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Waitākere
Ranges Local Board
10 December
2020
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United
North Piha Lifeguard Service Incorporated - variation of lease over part of Les
Waygood Park for the use of camping / caravans
File No.: CP2020/19002
Te take mō te
pūrongo
Purpose of the report
1. To
vary the United North Piha Lifeguard Service Incorporated lease, within the
flood prone area of Les Waygood Park, 2A North Piha Road, Piha, to indefinitely
suspend the overnight sleeping, including by camping and caravanning.
2. To
extend the permitted use terms of the lease to allow the club to use the flood
prone area of the leased area for daytime recreational activities and
carparking.
Whakarāpopototanga matua
Executive summary
3. United
North Piha Lifeguard Service Incorporated has a community lease for part of Les
Waygood Park. The lease provides for the operation of a camping ground and
caravan park by the club.
4. The
lease area accommodates 31 sites, utilised for either tenting or caravanning.
5. An
extreme rainfall event on 27 June 2020 caused significant flooding in a leased
campground area at Les Waygood Park, Piha.
6. A
flood risk assessment report for the campground area recommended that the flood
prone area should not be used for overnight camping due to the high health and
safety risk.
7. An
options assessment has been undertaken to determine a recommended option moving
forward.
8. The
recommended option being Option A is to relocate the campground to higher
ground within Les Waygood Park.
9. The
recommended option (or any other effective option) cannot be implemented in the
immediate short-term (i.e. before the peak use period between Christmas 2020
and February 2021) because:
· there
is no identified budget
· resource
consent would be required
· consultation
would be required
· of
design and construction requirements.
10. As a result,
Community Facilities staff recommend that the lease agreement with the United North Piha Lifeguard Service needs to be
either:
i) varied
by mutual agreement to
a) indefinitely suspend
camping and caravanning within the flood prone area of Les Waygood Park, and
b) for the permitted use
in the lease to be varied to allow for the leaseholder to use the flood prone
area of the leased area for daytime recreational activities and carparking, or
ii) if
agreement to vary the lease as outlined in paragraph 8 i) cannot reached with
the club, then the lease be terminated.
11. For either
option, staff would work with the club to identify potential suitable camping
accommodations on public land for those members who provide the patrol service.
This will be done in an effort to mitigate the temporary loss of the campground
area.
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Ngā tūtohunga
Recommendation/s
That the Waitākere Ranges
Local Board:
a) approve
a variation of the lease to United North Piha Lifeguard Service Incorporated
for part of Les Waygood Park, 2A North Piha Road, Piha as follows:
i) indefinite
immediate suspension of overnight sleeping, including by camping and
caravanning, within the flood prone area of the leased area (Attachment A)
ii) extend
the permitted use to allow the club to use the flood prone area of the leased
area for daytime recreational activities and carparking.
b) approve the continuation of camping by United North Piha
Lifeguard Service Incorporated within the Les Waygood
Park, 2A North Piha Road, Piha leased area that is clear of
the flood prone area.
c) confirm
option A, being the relocation of the campground to higher
ground on the site, as the preferred option to address health and
safety risks posed by overnight camping by United North Piha Lifeguard
Service Incorporated in a flood prone area of Les Waygood Park, 2A North Piha
Road, Piha.
d) request
staff investigate the process, cost etc of option A, being the relocation of the campground at Les Waygood Park, 2A North Piha Road,
Piha, to higher ground and report back to the local
board.
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Horopaki
Context
Lease
12. United North
Piha Lifeguard Service Incorporated has a community lease for part of Les
Waygood Park for a term of 10 years commencing 17 November 2010. The lease
provides for one five year right of renewal, effecting final expiry on 16
November 2025. The lease provides for the operation of a camping ground
and caravan park by the club.
13. The lease
area accommodates 31 sites, utilised for either tenting or caravanning.
Clubrooms and accommodation
14. The club has
permanent clubrooms situated at 4 North Piha Road on private property.
Accommodation within the existing clubrooms is limited in terms of numbers of
beds.
15. The club is
currently fundraising to replace the existing clubrooms with a modern
purpose-built facility with expanded accommodation.
16. The club has
advised the council that it will continue to rely on the accommodation provided
through the lease to cater for members and their families.
Flooding history and risk
17. Part of the
leased area within Les Waygood Park has been subject to various historical
flooding events. On 27 June 2020, a serious flood event occurred.
Auckland Council prepared a technical memo titled Les Waygood Campground Flood
Risk Assessment in respect of the flooding issues dated September 2020. The
memo concluded that:
· the
site is subject to rainfall induced flooding. Tide level is not a factor.
· flooding
of the site is expected to be frequent (<2-year average recurrence interval
- ARI) as confirmed by past observations and current estimates of water levels.
· the
predominant cause of flooding of the site is likely to be the level of beach
sand (4mRL – Reduced Level relative to mean sea level) and the size of
the beach channel which frequently changes.
· if
the stream flows exceed the capacity of the box culverts beneath Marine Parade
North or a debris blockage of the culverts occurs, it is possible that water
overtopping the road could enter the campground through the accessway and fill
up the area behind the stop bank.
· the
flood depth of 1.2 metres at the site is expected to occur at a 2 to 5-year ARI
frequency. This depth has a high flood safety risk. Using United Kingdom and
Australian standards injuries or fatalities are likely to occur.
· given
the current and future flood safety risk at this site, it is recommended that
the site not be used for camping.
18. The health
and safety risk from flooding is increased in this campground because people
may be asleep when flooding occurs. Tents or caravans afford minimal protection
from floodwaters. Darkness may also make it more difficult for people to safely
evacuate.
Communications
19. A meeting was
held between council staff and the club on 25 August 2020 where the parties
discussed the recent flood event.
20. On 9
September 2020, the club wrote to the Waitākere Ranges Local Board,
providing details on the history and options relating to council reinstating
the stop bank and the club removing the weeds from the stream.
21. An open
workshop was held with the local board on 10 September 2020. Local board
members provided strong feedback in support of a continued camping presence on
the land and requested staff explore options including:
· relocating
the campground to higher ground on the site
· undertaking
weed control in the stream
· raising
the level of the land in the existing campground.
22. The club
emailed the local board on 10 September 2020, reiterating the points in its
earlier letter and requesting additional options be explored including:
· remediating
the stop bank and stream wall
· undertaking
more frequent retraining of the stream on the beach.
23. On 23
September 2020, Auckland Council issued the club with a Notice of Hazard that
recommended that no camping is undertaken within the flood prone area. This
recommendation was based on the technical memo dated September 2020 and sent to
the club on 16 October 2020.
24. A site visit
to Les Waygood Park was undertaken on 16 October 2020 and attended by local
board members, council staff, club members and a member of the North Piha Water
Supply Society. A robust conversation took place on the various options, with
subject matter experts providing their advice.
25. A Community
Facilities monthly update workshop was held with the local board on 19 November
2020, where the Area Operations Manager notified the local board of the
preliminary outcomes of the options assessment. The recommendation that
overnight camping within the flood prone area should cease as soon as possible
due to the health and safety risk, was highlighted.
26. The local
board requested staff consider whether administrative controls (forecasting /
early warning notifications) could adequately mitigate the risk.
27. The local
board also requested staff work with the club to find alternative locations to
accommodate campers to ensure the lifesaving patrol function of the club over
the upcoming summer season is not unduly affected.
28. On the 24 of
November 2020, Auckland Council wrote to the club informing them that:
· the
technical advice it had received from its engineers that there is a high
likelihood that flooding will occur in the future
· it
is likely that such an event could cause injury or loss of life, and that
council staff view the overall risk as high or critical
· Auckland
Council staff do not consider the current location of the campground on Les Waygood
Park to be a safe place for overnight accommodation.
29. The letter outlined
council staff’s preference for the club and council to mutually agree to
indefinitely suspend camping and caravanning within the flood prone area. This
measure will be put in place while the health and safety risk for people
camping overnight remains high or critical due to the risk of flooding at this
site. This option is preferred over a termination of the lease.
30. On the 2
December 2020, the club responded, outlining its disagreement with
council’s assessment. It is the club’s opinion that the risk of a
flood event at the site is not so great that no amount of monitoring and
management can reduce the risk to an acceptable level where overnight camping
can be allowed.
31. A local board
workshop was held on 3 December 2020 to provide the options assessment and
leasing implications and to receive feedback.
32. On 7 December
2020, council staff met with the club to discuss relocation options within the
leased area and wider Piha public land for the upcoming summer season.
The discussion also addressed the options outlined by council in its letter
dated 24 November 2020. The preferred option is to utilise
land within Les Waygood Park to provide the suitable camping accommodations,
specifically:
· to
utilise six carparks on the southern side of the sealed car park and the
adjoining grass area for caravans
· to
utilise areas of higher ground to the immediate west of the campground for
tenting.
33. On 7 December
2020, written email communication was received from the club confirming it:
a) agrees
to the indefinite immediate suspension of overnight camping and caravanning
within the flood prone area of the leased area
b) agrees
to the varying of the lease to extend the permitted use of the flood prone area
for daytime recreational activities and car parking.
34. The club has
indicated that it may present further information in relation to the technical
memorandum referred to in paragraph 17.
Tātaritanga me ngā
tohutohu
Analysis and advice
Options assessment
35. The options
that have been assessed to cater for the future provision of camping activity
within Les Waygood Park are outlined below:
Option A: relocating the campground to
higher ground on the site
Option B: undertaking weed control in
the stream
Option C: raising the level of the
land in the existing campground
Option D: remediating the stop bank
and stream wall
Option E: undertaking more frequent
retraining of the stream on the beach
Option F: administrative controls
(weather forecasting and early warning notifications).
36. Staff adopted
the same assessment criteria utilised for the Piha Stream (Glenesk Road)
Flooding Assessment in 2018 to enable the comparison of all options. The
criteria is unweighted and allows for objective assessment. A summary of
the criteria is listed, and the outcome is provided in Table 1 below and is
informed by technical advice.
Table 1: Option assessment
table
Assessment Criteria
· Effectiveness:
provides an effective response to the flood safety risk
· Achievability:
is able to be implemented in the short to medium term (within 3 years). Medium
to long term (3 years +)
· Environmental
Impact: helps preserve and protect the natural environment
· Social
Impact: supports a resilient Piha community
· Cost:
is effective for council, landowners and the Piha community given their roles
and responsibilities in response to flooding (low <$25k, medium $25k - $200k
and high $200k+)
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Option D.
Remediating the
stop bank and stream wall
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No impact
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No Impact
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No impact
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Low
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Option E.
Undertaking more frequent retraining
of the stream on the beach
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XX
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XX
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Medium/High
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Option F.
Rely on
administrative controls (weather forecasting and early warning notifications)
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X
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No impact
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No impact
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Low
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X
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XX
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XXX
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Somewhat positive
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Moderately positive
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Highly positive
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Somewhat negative
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Moderately negative
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Highly negative
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Overview of Options
Assessment
Option A: Relocating the
campground to higher ground on the site
37. Staff
recommend Option A - relocating the campground to higher ground on the site as
the most favourable option to pursue as it scores highest against the assessment
criteria.
38. This option
is effective. There is an adjacent area within Les Waygood Park which is at or
above 6mRL (Reduced Level relative to mean sea level). Relocating the
campground (or the areas where overnight accommodation is undertaken) to this
area would be effective as it is high enough to be out of the flood plain area.
39. Option A is
considered to be achievable, but will require a variation to the lease
agreement, design of the area, resource consent and community consultation.
40. The costs and
impacts on the environment are less significant when compared with the other
effective options.
Option B: Undertaking weed
control in the stream
41. This option
is not effective. Although Alligator weed is present in the stream, a site visit
in September 2020 confirmed that the current level of weed is not impeding
stream flows.
42. The technical
advice is that weed control measures will not change the conveyance capacity of
the stream, and as such, this option will not effectively mitigate the flood
risk.
Option C: Raising the level
of the land in the existing campground
43. This option
is effective, but the ground level of the existing campground would need to be
raised to at least, and potentially higher, than the level of the road at the
entrance to the campground. This is approximately 1.5 metres higher than the
existing level of the campground.
44. This option
is not considered to be achievable. Obtaining resource consent for this option
would be very challenging given the type, scale and location of the
construction activity required.
45. This option
did not score favourably for environmental impact. It would likely reduce the
conveyance capacity of the stream and push flows towards Marine Parade North,
creating other issues. It would involve significant modification to the land
and there would also be significant construction effects within a sensitive
natural environment and for the local community.
46. Option C
would be the costliest of the effective options to implement given the scale of
the works required and the barriers to obtaining resource consent.
Option D: Remediate the stop
bank and stream wall
47. Option D is
not considered to be effective. The existing, partially damaged, stop bank has
a height of approximately 4.3-4.4mRL and the observed/measured flood level from
the 27 June 2020 event was 5mRL. In a similar event the stop bank will be
breached.
48. In addition
to the above, there is the risk of debris blocking the road culverts and
overtopping the road, which would cause water to enter the campground behind
the stop bank.
Option E: Undertake more
frequent retraining of the stream on the beach
49. To
effectively mitigate the flood risk to the campground would require a wider,
deeper stream channel across the beach face (approximately 20 metres wide x
1-1.5 metres deep).
50. Further
channel dredging would also be required upstream of the beach, where there is
sand/silt built up along the stream channel towards the campground.
51. Due to the
dynamic nature of the wide and elevated ‘dry high tide’ beach area
over which the channel extends, maintaining the channel dimensions would
require significant and frequent stream maintenance works.
52. Windblown
sand from across the dry beach area would fill in the channel, reducing
dimensions.
53. Large swell
events and storm surges are likely to compromise the channel towards the high
tide area. This would reduce the effectiveness of the channel and increase
flood risk.
54. The above
factors will compromise the effectiveness of the option, potentially at very
short notice and at irregular intervals.
55. Option E
scored relatively low in terms of achievability and would require a complex
resource consent to be granted.
56. Option E did
not score well in terms of the environmental impact, as it would require the
operation of large machinery in an area where endangered Dotterels nest. It
would also entail works in the stream channel, which would have the potential
to damage aquatic fauna (Inanga and other native freshwater fauna).
57. The costs of
option E would be medium in the short term. However, given ongoing works in
perpetuity to ensure the safety of those in the campground, these costs would
become high over time.
Option F: Rely on
administrative controls (weather forecasting and early warning notifications)
58. This option
is not considered to be suitably effective. Warnings systems were considered
during the assessment of options for the Piha Stream (Glenesk Road) Flooding
Assessment in 2018. This concluded:
I. “In
summary, there is not a standard localised warning system that would be useful
in a flash flood catchment, although other more innovative approaches are being
explored.
II. In
general, whilst a warning system may offer some reduction to the risk of people
being exposed to dangerous water depths and velocity in the short term, other
operational factors impact its effectiveness as a long-term standalone option.
III. These
factors include the availability and reliability of communication channels,
acceptance and adherence to the recommended actions following an alarm by the
community and individuals and the on-going communication of the risks to name a
few…any overnight camping activities such as tenting or caravans within
the high hazard area should not be considered even with alarms in place.”
59. Piha, like
other parts of the Waitākere Ranges, has its own local weather patterns
which are difficult to predict and can occur with little warning.
Lease
60. The initial
10-year term of the lease to United North Piha Lifeguard Service Incorporated
expired on 16 November 2020. The lease in part of Les Waygood Park
provides for one right of renewal of five years. The renewal, if granted, will
extend the lease for the period 17 November 2020 until 16 November 2025.
61. The lease
renewal is programmed in the Waitākere Ranges Local Board Work Programme
for 2020/2021 (Item 473). The renewal item has been placed on hold due to the
flood risks and corresponding health and safety risks associated with overnight
camping.
62. Under the
terms of the lease, the renewal is conditional on:
· the
club having observed and complied with the terms of the lease
· the
achievement of the community objectives as stipulated in the lease
· council,
in its sole discretion, being satisfied that in the public interest there
should be no other activity that should have priority over the current use
· council,
in its sole discretion, being satisfied that the use of any buildings is not
required for any other purpose
· the
club serving the required notice of its intention to exercise its right of
renewal.
63. Any renewal
requires council to undertake a strategic assessment to evaluate the current
use against any potential alternative uses.
64. Consequently,
having regard to the recommendations of the technical memo and the identified
health and safety risks, council could refuse to renew lease and determine that
an alternative use should have priority.
Lease Options
65. The
indefinite immediate variation of the lease to suspend overnight sleeping,
including by camping and caravanning, within the flood prone area. In addition,
where the lease is proposed to be varied, consideration will subsequently need
to be given to the granting of a lease renewal.
66. Council could
pursue a new lease with the club when an alternative suitable site is
identified to relocate the campground to, or when the health and safety risk
for people camping overnight has been adequately mitigated.
Summary statement on the
options
67. Staff
recommend Option A - Relocating the campground to higher ground on the site as
the most favourable option to pursue, as it scores highest against the
assessment criteria.
68. To give
effect to this recommendation, staff propose that the local board:
i. Vary the
lease to immediately suspend overnight sleeping, including by camping and
caravanning, indefinitely within the flood prone area, whilst the health and
safety risk for people camping overnight remains high or critical, due to the
risk of flooding at this site (subject to agreement by the club), or;
ii. Terminate the
lease.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
69. Te
Tāruke-ā-Tāwhiri: Auckland’s Climate Action Plan sets out
two core goals:
· climate
mitigation: to reduce greenhouse gas emissions (GHG) by 50 per cent by
2030 and achieve net zero emissions by 2050
· climate
adaptation: to be resilient and adapt to the impacts and effects of climate
change by ensuring we plan for the projected changes.
70. The effects
of climate change are likely to increase the frequency and intensity of flood
events.
71. Relocation of
the campground to higher ground within the site, will remove the risk posed by
people sleeping within a flood prone area
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
72. Infrastructure
and Environmental Services views have been expressed in the technical advice
provided to support the report and recommendation.
73. Parks Sports and Recreation have been fully briefed on the flooding
situation and support staff investigating the preferred option of relocating
the campground to higher ground within Les Waygood Park.
74. The proposed lease has no identified impacts on other parts of the
council group. The views of other council-controlled organisations were not
required for the preparation of this report’s advice
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
75. Council staff sought the views of the local board at workshops on 10 September, 19 November, and 3 December 2020. A site visit
took place on 16 October 2020.
76. The local board indicated strong support for the club, its services
to the community and the continuation of camping within the Les Waygood Park
area, as outlined in paragraph 21 and 26.
Tauākī whakaaweawe
Māori
Māori impact statement
77. Auckland
Council is committed to meeting its responsibilities under Te Tiriti o Waitangi
and its broader obligations to Māori.
78. These
commitments are articulated in the council’s key strategic planning
documents, the Auckland Plan, the Long-term Plan 2012-2022, the Unitary Plan,
Whiria Te Muka Tangata Māori Responsiveness Framework and Local Board
Plans.
79. Any
significant physical changes to the coastal landform and the leasing of
additional land at Les Waygood Park would require consultation with mana
whenua.
Ngā ritenga
ā-pūtea
Financial implications
80. The
recommendation to immediately suspend camping and caravanning indefinitely
within the flood prone area of Les Waygood Park, 2A North Piha Road, Piha, held
in lease by United North Piha Lifeguard Service Incorporated has no financial
implication.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
81. Auckland
Council has legal duties as the owner of the land. Council has advice that
there is a high risk of flooding in the existing campground that could cause
injuries or loss of life to those using the land. Council is obliged to take
steps to effectively manage this risk.
82. The campground generally receives its greatest occupancy over the
summer period. In particular, the period between 25 December and early February
is the peak use period.
83. The
club has verbally advised council staff that the campground is used as
accommodation by some active lifeguard patrolling members. If the campground
cannot be used it will make it more difficult for the club to provide a patrol
service.
84. None
of the effective options, or the recommended option identified from the
technical memo, can be achieved in the immediate short-term (i.e. before the
peak use period between Christmas 2020 and February 2021), meaning the high
flood safety risk remains.
85. There is currently no budget source identified to implement any of
the effective options which will incur consenting, consultation, design, and
construction costs.
Ngā koringa ā-muri
Next steps
86. Subject to
approval of the variation to immediately suspend overnight sleeping, including
by camping and caravanning, within the flood prone area of the leased area,
staff will prepare the necessary documentation.
87. Subject to
the suspension of overnight sleeping, including camping and caravanning, within
the flood prone area of the leased area, staff will work with the club to implement the temporary accommodations as outlined in paragraph
32. This will be done in an effort to mitigate the temporary loss of the
campground area, given the role it plays in providing accommodation to
lifeguards who provide a patrol service.
88. Subject to
the suspension referred to in paragraph 87, staff may seek local board LDI
operational budget to give effect to alternate accommodations.
89. Subject to
approval of option A, staff will work with the local board to determine a
budget which would enable feasibility planning to continue.
Ngā tāpirihanga
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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Area of immediate suspension of overnight sleeping
including by camping and caravaning
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17
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Ngā kaihaina
Signatories
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Authors
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Donna Cooper - Community Lease Advisor
John Cranfield - Manager Area Operations
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Authorisers
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Rod Sheridan - General Manager Community Facilities
Adam Milina - Local Area Manager
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