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Council
11 May 2016
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REPORT R5883
Deliberations
on the draft Annual Plan 2016/17 - Part 2
1. Purpose
of Report
1.1 To provide additional information and
recommendations to support decision making on matters raised in submissions on
the Consultation Document for the draft Annual Plan 2016/17.
2. Delegations
2.1 The
preparation of an Annual Plan is a decision of Council.
3. Recommendation
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THAT
the report Deliberations on the draft Annual Plan 2016/17 - Part 2 (R5883) and its attachment (A1543422) be
received.
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4. Background
4.1 This
report is a continuation of Part 1 of the deliberations report (R5730) and
includes further information on matters raised in submissions. It should be
read in conjunction with that report as background material is not repeated.
5. Discussion
Special Housing Area (SHA)
Issues
5.1 Wakatu Incorporation (submission 7932) raised a number
of servicing constraints it believes need to be addressed in order to progress
the Saxton SHA development (as an extension of their Wahanga development). The
six areas it raised for consideration are covered in turn below (see Attachment
1 for a map).
5.2 Hill Street to Suffolk Road Link - The submitter seeks that they make a 16% (or
$1.046M) contribution to Council for the cost of the link road and that Council
funds the remaining 84% (or $4.18M), and that Council then use those funds to
either upgrade the three roundabouts or construct the link road (Hill Street to
Suffolk Rd). Council officers advise that the link road should not be included
in the Annual Plan as it is out of scope, but that Council could consider a
request in principle and resolve to propose an amendment to the LTP (and
consequently the Development Contribution’s Policy) to include it via the
Annual Plan consultation process in 2017/18.
5.3 Upgrade of Hill Street North – the submitter seeks that the cost ($1.29M) of
upgrading the existing portion of Hill Street North that does not meet
residential area standards be offset against development contributions for
development in the SHA. The upgrade would involve widening the road and
improving kerb, channel and footpath. Council officers advise that the
upgrade of Hill Street North would be part of the Hill Street to Suffolk Rd
link road and should not be included in the Annual Plan as it is out of scope,
but that Council could consider a request in principle and resolve to propose
an amendment to the Long Term Plan (and consequently the Development
Contribution’s Policy) to include it via the Annual Plan consultation
process in 2017/18.
5.4 Bridging of Saxton Stream from Hill Street North - The submitter seeks that Council install an 11.5m
carriageway bridge over Saxton Stream as part of the Saxton Creek upgrade.
5.5 The upgrade of Hill Street North (involving the bridge
over Saxton Stream) would logically occur at the same time as the construction
of any Hill Street to Suffolk Rd link road and the costs would be absorbed into
that project.
5.6 Bridging of Ngati Rarua Street - The submitter seeks that Council install an 11.5m
wide bridge over Saxton Stream at the Ngati Rarua Road extension as part of the
Saxton Creek upgrade.
5.7 Saxton Creek upgrade works need to provide access to
four properties off the end of Ngati Rarua Street in lieu of their accessways
being removed from Hill Street North as part of the upgrade works. As
part of negotiations with Council on the Saxton Creek upgrade, the four
landowners requested that the bridge remain private, and that public access
across it from the end of Ngati Rarua Street be prevented. The Nelson
City Council Land Development Manual 2010 sets out that a bridge providing
private access in such a case should meet the standards of a 3.65m wide
bridge.
5.8 The submitter seeks that the bridge should be upgraded
to that worthy of a public road. The Nelson City Council Land Development
Manual 2010 sets out that a bridge suitable for providing public access as part
of roading that serves an area of residential development (greater than four
properties) should meet the standards of a 9.5m wide bridge. Officers
recommend that the installation of a 9.5m wide bridge providing public access
occur as part of the Saxton Creek upgrade by Council and in conjunction with
the SHA development to provide for the future residential development of the
area. This will be subject to the agreement of the landowners that the
bridge provides public access and subject to the Saxton SHA being gazetted.
5.9 Engineering officers have a cost estimate for the
bridge, including its design, of $143,000 for a 9.5m wide bridge with an
11.5m span in this location. Currently there is provision in the Long
Term Plan 2015-25 for a bridge (of undetermined width) in this location in the
Saxton Creek Upgrade overall project budget. Officers recommend
that Council agrees to the submission to the Annual Plan for the Ngati Rarua
Street bridge being designed as suitable for a road standard bridge (i.e. a
9.5m wide bridge) as part of the overall Saxton Creek Upgrade funding in the
Long Term Plan. The project would be added into the Development Contributions
Schedule at the next time the policy is reviewed as a public bridge providing
road access into Saxton SHA has a significant growth component and should be
funded by development contributions.
5.10 Water Supply from Saxton Road – Wakatu Incorporation seeks that the cost of extending
the water supply network to the SHA be shared by Council, with Council
contributing a 33% share.
5.11 There does not appear to be any city wide benefit in
the extension of the water supply line to serve the SHA. It will almost
exclusively serve the SHA. Residential development along Champion
Road is currently served by Tasman District Council (TDC) as per an agreement
between Tasman District and Nelson City Councils.
5.12 There is only a small portion of existing
residentially zoned land (Rick Griffin’s property - approximate yield 30
lots) that is not included in the SHA and is unable to be supplied by TDC as
part of the existing agreement. This property owner could request that TDC
enter into an additional agreement to supply water to any future development of
his property, or the property owner could wait to develop until Saxton SHA
brings water in off Suffolk Road. This property owner was consulted by
officers as part of the Saxton SHA proposal, including the options to provide
water supply, and did not wish his property to be included in the SHA as he has
no immediate development plans.
5.13 Saxton Creek Upgrade – Wakatu Incorporation seeks that the works on the
Saxton Creek upgrade proceed as planned in conjunction with the SHA.
5.14 It would seem a more efficient and effective process
for both the ratepayers of Nelson and the developers of the SHA if the required
works in the area are coordinated and integrated to give effect to Saxton Creek
upgrade, resolve existing transportation issues, and support the SHA
development. The SHA developers need to complete their master plan
exercise so that Council can consider with some certainty what infrastructure
is needed where, what portion of that is attributable to growth and what is
attributable to levels of service, and then how the projects needed may be
funded and constructed. Work on stage 1 is nearing completion with stage 3
planned to commence in June/July. It is unlikely the SHA work will coincide
with the planned Saxton Creek upgrade work. It is likely that this would mean
that Council would have to bring the creek upgrade works forward in the Long
Term Plan if the SHA proceeds. This could occur as part of any amendments
considered to the LTP at the next Annual plan consultation in 2017/2018.
Mountain biking and Gondola
5.15 By far the largest category of submissions (310) was
on the topic of mountain biking. Submitters noted that Nelson is a
world-class cycling destination (particularly following the gold award from the
International Mountain Bicycling Association) but were concerned the city was
not grasping the opportunity this offered and was falling behind other regions
in promoting growth of the sport. Many spoke of the potential economic benefits
from visitors travelling to Nelson to bike our trails. Others of the personal
and family health and wellbeing benefits of regular use of city’s cycle
network.
5.16 84 submissions were received on Council’s
proposal to provide financial support to advance the gondola project,
most in favour. The majority of these were from mountain bikers who see the
gondola as a useful facility to support their sport, although some questioned
the timing of the project and whether demand needed to be built further. There
were some submissions opposing the gondola on the grounds of damage to the
environment and unwillingness to see ratepayer funds supporting what they
considered should be a solely commercial venture. There was also reference to
the shuttle service running in Rotorua’s mountain biking area as a
possible model.
5.17 As these two issues appear to be very closely linked
they are covered together in this section of the report.
5.18 Submitters on mountain biking were in support of more
entry level tracks to help newcomers, particularly children, learn the sport in
a safe environment. The possibility of other facilities such as toilets,
changing rooms, bike wash pads, drinking water supply, a skills development
area or a jump park was raised.
5.19 Submitters also asked for a clearly defined process to
help volunteers request permission to develop new trails on Council land. A number
of areas for new tracks were proposed, such as a new grade 3 track from the top
of Fringed Hill to Brook Street, and there was a request for better signage on
existing tracks.
5.20 Many were concerned about the state of the Codgers
mountain bike track and asked that it be reinstated to its pre-storm standard.
There was recognition of the conflict with walkers and parts of the Brook
Valley community but there was a general feeling that the majority of
participants in both walking and cycling were respectful of each other and
problems were confined to a few. Submitters asked for Council to recognise the
significant numbers of riders who use this area on a regular basis and ensure
reasonable access and facilities. Mention was made of the proposal to shift the
main access point from the Brook to the Maitai Valley, though there were
concerns about safety for cyclists on the road to the Maitai.
5.21 Some submissions noted the opportunity to combine
trail development with pest management and environmental restoration. Many
submissions asked for a greater financial commitment from Council to support
mountain biking. $150,000 was a common figure mentioned. The need for a 10 year
strategy to map how Council will help Nelson to become an international
mountain biking destination was another regular request in submissions.
5.22 Council officers are currently working with consultant
Global Leisure, the Nelson Mountain Bike Club and the Mountain Bike Trails
Trust to produce an Off Road Tracks and Trails Strategy (draft expected to be
ready in July). This will cover trails on Council land and with links to land
owned by the Department of Conservation, Tasman District Council and forestry
companies. Walking, running, tramping and community groups are being consulted
as part of the Strategy development.
5.23 While this Strategy will set out the next steps for
Council and its partners in providing a network of trails and supporting
facilities for community use, it will not address the larger issue of the
future economic potential of developing mountain biking as a visitor
attraction. Council may wish to expand the scope of this work by commissioning
a companion piece of research on the wider economic/tourism potential of
off-road cycling, to feed into the Strategy. This could also consider the role
the gondola might play in development of Nelson as world-class cycling
destination.
5.24 Officers have been in contact with the Nelson Cycle
Lift Society recently for an update on the gondola project. The project has
reached a point where professional help is required as the volunteers have all
made significant commitments of time and effort but it is not sustainable for
this to continue. The next phase requires funding for a project manager as well
as a marketing research report and geotechnical and meteorological data. The
Society estimates this could cost up to $270,000.
5.25 Officers have talked to the Ministry of Business,
Innovation and Employment about the Government’s Tourism Growth
Partnership Fund. This scheme funds projects after consent has been obtained
and where a commercial partner has made a significant commitment. It does not cover
business case or resource consent costs. So it would seem that the gondola
project is at too early a stage to apply to this fund.
5.26 As suggested by a number of submitters, the gondola
will attract private investors if there is a clear demonstration of demand.
Growing mountain biking through new intermediate and entry level tracks close
to the city is key to building this demand. Once these tracks are in place a
shuttle service would be a good way to test the extent of demand and provide
evidence to potential investors. There is a current shuttle operator who has a
key to access the Fringed Hill Road. The road is of sufficient quality that it
would not need upgrading to accommodate a higher level of traffic.
5.27 In order to progress issues in a logical order,
officers recommend that Council defers the $50,000 allocated for progressing
the gondola project for one year. It would be reconsidered at the next Annual
Plan once the Off Road Tracks and Trails Strategy is approved and a plan, for
providing the necessary tracks and analysing growth in demand, is in place.
5.28 To address issues raised in submissions officers
recommend Council allocates sufficient funding to expand the scope of the
Strategy and to begin implementation of its outcomes in 2016/17. Funding
of $50,000 allocated in 2015/16 for an entry level track (delayed while the
Strategy was progressed) would also be carried forward to 2016/17.
5.29 It would also seem reasonable to allow work on the
Fringed Hill descent track to proceed given mountain bike clubs have raised
most of the funding required. Council would only need to allocate $5,000
capital expenditure for this to proceed. It could also choose to allocate
$8,000 operational expenditure to hire a portaloo for the top of Fringed Hill.
5.30 Many submissions asked for the reinstatement of the
Codgers track which is estimated to cost $30,000. The Nelson Mountain Bike Club
has offered to fund half that cost. An emphasis of this work would be to reduce
conflict between cyclists and pedestrians.
5.31 Recommendation
THAT
$50,000 capital expenditure unspent in 2015/16 be carried forward to 2016/17
for a grade 2 mountain bike track in Marsden Valley;
AND
THAT, subject to landowner approval, consultation with the
Brook Valley community, any consent requirement and the outcomes of the Off
Road Tracks and Trails Strategy, $5,000 capital expenditure be allocated to the
provision of a track descending from Fringed Hill, with the remainder of the
trail formation costs to be funded by the Nelson Mountain Bike Club;
AND
THAT up to $8,000 operational expenditure is allocated in the
Annual Plan 2016/17 to provide toilet facilities at the top of Fringed Hill
once the new track is open;
AND
THAT, subject to the outcomes of the Off Road Tracks and
Trails Strategy and any resource consent matters, the Codgers Track be
reinstated on the basis of $15,000 funding from Council and a matching
contribution from the Nelson Mountain Bike Club;
AND
THAT $100,000 be allocated to extend the scope of the Off
Road Tracks and Trails Strategy to consider the potential economic benefits of
developing mountain biking in the region and how to access these, with the
remaining funding being directed to implementation of the Strategy once it is
approved.
6. Options
6.1 Council
can choose to adopt the Annual Plan as it was consulted on, or to adopt the
Annual Plan with amendments as directed.
7. Alignment
with relevant Council policy
7.1 The
Annual Plan is an exceptions document, outlining changes from what was set out
in the Long Term Plan 2015-25.
8. Assessment
of Significance against the Council’s Significance and Engagement Policy
8.1 The
Annual Plan is a significant document guiding Council’s work programme
and community engagement has been undertaken at an appropriate level.
9. Consultation
9.1 The
Consultation Document on the Annual Plan 2016/17 was open for consultation for
the period 11 March to 11 April. Council heard submitters on 3 and 4 May.
10. Inclusion
of Māori in the decision making process
10.1 Maori
were consulted through the submission process on the Consultation Document.
Nicky
McDonald
Senior
Strategic Adviser
Attachments
Attachment 1: A1543422
- Saxton Special Housing Area and surrounds
