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Papakura Local
Board
17 August 2016
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Opaheke Park
Development _ Papakura
File No.: CP2016/17614
Purpose
1. To seek
approval for the final concept development plan for the northern part of
Opaheke Park, Papakura.
Executive
summary
2. Motleon
Ltd is the proponent of the Bellfield Road Special Housing Area (SHA).
Immediately to the south of the SHA is Slippery Creek and Opaheke
Park. Full development of the SHA necessitates re-contouring the northern
part of Opaheke Park, which is within the 1 in 100 year floodplain, to better
control the flood events and provide compensatory flood storage.
3. In
May 2016 the local board resolved to grant landowner approval in principle for
the development of the northern part of Opaheke Park (including the
re-contouring). The intention is to provide a multifunctional suburb park that
will service the growing Papakura community. The design will deliver a range of
informal activities to complement the existing sporting activities, and enhance
ecological values.
4. Motleon
through a contribution of $4.25 million will substantially fund the development
of the northern part of Opheke Park. An existing agreement to
uplift the encumbrance over the former golf course land, which constitutes part
of the SHA, obligates Motleon to pay $1.75million to Council upon approval of
resource consents for the residential development of the land. The board
has subsequently provided their agreement in principal to allocate the
$1.75million towards the development of the northern part of Opaheke
Park. These two sources of funding provide overall funding of $6million
for the developed design of the northern area of Opaheke Park.
5. The
Opaheke Park Concept Plan was recently consulted on with 276 pieces of feedback
received. Based on this feedback three design options were workshoppepd with
the local board on 10 August 2016. The three options are different notably in
relation to the accommodation of equestrian facilities and extent of informal
recreation;
· Option A – Informal recreation (existing concept plan)
· Option B – Informal recreation and some equestrian facilities
· Option C – Equestrian facility and some informal recreation
6. Council staff now seek the board’s decision on the developed design
of the northern area of Opaheke Park. Staff support Option B as it will
enable the Papakura Pony Club (PPC) to remain on the park as an interim
solution while a more suitable arrangement is secured. It is considered that
while the aspirations of the PPC are commended they are not consistent with the
strategic outcomes identified for Opaheke Park.
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Recommendation/s
That the Papakura Local Board:
a) Approve the
updated Opaheke Park Concept Plan prepared by Surface Design Inc dated 10
August 2016, and provide for up to three hectares for equestrian use by the
Papakura Pony Club within the park for a period of up to five years, as an
interim measure to allow the Club to make alternative arrangements with the
support of council staff.
b) Support the
establishment of a project team involving Motleon and Papakura Pony Club
representatives and council staff to amend the Opaheke Park Concept Plan to
include the equestrian area of up to three hectares.
c) Approve the
updated Opaheke Park Concept Plan prepared by Surface Design Inc dated 10
August 2016, in the event that the Papakura Pony Club formally advise that
they do not wish to remain on Opaheke Park.
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Comments
7. Motleon
Limited has recently lodged for consent to develop their property at Opaheke
Road, Papakura, as a Special Housing Area (SHA). The residential development
will result in approximately 500 homes. Papakura is considered an area of high
demand for new homes.
8. The
site adjoins Slippery Creek and Opaheke Park to the south which is
approximately 41hectares in size and is held as a recreation reserve subject to
the Reserves Act 1977. There is no reserve management plan for the park.
9. Opaheke Park is zoned Rural
Plains in the Auckland District Plan (Papakura section) and Public Open Space,
Sport and Active Recreation in the Proposed Auckland Unitary Plan. Both Plans
include flood plain and flood prone areas within the northern and central portions
of the park.
10. A key component of the SHA
development is to better control the flood
path through the Slippery Creek system and surrounding landscape. The
stormwater mitigation strategy involves raising the ground level of the SHA
land above the floodplain by relocating fill from Opaheke Park and modifying
the area of the park already affected by flooding to better control both more
frequent and larger flood events. The more frequent events are controlled by
increasing the width of the banks of Slippery Creek. The larger events are
better controlled through a series of ponding areas and calmed by areas of
higher ground. The stormwater model has been developed, peer reviewed and
endorsed by Council’s Healthy Waters unit. The $5.7million cost involved in
re-contouring is the sole responsibility of Motleon.
Proposed development of
Opaheke Park
11. The proposed stormwater works
within the northern part of Opaheke Park provide an opportunity to develop the
asset to realise its value as a suburb park. The intent is to provide a diverse
range of activities and experiences to serve the current and future needs of
the wider Papakura community.
12. A concept plan has been prepared
which seeks to complement the existing sporting facilities provided in the
southern area which consists of eight sports fields, parking and hard stand
area, with plans for a staged development of changing rooms/toilets, clubroom
facility, sand carpeting and lights. The Papakura Pony Club who currently occupy a portion of the
northern area has not been accommodated in the plan. Motleon was not aware the
pony club use needed to be considered in the development plan.
13. The main components of the
concept plan are as follows;
· A mix of
passive and active recreational opportunities including;
- bike park (informal pump and BMX tracks)
- varied play opportunities including a flying fox
and climbing wall
- fitness equipment
- open grassland areas for passive recreation and
socializing.
· Varied
access and circulation including;
- connections between the residential development
and Opaheke Park, the main one being a centralised boardwalk
- pathway network including a shared pathway for
cyclists and pedestrians around the park perimeter
- provision for future parking areas.
· Enhancing the
ecology of the park through extensive planting.
· Educational
opportunities around stormwater management, culture and ecology.
14. Amenities atop the
re-contoured ground within Opaheke Park, such as walking tracks and play
equipment, have been deliberately placed relative to the location and frequency
of impact by stormwater.
Public consultation
15. In consultation with the
local board at a workshop on 19 July 2016, minor changes were made to the
Opaheke Park Concept Plan (refer to Attachment A) before it went out for public
comment. Consultation was undertaken between 25 July and 7 August 2016.
This included;
· A
public open day on 30 July at the Sir Edmund Hillary library
· Articles
in Neighbourly and E-bulletin
· Notification
on the Papakura Local Board Facebook page and Auckland Council website
· Public
notice in the Papakura Courier
· Inclusion
in Shape Auckland where feedback could be provided
· Posters
at the Papakura Service Centre, Sir Edmund Hillary library and the Papakura
Leisure Centre
· Over
500 information flyers delivered to surrounding residents
· Staff
have met with the PPC and the dialogue is on-going.
16. In addition to this the PPC has provided information on
their website and facebook page, and have run a campaign to raise awareness of
the club’s position. Public awareness was also raised through a segment on
TVNZ Seven Sharp. Motleon has also uploaded the porposed plans and a full copy
of their application onto their website.
Feedback summary
17. A total of 276 submissions were received, 47
of these were proformas. On those forms where it was provided, submitters were
asked to indicate their overall response to the plan. The results are
represented in the table below. The majority of submissions received were from
the Papakura and Franklin Local Board areas.
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Response
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Count
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%
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Strongly
disagree
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186
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74
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Disagree
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19
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8
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Neutral
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6
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2
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Agree
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9
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4
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Strongly
Agree
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33
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13
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TOTAL
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253
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18. A high level summary of the feedback is
provided in Attachment B. Copies of the submissions have been made available to
local board members (note this has been done in line with the Privacy Act).
Papakura Pony Club
19. While we understand the PPC was established in
1960 they were incorporated in 2012. PPC merged with the Pukekohe Pony Club in
2014 and currently has 73 riding and non-riding members (national body figures
indicate that there were 13 riders in Papakura and 12 in Pukekohe in 2014).
Initially located on private land, the club has been operating on Opaheke Park
since September 2013. The Papapkura District Council
Operations and Monitoring Committee made the following resolution at their 25
March 2008 meeting;
‘That an equestrian facility be incorporated in the plans for the
new Drury Sports Fields and that officers work with Papakura Pony Club and also
investigate other equestrian sports to understand the facilities that may be
required.’
20. The club was granted resource consent to
conduct pony club activities in 2010. This provided for 10 riders and up to two
events per year with up to 60 riders. This expired in September 2013.
21. Auckland Council provided
landowner approval for the PCC to be on Opaheke Park in 2015 on a fixed-term
basis. The PPC currently occupies Opaheke Park on a month by month basis, which
can be terminated by either party.
22. The clubs season is September to April. A
rider programme for riders with horses and equine skills courses are provided.
Weekly rallies are held. Up to six training nights per season (one a month)
require the public to be excluded from the cross country area. The club holds
approx. four to five events each year (three that are required to be closed to
the public). It is currently the only pony club in the Franklin District with
facilities for grass roots eventing.
23. Current facilities include
6-8 rings, a cross country trail approx.1.5kms in length, and storage. The club
is planning to construct the first three cross country courses ready for this
season. There are no permanent facilities.
24. The PPC requirements as
outlined in their deputation to the local board in July and subsequent
discussions with staff, are as follows;
· Clubroom
and toilets
· Storage
facility approx. 250m2 in size
· Cross
country trail - up to 2.8kms in length, minimum nine metres in width, for
health and safety reasons there is a requirement that the trail is accessible
at all points by vehicle/ambulance and able to be secured from spectators
· All
weather arena 100m x 100m
· Grassed
rings – six at 50m x 50m each
· Parking
– rally nights approx.120 spaces required, events approx.600 spaces required
· Yards
– 12 at approx. 18m2
· Helicopter
landing area
25. These requirements equate to 12 hectares
(approx.). When not in use the PPC consider this facility to be a shared space
to be used by other equestrian groups and a range of non-equestrian users such
as scouts and sports clubs and the general public, for activities such cross
country, orienteering, mountain biking, running, and dog exercising. The club
have also expressed an intention to seek funding through grants and sponsorship
rather than relying on council to fund all the facilities.
Options
26. As a result of
public feedback, three options are proposed for consideration by the board. The
three options are notably different in their accommodation or not of equestrian
facilities and provision of informal recreation.
Option A – informal recreation (existing concept plan)
Option B – informal recreation and some equestrian
facilities
Option C – equestrian and some informal recreation
facilities
Option A -
informal recreation (existing concept plan)
27. This option
endorses the Opaheke Park Concept Plan which formed the basis of public
consultation and was supported in principle by the local board at their May
meeting. It does not accommodate equestrian facilities which means the PPC will
have to move from the park. As part of on-going dialogue with the PPC, staff
have been investigating alternative arrangements. The options proposed to date
have not been suitable from the clubs perspective.
28. Considerations;
· Realises the intent of Opaheke Park as a suburb park to provide a
diverse range of activities and experiences to serve the current and future
needs of the wider Papakura community, particularly in an area which is
experiencing increasing residential development
· Excludes the PPC whose members have an expectation to be located at
Opaheke Park (although they have no formal tenure) and have been developing
non-permanent facilities on the park over the last three years
· Does not recognise the resolutions of the Papakura District Council
to include equestrian facilities at Opaheke Park
· Risk of challenge from the PPC.
29. Based on
feedback the parking provision has been increased (refer Attachment C).
Discussions on other aspects raised that do not affect the concept plan include
finalising the design of the bike park (e.g. informal BMX track/pump
track/possible skate track), considering multi-use aspect of any clubrooms and
potential provision for RC model flying. The detailed design will include CPTED
principles, traffic safety and consider the provision of fruit trees.
Option B –
informal recreation and some equestrian facilities
30. This option
retains the concept plan which provided for a range of informal recreation
opportunities, but includes the provision of up to three hectares of land for
equestrian purposes. This would allow for an arena, six grass rings and
storage. Access would be made available to 200 plus parking spaces (possibility
of providing overflow parking), and toilet facilities once constructed. This is
an interim solution that would enable the PPC to maintain a presence on the
park while providing time to investigate alternative arrangements.
31. This is offered
as an interim solution as the PPC are not supportive of this option. The main
concerns raised are around the viability of the club as their financial
sustainability relies on the cross country trail and being able to hold events.
Alternative options have been looked at for the provision of a cross country
trail. The club has indicated that splitting facilities is not viable.
32. Considerations;
· Realises the intent of Opaheke Park as a suburb park to provide a
diverse range of activities and experiences to serve the current and future
needs of the wider Papakura community, particularly in an area which is experiencing
increasing development
· Will provide an additional recreation opportunity within the park
for pony club users
· Provides for some equestrian facilities sought by PPC. The cross
country trail (the clubs top priority) and provision for event parking (600
spaces) within the park will not be accommodated
· There would be limited capacity for growth of the PPC within the
park
· The equestrian area must be accommodated within the current concept
plan framework and stormwater model
· It is anticipated it will have minimal impact on the informal
recreation facilities proposed or the sports area, and it will be short term
· Does not recognise the resolutions of the Papakura District Council
to include equestrian facilities at Opaheke Park.
· Risk of challenge from the PPC.
33. The PPC do not
want to impact the provision of informal recreation facilities proposed for the
community. There are various ways the equestrian facilities could be
implemented. The board can advise where and how the budget can be allocated and
what input will be required from the PPC. There are also other funding avenues.
Option C –
Equestrian and some informal recreation facilities
34. This option
accommodates the PPC and enables some informal recreation facilities to be
developed/provided.
35. Considerations;
· Recognises that the Papakura District Council resolved to include
equestrian facilities at Opaheke Park.
· Enables the PPC to become a fully established equestrian facility
within the Franklin District and address current gaps in provision
· PPC have indicated they would seek funding towards facility
development
· Will require a complete redesign of the northern part of the park
· Will require re-engineering and iterative works around earth working
and flood modelling which may take up to nine months to complete
· Will delay the development of the Bellfield SHA as it will require
consenting under the RMA resulting in uncertainty around the project
progressing
· Would not provide the extent of broad community offering of Options
A or B.
Auckland
Equestrian Facility Plan (2014)
36. The
Plan assesses the future facility requirements for Equestrian
Sports NZ Codes, pony clubs and polocrosse. It recognises that generally
across Auckland, there is a sufficient supply of pony clubs to meet local
demand with no indication that demand for participation is outstripping supply.
37. The
PPC falls within the Franklin – Thames Valley
district and is identified as a club with potential to develop. As the club
have recently amalgamated with Pukekohe Pony Club the reference to membership
number is now out of date.
38. Regional strategic priorities identified include securing
existing network to maximise use, investing in a few facilities to provide an
advanced level of competition and access, new facilities only where there is a
gap in provision and evidence of demand. Clevedon
Sports grounds are identified as an opportunity to improve utilisation and
development and the provision of an advanced level pony club facility in the
south is identified.
Staff Assessment
39. Opaheke Park was purchased for sporting and
recreation purposes. It is a large site that provides the ability to offer a
diverse range of activities and experiences for the local and wider community.
40. With the increase in residential development
in the surrounding area, council needs to take a strategic view and consider
the long term needs of the community. While the aspirations of the PPC are
commended they will require a significant area of land to implement. The club
have suggested that the majority of their facilities can be used by
non-equestrian users however this will be on a limited basis. Overall it is
considered that the aspirations of the club are not consistent with the
outcomes we are now trying to achieve with Opaheke Park.
41. The value of the PPC is recognised and what
they contribute to the community. Staff therefore support the provision of
three hectares (approx.). Three hectares of land being incorporated within the
current concept design for equestrian facilities. This will enable a greater
diversity of experiences and recreation opportunities to be provided. The
current design provides an exciting opportunity to create a unique park for the
wider Auckland community. The stormwater management works will better control
the flooding events and the development of the northern part of the park will
be substantially funded and completed by Motleon.
42. While it is recognised that the PPC have
indicated they do not support this option, offering this interim solution
enables the club to remain on the park in the short term while an alternative
arrangement is investigated. Staff have been looking at options and will
continue to work with the club to find an arrangement that is more suitable to
meet their aspirations.
43. It is anticipated that there will be some
further refinement of the design when it enters the detailed design phase. It
is recognised that some flexibility in the plan is required to enable changes
as the project and consenting progresses.
Development and consequential
costs
44. Council and
Motleon have signed an agreement to uplift the encumbrance over the former golf
course land, which constitutes part of the SHA. That agreement obligates
Motleon to pay $1.75million to Council upon approval of resource consents for
the residential development of the land.
45. The Board have
subsequently provided their agreement in principal to allocate the $1.75million
towards the finished design of the northern part of Opaheke Park. Motleon
has offered to contribute $4.25million towards the finished design of the northern
part of Opaheke Park. These two sources of funding provide an overall
budget of $6million for the finished design.
46. The consequential
operational costs of maintaining the proposed park will depend on the final
extent and nature of the development. Consideration will be
given to using low maintenance plants, infrastructure location and materials in
terms of longevity and maintenance. Motleon has undertaken to fund the
maintenance for the first two years.
47. If the park is developed as outlined in the concept
plan, the annual maintenance is estimated to be $160,000. Provision of
operational costs are provided for in the 2015 Long Term Plan, and will be
allocated to the appropriate park maintenance budgets as and when maintenance
costs are met by council.
Consideration
Local Board Views and Implications
48. Decision making responsibility for the
development and maintenance of Opaheke Park is allocated to the local board.
Development of the northern portion of the park has been discussed with the
local board on a number of occasions over the last eighteen months.
49. At the 18 May 2016 meeting of the Local Board
the following resolution was made;
That the Papakura Local Board;
a) Provides
landowner approval in principle for the concept development plans for Opaheke
Park prepared by Surface Design Inc, dated April 2016.
50. Public consultation was undertaken on the
concept plan for a two week period. A summary of the feedback received was
presented to the local board at a workshop on 10 August 2016, and three options
were discussed. The Chairperson requested that board members keep an open mind
when considering the options and recommendations that will be proposed in the
report.
Māori Impact Statement
51. When making decisions under
the Reserves Act 1977 Council is required to give effect to the principles of
Te Tiriti o Waitangi/the Treaty of Waitangi.
52. Motleon has
engaged with the two tangata whenua groups that have expressed an interest in
the locality, namely Ngati Tamaoho and Te Akitai Waiohua. The proposed
plans for the SHA and Opaheke Park have been shared and several meetings held
with these groups, including a site visit. Both groups have provided Cultural
Values Assessment reports which are included as part of the plan variation
application that has been submitted to Auckland Council. Discussions
raised in the CIA reports encourage ongoing dialogue and involvement notably
during the earthworks and detailed design phases of the project.
53. There are no known sites of
significance to Maori identified on Opaheke Park in the Auckland District Plan
(Papakura section) or the PAUP. An Archaeological Report has been included with
the consent application. It concludes that there are no specific
archaeological or heritage features within the SHA site or Opaheke Park.
Implementation
54. Should
Option A be supported, upon approval of the consents lodged by Motleon earth
works will likely commence in January 2017. This will enable the PPC to hold
their December events. Council staff will continue to support the PPC to find
and secure an alternative location.
55. Motleon’s SHA application
obligates that the finished design of the northern area of Opaheke Park will be
completed contemporaneously with the first stage of the residential
development. This includes a two year maintenance period.
56. Should Option B be supported, it is proposed
to form a project team led by council staff involving Motleon and PPC
representatives, to confirm how an equestrian area can be
designed and established. Staff will work with the club to confirm whether they wish to pursue this option. If the club do not
wish to proceed then staff recommend that Option A be implemented. Similarly if
agreement on the design cannot be reached by 31 August 2016 then staff
recommend that Option A be implemented.
57. Formal tenure will need to be
secured by the club (lease or licence) in line with the Reserves Act. A period
of five years is recommended as being adequate time for the club to secure an
alternative arrangement. A separate report would be
provided to the board on this aspect. In line with the Act, public notification
of the intention to grant the lease or licence for a one month period will be
required.
58. Should Option C be supported
there is significant uncertainty whether the project would proceed because
Motleon would need to re-design the northern section of the park. This would
take many months notably because of the complexities of earthworks and
stormwater and likely require consenting instead under the RMA. As with Option
B, formal tenure will need to be secured by the club and a separate report
would be provided to the board and this option is also likely to require
further consultation.
Attachments
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No.
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Title
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Page
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aView
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PLB Attachment 17 August 2016_Opaheke Park Concept
Plan dated July 2015, used for public consultation
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15
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bView
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PLB Attachment 17 August 2017_Opaheke Park Concept
Plan - Feedback Summary
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17
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cView
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PLB Attachment 17 August 2016_Opaheke Park Development
- Option A
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19
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Signatories
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Authors
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Sophie Bell
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Authorisers
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Mace Ward
Rex Hewitt - Relationship Manager
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