Before a Board of Inquiry. Basin Bridge Proposal. Statement of evidence of Alistair Arthur Aburn for the New Zealand Transport Agency (Planning)

Transcription

1 Before Bord of Inquiry Bsin Bridge Proposl Under the Resource Mngement Act 1991 (the Act) In the mtter of Bord of Inquiry ppointed under section 149J of the Act to consider the New Zelnd Trnsport Agency's notice of requirement nd five resource consent pplictions for the Bsin Bridge Proposl. Sttement of evidence of Alistir Arthur Aurn for the New Zelnd Trnsport Agency (Plnning) Dted 25 Octoer 2013 Level 9 79 Boulcott Street PO Box Fetherston Street Wellington Ph Fx Solicitors cting: A F D Cmeron / A M B Green / F R Wedde Contct: F R Wedde DDI: Emil: frnces.wedde@kensingtonswn.com

2 STATEMENT OF EVIDENCE OF ALISTAIR ARTHUR ABURN FOR Contents THE NEW ZEALAND TRANSPORT AGENCY 1 Introduction 2 2 Executive Summry 5 3 The Project - Context for Assessment 6 4 Strtegic Plnning Instruments 8 5 Strtegic Plnning Assessment 26 6 Sttutory Context 35 7 Response to Key Issues Reports 41 8 Response to Sumissions 42 9 Conclusion

3 1 Introduction 1.1 My full nme is Alistir Arthur Aurn. 1.2 My evidence is given on ehlf of the New Zelnd Trnsport Agency (Trnsport Agency) in support of the Notice of requirement (NoR) nd the ssocited pplictions for resource consent lodged with the Environmentl Protection Authority on 17 June 2013 in reltion to the construction, opertion nd mintennce of the Bsin Bridge Project (Project), which involves chnges to tht prt of Stte Highwy 1 (SH1) etween Trnki Street nd the Mt Victori Tunnel in Wellington. Qulifictions nd Experience 1.3 I m Director of Urn Perspectives Ltd, Wellington sed resource mngement nd urn design consultncy, where I work s plnning/resource mngement consultnt. 1.4 I hve the following qulifictions nd experience relevnt to the evidence I shll give: c d I m Bchelor of Arts (Hons) nd Mster of Arts (Otgo University) nd hold Diplom in Town Plnning (Aucklnd University) nd Post- Grdute Diplom in Dispute Resolution (Mssey University). I hve over 35 yers experience in town plnning nd resource mngement. I m full memer of the New Zelnd Plnning Institute nd in Novemer 2000 ws wrded the Institute s Distinguished Service Awrd. I m n Associte of the NZ Institute of Aritrtors nd Meditors. I m n ccredited Resource Mngement Act 1991 (RMA) decisionmker under the Ministry for the Environment s progrmme for RMA decision-mking. I hold Chir s endorsement. I regulrly sit s herings commissioner, including sitting s sole commissioner nd s pnel chir, on wide rnge of resource consent pplictions, notices of requirement nd district pln chnges. To dte I hve cted s herings commissioner pproximtely 50 times, since my first ppointment ck in 1997 on the pnel considering the New Zelnd Ril Corportion s resource consent pplictions to estlish the new interislnd ferry terminl t Clifford By

4 e f g h i j k I commenced my plnning creer in 1975 s regionl plnner for the Wellington Regionl Plnning Authority, nd susequently s senior regionl plnner for the Greter Wellington Regionl Council. During tht time (in 1982) I spent nine months s Senior OECD Scholr t the Centre for Metropolitn Plnning nd Reserch t the Johns Hopkins University in Bltimore, USA where I studied pulic/privte sector joint development gencies, including the Bltimore Inner Hrour Development Agency, the gency responsile for the re-development of Bltimore s inner hrour. In 1984 I joined Murry-North Limited s director nd mnger of the Wellington office, where I provided town plnning nd resource mngement dvice to wide rnge of clients in oth the pulic nd privte sectors. In 1990 I joined the Wellington City Council s City Plnner nd heded the City Plnning Deprtment. In 1992 following Council-wide restructuring I ws ppointed Generl Mnger Environment nd ws responsile for ll of the Council s plnning nd uilding regultory functions. During s City Plnner/Generl Mnger Environment I ws hevily involved in the Tunnel Link scheme tht ultimtely led to the Inner City Bypss project. In lte 1996 I left the Wellington City Council nd, in ssocition with urn designer Deyn Popov, estlished Urn Perspectives Ltd. In the seventeen yers since I hve prepred lrge numer of resource consent pplictions for wide rnge of Wellington City projects. I m fmilir with the plnning instruments tht pply to the Project, in prticulr the Wellington City District Pln. In I ws the principl plnning dvisor nd witness for Trnsit NZ in the Inner City Bypss cse. 1 Over recent yers I hve completed nd lodged resource consent pplictions for numer of developments within the wider re round the Bsin Reserve, including the proposed supermrket t Tsmn Street (2005), the refurishment of Government House (2008), the refurishment of 21 Hni Street (The Street City Church) nd ssocited 1 Estte of PA Morn v Trnsit New Zelnd, Environment Court, W55/

5 cr prking (2009), nd, most recently (2012), the proposed new 44-unit residentil prtment complex (currently under construction) t Rugy Street. 1.5 I m fmilir with the Project Are nd hve crried out numerous site visits. 1.6 Since 1996 I hve lived in centrl city prtment in Mrion Street, which is pproximtely 10 minutes wlk from the Bsin Reserve. I regulrly experience the trffic environment in the Centrl Are of Wellington, oth s motorist nd pedestrin, including the trffic environment round the Bsin Reserve. Role in the Project 1.7 From the commencement of the Project in August 2009 I hve provided strtegic resource mngement dvice to the Project Tem. This included providing dvice on the scope of the technicl reports nd the Assessment of Environmentl Effects (AEE) Report generlly. 1.8 I ws peer reviewer of Prt I, Chpter 37 of the AEE lodged in support of the Project: Plnning Assessment of the Project. 1.9 Following the closure of sumissions I hve prticipted in numer of prehering meetings with individul sumitters. I lso ttended the six fcilitted meetings with sumitters. Scope of Evidence 1.10 This Sttement of Evidence provides the following (the relevnt suheding is noted in rckets in ech cse): summry of my evidence (Executive Summry); description of the Project, including its key component (Project - Context for Assessment) c d e n ssessment of the strtegic plnning instruments pplicle to the Project (Strtegic Plnning Instruments); n ssessment of the Project ginst the strtegic plnning frmework (Strtegic Plnning Assessment); comments on the sttutory context under s171(1)() nd (c) (Sttutory Context);

6 f g h comments on the Key Issues Reports (Key Issues Reports); comments on sumissions lodged in reltion to the Project (Response to Sumissions); nd my overll conclusions (Conclusions). Code of Conduct 1.11 I hve red nd m fmilir with the Code of Conduct for Expert Witnesses in the current Environment Court Prctice Note (2011), hve complied with it, nd will follow the Code when presenting evidence to the Bord. I lso confirm tht the mtters ddressed in this Sttement of Evidence re within my re of expertise, except where I rely on the opinion or evidence of other witnesses. I hve not omitted to consider mteril fcts known to me tht might lter or detrct from the opinions expressed. 2 Executive Summry 2.1 The principl purpose of my evidence is to estlish strtegic plnning frmework for the Project. My evidence does not ddress the ssessment required under s171(1) nd s104(1), including Prt 2 of the RMA. Tht ssessment is to e covered in the evidence-in chief of Mr Lindsy Dysh. 2.2 I hve identified s the principl component of the works suject to the NoR the proposed new ridge structure which will chieve grde seprtion of est-west trffic flows from north-south trffic flows t the Bsin Reserve. 2.3 I hve concluded tht t the strtegic level the Project is consistent with the pplicle RMA sttutory instruments - the Regionl Policy Sttement nd the Wellington City District Pln. It is lso consistent with numer of key trnsporttion nd urn development documents/strtegies which re identified s methods of implementtion in either the RPS (e.g. the Regionl Lnd Trnsport Strtegy) or the District Pln (e.g. the Regionl Lnd Trnsport Strtegy (nd relevnt plns) nd the Urn Development Strtegy nd Growth Spine concept). 2.4 In reltion to s171(1)() RMA nd the considertion of lterntives, I conclude tht the Trnsport Agency hs completed comprehensive nd roust process tht, in my opinion, is fully complint with the oligtion to give dequte considertion to lterntive sites, rules or methods of undertking the work

7 2.5 In reltion to s171(1)(c) RMA nd whether (or not) the proposed work nd designtion is resonly necessry to chieve the ojectives of the Trnsport Agency, in my opinion the nswer is yes. In prticulr, I consider tht grde seprtion t the Bsin Reserve is resonly necessry to chieve enhnced trnsport efficiency nd sfety on this section of the rod network comprising SH1 nd locl rods. 3 The Project - Context for Assessment 3.1 The principl component of the Project is the 263m long ridge structure 2 which chieves grde seprtion of est-west trffic flows from north-south trffic flows t the Bsin Reserve. 3.2 Other trnsporttion components of the Project include: c d e f g chnges to the Pterson Street nd Sussex Street intersections t ech end of the new section of SH1 to e covered y the NoR; provision of third lne long Buckle Street from the Buckle Street underpss to Trnki Street; chnges to the Buckle Street / Trnki Street intersection; [Vivin Street nd Pirie Street improvements, including n dditionl turning lne on Pirie Street]; 3 relignment of SH1 etween Broughm Street nd Hni Street to tie-in with Pterson Street; low speed link rod from Ellice Street to Dufferin Street/Pterson Street; nd enhnced pedestrin nd cyclist fcilities, including shred pedestrin nd cyclewy rmp on the northern side of the ridge. 3.3 Non-trnsporttion components include: proposed new uilding under the ridge on the corner of Kent Terrce nd Ellice Street, lso known s Bogrt s Corner, (the Building under the Bridge ), nd four-storey high vegetted trellis ( Green Screen ) 2 The 263m section is the elevted portion. With the emnkments included the length is pproximtely 315m 3 These works re permitted ctivities under the Wellington City District Pln

8 ttched to the new uilding djcent to the Grndstnd Aprtments uilding; c new structure locted within the Bsin Reserve (the Northern Gtewy Structure); nd extensive lndscping nd plnting, including gtewy plz/entrnce to the Bsin Reserve nd n extension of the Ntionl Wr Memoril Prk through to Cmridge Terrce, with the ltter providing setting for the relocted Home of Compssion crèche. 3.4 Fundmentlly, from n overll strtegic viewpoint, the Project s principl ojective is the seprtion of est-west trffic from north-south trffic, therey enhncing the efficiency nd sfety of this section of SH1 through providing relief from trffic congestion t key point in the roding nd pulic trnsport network in the Wellington Centrl Are (CBD). 4 It is for this reson tht I hve descried the ridge s the principl component of the Project. The other trnsporttion components re essentilly necessry flow-on components to enhnce the overll effectiveness of SH1 etween the Mt Victori Tunnel nd Trnki Street. 3.5 In turn, the pckge of urn design (including the two new uildings) nd lndscpe components, while integrl prts of the Project, ddress wider environmentl enhncement nd/or mitigtion considertions. They re not so much trnsporttion improvements per se. 3.6 Prt of the receiving environment is the Ntionl Wr Memoril Prk nd ssocited underpss currently under construction. 3.7 When ssessing the strtegic plnning frmework nd the closeness of fit etween the Project nd the strtegic plnning frmework, my primry focus is on the proposed seprtion of trffic flows. 3.8 Notwithstnding the focus on the seprtion of trffic flows t the Bsin Reserve, n over-rching considertion is the role of this section of SH1 in the wider inner city (Centrl Are) rod network. 4 When descriing the Wellington inner city I use the term Centrl Are s this is the District Pln term. I note, however, tht some other instruments/reports use the term centrl usiness district (CBD). The terms lrgely refer to the sme geogrphicl re - i.e. the re of the inner city inside the Wellington urn motorwy (SH1). If there is difference it is tht the CBD is more confined geogrphicl re which excludes the re round Molesworth Street/Mulgrve Street, including the Government Centre, nd the Te Aro Flt re. Some instruments/reports refer to the re s the centrl city (e.g. WCC s Trnsport Strtegy)

9 3.9 Thus, the pproch I hve dopted for my ssessment of the strtegic fit of the Project is firstly to consider the plnning frmework for the wider inner city (Centrl Are) rod network. Then, the second level of inquiry or ssessment is the role of SH1 nd in prticulr the section leding to nd round the Bsin Reserve The first tsk therefore is to identify nd estlish the plnning frmework for the wider inner city (Centrl Are) rod network y reference to the pplicle instruments, oth RMA nd non-rma. 4 Strtegic Plnning Instruments 4.1 In Chpter 8 of the AEE (Sttutory Considertions) the relevnt ntionl, regionl nd district level sttutory nd non-sttutory instruments were ssessed for their relevnce. A totl of 34 instruments were identified s follows: five Ntionl Environmentl Stndrds 5 one Regionl Policy Sttement (Wellington Region) c five Regionl Plns 6 d one District Pln (Wellington City District Pln) e six ntionl level non-rma documents 7 f six regionl level non-rma documents 8 g ten district level non-rma documents In my opinion not ll of the ove instruments hve role to ply in estlishing the strtegic plnning frmework. Those tht do, in my opinion, nd on which I principlly drw, re: 5 Ntionl Environmentl Stndrds for Air Qulity (2004), Ntionl Environmentl Stndrd for Sources of Drinking Wter (2007), Ntionl Environmentl Stndrd for Telecommuniction Fcilities (2008), Ntionl Environmentl Stndrds for Electricity Trnsmission (2009), nd Ntionl Environmentl Stndrds for Assessing nd Mnging Contminnts in Soil to Protect Humn Helth (2012). 6 Regionl Freshwter Pln, Regionl Air Qulity Mngement Pln, Regionl Costl Pln, Regionl Pln for Dischrges to Lnd, nd Regionl Soil Pln 7 New Zelnd Urn Design Protocol, Government Policy on Lnd Trnsport Funding, Connecting New Zelnd, New Zelnd Trnsport Strtegy, Ntionl Lnd Trnsport Progrmme, nd the Trnsport Agency Environmentl Pln. 8 Wellington Regionl Strtegy, Wellington Regionl Lnd Trnsport Strtegy, Ngurng to Airport Corridor Pln, Pulic Trnsport Spine Study, Regionl Pulic Trnsport Pln , nd Regionl Freight Pln. 9 WCC Trnsport Strtegy, WCC Wlking Policy, WCC Cycling Policy, Wellington Towrds 2040, Urn Development Strtegy, Centrl City Frmework, Adelide Rod Frmework, WCC Long-Term Pln , Wellington Heritge Policy (Septemer 2010), Wellington Airport Mster Pln 2010 to

10 Regionl Policy Sttement for the Wellington Region; Wellington City District Pln (including Pln Chnges 48, 72 nd 73); c d e f g h Wellington Regionl Lnd Trnsport Strtegy (GWRC); Ngurng to Airport Corridor Pln (GWRC); Trnsport Strtegy (WCC); Urn Development Strtegy (WCC); Adelide Rod Frmework (WCC); nd Wellington Towrds 2040: Centrl City Frmework (WCC). Regionl Policy Sttement for the Wellington Region (RPS) 4.3 The RPS ecme opertive on 23 April It identifies the regionlly significnt issues round the mngement of the region s nturl nd physicl resources nd sets out wht needs to e chieved (ojectives) nd the wy in which ojectives will e implemented (policies nd methods). 4.4 In Chpter 3 the RPS identifies ten topics to e ddressed, including regionl form, design nd function. In my opinion this is the topic tht hs n importnt role to ply in estlishing the strtegic plnning frmework for the inner city (Centrl Are) rod network. 4.5 The RPS confirms tht: 10 Centrl Wellington city contins the centrl usiness district for the region. Its continued viility, virncy nd ccessiility re importnt to the whole region. 4.6 It lso confirms tht the region hs strong corridor pttern, yet it is generlly compct. The trnsport corridor includes SH1, which enters the Centrl Are from the north nd continues through to the Wellington Interntionl Airport The corridor pttern is regrded s... strength for the region. It reinforces locl centres, supports pssenger trnsport, reduces energy use nd mkes 10 Regionl Policy Sttement for the Wellington Region, p67 11 SH1 forms prt of the strtegic trnsport network, s defined y the Wellington Regionl Lnd Trnsport Strtegy (WRLTS) nd is, therefore, defined in the RPS s regionlly significnt infrstructure. As noted in the WRLTS: A key function of the strtegic trnsport network is linking the region s centres nd importnt destintions with the rest of New Zelnd. These centres nd importnt destintions include the Wellington City CBD, other regionl centres, CentrePort, Wellington Interntionl Airport nd Wellington s regionl hospitl in Newtown (WRLTS, Appendix 1 Strtegic Trnsport Network, p 69)

11 services more ccessile. 12 The mintennce of this strength is key ojective of the RPS: A compct well designed nd sustinle regionl form tht hs n integrted, sfe nd responsive trnsport network; nd () vile nd virnt regionl centrl usiness district in Wellington city In turn, Policy 33 is directed towrd: 14 Supporting compct, well designed nd sustinle regionl form. 4.9 The method of implementtion for Policy 33 is noted s Wellington Regionl Lnd Trnsport Strtegy implementtion The vision of the Wellington Regionl Lnd Trnsport Strtegy (RLTS) is: 15 To deliver n integrted lnd trnsport network tht supports the region s people nd prosperity in wy tht is economiclly, environmentlly nd socilly sustinle In turn, the vision is supported y six detiled spirtions including: 16 Access to nd etween key destintions such s Wellington City Centrl Business District nd other regionl centres, CentrePort, Wellington Interntionl Airport nd Wellington Regionl Hospitl will e quick, esy, relile nd sfe From regionl perspective, key ojective is to mintin (nd enhnce) ccess from the northern prts of the Region to the Wellington city Centrl Are nd key destintions in the southern nd estern suurs, including Wellington Interntionl Airport nd Wellington Regionl Hospitl; with SH1, including the section round the Bsin Reserve, plying pivotl role. Wellington City District Pln 4.13 The Wellington City District Pln, opertive from 27 July 2000 nd updted on rolling review sis, sets numer of strtegic principles to guide the future 12 Regionl Policy Sttement for the Wellington Region, p67 13 Ojective 22, Regionl Policy Sttement for the Wellington Region, p70 14 Op cit, p70 15 Wellington Regionl Lnd Trnsport Strtegy , p2 16 Op cit, p

12 development of the Centrl Are (which roughly ligns with the Wellington City CBD) s follows: 17 c d e f g h enhnce sense of plce ; sustin the physicl nd economic hert of the Centrl Are; enhnce the role of the Golden Mile nd Cu ; enhnce the Centrl Are s loction for high qulity inner city living; enhnce the uilt form of the Centrl Are; enhnce the qulity of the pulic environment; enhnce city/hrour integrtion; nd enhnce the sustinility of the Centrl Are In reltion to the second of these principles ( sustin the physicl nd economic hert of the Centrl Are ), it is stted tht: 18 The city hs nturl tendency towrds physicl continment, with n mphithetre of hills leding down to the inner hrour. This continment mkes the city more ccessile, nd ccentutes its urn feel. Mintining this strtegic role of trnsport infrstructure leding to nd from the city centre is crucil to this gol Two of the other principles lso deserve specific mention: enhnce sense of plce nd enhnce the qulity of the pulic environment. In reltion to enhnce sense of plce it is stted tht: 19 Mny qulities nd chrcteristics contriute to the sense of plce people experience in the Centrl Are... The diverse environments of the centrl city include high-rise towers nd offices, clssic heritge uildings, chrcter res, the mix of pulic nd open spces, nd hrour views. A diverse rnge of people is lso ttrcted to the rry of ctivities on offer in the Centrl Are, nd they dd to the flvour of the city in turn. Enhncing this sense of plce, nd protecting the fetures tht mke Wellington specil nd unique, re essentil ingredients of stimulting nd memorle city. 17 Wellington City District Pln, Chpter 12, Centrl Are, p12/2 18 Wellington City District Pln, Chpter 12, Centrl Are, p12/2 19 Op cit, p12/

13 4.16 In reltion to enhnce the qulity of the pulic environment it is stted tht: 20 The qulity of the pulic environment helps mke the city more livele. A high qulity pulic environment is sfe nd helthy, esy to move round in, rich in qulity urn design nd enhnces people s experiences, nd consistent with pproprite environmentl stndrds. The qulity of the pulic environment is ffected y the function, loction nd chrcter of the pulic spce, s well s y the uildings nd structures tht define the edges of pulic spce Among the ojectives nd policies for Centrl Are development re those relting to Access, including Ojective : 21 To enle efficient, convenient nd sfe ccess for people nd goods within the Centrl Are nd relted policy, Policy : 22 Seek to improve ccess for ll people, prticulrly people trvelling y pulic trnsport, cycle or foot, nd for people with moility restrictions In explntion of Policy it is stted, inter li, tht: 23 The ctions of mny uthorities or orgnistions, including the Wellington Regionl Council, New Zelnd Trnsport Agency nd compnies involved in the movement of people nd freight on lnd, se or ir, work to shpe the City s trnsporttion system. Where there re opportunities for input Council will dvocte for improved ccess. In prticulr Council will continue to work closely with the Wellington Regionl Council on trnsporttion mtters nd the District Pln will remin consistent with the Regionl Policy Sttement, the Regionl Lnd Trnsport Strtegy nd relevnt plns The listed methods for implementing Policy re (emphsis dded): 24 - Rules - Ntionl stndrd ccess design criteri, including NZS 4121: Op cit, p12/3 21 Op cit, p12/58 22 Op cit, p12/58 23 Op cit, p12/58 24 Op cit, p12/

14 - Other mechnisms (Regionl Lnd Trnsport Strtegy) - Opertionl ctivities (WCC Trnsport Strtegy) - Advoccy (Council Socil Policy) Other key policies which help to inform the strtegic plnning frmework include: 25 c : Mnge the rod network to void, remedy or mitigte the dverse effects of rod trffic on the menity of the Centrl Are nd the surrounding Residentil Ares; : Mnge the rod system in ccordnce with defined rod hierrchy; nd : To permit pproprite extensions to the existing rod network, nd mke provision for these In reltion to Policy it is explined tht: 26 Improving ccess for motor trffic my require dditionl rods. Where extensions to the existing rod network re proposed they will, in most cses, e identified or designted on the District Pln Mps. The environmentl result will e etter ccess for motor trffic to prts of the Centrl Are The rod hierrchy for the Centrl Are is shown on Plnning Mp 34 (refer Figure 1) nd consists of: Motorwy, Arteril Rods, Principl Rods nd Collector Rods. The ring-rod round the Bsin Reserve is motorwy/sh1, while Kent nd Cmridge Terrces (prt from the section of Kent Terrce etween Pirie Street nd Ellice Street, which is motorwy/sh1) re n rteril rod, nd Adelide Rod principl rod. 25 Op cit, pps12/59 nd 12/60 26 Op cit, p12/

15 Figure 1: District Pln Mp 34 - Hierrchy of Rods - Centrl Are 4.23 The definitions of motorwy, rteril rod nd principl rod re: 27 c Motorwy: high stndrd limited ccess rods designed to crry long distnce through trffic t speed (primry rod). Arteril Rod: high stndrd limited ccess rods designed to crry long distnce through trffic (primry rod). Principl Rod: rods tht provide ccess to motorwys nd to rteril rods hving dominnt through-trffic function nd crrying the mjor pulic trnsport routes (primry rod). 27 Wellington City District Pln, Chpter 3.10 Definitions, p3/

16 Wellington City Centrl Are Rod Network 4.24 An nlysis of the RPS nd the District Pln leds to the identifiction of numer of key fetures, which in turn help to guide the strtegic plnning frmework for the Wellington city Centrl Are rod network. Those fetures re: c d the Wellington region s urn development pttern is strongly influenced y the region s topogrphy which results in mrked corridor pttern of development, which, in the south of the region, centres on the Wellington city Centrl Are; SH1 is prt of the region s strtegic trnsport network which connects the Hutt Vlley (vi SH2) nd Poriru/Kpiti corridors with the Centrl Are nd, importntly, lso provides ccess to key strtegic regionl fcilities in the southern nd estern prts of the city, including Wellington Interntionl Airport nd Wellington Regionl Hospitl; ccess to, through nd round the CBD is essentil to the on-going vitlity nd virncy of the Wellington city Centrl Are, which in turn is n essentil element for the whole region; 28 nd the ring-rod round the Bsin Reserve is pivotl component of SH1 etween the Terrce Tunnel nd Mt Victori Tunnel for trffic moving in oth directions (est to west nd west to est). Urn Growth Strtegy: Lnd Use nd Trnsporttion Integrtion 4.25 Susequent to the District Pln eing mde opertive on 27 July 2000, in the mid-2000s the Wellington City Council developed seven strtegies to guide the development of the [then] Long Term Council Community Pln (LTCCP) The two most pplicle strtegies in reltion to lnd use nd trnsporttion re: Trnsport Strtegy (July 2006); nd Urn Development Strtegy (July 2006). 28 Access round the CBD is very importnt for trffic entering Wellington City from the north (Poriru/Kpiti nd Hutt Vlley corridors) nd trvelling to destintions in the south nd est (e.g. Wellington regionl hospitl nd Wellington Interntionl Airport) tht hs no need to enter the CBD proper - hence the role of SH1 s ypss. 29 The seven strtegies covered urn development, trnsport, economic development, environmentl, culturl welleing, socil nd recretionl, nd governnce

17 4.27 A key feture of oth strtegies is the growth spine (refer Figure 2) which envisges trnsit-oriented intensifiction of employment nd housing long corridor or spine of growth extending from Johnsonville in the north to Adelide Rod/Newtown nd Kilirnie in the south nd est. Figure 2: Long Term Direction for Urn Development

18 4.28 In its Key Issues Report commissioned y the EPA for this inquiry, the Wellington City Council stted tht: 30 The Wellington City Urn Development Strtegy (2006) ims to chieve more compct nd connected nd sfer environment for Wellington City. The strtegy identifies growth spines for the city. Of relevnce to the Bsin Bridge proposl is the desire for greter connectivity, improved pulic trnsport nd further development of Newtown (s growth spine) The role of Newtown s growth spine is encpsulted in the Adelide Rod Frmework (dopted y the Wellington City Council in Novemer 2008). In the Introduction to the Frmework, under the heding Setting the Scene, it is recorded tht: 31 Wellington is dynmic nd growing city. Forecsts re tht y 2026 there will e round 44,000 more people living in Wellington City thn in With Wellington s popultion stedily incresing, growth hs to hppen somewhere. To help ensure Wellington is compct, sustinle, nd livele city, the City Council is tking n pproch tht focuses new growth in nd round key suurn centres with good infrstructure nd pulic trnsport Then, under the heding Project Context, it is further recorded tht: 32 In developing the Frmework, the project consistently looked eyond the study re oundries to ensure wider lnd-use nd trnsporttion influences were tken into ccount. Influences such s mjor institutions (eg Wellington Hospitl nd Mssey University), recretionl nd sporting fcilities (including the Bsin Reserve) nd trnsport networks (including Stte Highwy 1), re ll of criticl importnce to the future development of the Adelide Rod re A third relevnt sttement is mde under the heding Strtegic Context, where it is recorded tht: 33 The Council s Urn Development Strtegy, pproved s prt of the Council s Long-Term Council Community Pln (LTCCP), sets 30 Key Issues Report Notice of Requirement for the Bsin Bridge Project, Wellington City Council, 23 July 2013, p13 31 Adelide Rod - Plnning for the Future, Wellington City Council, Novemer 2008, p2 32 Op cit, p2 33 Op cit, p

19 the overll frmework for mnging growth nd chnge in the city. Its pproch is to direct growth to where enefits re gretest. The Urn Development Strtegy introduces the concept of the growth spine - which encourges growth in housing nd employment long pulic trnsport spine etween Johnsonville nd the irport. More intensive mixed-use development is encourged in key growth res (the CBD, Johnsonville, Adelide Rod nd Kilirnie), supported y improved pulic trnsport nd roding. Improvements to the qulity of urn development, s well s etter integrtion with community fcilities nd services, re lso importnt considertions. The northern Adelide Rod re is one of the key growth res in the Urn Development Strtegy. The Adelide Rod Frmework is the second centre pln (following the Johnsonville Town Centre Pln) resulting from the Urn Development Strtegy The implementtion of the growth spine ws intended to mke the city: 35 c d e more livele nd sfer - it will increse lifestyle choices nd, if done right, the qulity of plces; more memorle nd distinctive - y enhncing urn menity nd sense of plce; etter connected - rod nd pulic trnsport linkges will e strengthened; more efficient nd productive - it will cost less y directing growth to res where the mrginl costs re lower, nd it genertes more economic opportunities; nd more sustinle - y using less energy, generting less pollution nd eing more resilient The Trnsport Strtegy (July 2006) is essentilly compnion strtegy to the Urn Development Strtegy. As stted in the Introduction: 36 A mjor issue for trnsport is the need to support the city s lnd use nd urn form ojectives s emodied in our Urn Development 34 A third town centre pln, the Kilirnie Town Centre Revitlistion Pln (2010), hs since een prepred. 35 Urn Development Strtegy, WCC, July 2006, p4 36 Trnsport Strtegy, WCC, July 2006, p

20 Strtegy, nd the two strtegies hve een developed in prllel nd re closely integrted The Strtegy notes tht the success of trnsport will e mesured y its ility to support the development of the city nd reinforce the desired pttern of development. A digrmtic representtion of the strtegy is shown in Figure Among the identified ctions (i.e. things to do ) re: 37 c develop the stte highwys nd min rteril rods s the primry mens of moving lrge volumes of trffic nd freight to nd through the city; develop trnsport systems s the min mens for the movement of people long the Urn Development Strtegy growth spine; nd ensure continued ccess to the CBD for commuters. Bus priority mesures on ll min rteril routes to nd through the centrl city re confirmed s n importnt component of the Trnsport Strtegy. 37 Op cit, p

21 Figure 3: Long-term Direction for Trnsport 4.36 The Ngurng to Wellington Airport Corridor Pln (Octoer 2008) ssumes tht: 38 the city mnges growth, minly through controls in its district pln, in ccordnce with this growth strtegy Thus, key foundtions for the Corridor Pln re the Urn Development nd Trnsport Strtegies. This is pprent from the long term vision for the Corridor, which is: Ngurng to Wellington Airport Corridor Pln, Greter Wellington Regionl Council, Octoer 2008, p

22 Along the Ngurng to Wellington Airport Corridor, ccess to key destintions such s CentrePort, Wellington City CBD, Newtown Hospitl nd the Interntionl Airport will e efficient, relile, quick nd esy. Priority will e given to pssenger trnsport through this corridor, prticulrly during the pek period. Pssenger trnsport will provide very high qulity, relile nd sfe service long the Wellington City growth spine nd other key commuter routes. The rod network will provide well for those trips which cn not e mde y lterntive modes nd will llow freight to move freely through the corridor. Trffic congestion through the corridor will e mnged t levels tht lnce the need for ccess ginst the ility to fully provide for pek demnds due to community impcts nd cost constrints. Mximum use of the existing network will e chieved y removl of key ottlenecks on the rod nd ril networks Among the mesures to e implemented within 10 yers is: 40 Design nd construct improvements t the Bsin Reserve to improve pssenger trnsport, wlking nd cycling y seprting north-south flows from est-west trffic, nd implement complementry us priority mesures on Kent Tce, Cmridge Tce nd Adelide Rd The previously referred to Adelide Rod Frmework (refer prgrphs 4.29 to 4.31 ove) records tht it links to other Council plns, policies nd projects including: 41 c the rolling review of the District Pln; Ngurng to Wellington Airport Corridor Pln; nd roding nd infrstructure upgrdes/improvements, including the us priority project In reltion to the Ngurng to Wellington Airport Corridor Pln, it is recorded tht: 42 The Bsin Reserve improvements indicted in the Ngurng to Airport Corridor Pln could hve significnt enefits for Adelide Rod y improving trffic flows t pek times, providing more room 39 Op cit, p2. Note: the long-term vision for the Ngurng to Wellington Airport Corridor is lso cited in the Wellington Regionl Lnd Trnsport Strtegy t Appendix 4, p91 40 Op cit, p10 41 Adelide Rod - Plnning for the Future, Wellington City Council, Novemer 2008, p5 nd p6 42 Op cit, p

23 for dedicted pulic trnsport, nd improving the environment for wlking nd cycling. Under the corridor pln, the us priority nd trffic improvements relted to the Adelide Rod re (e.g. t the Bsin Reserve) re proposed to tke plce within the next ten yers. The pln proposes improvements round the Bsin Reserve to seprte est-west trffic from north-south trffic nd improvements to pulic trnsport. The im is to improve trffic flow nd mke the re more ccessile for pulic trnsport, wlking nd cycling. District Pln Rolling Review 4.41 Since the District Pln ws mde opertive on 27 July 2000 the Council hs initited totl of 77 district pln chnges nd 11 vritions, testimony to the Council s rolling review pproch to its sttutory oligtion under the RMA to review the effectiveness of the District Pln s provisions every ten yers In ddition to meeting its sttutory oligtion to review the District Pln s effectiveness, the Wellington City Council, through its rolling review of the Pln s provisions, hs introduced mesures to implement numer of the strtegies tht the Council initited outside of the uspices of the RMA, including the growth spine concept emedded in the Urn Development Strtegy nd the Trnsport Strtegy. These mesures hve included: c confirming the Johnsonville nd Kilirnie Town Centres s regionlly significnt centres, eing the city s dominnt suurn commercil centres locted t either end of the growth spine (Pln Chnge 73); estlishing res of chnge to enle more intensive residentil development t Johnsonville nd Kilirnie t either end of the growth spine (Pln Chnge 72); nd incresing uilding heights long Adelide Rod to fcilitte more intensive mixed use development in ccordnce with the growth spine nd the Adelide Rod Frmework (Pln Chnge 73) Furthermore, under Pln Chnge 73: Policy Mintin n efficient nd sustinle network distriution of centres lists the Urn Development Strtegy s n implementtion method;

24 c Policy Allow for the outwrd expnsion of existing centres when they re required to ccommodte growth... lists the Urn Development Strtegy & Growth Spine Concept (including Trnsport nd Infrstructure Delivery Projects) s n implementtion method; nd Policy Mintin nd enhnce the viility nd virncy of Regionlly Significnt Centres in the Wellington Region nd Policy Promote the intensifiction of ctivities nd uildings in nd round centres list the Urn Development Strtegy & Growth Spine Concept (including Trnsport nd Infrstructure Delivery Projects) s n implementtion method In explntion of Policies nd it is stted tht: 43 Council s Urn Development Strtegy (UDS) is growth mngement strtegy tht ims to ddress some of the more significnt issues fcing the city. These issues include residentil growth nd providing for vriety of housing choices; mintining nd strengthening the City s centres, climte chnge, urn infrstructure, protection of industril lnd, nd mking the urn environment n ttrctive plce for communities nd investors like. To help guide growth nd development, growth spine concept hs een identified s prt of the UDS tht directs development nd growth to existing infrstructure. The concept is fundmentlly sed on mintining Wellington s compct urn form nd includes utilising existing trnsport systems nd uilding on lredy ccessile services nd fcilities ville in the Centrl Are nd Su-regionl Centres. Developing the city long the growth spine will ensure tht the enefits of intensifiction nd higher density development will e mximised nd tht qulity urn design results will e chieved. It is, therefore, pproprite tht the principles of the UDS growth spine re incorported into the District Pln, where lnd use nd development cn e regulted nd mnged under the principles of the Resource Mngement Act In reltion to development in Adelide Rod, n inititive introduced under Pln Chnge 73 is Policy : 44 Enle residentil development in ll Centres, where it: 43 Proposed Pln Chnge 73, Wellington City Council, Chpter 6, Centres, p67 44 Op cit, p6/

25 - utilises upper floors of uildings; nd - mintins n ctive ground-floor on ny primry street frontges (except for in Neighourhood Centres); nd - provides secure nd plesnt environment for the occupiers; nd - in the Mt Cook Centre is locted ove the second floor (mesured from street level) on streets with frontge to Adelide Rod or John Street nd locted ove ground floor (mesured ove street level) on ll other primry nd secondry street frontges The Adelide Rod Frmework is listed s one of the implementtion methods for Policy In the explntion to Policy it is stted, inter li, tht: 45 When considering pplictions in the Mt Cook Centre, pplicnts re required to design uildings in such wy tht they provide for the re s importnt employment role/function nd lso encourge mix of uses. Mt Cook encompsses the lrgely commercil re of the northern extent of Adelide Rod etween the Bsin Reserve nd John Street nd is key urn growth re indentified in the Council s Urn Development Strtegy The Urn Development Strtegy ws lso listed s n implementtion method in Pln Chnge 72, which ws comprehensive review of the Pln s Residentil Are provisions. For exmple, Policy , one of three policies under Ares of Chnge, seeks to: Encourge residentil intensifiction nd comprehensive redevelopment within medium density residentil res In explntion of the policy, it is stted, inter li, tht: 46 Medium Density Residentil Ares re tightly defined residentil res where high qulity medium density housing will e ctively encourged. These res re locted surrounding the existing town centres of Johnsonville nd Kilirnie where the enefits of higher density residentil development will e gretest. Intensifiction within these res will llow efficient use of existing infrstructure, 45 Op cit, p6/18 46 Wellington City Council, District Pln Chnge 72 (Residentil Review), Chpter 4, p4/

26 support existing services nd fcilities, nd llow people to live close to jos nd close to pulic trnsport. Wellington Towrds One further non-sttutory strtegy tht hs relevnce is the Wellington Towrds 2040: Smrt Cpitl Centrl City Frmework. 47 In the Wellington City Council s Key Issues Report 48 it ws stted tht: The 2040 Frmework is relevnt s it is the most recent policy direction from the Council which refers to the project re, specificlly identifying tht new overpss highwy will generte significnt design issues In the section of the Frmework ddressing Movement n identified re of opportunity is: 49 Stte highwy integrtion The stte highwy nd the wy it integrtes with the city requires ttention, not only to mitigte the current proposls ut to ensure tht s the trnsport gency plns further projects we hve proctive role The ccompnying potentil ctions include: 50 Work with the Trnsport Agency to ensure integrtion of Memoril Prk nd the Bsin Reserve infrstructure projects Other res of opportunity nd potentil ctions dvnced y the Frmework include: 51 [re of opportunity] development of new liner prk using Kent nd Cmridge Terrces medin strip nd linking etween the Bsin Reserve nd Witngi Prk; [potentil ction] work with the Trnsport Agency to determine specifics for Kent nd Cmridge Terrces nd how to integrte with Bsin Reserve. 47 Wellington Towrds 2040: Smrt Cpitl Centrl City Frmework: Approch to Implementtion, Wellington City Council, Key Issues Report: Notice of Requirement for the Bsin Bridge Project, 23 July Wellington Towrds 2040, p83 50 Op cit, p83 51 Op cit, p

27 4.54 I m wre of the considerle lndscpe design input from the Trnsport Agency's project tem nd refer in prticulr to the Urn nd Lndscpe Design Frmework (Technicl Report 3) nd the evidence-in-chief of Ms Megn Wright. The outcomes include significntly enhnced lndscped res, including the southern section of the proposed liner prk incorporting the new entrnce to the Bsin Reserve I m lso wre of the Trnsport Agency s commitment (provided in letter dted 7 August 2013) to work with the Wellington City Council in developing lndscpe pln for Kent/Cmridge Terrces (etween Pirie Street nd the Bin Reserve), mtter ddressed in the evidence-in-chief of Mr Selwyn Blckmore Finlly under this heding Wellington Towrds 2040 I note the Wellington City Council s intention to incorporte more green infrstructure into Wellington s centrl city. 52 Although essentilly trnsport infrstructure project, considerle ttention hs lso een pid y the Trnsport Agency s design tem to the greening of the Bsin Reserve trnsport corridor nd djcent spces. The positive outcomes include not only qulity pulic open spces ut lso enhnced ecology (iodiversity) outcomes, s confirmed in the evidence-in-chief of Dr Astrid Cor vn Meeuwen-Dijkgrf. 5 Strtegic Plnning Assessment 5.1 Drwing on the outcomes envisged y the vrious instruments, it is possile to construct n over-rching strtegic frmework. In turn the frmework cn e used s templte ginst which to mesure the closeness of fit etween trnsport infrstructure project (in this cse the Bsin Bridge Project) nd those outcomes. 5.2 In Ferury 2006, I prepred working pper for Opus Interntionl Consultnts in connection with the Ngurng to Airport Strtegic Study, which is outlined in the evidence-in-chief of Dr Wyne Stewrt. 53 The working pper ws contriuting pper to the Ngurng to Airport Strtegic Study: Prolem Frming Report relesed y Trnsit NZ in August The purpose of the report ws stted in the Introduction in the following terms: 52 Wellington Towrds 2040: Smrt Cpitl Centrl City Frmework: Approch to Implementtion, Wellington City Council 2013, p82 Green Infrstructure. 53 Ngurng to Airport Strtegic Study, Plnning Working Pper No 1 - Strtegic Plnning Frmework. A copy of this pper will e included in the undle of documents to e prepred for the hering

28 OPUS Interntionl Consultnts (OPUS) ws engged y Trnsit New Zelnd to undertke the Ngurng to Airport Strtegic Study (Contrct TNZ 198PN). Urn Perspectives were in turn engged y OPUS to provide strtegic plnning nd urn design dvice nd input to the Study. An initil strt-up tsk for the Study ws to: - Review ll existing ntionl, regionl nd locl strtegies tht hve een dopted; nd - Review ll relevnt plnning instruments. 5.4 It ws further noted in the offer of services tht: The plnning component will e directed towrd estlishing strtegic plnning frmework tht in turn will e employed s templte for evluting the trnsporttion options from the perspective of estlishing mesure of fit etween the trnsporttion option(s) nd the strtegic plnning frmework. Accordingly, the review descried ove will focus on identifying current issues eing ddressed y the vrious instruments nd strtegies, with the im of identifying the long-term strtegy for mnging the reltionship / interfce etween lnd use, trnsporttion options nd urn form. The work will focus on how mjor inititives nd development options re expected to contriute to nd influence growth long the Ngurng to Airport corridor. 5.5 I identified six principles tht I considered could guide investment in trnsport infrstructure: c Efficiency: efficient ccess is fundmentl pre-requisite for virnt urn economy. Affordility: funding constrints nd ility to py must e recognised. Sustinility: lnd trnsport systems should operte in mnner tht enles resources to e used in sustinle, energy efficient mnner. d Consolidtion: investment in trnsport infrstructure should fcilitte / encourge consolidted urn growth. e Connectivity: investment in trnsport infrstructure should enhnce connectivity etween lnd use nd trnsport options

29 f Urn Amenity nd Environmentl Enhncement: investment in trnsport infrstructure should support urn design outcomes nd enhnce urn menity nd environmentl conditions. 5.6 In the susequent report, Ngurng to Airport Strtegic Study: Prolem Frming Report 54 the principles were restted y the report s uthors (Opus Interntionl Consultnts) s follows: Assist economic nd regionl development: investment in trnsport infrstructure should fcilitte consolidted urn growth nd improved lnd use ptterns which will encourge economic development nd improved trnsport efficiencies. It ws noted tht possile ppliction of the principle ws lign new investment in pulic trnsport with the growth corridor/spine concept ; Assist sfety nd personl security: investment in trnsport infrstructure should contriute to n overll sfer environment. A possile ppliction of the principle ws ddressing the sfety needs of pedestrins nd cyclists in the city ; c Improve ccess, moility nd reliility: investment in trnsport infrstructure should provide highly interconnected pssenger, rod nd street system tht supports the complex lnd use ctivities found in the city. A possile ppliction of the principle ws enhnced pulic trnsport etween Johnsonville (nd northern growth re) nd CBD, enhnced ccess from CBD to the wterfront; incresed pulic trnsport options/routes long growth corridor/spine (Johnsonville-CBD-Adelide Rod-Kilirnie) ; d Protect nd promote pulic helth: provide trnsport system tht llows for socil prticiption nd interction, nd helthy communities vi reduced trnsport impct on nturl resources, nd incresed uptke of ctive mode use, prticulrly for short trips. A possile ppliction of the principle ws the provision of high qulity wlking nd cycling fcilities to encourge ctive modes of trnsport ; 54 Trnsit New Zelnd, August 2006, Ngurng to Airport Strtegic Study: Prolem Frming Report, p

30 e Ensure environmentl sustinility: investment in trnsport infrstructure should support urn design outcomes, enhnce urn menity nd environmentl conditions nd reduced numers of privte vehicle trips. A possile ppliction of the principle ws oulevrd tretment of mjor (non-motorwy) routes, urn design enhncement of mjor gtewys nd trnsport interchnges; environmentl enhncements to mjor pedestrin connections (eg Wellington Rilwy Sttion to CBD) ; f Consider economic efficiency nd ffordility: possile ppliction of the principle ws the most efficient trnsporttion options should e ccorded priority whilst ttention should first turn to mesures tht improve existing trnsport infrstructure. 5.7 The Prolem Frming Report considered tht ech trnsport option nd inititive would need to e considered nd ssessed in light of the following: 55 c d e f g h i Does it support more intensive growth (commercil or residentil) long the growth spine? Does it fcilitte more compct urn form nd therefore minimise trnsport distnces nd relince on the privte cr? The extent to which ccess to / from the CBD is enhnced? Does it enhnce pulic trnsport ccess to nd through the CBD? Will it fcilitte / encourge modl shift wy from the privte cr nd single occupncy vehicles, prticulrly for pek commuter trvel? Will ccess to / from strtegic regionl fcilities (port, hospitl, irport) e enhnced? Does it promote / enle more efficient nd sustinle use of existing trnsport infrstructure? Does it reduce severnce effects ssocited with the level of through trffic using the wterfront route? Will the overll level of connectivity etween trnsport modes nd mjor nodes of urn development e enhnced? 55 Op cit p

31 j k Will pedestrin moility, sfety nd connectedness within the CBD e enhnced? Is it finncilly chievle? 5.8 In my opinion, mny, if not ll, of the ove re mtters ginst which the Project cn e considered nd ssessed, from strtegic plnning perspective. 5.9 I hve undertken this ssessment (refer elow), ut firstly I will recp wht I consider to e the key chrcteristics of the mke-up of the region, city nd Centrl Are (CBD) tht, in mny wys, guide the overll investment on trnsport infrstructure Those chrcteristics re: c d t the regionl level, well estlished pttern of corridor development with two principl corridors of urn development locted to the north of the Wellington city CBD, ut which, nevertheless, re connected to the Wellington CBD (the region s economic, socil nd culturl hu) y oth rod nd ril infrstructure; CBD, tht is somewht squeezed in etween the hills to the west nd the hrour, nd which lies etween the northern corridors nd key regionl fcilities to the south nd est of the CBD; Stte highwy (SH1) tht essentilly ypsses the CBD ut provides n essentil strtegic roding connection to key regionl fcilities for trffic from the northern corridors; 56 nd within Wellington City concentrtion of trnsport infrstructure nd urn development long growth spine tht extends from the northern end of the city centred on Johnsonville, through the CBD to growth nodes t Adelide Rod/Newtown nd Kilirnie in the south nd est respectively Within this wider pttern of urn development, the Bsin Reserve re occupies pivotl position s it is the point where SH1 rod trffic crosses or competes with north-south trffic flows, including pulic trnsport flows. 56 Prior to the completion of the Inner City Bypss (ICB) SH1 ended t the south end of The Terrce Tunnel. With the completion of the ICB SH1 ws extended cross Te Aro, through the Mt Victori Tunnel ending t Stewrt Duff Drive t Wellington Airport. At tht point (1997) Trnsit NZ took over responsiility for the rod