

• Vegetation Disturbance - disturbance of vegetation on erosion prone land (Rules 3 & 4 of the Regional Soil Plan).

• Possible discharge to air consent for coating processes (Rule 15 of the Regional Air Quality

Management Plan), Abrasive blasting (Rule 16 of the Regional Air Quality Management Plan), cooling

towers/ventilation (Rule 17 of the Regional Air Quality Management Plan), miscellaneous discharge of

contaminants (Rule 22 of the Regional Air Quality Management Plan).

• Discharge of contaminants to land or water (Rule 1, Rule 2 of the Regional Plan for Discharges to Land), or discharge of stormwater (Rule 3 of the Regional Plan for Discharges to Land).

• Discharges to fresh water (Rule 5 of the Regional Freshwater Plan).

3.4 Key District Policy & Planning Themes/Issues

District Plan and Town Belt Management issues, such as heritage features or designations, are often

specific to certain locations and thus are specific to certain alignments. An overview of the planning issues

associated with each alignment is identified in 0. Many of the planning issues relate to District Plan

provisions and the Town Belt Management Plan. These are discussed more comprehensively in 0 and 0.

The following are the key planning themes/issues for the project from a local perspective:

• Maintaining or improving the opportunity to access active modes consistent with Wellington City Council’s Cycling and Walking strategies as well as other policy documents.

• Managing effects on the Town Belt and open spaces.

• Managing the effects on heritage features including heritage buildings (pre-1930 demolition) and archaeological sites.

• Town centre growth areas.

• Earthworks land use consents.

• Any improvements to accessing the town belt will be in line with Urban Design Protocol and WCC Urban Design Strategy and Town Belt Management Plan.

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The statutory context for the study area has been described in detail in Section 2 of this report. The key

District Plan and Town Belt Management Plan issues (depending on the alignment chosen) include:

• Widening of Ruahine Street/Wellington Road may be wider than the existing 25m designation allows

for and may affect property access and the Badminton Hall

• Depending on the route chose, there may by encroachment to Town Belt Land - Town Belt acquisition

• Duplicate tunnel to the north; Inner Residential: Pre 1930's demolition Rule (relevant to the Paterson

St heritage properties); possible removal of, or effects on, a heritage building

• Heritage Building 18: Ettrick Cottage

• Wellington Road alignment may impact on a heritage tree

• Heritage Tree 86: Rata tree located at 176 Moxham Avenue

• Open Space B & Open Space C: Council, including town belt land

• Eastern Portal of the duplicate tunnel to the north impacts on Town Belt and requires the removal of

the Hataitai Kindy

• Effects on the Badminton Hall.

3.5 Conclusion

From a policy and planning perspective, there are no significant differences between the various

alignments proposed. In order to reflect the purpose of the LTMA, “to contribute to the aim of achieving

an affordable, integrated, safe, responsive, and sustainable land transport system” and regional and local

policy, the preferred option must ensure that modal and route choice opportunities (for public transport,

walking and cycling) are recognised and not constrained.

The following are the key matters to be taken into the SAR phase of the project:

• Addressing themes above through preparation of an Assessment of Environmental Effects (AEE) and consenting document.

• Scoping of regional resource consents.

• Further consultation on final preferred option.

• Preparation of statutory approvals documentation, AEE and Land Requirement Plan.

• Assessment of proposal against s.171 of the RMA.

• Ensuring robustness of documentation to support the application to the EPA.

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Appendices

Appendix A - National Environmental Standard for Air Quality 2004 (Statutory)

The National Environmental Standard (NES) has provisions in regards to the following:

• Seven activity standards that ban various activities that discharge unacceptable quantities of dioxins and other toxics into the air

• Five ambient air quality standards for carbon monoxide (CO), fine particles (PM10), nitrogen dioxide (NO2), sulphur dioxide (SO2) and ozone (03)

• A design standard for new small-scale domestic wood-burning appliances

• A design standard for the collection and destruction of landfill gas at large landfills

The NES regulates the quality of air within the various airsheds around New Zealand. There are 42 airsheds

within New Zealand, identified where air quality could reach levels higher than the standards set out in the

NES. These airsheds measure the levels of PM10, which is the pollutant that has the most effect on urban

air quality. The Wellington Region has eight airsheds. The airshed relevant to this project is Wellington

CBD which covers the city area (including both tunnels). The NES requires that the combined discharge of

pollutants in these airsheds do not exceed the standards set in the NES. Table 3 below summarises where

the NES standards do or do not apply.

Table 3 Application of ambient air quality standards

Do Apply Do Not apply

The ambient air quality standard for a

contaminant applies at any place -

(a) that is in an airshed; and

(b) that is in the open air; and

(c) where people are likely to be

exposed to the contaminant.

(1) Areas which are not in the open air and

where the standards do not apply include:

• inside a house

• inside tunnels

• inside vehicles

(2) Sites which have resource consent for their

non-compliance with air quality standards.

Where the standards do apply and there are exceedances in pollutants (set out in Schedule 1 of the NES), a

resource consent is required. There are two deciding factors for all resource consents (under Regulation

17 of the NES). These are:

• The state of air quality in the airshed, i.e. it only applies to airsheds that exceed the fine particle

standard, and

• The proposed discharge is likely to "increase significantly the concentration of fine particles in the

airshed" - in other words, the impact of the discharge to be permitted is significant.

If the two conditions are satisfied, i.e. the impact of the discharge is significant and is in an airshed where

the fine particle standard is breached, then the application for consent must be considered as follows:

• 17A applies to applications for consents for new discharges in accordance with straight line path

requirements

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• 17B applies to applications for consents for new discharges in accordance with curved line path requirements

• 17C applies to applications for consents for existing discharges (i.e. renewals) and applications

incorporating offsets.

Further, there are specific provisions in relation to assessing resource consent for the various pollutants

themselves (including discharges of PM10, carbon monoxide, oxides of nitrogen, volatile organic

compounds, and sulphur dioxide).

The NES standards override the regional plan provisions in all circumstances and it is mandatory for

regional councils to modify any provisions in the existing regional plans that are contrary to the NES

standards. Where modification has not yet been included in the regional plan (such as in the case for the

Regional Air Quality Management Plan for the Wellington Region), an assessment under the NES remains

relevant and any activities infringing on the NES standards would need to apply for a resource consent

from the regional council under the NES.

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Appendix B - The Adelaide Road Framework

The Adelaide Road Framework identifies a number of key goals for the Adelaide Road area including:

• Allowing for more intensive high-quality residential growth along the northern part of Adelaide Road

• Improving the Adelaide Road transport corridor for various forms of transport, including walking, cycling, and public transport;

• Providing attractive, green and safe public spaces

• Strengthening the local community, for example, by promoting community facilities and investigating partnership opportunities

• Continuing to recognise and provide protection for valued heritage and character areas and buildings

• Recognising and protecting employment opportunities using low-impact stormwater systems in the new development/redevelopment areas.

Proposed Plan Change 73 includes a number of measures to achieve these outcomes in the Adelaide Road

area such as increasing building heights to allow for higher densities and mixed use. It identifies the

proposed actions to implement the framework.

Changes to the Adelaide Road Framework Project as of 2010

However, funding for the street improvements from NZTA towards the project was not fully realised.

Therefore, WCC decided not to progress buying property and widening the road, except for land at the

John Street intersection.

Instead, only planned transport improvements within the existing road corridor along with streetscape

amenity improvements will now be delivered.

Phase 1 (2011/12) includes the proposed changes at the John Street intersection. Phase 2 (2012/13)

covers the upgrade of the rest of Adelaide Road between John Street and the Basin Reserve. The project is

scheduled to be completed in 2013/14.

Due to the changes in the project, new plans are being developed for the Adelaide Road upgrade. Design

work will be completed by the end of January 2011.

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Figure 9: Proposed Actions of the Adelaide Rd Framework

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Appendix C- Kilbirnie Town Centre Draft Revitalisation Plan 2010 (Non-statutory)

A Town Centre Plan (the Plan) has been developed for the Kilbirnie area and is an urban design plan

informed by traffic planning and engineering. The Plan identifies future growth projections for the area,

issues in providing for growth, and improving the overall quality of life within the growth node, and

opportunities to improve the centre.

The Plan identifies a number of key issues for the study area including:

• Transport to and from Kilbirnie is constrained by the Mt Victoria Tunnel

• Quality of street environment and urban environment in Kilbirnie is low, therefore making it hard to

attract new development

• Kilbirnie is predicted to grow by about 1000 people and 600 dwellings by 2031

• Most of the suburb is within a five minute walk to a bus stop and approximately 400 buses stop in the

town centre each week-day

• Kilbirnie is currently made up of primarily single detached dwellings. Research into the growth spine demand and supply of residential development has found that there is future demand for medium

density housing close to the town centre

• Improving access for pedestrians and cyclists is an important part of the revitalisation.

Key goals identified to guide future development in the town centre are:

• Develop and enhance Bay Road as the main street

• Provide for and encourage a wider range of non-retail activities in the town centre

• Support existing and new retail anchor tenants

• Improve sense of place

• Improve public spaces

• Manage traffic and parking

• Maximise the potential of public transport systems

• Improve pedestrian and cycle access

• Encourage more people to live in and around the town centre

• Improve housing choice

• Maximise the potential of community infrastructure

• Improve resilience of water-based infrastructure.

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Appendix D - Relevant District Plan Provisions

The Operative Wellington City District Plan 2000 contains a number of zones and other notations that will

be relevant to the Mount Victoria to Cobham Drive Study. These include heritage items/building,

significant trees, cultural and geological overlays and precincts, designations, zones, and management

plans. These are summarised in Table 4 below and their locations are apparent in Figure 10.

Table 4: District Plan Zones and Notations in the Study Area

Zoning/Notation

Location Details

Inner

Residential

Relates to the western side of the tunnel to the

north and south of Paterson St. It is also the

underlying zoning below the school designations

on the western side of the tunnel.

The intention of this zoning is to provide for

residential activity within the inner city

vicinity. It is more intensive than that of the

Outer Residential Zoning.

Outer

Residential

Relates to most of the land to the east of Ruahine

Street, in Hataitai and land in Kilbirnie to the

South of Wellington Rd and Cobham Drive.

The intention of this zone is to provide for

residential activity in the suburbs.

Residences in this area are often on larger

lots, and are less intensive than those in the

Inner Residential Zone.

Open Space B

(Natural

Environment)

Relates to the middle section of the land above

the tunnel. Also small sections of Open Space B

at the corner of Taurima and Ruahine Streets, the

south-east corner of Ruahine St and Wellington

Rd and on the sea side of Cobham Drive.

The intention of this zone is to keep these

areas as natural as possible (avoiding

buildings and structures where possible).

Open Space C

(Inner Town

Belt)

Relates to the eastern end of the land over the

tunnel and land to the west of Ruahine St.

The intention of this zoning is to protect and

value the historic, social and cultural

importance of this area.

Open Space A

(Recreation

Facilities)

Relates to the Basin Reserve, Kilbirnie Park and

land on the sea side of the Cobham Drive/Evans

Bay Parade Intersection.

The intention of this zone is for open space to

be accessed for passive and active recreation.

Suburban

Centres

Relates to Hataitai village and an area to the

southwest of the Cobham Drive/Troy St

intersection.

The intention of this zone is to provide for the

most significant retail and industrial centres

in suburban Wellington.

Q1 1 Rugby St - Open Space B underlying. Government House, Residence of the

Governor General

E69 Dufferin St, Inner Residential underlying. Wellington College.

E71 Austin St, Open Space B. Wellington East Girls College.

T3 32-34 Waitoa Rd, Suburban Centre Underlying. Hataitai Exchange – telecommunications and

radio communications.

H6 Ruahine St, between Taurima St and Wellington

Rd, bounded on either side by Outer Residential

and Open Space C.

Road widening to 25m.

H7 Wellington Rd (between Ruahine St and Kilbirnie

Crescent). Outer Residential underlying.

Road widening to 25m.

H8 Wellington Rd. Outer Residential underlying. Corner Splay.

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Zoning/Notation

Location Details

E22 Moxham Ave. Outer Residential underlying. Kilbirnie Primary.

E58 Evans Bay Parade. Outer Residential underlying. St Patricks College.

E11 Kemp St. Outer Residential underlying. Evans Bay Intermediate.

Hazard

(ground

shaking area)

Around Cambridge and Kent Terraces and

around Kilbirnie Park.

Te Ranga a

Hiwi Precinct

Above the tunnel, the precinct spreads over most

of the town belt land on Mt Victoria.

The intent of this overlay is to protect

features identified by Iwi to be of significant

value to their ancestry.

M70 Above Mt Victoria Tunnel. Te Akatarewa Pa.

Heritage Item

44

Pirie St. Bus Tunnel.

Heritage Item

43

Paterson St. Wellington East Main Gates.

Heritage Item

10

Dufferin St. Mt View Asylum Wall.

Heritage Area

23

Alexandra Rd. Former Chest Hospital.

Heritage

Building 20

Austin St. Wellington East Girls College Main Building.

Heritage

Building 104

Dufferin St. Wellington College Firth House.

Heritage

Building 103

Dufferin St. Government House.

Heritage

Building 9

Alexandra Rd. Former Chest Hospital.

Heritage

Building220

Moxham Ave. All Saint’s Church.

Heritage

Building110

Evans Bay Parade. House 1927.

Heritage

Building 18

19 Paterson St. Ettrick Cottage.

M75 Kilbirnie Park. Akau-Tangi Pa.

Heritage Tree

97

147 Hataitai Rd. Norfolk Pine.

Heritage Tree

8

114 Waipapa Rd. Oak.

Heritage Tree

9

114 Waipapa Rd. Oak.

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Zoning/Notation

Location Details

Heritage Tree

79

67 Moxham Ave. Beech.

Heritage Tree

80

69 Moxham Ave. Magnolia.

Heritage Tree

81

77 Moxham Ave. Beech.

Heritage Tree

82

69 Moxham Ave. Coral Tree.

Heritage Tree

83

69 Moxham Ave. Karaka.

Heritage Tree

84

69 Moxham Ave. Nikau.

Heritage Tree

203

2 Baden Rd. Norfolk Pine.

Heritage Tree

86

176 Moxham Ave. Rata.

Heritage Tree

144

4 Wellington Rd. Pohutukawa.

Heritage Tree

204

Corner of Paterson St and Dufferin St. Elm.

Ridgeline and

Hilltop overlay

A large section of the town belt above the tunnel. The intention of this overlay is to ensure that

the natural contours of the land are protected

(particularly where identified as significant).

This overlay has certain provisions outlining

restrictions with regards to the development

on ridgelines and hilltops (within the

Operative District Plan), so to ensure the

integrity of these features are retained.

Frontage

where vehicle

access is

restricted

East side of Ruahine St. Resource consent required to build access

from road.

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Figure 10: District Plan zoning and notations

Section 166(f) of the RMA states that a network utility operator includes ‘a person who constructs,

operates, or proposes to construct or operate, a road or railway line’. The intention of the Utilities Section

of the District Plan is to ensure and prioritise the efficient functioning of the City through the important

networks of utilities. Permitted activity standards relating to Utilities, the construction, alteration or

addition to a utility structure located under existing or re-contoured ground, is a permitted activity

provided the ground surface is reinstated including - where practicable - any trees, bush or covering

vegetation.

The policies in relation to utilities outline the requirement for resource consents when the activities are

considered to have a significant impact (22.2.1.1); and give Council discretion to provide for the

operational requirements of utility networks (22.2.1.2). These policies highlight the tension between the

importance of and requirements of utilities and environmental effects and constraints. As such, the

Utilities Rules seek to provide for utilities, but do consider the environment, and puts requirements

around the necessity for mitigating any environmental impacts (for example, through screening, or

reinstating vegetation).

Additionally, the use of existing utilities - including the additions, maintenance and alteration thereof - is

supported through these rules (as opposed to the use of areas not already developed). This is also an

objective within the Proposed RPS. In regards to the Open Space zones, the preference is for minimal

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development. Utilities are, however, provided for with controls that relate to size, earthworks, and design

(as not a permitted activity).

General rules also apply and relate to processes such as earthworks and subdivision.

Open Space C (Wellington City District Plan)

The Study Area includes an area of Open Space C. Some of the key relevant issues pertaining to

development on Open Space C land include:

• Activities and uses on publicly owned land are required to obtain permission (such as a lease or a license) from the Council as the administering authority. NZTA are investigating mechanisms to gain

access/purchase Open Space C land if required.

• All activities will also have regard to any relevant management plans and legislation (for example the Wellington Town Belt Management Plan, the Town Belt Deed and also the Reserves Act 1977).

• The Town Belt is administered under the terms of its own Deed and the Wellington Town Belt Management Plan (under the Reserves Act).

• Open Space is characterised by the fact that it has few buildings. The enjoyment of open space from an

amenity/visual perspective needs to be taken into account when activities in open space areas are

being considered.

• The Inner Town Belt is valued for its historic, social and cultural importance. The Wellington City

Council acts as trustee of the Inner Town Belt for and on behalf of the people of Wellington. The Inner

Town Belt is zoned as Open Space C and identified on the Planning Maps. In addition to the District

Plan requirements, the Inner Town Belt is administered under the terms of its own deed and also the

Wellington Town Belt Management Plan.

Relevant objectives and policies of Open Space C land are identified and commented on with regards to

the Project in Table 5.

Table 5: Open Space C relevant Objectives and Policies

Reference Provision Comment / analysis

Objective

16.5.1

To maintain, protect and enhance the open spaces of

Wellington City.

Structures have been proposed to

be underground where possible.

Policy

16.5.1.3

Manage the impacts of activities in the Inner Town Belt in

order to protect and preserve its special qualities for the

benefit of future generations.

Any adverse environmental effects

will be considered through the AEE

prepared as part of the consenting

documentation, and mitigation of

effects will be offered.

Policy

16.5.1.4

Recognise the special status of Wellington’s Inner Town Belt

and manage the impacts of activities in order to protect and

manage its special qualities for the benefit of future

generations.

Relevant evaluation criteria have

been included in the evaluation

framework.

Objective

16.5.2

To maintain and enhance natural features (including

landscapes and ecosystems) that contributes to Wellington’s

natural environment.

Consideration of maintaining and

enhancing natural features would

need to be considered in any

detail design of the preferred

route.

Policy Restrict the construction of [buildings] structures and Relevant evaluation criteria have

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Reference Provision Comment / analysis

16.5.2.2 earthworks on [identified ridgelines and hilltops.] been included in the evaluation

framework.

Policy

16.5.2.3

Encourage retention of existing native vegetation and where

appropriate re-introduce native cover.

Potential for native cover plantings

if existing native vegetation is

removed.

Plan Changes to the Wellington City Operative District Plan

A number of proposed plan changes are relevant to the Mt Victoria Tunnel to Cobham Drive Study area.

These plan changes are relevant to District Plan zoning and notation in the area. Proposed plan changes

are summarised in Table 6.

Table 6: Summary of Relevant Proposed Plan Changes

Zoning/Notation Location Details

Area of Change An area of Kilbirnie around Kilbirnie

Park

Introduced by PC 72, allows greater levels of

development

Outer Residential 2 Area Evans Bay Parade

Hataitai Centre Hataitai Small extension to the Hataitai Suburban

Centre introduced in PC 73

Inner Residential Area Mt Victoria side of the Tunnel

Hataitai Centre Heritage

Area

Hataitai Village PC 75 makes Hataitai Village a centres area

Coastal Area design

guide

Evans Bay

Operative Plan Change 33 - Ridgelines and Hilltops (Visual Amenity)

Operative Plan Change 33 – Ridgelines and Hilltops (Visual Amenity) and Rural Area was made operative in

November 2009. This Plan Change has now been incorporated into the District Plan.

The intent of this Plan Change is to regulate and control the effects of any structures and activities

allowable upon areas zoned as Open Space B or C. This Plan Change identified the importance of

protecting the hilltops and ridgelines. It takes into account the natural contours of the land and

emphasises the protection of these vistas. Assessment criteria to achieve this include:

• Visual effects – whether considered to be unobtrusive (consideration including visibility of structures,

minimising skyline effects and ensuring visual continuity on the upper slopes of the ridgeline or

hilltop)

• Whether Open Space character is maintained

• Whether the proposal reflects the relevant provisions of Reserves Act 1977, Queen Elizabeth II National Trust Act 1977, other management plans applicable including the Town Belt Management Plan and the

Town Belt Deed 1873

• Public access

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• If within Maori Precinct, consultation is undertaken; and

• Effect of access ways

• Any removal, relocation or deposit of earth (not a Permitted Activity) is then a Discretionary

(Unrestricted) Activity. The identified assessment criterion for this includes the following

considerations:

• Extent of which any earth is cut that will remove existing vegetation or alter landforms or affect

water quality

• Extent to which any earthworks may impact on prominent or visually sensitive environments

• The necessity of carrying out the works.

Proposed Plan Change 43 - Heritage

Proposed District Plan Change 43 (DPC 43) which relates to heritage was publicly notified on 1 May 2006

and made operative in 2007. It introduced a revised set of heritage provisions, except for the rules

relating to listed trees and Maori sites. The purpose of the change was to ensure that the District Plan

deals with heritage issues more effectively. The key provisions of the proposed Plan Change are:

• Redrafted objectives and policies to emphasise the protection of historic heritage in accordance with

section 6(f) of the Resource Management Act 1991 and the direction of the Council’s Built Heritage

Policy.

• Removal of Controlled Activity provisions, and additions and alterations to listed heritage buildings

made a Discretionary Activity (Restricted or Unrestricted, depending on the extent of the modifications

to the building).

• Demolition or relocation of listed buildings or objects made a Discretionary Activity (Unrestricted).

• New rules controlling the development of non-listed buildings and/or subdivision on the site of a listed heritage building or object to protect the setting of the listed item.

• Enhanced heritage area provisions including control of the demolition or relocation of identified

contributing buildings or structures within a heritage area, subdivision and earthworks.

• New Chapter 3 provisions outlining the information to be supplied with resource consent applications for work affecting listed heritage items.

Plan Change 70 - Earthworks

Plan Change 70, which relates to Earthworks, is now operative. This Plan Change introduces new

provisions for earthworks with the intent of managing this activity separately (introducing new District

Plan Chapters 29 and 30 specifically related to earthworks within the various zones of the City). In

addition, the Plan Change also identifies specific provisions for the various zoning chapters (such as

Residential and Open Space zonings). As a general rule, within the Residential, Open Space A and C zones,

earthworks of no more than 250m² are permitted. In the more sensitive zones, such as Open Space B,

areas with the Ridgelines and Hilltops overlay and sites containing Heritage Items, the general permitted

area of earthworks is 100m².

The Plan Change has implications for the Project as it requires compliance from utility operators as well.

Utility operators were previously exempt from earthworks rules in the zone provisions, thus the

earthworks associated with tunnelling will be significantly impacted by this Plan Change.

Proposed Plan Change 73 – Suburban Centres

Proposed Plan Change 73 which relates to Suburban Centres, was publically notified on 28 September

2010, and is now going through an appeals process.

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April 2011

The Proposed Plan Change builds on the existing Suburban Centres’ chapters of the Wellington City

District Plan but proposes the following key changes:

Rezoning of Centres

The Operative Wellington City District Plan contains a Suburban Centre zoning. Relevant to the Mt Victoria

to Cobham Drive Study is the Hataitai shopping area, which is currently zoned as a suburban centre.

Proposed Plan Change 73 introduces two new zonings for suburban centres. The current Suburban

Centres will either be zoned as ‘Centres’ or as ‘Business Areas’. The Hataitai shopping area will be zoned

‘Centre’ as shown in Figure 11 below.

The zoning of Hataitai as a suburban centre shows that Council places a level of importance on the area as

the centre of its community. However, this rezoning from ‘suburban centre’ to ‘centre’ is unlikely to have

any great relevance to the District Plan implications for tunnel duplication.

Figure 11: Proposed planning map 6, showing the Hataitai Centre

Rezoning Parcels around Hataitai Shopping Centre

Proposed Plan Change 73 includes a number of changes to zone boundaries to better reflect the current

land uses of properties. Numbers 37 and 39 Waitoa Road, Hataitai, are residential buildings and as such

will be rezoned as Outer-Residential (see Figure 12).

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April 2011

Figure 12: Proposed rezoning of sections of Hataitai Centre

Design Guidance for centres

Proposed Plan Change 73 introduces new controls on development within centres. This includes tougher

controls on retail developments, introduction of a new building design guide for all new buildings in

centres, and standards for the height and acoustic insulation of new buildings.

The Lyall Bay big-box retail development on the south-west side of the Airport is currently zoned as a

suburban centre. Proposed Plan Change 73 retains the footprint of the retail area, but rezones it as

Business Area 1. Business Area 1 is intended to be an area of mixed-use activities including shops,

services and employment activities.

Proposed Plan Change 74 - Telecommunication Structures

The decision of Proposed Plan Change 74 – Telecommunication Structures was notified on 18th of May

2010 and is currently in an appeals process. The purpose of the Proposed Plan Change is to give effect to

the National Environmental Standard for Telecommunication Facilities, which became operative in October

2008.

The Proposed Plan Change has implications to the Mt Victoria to Cobham Drive Study in that the wording

proposed to address telecommunication structures has also encapsulated all utilities. This is particularly in

regard to the Open Space B and C zones. The Proposed Plan Change includes a new Policy 22.2.1.1B,

which states:

“To recognise reserve land values (typically zoned as either Open Space or as Conservation Sites) in the

siting of utilities. Utilities are discouraged on Open Space B and C land and Conservation sites, but may be

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April 2011

appropriate on Open Space A as this land typically contains buildings and/or which can be used to

mitigate the effects of utilities.”

Proposed Plan Change 72 - Residential

Proposed Plan Change 72, which relates to a review of the Residential area, was publically notified on 28

September 2010, and is now awaiting a decision.

The Proposed Plan Change builds on the existing Residential chapters of the Wellington City District Plan.

Key changes that are proposed include the following:

Areas of Change

Proposed Plan Change 72 introduces an ‘area of change’ around the Kilbirnie town-centre - this area is

shown in orange on Figure 11 below. The area of change is an indication from Council of where they see

future residential intensification. The area is envisioned to become an area of medium density housing

with three storeys and 50% site coverage being permitted activities.

The Kilbirnie area of change is approximately 200 metres from Wellington Rd and would therefore bring a

more intensive housing area closer to the potential duplication route. This could be argued to have both

positive (access to key transport route for important growth area) and negative (effects of a significant

road on a larger community) implications for planning the duplication. This area of change is consistent

with the WCC Urban Development Strategy.

Figure 13: Proposed planning map 6, showing Kilbirnie area of change

Residential Coastal Edge

As part of Proposed Plan Change 72, the Council has identified a number of character areas around the

coast. These are collectively referred to as the ‘residential coastal edge’. Areas identified as being

residential coastal edge will be subject to design guidelines around infill housing, excavations and

retention of bush-covered slopes. A section at the south end of Evans Bay, close to the intersection of

Evans Bay Parade and Cobham Drive/Wellington Road, has been identified as ‘residential coastal edge’;

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April 2011

this is shown below in Figure 14. Any development of the potential duplication route may be subject to

more onerous standards.

Figure 14: Evans Bay residential coastal edge

Demolition of Pre-1930s buildings

The residential section of the Operative District Plan contains rules restricting the demolition of pre-1930s

buildings in the Mt Victoria area. Restrictions are retained in the Proposed Plan Change for the area

defined in Figure 15 below. Importantly, it includes proposed changes to the residential rules which, in

some circumstances, remove the existing rule that allows the non-notification of resource consents for

pre-1930s demolition. This means that any demolition potentially required for the corridor (NZTA

property in and around Paterson Street, or other property in Mt Victoria) would likely be publicly notified.

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Figure 15: Mt Victoria area subject to pre-1930s demolition rule

Mt Victoria Residential Design Guide

Proposed Plan Change 72 makes changes to the existing Mt Victoria design guide. The design guide was

previously more focused on multi-unit housing. It now has a more general focus on housing and all

relevant resource consents in the area will be assessed against the design guide. This may be relevant for

any potential changes the corridor may make to the Mt Victoria area and for NZTA properties on and

around Paterson Street.

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Appendix E - Town Belt Management Plan

The Wellington Town Belt was created in 1841 and vested in the WCC by the Town Belt and Basin Reserve

Deed of 1873. This remains the governing authority by which the WCC controls the Town Belt. The Town

Belt is also a ‘reserve’ under the definition in the Reserves Act 1977, and the WCC manages the Town Belt

as a ‘recreation’ reserve under this legislation, as this most closely equates to the intentions of the

original Deed.

The Reserves Act describes the purpose of a recreation reserve as "providing areas for the recreation and

sporting activities and the physical welfare and enjoyment of the public, and for the protection of the

natural environment and beauty of the countryside, with emphasis on the retention of open spaces and on

outdoor recreational activities, including recreational tracks in the countryside". However, there is no legal

requirement or intention to officially classify the Town Belt as a recreation reserve, nor is there benefit to

be gained from so doing.

The general approach is that the Reserves Act applies only where its provisions are consistent with the

1873 Deed, but overall the Deed prevails.

The District Plan's provisions are complementary to the aim, objectives and policies of the original Deed

and the Management Plan.

The Aims contained in the Town Belt Management Plan are the principal statements of purpose and, as

such, all management decisions are to be measured according to these. The Objectives then outline the

ways in which the Council, as Trustee of the Town Belt on behalf of the people of Wellington, intends to

achieve the aims.

In general, development is not permitted unless it meets the intention of the Town Belt Management Plan.

Where development is required for utility operations, the need for the development will be assessed

against the ability to maintain the Town Belt for public recreation and conservation. Conditions may be set

as part of any resource consent process to reflect this. Relevant Aims and Objectives of the Town Belt

Management Plan are listed in Table 7 below.

Table 7: Aims and Objectives of the Town Belt Management Plan

Aims

1 A Town Belt which is managed in accordance with the principal intention of the original Deed of 1873, which

is to keep the Town Belt land forever "as a public recreation ground for the inhabitants of the City of

Wellington".

2 A sustainably managed Town Belt in which the natural, landscape, cultural and historic values are protected

and enhanced.

Objectives: Public Recreation

1 To maintain and enhance the public recreation qualities of the Town Belt for the people of Wellington.

2 To allow as wide a range of appropriate and sustainable recreational activities as possible on the Town Belt,

with an emphasis on outdoor, informal public recreation.

3 To ensure that there will be no additional land area developed for organised recreation facilities (formal

recreation) on the Town Belt but to encourage shared use of these existing facilities.

4 To protect the public right of access for all to the Town Belt.

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Objectives: Public Recreation

5 To promote the public recreational use of the Town Belt through the use of interpretive signs, access ways

and the dissemination of information on the recreational opportunities available within the Town Belt.

Objectives: Conservation and Land Management

6 To protect and enhance the landscape character, cultural and historic values and physical resources of the

Town Belt.

7 To manage the vegetation and conserve the water and soil resources of the Town Belt to ensure the

sustainable balance between the open land and the densely vegetated areas, the 'wild' areas and the

developed areas.

8 To maintain the Town Belt as an un-built visual backdrop and skyline to Wellington.

9 To gradually increase the proportion of native vegetation, to actively encourage the regeneration of the

native plant communities to their climax state and, where possible, to develop wildlife corridors to encourage

greater numbers and diversity of native wildlife.

10 To define the boundaries of the Town Belt on the ground.

11 To extend the Town Belt area by obtaining land that was originally part of the Town Belt but since alienated,

whenever opportunities arise, and by adding new areas which will enhance the Town Belt's public recreational

and 'green belt' qualities.

12 To only permit such development on the Town Belt as is required to achieve the objectives above or the

purposes of public utility and to specify the conditions under which this might take place.

Objectives: Administration

13 To integrate and balance conservation and recreation objectives.

14 To guide the decisions required to balance potentially conflicting uses on the Town Belt.

15 To encourage the community's active involvement in establishing and implementing the management plan to

protect the reserve status and the intrinsic values of the Town Belt.

16 To resolve the issues of encroachments with a view to regaining lost lands.

17 To protect the Town Belt from new encroachments.

Objective: Interpretation

18 To promote an awareness and appreciation of the unique status, landscape and recreational value of the

Town Belt, its ecological processes, its history and its unique identity and character.

Analysis of the Mt Victoria to Cobham Drive Project against these objectives and a number of other

supporting policies is provided in Table 8.


April 2011

Table 8: Analysis of Objectives of the Town Belt Management Plan

Reference Provision Comment / analysis Complies (Yes/No)

Further information required

Public

Recreation

Objective 1

To maintain and enhance the public recreation qualities of the Town Belt

for the people of Wellington.

The encroachment into the Town Belt along Ruahine Street will

have an effect on the public recreation quality of the Town

Belt. These effects will be both positive and negative, with a

reduction in useable area along with opportunities to enhance.

Assess effect on

public recreation

quality – can the

effect be mitigated

to maintain public

recreation quality?

Public

Recreation

Objective 4

To protect the public right of access for all to the Town Belt. The proposed alignment along Ruahine Street will focus

access to part of the Town Belt to signalised intersections.

Access may be temporarily affected during the construction

phase. The evaluation framework contains criteria to evaluate

whether current access to the Town Belt will be maintained or

enhanced.

Assess effect on

access to the Town

Belt.

Conservation

and Land

Management

Objective 6

To protect and enhance the landscape character, cultural and historic

values and physical resources of the Town Belt.

The design and treatment of the tunnel portals is an important

consideration to limit any impact on the landscape character

of the Town Belt. A Cultural Impact Assessment and a

Heritage Assessment are being undertaken to address

potential impacts on culturally or historically significant areas.

Impacts on the physical resources of the Town Belt may be

partially mitigated through a land swap between the NZTA and

the Town Belt Management Trust.

Assess effects on

landscape

character, cultural

and historic values

and physical

resources.

Conservation

and Land

Management

Objective 7

To manage the vegetation and conserve the water and soil resources of

the Town Belt to ensure the sustainable balance between the open land

and the densely vegetated areas, the ‘wild’ areas and the developed areas.

There will be earthworks within the Town Belt, affecting

vegetation and soil.

Assess effect of

earthworks.

Conservation

and Land

Management

Objective 8

To maintain the Town Belt as an unbuilt visual backdrop and skyline to

Wellington.

The new tunnel location may affect the visual backdrop of Mt

Alfred.

Assess visual

effect of new

tunnel portal

structure

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Conservation

and Land

Management

Objective 9

To gradually increase the proportion of native vegetation, to actively

encourage the regeneration of the native plant communities to their

climax state and, where possible, to develop wildlife corridors to

encourage greater numbers and diversity of native wildlife.

Some vegetation may be lost in association with development

of a new tunnel and road widening (depending on option

chosen). There may be potential to plant around the portals

and major earthwork locations as mitigation.

Assess loss of

vegetation and

develop new

planting plan to

mitigate.

Conservation

and Land

Management

Objective 12

To only permit such development on the Town Belt as is required to

achieve the objectives above or the purposes of public utility and to

specify the conditions under which this might take place.

The upgrade to the State Highway is for public utility

purposes.

Yes

Public

Consultation

and Community

Involvement

Policy 1

All decisions relating to the negotiation of fresh, renewed and new leases,

licences, easements and long-term concessions, which grant special rights

over the use of Town Belt land, shall be publicly notified. Written

submissions shall be invited but provision for public hearings shall be at

the discretion of the Chief Executive, Wellington City Council, or delegated

authority. Each case shall be decided on its merits according to the

objectives and policies of the management plan, and taking account of the

public submissions.

Land tenure where the proposed road is in the Town Belt is yet

to be determined.

Agreed

mechanism to

acquire/use Town

Belt land if

required for

preferred option.

Public

Consultation

and Community

Involvement

Policy 2

Applications for activities on the Town Belt which require resource

consents shall be publicly notified where required by the Resource

Management Act.

Public notification may be required for any (regional) resource

consents associated with works in the Town Belt.

Yes New NoR will be

publicly notified.

Public

Consultation

and Community

Involvement

Policy 3

All matters to do with changes on the Town Belt requiring public

notification (as above) shall be dealt with according to the provisions of

Sections 119 and 120 of the Reserves Act, 1977, except that the

notifications shall be published twice (instead of once) with a two-week

interval between. Council shall also consult with interested parties on

matters which relate to the Town Belt.

Reserves Act approvals may be required, depending on

preferred route and mechanism to acquire/use Town Belt land.

Consultation

would be required

as part of RMA

approvals process.

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Legal Status

Policy 1

To ensure the legal protection of the remaining Town Belt land. Mechanisms to bring new land into Town Belt being

considered: off-setting opportunity to ensure Town Belt

protected.

Advice on legal

mechanisms

available to

acquire/use Town

Belt land, or to off-

set use of land by

bringing new land

into the Town Belt.

Encroachments

by Occupation

Policy 2

The Culture and Recreation Committee or a delegated sub-committee of

Council will evaluate each of the existing identified encroachments and

determine which of the following options should apply on a case by case

basis, taking into account 2(i), (ii) and (iii).

(ii) The adjacent owner who is encroaching shall be required within 12

months to remove whatever item or structure constitutes the

encroachment to enable the land to be "returned" to Town Belt.

(iii) A lease or licence may be negotiated (see Leases, page 25) which shall

have no automatic right of renewal on expiry. If the owner requests a new

lease or license at the time of expiry, a decision will be made after

considering the criteria in the flow chart (Figure 5).

(iv) In exceptional circumstances and only as a last resort, and subject to

legislation to remove the land from the Town Belt, purchase of the

encroached land at market value may be negotiated and the money

specifically used towards purchasing additional land for the Town Belt.

Land tenure yet to be determined – NZTA would not enter into

a lease for any Town Belt land required.

Preferred option

needs to be

determined and

extent of Town

Belt land required

(if any) to be

established with

mechanisms to

acquire/use Town

Belt land.

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Encroachments

by Occupation

Policy 4

a. The effect on public recreational value is the first criterion as this

reflects the intention of the 1873 Trust Deed for the Town Belt land to be

used as a public recreation ground. This value may be reduced:

i. materially where the encroachment physically obstructs

public access, e.g. a building or fence, or

ii. non-materially where the encroachment inhibits public use

by appearing to be private land, e.g. a garden plot which looks

like an extension of the adjoining property even though the

land is not fenced off.

b. Reasons why the encroachment should not be terminated may be

accepted on the basis of :

i. historic circumstances for structures built prior to 1920. In

the case of some older adjacent properties, parts of the house

were built across the boundary or right up to the boundary so

that removal of the encroachment would necessitate partial

demolition of the house and/or significantly impair privacy and

security for the occupants.

ii. safety, e.g. a retaining structure has been built to stabilise

land, for example a fence has been constructed as a safety

barrier above a steep drop.

c. Purchase of the encroached land. Where removal of the encroachment

would have a major adverse effect on the property or the return of the

encroached land would add little recreational or visual benefit to the Town

Belt.

Special legislation would be required in each instance to enable the

Council to sell Town Belt land. Therefore, this option will only be exercised

where it can be justified under public scrutiny by :

i. the circumstances of the case

ii. the benefit of achieving a permanent solution; and

iii. the benefit of providing land of more use to the Town Belt.

d. 'Botanical enhancements'. If the encroachment is a 'botanical'

enhancement to the Town Belt (e.g., tree planting) the Council may allow it

to remain provided that public access is maintained (i.e., public access is

not discouraged nor prevented). There would be no formal right of

occupation and responsibility for the ongoing maintenance of these areas

See above. See above.

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Utilities Policy 1 Easements or leases over Town Belt land may be granted for the purpose

of allowing public and private utilities, provided that the utility is an

essential service to the public, that it cannot reasonably be located

elsewhere and provided that the impact on the recreational nature of the

Town Belt is minimised by compliance with conditions 6 (i) – (v).

Will need to demonstrate that the any pipes/structures are

essential services and can’t be located elsewhere.

Assessment of

alternatives needs

to be robust.

Utilities Policy 2 Easements shall be granted for utilities that are located underground in

terms of Section 48 of the Reserves Act.

Utilities located underground –pipes and potential reservoir

will need to be provided with land tenure yet to be

determined.

Assessment of

alternatives needs

to be robust.

Utilities Policy 3 Leases shall be granted for utilities that are located on or above the

ground and shall be for less than 20 years. This period shall include both

the term of the current lease and the term of any right of renewal.


Utilities Policy 4 Subject to the ability of the Council to do so under relevant legislation

concerning utilities, the Council shall negotiate a lease and charge a

market rental for any existing installations on the Town Belt if the

ownership of the utility service or any of its installations changes. (Existing

utilities do not necessarily have easements and/or leases and Council

cannot change this unless ownership changes.)


Utilities Policy 5 Market rentals shall be charged for utility leases and easements in

conformity with the intentions of the original Deed which were to achieve

the “best or most improved rent” and shall be reviewed every 5 years.


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Utilities Policy 6 All new utilities and replacement or upgrading of existing utilities shall

comply with the following conditions to the reasonable satisfaction of the

Council:

• The impact of all utilities on Town Belt land shall be minimised.

• All utility services shall be placed underground, except where it is not

practicable to do so.

• Where practicable, underground services shall be sited to minimise

interference with existing features, facilities and plants.

• Utility services shall be located so as not to restrict areas useable for

outdoor activities or required for future facilities or tree planting.

• Any disturbance of the existing site during installation of a utility shall

be made good immediately after completion.

All utility services would be placed underground, where

practicable.

Utilities Policy 7 All costs arising from the application for a new utility or upgrading or

replacement of an existing one shall be met by the applicant.

Accepted.

Utilities Policy 8 All public and private utilities crossing the Town Belt (above and below

ground) shall be accurately mapped and documented with plans to be

lodged with Council.

Accepted. GIS Plans to be

lodged with

Council.

Utilities Policy 9 Where the Council has the legal prerogative to do so upon cessation of a

utility to function, related services and structures shall be removed where

it would improve the recreational value of the land and the site made

good at the utility operator’s expense. Where there is legislation which

over-rides Council control of this (e.g. the Electricity Act 1992), Council

shall apply to the appropriate authority for the related services and

structures to be removed.

Noted.

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Utilities Policy

10

The Chief Executive, WCC, or delegated authority may grant written

permission to adjoining property owners to lay private discharge utilities

(such as stormwater and sewer pipes) through the Town Belt to connect

into existing main piping networks subject to the following conditions:

• No practicable alternative route is available

• A fee for use of the route and a refundable site restoration bond, as

determined by Council, shall be paid

• The adjoining property owner shall be responsible for the accurate

mapping of the connection (s) and shall provide documentation of

this to Council

• The property owner shall be responsible for any future maintenance

and repairs of the private connection and shall be required to make

good any site disturbance on the Town Belt to the Council’s

satisfaction. This includes any emergency works being undertaken

without prior consent.

WCC could grant written permission for water

mains/discharge connections associated with a second tunnel.

Accurate mapping

of the

connection(s)

would need to be

provided to

council.

Plants Policy The removal of living plant material from the Town Belt is prohibited

except by authorised personnel.

This matter would be addressed through the AEE for statutory

approvals.

Structures and

Furniture Policy

6

New buildings or other structures will only be sited on the Town Belt if

they are necessary for public recreation or essential utility purposes, all

possible alternative sites have been assessed and rejected and when all

relevant resource consents have been acquired. Proposals for any such

building or structure shall be publicly notified.

Any structures would be necessary for essential utility

purposes.

Yes Notified resource

consents may be

required for any

structures not

covered by

designation.

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Structures and

Furniture Policy

7

No new building or structures of any kind will be permitted on the

skylines, as viewed from the central city or from suburban centres. In

exceptional circumstances, this policy shall not apply where buildings or

structures are for essential utilities and cannot be practicably located

elsewhere and their public benefits outweigh their adverse visual impacts.

No structures proposed to be located within the skyline as

viewed from central city or Hataitai.

Assessment of

practicality of

locating structures

elsewhere and

associated public

benefits and visual

impacts required.

Safety Policy 1 To reduce any possible natural hazards where practicable and inform the

public of any significant dangers they may encounter while on the Town

Belt.

Noted.

Safety Policy 2 If necessary, Council shall restrict access to parts of the Town Belt for

safety reasons when essential repairs are being made or when general

public safety is threatened, e.g. during tree-felling operations. Access may

also be restricted when areas of sensitive vegetation need to be protected

during phases of the revegetation process.

Noted. Process for access

restriction may

need to be

discussed with

Council

Vegetation

Policy 8

Areas designated to be regenerated with native species shall have all

wilding pine, macrocarpa and invasive exotic tree species such as

sycamore removed.

Relevant if re-vegetation plan is to be implemented in

association with project.

Vegetation

Policy 10

Where areas are to be replanted with native or non-coniferous species,

consideration will be given to using a preponderance of bird food species

(e.g. tree lucerne, Salix spp, oaks, Banksia spp, Grevillea spp, kowhai,

puriri, tree fuchsia, rewarewa).



Vegetation

Policy 11

Where planting of native species is required the species shall be those

native to the Wellington Ecological Region and shall be propagated from

local seed or plant sources (eco-sourced).



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Maori Sites

Policy 1

Any activity occurring on or near the sites listed above shall be discussed

with the Tangata Whenua before any modifications are made.

The Te Akatarewa pa is located above the existing Mt Victoria

tunnel. Proposal should not impact on pa site.

Tangata whenua

consultation.

Cultural impact

assessment.


April 2011

Appendix F - Planning Issues for each Alignment

Alignment Designation / District Plan

1 • Widening of Ruahine St/Wellington Rd would be wider than existing designation allows for

• Western portal of tunnel if under Wellington East Girls College and Wellington College

designation, would require Ministry of Education (MoE) agreement to implement crossing

designation

• Nearby heritage features overlay area

• Open Space B & Open Space C: requirement to acquire or obtain lease or license from Council,

including Town Belt land

• Town Belt Management Plan provisions

• Inner Residential: Pre 1930's demolition rule

• Te Ranga a Hiwi Precinct

• M70 above tunnel: Te Akatarewa Pa

• Heritage Building 20: Wellington East Girls College Main Building

• Heritage Building 43: Wellington East Main Gates


• Ridgeline and Hilltop overlay


• Heritage feature at western and eastern side of tunnel (historic tunnel portal)

• No competing overlying designations (schools etc.)

• Open Space C (and possibly Open Space B, depending on eastern connection): requirement to

acquire or obtain lease or license from Council includes Town Belt land



• Heritage Item 44: Bus tunnel (which might have to be altered depending on design)


3A • Widening of Ruahine St/Wellington Rd would be wider than existing designation allows for

• Western portal of tunnel would be under Wellington East Girls College and Wellington College

designation, would require MoE agreement to implement crossing designation

• Open Space B & Open Space C: requirement to acquire or obtain lease or license from Council

includes Town Belt land









3B • Widening of Ruahine St/Wellington Rd would be wider than existing designation allows for

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April 2011












4A • Widening of Wellington Rd may be wider than existing designation allows for



• Tunnel also traverses below land designated for Government House, would require agreement

to implement crossing designation




• Inner Residential: Pre 1930's demolition rule (maybe)



• Heritage Area 23 & Heritage Building 9: Former Chest Hospital; Heritage Area 44: Bus Tunnel

4B • Widening of Wellington Rd may be wider than existing designation allows for

• Start of tunnel would be under Wellington East Girls College designation, would require MoE

agreement to implement crossing designation










• Heritage Tree 86: Rata

4C • Would need tunnel designations and western end of tunnel would be under Wellington East

Girls College designation, would require MoE agreement to implement crossing designation

• New designation would be required for Wellington Rd eastern portal





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5A • New/wider designation required for Wellington Rd to accommodate tunnel portal and

associated intersection













5b • New/Wider designation required for Wellington Rd to accommodate tunnel portal and

associated intersection













5c • Would need tunnel designations and western end of tunnel would be under Wellington East

Girls College designation, would require MoE agreement to implement crossing designation

• New designation would be required for Wellington Rd eastern portal







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7 • Connection on Waitoa road to Moxham Avenue could intercept with Designation T3:

Telecommunication & Radio communication & Ancillary Purposes. Would require agreement to

implement crossing designation

• New designation required (under town belt)

• Open Space C: requirement to acquire or obtain lease or license from Council includes Town

Belt land


• Inner Residential: Pre 1930's demolition rule.

• Outer Residential

• Heritage Item 44: Bus tunnel (which might have to be altered depending on design)


• Suburban Centre (maybe depending on alignment)


• Western portal of tunnel if under Wellington East Girls College and Wellington College


• Nearby heritage features overlay area, could be problematic











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April 2011








• Ridgeline and Hilltop overlay.