Parliamentary Commissioner for the Environment - Te Kaitiaki Taiao a Te Whare Pāremata

Commissioner's preface

It's worth reflecting that the walking cities of last century had a much more compact form, with section sizes of less than 200 square metres in some of our older centres. These early, densely settled areas are in some cases now considered to have high amenity value and to be very desirable places to live - a strong signal that New Zealanders can live at higher densities than has been traditionally accepted.

Executive summary

Suburban intensification (increasing housing densities and population densities) can affect a city's infrastructure, transportation network, the natural environment, heritage places and areas, and amenity values.

The term 'amenity values' is defined in the Resource Management Act 1991 (RMA) as 'those natural or physical qualities and characteristics of an area that contribute to people's appreciation of its pleasantness, aesthetic coherence, and cultural and recreational attributes' (s 2 RMA). Contributing factors to suburban amenity values include public and private open space, historic and cultural heritage, neighbourhood character, vegetation, safety, views, and noise levels.

Significant effects of intensification on suburban amenity values include:

• changes to the streetscape and the combination of the natural and built environment
• the loss of vegetation, special character, and public and private open space
• increased traffic, noise levels, on-street car parking and the effects of increased traffic levels on safety.

Auckland, Christchurch and Waitakere City Councils were chosen as case study councils for the investigation and separate background reports were prepared on how each council is managing suburban amenity values in its city.

Findings & recommendations

Findings

1. Urban form and intensification

2. Parts of the three cities that were the subject of this review are in transition from a suburban form to an urban form. All three cities have policies encouraging intensification of use of existing suburban areas. Traditional low density development at one unit per 1,000 m² was common 10-15 years ago. Today, low density development is more likely to be at one unit per 500 m².
   
   
3. The management of urban growth is a significant resource management issue for the three councils in this review. New solutions are required to accommodate urban growth within existing city boundaries instead of relying on traditional suburban development.
   
   
4. There is little New Zealand developed research or information to assist councils in planning future urban form to achieve sustainable management of their cities. There is inadequate understanding and appreciation of the role of urban design in planning future urban form.

   Intensification and effects on amenity values

5. Existing amenity values will change with residential intensification and it will be difficult to maintain or enhance these values without management of both on-site and off-site effects. Urban infill will strongly affect amenity values. Major housing providers or private landowners can affect amenity values in neighbourhoods by the manner in which properties are redeveloped.
   
   
6. There are differing perceptions between some councils and communities of the importance of the management of amenity values. Some communities consulted during this investigation expected little change in residential amenity values.

   The identification of amenity values

7. All areas of a city have their own identity and characteristics and, therefore, amenity values. It is appropriate for these characteristics and values to be identified by local communities, in consultation with councils.
   
   
8. The level of and process of community consultation on amenity values varies. Few communities have described their neighbourhood amenity values through consultation processes, such as charrette workshops, or as part of district plan preparation.
   
   
9. Describing amenity values is difficult because there are subjective aspects to be considered and values change over time. However, there are aspects that are measurable and that can be identified.
   
   
10. It is important to document amenity values in the district plan so the rules relating to residential intensification can take these into account.
    
    
11. It is crucial to monitor the changes in amenity values that occur when intensification takes place. Communities can assist councils in the description of amenity values and document observable changes to street character. There are, however, no nationally developed environmental indicators.

    The management of amenity values

12. Precise criteria are required to identify and manage special amenity areas through stricter development standards.
    
    
13. A critical measure for managing amenity values is the design of buildings and their relationship to adjacent buildings. It is important to identify the design characteristics of an area and the extent to which new buildings can enhance the amenity values of a street or neighbourhood.
    
    
14. Councils have the ability to mitigate some of the off-site effects of intensification through enhancement of the streetscape or the provision of additional public open space.
    
    
15. The provision of additional open space is a significant response to intensification and the management of amenity values. Adequate reserve contributions must be obtained from areas receiving intensification. Adequate funds also need to be provided to upgrade existing streets, parks and reserves.
    
    
16. Until 1991 there was a statutory gap that prevented cross-lease developments from contributing to reserve contributions. This has hindered councils' efforts to purchase open space for neighbourhood parks in areas subject to intensification.
    
    
17. The public are concerned about the loss of urban vegetation with residential intensification. The identification of heritage/notable trees, the use of general tree protection and special indigenous bush zones can assist councils in the management of vegetation cover. The green network strategy of ecological linkages also contributes.

    Resource consents and the assessment of environmental effects

18. In some resource consents there has been inadequate consideration of the cumulative effects of a series of individual housing developments in a street or neighbourhood.
    
    
19. With provision for mixed uses in residential neighbourhoods, the evaluation of the effects of these activities on residential amenity values should be assessed carefully.
    
    
20. Professional staff with urban design, architecture, landscape, heritage and horticultural skills are required to properly assess the effects of intensification. Community boards can provide input from residents and community groups as to the effects of a proposed activity on local amenity values.
    
    
21. The enforcement of conditions on resource consents that relate to the enhancement of amenity values, eg landscaping conditions, is crucial to community acceptance of intensification.

Recommendations

• To the Minister for the Environment

• develop environmental indicators for amenity values to assist local authorities and communities to monitor and report on the state of amenity values.
• invest in, and encourage research into, urban design that will be appropriate to New Zealand to provide information to local authorities to assist them in promoting the sustainable management of urban environments and the management of amenity values.

  To the Minister of Housing

• direct Housing New Zealand to include, in its Statement of Corporate Intent, information stating the steps that Housing New Zealand proposes to take to assist the Crown in meeting its social objectives in relation to the provision of housing and related services and, in particular, the steps Housing New Zealand proposes to take to address effects on amenity values from the intensification of established residential areas.

  To Housing New Zealand

• increase the focus on managing the effects on amenity values from the intensification of established residential areas, in accordance with the principal objective of the company (s 4 Housing Restructuring Act 1992) and "having regard to the interests of the community" in which the company operates.

  To the Minister of Science, Research and Technology

• invest in, and encourage research into, urban form and urban design that is appropriate for New Zealand conditions to assist local authorities with the sustainable management of urban environments.

  To all Territorial Authorities

• recognise the importance of amenity values to communities and use appropriate management techniques accordingly, including those approaches in the Parliamentary Commissioner for the Environment's Management of suburban amenity values good practice guide.