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Planning
Committee
28 March 2017
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Waterfront
Planning and Implementation
File No.: CP2017/00076
Purpose
1. To seek in-principle agreement to a preferred inner dolphin option
at Queens Wharf for longer cruise ships, expected to be delivered in time for
the 2018/19 cruise season.
2. To inform the committee that a targeted refresh of the Waterfront
Plan has commenced, focusing on Wynyard Point and the Central Wharves.
Executive
summary
3. Over
the last five years a number of changes and evolving investment and development
have occurred across the city centre. This includes significant city centre
population and employment growth, the completion of North Wharf and the
continuation of development in Wynyard Quarter, major construction works such
as the City Rail Link enabling works (CRL) and Commercial Bay, commitment to
additional waterfront open space, the growth in cruise ship arrivals and the
increase in the amount of people using public transport (including ferries,
buses and trains).
4. There
is significant investment planned in the City Centre and Waterfront over the
next ten years to respond to this growth and the heightened expectations of
Aucklanders, including recent transport proposals (such as light rail), and
development opportunities arising from the expiry of the tank farm leases
in five to eight years.
5. In
response to this a targeted refresh of the Waterfront Plan 2012 is underway,
along with scoping of specific work to update the City Centre Masterplan
Implementation Strategy. This work is required to guide the prioritisation and
implementation of current and future city centre and waterfront projects and to
better enable integrated planning and delivery across the council family.
6. The
refresh of the Waterfront Plan will involve a focus on the next phase of
development at Wynyard Point and on optimising the use of the central wharves.
This work will be undertaken working closely with key stakeholders, and the
outputs of this process will be brought to the Planning Committee for consideration
later in 2017.
7. During
2017 the council will also need to make a number of connected decisions in
relation to the waterfront, such as the reconfiguration of the downtown ferry
terminal, the expansion of cruise infrastructure long-term and how Wynyard
Point will be designed and used. These decisions will require collaboration and
trade-offs as well the requisite funding.
8. The
first of these decisions relates to the infrastructure requirements of the
cruise industry. In order to accommodate larger cruise ships, such as the
Ovation of the Seas (350m, 4900 passengers), Auckland needs an immediate
berthing solution to avoid this season’s scenario where Ovation of the
Seas had to moor in the harbour.
9. The
growing cruise industry provides significant benefits to the regional economy
of $220 million annually and nearly 4000 jobs. Ship visits have grown from 40
in 2006 to 104 in 2016 and passenger numbers have increased from 60,000 to
220,000 in the same period.
10. Ahead of a
decision on longer term cruise infrastructure, berthing larger ships on Queens
Wharf is the only location available. A series of mooring options have been
assessed for Queens Wharf to ensure functionality, operability, deliverability
and cost effectiveness. The options shown in Attachment A include -
· Sea
Anchors - a series of anchors on the sea bed with floating buoys
· Single
Anchor Leg Mooring - large floating buoys attached to the sea bed
· Vacuum
Mooring - units along the wharf which hold the ship in place
· Wharf
Extension - a half or full wharf extension
· Dolphin
Structure – located off Queens Wharf with and without a gangway.
11. Based on the
assessment of options, the preferred solution is a dolphin structure built onto
the northern end of Queens Wharf. This inner dolphin is a mooring arrangement
similar to that currently used at Princes Wharf and includes further
strengthened bollards at the southern end of the Wharf, a new fender and some
maintenance dredging. This option is shown in Attachment B.
12. Auckland
Council, Auckland Tourism Events and Economic Development, Panuku, Ports of
Auckland, and the cruise industry are working to understand conditions
acceptable for berthing, and how safety and operating risks can be mitigated.
13. Further
technical, engineering and planning studies for this option will be required
including an independent risk assessment to be undertaken by the Harbourmaster.
Any proposal for a dolphin structure or change to mooring arrangements will
also require sign-off from Maritime NZ, the Ports of Auckland as operator, and
the agreement of cruise lines as users.
14. If the inner
dolphin option is proven acceptable, and staff expect to confirm this in the
next few weeks, then it is possible for it to be operational for the 2018/19
cruise season, subject to resource consent approval.
15. The capital
investment for the dolphin and associated fender and strengthening works at the
southern end of Queens Wharf is estimated to cost up to $10 million. Capital
funds will be sourced from existing Auckland Council budgets to be recovered,
over time, through cruise ship passenger levies imposed and collected by Ports
of Auckland.
16. The Cost
Benefit Analysis shows the project has a Net Present Value of $9.8 million (for
three visits per annum) growing to $38.4 million (ten visits per annum) over ten
years.
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Recommendation/s
That the Planning Committee:
a) agree
in principle to the inner dolphin off Queens Wharf to enable large cruise
ships to berth in Auckland from the 2018/19 cruise season, subject to further
technical work and risk assessment, and all consent approvals being obtained.
b) delegate
decisions regarding budget allocation of capital costs to the Chief Executive
of Auckland Council.
c) agree
that Auckland Council will recover the capital cost of the inner dolphin,
over time, through cruise ship passenger levies imposed and collected by
Ports of Auckland Limited.
d) note
that a resource consent will be prepared and lodged by Panuku.
e) note
the targeted refresh of the Waterfront Plan has commenced, focussed on
Wynyard Point and the Central Wharves.
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Context
17. Auckland’s
central city waterfront is a focus for the new Auckland; the gateway to New
Zealand for many, its success is critical for all New Zealand. This waterfront
includes several different components, each of which are being planned and
delivered in an integrated way from the Harbour Bridge to Teal Park.
18. As well as
delivering a spectacular waterfront that builds on successes to date, the
continued unfolding of this vital part of the city needs to address a number of
requirements and aspirations including enhanced public amenity and spaces;
operational facilities for cruise ships and ferries; as well as opportunities
for development and sustained economy activity.
19. A refresh of
some elements of the Waterfront Plan, and targeted work to unlock and progress
key City Centre Masterplan projects, are underway. The focus of this work is to
provide an updated and enhanced spatial direction, following the last five to
six years of investment and development across the city centre, and certainty
to key projects. It will also enable a prioritised package of proposals to be
brought forward to the Long-term Plan process.
Waterfront
Strategy Refresh
20. Significant
progress has been made across the waterfront in the delivery of the Waterfront
Plan 2012. We are midway through implementation.
21. The vision
and goals remain relevant and this planning phase can be further enhanced by
the recent adoption of waterfront goals by mana whenua (through the Panuku Mana
Whenua Forum).
22. To ensure a
prioritised proposal is delivered for the Long-term Plan for the next stages of
waterfront development, the planning refresh is focussed on the development of
a Framework Plan for Wynyard Quarter and for the Central Wharves. These
will come to the Planning Committee for consideration later in 2017. While
integrated with the wider waterfront planning, the refresh does not seek to
deliver a new Waterfront Plan.
23. The
Waterfront Plan refresh is taking account of the evolving context:
· There
has been widespread public support for the large number of projects that have
been delivered across the waterfront from Westhaven to Queens Wharf.
These projects have enabled public access to the waterfront, supported economic
growth, attracted locals and visitors and enabled expression of our cultural
history. There is an opportunity to leverage off this success to date.
· Significant
population and employment growth in the city centre and increasing tourist
arrivals.
· Sky
Path has gained resource consent and will have impact on existing assets and
cycling infrastructure.
· Technical
work is underway towards a Notice of Requirement for the third harbour crossing
and although the tunnels are at least 20 years away, they will have
implications for Wynyard and Victoria Quarters that need to be planned for.
· The
“tank farm” leases expire in 2022/2025 enabling the next phase of
development of Wynyard Quarter.
· While
the City Centre Masterplan assumes no growth in private vehicle trips, the
significant growth in alternative modes of transport will need to be provided
for in the city centre and will have an impact on key waterfront axes including
Quay Street. There are proposals for light rail to go into Wynyard Quarter
which could have significant design challenges for the current vision and the
development of City Rail Link will have impacts on the transport networks
around the city centre and waterfront.
· A
review of the overall Ferry Development Strategy will determine the
infrastructure needs for ferries in the ferry basin and elsewhere, and the best
way to respond to this.
· The
Ports Future Study which was presented to Council in 2016.
· Cruise
ship sizes and numbers have increased quickly, contributing $220m annually to
the economy, but also requiring additional infrastructure.
24. At the
workshop with Planning Committee and Local Board representatives on 10 March,
the following issues were raised for consideration in the Plan refresh:
· A desire to
rebalance private motor vehicle access to the central city with other forms of
transport, including public transport, walking and cycling.
· Making full use of existing infrastructure (eg. Queens Wharf’s
role with the cruise sector) before considering investment in new facilities.
· The iconic feature of Wynyard Point being a park rather than a building.
· The important issue of freight access to the port and wider
waterfront area, given its current size and projected growth.
· Strong interest in the future of Halsey Wharf and the logic around
the current plans for its extension.
· Bold decisions around climate change and the vision of a walkable
city.
· Progressing planning for the port to ensure integrated long term
planning across waterfront.
· Enabling infrastructure to accommodate growth and to optimise
services and loss of water space for water activities and views.
25. The
presentation to the workshop is attached to the Summary of Planning Committee
Information Items - 28 March 2017 report.
Key
Projects
26. Below is a
list of the key project decisions that will be guided by the waterfront plan
refresh work being led by Panuku. There are many interdependencies to be
proactively managed:
· Phase
2 (Inner Dolphin) Cruise Infrastructure - A decision on the implementation
of infrastructure to meet immediate berthing requirements.
· Signature public building for Wynyard Point - A decision on whether to construct a signature building
within Headland Park on Wynyard Point. The Bulk liquids depart 2022
– 2025.
· Public transport - A
decision by Auckland Transport on public transport into Wynyard Quarter
including a light rail terminus.
· Third Harbour Crossing -
Council will input into planning with New Zealand Transport Agency
regarding the third harbour crossing.
· Downtown Public Spaces - A decision on the
timing of the development of the new public open spaces (with respect to the
implementation of other key infrastructure requirements) which were mandated
for the waterfront as part to the sale and purchase agreement for Queen
Elizabeth Square.
· Waterfront ferry services - Decisions will be required around the configuration, timing
and funding of new infrastructure to allow ferry operations to continue to grow
in line with expectations.
· Te Wero Bridge - A decision to replace the
Wynyard Crossing to ensure connectivity and mitigate increasing operational
expenditure of the current, temporary bridge.
· Cruise Strategy - A decision by Council on the
long-term strategy for cruise and the development of additional infrastructure
to meet long term growth in the industry to ensure that potential economic
benefits are realised. This brings into play the role of Wynyard and Halsey
Wharves in the long term.
· Port Future Study (PFS) - A process to take this forward
· Quay St Seawall - A
decision on the timing, extent and funding of the first stage of the seismic
upgrade to the Quay St Seawall.
· Quay St - Resolution
on the long term vision for Quay St in order to be able to inform and progress
discussions with private developers on how their developments can integrate in
the short term, and how development can be phased over the long term.
27. Many parts of the council family, including Auckland Council,
Auckland Transport, Panuku Development Auckland, along with the New Zealand
Transport Agency, will be involved in leading or contributing to recommended
options for each of these projects. As required, specific projects will
come to the Planning Committee for decision.
Progressive
Cruise Strategy
28. Council has previously
purchased Queens Wharf and funded the repurposing of Shed 10 as a cruise
terminal and event space as the first phase of a progressive strategy to
respond to growth of the cruise industry and in recognition of its importance
to the regional economy.
29. The cruise
industry provides significant benefits to the regional economy of $220 million
annually and nearly 4000 jobs. Ship visits have grown from 40 in 2006 to 104 in
2016 and passenger numbers have increased from 60,000 to 220,000 in the same period.
30. The cruise
industry continues to grow by around nine per cent year on year with the
fastest passenger growth coming from Australia and China – resulting in
larger ships visiting Auckland, which currently cannot be berthed at the
wharves. A lack of fit for purpose infrastructure has the potential to halt
industry growth and reduce the potential economic benefits to Auckland and to
the rest of NZ which depends on Auckland as the hub port.
31. There is an
urgent need to cater for bigger cruise ships – like the Ovation of the
Seas (350m, 4900 passengers) which had to moor in the Harbour this season and
tender passengers to and from the shore. Auckland needs a phased solution for
cruise infrastructure and the cruise industry needs certainty, or it might look
elsewhere. These ships currently only visit Auckland a few times a year, but
this is expected to increase rapidly over the next ten years.
32. Ahead of a decision on longer term cruise infrastructure, a decision
is needed on immediate berthing requirements for larger ships. Timing is
critical to be ready for the 2018/19 cruise season and provide certainty for
future cruise seasons. With consent, procurement and construction taking up to
15 months, a decision is needed soon. Berthing larger ships on Queens
Wharf is the only location available.
33. A series of
mooring options have been assessed for Queens Wharf to ensure functionality,
operability, deliverability and cost effectiveness. Shown in Attachment A, the
options include:
· Sea
Anchors - a series of anchors on the sea bed with floating buoys
· Single
Anchor Leg Mooring - large floating buoys attached to the sea bed
· Vacuum
Mooring - units along the wharf which hold the ship in place
· Wharf
Extension - a half or full wharf extension
· Dolphin
Structure – located off Queens Wharf with and without a gangway
34. Some of these
options are not functional for the size of vessel and the conditions at Queens
Wharf, are not able to be delivered in a timely fashion, or are prohibitively
expensive. Following a risk assessment, Ports of Auckland have concluded that a
dolphin without a walkway is not acceptable operationally.
35. Further
assessment has identified an option which will locate a dolphin structure at
the northern end of Queens Wharf. This option is shown in Attachment B.
36. Further technical, engineering and planning studies for this option
will be required including an independent risk assessment to be undertaken by
the Harbourmaster. Any proposal for a dolphin structure or change to mooring
arrangements will also require sign-off by Maritime NZ, the Ports of Auckland
as operator, and the agreement of cruise lines as users.
37. This inner
dolphin is a mooring arrangement similar to that currently used at Princes
Wharf. Enhanced bollards would need to be structurally independent of Queens
Wharf and effectively comprise a mooring dolphin located adjacent to the
existing wharf. It will also allow the larger ships which currently berth at
Princes Wharf to use Queens Wharf and enable reconfiguration of the ferry basin
for ferry service growth and public open space.
38. The inner
dolphin is the preferred option for Auckland Council, Ports of Auckland,
Auckland Tourism Events and Economic Development, and Panuku. Aspects of the
technical feasibility are still being worked through to understand conditions
acceptable for berthing, and how safety and operating risks can be mitigated.
The works, which include further strengthened bollards at the southern end of
the Wharf, a new fender and some maintenance dredging, could be completed in
time for the 2018/19 cruise season, subject to resource consent approval.
39. The resource
consent for the dolphin will be lodged by Panuku and will replace the current
resource consent lodged in October 2016 which has been on hold for five months.
40. The capital
investment for the dolphin and associated fender and strengthening works at the
southern end of Queens Wharf is estimated to be up to $10 million. Capital
funds will be sourced from existing Auckland Council budgets to be recovered,
over time, through cruise ship passenger levies imposed and collected by Ports
of Auckland.
41. The Cost
Benefit Analysis shows the project has a Net Present Value of $9.8 million (for
three visits per annum) growing to $38.4 million (ten visits per annum) over ten
years.
42. Further
development of cruise infrastructure will require progress on long-term
planning for the port. The Central Wharves Framework (including a long term
strategy for cruise) planned for mid-year relies on progress
on long-term planning for the port.
Consideration
Local
board views and implications
43. An overview
of the waterfront plan refresh was provided at a workshop on 10 March to which
Local Board members were invited. Further consultation with the Waitemata Local
Board will be undertaken during the plan refresh.
Māori
impact statement
44. Through the
Panuku Mana Whenua Forum there has been discussion of the waterfront plan
refresh, the issues and opportunities. Mana whenua have endorsed waterfront
planning goals to clearly articulate the outcomes they are seeking in the plan
refresh, building off the Waterfront Plan 2012.
45. Engagement
has been undertaken in relation to the progressive cruise strategy and the
options for the second phase of infrastructure development. Mana whenua are
aware of the dolphin proposals and options and have indicated an interest in
being involved in any design process, where appropriate.
Implementation
46. The Framework
Plan for Wynyard Quarter will be brought to the Planning Committee later in
2017, preceeded by a workshop. The timing of the Framework Plan for the Central
Wharves will be subject to progress on long-term planning for the port.
47. Subject to
the endorsement of the Planning Committee, the resource consent for the inner
dolphin will be lodged by Panuku.
Attachments
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No.
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Title
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Page
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a⇩ 
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Mooring Options
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13
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b⇩
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Inner Dolphin Section and Plan Views
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15
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Signatories
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Authors
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Brenna Waghorn - Manager Strategic Planning, Panuku
John Smith, Project Manager
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Authorisers
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David Rankin - Director Strategy & Engagement
Jim Quinn - Chief of Strategy
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