Agenda of Papakura Local Board - Wednesday, 28 May 2025

No.	Title	Page
a ⇩	Auckland Transport Update for the Papakura Local Board – May 2025	15

No.	Title	Page
a ⇩	Kōkiri - Setting priorities for Auckland Transport project and programme engagement	33

No.	Title	Page
a ⇩	Report Attachment A - Scheme Plan	43
b ⇩	Report Attachment B - Location Map	45

Papakura Local Board

28 May 2025

Recommendations and next steps for service property optimisation and arts services at 8-10 Averill Street, Papakura

File No.: CP2025/01649

Te take mō te pūrongo

Purpose of the report

1. To approve detailed planning to co-locate arts services currently provided at Papakura Art Gallery to the Accent Point building (located at 209 Great South Road).

2. To approve the disposal of 8-10 Averill Street, Papakura (current location of the Papakura Art Gallery) using service property optimisation. The net sale proceeds are to be reinvested into the co-location of arts services. Any residual proceeds would go towards a list of prioritised projects in the local board area.

Whakarāpopototanga matua

Executive summary

3. 8-10 Averill Street, Papakura (‘the property’), is a 1546m² site from which the council-managed Papakura Art Gallery is operated (refer Attachment A for images).

4. Te Poari ā-Rohe o Papakura / Papakura Local Board requested that the property be investigated as a potential service property optimisation opportunity.

5. The findings report (Attachment B) investigates the ongoing requirement for arts services in the Papakura area. Papakura Art Gallery offers a unique exhibition and arts programming service. It provides essential local arts and culture services that should be maintained.

6. Visitor numbers to Papakura Art Gallery are low, with 2195 visits in the 2023/2024 financial year.

7. Papakura Art Gallery cost the local board $201,742 in annual operating costs last year. Council’s renewal modelling also indicates there will be $592,278 in renewal required between 2025 and 2035.

8. The property has underlying Crown ownership. Due to this, the local board’s ability to retain the net sale proceeds is dependent on the Department of Conservation’s (DOC) Reserve Revocation and Disposal Policy 2014 criteria being met.

9. DOC has indicated that the policy allows for a minimum of 50 percent of net sale proceeds to be retained by local authorities that meet the criteria. This is subject to investigation and confirmation from DOC, which requires a resolution from the local board to progress.

10. The recommended option for the continuation of arts services in Papakura is to proceed with service property optimisation. This will facilitate arts services being co-located at the Accent Point building, the home of the Sir Edmund Hillary Library and the Papakura Museum.

11. Independent valuation advice confirms the financial viability of the proposed sale subject to the Crown agreeing that funds can be retained.

12. The library and venue hire at Accent Point is well used by the community. However, the Community Facility Network Plan provision guidelines indicate there is excess of around 500m² of library space at Accent Point. The estimated 200m² of space needed for arts services could be accommodated within the library footprint.

13. The benefits of co-location of arts services into Accent Point include:

· the value to the community of the co-location of complementary services

· a central and accessible space that is open and staffed for more hours

· the opportunities for improved activation of arts services

· better value for money for an existing investment by the local board.

14. The co-location of services at Accent Point will be further investigated through a service and spatial design process in the next phase, should the local board resolve to progress the investigation.

15. Should the local board be unable to approve the recommendations at the next business meeting, staff will deem that the local board’s direction is to not progress the matter. The investigation into the disposal of 8-10 Averill Street, and integration of art services into Accent Point, will be closed.

Ngā tūtohunga

Recommendation/s

That Te Poari ā-Rohe o Papakura / Papakura Local Board:

a) whakaae / approve, the disposal of 8-10 Averill Street, Papakura, being Allotment 206 Section 11 Village, Papakura, held in NA665/77, using the service property optimisation framework, pending the satisfactory conclusion of any required statutory processes

b) tuhi ā-taipitopito / note that 8-10 Averill Street, Papakura has underlying Crown ownership, and the ability of Te Poari ā-Rohe o Papakura to retain the net sale proceeds is dependent on meeting the Department of Conservation’s Reserve Revocation and Disposal Policy 2014 criteria

c) tuhi ā-taipitopito / note that the Department of Conservation will not be able to confirm the process for Te Poari ā-Rohe o Papakura to retain the net sale proceeds, until a resolution is passed by the local board to approve disposal through the service property optimisation process

d) whakaae / agree that if, after the Department of Conservation completes its review and indicates that Te Poari ā-Rohe o Papakura is not able to retain at least 50 per cent of the net sale proceeds, the disposal is not progressed

e) whakaae / approve reinvestment of the net sale proceeds from the disposal of 8-10 Averill Street, Papakura, into the co-location of arts services, with any residual proceeds going towards the prioritised projects below, noting that there will not be sufficient funds to complete the entire list of approved projects:

· Ōpaheke Park: sports field drainage improvements opposite the toilet facilities

· Hingaia Park: concept plan

· Bruce Pulman Park: destination playground on Kuaka Drive

· Keri Downs Park: shared path network to connect to Redcrest Avenue

· Ray Small Park: sports field drainage improvements

· Smiths Avenue Reserve: concept plan stage two

f) tuhi ā-taipitopito / note public consultation will be completed in accordance with the reserve revocation process set out in the Reserves Act 1977 for 8-10 Averill Street, Papakura.

g) whakaae / agree that the final terms and conditions of the sale and purchase agreement be approved under the appropriate delegation

h) tuhi ā-taipitopito / note that the local board has delegated decision making over disposal of local service property and reinvestment of sale proceeds, in accordance with the service property optimisation framework adopted by the Governing Body

i) tuhi ā-taipitopito / note that the local board has allocated decision making over the service requirements, location, design, build and fit out of local arts and culture facilities, and the use of local arts and culture facilities including changes of use, and are therefore the ultimate decision maker over the future of the Papakura Art Gallery

j) whakaae / approve the commencement of the planning for the co-location of arts services in the Accent Point building, noting that funding will be allocated closer to the finalisation of the sale.

Horopaki

Context

16. The Papakura study area defined for this project is made up of 32,988 residents as of the 2023 Census^{^[1]}.

Image 1 Map of Statistical Area 2s of Papakura study area

17. The area has a young population, with a five percent higher proportion of residents under 15 years of age compared to the Auckland average.

18. The study area shows a higher proportion of Māori (32 percent) and Pacific (25 percent) residents compared to the Auckland average.

Property background

19. In 1935, 8-10 Averill Street was vested in trust for municipal purposes in the Papakura Town Board, pursuant to the Public Reserves, Domains and National Parks Act 1928. It is held under the Reserves Act 1977 and has underlying Crown ownership.

20. In 1987 the Papakura District Council resolved to sell the property. This was not progressed, as at the time the funds from a sale would have reverted to the Crown. In 2014, the Minister of Conservation advised a change in policy, whereby council may retain up to 100 percent of the net sale proceeds after the Crown’s internal costs to process the disposal have been met.

21. While the property is 1546m², a right of way easement, providing access to the adjacent owner’s roof top car park, reduces the developable area to approximately 280m². Refer Attachment A for images of the site.

Arts services at Papakura Art Gallery

22. Papakura Art Gallery, located at 8-10 Averill Street, is a council-led arts facility offering exhibitions and art programmes for the community.

23. Although a 2019 survey of visitors indicated satisfaction with its services, visits to Papakura Art Gallery are historically and currently very low, with 2195 visits in the 2023-2024 financial year.

24. The building was not a purpose-built art gallery and has been retrofitted. The building is in good condition for its age and use. Council’s renewals modelling indicates that there will be around $592,278 in renewals required between 2025 and 2035.

25. In financial year 2023/2024, Papakura Art Gallery had an annual operating cost of around $58,706 for repairs, maintenance and utilities. Programming costs were $40,000 and staff costs were $95,927. That means it cost the local board around $92 per visit.

26. The Papakura Local Board Plan 2023 includes objectives and key initiatives to strengthen arts and culture. The plan also states a requirement for services and facilities to meet the needs of the community now and in the future.

27. The strategic context of the 10-year budget 2024-2034 underscores the importance of a new investment approach that focusses on operating a cost-effective service network. Future trends in service delivery indicate a focus on co-located or integrated services.

28. The Community Facilities Network Plan does not outline provision guidelines for local arts and culture spaces. Provisional principles in the plan indicate that local arts and culture services should enable local expression in arts and culture and integrate as appropriate into current community facilities.

29. Papakura Art Gallery offers a unique service as an asset-based dedicated exhibition and visual arts space in the network of community facilities in Papakura. The local board has indicated its support for the continued need for these services now and in the future.

Previous investigation into service property optimisation

30. Te Poari ā-Rohe o Papakura requested that the property be investigated as a potential service property optimisation opportunity.

31. The service property optimisation framework was approved by the Finance and Performance Committee in March 2015 (FIN/2015/16). Service property optimisation seeks to maximise efficiencies from service assets, while releasing part, or all of a property for sale or development. The sale proceeds are reinvested back into the service asset or local projects.

32. The Governing Body has delegated to local boards decision-making responsibilities that include the disposal of local service property and reinvestment of sale proceeds. This is to be done in accordance with the service property optimisation approach.^{^[2]}

33. The local board has allocated decision making over the location, design, build and fit out of local arts and culture facilities. The local board also has decision making power over the use of local arts and culture facilities, including changes of use.^{^[3]}

34. Staff investigated the site and analysed options for the provision of arts services in Papakura. Staff brought a business report and findings report to Te Poari ā-Rohe o Papakura in March 2024 (CP2023/19015).

35. The report recommended to divest 8-10 Averill Street by way of service property optimisation. The report also recommended that arts services be co-located in the Accent Point building, where the Sir Edmund Hilary Library and Papakura Museum are located.

36. The local board deferred decision making, resolving to “defer the consideration of this matter until the board discusses the services to be provided at Accent Point in further detail” (PPK/2024/23).

37. Following the March 2024 business meeting, staff investigated the reasons for the deferment. It was identified that one of the reasons for deferment was the local board’s desire to have assurance over the retention of sales proceeds from the disposal of 8-10 Averill Street, Papakura using service property optimisation. The local board also wanted the assurance that Accent Point is a suitable location for a future integrated arts service offering.

38. Staff continued to investigate the property to address local board concerns. At a workshop in November 2024, staff provided options to the local board to address these concerns. The findings report has also been updated with additional information (refer Attachment B).

Tātaritanga me ngā tohutohu

Analysis and advice

Options development

39. A long list of ten options to continue to deliver arts services in Papakura has been developed.

40. Options were informed by workshops with the local board and through assessment of potential sites for co-location of arts services. The assessment identified Level 3 at Accent Point (the current home of Sir Edmund Hillary Library and Papakura Museum) as the only suitable location for co-location.

41. Staff financially assessed the ten options for the future of arts services in Papakura, including estimated operational (opex) and capital (capex) costs over a 15-year period.

Table 1 Options for arts services in Papakura

Option	Title	Description	Cost over 15 years (opex + capex)
1	Status quo	Arts services continue to be delivered at 8-10 Averill Street	$3.6 million
2	Reduce hours	Arts services continue to be delivered at 8-10 Averill Street with reduced hours	$3.2 million
3	Increase hours	Arts services continue to be delivered at 8-10 Averill Street with increased hours	$5.5 million
4	Community led	Arts services continue to be delivered at 8-10 Averill Street led by a community partner	$2.9 million
5	Co-locate art services	8-10 Averill Street becomes a community lease and arts services are co-located into Accent Point	$4.4 million
6	Art broker	8-10 Averill Street becomes a community lease and arts services funding redirected to an arts broker	$2.9 million
7	Art grants	8-10 Averill Street becomes a community lease and arts services funding redirected to arts grants	$2.9 million
8	Other local board priorities	8-10 Averill Street becomes a community lease and funding redistributed to other local board priorities	$1.2 million
9	Service property optimisation and arts co-location (2 years)	Service property optimisation of 8-10 Averill Street after two years and arts services co-located into Accent Point	$1.9 million
10	Service property optimisation and arts co-location (10 years)	Service property optimisation of 8-10 Averill Street after 10 years and arts services co-located into Accent Point	$2.6 million

42. Staff identified critical success factors to determine the best option for the future of arts services in Papakura. Each of the ten options has been assessed against the critical success factors, rating them in strong, medium or weak alignment.

Table 2 Critical success factor assessment of options

Critical success factors	One	Two	Three	Four	Five	Six	Seven	Eight	Nine	Ten
Strategic fit
Business need
Value for money
Supplier capacity and capability
Affordability
Achievability
Enable our communities
Focus on communities that need us most
Fit for purpose
Population growth
Support local board priorities
Total

Strong Medium Weak

43. Option nine (disposal of the property via service property optimisation and co-location of arts services into Accent Point after two years) is the lowest cost option that allows for an asset-based continuation of arts services in Papakura. The delivery of arts services through this option is estimated to cost $1.9 million over the next 15 years.^{^[4]}

44. Option nine will include some reduction in capex renewal requirements. Cost savings from the opex costs for annual maintenance and utilities costs for Papakura Art Gallery will also be achieved.

45. Option nine has been selected as the best option due to the following benefits:

· aligns with local board plan outcomes

· least expensive option that still provides arts services

· may increase utilisation of art services through increased visibility

· efficient use of a third-party lease

· realizes opportunity to undertake service property optimisation

· continued investment in arts and culture services in Papakura.

46. This option includes the following assumptions:

· local board continues to support and fund arts services through their opex budget

· both the current location for Papakura Art Gallery and Accent Point can remain in service during the co-location planning phase and through the disposal process

· staff will investigate a potential community-led model of delivery at Papakura Art Gallery, as directed by the local board

· at least 50 per cent of net sale proceeds can be retained by the local board.

Co-location of arts services into Accent Point

47. Accent Point is a third-party leased space located at 209 Great South Road. It contains council-aligned services such as the Sir Edmund Hillary Library and the Papakura Museum

48. The library and venue hire are well used by the community. In the 2023/2024 financial year, the library had 44,204 visits, and the venue hire had 3588 visits representing 962 booked hours.

49. Engagement with the Community Wellbeing department and site tours of Accent Point, indicate that there is likely to be underutilisation of some spaces in Accent Point. These spaces could be reconfigured for the co-location of arts services.

50. The Community Facilities Network Plan guidelines indicate that even with 30 years of population growth, there is an excess of around 500m² of library space within Accent Point (refer Image 2).

Image 2 Spaces within Accent Point Level 3 included in provision analysis highlighted in blue

51. Benefits of co-location at Accent Point include:

· increased access for the community to arts services in Papakura

· being located with other council-aligned services

· potential to be open with more staffed hours, pending confirmation of delivery model of the future gallery

· synergies and opportunities for service providers to increase activation of space through the co-location of arts services into the site

· shared site amenities and a more cohesive customer experience

· value for money to the local board through the improved use of space in an existing council asset.

52. The co-location of services and configuration of space will be further investigated in the next phase of the project, with the local board as the decision-maker.

53. Options for approximately 200m² of gallery space will be explored through engagement with stakeholders and a design process.

54. Corporate Property is investigating Accent Point as a potential location for a future local board office. Staff have confirmed through a site visit to Accent Point with local board members on 29 January 2025, and previous engagement with Corporate Property staff, that both the gallery and potential local board office interests can be accommodated at Accent Point.

55. A plan of Level 3 Accent Point indicates in which areas arts services might be located (refer Image 3). The exact location will need to be confirmed through a service and spatial design process in the next phases.

56. Staff have estimated that approximately 200m² may be required for a future gallery and arts space. This is based on the current space at the current location of Papakura Art Gallery.

57. The gallery (shown separately in orange for scale) could be accommodated in any part of the library (blue) area. Parts of the lobby (green) area could also be considered if required.

58. The blue library footprint includes the void area that is currently underutilised and measures approximately 300m².

Image 3 Footprint of a future gallery space in Accent Point Level 3

Service property optimisation

59. 8-10 Averill Street has underlying Crown ownership. Due to this, the ability of Te Poari ā-Rohe o Papakura to retain the net sale proceeds is dependent on DOC’s Reserve Revocation and Disposal Policy 2014 criteria being met.

60. DOC has indicated that the policy allows for a minimum of 50 percent of net sale proceeds to be retained by local authorities, in circumstances such as those applicable to 8-10 Averill Street. This is subject to investigation and confirmation from DOC.

61. An independent valuation received in December 2022 confirmed the financial viability of the disposal of the property using service property optimisation. The valuation considered the impact of the existing encumbrance on the property. A high-level overview of the current market value was presented to Te Poari ā-Rohe o Papakura in December 2023.

62. Net sale proceeds will be retained by Te Poari ā-Rohe o Papakura to be reinvested into the co-location of arts services. Any remaining proceeds will be put towards the following projects listed below in order of importance. The list is based on priorities workshopped with Te Poari ā-Rohe o Papakura in December 2023.

· Ōpaheke Park (sports field enhancement drainage opposite the toilet facilities)

· Hingaia Park (concept plan)

· Bruce Pulman Park (destination playground Kuaka Drive)

· Keri Downs Park (shared path network to connect to Redcrest Avenue)

· Ray Small Park (sports field drainage)

· Smiths Avenue Reserve (concept plan stage two).

Tauākī whakaaweawe āhuarangi

Climate impact statement

63. The property is not flood prone nor is it subject to any other environmental instabilities.

64. With the co-location of arts services to Accent Point from the current location of Papakura Art Gallery, there is one less asset for council to maintain. Any future redevelopment may result in short or long-term climate impacts. These will be assessed and mitigated through council’s standard regulatory processes.

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

65. Staff from relevant council business units and Council Controlled Organisations have contributed to the investigation, including Policy, Parks and Community Facilities, Community Wellbeing, Finance and Business Performance and Eke Panuku.

66. Papakura Art Gallery will remain in service while staff investigate the future delivery model and plan for the co-location of arts services in Accent Point.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

67. Te Poari ā-Rohe o Papakura first indicated its support for utilising service property optimisation of this property at a workshop in May 2023. The local board gave additional direction at workshops in October and December 2023, and November 2024. The local board indicated its continued interest in using the service property optimisation process.

68. The proposed disposal of the property will likely be of interest to the community, as the location and delivery method of arts services in the local board area will change.

69. The community will be given an opportunity to provide their views on the proposed reserve revocation through the public consultation process prescribed in the Reserves Act 1977.

70. Papakura Art Gallery will continue to operate out of the current facility until the property is sold. This is anticipated to take at least two years.

71. As the right of way easements will transfer with the site, the public will continue to be able to access the Selwyn Centre’s car park without restriction.

Tauākī whakaaweawe Māori

Māori impact statement

72. There is currently a higher proportion of younger and Māori residents in the study area, compared to Auckland.

73. One of Papakura Art Gallery’s core objectives is to support the development of Māori arts and artists in Papakura. The gallery also strives to facilitate meaningful connections that encompass Te Ao Māori. These objectives should be considered through the planning for the co-location of arts services.

74. The detailed planning of the service, and spatial design for co-location of arts services at Accent Point, will involve engagement with iwi groups. If the service property optimisation process is approved, engagement with iwi groups will be undertaken to notify them of the opportunity of sale and seek feedback on the proposal. Iwi will also be engaged as part of the reserve revocation process.

Ngā ritenga ā-pūtea

Financial implications

75. Independent market valuation advice, confidentially shared with the local board, considered the existing right of way easements encumbering the property. The assessed open market value confirms the financial feasibility of the proposal despite the constraints. As the property will not be taken to the market for several years, it is noted that the value will change and will need to be reassessed at the time of sale.

76. In financial year 2023/2024, the total net opex to operate Papakura Art Gallery was $201,742. Council’s renewals modelling indicates that there will be a requirement for around $592,278 in renewals to keep the current Papakura Art Gallery building fit-for-purpose between 2025 and 2035.

77. The recommended option will allow the local board to avoid some costs in the future. Costs avoided include the renewals costs for the current Papakura Art Gallery building and the approximately $42,000 annual opex costs currently being spent on utilities, repairs and maintenance.

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

78. The following table outlines the main risks and mitigations associated with the recommended option.

Type of risk	Risk	Risk level	Mitigation
Operational	Impacts on the delivery of services at 8-10 Averill Street and Accent Point during the period of optimisation and co-location of services.	Low	This can be mitigated through detailed planning of the delivery of any physical works to co-locate services. Ensure co-location planning provides the appropriate spatial requirements and operational requirements to deliver services.
Operational	Council is unable to dispose of 8-10 Averill Street due to underlying Crown ownership and/or reserve revocation process.	Medium	Staff will need to work with DOC to ensure the criteria set out in its asset disposal guidelines is met. Auckland Council and Eke Panuku will liaise with the local board accordingly if this changes how the proceeds of sale can be allocated to ringfenced projects.
Operational	Corporate Property’s local board office optimisation programme is investigating co-location into Accent Point which could impact available space for arts services.	Low	Staff have confirmed that Corporate Property is considering areas of Accent Point that will not impact the future gallery space. Staff will continue to work closely with Corporate Property and communicate with the local board any potential impacts that arise.
Financial	Market value will have shifted by the time the statutory processes have been completed and could be more or less than the current assessment.	Medium	Updated valuation advice will be sought as part of the ‘go to market’ strategy. If the sale price is less than the minimum expected, Auckland Council and Eke Panuku will liaise with the local board on next steps.
Financial	As Accent Point is a commercial lease, there is a risk that any major works will need landlord approval.	Low	This can be mitigated by working with the Eke Panuku Commercial Leasing team to ensure that the landlord is well informed of the project and intentions for building usage.
Financial	Costs for co-location of arts services at Accent Point are higher than anticipated.	Low	This can be mitigated through clear communications to the architect about the total construction budget available.
Reputational	Internal impact on staff and space at Papakura Art Gallery and Accent Point through the optimisation and co-location of services.	Low	Community Wellbeing will ensure communications and processes for change are initiated with affected staff.
Reputational	Community members may be displeased with the proposed sale of 8-10 Averill Street (including reserve revocation) and/or the co-location of services into Accent Point.	Medium	Community engagement will take place through the next phases of the project and will outline the benefits to be achieved. There will be an opportunity for the public to have their say regarding the lifting of the reserve status through the public consultation process.

Ngā koringa ā-muri

Next steps

79. Subject to the resolutions of the local board, Eke Panuku will:

· commence the required statutory process including liaising with DOC on the retention of net sale proceeds

· undertake public consultation to progress the reserve revocation in accordance with the Reserves Act 1977

· once the required statutory processes have been completed, take the property to market with commercial terms and conditions to be executed under the appropriate delegation.

80. The next step of service and spatial design planning for the co-location of art services into Access Point requires the services of an architect. The local board must resolve to continue with the co-location investigation, and closer to the finalisation of the sale, funding will need to be allocated for design.

81. Papakura Art Gallery will remain in service and funded through the Papakura Local Board work programme while staff investigate the future delivery model, and plan for co-location of art services. Staff will return to the local board for further decision-making regarding detailed planning for the co-location into Accent Point and partnership opportunities.

82. Should the local board be unable to approve the recommendations at the next business meeting, staff will deem that the local board’s direction is to not progress the matter. The investigation into the disposal of 8-10 Averill Street and integration of art services into Accent Point will then be closed.

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	Attachment A 8-10 Averill Street property overview	61
b ⇩	Attachment B Findings Report V2	63

Ngā kaihaina

Signatories

Authors

Andrew Elcoat - Strategic Property Specialist, Eke Panuku

Michelle Ball - Service and Asset Planning Specialist

Authorisers

Angela Clarke - Head of Service Investment & Programming

Kim Taunga - Head of Community Delivery

Letitia Edwards - Head of Strategic Property Optimisation - Eke Panuku Development Auckland

Taryn Crewe - General Manager Parks and Community Facilities

Manoj Ragupathy - Local Area Manager

Whakarāpopototanga matua

1. Executive summary

This report investigates the best approach for the future of arts services currently offered at Papakura Art Gallery, located at 8-10 Averill Street in Papakura.

The investigation found that there is an ongoing requirement for art services in the Papakura area and that these services are responding to current and future community demand. Papakura Art Gallery offers unique exhibition and arts programming services in Papakura, however visitor numbers are low.

Although 8-10 Averill Street has underlying Crown ownership and easements that limit options for the site, Eke Panuku has determined that disposal is a viable option. The recommended option for the continuation of arts services in Papakura is to proceed with service property optimisation of 8-10 Averill Street and to co-locate arts services into Accent Point alongside the Sir Edmund Hillary Library at 209 Great South Road.

The benefits of co-location into Accent Point includes better integration of complementary services, a more accessible space, a staffed building, and better value for money for an existing investment by the local board. Any sale proceeds from the sale of 8-10 Averill Street are recommended to be ringfenced toward co-location of arts services and any residual proceeds are to go towards identified projects in reserves and open spaces.

Te aronga, te kōrahi me ngā whakaawenga

2. Purpose, scope, and key drivers

Purpose

The purpose of this investigation is to understand if service property optimisation of 8-10 Averill Street is feasible, and to understand the provision of community art services in Te Poari ā-Rohe o Papakura / Papakura Local Board. This investigation will inform recommendations for the local board’s consideration of the future of the facility and community art services.

· Image 1 Papakura Art Gallery

Image of front doors to Papakura Art Gallery

Project scope

This assessment includes:

· current delivery of arts services at Papakura Art Gallery

· current state of the building at 8-10 Averill Street

· the feasibility of using service property optimisation of 8-10 Averill Street

· analysis of options for delivery of arts services in Papakura.

Key drivers

There are two key drivers for this investigation.

1. Community Facilities Network Plan (CFNP) Action Plan – Action 82

In 2015 the Community Facilities Network Plan, and accompanying Action Plan, were approved by the Regional Strategy and Policy Committee. Action 82 in the action plan was assessed as a priority and outlined the need to “investigate opportunities to improve existing facilities in Papakura, including Massey Park Grandstand, Elizabeth Campbell Hall, Takaanini Hall, Papakura (Sir Edmund Hillary) Library meeting room, Smiths Avenue Clubrooms, Hawkins Theatre, and Papakura Art Gallery.”

Action 82 was completed in 2016 with the creation of the Papakura Takaanini Community Needs Assessment and Library/Community Facility Location Analysis report. The report recommended the development of a new library and community space in Takaanini (completed in 2019) and service improvements for existing facilities that are underutilised and not fit-for-purpose within the local network.

2. Service property optimisation investigation

In January 2020, Te Kaunihera o Tāmaki Makaurau / Auckland Council received an unsolicited development proposal from a property broker proposing the redevelopment of the Selwyn Centre Mall located at 182-188 Great South Road, 4-6 Averill Street, and the council-owned property located at 8-10 Averill Street. After the broker indicated it was no longer interested in the property, Te Poari ā-Rohe o Papakura confirmed its interest in Eke Panuku continuing to investigate the site as a potential service property optimisation opportunity.

Te huarahi i whai pārongo ai mātou

3. How we got our information

Desktop research

Desktop research was completed to provide an understanding of local demographics, community needs, existing service provision, and the condition of the art gallery.

The review included:

· plans and strategies

· demographics and population forecasts

· service detail and usage data

· building condition assessments

· financial data

· land status and site information

· research and previous engagement on the council’s role in arts services.

Stakeholder engagement

A project team was established in 2021, with representation from council departments including Community Wellbeing, Eke Panuku, and Parks and Community Facilities. The project team gave input throughout the project including information on the services provided in the community, the facilities in scope, and they participated in options development and assessment.

Staff surveyed key stakeholders and arts organizations in Papakura in 2022, with eleven organizations participating.

Preliminary and informal conversations took place with some iwi representatives in the area about arts services in Papakura. More in-depth engagement with iwi will take place in later stages of the project.

Te horopaki whai rautaki

4. Strategic context

Policies and plans

Te Kaunihera o Tāmaki Makaurau has many strategic documents that inform and support the services that are being delivered for our communities. Relevant policies and plans relating to the provision of arts services in Papakura are included below.

· Table 1 Strategic direction from relevant regional plans and policies

Strategy	Direction
Auckland Plan 2050 Te Mahere mō Tāmaki Makaurau	Focus area 1: Create safe opportunities for people to meet, connect, participate in, and enjoy community and civic life. Focus area 2: Provide accessible services and social and cultural infrastructures that are responsive in meeting people’s evolving needs. Focus area 3: Recognise the value of arts, culture, sport, and recreation to quality of life.
10-year Budget 2024-2034 Te Tahua Pūtea Tau 2024-2034	Four Key Shifts: Progress towards a new investment approach that is less reliant on council assets and focuses more on alternative service provision. · We tailor services to different communities focusing on growing participation in areas of greatest need. · We invest in a range of delivery approaches so we can adapt and are responsive. · We contribute to Te Tāruke-ā-Tāwhiri through a sustainable and resilient service network. · We operate a fit-for-services and cost-effective service network.
Thriving Communities Strategy 2022-2032 Ngā Hapori Momoho	Objective 3: Increase access and participation · Ensure that council services, spaces, facilities, and our public spaces are inclusive, accessible, welcoming and culturally appropriate. Objective 2: Improve Health Outcomes · Recognise the value of parks and open space, arts, culture, sports and recreation to health and wellbeing and ensure equitable access. Objective 4: Grow community and intercultural connection · Ensure our local spaces and services facilitate connection and prioritise activities that build relationships between people of different ages, cultures and backgrounds. · Prioritise and resource local spaces, initiatives and events that support connection across diverse communities. Objective 5 Enable local leadership and innovation · Support and enable Aucklanders to deliver more leisure, recreation and arts and culture activities that will activate and enrich local spaces.
Toi Whītiki Arts and Culture Strategic Action Plan	Toi Whītiki sets out a strategic direction, goals, and key objectives for both the council and the creative sector to work together to grow arts and culture in Tāmaki Makaurau. Goal 1 All Aucklanders can access and participate in arts and culture. Goal 2 Auckland values and invests in arts and culture. Goal 3 A network of vibrant arts and culture organisations and facilities. Goal 5 Auckland celebrates a unique cultural identity. Local boards play an important role in supporting arts and culture activities in their communities, through: · supporting arts and culture programmes, events, and public art · funding local arts, cultural groups, and projects supporting local facilities.

Strategy

Direction

Auckland Plan 2050

Te Mahere mō Tāmaki Makaurau

Focus area 1: Create safe opportunities for people to meet, connect, participate in, and enjoy community and civic life.

Focus area 2: Provide accessible services and social and cultural infrastructures that are responsive in meeting people’s evolving needs.

Focus area 3: Recognise the value of arts, culture, sport, and recreation to quality of life.

10-year Budget 2024-2034

Te Tahua Pūtea Tau 2024-2034

Four Key Shifts: Progress towards a new investment approach that is less reliant on council assets and focuses more on alternative service provision.

· We tailor services to different communities focusing on growing participation in areas of greatest need.

· We invest in a range of delivery approaches so we can adapt and are responsive.

· We contribute to Te Tāruke-ā-Tāwhiri through a sustainable and resilient service network.

· We operate a fit-for-services and cost-effective service network.

Thriving Communities Strategy 2022-2032

Ngā Hapori Momoho

Objective 3: Increase access and participation

· Ensure that council services, spaces, facilities, and our public spaces are inclusive, accessible, welcoming and culturally appropriate.

Objective 2: Improve Health Outcomes

· Recognise the value of parks and open space, arts, culture, sports and recreation to health and wellbeing and ensure equitable access.

Objective 4: Grow community and intercultural connection

· Ensure our local spaces and services facilitate connection and prioritise activities that build relationships between people of different ages, cultures and backgrounds.

· Prioritise and resource local spaces, initiatives and events that support connection across diverse communities.

Objective 5 Enable local leadership and innovation

· Support and enable Aucklanders to deliver more leisure, recreation and arts and culture activities that will activate and enrich local spaces.

Toi Whītiki Arts and Culture Strategic Action Plan

Toi Whītiki sets out a strategic direction, goals, and key objectives for both the council and the creative sector to work together to grow arts and culture in Tāmaki Makaurau.

Goal 1 All Aucklanders can access and participate in arts and culture.

Goal 2 Auckland values and invests in arts and culture.

Goal 3 A network of vibrant arts and culture organisations and facilities.

Goal 5 Auckland celebrates a unique cultural identity.

Local boards play an important role in supporting arts and culture activities in their communities, through:

· supporting arts and culture programmes, events, and public art

· funding local arts, cultural groups, and projects supporting local facilities.

· Table 2 Strategic direction from relevant local plans and policies

Strategy	Direction
Papakura Local Board Plan 2023	Objective: ensure the asset portfolio is fit for the changing community needs. · Key initiative: Look at options to improve efficiency or reducing our asset portfolio over time by changing the way we deliver some services or combining them. Objective: services and facilities meet the community’s needs now and into the future. · Key initiatives: ensure we can use new and existing facilities as multi-purpose community spaces, encourage library and community-led programmes to promote maximum use of… the Sir Edmund Hillary Library. Objective: regular local cultural and arts experiences in Papakura. · Key initiatives: continue to carry out a programme of cultural, arts and other activities to enliven the business areas, support Papakura to be creatively rich by helping to showcase local artists and encouraging people’s participation in music, crafts and hobbies.

Strategy

Direction

Papakura Local Board Plan 2023

Objective: ensure the asset portfolio is fit for the changing community needs.

· Key initiative: Look at options to improve efficiency or reducing our asset portfolio over time by changing the way we deliver some services or combining them.

Objective: services and facilities meet the community’s needs now and into the future.

· Key initiatives: ensure we can use new and existing facilities as multi-purpose community spaces, encourage library and community-led programmes to promote maximum use of… the Sir Edmund Hillary Library.

Objective: regular local cultural and arts experiences in Papakura.

· Key initiatives: continue to carry out a programme of cultural, arts and other activities to enliven the business areas, support Papakura to be creatively rich by helping to showcase local artists and encouraging people’s participation in music, crafts and hobbies.

· Table 3 Strategic direction from relevant people and culture plans and policies

Strategy	Direction
Kia Ora Tāmaki Makaurau	Delivery of Māori outcomes are guided by Kia Ora Tāmaki Makaurau which directly contributes to the Māori identity and wellbeing outcomes and other outcomes of the Auckland Plan.
Pasifika Strategy Ara Moana	· Empowers Pacific people to thrive and lead. · Recognises, values and celebrates Pacific cultures, identity and diversity. · Promotes effective engagement, meaningful participation and partnerships with Pacific people. · Provides services that meet the needs of Pacific people to enable prosperous, thriving and vibrant Pacific communities in Auckland.

Strategy

Direction

Kia Ora Tāmaki Makaurau

Delivery of Māori outcomes are guided by Kia Ora Tāmaki Makaurau which directly contributes to the Māori identity and wellbeing outcomes and other outcomes of the Auckland Plan.

Pasifika Strategy Ara Moana

· Empowers Pacific people to thrive and lead.

· Recognises, values and celebrates Pacific cultures, identity and diversity.

· Promotes effective engagement, meaningful participation and partnerships with Pacific people.

· Provides services that meet the needs of Pacific people to enable prosperous, thriving and vibrant Pacific communities in Auckland.

Community Facilities Network Plan (CFNP)

The CFNP classifies Papakura Art Gallery as a local arts and culture space. It is a standalone and single service facility. The network plan does not outline specific provision guidelines for local arts and culture spaces.^{^[5]}

There are a set of provisional principals to inform future planning of local arts and culture services.

· Provide spaces and opportunities for local arts and culture activity within existing arts and cultural facilities and community spaces.

· Enable local expression in arts and culture activity through outreach.

· Integrate appropriate spaces within new local community facilities.

· Partner with others to provide suitable spaces.

· Improve the current network of local arts and culture facilities.

The council’s role in the arts

The council’s role in the arts and culture sector should ideally complement that of central government. Central government leads the support of the arts through funding creation, capacity and capability building, and the presentation and promotion of New Zealand work nationally and internationally.^{^[6]} Council’s purpose is to meet the current and future arts and culture needs of Auckland residents.

The Empowered Communities^{^[7]} approach defines the role of arts and culture at Auckland Council as:

· planning, providing and/or supporting major and local arts and culture venues and facilities together with private providers

· supporting the strengthening of communities and place-making initiatives through arts and culture activities.

In a report commissioned by Te Taumata Toi-a-Iwi,^{^[8]} it was found that Auckland Council invests significantly through the council and council-controlled organisations. Investment is made in public art and libraries, grants programmes, investment in major cultural institutions and organisations such as the Auckland War Memorial Museum and Auckland Theatre Company.

The local board’s role in arts provision

Many arts and culture facilities in Auckland have developed in an ad hoc way over time and were not necessarily planned or designed to operate as a single network.^{^[9]} The location and scale of facilities is due to several historical factors.

· Previous decisions around funding and asset provision by legacy councils. The varied delivery model of arts services provided by legacy councils under community-led approaches.

· The characteristics of local communities.

· How arts organisations within communities have developed over time.

· The ability of communities to pay for arts and culture services.

The role of local boards in arts provision has historically included a wide range of activities such as provision of arts facilities, programming, grants, funding, and events.^{^[10]} Local boards deliver these outcomes through their work programmes and the outcomes that are set in the local board plans.

Te Poari ā-Rohe o Papakura supports several local initiatives for the arts such as the local board grants programme, funding agreements with arts organisations, support for the Papakura Museum and Papakura Art Gallery, and the Community Arts Programme.

The Papakura Local Board Plan 2023 supports continuing the same or similar levels of service, providing space for local community arts activity. Community feedback received in the 2023 Papakura Draft Plan includes support for regular local cultural and arts experiences in Papakura and ensuring that council assets are fit for changing community needs.^{^[11]}

Future trends for service delivery

Council’s investment in community services is transitioning to an approach that is less dependent community buildings and delivering differently through:

· tailoring services to the greatest needs of communities

· using alternative ways of delivering services, through partnerships and digital channels and multi-use facilities

· over time, divesting aging buildings that are not fit-for-purpose and reinvesting in services and facilities that better meet the needs of our communities.

Some specific examples of these alternative delivery methods, relevant to arts and culture service, include:

· pop-ups / outreach services

· arts broker model

· integrated community facilities.

Library spaces are changing to become multipurpose community facilities that contribute to place-making and community connection.^{^[12]} To provide best value for residents and convenience for customers, it is council’s strategic approach to integrate services within other community or council facilities whenever possible. Trends internationally are positioning libraries as centres for their communities which include associated activities provided by partners.

Ō mātou mōhiotanga mō Papakura o tēnei wā, o āpōpō hoki

5. What we know about Papakura now and in the future

The Papakura study area^{^[13]} defined for this project has a population of 32,988 as of the last census in 2023.^{^[14]}

· Image 2 Map of Statistical Area 2s of Papakura study area

There is a high proportion of younger, Māori and Pacific residents in Papakura

The Pākehā/New Zealand European residents in the study area make up 38 per cent of the population, which less than the Auckland average (50 per cent). The study area shows a notably higher Māori (32 per cent) and Pacific (25 per cent) population, compared to the Papakura Local Board area and the Auckland region. Asian residents also represent 25 per cent of the population in the study area, which is significantly less than the Papakura Local Board (34 per cent) and the Auckland region (31 per cent).

There is a slightly younger population (25 per cent under the age of 15) in the study area than that of the local board (24 per cent) and the wider Auckland region (19 per cent). All other age groups in the study area are not significantly different.

There is high socio-economic deprivation in Papakura

The study area has high socio-economic deprivation, more than double that of Auckland (32 per cent), with 73 per cent of the study area in the highest deciles of the Deprivation Index (8-10).^{^[15]} It is also high compared to 53 per cent of the Papakura Local Board area falling in the 8-10 range.

· Figure 2 Percentage of the area in high Deprivation Index of 8-10

Projected population growth is below average

The study area is projected to grow by 29 per cent between 2018 and 2052, which is less than the projected population growth for Auckland (39 per cent), and the Papakura Local Board area (45 per cent).^{^[16]} Three MSM^{^[17]} zones in the study area do see a projected increase of 240 per cent, 67 per cent, and 49 per cent between 2018 and 2052. The two larger projected increases are centred around the Papakura town centre (MSM Zones 537 and 539).

Ethnicity projections anticipate a significant increase in the Asian population in the local board over the next 20 years, and it is projected to become the largest ethnic group in the area by 2043.^{^[18]} The Māori and Pacific population are also projected to increase as seen in Figure 3. Ethnicity projections are based on the 2018 New Zealand Statistics report.

Figure 3 Ethnicity projection in Te Poari ā-Rohe o Papakura

Ō mātou mōhiotanga mō Papakura Art Gallery

6. What we know about Papakura Art Gallery

History of the site

Papakura Art Gallery is on a 1546m² site that originally housed the old Papakura Fire Station established in 1957 by the Papakura Town Board.

Papakura Art Gallery first opened at its current location in 1995 and was managed by the Papakura Community Arts Council until 2006, when the organisation dissolved. Management of the gallery was transferred to the Papakura District Council. Since Auckland Council formed in November 2010, Papakura Art Gallery has been operated by the council.

· Table 4 History of 8-10 Averill Street

Year	Description
1982	Papakura Fire Station (8-10 Averill Street) is utilised as Papakura Museum by the Papakura Historical Society.^{^[19]}
1987	Creation of the Papakura Community Arts Council. The joint Franklin-Papakura Community Arts Council disbands. Papakura sets up its own District Community Arts Council.
1995	Papakura District Council invites the Papakura Historical Society to be part of a purpose built complex incorporating the Library, Museum and the Educational Resource Centre at Accent Point. The relocation was completed and the Museum opened in 1999 on level four.
1999	Papakura Community Arts Council move into the former fire station building to occupy it as a community art gallery and The Central School was given to them to run arts classes.
2001	Plans develop for an arts and cultural hub to be developed in Central Park.
2006	Papakura Community Arts Council have insufficient funds to operate, therefore dissolving and handing operations to Papakura District Council to run the community art gallery.
2009	The building is refurbished. Moving the gallery to a larger building is considered but put on hold due to amalgamation. Upgraded Papakura Art Gallery opens.
2010	Papakura District Council is amalgamated into Auckland Council and the Papakura Art Gallery is council-led and funded by Te Poari ā-Rohe o Papakura.

Papakura Art Gallery building layout and location

The interior of Papakura Art Gallery consists of an office, reception, exhibition display area, window gallery, toilet facilities, kitchen, storage on ground floor and a breakout area. The building underwent a renovation in 2009 due to its poor condition.

· Image 3 Papakura Art Gallery prior to renovation in 2009

An image of the front of Papakura Art Gallery prior to renovation.

The building has a concrete foundation, a small office for facility staff, and a small kitchen. There is storage on the ground floor which is used for storing artworks and equipment.

· Image 4 Mezzanine and ground levels of Papakura Art Gallery

The layout of the mezzanine level of Papakura Art Gallery, including one big room, a meeting room, office, storage.

The layout of the ground floor of Papakura Art Gallery including two big rooms, a store room, washroom, and office.

The facility (Image 5) is positioned on the western side of the Papakura train station near Great South Road. It is a central location, near a busy intersection, close to the Sir Edmund Library and Papakura Museum. The gallery is surrounded by car parking spaces for Selwyn Central Mall customers and the adjacent Countdown Supermarket.

· Image 5 Papakura Art Gallery and the surrounding area

Map of the surrounding area of Papakura Art Gallery, including proximity to Selwyn Centre Mall, Countdown Supermarket, and Sir Edmund Hillary Library.

The site (blue outline Image 6) is encumbered by a right-of-way easement (red outline) that constrains most of the site.

· Image 6 Site of 8 -10 Averill Street

Aerial map of site with detail of easements cutting through the car park.

Papakura Art Gallery offers exhibitions and art programming

Papakura Art Gallery is a council-led arts and culture facility funded by Te Poari ā-Rohe o Papakura and the service is delivered by the Community Wellbeing department. Its purpose is to provide opportunities for diverse local communities to actively engage with a range of creative and cultural experiences.^{^[20]} This is achieved through delivering arts programmes, including exhibitions, activities, and public programmes.

Core objectives for the gallery are to:

· provide a caring and comfortable space for people to enjoy art and share cultural experiences

· deliver a dynamic range of arts and culture experiences that respond to and reflect the diverse communities of Papakura

· increase local young people’s access to and participation in the arts

· support the development of Māori arts and artists in Papakura, and facilitate meaningful connections that encompass Te Ao Māori

· support and mentor local artists in the development of their professional practice, and connect them to broader audiences, creative networks and opportunities

· develop strong local partnerships, and to enable and support connections within the community

· operate efficiently, effectively and in a sustainable manner.

Papakura Art Gallery has a low number of visitors

The visits to Papakura Art Gallery have, for the past five financial years, been the lowest of any venue hire, community centre, or arts and culture facility in Te Poari ā-Rohe o Papakura. 2021/2022 saw the lowest number of visitors and although there has been a gradual increase in visitor numbers in the following years, it is still low at 2195 visits in 2023-2024.^{^[21]}

· Figure 3 Visits to Papakura Art Gallery 2020/2024

Facilities of similar size, in other local boards, offering gallery services include Fresh Gallery in Ōtara-Papatoetoe Local Board and Franklin Art Gallery at Franklin: The Centre. These galleries receive more visits per annum than Papakura Art Gallery. In 2022-2023, Fresh Gallery had 3191 visits and Franklin Art Gallery (co-located with other council services) had 13,748 visits.

The slight reduction in visitor numbers over from 2021-2022 can be partially attributed to the impacts of COVID-19 lockdowns, as well as reduced opening hours from 56 hours to 23 hours per week during this period.

Previous community feedback shows visitor satisfaction

An arts and culture facilities survey^{^[22]} was conducted by Gravitas in 2019. The purpose was to provide insight on visitor demographics, rationale for visits, satisfaction, and suggestions for improvement. Papakura Art Gallery had the smallest sample size with 42 visitors responding to the in-person intercept survey which took place over a four-day period in June 2019.

The following key insights were captured.

· 95 per cent were satisfied (of these, 74 per cent reported it was due to what was being delivered, 21 per cent because of the facilities).

· 98 per cent visited because of a specific programme or event.

· 67 per cent of visitors were over the age 45 years old and 76 per cent identified as female.

· 33 per cent were European, 49 per cent Māori, 11 per cent Pacific, 2 per cent Asian.

Community members would like to see more exhibitions by local visual artists, art classes and workshops for children and families, events and activities offered in the evenings and weekends including social events, and different types of art such as sculpture, performance art, music, dance, and artist demonstrations.

Many respondents reported being satisfied with their visit as they were impressed by the quality, variety, and creativity of the art as well as the warm and friendly welcome from staff, artists, and the general environment of the gallery.

Art stakeholders appreciate Papakura Art Gallery, have suggestions for improvement

Staff approached key stakeholders in the arts sector in Papakura in 2022 to complete a survey. The goal was to understand their organisation’s involvement in the arts sector in Papakura, their thoughts on how council delivers arts services in Papakura, and their insights on how arts services could be offered locally in the future.

Surveys were completed by 11 arts organisations. The responses included:

· good awareness of Papakura Art Gallery and appreciation for its good quality art exhibitions and the dedication of staff. Suggestions for improvement were to include different art forms and themes such as youth art, Māori art, local artists, interactive art, and learning about art for all ages

· appreciation for the location of Papakura Art Gallery with good parking and proximity to the train. Appreciation for the heritage value of the building

· suggestions for improvement included relocation or sharing space with other facilities due to the limited space at Papakura Art Gallery. Respondents wanted Papakura Art Gallery to be open for opening hours on weekends, and improved accessibility to the building for the disabled community.

Building condition

An asset assessment was completed in April 2022. The assessment found the Papakura Art Gallery building is in good condition for its age and use, but some general maintenance and minimum external renewals work have been identified. The other improvements are primarily general external roof and exterior building maintenance. An Asbestos Management survey report from February 2020 found that asbestos containing material was presumed in some building elements, however it is determined to be low risk.

Based on an Initial Seismic Performance assessment (IEP) conducted in May 2014, the building has a provisional seismic performance rating of 34% (grade C). The IEP assessment was carried out before the Earthquake-prone Buildings Amendment Act 2016 came into effect and as a result, the building would need to be re-assessed to confirm the current seismic rating. This building is not on the priority seismic assessment regional work programme.

Operating and renewal costs

Papakura Art Gallery had an annual operating cost in 2023/2024 financial year of around $201,742.

· Table 5 Repairs, maintenance, and utilities costs

	FY19	FY20	FY21	FY22	FY23	FY24
Repairs, maintenance	$35,328	$23,526	$42,227	$37,983	$33,465	$41,000
Utilities	$6,938	$7,577	$5,295	$7,769	$7,119	$7,500
TOTAL	$42,266	$31,103	$47,521	$45,752	$40,584	$48,500

· Table 6 Programming, staff, and exhibitions costs

	FY19	FY20	FY21	FY22	FY23	FY24
Programming, staff, and exhibitions	$68,238	$58,477	$91,520	$91,175	$76,105	$153,242

Council’s renewals modelling indicates that the cost of renewals for Papakura Art Gallery, from 2025-2035, to be around $592,278.

· Table 7 Auckland Council renewals modelling

	2025 to 2030	2031 to 2035
Expected renewal requirements	$90,025	$502,253

Te whakamarohitanga o te rawa wāhi tuku ratonga

7. Service property optimisation

The land is owned by the Crown and held by the council

8-10 Averill Street, held in record of title NA655/77 is legally described as Allotment 206 Section 11 Village of Papakura, is subject to the Reserves Act 1977 and has underlying Crown ownership (confirmed by LINZ Accredit Agent in July 2021).

In 2021, a LINZ Accredited Agent was engaged to verify ownership status of 8-10 Averill Street. It was confirmed that the land has underlying Crown ownership, which vested the reserve in the Papakura Town Board, in trust, for municipal purposes.

Typically, should the reserve status of land with underlying Crown ownership be revoked, the property reverts to the Crown and council is unable to retain any proceeds of sale. However, The Minister of Conservation advised the council in 2014 that the Crown is willing to consider properties on a case-by-case basis and that provided certain criteria are met, the council could retain the net proceeds from sale.

The criteria requires that the net sale proceeds are to be reinvested in:

· improving an existing reserve, or

· acquiring a new reserve for recreation or amenity purposes for the benefit of the local community.

Department of Conservation advised that 8-10 Averill Street would be subject to these disposal guidelines^{^[23]} and would have to meet criteria if the council were to retain net sale proceeds after its costs had been paid. These guidelines have not yet been tested for a disposal of this kind and there is a risk that currently unknown costs or processes may impact the process of disposal and reinvestment of proceeds.

The site is constrained by easements

The site is a rectangular piece of land with two street frontages. A right-of-way easement providing access to the neighbouring property’s rooftop carpark^{^[24]} affects about 720m² of the site.

The easement is a legal right that allows the owners and its visitors of the neighbouring properties to use the site for access to their land and buildings. It can be used at any time and for any purpose related to the enjoyment of the neighbouring properties. It is shared by both the council and the owner of the neighbouring properties who are both responsible for keeping it in good condition and preventing any problems.

The council, at any time during the term of the easement, may give the grantee six months written notice to determine this easement on the following basis.

· Alternative access from 8-10 Averill Street is provided.

· All costs associated with establishing alternative access are covered by the council.

· A new easement over part of the land for the right of way is granted.

· Image 7 Easement of 8-10 Averill Street

Aerial view of the site and detail of easements.

The Eke Panuku board support proceeding with service property optimisation

In January 2023, Eke Panuku commissioned an independent market valuation of the property on the open market (excluding synergistic value), assuming the reserve status has been revoked. This advice confirmed the financial viability of the project at the time, which includes the impact of existing encumbrances.

In June 2023, the Eke Panuku board approved the recommendation for Te Poari ā-Rohe o Papakura to utilise the service property optimisation framework for the disposal of 8-10 Averill Street. Should the local board not approve the recommendation, the disposal will not progress.

Te kōtuinga o ngā hanga whaitake ā-hapori

8. Network of community facilities

Staff undertook a network review of community facilities as part of the review of arts and culture provision in Te Poari ā-Rohe o Papakura and the identification of potential co-location opportunities.

· Image 8 Map of community facilities in Te Poari ā-Rohe o Papakura

Map of other community facilities in Papakura.

Papakura Art Gallery is a unique service that is not offered elsewhere in the local board area, as it provides arts and culture services with a focus on visual arts in a dedicated and facility-based space. Hawkins Theatre is the only other council delivered arts and culture venue in the study area, however its focus is on performing arts.

The Papakura Takanini Community Needs Assessment from 2016^{^[25]} concluded that there was no gap in the existing provision of community arts and culture facilities. The assessment recommended that there was a requirement to investigate opportunities to improve existing facilities including Papakura Art Gallery.

· Table 8 Detail of services offered at Te Poari ā-Rohe o Papakura community facilities

Community facility	Service(s)	Delivery
Massey Park Grandstand	Venue for hire	Council
Elizabeth Campbell Hall	Venue for hire	Council
Papakura Art Gallery	Arts and Culture – Visual arts	Council
Sir Edmund Hillary Library (Papakura Library) and Papakura Museum	Library, Museum, and Venue for Hire	Council
Smiths Avenue Community Hall	Venue for Hire	Partner
Hawkins Theatre	Arts and Culture – Performance and Theatre	Council
Massey Park Pool	Pools and Leisure	Council
Papakura Leisure Centre	Pools and Leisure	Council
Old Central School Hall	Venue for Hire	Council

Ngā kōwhiringa ratonga ā-toi i Papakura

9. Options for arts services in Papakura

Service and Asset Planning conducted an options assessment with assistance of an internal project team. A long-list of options, to continue to deliver art services in Papakura, was developed (see Table 9).

Options include opportunities to continue arts services at 8-10 Averill Street at different levels of investment, to lease out 8-10 Averill Street as a community lease and deliver arts services using different delivery models, or to optimise 8-10 Averill Street and co-locate arts services into Accent Point.

· Table 9 Options for arts services in Papakura

Option	Title	Description	Cost over 15 years (opex + capex)
1	Status quo	Arts services continue to be delivered at 8-10 Averill Street	$3.6 million
2	Reduce hours	Arts services continue to be delivered at 8-10 Averill Street with reduced hours	$3.2 million
3	Increase hours	Arts services continue to be delivered at 8-10 Averill Street with increased hours	$5.5 million
4	Community led	Arts services continue to be delivered at 8-10 Averill Street led by a community partner	$2.9 million
5	Co-locate art services	8-10 Averill Street becomes a community lease + arts services co-located into Accent Point	$4.4 million
6	Art broker	8-10 Averill Street becomes a community lease + arts services funding redirected to an arts broker	$2.9 million
7	Art grants	8-10 Averill Street becomes a community lease + arts services funding redirected to arts grants	$2.9 million
8	Other local board priorities	8-10 Averill Street becomes a community lease + funding redistributed to other local board priorities	$1.2 million
9	SPO + arts co-locatation (2 years)	Service property optimisation of 8-10 Averill Street after two years + arts services co-located into Accent Point	$1.9 million
10	SPO + arts co-location (10 years)	Service property optimisation of 8-10 Averill Street after 10 years + arts services co-located into Accent Point	$2.6 million

Financial assessment of options

Staff undertook a high-level financial assessment of the ten options as the recommended option must represent value for money to the local board and to the council. The cost of each of the ten options was investigated including the opex and capex over a 15-year period.

Option eight (8-10 Averill Street becomes a community lease and funding is redistributed to other local board priorities) is the lowest cost option, however with this option, the services currently offered from Papakura Art Gallery are no longer funded by the local board.

Option nine (service property optimisation of 8-10 Averill Street and arts services co-located into Accent Point after two years) is the second lowest cost option. This option still enables the continuation of an asset-based delivery of arts services in Papakura.

With option nine, some costs to the local board will likely be lower than current state as there would be a reduction in the level of capex spending on renewal requirements for 8-10 Averill Street. There would also be reduced opex costs after two years on the repair, maintenance, and utilities costs currently spent on Papakura Art Gallery. It is anticipated that the net sale proceeds from disposal will be sufficient (including a cost inflation allowance) to cover the co-location of art services and capital fit out required. Any remaining funds can be used for other approved projects.

Critical success factors assessment

Staff identified critical success factors as assessment criteria to determine the best option for the future of arts services in Papakura.

· Table 10 Critical success factors

Critical success factor	Questions to support analysis of options
Strategic fit	Should we be doing this? Which options align with council’s strategies, programmes, and projects?
Business need	Do we need to do this? How well does each options fulfil the needs identified in the needs’ assessment?
Value for money	What is the best value way to do this? Which option has the lowest long-term costs?
Supplier capacity and capability	Can we get others to do this? How well does each option match the ability of potential suppliers to deliver the required services? Which options are likely to result in a sustainable arrangement that optimises value for money over 15 years?
Affordability	Can we afford this? How well does each option meet with available funding?
Achievability	Can we do this?
Enable our communities	How well does each option allow communities to influence decisions that affect them? Which options brings our communities together?
Focus on communities that need us most	How well does each option use our resources to serve our communities that need us most?
Fit for purpose	Which option ensures the arts services are fit-for-purpose? How flexible is the space?
Population growth	Which option supports population growth and the provision of art services?
Support local board priorities	Which options supports the local board priorities for arts and culture investment?

Each of the ten options were then assessed against the critical success factors, rating them to be strong, medium, or weak in alignment.

· Table 11 Critical success factor assessment of ten options

Critical success factors	One	Two	Three	Four	Five	Six	Seven	Eight	Nine	Ten
Strategic fit
Business need
Value for money
Supplier capacity and capability
Affordability
Achievability
Enable our communities
Focus on communities that need us most
Fit for purpose
Population growth
Support local board priorities
Total

Strong Medium Weak

Option nine is the best option

Staff recommend option nine: co-location and service property optimisation over two years. This option is the lowest cost option and has the strong alignment with critical success factors, while still offering delivery of arts services in Papakura.

This option also has the following benefits.

· Aligns with local board plan outcomes

· Increases participation through increased visibility of arts services

· Efficient use of a third-party lease

· Retains ability to undertake service property optimisation

· Opportunity to explore community-led delivery

· Continued investment in arts and culture services in Papakura.

This option includes the following assumptions.

· Te Poari ā-Rohe o Papakura continue to support and fund arts services.

· Both Papakura Art Gallery and Accent Point remain in service during service property optimisation and co-location planning.

· Staff to investigate community-led model of delivery at Papakura Art Gallery.

Net sales proceeds to be spent on co-location of arts services

Net sale proceeds from the proposed sale are recommended to be spent on the co-location of art services at Accent Point. Based on a similar project, it is estimated that the cost to fit out the space would be approximately $300,000.^{^[26]} Any remaining proceeds can be put towards projects that meet the service property optimisation criteria and Department of Conservation’s guidelines.

The following projects listed below in order of importance, based on priorities workshopped with Te Poari ā-Rohe o Papakura in December 2023 have been identified.

· Ōpaheke Park: sports field drainage improvements opposite the toilet facilities.

· Hingaia Park: concept plan.

· Bruce Pulman Park: destination playground on Kuaka Drive.

· Keri Downs Park: shared path network to connect to Redcrest Avenue.

· Ray Small Park: sports field drainage improvements.

· Smiths Avenue Reserve: concept plan stage two.

Te whakauruurutanga o ngā ratonga toi

10. Co-location of arts services

Accent Point is a co-located facility with multiple services

Accent Point level 3 (located at 1/209 Great South Road) hosts several council-aligned services including the Sir Edmund Hillary Library, venue hire, Papakura Museum, and council services. Council is one of the tenants on site, holding a third-party leased space with an expiry of September 2030.

There is 1185m² of public library and community space, and an additional 3213m² for commercial spaces, a community lease (Papakura Museum), a large storage space on level 2, car parking, and a goods lift.

In 2009, the Papakura District Council undertook a significant upgrade to Accent Point.^{^[27]} The council sold its shares in the building and relocated the library and museum from level 4 to level 3 to have main street access to Great South Road.

· Image 9 Current configuration of library, venue hire, and community spaces at Accent Point level 3

Current configuration of library, venue hire, community spaces at Accent Point level 3.

The library and museum are well used

The Sir Edmund Hillary Library and Papakura Museum are co-located services and are well used by the community. In 2023-2024 the library had 144,204 visits.^{^[28]} The library is experiencing a similar trend to other libraries in Auckland of declining visitors however visits have rebounded from a low in 2021-2022.

· Figure 4 Visits to Sir Edmund Hillary Library

There is a meeting room available for bookings in the library that has a capacity of 40 people. There were 3588 visitors to the meeting room in 2023-2024, representing 962 booking hours. The Papakura Museum reported 134,77 visits in 2023-2024.^{^[29]}

Accent Point could be further optimised

There are significant benefits to the community and to the local board through co-locating arts services into Accent Point. These include:

· increased access to the community to arts services in Papakura through being located at a central site that is accessible, located with other council-aligned services, and open with more staffed hours

· synergies and opportunities for service providers to increase activation of space through the co-location of arts services into the site, including shared site amenities and a more cohesive customer experience

· value for money for a better use of an existing council asset to which the local board contributes significantly by better use of underutilised space.

Engagement with the Community Wellbeing department and site tours of Accent Point indicate that there is likely to be an underutilisation of some spaces in Accent Point that could be reconfigured for the co-location of arts services.

The Community Facilities Network Plan guidelines indicate that even with 30 years of population growth, there is an excess of around 500m2 of library space within Accent Point (refer Image 10).

· Image 10 Spaces within Accent Point Level 3 included in provision analysis highlighted in blue

Council’s Corporate Property team is currently investigating space at Accent Point for a potential future local board office (as of February 2025). Staff have confirmed through a site visit to Accent Point with local board members on 29 January 2025, and previous engagement with Corporate Property staff, that both gallery and potential local board office interests can be accommodated at Accent Point. Corporate property is considering different areas within Accent Point than for the future gallery space.

The co-location of services and configuration of space will be further investigated in the next phase of the project, with the local board as the decision-maker. Options for the approximately 200m2 of gallery space will be explored through engagement with stakeholders and a design process.

Any location within the overall blue (library) and parts of green (lobby) areas below could be considered in next phases for all community services including arts and library services. This includes the void area currently underutilised and measuring approximately 300m2.

· Image 11 Footprint of a future gallery space in Accent Point Level 3

Te whakatepenga

11. Conclusion

The investigation found that there is an ongoing need for arts services in Papakura, and that current services at Papakura Art Gallery are responding to community demand. The recommended option for the future of arts services in Papakura is for 8-10 Averill Street to be divested through the service property optimisation process and arts services to be co-located into Accent Point.

Next steps are for the local board to resolve on service property optimisation and the use of proceeds to co-locate art services. Should this proceed, more detailed planning for the co-location of services can be undertaken through next phases of service and spatial design.

Papakura Local Board

28 May 2025

Papakura Local Parks Management Plan - Classification Recommendations

File No.: CP2025/09201

Te take mō te pūrongo

Purpose of the report

1. To make decisions on the classification for parks and reserves to be included in the Papakura Local Parks Management Plan by:

· Declaring land parcels held under the Local Government Act 2002 to be reserve and classifying them appropriately

· classifying and reclassifying land parcels held under the Reserves Act 1977 and

· approving public notification where required.

Whakarāpopototanga matua

Executive summary

2. Identifying the land status of each land parcel to be included in the Papakura Local Parks Management Plan (LPMP), is an essential task in the development of the LPMP.

3. Land included in the LPMP can be held under the Reserves Act 1977 (RA) and under the Local Government Act 2002 (LGA). Land held under the RA to be included in the LPMP needs to be appropriately classified (given a primary purpose). Land held under the LGA can be retained as such or declared to be reserve under the RA and classified appropriately.

4. The Papakura Local Board has decision-making allocation for classification actions under the RA and for land held under the LGA.

5. As part of the due diligence undertaken in the preparation of the LPMP, a land status review was undertaken of 839 land parcels in the local board area. A land status review involved determining administration and ownership of the land, legislation under which the land is held, and if held under the RA, whether the land has been appropriately classified.

6. This report seeks approval from the Papakura Local Board for classification actions and proposals enabling parcels to be included in the LPMP. It also seeks approval for public notification of proposed actions, where required.

7. Land status recommendations included in this report are based on detailed assessments against a set of best practice criteria developed by staff. Criteria includes:

· consideration of current and potential future values

· current and likely future use of the local park

· workshop feedback from the local board

· feedback from mana whenua.

8. Staff also consider the benefits and disadvantages of the RA or LGA in managing and enabling the use, protection and development of each land parcel.

9. For land held under the LGA, recommendations involve either retaining the land under the LGA to preserve flexibility, or declaring it reserve and classifying it appropriately.

10. For land held under the RA, the recommended actions include classification, reclassification, or, in rare cases, surveying a reserve to enable different classifications.

11. The table below summarises the proposed actions for land held under the LGA and RA included in this report:

	Proposed action	No. of land parcels	Relevant section of the Reserves Act 1977	Refer to
Options for land held under the Local Government Act	Retain under the LGA	47	Not applicable	Attachment B
	Declare and classify (public notification not required)	26	s.14(1)	Attachment C
	Declare and classify (public notification required)	6	s.14(2)	Attachment D
	Total	79
Options for land held under the Reserves Act 1977	Classify (public notification not required)	278	s.16 (1), s. 16(2A)	Attachment E
	Classify (public notification required)	2	s.16 (1)	Attachment F
	Survey and classify (public notification not required)	2	s.16 (1)	Attachment G and H
	Reclassify (public notification required)	22	s.24(2)(b)	Attachment I
	Total	304

12. Staff recommend that the local board approve actions as outlined in this report.

13. Where public notification is required, a second report will be presented to the local board, likely in August 2025, to make a final decision on proposals.

14. Completing the above classification action will enable the inclusion of all relevant land parcels in the LPMP and ensures the LPMP complies with statutory requirements.

15. There are no financial implications for the local board from the decisions outlined in this report. Costs for surveying and public notification will be covered through existing operational budgets.

Ngā tūtohunga

Recommendation/s

That the Papakura Local Board:

a) approve / whakaae to continue holding 47 parcels of land under the Local Government Act 2002 as described in Attachment B of the agenda report

b) approve / whakaae 26 parcels of land to be declared as reserve and classified according to their primary purpose and current use, pursuant to section 14(1) of the Reserves Act 1977, as proposed in Attachment C of the agenda report

c) approve / whakaae public notification of proposals to declare six parcels of land as reserve and to classify the land according to its primary purpose and use, pursuant to section 14(2) of the Reserves Act 1977, as described in Attachment D of the agenda report

d) approve / whakaae the proposed classification of 278 parcels of reserve land pursuant to section 16(2A) and 16(1) of the Reserves Act 1977, as described in Attachment E of the agenda report

e) approve public notification of proposals to classify according to their primary purpose two parcels of land, pursuant to section 16(1) of the Reserves Act 1977, as described in Attachment F of the agenda report

f) approve the surveying and classification of that part of land parcel at Central Park Reserve, Papakura (Allot 205 Sec 11 Vill of Papakura) which holds the community building, approximately 0.1100 hectares (outlined in red in Attachment G of the agenda report) as Local purpose (community facilities) reserve, and the remainder of the land parcel, approximately 1.4596 hectares, as Recreation reserve, pursuant to section 16(1) of the Reserves Act 1977

g) approve the surveying and classification of that part of the land parcel at McLennan Park, Papakura (Lot 3 DP 397587) which holds the Pulman Lodge, approximately 0.8900 hectares (outlined in red in Attachment H of the agenda report) as Local purpose (sports accommodation and sports services centre) reserve, and the remainder of the land parcel, approximately 12.24 hectares, as Recreation reserve pursuant to section 16(1) of the Reserves Act 1977

h) approve public notification of the proposals to reclassify 22 parcels of reserve land, pursuant to section 24(2)(b) of the Reserves Act 1977, described in Attachment I of the agenda report.

Horopaki

Context

16. Papakura Local Board has allocated decision-making responsibility for all local parks in their local board area.

17. In June 2022, the local board resolved to prepare an omnibus open space management plan for all local parks in the local board area (the LPMP). This process was followed to assist with the management of the parks and reserves, and to meet obligations for reserve management planning under the Reserves Act 1977 (RA) (Resolution number PPK/2022/108).

18. The LPMP will be a statutory reserve management plan prepared in line with section 41 of the RA. It will cover parkland held under the RA and the LGA, replacing existing reserve management plans.

19. As part of preparing the LPMP, it is essential to review whether the local parks to be included in the plan are held under the LGA or RA. If local parks are held under the RA, it is necessary to ensure that they have been appropriately classified i.e. given a primary purpose (section 16(1) and 16(2A) of the RA).

20. A land status review of 839 land parcels within the Papakura Local Board area was completed in April 2025. This involved determining who owns and administers parks and reserves and which legislation the land is held under. If the land is held under the RA, then it needs to be determined whether the land has been appropriately classified i.e. whether the classification reflects the primary purpose of the land.

21. Of the 839 land parcels reviewed, 383 land parcels held under the LGA and RA required actions to be able to be included in the LPMP. 456 land parcels were deemed to be out of scope of the LPMP or required no classification actions.

22. This report seeks approval from the Papakura Local Board for the required actions for the 383 land parcels to proceed.

23. It is important to note that the local board has two decision making roles when making classification decisions under the RA. The first role is as the administering body of the land and the second role is acting under delegated authority from the Minister of Conservation.

a) As administering body of the land under the RA, the local board can (including, but not limited to):

i. Classify reserve land under section 16(2A) of the RA.

ii. declare land to be reserve under section 14(1) and initiate public consultation where required under section 14(2) of the RA,

iii. publicly notify the proposed change of classification of a reserve under section 24(2)(b) of the RA.

b) Under delegated authority from the Minister of Conservation the local board can (including, but not limited to):

i. Classify reserve land under section 16(1) of the RA.

ii. publicly notify the intention to classify land in accordance with section 16(4) of the RA,

iii. change the classification of a reserve under sections 24(1) and

iv. consider any objections received on proposed changes to a classification under section 24(2) of the RA.

Tātaritanga me ngā tohutohu

Analysis and advice

24. The local board have the option to hold parkland under the LGA or the RA.

25. Any land held under the LGA, which the local board wishes to manage under the RA, must be declared reserve and classified appropriately in accordance with section 14 of the RA.

26. For land held under the LGA the following options have been considered:

· continue to hold the land under the LGA

· declare land currently held under the LGA to be reserve under the RA and classify the land appropriately.

27. For land held under the RA, the following options have been considered:

· classify land according to its primary purpose

· reclassify land to align to its primary purpose

· revoke the reserve status and hold the land under the LGA

· continue to hold the land as unclassified reserve under the RA (status quo).

28. The option to continue to hold the land as unclassified reserve has been discounted, as it would mean that the local parks management plan would not comply with the RA. This would mean that council was not meeting its statutory obligations under the RA. Staff would also not be able to recommend public notification of the draft plan.

29. The different options for land held under the LGA, as well as land held under the RA, are summarised in Attachment A of the report.

30. In considering whether to proceed with the options for each land parcel, staff have contemplated:

· the intended purpose of the land when it was acquired, for example, was it vested as a recreation or esplanade reserve on subdivision

· the long-term preservation and protection that the RA provides for reserve land, including from inappropriate use and development

· the benefits of unified and integrated management of individual parks, and the local parks network as a whole

· whether underlying Crown ownership of the local park prevents the reserve status being revoked

· whether statutory processes and future decision-making will be streamlined

· the need for greater flexibility and choice in how local parks are used by the public

· whether revoking the reserve status of a particular land parcel would materially lead to a greater range of park activities being able to occur.

31. The sections below outline in more detail the options for land held under the LGA and RA, and the criteria on which assessments of each land parcel have been based.

Proposed actions for land held under the LGA

32. When reviewing the future land status options for land under the LGA, staff considered the following:

· Why does the council own the land and how was it acquired?

· What is the primary purpose of the land?

· What is the status of adjacent parcels of land within the same park?

· What is the current and likely future main use of the land?

· What potential does the land have for protection, enhancement and development?

· Is there likely to be a need to retain flexibility for future use?

33. Applying the criteria above, 47 parcels of land have been identified as best suited to remain under the LGA (Attachment B). This is primarily because either the current use does not align with any of the classification options in the RA, and/or there is a likely need to retain flexibility for future use. Te Koiwi Park and Takanini Reserve are examples of an activity where this occurs.

34. No further action is required by the local board for land that is to remain under the LGA.

Proposal to declare land reserve and classify land currently held under the LGA

35. Any land held under the LGA which the local board wishes to manage under the RA must be declared reserve, and classified appropriately in accordance with the RA.

36. 32 parcels of land held under the LGA have been identified and recommended for declaring and classifying as reserve under the RA.

37. The predominant reason for declaring and classifying these parcels is to better align with the current use and values of the land.

38. Most of these parcels align with either recreation, local purpose or scenic classifications.

39. Section 14(2) of the RA requires public notification when declaring and classifying land as reserve, where land is not zoned open space in the Auckland Unitary Plan.

40. 26 of the land parcels proposed to be declared reserve and classified, are zoned as open space under Auckland Unitary Plan. This means that public notification is not required for those parcels (Attachment C).

41. The remaining six land parcels proposed to be declared reserve and classified, are not zoned as open space under Auckland Unitary Plan. This means that public notification is required for those parcels (Attachment D).

42. For publicly notified proposals, decision makers need to consider all comments and objections received for the proposal, when making their final decision.

43. A hearings process is not required when declaring land to be reserve, however, the local board may provide submitters with this opportunity. If the full local board does want to provide this opportunity for submitters, staff recommend to that the local board sets up a hearings panel, consisting of all local board members to hear submissions.

Proposed actions for land held under the RA

44. As outlined above, there are three valid options for land held under the RA:

· classification, or

· reclassification, or

· revocation of the RA status.

45. This report does not propose any revocations of the reserve status of land.

Classification of land held under the Reserves Act 1977

46. Classification involves assigning a reserve (or part of a reserve) a primary purpose, as defined in sections 17 to 23 of the RA. The primary purpose must align with its present values.

47. Consideration is also given to potential future values and activities, and uses, as outlined in paragraphs 24 to 26 above.

48. 304 of the land parcels have been found to be held under the RA requiring the following actions:

· 280 unclassified land parcels require classification

· two land parcels require survey and classification (resulting in four land parcels)

· 22 land parcels need to be reclassified.

49. The 280 land parcels, currently held as unclassified reserve under the RA, require classification under sections 16(1) or 16(2A) of the RA. They are listed in Attachment E and F.

50. Land requiring classification under section 16(1) of the RA require public notification of the proposed classification, except where:

· the proposed classification aligns with the open space zoning in the Auckland Unitary Plan, or

· the reserve has been held under previous legislation for a similar purpose, or

· the proposed classification was a condition under which the land was acquired.

51. Public notification is not required for classification actions under section 16(2A) of the RA.

52. Attachment E lists the 278 land parcels held as unclassified reserve, where classification does not need to be publicly notified. It includes land to be classified under section 16(1) and 16(2A).

53. The two land parcels held as unclassified reserve and which need to be classified under section 16(1) of the RA are listed in Attachment F of the report. Public notification for these two land parcels is required (under section 16(4) of the RA), because the land is zoned other than open space under the Auckland Unitary Plan.

Surveying and classification of two unclassified parcels at Central Park Reserve and McLennan Park

54. There is one parcel of reserve land at Central Park Reserve (Allot 205 Sec 11 Vill of Papakura) and one at McLennan Park (Lot 3 DP 397587), which need to be surveyed in order for the two land parcels to be given appropriate classifications.

55. Central Park Reserve, Papakura, part of Allot 205 Sec 11 Vill of Papakura, is occupied by a community facility. Staff recommend surveying this portion of the reserve separately from the remainder of this land parcel. A map showing the area proposed to be surveyed is shown in Attachment G in red. This area is approximately 0.1100 hectares in size, and is proposed to be classified as Local purpose (community facilities) reserve. The remainder of the land parcel, approximately 1.4596 hectares, is proposed to be classified as Recreation reserve (outlined in turquoise in Attachment G).

56. McLennan Park, Papakura, part of Lot 3 DP 397587 is occupied by the Pulman Lodge, which provides sports accommodation and associated services. Staff recommend surveying the portion of the reserve used for this activity separately from the remainder of the land parcel. A map showing the area proposed to be surveyed is shown in Attachment H in red. The area is approximately 0.8900 hectares in size, and is proposed to be classified as Local purpose (sports accommodation and sports services centre) reserve. The remainder of the land parcel, approximately 12.24 hectares, is proposed to be classified as Recreation reserve.

57. Classification actions for both parks are to be carried out pursuant to section 16(1) of the RA. Public notification is not required, as both areas are zoned as open space under the Auckland Unitary Plan.

Proposed reclassifications of land held under the Reserves Act

58. Reclassification involves assigning a different classification to a reserve (or part of a reserve) to better reflect its primary purpose.

59. Attachment I lists 23 parcels of classified reserve land that are recommended for reclassification.

60. The main reasons for the proposed reclassification are:

· to remove doubt where the sub-classification of Scenic reserve 19(1)(a) or Scenic reserve 19(1)(b) was not specified when the land was classified, or

· to better align with the current or anticipated future values or use of the reserve.

Action required for Scenic reserves where the sub-purpose was not specified

61. For 14 land parcels which had been classified as Scenic reserve the sub-purpose as per sections 19(1)(a) and 19(1)(b) of the Reserves Act, had not been specified.

62. A Scenic reserve under section 19(1)(a) focuses on protecting and preserving significant scenic interest, landscapes and natural features in perpetuity, providing a somewhat higher level of protection compared to a Scenic reserve under section 19(1)(b) of the RA. Scenic reserves held under section 19(1)(b) of the RA allow for the presence of exotic flora and fauna i.e. slight levels of modification.

63. Based on advice from the Conservation Advisor for the local board area, this report includes recommendations to reclassify those previously classified reserves and assign them a primary purpose as per sections 19(1)(a) and 19(1)(b) of the RA.

64. Examples of land to be reclassified as Scenic reserve 19(1)(a) are at Kirks Bush, Dominion Reserve, Willis Bush and Margan Bush, Herkts Bush and Red Hill Scenic Reserve.

65. One land parcel at Dominion Reserve is proposed to be reclassified as Scenic reserve 19(1)(b), due to the slightly lower natural values present at the site.

Public notification and other requirements

66. Section 24(2)(b) of the RA requires all proposals to reclassify reserves to be publicly notified, together with the reasons for the proposed change.

67. The RA does not require hearings on objections to any proposal for reclassification. However, the local board may provide submitters with this opportunity (see paragraph 42 above).

68. Following approval, all reclassifications will required publication in the New Zealand Gazette.

Tauākī whakaaweawe āhuarangi

Climate impact statement

69. The decisions in this report are largely administrative and we anticipate that they will have no direct impact on greenhouse gas emissions.

70. However, future management and potential development of parkland, which is determined by its purpose, could have a potential positive or negative impact on greenhouse gas emissions. The degree and nature of the impact is dependent on the specific management and development of each park.

71. Two examples of potential impacts are:

· a potential reduction of emissions by classifying land as Scenic reserve, supporting ecological restoration and carbon sequestration.

· a potential increase in emissions through greater traffic generation if land is classified to enable new facilities such as community buildings.

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

72. The land classification proposals have been discussed widely with staff from various council units including Environmental Services (Biodiversity and Healthy Waters operations), Parks and Community Facilities (parks, leasing, operations and land advisory specialists), and the heritage team.

73. All groups are supportive of the recommendations.

74. Staff note that retaining land under the LGA allows for greater flexibility in use, while the RA provides for increased protection of recreation, natural, environmental, heritage and landscape values.

75. It is noted that the LPMP will provide consistent management direction for all parks and reserves, regardless of whether the land is held under the RA or LGA.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

76. At a workshop held on 9 April 2025, staff presented to the local board the principles and criteria that underpinned the land status investigation process. Examples of proposed classification actions were also presented.

77. Feedback from the local board members was generally supportive of the rationale and proposed actions presented in this report.

78. Some specific matters raised are addressed below:

b) Land at Redcrest Avenue

79. For five land parcels at Redcrest Avenue (Lot 2 DP 80475, Lot 287 DP 79450, Lot 288 DP 79450, Lot 289 DP 79448, Lot 286 DP 79448), the local board alluded to the fact that some of these land parcels may be impacted by proposed Kāinga Ora development in the area. Staff have obtained further information about this from Eke Panuku staff and have updated their recommendation from reclassifying those land parcels to retaining them as Recreation reserve. All land parcels will be included in the LPMP, as required for Recreation reserves. Potential updates to the status of the land required for the Kāinga Ora redevelopment will need to be dealt with as part of the Kainga Ora redevelopment.

80. In addition, for Lot 292 DP 81919, at Game Reserve, staff have updated the recommendation to retain the land under the LGA (see Attachment B) to ensure that flexibility is retained.

McLennan Park

81. In response to local board concerns that the proposed classification for activities at Pulman Lodge did not provide enough flexibility to carry out activities, the proposed classification was changed to Local purpose (Sports Accommodation and Sports Services Centre) reserve.

82. It should be noted that any activities on the reserve need to be necessary for the public to obtain benefit or enjoyment from the reserve, or for the convenience of the persons using the reserve.

83. In regard to local impacts, council will engage with leaseholders of the various reserves, where public notification is required. The leaseholders will be informed of the proposed classifications and reclassifications, and will be invited to make submissions.

84. The local board members stated that the classification programme needs to allow for day-to-day local activities and future developments aspired to by the local Papakura community. The day to day management and use of reserves included in the classification programme is not likely to be affected through the decisions in this report.

85. Completion of the classification process will ensure that each parcel of parkland in the Papakura area has a clear strategic purpose. This will allow for good decision-making for local parks to comply with the Reserves Act.

Tauākī whakaaweawe Māori

Māori impact statement

86. The RA is one of the Acts in the First Schedule to the Conservation Act 1987. Section 4 of the Conservation Act contains an obligation to give effect to the principles of te Tiriti o Waitangi / the Treaty of Waitangi (te Tiriti / the Treaty).

87. The LGA contains obligations to Māori, including to facilitate Māori participation in council decision-making processes (sections 4; 14(1)(d); 81(1)(a)).

88. Mana whenua representatives from Te Ākitai Waiohua, Ngāti Tamaoho and Ngāti Te Ata Waiohua have expressed interest in being involved in the development of the Papakura Local Parks Management Plan.

89. Principles for classification and proposals for classification actions were presented to the mana whenua groups identified as having an interest during four hui between August 2024 and April 2025.

90. During the most recent hui, held on 10 April 2025, most of the land parcels proposed for classification or reclassification, and land parcels held under the LGA, were reviewed.

91. For one of the reserves, Chrisarda Reserve, which is contiguous with Childrens Forest and by extension Margans Bush, mana whenua representatives suggested to change the classification of two land parcels from Recreation reserve to Scenic reserve. Staff investigated this further and sought direction from the Conservation Advisor for the southern area about the natural values present at the site and whether a reclassification is warranted.

92. The Conservation Advisor confirmed that there are high natural values present at the site. The recommendation for those two land parcels has been updated from the retention as Recreation reserve to reclassifying the land as Scenic reserve 19(1)(a) (included in Attachment I of the report).

93. Mana whenua feedback generally supported staff assessment, rationale and proposals for land classification. Key feedback included:

· Land classification should enable protection of significant sites – both cultural and natural.

· A need to balance conservation whilst allowing flexibility for community uses.

· Support long-term restoration and preservation efforts ( over seven generations), while minimising commercial activities.

· For some of the land parcels, mana whenua expressed a desire to give them a higher level of protection under the RA, i.e. classify a reserve as Local purpose esplanade instead of the proposed recreation reserve classification, or classify a reserve with large native bush area as Scenic 19(1)(a).

Ngā ritenga ā-pūtea

Financial implications

94. This report has no financial implications for the local board.

95. The cost for the surveying of specific parts of Central Park Reserve and McLennan Park, and gazette notcies following the classification decisions, will be covered through existing departmental budgets.

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

96. The following table outlines the risks and mitigation for classification and reclassification of reserves and declaring and classifying land to be reserve:

Risk	Risk level	Mitigation
IF land is held under the LGA THEN there may be a perception that the land is at risk of sale or disposal	Low	There are restrictions on disposal of parks under section 138 of the LGA, and the requirement to undertake consultation, including prior to granting leases for more than six months.
IF land is classified under the RA THEN this constrains what the land can be used for	Low	Each individual land parcel proposed to be held under the RA has been assessed based on the criteria in paragraphs 24 and 26. Recommendations reflect current and likely future uses of each individual parcel, and do not cause/infer additional restrictions.
IF the public objects to proposed classifications THEN the management plan process is delayed	Low	A small number of land parcels require public notification. Due to the small number being notified, the potential impact on timeframes for the management plan is anticipated to be minimal.

Ngā koringa ā-muri

Next steps

97. Next steps vary depending on whether land is held under the LGA or RA, and on the classification action to be undertaken.

98. Attachment J of the report outlines the next steps for each action for land held under the LGA and RA.

99. Land parcels and actions that required public notification, will be publicly notified for a month in June/July 2025.

100. A second report will be brought to the local board, likely in August 2025, to make decisions on classifications for land parcels that required public notification.

101. Completion of these actions will enable those parcels to be included in the Papakura LPMP.

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	Possible actions under the Local Government Act 2002 vs Reserves Act 1977	109
b ⇩	Parcels to be retained under the Local Government Act 2002	111
c ⇩	Parcels to be declared and classified (public notification not required) under section 14(1) of the Reserves Act 1977	115
d ⇩	Parcles to be declared reserve and classified (public notification required) under section 14(2) of the Reserves Act 1977	119
e ⇩	Parcels to be classified under section 16(1) and 16(2A) of the Reserves Act 1997 (public notification not required)	121
f ⇩	Parcels to be classified under 16(1) of the Reserves Act 1977 (public notification required)	153
g ⇩	Parcel at Central Park Reserve to be surveyed and classified under the Reserves Act 1977 (public notification not required)	155
h ⇩	Parcel at Mclennan Park to be surveyed and classified under the Reserves Act 1977 (public notification not required)	157
i ⇩	Parcels to be reclassified under section 24(2) of the Reserves Act 1977 (public notification required)	159
j ⇩	Next steps following classification	161

Ngā kaihaina

Signatories

Authors

Darren Jeong - Service and Asset Planner

Authorisers

Angela Clarke - Head of Service Investment & Programming

Manoj Ragupathy - Local Area Manager

Papakura Local Board

28 May 2025

Proposed new community lease to Te Kohanga Reo National Trust Board at 6R Liddy Place, Papakura

File No.: CP2025/03778

Te take mō te pūrongo

Purpose of the report

1. To seek approval from the Papakura Local Board to grant a new community lease to Te Kohanga Reo National Trust Board for land located at 6R Liddy Place, Papakura.

Whakarāpopototanga matua

Executive summary

2. Te Kohanga Reo National Trust Board (the trust) seeks a new community lease to continue occupation and operation from a tenant-owned building at 6R Liddy Place, Papakura.

3. The trust held the ground lease which has reached final expiry on 30 September 2024. The lease is holding over on a month-by-month basis on same terms and conditions until terminated or a new lease is granted.

4. The new lease was identified and approved by the Papakura Local Board as part of its Customer and Community Services: Community Leases Work Programme 2024-2025 on 2 July 2024 (resolution number PPK/2024/79).

5. The trust aims to provide early childhood care services to young children between 2 and 5 years of age. The group aims to create nurturing, stimulating environments where children can thrive and develop a love for learning, setting a strong foundation for their future education and personal growth.

6. These activities align with and support the Papakura Local Board Plan 2023:

· Our Community – Papakura’s open spaces and recreation facilities are fit for purpose and well used.

7. The trust has provided all required information including financials, showing that it has sufficient funds and they are being managed appropriately. The trust has all the necessary insurance cover, including public liability insurance, in place.

8. As this is a tenant-owned building, they have an automatic right to re‑apply for a new lease at the end of their occupancy term.

9. Staff have assessed the application, and all conditions for a new lease have been met by the applicant. A site visit was undertaken on 25 September 2024 and the facility appears to be in good condition and is well maintained.

10. Staff engaged with the council’s internal stakeholders, and they are all supportive of the proposed lease.

11. Iwi engagement is required and took place in February 2025. No objections have been received.

12. A Community Outcomes Plan has been agreed upon and will be appended to the lease as a schedule of the lease agreement.

13. This report recommends that a new community lease be granted to Te Kohanga Reo National Trust Board for a term of 10 years commencing from 1 April 2025 with one 10 years right of renewal.

14. If the local board decides to grant the lease, staff will work with the lessee to finalise the lease agreement.

Ngā tūtohunga

Recommendation/s

That the Papakura Local Board:

a) whakaae / grant subject to 61 (2A) a of the Reserves Act 1977, a new community lease to the Te Kohanga Reo National Trust Board for an area comprising approximately 1205m² located at 6R Liddy Place, Papakura on the land legally described as Lot 11 Deposited Plan 87225, NA44D/1002 (as per Attachment A – Site Plan), subject to the following terms and conditions:

i) term – 10 years, commencing 1 April 2025, with one 10 years right of renewal.

ii) rent – $1,300.00 plus GST per annum.

iii) Community Outcomes Plan - to be appended to the lease as a schedule of the lease agreement (as per Attachment B – Community Outcomes Plan).

b) whakaae / approve all other terms and conditions in accordance with the Reserves Act 1977 and the Auckland Council Community Occupancy Guidelines 2012 (updated July 2023), and the Auckland Council standard form community lease agreement for a new community lease to the Te Kohanga Reo National Trust Board for an area comprising approximately 1205m² located at 6R Liddy Place, Papakura.

c) tuhi ā-taipitopito / note that iwi engagement for Auckland Council’s intention to grant a new community lease to Te Kohanga Reo National Trust Board at 6R Liddy Place, Papakura has been undertaken.

Horopaki

Context

15. Local boards have the allocated authority relating to local recreation, sport and community facilities, including community leasing matters.

16. The Papakura Local Board approved the Customer and Community Services: Community Leases Work Programme 2024-2025 on 2 July 2024 (resolution number PPK/2024/79).

17. The progression of this lease to Te Kohanga Reo National Trust Board at 6R Liddy Place, Papakura was part of the approved work programme. This report considers the new community lease as approved on the work programme.

Land, building/s and lease

18. Te Kohanga Reo National Trust Board is located at 6R Liddy Place, Papakura (refer to Attachment A Site Plan - 6R Liddy Place, Papakura). The land is legally described as Lot 11 Deposited Plan 87225, NA44D/1002 held in fee simple (owned) by Auckland Council as a classified local purpose (community building) reserve subject to the Reserves Act 1977.

19. Te Kohanga Reo National Trust Board holds a community lease for a tenant-owned building on the council owned land situated at 6R Liddy Place, Papakura.

20. For a group owned building, all operational and maintenance costs are borne by the lessee.

21. The building is primarily used by the group to provide early childhood care services to young children between 2 and 5 years of age.

22. These programmes provide a nurturing, stimulating environment where children can thrive and develop a love for learning, setting a strong foundation for their future education and personal growth.

Te Kohanga Reo National Trust Board

23. Te Kohanga Reo National Trust Board was established in 1986, and its primary purpose / objective is to provide early childhood care services to young children between 2 and 5 years of age.

24. The trust has included relevant information to include a membership of 17 tamariki of Māori ethnicity; 4 full-time staff; and is in operation for 35 hours per week.

25. The trust has been operating from 6R Liddy Place, Papakura since October 2009.

26. The trust’s current community lease with the council commenced on 1 October 2009 and has expired on the 30 September 2024. The lease to the group is holding over on a month-by-month basis on the same terms and conditions until terminated or a new lease is formalised.

Tātaritanga me ngā tohutohu

Analysis and advice

27. Under the Community Occupancy Guidelines 2012 (updated July 2023), groups that own their own buildings have an automatic right to re‑apply for a new lease at the end of their occupancy term. Te Kohanga Reo National Trust Board is exercising this right by applying for a new lease. The local board has discretion to vary the term of the lease if it wishes. However, the guidelines suggest that where the term is varied, it aligns to one of the recommended terms.

Public notification and engagement

28. Public notification is not required as the classified local purpose (community building) reserve subject to the Reserves Act 1977 is the intended use under the land classification.

Assessment of the application

29. The trust has submitted a comprehensive application supporting the new lease request and is able to demonstrate its ability to deliver early childhood care services.

30. The area proposed to be leased to the Te Kohanga Reo National Trust Board consists of approximately 1205 m²and is outlined in Attachment A –Site Plan.

31. The trust has provided financials which show that accounting records are being kept, funds are being managed appropriately and there are sufficient funds to meet liabilities.

32. The trust has all necessary insurance cover, including public liability insurance, in place.

33. A site visit has been undertaken by staff on the 25 September 2024 and the facility is well managed and appears to be well maintained.

34. The group provides a valuable service to the local community by providing early childhood care services to young children between 2 and 5 years of age.

35. A community outcomes plan has been negotiated with the Te Kohanga Reo National Trust Board to identify the benefits it will provide to the community. This will be attached as a schedule to the lease agreement and is attached to the report as Attachment B - Community Outcomes Plan.

36. Auckland Council’s Community Occupancy Guidelines 2012 (updated July 2023) sets out the requirements for community occupancy agreements and will be included as part of the lease agreement if approved by the local board.

37. Staff recommend that a new community lease be granted to Te Kohanga Reo National Trust Board for a term of 10 years commencing from 1 April 2025 with one 10 years right of renewal.

Tauākī whakaaweawe āhuarangi

Climate impact statement

38. It is anticipated that activation of the building will not result in an increase of greenhouse gas emission. A shared workspace/community space will however decrease overall energy use, as users will not consume energy at individual workspaces. The shared space will provide opportunity and enable people to enjoy positive healthy lifestyles and will increase capability and connections within local community.

39. To improve environmental outcomes and mitigate climate change impacts, the council advocates that the lease holder:

· use sustainable waste, energy and water efficiency systems.

· use eco labelled products and services.

· seek opportunities to reduce greenhouse gas emissions from lease-related activities.

40. Asset improvements and maintenance undertaken by the council will strive for maximum re-use and recycling of existing material. This will be in alignment with the waste management hierarchy (prevention, reduction, recycle) to ensure minimum impact on greenhouse gas emission.

41. All measures taken are aimed at meeting council’s climate goals, as set out in Te Tāruke-ā-Tāwhiri: Auckland’s Climate Plan, which are:

· to reduce greenhouse gas emissions to reach net zero emissions by 2050 and

· to prepare the region for the adverse impacts of climate change.

42. Climate change has a likely potential to impact the lease, as the leased area is located in a flood plain zone. The group has been advised of this flood risk so that they can prepare a long-term plan for occupancy at this location.

Figure 1. Area map showing the flood plain areas within the lease boundary highlighted in blue.

43. Staff from the Healthy Waters team were consulted on the proposal and advised that a building height of 700mm above ground level would provide sufficient freeboard in the event of a flood. The trust has submitted the building floor plan, which indicates that the building height ranges between 730mm and 950mm, exceeding the recommended minimum.

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

44. The following council staff have been consulted on the proposal. No objections to the proposed new community lease have been received:

· Parks and Places Specialist, Parks and Community Facilities

· Facilities Manager, Parks and Community Facilities

· Facilities Coordinator, Parks and Community Facilities

· Manager Area Operations, Parks and Community Facilities

· Senior Maintenance and Delivery Coordinator, Parks and Community Facilities

· Community Broker – Connected Communities

· Manager Southern Operations -Healthy Waters.

45. Overall staff are supportive of the proposed new community lease as it will promote overall community wellbeing for the Papakura community.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

46. The proposed lease will benefit the community by enabling initiatives that promote early childhood care services that will be delivered from the facility for the local board area and its surrounding communities.

47. The assessment of the application was discussed with the local board at a workshop held on 2 October 2024. The local board indicated its in principle support of the lease proposal.

48. The delivered activities align and support the Papakura cal Board Plan 2023:

· Our Community – Papakura’s open spaces and recreation facilities are fit for purpose and well used.

Tauākī whakaaweawe Māori

Māori impact statement

49. Iwi engagement about the council’s intention to grant a new community lease to Te Kohanga Reo National Trust Board located at 6R Liddy Place, Papakura was undertaken in February 2025 with thirteen iwi groups identified as having an interest in land in the local board area.

The engagement involved:

· an email to all iwi identified as having an interest in the area and containing detailed information on the land, the lessee, the lease proposal as per the Reserves Act 1977.

50. No objections or requests for hui or kaitiaki site visit received from the iwi and mana whenua groups who responded.

51. The lessee has agreed, via a community outcomes plan, to deliver Māori Outcomes that reflect their local community as per Attachment B of this report. The lease will benefit Māori and the wider community through Māori education.

52. Auckland Council is committed to meeting its responsibilities under Te Tiriti o Waitangi and its statutory obligations and relationship commitments to Māori. The council recognises these responsibilities are distinct from the Crown’s Treaty obligations and fall within a local government Tāmaki Makaurau context.

53. These commitments are articulated in the council’s key strategic planning documents the Auckland Plan, the Long-term Plan 2024-2034, the Unitary Plan (operative in part), individual local board plans and in Whiria Te Muka Tangata, Auckland Council’s Māori Responsiveness Framework.

54. Community leasing aims to increase Māori wellbeing through targeted support for Māori community development projects.

55. Community leases support a wide range of activities and groups. Leases are awarded based on an understanding of local needs, interests and priorities. The activities and services provided by leaseholders create benefits for many local communities, including Māori.

Ngā ritenga ā-pūtea

Financial implications

56. On 8 June 2023, the 2023/2024 Annual Budget was approved by the Governing Body which included changes to the Community Occupancy Guidelines of the rent fee for a community ground lease from $1 per annum to $1,300 plus GST per annum effective from 1 July 2023.

57. If the local board chooses to retain the level of rent at $1, there will be no requirement for the local board to top up the community lease revenue budget. However, the local board will not have the benefit of the additional revenue of $1299 per annum over the initial term of the lease. The level of rent can be reviewed on renewal of the lease and on the expiry date of the lease.

58. Ongoing maintenance of the asset will be covered by the lessee

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

59. Should the local board resolve not to grant the proposed community lease to Te Kohanga Reo National Trust Board at 6R Liddy Place, Papakura the group’s ability to undertake all current and future activities will be negatively impacted. This will have an adverse impact on the achievement of the desired local board plan outcome/s.

60. The new lease affords the groups security of tenure, enabling them to attend to the scheduled maintenance of the facility. Should the building remain unoccupied, there is a risk associated with the lack of maintenance and possible improvements. Council will be liable for the asset/s regardless of whether budget is allocated to or identified for renewals. The renewal of the building will also not appear in the annual work programme.

Ngā koringa ā-muri

Next steps

61. If the local board resolves to the grant the proposed new community lease, staff will work with the Te Kohanga Reo National Trust Board to finalise a lease agreement in accordance with the local board’s decision.

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	Site Plan	171
b ⇩	Community Outcomes Plan	173

Ngā kaihaina

Signatories

Authors

Malinda Naidoo - Community Lease Specialist

Authorisers

Kim O’Neill - Head of Property & Commercial Business

Manoj Ragupathy - Local Area Manager

Papakura Local Board

28 May 2025

Endorsing Business Improvement District (BID) targeted rate grants for 2025/2026

File No.: CP2025/02953

Te take mō te pūrongo

Purpose of the report

1. To confirm Business Improvement District (BID) annual compliance against the Auckland Council BID Policy (Kaupapa Here ā-Rohe Whakapiki Pakihi) as of 10 March 2025.

2. To consider whether the local board should recommend to the Governing Body the setting of the targeted rate for the Papakura Improvement District (BID) programme for the 2025/2026 financial year.

Whakarāpopototanga matua

Executive summary

BID-operating business associations within the local board area

3. Business Improvement Districts (BIDs) are programmes where local business and property owners have agreed to work together to improve their business environment, encourage engagement with all BID members and attract new businesses and customers.

4. The BID Policy includes a total of 23 Requirements, 19 are the direct responsibility of the BID-operating business association (BID) and inform this report. As part of the 19 requirements, the BIDs are required to provide annual accountability reports which are due 10 March each year.

5. All BIDs need to work with the BID Policy and meet the terms of the signed three-year BID Targeted Rate Grant Agreement.

6. The BID annual accountability reports on public funds received by the BID within the local board area for the 2023/2024 financial year and compliance with the Auckland Council BID Policy (2022) as of 10 March 2025. This report has a direct link to council’s Annual Plan and budget 2025/2026 process to set the BID targeted rates for 2025/2026.

7. Papakura Local Board has one BID operating in their local area:

Table 1: BID targeted rate sought 2025/2026

Incorporated Society Name

Proposed 2025/2026 Targeted Rate

Met BID Policy annual accountability reports

Papakura Business Association Inc

$332,750.00

Yes

8. Staff recommend that the local board supports Papakura Business Improvement District receiving their targeted rate grant for 2025/2026 set by the Governing Body.

Ngā tūtohunga

Recommendation/s

That the Papakura Local Board:

a) recommends to the Governing Body the setting of the 2025/2026 BID targeted rates for inclusion in the 2025/2026 Annual Plan and budget for the following Business Improvement District (BID) programmes:

i. $332,750.00 for Papakura BID.

Horopaki

Context

BID Policy and BID targeted rate grant agreement

9. Auckland Council’s Business Improvement District (BID) Policy (2022) (Kaupapa Here ā-Rohe Whakapiki Pakihi includes a total of 23 requirements, 19 of which are the direct responsibility of the BID-operating business association (BID) and inform this annual report. (Attachment A)

10. The remaining four BID Policy requirements set out the process for establishing, expanding, and discontinuing a BID programme; and determines rating mechanisms. These will be covered within individual BID local board reports.

11. The BID Policy does not prescribe or measure standards for BID programme effectiveness. That is a matter for business association members to determine. Staff, therefore, cannot base recommendations on these factors, but only on the policy’s express requirements.

12. The BID Policy is supported by a BID Targeted Rate Grant Agreement, a three-year agreement signed by both Auckland Council and each BID-operating business association’s executive committee. The agreement sets out the relationship between the parties, how payment will be made and that compliance with the BID Policy is mandatory. The agreement confirms the business associations’ independence from Auckland Council. All 51 BIDs currently have a BID Targeted Rate Grant Agreement which will finish on 30 June 2025. Staff are preparing the Agreement for signing in June 2025 for the upcoming three-year period.

13. This report to the local board focus on the BIDs annual accountability reporting (BID Policy Requirements 9, 11 and 18) relating to public funds received by the BID for the 2023/2024 financial year. The report also confirms compliance with the 19 BID Policy Requirements that are the responsibility of the BID as of 10 March each year.

14. This report includes a copy of the individual BIDs Governance Summary document (Attachment B). This document includes the full resolution detailing the amount of BID targeted rate grant approved by association members at their 2024 Annual General Meeting (AGM) for the 2025/2026 financial year. The BID Chair also agrees, by signing this document, to advise council of any perceived or real/current issues that can affect compliance with the BID Policy.

BID Programmes

15. Local BID programmes should provide value to the collective business community by delivering a suite of economic activities that respond to local needs and opportunities and are agreed by the local business community. BID programmes also provide the opportunity to work with the council group and engage with local boards.

16. The BID programme does not replicate services provided by the council but channels the capabilities and knowledge of the private sector to improve economic outcomes and achieve common goals.

17. Each business association operating a BID programme sets the BID targeted rate grant amount at its AGM when members vote to approve a detailed income and expenditure operational budget and business plan for the following financial year.

18. Responsibility for delivery and the outcomes of the BID programme sits with the individual BID-operating business association executive committee (provision of reporting information) and members (reviewing information provided to them by the executive committee).

19. All BIDs need to be aware of the requirement to re-register by April 2026 under the updated Incorporated Societies Act 2022. All BIDs are registered incorporated societies and may need to update their constitutions to meet the new Act.

BID Policy refresh 2025

20. The BID Team undertook a refresh of the BID Policy starting in October 2024. This refresh is nearing completion with the final draft of the BID Policy 2025 document going to the Governing Body meeting on 29 May.

Regional BID Programme Growth

21. Grey Lynn Business Association achieved a successful BID establishment ballot in November 2024. This will see them commence as a new BID from 1 July 2025 with a BID targeted rate grant of $320,000.

22. Takanini Business Association failed to meet the BID Policy ballot mandate and will not progress the BID establishment project to full BID status.

23. Two business associations are in the process of having their BID programmes stopped for non-compliance with the BID policy.

24. This will bring the total number of BID programmes to 50 as of 1 July 2025.

25. There are several BIDs signalling a review of their BID boundary areas and progressing towards a BID expansion over the next few years. These include Howick, Kingsland, Manurewa and Glen Eden.

Papakura Local Board BID Targeted Rates 2025/2026

26. Papakura Local Board has one BID operating in their local board area. Table 2 shows the amount of targeted rate the BID had approved at their 2024 AGM for the 2025/2026 financial year and linked to the council’s Annual plan and budget 2025/2026 approval process.

Table 2: BID targeted rate changes in 2025/2026

Incorporated Society Name

Proposed 2025/2026 Targeted Rate

(Approved at AGM)

BID targeted rate grant 2024/2025

Proposed increased over 2024/2025

Papakura Business Association Inc

$332,750.00

$302,500.00

10%

27. 37 BIDs increased their targeted rate grant amount for 2025/2026 - between 2 per cent to 42.5 per cent - while 12 maintained the fiscal status quo.

Decision making

Auckland Council

28. The recommendation in this report is put into effect with the Governing Body’s approval of the Annual Plan and budget 2025/2026 and its setting of the 2025/2026 targeted rates.

29. In accordance with the provisions of the Local Government Act 2002 and the Local Government (Rating) Act 2002, the Governing Body is authorised to make the final decisions on what BID programme targeted rates, if any, to set in any particular year or property (in terms of the amount and the geographic area to be rated).

Local Boards

30. Under the Auckland Council shared governance arrangements, local boards are allocated several decision-making responsibilities in relation to BID programmes. One of these is to annually recommend BID targeted rates to the Governing Body if it is satisfied that the BID is sufficiently complying with the BID Policy.

Tātaritanga me ngā tohutohu

Analysis and advice

BID 2025 Accountability Reporting process overview

31. Upon receipt of individual BID annual accountability documents, staff follow a set process that includes reviewing the documents provided for 10 March 2025 against the BID policy, analysing changes from the previous accountability period, and following up with BIDs on any identified issues.

32. The BID team report this year that all BIDs successfully completed their annual accountability reporting by the due date of 10 March 2025. There were no serious issues identified as part of this annual accountability review.

33. The BID Policy, Requirement 11, sets out the documents that form the annual accountability reporting documents for each BID. These documents confirm membership decision-making has taken place regarding the BID programme at the 2024 AGM. Other reporting requirements include the filing of annual financial statements with the Companies Office under the Incorporated Societies Act.

34. At the time of writing this report over 12 BIDs had completed the reregistration process with the NZ Companies Office under the Incorporated Society Act 2022.

Papakura Local Board BID

35. Using the documents and information submitted, the BID Team is satisfied that Papakura BID has sufficiently met the BID Policy Requirements and the BID Policy for setting of the BID targeted rates for 2025/2026.

36. Staff advise the local board to recommend to the Governing Body the setting of the targeted rates for 2025/2026 as set out in Table 1.

Tauākī whakaaweawe āhuarangi

Climate impact statement

37. Through targeted rate-funded advocacy and activities, BID-operating business associations promote and can facilitate environmental sustainability programmes and climate response where appropriate.

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

38. Advocacy is a key service provided by business associations that operate a BID programme. BID-operating business associations ensure the views and ambitions of their members are provided to elected representatives and council teams, including CCOs, on those policies, plans, programmes, and projects that impact them.

39. BIDs will continue to work across council and at various times alongside the Council-Controlled Organisations.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

40. The local board’s views are most frequently expressed by its appointed representative on the board of each BID-operating business association. This liaison board member (or alternates) can attend BID board meetings to ensure there is a direct link between the council and the operation of the BID programme.

41. Papakura BID programme best aligns with the Papakura Local Board Plan 2023, Outcome: Our Economy: To encourage thriving business communities in the local board area.

42. Recommending that the Governing Body sets the targeted rates for Papakura Business Association means that this BID programme will continue to be funded from targeted rates on commercial properties in their respective rohe. They will provide services in accordance with their members’ priorities as stated in their strategic plans.

Tauākī whakaaweawe Māori

Māori impact statement

43. The BID Policy and the annual accountability process does not prescribe or report on individual BID programme’s effectiveness, outcomes, or impacts for Māori. However individual BIDs may include this level of detail in other reports provided to their members. This localised project reporting is not a requirement of the BID Policy and is not part of the BID Policy annual accountability reporting.

Ngā ritenga ā-pūtea

Financial implications

44. There are no financial implications for the local board. Targeted rates for BID-operating business associations are raised directly from business ratepayers in the district and used by the business association for improvements within that rohe. The council’s financial role is to collect the BID targeted rates and pass them directly to the associations every quarter.

45. The targeted rate is payable by the owners of the business rated properties within the geographic area of the individual BID programmes.

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

46. To sustain public trust and confidence in the council, the BID Policy sets out a balance between the independence of the BID-operating business associations and the accountability for monies collected by a public sector organisation.

47. For the council to be confident that the targeted rate grant funds provided to the BID-operating business associations are being used appropriately, it requires the BIDs to fully complete all annual accountability reporting and the 19 BID Policy Requirements that are the responsibility of the BID.

48. Council staff regularly monitor compliance with the BID Policy throughout the year including responding to queries and issues raised by council staff, members of the BID, the public and elected members.

49. The BID Team actively seeks out and grows relationships with council departments that interact with BID programmes to ensure a consistent approach is applied for the programme.

50. The role of the local board representative is a key link between the parties involved in the BID programme in terms of communication and feedback. Local Board representatives on BID programmes are strongly encouraged to contact the BID Team if they have any queries or concerns.

51. This report is part of an active risk management programme to minimise inappropriate use of funds. It provides an annual update that the BIDs operating within the local board area are compliant with the BID Policy.

Ngā koringa ā-muri

Next steps

52. If the local board supports this report, it will recommend to the Governing Body that the BID targeted rates be set as part of the Annual plan and budget 2025/2026.

53. After the targeted rates are approved, the council will collect the targeted rate funds effective from 1 July 2025 and distribute them in quarterly BID grant payments to Papakura BID.

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	BID Policy Requirements Summary	181
b ⇩	Papakura BID Governance Declaration	185

Ngā kaihaina

Signatories

Authors

Gill Plume - BID Senior Advisor

Claire Siddens - Principal Advisor

Authorisers

Alastair Cameron - Manager CCO/External Partnerships team

Anna Bray - General Manager Group Strategy, Transformation and Partnerships

Manoj Ragupathy - Local Area Manager

Papakura Local Board

28 May 2025

Auckland Council’s Quarterly Performance Report: Papakura Local Board for quarter three 2024/2025

File No.: CP2025/07945

Te take mō te pūrongo

Purpose of the report

1. To receive the Papakura Local Board’s integrated quarterly performance report for quarter three, 1 January to 31 March 2025.

Whakarāpopototanga matua

Executive summary

2. This report includes financial performance, progress against work programmes, key challenges the board should be aware of and any risks to delivery against the 2024/2025 work programme.

3. The work programme is produced annually and aligns with Papakura Local Board Plan outcomes.

4. The key activity updates from this quarter are:

· Papakura community facilities continue to be treasured assets in the community. Some programmes have seen a drop-off in attendance mainly attributed to cost of living pressures.

· The programmes delivered by both Sir Edmund Hillary Library and Te Paataka Koorero o Takanini are well received and prove to be popular with the local community

· Hawkins Theatre was closed throughout quarter three for extensive maintenance, installation of new air conditioning units, auditorium lighting and carpet upgrades.

· The 2025 Movies in Parks Papakura event was successfully delivered at Central Park Papakura on Saturday 15 March 2025 to an estimated 600 attendees.

· ParkFest and the Papakura Summer Concert were successful events held during quarter three.

· Some short-term play installations have been installed at Awakeri Wetlands to support outcomes from CLM Community Sport's play engagement with Kauri Flats Primary School.

· 86 activations have been delivered to date to a total of 2,241 attendees in the activation of parks, places and open spaces work programme. The budget is fully spent in this work programme.

5. All operating departments with agreed work programmes have provided a quarterly update against their work programme delivery. Activities are reported with a status of green (on track), amber (some risk or issues, which are being managed) or grey (cancelled, deferred or merged). The following activities are reported with a status of red (behind delivery, significant risk):

· Papakura Art service and service property optimisation (ID4467)

· Papakura heritage digital solution scope (ID4418).

6. Net operating performance for Papakura Local Board is 14 percent below budget for the nine months ended 31 March 2025. Operating expenditure is on budget, and operating revenue is 14 per cent below budget. Capital expenditure is three per cent below budget year to date.

7. The board is also asked to consider re-allocating budgets to work programme lines that require additional funding.

Ngā tūtohunga

Recommendation/s

That the Papakura Local Board:

a) whiwhi / receive the integrated performance report for quarter three ending 31 March 2025

b) whakaae / agree to reallocate the following underspends to the Community Grants work programme (ID365)

• $3,100 from the Ara Kōtui work programme (ID3554)

• $4,250 from the Local Civic Events work programme (ID362)

• $2,000 from the Papakura Local Board Engagement work programme (ID4378)

c) whakaae / agree to a further $5,000 top up to Papakura Museum work programme (ID346) budget from the Community Grants budget line (ID365)

d) whakaae / agree to the remaining $4,000 budget in the Takanini business support - establishing a new BID work programme (ID1409) being used for four networking events: one of which has to be done prior to 30 June 2025 and the other three to be done prior to 30 June 2026.

e) tuhi tīpoka / note the grant refund of $2,000 from Counties Manukau Sport (QR2114-330 - Papakura Whanau Triathlon Day).

Horopaki

Context

8. The Papakura Local Board has an approved 2024/2025 work programme for the following:

· Customer and Community Services

· Local Environmental

· External Partnerships

· Plans and Places

· Auckland Emergency Management

· Local Governance.

9. The graph below shows how the work programme activities meet Local Board Plan outcomes. Activities that are not part of the approved work programme but contribute towards the local board outcomes, such as advocacy by the local board, are not captured in this graph.

Graph 1: Work programme activities by outcome

Tātaritanga me ngā tohutohu

Analysis and advice

Local Board Work Programme Snapshot

10. The graph below identifies work programme activity by RAG status (red, amber, green and grey) which measures the performance of the activity. It shows the percentage of work programme activities that are on track (green), in progress but with issues that are being managed (amber), activities that have significant issues (red) and activities that have been cancelled/deferred/merged (grey).

Graph 2: Work programme performance by RAG status

11. The graph below shows the stage of the activities in each departments’ work programmes. The number of activity lines differ by department as approved in the local board work programmes.

Graph 3: Work programme performance by activity status and department

Graph 4: Work programme performance by activity status

Key activity updates from quarter three

12. Papakura Museum operational grant (ID346): The Papakura Museum had an active quarter three with seven main events, with 3,276 attendees and achieving three Māori outcomes. Achievements for the quarter:

· Completion of the Papakura Heritage Places Map with Te Aakitai, Ngaati Te Ata Waiohua and Ngaati Tamaoho.

· Papakura Now & Then exhibition engaged the local community through a series of images that juxtaposed historic images with current.

· All Ablaze, in partnership with Papakura Volunteer Fire Brigade Commemorating the 100th anniversary of the Papakura Volunteer Fire Brigade.

· The Museum Curator had a successful community outreach programme

· The Museum Military galleries have been updated with four new displays all with local content

· Completed the revamp of our Museum Military Gallery showcasing, WW1 Māori (Pioneer) Battalion, Papakura Cadets Unit, 4th Squadron and ode to Theo Thomas WW2

· Museum Talks: Dr Brian McDonnell on the US Troops in Auckland During WW2

· Ancient Egyptian History, booked by Beachlands U3A presented by Museum Curator Alan Knowles.

· Auckland’s Founding 1840: A Neglected Story by Tessa Duder.

13. Papakura Art Gallery (ID343):

· Quarter three began with Paula Green’s collaborative community mural project, which featured strong Māori motifs and floral designs inspired by her exhibition. The project generated high levels of community engagement.

· In February, Preston McNeil’s exhibition Arca Arcade: Round One brought a playful and nostalgic lens to contemporary design and artistic expression. A public programme, delivered in partnership with the Sir Edmund Hillary Library, invited tamariki to draw their favourite video game character or invent a new one. Jointly promoted by both venues, the initiative received over 50 entries, which were exhibited and judged by the artist on the final day.

· The exhibition’s finale featured a Street Fighter competition that proved a standout success. With 20 participants, 16 on the waitlist, and over 50 attendees, the event brought new and diverse audiences to the gallery and delivered strongly on youth engagement outcomes.

· The quarter closed with a celebration of The Papakura Art Group, showcasing the rich history of Papakura, its people, heritage buildings, and community stories through a vibrant and well-received exhibition.

14. Hawkins Theatre (ID344) - Hawkins Theatre was closed throughout quarter three for extensive maintenance and installation of new air conditioning units for the venue, as well as auditorium lighting and carpet upgrades.

15. Library services and programming – Papakura (ID1198 and ID4388) - Sir Edmund Hillary Library was bustling with families and tamariki during the summer months. Council Services during the quarter predominantly revolved around transactions concerning dog registrations, rates rebates, rates payments and waste queries.

· In March the library team connected with the community to promote library membership, programmes and learning resources at the following special events - Rosehill Special School’s Family Fun Day, Papakura Rotary Community Hui, and Papakura ParkFest.

· The Papakura Library Ukulele Group delivered a 30 minute performance on the centre stage and visitors to the library stall enjoyed the badge-making activity.

· The Children’s Librarian delivered seventeen Wriggle & Rhyme sessions, visited seven pre-schools, and hosted a Library orientation for students from Mangapikopiko Primary School. At the end of the class visit, every student received a library card and issued a book.

· Culturally diverse story-times were delivered to acknowledge celebrations such as Lunar New Year, Pride Month, Pasifika Month, and Eid al-Fitr.

· Regular programmes such as ‘Appy for Seniors’, Minecraft, Chess, and Crafternoon sessions continue to be popular with the community.

· Sir Edmund Hillary Library celebrated Auckland's World of Cultures Festival in March with music! During the week of 22 - 29 March, visitors to Accent Point enjoyed performances from the Papakura Brass Band, local musical duo - 2 Diamonds, and students from Red Hill Primary School who sang waiata and action songs. The Ben Fenandez Quartet, Brazilian singer Amanda Bovo, and Franco-American singer and musician, Sonia Wilson also performed. More than 300 people attended the events and community feedback was extremely positive.

· The library also contributed to Preston McNeil’s exhibition Arca Arcade at Papakura art gallery and related public programming as outlined in 343.

16. Te Paataka Koorero o Takaanini (ID1199) - Quarter three saw a busy period of events for Te Paataka, as Pride, World of Cultures and Pasifika Month were celebrated.

· February saw Te Paataka provide Pride Programming as a Proud Centre. A Pride themed Waiata i te whare saw singer Tyrun perform, after a tapa making workshop. A tumeke tales story time with Malcolm Clarke provided a colourful story time for under fives.

· Pasifika month was celebrated with a Koko and Paint evening. A Pasifika Fiafia provided the community with a day of celebration, lei, sei and ‘ei katu making. Performances and ura workshops were enjoyed by all.

· The World of Cultures theme was Rongoa noo te Ao: Healing practices from around the world. Community experienced a Kava workshop and learned about spices and everyday cures from their pantries.

17. Papakura Local Economic Development Options (ID5107) - Following the approval of the scoping document in February, staff issued a request for proposal (RFP), which closed on 30 March 2025. Proposals are currently under review, with final assessments expected in early April. Contractor engagement is anticipated to be confirmed by the end of April 2025.

18. Movies in Parks Papakura (ID364) - The 2025 Movies in Parks Papakura event was successfully delivered at Central Park Papakura on Saturday 15 March 2025 to an estimated 600 attendees.

19. Event partnership fund Papakura (ID363) - ParkFest and Papakura Summer Concert took place during quarter three and was a success.

20. Papakura Local Board play advocacy (ID3830) - Delivery is underway with a focus on providing some short-term play installations at Awakeri Wetlands to support outcomes from CLM Community Sport's play engagement with Kauri Flats Primary School, and installing tree swings (sites being confirmed, swings will be installed in the coming months).

21. Papakura activation of parks, places and open spaces (ID4345) - In quarter three, 48 activations were delivered to a total of 1,321 attendees. 86 Activations have been delivered to date to a total of 2,241 attendees. There are no more activations to be delivered in quarter four as the budget is spent. A summary of the programme is due to be reported to the local board at a workshop after June.

22. Massey Park Aquatic Centre (ID41) - During quarter three, Massey Park Pools experienced both notable successes and some challenges across its operations:

· The centre successfully managed the busy summer holiday period, delivering a range of engaging programmes for the community. Highlights included an inflatable activity course and hosting four weeks of swim carnivals for local schools such as Te Kura Te Kaupapa, Greenmeadows, Kelvin Road, Ardmore, and Rosehill Intermediate.

· The team continued delivering high-quality water safety programmes and collaborated with community groups such as Matatoa to support waka training and further water safety education.

· The annual indoor pool maintenance shutdown was effectively managed in collaboration with contractors, ensuring timely and smooth servicing and installation of key Council assets. During this period, the outdoor pool remained fully operational.

· Operational Performance:

· Membership numbers increased significantly by 46 percent, reaching a total of 148 members.

· Total pool visits saw a 12 percent decrease compared to the same period in FY24, dropping to 45,023 visits.

· Enrolments and lessons delivered rose by 15 percent, reaching a total of 6,941.

· Attendance for OSCAR programmes declined by 56 percent, with 438 attendees recorded for the quarter.

· Customer Satisfaction- The rolling 12-month customer satisfaction score stands at 81.3 percent, reflecting stable performance over the past year.

23. Papakura Leisure Centre operations (ID48) – In quarter three, Papakura Leisure Centre demonstrated mixed performance across various areas. The centre saw increases in group fitness attendance and improvements in OSCAR programme participation in March. However, visitor numbers overall decreased compared to the same period in FY24, with notable declines in fitness/group fitness attendance and recreation programme participation.

· Group Fitness Attendance: Increased participation in group fitness sessions during March, indicating growing interest in fitness activities.

· OSCAR Programme: A rise in OSCAR bookings and attendance in March, although bookings are down by 29 percent compared to FY24.

· Overall visitor numbers decreased when compared to the same period in FY24.

· Membership rose by 1.9 percent, bringing the total to 605 members, reflecting a moderate increase.

· A 22 percent decrease in fitness and group fitness visits, with 8,828 visits recorded.

· Recreation programmes had a 27 percent decrease in participation, including OSCAR, basketball, gymnastics, and sports leagues, totalling 15,903 participants.

Underspends

23. Takanini business support – establishing a new business improvement district (BID) programme (ID1409) - The Takanini Business Association (TBA) failed to reach the required BID ballot mandate set out in the BID Policy. This means the establishment of a new BID programme for the Takanini business community will not progress to the next stage and a Takanini BID targeted rate will not be set for 1 July 2025.

There is $4,000 remaining unspent in this budget line. The board was supportive in principle at its 7 May 2025 workshop that the remaining budget be used for four networking events: one of which has to be held prior to 30 June 2025 and the other three to be held prior to 30 June 2026.

24. Papakura Local Board Engagement (ID4378) - Staff report an underspend of $2,000 due to cancellation of events. The remaining $1,500 budget will be spent on local board collateral / product for future engagement use.

25. Ara Kōtui work programme (ID3554) – Due to lower attendance than anticipated, there is budget of $3,100 available for reallocation.

26. Local Civic Events (ID362) – Due to there being no civic events held there is an underspend of $4,250. Payment has been made for the kaumatua for the Opaheke Passive Park. The remainder of the fun day event planned for the Opaheke Passive Park will be funded by the developer.

Community Grants

27. Community grants (ID365) - The 2024/2025 Community Grants budget line was $192,691. As at 31 March 2025 the board has spent $136,988.03. There has been $25,386.32 received either in grant refunds or reallocations into the community grants budget line, leaving a total of $81,089.29. On 23 April 2025 the local board allocated $53,165.21 to the local grant round two applications. The total community grant budget available as at 5 May 2025 is $27,924.08. See the table below:

Amount	Description
$192,691.00	Total 2024/2025 grants budget
-$66,988.03	Amount spent as at 31 March 2025
-$40,000	Reallocation to 2024/2025 Local Environmental work programmes
-$30,000	Reallocation to the 2024/2025 Economic Development work programme
$25,386.32	Grant refunds and reallocations received as at 31 March 2025
$81,089.29	Community grant budget available as at 31 March 2025
-$53,165.21	Local grant round two – allocated 23 April 2025
$27,924.08	Community grant budget available as at 5 May 2025

28. Staff have reported a grant refund of $2,000 from Counties Manukau Sport (QR2114-330 - Papakura Whanau Triathlon Day).

Lease work programme

29. Negotiations - Longford Park Esplanade Reserve: Te Whānau Tupu Ngātahi O Aotearoa - Playcentre Aotearoa (1R Great South Road, Papakura) (ID4051) – Playcentre has received an offer from the Papakura Theatre Society to purchase this building. They are working through finalising this offer. Staff will workshop this item with the local board to get their feedback in quarter four.

Capital programme

30. Brylee Drive Reserve and Walter Strevens Reserve - upgrade park amenities (ID28553) - A topographical survey has been completed and a landscape designer has prepared an early-stage concept design for the sites. Next steps: Finalise landscape concepts, ensure the tentative options are affordable. Consult with the local board, iwi and the community.

31. 71 Twin Parks Rise - develop new neighbourhood park (ID30165) - A topographical survey has been completed and a landscape designer is considering tentative concepts for the site. Part of the site is zoned as "conservation" which will be taken into account in the design process. Next steps: Finalise landscape design concepts, ensure the tentative options are affordable, and consult with the community. Consult with the local board, iwi and the community.

32. Kai-pāwhara Reserve – develop new neighbourhood park (ID30818) - Physical works completed with the exception of a couple of items being addressed during the maintenance period (ie: overexposed concrete path, timber swings to be stained and shade sails to be put up after November). All outstanding works, with the exception of the concrete path have been completed.

33. Papakura – LDI minor capex fund 2024/2025 (ID42749) – Physical works are complete for the Children's Park (Castlepoint Avenue) – seating, picnic tables, and shade sail.

34. Papakura renew community buildings and open space buildings (stage 1) (ID45857) - Papakura Recreation Centre - flooring completed.

35. Papakura - renew open space furniture, fixtures, hard surfaces, and structures (ID46548) – Physical works have been completed for:

· Cargill Reserve swing and modular equipment renewals

· Drury Sports Complex bollards renewal.

Activities with significant issues

36. Papakura Art service and service property optimisation (ID4467) - A memo was sent to the local board on 17 February 2025 outlining the further information and advising there would be a report to a business meeting for decision-making. The business report has been finalised and is ready to be received at the 28 May 2025 local board business meeting. The activity status is ‘in progress” and the RAG status is reflected as Red.

37. Papakura heritage digital solution scope (ID4418) - Scoping of the project continues: work is underway regarding potential content and the proposed contractor is working on a brief. Due to delays the project will continue into next year and staff will be looking to “carry forward” some of the 2024/2025 budget into the next financial year. The activity status reflects this work programme as “in progress”, the RAG status is reflected as Red.

Activities on hold or at risk of not being delivered this financial year

38. The following work programme activities have been identified by operating departments as on hold or at risk of not being delivered this financial year:

· Prince Edward Park – Counties Manukau Softball Association Inc. lease (ID3608) – Staff followed up with the group on 28 November 2024 and are still waiting on the group to provide an asset condition report to determine the next steps regarding the feasibility of providing a new lease to the group. The activity status reflects this work programme as “in progress”, the RAG status is reflected as Amber.

· Papakura Te Kete Rukuruku Māori naming of parks and places tranche two (ID4159) – Iwi are currently working on names. It is expected to receive the names in quarter four depending on iwi capacity. The activity status reflects this work programme as “in progress”, the RAG status is reflected as Amber.

· Papakura Museum (ID346) and Museum top up (ID347) – Although these work programme lines are reflected as a green RAG status they should be reflected as Amber. The Papakura Museum has indicated they have a budget shortfall.

Due to cost pressures and price increases, such as insurances, website provider, and wages, the budget has become insufficient.

The impact of the budget shortfall has meant the Museum has had to shorten their opening hours. As of three weeks ago, Wednesday evenings and Saturday hours have been shortened by 1.5 hours each day. The curator and manager’s hours of work have been cut back to four days a week instead of five. Exhibitions may be declined.

The Museum has identified that a minimum of $5,000 additional top up for quarter four would allow the Museum to function effectively.

· Achieving Māori Outcomes Papakura: Ara Kōtui (ID3554) – The activity status reflects this work programme as “in progress”, the RAG status is reflected as Amber. Staff are reporting this work programme line as amber as there is an underspend of $3,100 in the budget. The work programme is progressing as expected. See paragraph 55 in the Māori Impact Statement section of this report for the quarter three commentary on this work programme line. The author is of the view that this work programme RAG status should be reflected as green.

Changes to the local board work programme

Deferred activities

39. These activities are deferred from the current work programme into future years:

· Hingaia Reserve Park: Licence for Community Garden (ID4011) – This work programme has been deferred to the 2026/2027 financial year until the next phase of the Hingaia Reserve’s redevelopment and the details of the concept plan can be provided. The RAG status is reflected as Grey.

Cancelled activities

41. The following activity was cancelled:

· Te Kōhanga Reo National Trust Board (Kiwitoa) lease (ID4301) - This item has been doubled up and needs to be cancelled and removed.

Activities merged with other activities for delivery

40. There were no reported activities merged with other activities for efficient delivery.

Activities with changes

41. The following work programmes activities have changes which been formally approved by the board.

Table 1: Work programmes change formally approved by the board

ID/Ref	Work Programme Name	Activity Name	Summary of Change	Resolution number
365	Customer and Community Services	Community Grants	Request that the Papakura Business Association return the $2,500 grant (application no. LG2414-204 approved on 22 May 2024, PPK/2024/57) for the ‘Chilling in the Park’ event as it is no longer proceeding at Central Park.	PPK/2024/165 resolution c) 23 Oct 2024 business meeting
365	Customer and Community Services	Community Grants	Reallocation of $2,000 allocated for the sound system for the RSA to deliver an Armistice Day Service in the ANZAC and Armistice Services work programme (ID360), to the Community Grants work programme line (ID365), noting the RSA has advised they no longer require the funds for the 2024/2025 financial year.	PPK/2024/189 resolution c) 27 Nov 2024 business meeting
363	Customer and Community Services	Event partnership fund Papakura	Agree to the rebranding of the Papakura Summer Concert to: Papakura Summer Concert (celebrating 100 years of the Local Volunteer Fire Service).	PPK/2024/189 resolution d) 27 Nov 2024 business meeting
NEW	Customer and Community Services	Scoping local economic development investment options	Approved the reallocation of $30,000 from the Community Grants Papakura work programme to fund the economic development scoping.	PPK/2025/12 resolution c) 26 Feb 2025 business meeting
365	Customer and Community Services	Community grants	Reallocation of underspends / refunds to community grants: · $2,500 underspend from Youth Grants (ID3476) work programme · $2,500 grant refund from the Papakura Business Association for the chillin’ in the park event that did not proceed · $783 film income	PPK/2025/18 resolutions b) and c) 26 Feb 2025 business meeting
365	Customer and Community Services	Community grants	Reallocation of $40,000 to the following Local Environmental work programmes: · $20,000 to Pest Free South Auckland, Papakura (ID3034) · $10,000 to Papakura Waste Minimisation (ID610) · $10,000 to Te Koiwi Pond enhancement (ID614) and Bruce Pulman Park Reserve pond enhancement (ID4408)	PPK/2025/12 resolution d) 26 Feb 2025 business meeting
4361	Customer and Community Services	Full Facilities Contracts Park Bins Top-up work programme line	· Approval of variation of full facilities contracts park bins top up work programme to $46,282. · Approval of removal of 26 rubbish bins · Approval of relocation of eight bins.	PPK/2025/36 resolutions a), b) and c) 26 March 2025 business meeting
365	Customer and Community Services	Community grants	Re-allocation of $12,200 from the 2024/2025 Full Facilities Contracts Park Bins Top-up work programme (ID4361)	PPK/2025/36 resolutions d) 26 March 2025 business meeting

42. The following work programmes activities have been amended to reflect minor change, the implications of which are reported in the table below. The local board was informed of these minor changes and they were made by staff under delegation.

Table 2: Minor change to the local board work programmes

ID/Ref

Work Programme Name

Activity Name

Change

Reason for change

Budget Implications

365

Customer and Community Services

Community Grants

Refund of grant application LG2314-203 Papakura High School

Refunding the grant as ParkFEST did not proceed.

$1,000 added to the community grants 2024/2025 total = $193,691

365

Customer and Community Services

Community Grants

Refund of grant application LG2414-142 Life Education Trust

Organisation refunded the grant as was not able to use it for the purpose granted.

$2,403.32 added to community grants 2024/2025 total = $196,094

Tauākī whakaaweawe āhuarangi

Climate impact statement

43. Receiving performance monitoring reports will not result in any identifiable changes to greenhouse gas emissions.

44. Work programmes were approved in June 2024 and delivery is already underway. Should significant changes to any projects be required, climate impacts will be assessed as part of the relevant reporting requirements.

45. The local board is currently investing in a number of sustainability projects, which aim to build awareness around individual carbon emissions, and changing behaviour at a local level. These include:

i) Pest Free South Auckland – Papakura (ID3034) – Two bat event evenings were organized at Kirks Bush by the Pest Free South Auckland coordinator and local activator, attracting 35 attendees. Participants learned about pekapeka, predator control, and ngahere health, with several taking rat traps home. These events fostered a working relationship with the Friends of Kirks Bush. A presentation on pest plants and animals was given to the Papakura Historical Society, attended by 40 people. The Conifer Grove and Pahurehure Inlet trap lines continue to be managed, with 43 pest animals caught this quarter. The moth plant competition launched on 3 March 2025, with 10 teams registered in Papakura.

ii) Wai Care Papakura (ID619) - Mountains to Sea engaged with Papakura Normal, Drury, Kelvin Road, and Red Hill Schools, delivering education sessions. A site visit to Short Street Reserve was undertaken. Despite the weather, previous plantings have shown pleasing growth. Students regularly monitor the area, and Kiwi Rail has been contacted to remove a fallen tree and a supermarket trolley from the waterway. Their ongoing kaitiakitanga is improving stream health.

iii) Papakura Waste Minimisation (ID610) - In quarter three, we had 28 workshops with approximately 250 participants hitting maximum numbers, particularly in the Kids Afterschool workshops. The focus was on making crafts to hold the participant’s interest and taught them how to identify recyclable plastics. Feedback from both children and parents shows good awareness of what plastic is recyclable. Adult workshops focused on teaching the old-fashion skills and how to avoid purchasing new while using existing items such as making bees wax wraps to replace plastic film and learning how to do needlework, knitting, crocheting, and sewing. Participants have also learnt how to repair or repurpose existing items, giving them a new lease on life. Additional workshops taught participants how to make wall hangings and plant hangings to decorate their home. Teaching these skills empowers participants to use what they already have to reduce buying new with unwanted packaging from shop-bought items which results in filling up our bins and going to landfill.

iv) Te Koiwi Pond Enhancement (ID614) – Weed releasing and maintenance completed around the small pond and the area of the large pond that has been started this year. With a reallocation of $2,000 from the local board being added to extend this into some infill planting to replace losses.

v) Papakura Stream Restoration programme – Papakura (ID615) - Weeding days are being undertaken by community and volunteer groups. Rubbish removal in the Papakura Stream has also been undertaken. The focus this quarter is around site preparation for planting in quarter four 2025. The intention is to plant 25,000 plants across Papakura Stream in 2025.

vi) Bruce Pulman Park Reserve Pond enhancement (ID4408) – This quarter has seen the final on-site hui to discuss the start date with mana whenua. A blessing has been offered, and an open date of 30 April 2025 is set, organisation of this is underway. The contractor also met on site with the park management team to discuss final details. The detailed planting plan was presented to the project lead and feedback has gone back with changes requested. The flyer on the work outline will also be delivered to neighbouring properties prior to the opening day.

vii) Papakura - Auckland Urban Forest (Ngahere) Strategy - Growing Phase (ID30815) –The planting plan has been updated with the local board monthly report. Final tree stock inspection complete. A minor substitution was made due to the quality and quantity of ordered stock. Next steps: Final update on the planting plan. Assign the planting plan to contractor to programme the planting schedule.

viii) Papakura Local Board community and business emergency response plans and resilience programme (ID3974) – The Papakura Local Board Emergency Readiness and Response Plan (ER&R) was officially launched in 2025 with launch activities being held over February and March. Launch activities were supported by media release and social media content.

Auckland Emergency Management has also signed an MOU with Neighbourhood Support to promote key information provided in the ER&R Plan at the street level. The ER&R Plan is progressively being promoted in the local libraries and CAB offices. Promotion of the ER&R Plan was also undertaken at Papakura ParkFest and Movies in the Park in collaboration with the local board.

A morning tea to celebrate the launch of the ER&R plan was also held with local board staff and Papakura Community Resilience Network.

A Community Civil Defence and Emergency Management Forum was also hosted by Auckland Emergency Management on 29 March to bring together key community groups across the region for a session of networking and collaboration.

Regionally Funded Project – Papakura Climate Ready Pilot

46. A regional Climate Ready pilot is underway in Papakura. The pilot has built off the 2023 community-led disaster resilience planning process initiated by the Papakura Local Board. Learnings will inform a regional approach to supporting community planning for climate disruption. Local boards will also be consulted on the draft approach in 2026.

47. The Papakura Climate Ready pilot has been testing methods for enabling community-led planning, action and participation, and a participatory grant-making model. It has included:

• A community climate haerenga (tour) hosted by Ngāti Tamaoho

• Introductory climate workshops across Papakura

• Tailored psychological first aid and community emergency hub training

• Delivery of Street Meets concept pilot

• Six weekly climate coordination hui/meetings with Ngāti Tamaoho

• Identification of grassroots Climate Ready projects

• A participatory grantmaking approach was used to decide how regional seed funding ($85,000 in 2024/2025) would be allocated to community priorities.

49. The following projects were allocated funding which will be delivered between June 2025 and June 2026:

• Awareness Campaign (Community Resilience Network) - Community-led awareness raising and education about climate and disaster readiness. Includes social media, events, workshops and marketing.

• Street Meets expansion (Papakura District Neighbourhood Support) - Street events that support neighbours to get to know each other, share resources, and support each other in challenging times.

• Addressing visible home drainage issues (Kootuitui Trust) - Expands the existing ‘warm dry homes’ programme – working with local whānau to address rubbish and drainage issues that exacerbate flood risks.

• Growing social cohesion in a growing suburb (Drury Community Committee) - Building connections in the rapidly growing community of Drury through: noticeboards, a mega ‘Street Meet’ event, establishing a community garden.

• Repair Café (Sustainable Papakura) - Project to establish and run a repair café in Papakura. The café will promote waste reduction and foster community skills and connection.

• Involving tamariki in ‘spongy and shady’ education and action (Blue Light) - 800 students will participate in Spongy Schools, Spongy Cities programme at the Auckland Botanic Gardens. They will also be connected to opportunities to participate in local climate discussion and action.

48. The local board may wish to request that these projects align and co-ordinate with the local board work programme leads.

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

49. When developing the work programmes council group impacts and views are presented to the local board.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

50. This report informs the Papakura Local Board of the performance for quarter three ending 31 March 2025.

Tauākī whakaaweawe Māori

Māori impact statement

51. Support Māori led aspirations Papakura (ID351):

· Papakura Maōri Wardens now currently have 13 fully warranted wardens with legislative authority. Warranted by the Minister for Māori Development to operate under the Māori Community Development Act 1962. Warden numbers are growing with 19 active wardens and three rangatahi wardens.

· Funding cuts from Auckland Transport Te Ara Haepapa programme have resulted in Broker supporting with external funding opportunities, including Transpower Community Care Fund to apply for new uniforms and SkyCity Community Trust for potential to fund rangatahi leaderships programmes.

· Whiri Aroha and raranga whatu classes are well attended, continuing to attract new and diverse members. Donations to the Middlemore Breavement Unit with anhaera pepe korowai took place for the first half of this calendar year.

· Community-led planning for Matariki is in progress with Ngāti Tamaoho Dawn Karakia at Pukekōiwiriki Pā scheduled for 7 June 2025, doubling as the official opening for regional Matariki celebrations.

52. Te Paataka Koorero o Takaanini (ID1199) - Thursdays became a day of Maaori Programming, such as:

· He Rangi Mokopuna supports two local kohanga to deliver a total immersion programme to under fives and their whaanau.

· He Puaawaitanga started as a programme for seniors to connect and gain Hauora services, with a free pick up service over 30 kaumatua attend weekly.

· A ten week creative writing programme aimed at rangatahi saw youth exploring poetry and prose through a Maaori lens.

53. History of Kirks Bush (ID4394) - Oral historian Janine Irvine has submitted the oral histories and all related paperwork to the Heritage Unit and with Auckland Libraries. The collection is being processed into Auckland Libraries Oral History Collection.

The catalyst for the project was the treaty settlement which has seen the transfer of this ngahere (forest) to mana whenua - Te Ākitai Waiohua. Te Ākitai Waiohua expressed the desire to have the history and experience of the volunteers who have worked on the Kirk’s Bush during the last three decades recorded.

This oral history collection shares the story of Kirks Bush from the perspective of men and women who were volunteers of Friends of Kirks Bush or supported the work of the Friends in particular ways. The friends’ group holds a deep knowledge of the history of the place and memories of the lived experience volunteering there.

54. Achieving Māori Outcomes Papakura: Ara Kōtui (ID3554) - A hui was held in February 2025 where the Terms of Reference for Ara Kōtui were reviewed and updated for 2025. A preliminary discussion on the concept of a three-year programme of elected member development in Te Ao Māori was discussed. There was general support for this, particularly the need for iwi to share priorities with elected members early in electoral term to inform local board plan development; also an opportunity for collective hui at the start of the term, noting the limited capacity of both local boards and iwi representatives.

Ngā ritenga ā-pūtea

Financial implications

55. This report is provided to enable Papakura Local Board to monitor the organisation’s progress and performance in delivering the 2024/2025 work programmes.

56. There are recommendations to reallocate Locally Driven Initiative Operating Expenditure (LDI Opex) budgets to the Community grants (ID365) work programme as follows:

ID	Activity Name	Underspend / Refund	Reason
4378	Papakura Local Board engagement	$2,000	Staff report an underspend due to cancellation of events.
3554	Ara Kōtui work programme	$3,100	Due to lower attendance than anticipated, there is budget of $3,100 available for reallocation.
362	Local Civic Event	$4,250	Due to there being no civic events held there is an underspend of $4,250. Payment has been made for the Kaumatua for the Opaheke Passive Park. The remainder of the fun day event planned for the Opaheke Passive Park will be funded by the developer
QR2114-330	Grant refund from Counties Manukau Sport	$2,000	Counties Manukau Sport has refunded the $2,000 grant for Papakura Whanau Triathlon Day

57. There is a recommendation for local board consideration to provide an additional $5,000 top up grant to Papakura Museum from the Community Grants budget line.

58. The reallocation recommendation has no financial impact on the overall LDI Opex budget.

Financial Performance

59. A summary of the board’s financial performance is provided below:

· Operating expenditure of $11.14 million is $1.76 million below budget.

· ABS (Asset Based Services) operating expenditure underspend of $1.5 million is made up of facility maintenance costs, Pukekiwiriki maintenance programme delays, and higher charges for facility utilities e.g. electricity and water.

· For LDI (Locally Driven Initiatives) operating expenditure there is underspend of $251,000 with the majority of this for contestable grants and some environmental programmes to be expended.

· Operating Revenue of $520,000 is $4,000 below budget with some facilities not meeting the venue targets due to closures, and others exceeding budgets.

· Capital expenditure of $2.1 million year to date is overall $74,000 below budget with the majority of programmes on target.

· The financial report for the nine months ended 31 March 2025 for Papakura Local Board area is in Appendix B attached.

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

60. While the risk of non-delivery of the entire work programme is rare, the likelihood for risk relating to individual activities does vary. Capital projects for instance, are susceptible to more risk as on-time and on-budget delivery is dependent on weather conditions, approvals (e.g. building consents) and is susceptible to market conditions.

61. The approved Customer and Community Services capex work programme include projects identified as part of the Risk Adjusted Programme (RAP). These are projects that the Community Facilities delivery team will progress, if possible, in advance of the programmed delivery year. This flexibility in delivery timing will help to achieve 100 per cent financial delivery for the financial year if projects intended for delivery in the current financial year are delayed due to unforeseen circumstances.

62. Information about any significant risks and how they are being managed and/or mitigated is addressed in the ‘Activities with significant issues’ section.

Ngā koringa ā-muri

Next steps

63. The local board will receive the next performance update following the end of quarter four (30 June 2025).

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	Papakura Local Board - Quarter three 2024/2025 Work Programme Update (1 January – 31 March 2025)	205
b ⇩	Papakura Local Board - Operating Performance Financial Summary for the period 1 January to 31 March 2025 (Quarter three)	231

Ngā kaihaina

Signatories

Authors	Lee Manaia - Local Board Advisor
Authorisers	Manoj Ragupathy - Local Area Manager

Papakura Local Board

28 May 2025

Auckland Council’s submission to proposed waste legislation changes – local board feedback

File No.: CP2025/09920

Te take mō te pūrongo

Purpose of the report

1. To outline the process and opportunity for local board members to tuku / provide feedback on the Government’s proposed amendments to the Waste Minimisation Act 2008 and Litter Act 1979 to inform the council’s draft submission.

Whakarāpopototanga matua

Executive summary

2. The Ministry for the Environment released its consultation document Have your say on proposed amendments to waste legislation - Tukuna ō whakaaro mō ngā menemana marohi ki te ture para, on 22 April 2025 outlining proposed amendments to the Waste Minimisation Act 2008 (WMA) and Litter Act 1979. Submissions on the proposed amendments close on 1 June 2025.

3. The proposed amendments for consultation relate to the following aspects:

· creating a framework for Extended Producer Responsibility (EPR)

· improving the allocation, distribution and use of waste disposal levy (WDL) funding

· clarifying roles and responsibilities for central government, local government and the waste sector

· creating a modern, effective compliance regime

· enabling controls to address impacts of ‘mismanaged waste’ (e.g. illegal dumping, litter and or ‘escaped’ waste carried by wind or water from one site to another).

4. Approval is being sought from the Policy and Planning Committee on 15 May 2025 to delegate authority to the Chair and Deputy Chair of that committee, and a member of Houkura, to review and approve the council’s final submission due 1 June 2025.

5. Waste Solutions staff will lead the development of Auckland Council’s submission which is due to the Ministry for the Environment by 1 June 2025.

6. A preliminary assessment of potential implications for Auckland Council of the proposed legislative amendments highlights the following key aspects, refer also to Attachment B:

· Implementation of extended producer responsibility: creating an EPR regulatory framework for end-of-life products would provide better support for waste minimisation and management outcomes for households and others. The EPR implementation may potentially provide positive impacts on resource recovery systems across the region, including opportunities through Auckland’s Resource Recovery Network.

· Funding impact: a change to the method to distribute waste disposal levy funds across all territorial authorities is proposed to provide a more equitable share distributed from larger councils to smaller councils. This would result in Auckland Council receiving a reduced amount from the ministry compared to the current population based method. This reduction will be partly offset by total levy funding increases from 2025–2027, due to higher waste disposal levy rates that the government confirmed in 2024. Maintaining certainty for the existing 50:50 share of levy revenue between central government and local government remains important to the council to ensure long term planning.

· Service delivery and costs: creating the ability to use waste disposal levy funding to support a wider range of environmental activities provides opportunities for the council and its partners to address local and regional issues, (including managing waste generated from climate-related and natural disasters, remediation of vulnerable closed landfills, and activities that reduce environmental harm). However, this would also introduce competing demands for limited waste disposal levy funding. There may also be the potential for increased operating costs to the council should a levy be applied to existing (or future) waste-to-energy facilities which are yet to be defined.

· Monitoring and enforcement of ‘mismanaged’ waste: a new compliance regime with potential impacts on effectiveness and resourcing.

7. Auckland Council’s submission will be developed based on policy positions articulated in relevant council strategy, such as Te Mahere Whakahaere me te Whakaiti Tukunga Para 2024 - Ki te Para Kore / Waste Minimisation and Management Plan 2024 – Towards Zero Waste (Waste Plan 2024) and other recent council submissions on government policy relating to waste management and minimisation.

8. Mana whenua will be invited to provide input on the council’s submission. Given the short timeframes involved in developing and submitting a submission, relevant, recently documented views from local boards and mana whenua on the waste plan 2024 may also be referred to.

9. Local boards can provide formal feedback by 22 May 2025 to be incorporated into the submission; or by 12.00pm on 30 May 2025 to be appended to the council’s submission

10. Further evidence and supporting positions will be obtained from subject matter experts across the Council Group.

11. The council’s draft submission will be circulated to the delegated members for input and approval.

12. A copy of the final submission will be provided to all elected members, local board members, Houkura and mana whenua once submitted.

Ngā tūtohunga

Recommendation/s

That the Papakura Local Board:

a) tuku / provide feedback on the government’s proposed amendments to the Waste Minimisation Act 2008 and Litter Act 1979 to inform the council’s draft submission.

Horopaki

Context

Government’s consultation on amendments to waste legislation

13. On 22 April 2025, the Ministry for the Environment - Manatū Mō Te Taiao (the ministry) released its consultation document, Have your say on proposed amendments to waste legislation - Tukuna ō whakaaro mō ngā menemana marohi ki te ture para (consultation document). A summary of the proposals and consultation questions is provided in Attachment A. Consultation closes 1 June 2025.

14. The consultation document states that the proposed amendments are to “create fit-for-purpose, modern waste legislation that gives us more options and flexibility to reduce and manage waste effectively and efficiently”.

15. Feedback is sought on 37 consultation questions across the following five proposals:

· creating a framework for ‘extended producer responsibility’

· improving the waste disposal levy system through changes to allocation, distribution, and use

· clarifying roles and responsibilities in the waste legislation

· creating a modern, effective compliance regime

· enabling efficient and effective controls for littering and other types of ‘mismanaged waste’.

16. The term ‘extended producer responsibility (EPR)’ is described in the consultation material as a suite of policy instruments that shift financial and/or operational responsibility for material recovery and waste management towards producers, importers and retailers, instead of falling by default on councils, communities, future generations and nature. EPR can include tools such as product stewardship schemes and deposit return models, such as a container return scheme for beverage containers.

17. The term ‘mismanaged waste’ is referred to in the consultation document as meaning litter, illegal dumping, or ‘escaped’ waste carried by wind or water from one site to another due to inappropriate management/storage.

18. The proposals include consolidating the Waste Minimisation Act 2008 (WMA 2008) and Litter Act 1979 into one bill.

19. The ministry states it will analyse all submissions received by 1 June 2025 to help inform policy and government decisions. If cabinet agrees, an amendment bill will then be introduced to parliament.

20. A delegated authority is sought to approve council’s submission, given the next Policy and Planning Committee meeting is scheduled for after the 1 June 2025 submission deadline.

Previous government’s consultation on waste policy and legislation reform

21. The WMA 2008 requires that all territorial authorities “must have regard to the New Zealand Waste Strategy” when developing waste management and minimisation plans. In late 2021, under the previous government, the ministry undertook a public consultation to update the New Zealand Waste Strategy (which had not been updated since 2010) and to reform the Waste Minimisation Act 2008 and Litter Act 1979.

22. At that time, delegated approval for the council’s submission on the ministry’s consultation document was provided by the Planning Committee on 4 November 2021, resolution PLA/2021/127.

23. In March 2023, the previous government adopted Te Rautaki Para - Waste Strategy to replace the previous version of the NZ Waste Strategy. Around the same time, cabinet papers were also released outlining the previous government’s proposed new legislative provisions.

24. In March 2023, the Policy and Environmental Planning Committee approved that any proposed replacement legislation for the Waste Management Act 2008 and Litter Act 1979 would be a priority submission for council (PEPCC/2023/33).

Recent updates to NZ Waste Strategy and waste legislation

25. On 5 March 2025, the Government released its Waste and Resource Efficiency Strategy to replace the Te Rautaki Para strategy document adopted by the previous government in 2023.

26. In March 2025, the ministry also released its two-year work programme, indicating waste legislation reform would take place during the first half of 2025.

27. Prior to the release of the new strategy and work-programme, the Government made targeted amendments to the WMA 2008 in 2024 which included enabling central government to spend its portion of waste disposal levy funds on a broader range of waste and environmental activities. The waste disposal levy is applied to every tonne of waste disposed at approved disposal facilities across the country, and the funds are administered by the Ministry for the Environment for purposes of waste minimisation activities (and other broader central government activities as set out in recent amendments to the WMA 2008).

28. These recent amendments to the WMA 2008 also allowed for waste disposal levy rates to continue to increase incrementally up to July 2027. In 2009, the waste disposal levy rate was originally set at $10 per tonne for a Class 1 landfill (a disposal facility that accepts waste materials from household, commercial, industrial or institutional sources), and remained at that rate until 2021. Since then, waste disposal levy rates have increased incrementally, with lower levy rates also getting applied to other classes of landfills (Class 2 construction and demolition landfills, and Class 3 and 4 managed or controlled fill facilities). For a Class 1 landfill the rate is now $60 per tonne and will increase to $75 per tonne on 1 July 2027.

29. Table 1 below shows the increase in waste disposal levy rates that the government has confirmed to be introduced over the next three years. The ministry acknowledges New Zealand’s waste disposal levy rates will remain comparatively lower than similar waste disposal rates in Australia and the United Kingdom.

Table 1. Confirmed increase in waste disposal levy rates for 2025-2027

Facility Class	1 July 2025	1 July 2026	1 July 2027
Facility Class	($ per tonne)	($ per tonne)	($ per tonne)
Class 1 (municipal landfill)	$65	$70	$75
Class 2 (construction and demolition fill)	$35	$40	$45
Class 3 & 4 (managed or controlled fill facility)	$15	$15	$20

30. Under the WMA 2008, central government and territorial authorities equally share revenue generated by the waste disposal levy (after administration costs). The share of levy funding that goes to territorial authorities is distributed according to population within councils and districts.

31. In FY 2023/2024, Auckland Council received $26.6 million waste levy funding, compared to $5.6 million received in FY 2020/2021, before levy rates increased. Under the WMA 2008 territorial authorities must spend the levy funding on activities set out in a council’s Waste Minimisation and Management Plan, with some exceptions.

32. For central government, the focus to date has been on investing in waste minimisation projects largely through the ministry’s contestable Waste Minimisation Fund.

Council’s strategic framework relating to waste minimisation

33. Auckland Council’s strategic direction relating to waste is set by the Te Mahere Whakahaere me te Whakaiti Tukunga Para 2024 - Ki te Para Kore / Waste Minimisation and Management Plan 2024 – Towards Zero Waste (waste plan 2024) and complemented by Te Tāruke-ā-Tāwhiri: Auckland’s Climate Plan 2020.

34. Other policy, planning, and regulatory documents of relevance to waste activities include the council’s Long-term Plan 2024–2034, Infrastructure Strategy 2024, Kia Ora Tāmaki Makaurau, local board plans, Sustainable Procurement Framework, the Auckland Unitary Plan, and the Waste Management and Minimisation Bylaw 2019.

35. The waste plan 2024 continues a Zero Waste by 2040 vision originally set out in Auckland Council’s first Waste Minimisation and Management Plan in 2012. The waste plan 2024 has over 100 actions across 12 priority focus areas.

36. Waste disposal levy funds are used by Auckland Council to deliver a range of council’s waste minimisation activities and actions set out in its waste plan 2024, including the provision of a Waste Minimisation and Innovation Fund, community engagement programmes managed by council’s Wastewise team, and various projects to reduce waste.

Tātaritanga me ngā tohutohu

Analysis and advice

Process to develop council’s submission

37. Staff are in the process of reviewing the consultation document and coordinating a response. Thorough consideration of the scope and implications of the proposed amendments is required before well-defined advice and detailed feedback can be provided to the proposed delegated elected members.

38. The council’s submission will be developed based on current policy positions articulated in council’s adopted plans and policies. Evidence and data gathered through the recent development of the waste plan 2024 will be used, along with reference to the council’s submission provided to the ministry in 2021 as part of the previous government’s consultation on waste legislation.

39. Staff are seeking via this report local board feedback. Mana whenua have also been invited to provide input on the council’s submission. Local board and mana whenua views will also involve drawing on relevant input received through the pre-engagement and consultation process to develop the waste plan 2024.

40. Further evidence and supporting positions will be obtained from subject matter experts across the Council Group.

41. Once developed, the council’s draft submission will be circulated to the delegated elected members for input, review and approval.

42. Staff will submit an approved submission through the Ministry’s Citizen Space portal before 11.59pm, 1 June 2025.

Preliminary advice on proposals

43. To support the process to gather feedback from elected members and the Council Group, a preliminary review of the proposals in the consultation document and consideration of potential implications for Auckland Council and the region is provided in a table in Attachment B. This preliminary analysis is expected to inform the general direction of council’s submission.

44. A summary of the main implications for Auckland Council from an initial review of the proposed legislative amendments is provided below.

Funding impact

· A new method is proposed to distribute levy funding to territorial authorities, to provide for a more equitable approach for the provision of levy funds to smaller councils. Instead of using only a population-based method, the proposed new method is to provide all authorities with a flat amount (based on distributing 20 per cent of the 50 per cent share allocated to all councils), and an amount that distributes the remaining 80 per cent of funds to councils based on a city or district’s population.

· This proposed calculation method would reduce the amount Auckland Council receives annually, compared to the current distribution method. Table 2 below shows the comparison between the actual funding amount Auckland Council received in FY 2023/2024 compared to the proposed funding model. The FY 2027/2028 projection illustrates the increase due to increased waste disposal levy rates under the current funding model, and the difference under the proposed new funding model. This shows that while the council will receive an additional $26.8 million over the four-year period from FY 2023/2024 (due to waste disposal levy rates increasing), the proposed new method would reduce the annual amounts the council would receive by $5 million and $10 million each year, depending on when such a proposal would be implemented.

Table 2. Estimated waste disposal levy funding under the proposed funding model

Auckland Council’s waste disposal levy funding	Actual FY 23/24 funding (annual)	Estimated 27/28 funding (annual)*	Funding difference from 23/24–27/28
Current method	$26.6m	$52.8m	$26.8m
Proposed method	$21.4m	$42.7m	$21.7m
Reduction	($5.2m)	($10.1m)	($5.1m)

*this is based on the total levy revenue that is generated from the total tonnages of waste disposed to landfills across the country, as well as population data within each territorial authority. Figures provided to council staff by ministry staff in late 2024.

· Increased levy rates between 2025 and 2027 will result in more revenue generated for central and local government. In the longer term, the proposed change in the method to distribute levy funds would continue to require close strategic and financial planning, especially if combined with the proposed broadening uses of the levy funds (refer Attachment B for details).

Extended Producer Responsibility (EPR) framework and implementation

· As EPR schemes develop under a proposed new regulatory framework, Auckland Council would benefit from shifting certain responsibilities for end-of-life waste to producers/consumers of products. However, the council would likely need to adapt its waste planning functions, waste collection and resource recovery systems, and associated community engagement programmes, to complement EPR schemes as they are designed and implemented.

Service delivery

· The proposed broadening of the range of environmental activities that the council could use waste levy funding for may result in changes to the current range of waste minimisation service provision and outcomes, especially if not offset by other waste initiatives being funded through other means (e.g. private sector resource recovery initiatives or implemented ERP schemes) and in the absence of having a clear decision-making framework to help assess competing priorities.

· The proposals to have minimum obligations for territorial authorities to enable household waste and recycling services and making it a discretionary requirement to provide litter bins in public places, may require the council to review the various delivery models used across the region.

· There are also potential future cost implications for the council and its CCOs services (in particular, Watercare) in relation to a proposed amendment that could require waste-to-energy plants to be subject to a waste disposal levy. However, the consultation document is not clear on the types of waste to energy facilities that would have to pay the levy. Potentially, this may include the Ecogas facility processing Auckland’s kerbside food scraps. For Watercare, a levy on waste-to-energy facilities would be a significant factor to consider as it explores future options to manage biosolids generated at its Māngere Wastewater Treatment Plan. Further clarifications of the proposals, and implications, are required.

Compliance, monitoring and enforcement framework for mismanaged waste

· The proposed compliance framework and integration of provisions into legislation to address issues with ‘mismanaged waste’ (including litter, dumping, and waste that has the potential to escape a site) would support key issues and actions contained within the council’s waste plan 2024. It may also require assessment of the council’s enforcement capacity, and the potential for additional resources to implement such changes.

Access to and management of waste data

· Proposed amendments to enhance data on mismanaged waste and ERP schemes would help inform the council’s planning and decision-making processes but may also necessitate potential investment in systems to collect, manage, and share with regulators specific data on waste issues and activities.

Strategic alignment

· The council’s waste plan 2024 largely aligns with the proposed legislative amendments. However, as the proposed amendments, decision-making frameworks, and regulatory changes are further clarified and developed, the implementation of the waste plan 2024 may require further review.

Timeframe for the consultation

45. The timeframe for feedback and submission on the consultation document is provided in Table 3.

Table 3. Timeframe milestones for consultation

Milestone	Date
Consultation document released	22 April 2025
Online briefing for local board members	19 May 2025
Deadline for incorporated feedback	22 May 2025
Deadline for appended feedback	30 May 2025 – 12pm
Consultation period closes	1 June 2025
Copy of final council submission circulated to Governing Body members, local board members and Houkura.	2 June 2025

Tauākī whakaaweawe āhuarangi

Climate impact statement

46. The disposal and treatment of waste comprises around four per cent of Auckland’s gross greenhouse gas emissions.

47. The main source of greenhouse gas emissions associated with the disposal and treatment of waste is the release of bio-genic methane from landfills (generated from organic waste, such as garden waste, timber, food scraps, biosolids, paper or cardboard). Lesser contributions to New Zealand’s waste-sector emissions arise from wastewater treatment, incineration and open burning, and biological waste treatment (composting).

48. Emissions associated with the transportation of waste materials are not categorised within waste-sector emissions. Rather, these contribute to emissions from the transport sector. Embodied emissions contained within wasted products (i.e. emissions generated across the lifecycle of a product) are also not included within the four per cent of gross emissions associated with waste treatment or disposal.

49. The consultation document is not explicit in how the proposed amendments intend to respond to impacts from climate change. However, there are implicit connections made between reducing emissions by achieving waste minimisation outcomes (e.g. through proposals to strengthen EPR outcomes), and by adapting to the impacts of climate change through broadening the scope of activities that waste levy funds can be used for (e.g. for costs associated with managing emergency waste, remediating closed landfill sites which may be vulnerable to extreme weather events, or investing in “activities that reduce environmental harm or increase environmental benefits” which is broad in nature and could be interpreted as including climate change mitigation or adaptation activities).

Ngā whakaaweawe me ngā tirohanga a te rōpū Kaunihera

Council group impacts and views

50. Feedback on the consultation document will be sought from subject matter experts across relevant council departments and CCOs, including Waste Solutions, Finance, Parks and Community Facilities, Auckland Transport and Watercare.

Ngā whakaaweawe ā-rohe me ngā tirohanga a te poari ā-rohe

Local impacts and local board views

Local impacts

51. The potential local impacts from the proposed amendments will be considered as part of the council’s submission, however it is expected that the proposed legislative changes will impact local communities in various ways, including the following key points.

· Introducing extended producer responsibility schemes would have an impact on people’s purchasing choices and waste minimisation behaviours. The implementation of schemes could lead to changes in product design to minimise waste, or the provision of new collection systems and differing financing arrangements, that could result in new resource recovery, reuse, or recycling infrastructure within the Auckland region.

· Stronger controls to monitor and enforce ‘mismanaged waste’ would mean local ‘Litter Control Officers would gain enhanced powers to address litter and illegal dumping, and this would potentially improve Auckland’s ability to reduce negative issues associated with litter and illegal dumping

· Broadening the use of waste levy funding for activities that ‘reduce environmental harms or increase environmental benefits’ may present an opportunity for local boards to respond to local environmental issues. This would need to be supported by a clear decision-making framework on how the use of waste levy funding gets accessed across the Council Group without compromising the strategic objectives and goals of the council’s waste plan 2024.

Local boards

52. Local boards provided strong direction through the development of the waste plan 2024 and the council’s 2021 submission on government waste policy and legislation. These views will help to inform the submission.

53. Local board views received will be either incorporated within the report or appended to the submission, depending on when they are able to provide views.

Tauākī whakaaweawe Māori

Māori impact statement

54. Staff have contacted Houkura and are seeking to engage with iwi through the Mana Whenua Resilience and Infrastructure forum to alert them to this public consultation and the opportunity to input on council’s submission. Staff will do the same for the Tāmaki Makaurau mana whenua entities.

55. Feedback expressed to the council on previous related submissions, and through the engagement process to develop the draft waste plan 2024 will be incorporated into the development of this submission where relevant.

Ngā ritenga ā-pūtea

Financial implications

56. The submission will be developed as part of the council’s business-as-usual central government advocacy activity.

57. As the consultation is on proposed legislation changes, it is not yet possible to quantify the budgetary consequences for the council. However, as highlighted the consultation document proposes changes to the amount of waste disposal levy funding Auckland Council currently receives and on what activities the funding can be used for.

58. The potential financial implications for the council will be further considered as part of the council’s submission.

Ngā raru tūpono me ngā whakamaurutanga

Risks and mitigations

59. There is a minimal risk in making a submission to the Ministry for the Environment consultation document.

60. Potential risks to the council arising from strategy and legislation changes will be considered as part of the council’s submission.

Ngā koringa ā-muri

Next steps

61. Local board resolutions on the government’s proposed amendments to waste legislation will be included in the Auckland Council submission on this matter.

62. Below are the key dates for input into the submission.

· 22 May 2025: deadline for feedback to be considered in the council’s submission.

· 30 May 2025 12 pm: final date for any formal local board feedback to be appended to the submission.

· 30 May 2025: final submission will be approved by delegated members subject to Policy and Planning Committee 15 May 2025 meeting.

· 2 June 2025: final submission will be circulated retrospectively to Governing Body members, Houkura and local board members.

Ngā tāpirihanga

Attachments

No.	Title	Page
a ⇩	Summary of proposals and consultation questions	247
b ⇩	Preliminary assessment of proposed amendments and implications for Auckland Council	255

Ngā kaihaina

Signatories

Authors

Tania Utley - Senior Waste Planning Specialist

Nadine Wakim – Senior Waste Planning Advisor

Authorisers

Justine Haves - General Manager Waste Solutions

Lou-Ann Ballantyne - General Manager Governance and Engagement

Manoj Ragupathy - Local Area Manager

[1] Source: 2023 New Zealand Census (Aotearoa Data Explorer)

[2] Source: Long-Term Plan 2024-2034, Volume 2, page 386

[3] Source: Long-Term Plan 2024-2034, Volume 2, page 389

[4] Estimated future operating costs are subject to the outcome of the investigation into community-led arts delivery

[6] Source: Waitematā Local Board. (2018). Waitematā Local Board Arts and Creative Industries Needs Analysis and Stocktake of Community Space. Retrieved from Waitematā Local Board - Arts and creative industries needs analysis, and stocktake of community space 2018 (aucklandcouncil.govt.nz)

[10] Source: Auckland Council. (n.d.). Appendix A: Auckland Council’s roles in arts and culture. Retrieved from https://www.aucklandcouncil.govt.nz/plans-projects-policies-reports-bylaws/our-plans-strategies/topic-based-plans-strategies/community-social-development-plans/docsplanappendices/arts-culture-strategic-action-plan-roles.pdf

[12] Source: Auckland Libraries. (n.d.) Te Kauroa- Future Directions 2013-2023. Retrieved from https://www.aucklandlibraries.govt.nz/Documents/te-kauroa-full.pdf

[13] SA2 areas Papakura Central, Papakura East, Papakura Eastburn, Papakura Industrial, Papakura Kelvin, Papakura Massey Park, Papakura North, Papakura North East, Papakura West, Red Hill and Pahurehure, Twin Parks Rise, Harbour View Heights. This is slightly larger than the 15-minute walking distance from a town centre provision.

[14] Source: Stats NZ. (2024). 2023 New Zealand Census. Retrieved from Aotearoa Data Explorer

[15] Source: Deprivation Index 2023. University of Otago.

[16] Source: Auckland Growth Scenario 2023 Version 1, 20240229.

[17] Macro Strategic Model, Auckland Council Growth Scenario

[18] Based 2018 NZ Census, as updated projections based on the 2023 Census are not yet available

[19] Source: Papakura and Districts Historical Society Inc. (n.d.). Papakura Museum Blog. Retrieved from https://papakuramuseumblog.wordpress.com/papakura-districts-historical-society/

[21] Source: CP VH Arts Performance Report. CC Insights Sharepoint. Extracted in February 2025.

[22] Source: Auckland Arts and Culture/ Corey Walden. (2019). Papakura Art Gallery – Managers Report 2019. Retrieved from https://issuu.com/aucklandartsandculture/docs/pag_managers_report_2019_digital

[24] Subject to a right of way over part marked L on DP 326191 created by Easement Instrument 5817632.3, Subject to a right of way over part marked L on DP 326191 created by Easement Instrument 5824792.1

[25]Source: Auckland Council / Rachael Butler and Adrian Field (2016). Papakura Takanini Community Needs Assessment and Library/Community Facility Location Analysis Final Report. Retrieved from https://infocouncil.aucklandcouncil.govt.nz/Open/2016/06/PPK_20160615_ATT_4989_EXCLUDED.htm

[27] Source: Infonews. (2009) Papakura confirms upgrade for Accent Point. Retrieved from https://www.infonews.co.nz/news.cfm?id=45341

[28] Source: Power BI, Libraries Regional and Local Board KPIs Report, extracted February 2025.

[29] Source: Portfolio Assessment Tool, extracted February 2025.

Chairperson	Brent Catchpole
Deputy Chairperson	Jan Robinson
Members	Felicity Auva'a
	George Hawkins
	Kelvin Hieatt

Authors	Sital Prasad - Democracy Advisor
Authorisers	Manoj Ragupathy - Local Area Manager