Background Technical Report

Transcription

1 Planning for Rural Residential Development in Palmerston North City: A Review of Relevant Literature and Studies and a Preliminary Assessment of Rural Residential Development, Background Technical Report 201

2 Planning for Rural Residential Development in Palmerston North City: A Review of Relevant Literature and Studies and a Preliminary Assessment of Rural Residential Development, Background Technical Report Prepared By Tabitha Manderson Senior Resource Management Planner Opus International Consultants Limited Palmerston North Office Level 4, The Square Centre 478 Main Street, PO Box 1472, Palmerston North 4440, New Zealand Reviewed By Telephone: (06) Ann-Marie Mori Facsimile: (06) Senior Planner Date: November 2011 Reference: 5-P Status: Final Opus International Consultants Limited

3 Rural Residential Development -Background Technical Report Contents 1 Setting the Scene What is Rural Residential Subdivision? Palmerston North Sectional District Plan Review An overview of the process and the Rural Zone Review Literature Review Characteristics of Rural Residential properties what do people want? Defining Rural Residential properties National trends and number of rural residential subdivisions Summary Rural Residential Development in Palmerston North Palmerston North District Plan Rural Residential Subdivision Provisions Rural Residential Trends in Palmerston North, Palmerston North Physical Resource Description Issues and Effects Policy Issues identified in research papers Horizons Regional Council Concerns with rural residential development District Plan Review Discussion Document Summary of Submissions relating to rural residential matters Results of Consultation on Residential Growth Options for Palmerston North (2010) Techniques to Control Effects relating to Rural Residential Development Introduction Monitoring Rural Land Use Change Managing Demand/Growth APPENDIX A - Rural Residential Development within the Palmerston North Boundary APPENDIX B Review of Territorial Authority Policies Manawatu District Council Rangitikei District Plan Tararua District Plan Hutt City District Plan Hastings District Plan New Plymouth District Council Lot size other councils PN November 2011 i 203

4 Rural Residential Development -Background Technical Report Figures Figure 1: Snapshot of subdivision around the Pahiatua Track... 8 Figure 2: Snapshot of subdivision around Pineland Drive... 8 Figure 3: Range of Parcel Sizes (Lots) Created, PNCC Rural Zone ( )... 9 Figure 4: Range of Parcel Sizes (Lots) Created Under 1ha, PNCC Rural Zone ( ) Figure 5: Palmerston North Land Resource: (Source Turitea Reserve Management Plan) Figure 6: Subdivision trends in the Manawatu District (from Manawatu District Council's 2007 State of the Environment report) Figure 7: Subdivision and Dwelling on Class I and II land; Rural Subdivision trends (Rangitikei District State of the Environment) Tables Table 1: A Continuum of Types of Rural Smallholders (from adapted Paterson 2005)... 5 Table 2: Estimate of Rural Residential Properties in NZ ,2004 (from Paterson 2005). 5 Table 3: Rural Residential Development in Palmerston North... 7 Table 4: The New Zealand Land Resource Inventory Classifications for Palmerston North City12 Table 5: Comparative analysis of the three main rural land use activities in the Palmerston North, Manawatu and Horowhenua Districts (2007 Agricultural Production Census) Table 6: Smallholders past, present and future land use and value of production (from Fairweather and Robertson (2000)) Table 7: Survey results of smallholders to gain an understanding of the disadvantages encountered with rural residential dwellings (from Cook and Fairweather (2005)) Table 8: Part of Table F1 in Schedule F, showing Regionally Significant landscapes within the Palmerston North City Council area Table 9: Potential critical components that are subject to impact by rural subdivision and potential indicators for monitoring effect of rural Land Use Change (from Hunter et al, 1998) PN November 2011 ii 204

5 1 Setting the Scene What is Rural Residential Subdivision? 1.1 Palmerston North Sectional District Plan Review An overview of the process and the Rural Zone Review The Council resolved to commence a review of its District Plan in September A Discussion Document on the significant resource management issues within the City was prepared and made available for public comment in the early part of Recent changes to the Resource Management Act 1991 (RMA 1991) have provided Council with greater flexibility to the way in which the District Plan Review is managed. The RMA 1991 now enables the District Plan to be reviewed in sections, as opposed to one full review every 10 years. A report on the Sectional District Plan Review was presented to Council in November The Council supported the concept of a Sectional District Plan Review and passed a series of resolutions regarding the priorities, staging and timing of this Review. As part of this deliberation, priorities were identified with the Rural Zone Review, including rural-residential subdivision and wind farms; being one of the first matters to be reviewed in Stage One. The rural-residential rules in the operative District Plan have remained unchanged for 10 years however reflected the resource management priorities and community aspirations at that time. Council monitoring systems and reports 1 indicates that the type of subdivision applications (for rural-residential sections) being received has changed and the decisions that Council is making on them. A report on the Rural Review was prepared and submitted for consideration by the Planning and Policy Committee on the 6 th of October This report recommended the commencement of the Rural-Residential Land Use Strategy, which formed one part of the Rural Review. Future options for accommodating Residential Growth are currently being explored by Council 2 and it is accepted that in planning for growth, rural residential development within the rural zone, including lifestyle blocks, generally of around 1-4 hectares, is one way the City can accommodate growth. This background technical report was undertaken to assist Council s approach to planning for this type of lifestyle, to assist the Rural Review. It has involved a review of recent literature and studies on rural residential subdivision. An important component of the methodology for the literature review was the need to work towards a clear definition of Rural Residential subdivision. Aligned to the demand preferences for rural residential property and the sustainable management of the City s rural land resource. 1 Palmerston North City Council Urban and Citywide Residential Dwelling Growth Monitoring Reports (Various) 2 Palmerston North City Council (2008) Residential Growth Review Issues and Options Information Update. Palmerston North City Council (2010) Residential Growth Strategy. 205 November

6 1.2 Literature Review To help characterise and define what constitutes rural-residential development in a broad sense, a range of literature was reviewed. A full list of references are included in Appendix C. 1.3 Characteristics of Rural Residential properties what do people want? Paterson (2005) summarised the key characteristics emphasised by real estate advertisements for rural lifestyle blocks: Places of residence Lifestyle blocks are places of residence first and foremost, and their cost is largely determined by the kind of house to be found there. If a $200,000 block has a house on it, it will be a reasonably ordinary one, but the same block can sell for a million dollars if it has a new architecturally-designed luxurious residence. Location, Location, Location Key aspects of location relate to: nearness to urban areas sources of employment, services and entertainment; nearness to the coast or large lakes sources of amenity and leisure activities; and nearness to small town communities, especially those with schooling for children. Financial Investment Lifestyle blocks are have generally increased their value at a greater rate than urban residential property, and a block that can be further subdivided is much more valuable. Environmental Qualities According to the real estate advertisments, the price of a lifestyle block is enhanced by the extent to which it offers peace and quiet, and views of the surrounding countryside. A Great Place to Bring Up Kids A school bus at the gate, going to a small, friendly rural school, and room for children to roam and to have pets, are qualities provided by a good lifestyle block. Natural Features Native bush, mature trees, ponds and streams are all emphasised as valued parts of lifestyle blocks. Animals and Facilities Having well-fenced pasture to be able to graze a horse, or sheep or cattle, is seen to be important, along with stock water provision, stock handling facilities, stables and outbuildings. 206 November

7 1.4 Defining Rural Residential properties Quotable Value NZ defines a lifestyle block as a piece of land of more than one hectare zoned rural or semi-rural and which has a rural, residential or semi-productive use, but is still too small to run stock on productively (N.Z. Herald, 1999). The definition of a lifestyle block that comes through in other literature from mid-canterbury, is that it is a rural smallholding that allows people to enjoy living in a rural setting while still working in an urban area. The prime aim of people who live on lifestyle blocks is for a rural lifestyle rather than any form of agricultural production (e.g., Fairweather (1993 and 1996), Fairweather and Robertson (2000), Grant (2000), and Sanson, Cook and Fairweather (2004)). As Statistics NZ puts it in New Zealand: An Urban/Rural Profile, a lifestyle block allows people to enjoy a rural setting while still working in an urban area. Paterson (2005) provided a useful summary of the preferences of rural smallholders, as a group, that allows consideration of a number of different factors in determining what constitutes a rural smallholding. Rural Residents Lifestylers Small farmers Fulltime Farmers and Others Smaller < Property Size > Larger Less < Farming Activity > More None < Income from Land > Significant Significant < Links to Urban > Less Significant Table 1: A Continuum of Types of Rural Smallholders (from adapted Paterson 2005) 1.5 National trends and number of rural residential subdivisions The number of Rural Residential or Lifestyle properties has increased as a proportion of all properties across New Zealand since the 1970s. A number of authors have estimated the number of these types of properties; Paterson (2005) provided a summary as follows: ,000 34,000 70, , ,000 Table 2: 2005). Estimate of Rural Residential Properties in NZ ,2004 (from Paterson 207 November

8 A number of these estimates were derived from the Quotable Value NZ (QV NZ) database that included a wide range of property sizes and lifestyle blocks. The authors 3 of the MAF Information Paper No. 53, further defined the figures from the QV NZ database to estimate that there were some 140,000 lifestyle properties in NZ at the time that report was prepared (2005). 1.6 Summary From the key literature reviewed above it is clear that those seeking to purchase and reside in rural residential or lifestyle development areas seek a range of lifestyle options. There is also another trend that, the smaller the section, the closer the links to urban centres as people living on these sections are often still working in town. The patterns for this type of development, has grown in strength since the late 1970s. 2 Rural Residential Development in Palmerston North 2.1 Palmerston North District Plan Rural Residential Subdivision Provisions The following Resource Management Issue is identified in the Rural Zone and is relevant to the Rural Review: The provision for rural-residential development, which avoids remedies or mitigates any adverse effects on the efficient use of resources and on rural environmental and amenity values. Significantly there are no specific zones, objectives or policy framework for rural residential activity in the District Plan. Within the Rural Zone, the standards for controlled activity subdivisions 4 include a minimum lot size of 4 hectares, unless they are to occur within the overlay or other identified area on the Planning Maps: (i) Within the Aokautere Rural-Residential Area - A minimum site area of 3,500m 2. This shall include 3,500m 2 of contiguous land where any part does not have a slope exceeding 11 degrees, as measured between two points no more than 10 metres apart, which is able to accommodate all of the following: - A residential building platform - Vehicle access to the residential building platform - A minimum area of 800m 2 for the purposes of accommodating an on-site effluent disposal system. (ii) Within the Moonshine Valley Area hectares. This shall include 5000m 2 of contiguous land where any part does not have a slope exceeding 11 degrees, as measured between two points no more than 10 metres apart, which is able to accommodate all of the following: 3 See Sanson, Cook and Fairweather (2004). 4 See Section 7 (Subdivision) of the District Plan Rule November

9 - A residential building platform - Vehicle access to the residential building platform - A minimum area of 800m 2 for the purposes of accommodating an on-site effluent disposal system. (iii) In other areas 1 hectare 5. This shall include 5000m 2 of contiguous land where any part does not have a slope exceeding 11 degrees, as measured between two points no more than 10 metres apart, which is able to accommodate all of the following: - A residential building platform - Vehicle access to the residential building platform - A minimum area of 800m 2 for the purposes of accommodating an on-site effluent disposal system. Other relevant standards include minimum requirements regarding access, preventing rural residential development within 500 metres of existing intensive farming operations, and Controlled Activity Standards relating to earthworks. In addition, in the Rural Zone the construction of a dwelling on a section under 1 hectare in size is a Non-Complying Activity. 2.2 Rural Residential Trends in Palmerston North, The Table below shows the pattern of rural residential development that has taken place over a 10 year time span, between 1999 and Consents Issued Rural/Rural residential dwellings Building consents authorised % of Rural/Rural Residential dwellings as total of new dwellings Table 3: Rural Residential Development in Palmerston North Table 3 shows a fairly consistent demand pattern in the number of rural-residential dwellings over the time period with a slight overall decline trend emerging, between 2004 and There is a notable spike upwards in Map 1 in Appendix A, shows rural and rural residential development within the Palmerston North City boundary over the last 10 years. Within the rural residential overlay area there are several new clusters of rural residential development, for example around the Pahiatua Track and Pineland Drive, shown in Figures 1 and 2 below. Considerable rural residential development has also occurred outside of the rural residential overlay, in the rural zone. Some of this development has been smaller than the 4 hectare standard. 5 This area is commonly referred to as the rural residential Overlay area, and is identified in the Rural Zone, by a hatching notation. 209 November

10 Figure 1: Snapshot of subdivision around the Pahiatua Track Figure 2: Snapshot of subdivision around Pineland Drive Within the rural residential overlay area, in the last 10 years, Council monitoring of the consent activity and status, shows a varied picture as shown on Map 2 in Appendix A. This map indicates that there have been quite a range of compliance issues, with the other standards, as defined in the District Plan. As shown on Map 3 in Appendix A, the majority of new allotments created in the Rural Residential Overlay area are within the range of 0.6 to 3.9 ha and 4 to 11.9 ha in size. 210 November

11 The following presents some statistics summarising the demand pattern for Rural Residential Development in the Rural Zone, over the past 10 years. Rural Zone, Rural Residential landbank Rural Subdivision (Outside Overlay Area) ha 232 Lots Rural Subdivision (Inside Overlay Area) ha 521 Lots Rural Residential landbank as defined by Area (District Plan): Rural Residential Overlay Area ha Parklands 26.17ha Moonshine Valley 76.15ha Aokautere Rural Residential ha The following tables provide further breakdown of the size of the allotments created within the Rural Zone and Rural Residential Overlay Area. Number of Parcels Created Subdivision within PNCC Rural Zone over past 10 years <0.1ha 0.1-1ha 1-2ha 2-4ha 4-8ha >8ha Parcel Size Created Rural Zone Rural Residential Overlay Split - between RR Overlay and Rural Zone Figure 3: Range of Parcel Sizes (Lots) Created, PNCC Rural Zone ( ) The largest single proportion of lots created were between one and two hectares and within the rural residential overlay. This could be attributable to the Controlled Activity standard of one hectare for the Rural Residential Overlay encouraging parcels of this size to be created. Anecdotally PNCC staff has observed demand for smaller lots (2500m 2 to 5000m 2 ); Figure 4 below provides a further breakdown of the number of these smaller lots that have been created. 211 November

12 Subdivision within PNCC Rural Zone Less than 1 hectare Number of Parcels Created Rural Zone Rural Residetnial Overlay 0 <0.1ha ha ha ha ha Parcel Size Created Figure 4: Range of Parcel Sizes (Lots) Created Under 1ha, PNCC Rural Zone ( ) Of note from Figure 4, is that most of the lots under one hectare have been created in the Rural Zone outside of the Rural Residential Overlay; this is considerably less than the four hectare standard specified in the District Plan for the Rural Zone. A review of Rural-residential subdivision consents approved under the current District Plan framework have highlighted a number of resource management issues 6 including: the potential for low density urban growth extending into areas potentially inappropriate for such growth; An increased desire for urban services in the rural environment and the ad-hoc provision of associated infrastructure, in particular local roading networks; the effectiveness and suitability of on-site wastewater treatment systems (septic tanks); potential effects on the overall productivity of the rural zone; the subdivision of rural land that may suitable for future residential growth; effects on rural amenity and local landscape features; and reverse sensitivity (complaints from new rural residents about existing rural activities); 2.3 Palmerston North Physical Resource Description Landforms The 2008 Palmerston North City Council State of the Environment Report records the following information about the City s land resources: - Palmerston North City occupies an area of 32,594 hectares. Its land area extends northeast to Ashhurst and the Manawatu Gorge, eastward up to the ridgeline of the Tararua Ranges, 6 Palmerston North City Council (2011) Rural Residential Land Use Strategy Discussion Document. 212 November

13 and also extends south of the City. In the Palmerston North City District Plan, the total land area as zoned comprises approximately 18% urban and 82% rural. - The rural land contains two clearly distinct landforms. On the eastern side, steep hill country extends up to the ridgeline of the Tararua Ranges. The remaining landscape is lowland plains, formed by the Manawatu River that flows southwestward through the City. Typical rural land uses include farming, plantation forestry, and areas of native vegetation. Figure 5: Palmerston North Land Resource: (Source Turitea Reserve Management Plan) The New Zealand Land Resource Inventory (NZLRI) undertaken in the 1970s and 1980s in New Zealand, provides an inventory of the City s land resource. The Inventory records five physical factors for each unit : rock type, soil, slope, erosion and vegetative cover. These factors along with climate considerations are used to determine land-use capability classification. Land use capability (LUC) is an ordered arrangement of the land which classify its capacity to sustain production permanently. 213 November

14 There are eight major land-use capability classes. Class I and II comprise land which is most suitable for cropping, Class III and IV can, in some areas, sustain cropping, Classes V to VII are suitable for pastoral or forestry activities. The limitations reach a maximum with Class VIII, being land which is suitable only for protection purposes. The LUC information is available for all of New Zealand and is mapped at a 1:50,000 scale. LUC data has been used by Local Government to help determine resource management policy positions, or highlight areas of concern and to assess areas of sustainable land uses for areas of land (Jessen, 2001). In the Palmerston North District Plan, it is understood that, the Rural-Residential overlay was principally derived from LUC Class V and higher land. In other words, land less able to support more intensive farming such as cropping or intensive pastoral farming. From Table 4 below it can be seen that approximately 16% of the Palmerston North City area is what can be considered high class land. LUC classes I and II generally correlate with high class soils. Some 30% of the Palmerston North land area is LUC Class III and IV which is still considered to be productive land, but likely to contain other limitations such as climate which do restrict the use of land. The largest proportion of land fall within classes VI and VII, being some 41% of the District. Class I Class II Class III Class IV Class V Class VI Class VII Class VIII Excl Total ha % of PNCC land Table 4: The New Zealand Land Resource Inventory Classifications for Palmerston North City The range and proportion of LUC classes generally affect patterns of land use. A comparison of the three main categories of land use is shown below, along with a comparison with two neighbouring territorial authorities, of Manawatu and Horowhenua District Council. The figures used are sourced from the 2007 Agricultural Production Census. Palmerston North City Manawatu District Horowhenua District Cropping & 1.2% 2.8% 3.8% Horticulture Pastoral 85.2% 87.6% 78.6% Production Forestry 7% 2.8% 7.8% Table 5: Comparative analysis of the three main rural land use activities in the Palmerston North, Manawatu and Horowhenua Districts (2007 Agricultural Production Census) Land Transport Resources The length of roads, both sealed and unsealed, is one measure of the level of infrastructure provided by the Council or the New Zealand Transport Agency (NZTA) as Road Controlling Authorities. As at April 2005 the Council controlled 460 kilometres of road. 214 November

15 Total Length of Roads in Palmerston North, as at April 2005: Roading Assets Urban Rural Overall Sealed km km km Unsealed 0.90 km 36.9 km km Percentage Sealed % % % Total Maintained km km km [Source: Palmerston North City Council - City Networks Unit, 2010] In addition, NZTA administers and funds 48 km of roads within Palmerston North City. This is made up of SH57 (28.6km), SH3 (18km), and SH56 (1.6km). 7 Surveys have shown that the majority of people residing in rural residential properties still work in town. Accordingly, the impact on rural roading is an important consideration for Council. Currently public transport services from rural residential areas to the City s major employment areas are limited. Initial discussion with PNCC staff have identified a number of transportation issues specific to rural residential subdivision: Some developments (in consents process) do not adequately consider the downstream effects or total effect of all small developments. Rights of Way do not provide for good connectivity and raise network pressure on some roads, lowering amenity for those residents whose properties are adjacent to that road. A number of Roads have been indentified in the City s rural areas, where from a traffic point of view further development is considered inappropriate. Many roads where rural residential development has been occurring are not suitable for high volume traffic movements, as sight distances are often inadequate. A common argument is that as traffic volumes on the road are low, so it is unlikely that a driver turning into a property will encounter another vehicle at critical times. But as development in the area increases, so too does the risk of accidents. A review of the Rural Road Standards needs to be considered. Pressure to increase roading standards places more pressure on funding. In some locations, the specifications may be inappropriate from a usage and urban design perspective. At the time of preparing this report Council was currently undertaking investigations and supporting studies to develop a new roading hierarchy and road design standards for Palmerston North City. Proposed Plan Change 7, Roading Hierarchy, was publically notified 16 November Sourced from: State of the Environment Report, Length of Our Roading Network. 215 November

16 3 Issues and Effects 3.1 Policy Issues identified in research papers A number of research papers were reviewed to summarise common environmental effects arising from rural residential subdivision. Hunter et al (1998) concluded that environmental effects of any rural subdivision is dependent on a range of factors, including environmental setting, size of lots, spatial and temporal pattern of subdivision, mix of land uses, and attitudes and values of land holders Loss of Versatile or High Class Soils The loss of high class soils through subdividing rural land into smaller units raises two areas of concern. Firstly, that these smaller units may no longer be used for commercial food production, and secondly, the loss of the ability to use these soils in the future due to them being covered with hard surfaces, foreclosing future options. Table 4 above showing LUC classes shows that approximately 16% of the of the land area of PNCC is identified as Class I & II land. While this data is soils information, highly versatile soils are generally found on highly versatile land. The loss of versatile soils has been raised as a concern in a number of notified subdivision applications and through the District Plan review process (see below in Section 3.3). Hunter et al (1998) noted the following points regarding versatile soils: The size of the issue depends upon the percentage loss of soil under hard surfaces. Importance increases with the overall density of development enabled through the subdivision. Hard surfaces commonly cover about 400 m 2 per lot, plus a driveway. Percentage loss of versatile land, for areas not requiring additional roading is estimated at 1% for 8 ha lots and 2% for 4 ha lots. Internal roads commonly occupy 4-8% of the area, in a conventional rural-residential development. For rural-residential development, the percentage loss of versatile land is estimated as >12% for 1 ha lots and >20% for 0.5 ha lots. Regional Policy Framework The Proposed One Plan as amended by Decisions, August 2010 discusses the issue of the loss of versatile land. In the Scope and Background of Chapter 3 Infrastructure, Energy, Waste, Hazardous Substances and Contaminated Land it states the following : Urban growth and versatile soils Allowing urban expansion, including the development of rural residential lifestyle blocks, onto the more versatile soils adjacent to urban areas results in a reduction of options for their future productive use. This can adversely affect the ability of future generations to meet their reasonably foreseeable needs. This is supported by the following issue, objective and policy: 216 November

17 Issue 3-1C: Adverse effects from urban growth on versatile soils Urban growth, including the development of rural residential lifestyle blocks, on versatile soils can occur on the fringes of some of the Region's urban areas, most notably Palmerston North. This can result in those soils no longer being available for use as production land. [pg 3-3] Objective 3-1C: Urban growth and versatile soils Avoiding, as far as is reasonably practicable, urban growth that results in Class I and II 1 versatile soils 2 being no longer available for use as production land^. [pg 3-4] 1 As identified in the Land Use Capability (LUC) Classification system. 2 For general information purposes these soils largely comprise the following soil series: Egmont, Kiwitea, Westmere, Manawatu, Karapoti, Dannevirke, Ohakune, Kairanga, Opiki and Te Arakura. Policy 3-3B: Urban growth and versatile soils In providing for urban growth, including rural residential (lifestyle blocks), Territorial Authorities^ shall place priority on: (a) the retention, as far as is reasonably practicable, Class I and II versatile soils being made no longer available for use as production land^ (b) considering the consolidation of existing or partly developed areas before opening up urban development. These insertions into the One Plan are further explained at 3.7.1A: 3.7.1A Urban growth and versatile soils The RMA requires those with functions under it to have regard to resource costs and benefits of urban development. For example, directing urban growth or development onto less versatile soils may increase travel distances, costs of service provision or other economic or environmental costs of land development. However, allowing urban expansion onto the more versatile soils adjacent to urban areas will result in a reduction of options for their future productive use, which is a cost to future generations. Territorial Authorities need to weigh these matters when making land use decisions. [pg 3-14] If the above objective and policy come in to effect unchanged, PNCC will need to demonstrate in their second generation District Plan how the policies in the District Plan give effect to the RPS (One Plan) Decreases in groundwater quality/impacts on water quality Changes in potential impacts on water quality can depend on what the previous land use activity was. Some studies have found that effects on water resources and water quality can be negative if changing from pastoral farming, but positive if cropping land is subdivided. Hunter et al (1998) concluded that the increased potential for contamination of ground and surface water from effluent disposal is an effect arising from subdivision (a negative effect) and needs to be balanced against the reduced input of nitrates and 217 November

18 pesticides associated with a reduction in the extent of intensive land uses such a dairying and cropping (a positive effect). Septic tank discharges associated with rural households can have significant cumulative effects when lot sizes are small. The Regional Council rules and standards regarding effluent disposal is discussed further in section below. The potential impacts of rural subdivision on the water resource will obviously depend on what water supply is being used. Some research has identified that stormwater runoff can have an adverse impact, if improperly designed. Factors that would increase the likelihood of adverse stormwater effects occurring include poor drainage on sites, steep slopes or gradients around the developed site, low grade in streams and sensitive land uses downstream. Inadequate sediment control during construction periods (earthworks) can lead to sedimentation of waterways which has both biological and hydrological impacts. While this is generally a short term effect, it can lead to adverse effects depending on the sensitivity of the receiving environment. The Regional Council also has rules and standards relating to earthworks Biodiversity Whereas some native birds thrive in subdivided areas (e.g., fantail), those requiring specialised habitats, and those affected by the presence of humans, habitat modification, and domestic cats, may decline. Subdivision and development adjacent to or within specialised habitats such as forest and wetlands may result in declining values of bird habitat and loss of biodiversity. A number studies reviewed found that there is often an intention to plant trees on lifestyle properties, with the types of species being planted varying greatly from exotic landscape trees to native trees. A number of studies have also found that rural residential subdivision can increase plant pests and weed diversity Amenity/Landscape Effects There are a number of issues related to rural subdivision that fall within the topic of amenity. Subdivision of large areas of rural land can been seen as introducing a considerable change to the rural environment. Subdivision may introduce smaller landscape patterns, due to housing, roading and additional planting (gardens). There can also be a range of impacts on landscape values, at varying scales. The degree of sensitivity of a landscape to subdivision will depend on a number of factors, including such things as natural patterns of landscape and drainage, significant natural features and the values that a community places on landscapes or particular landscape features. The 218 November

19 Palmerston North District has a number of landscapes that are highly valued by the community (discussed further in Section below). Palmerston North City Council has recently commissioned a report to prepare a detailed Landscape Study of the City 8. A further staged investigation is underway to supplement this Report and to support future Community Consultation processes to identify the values the community places on the different landscape types, units and attributes Size of lots The size (area) of properties (or allotments) within a subdivision, can affect the impact of activities or particular events that are calculated on a per hectare basis. Factors such as effluent disposal, runoff of water, sediment generation, loss of versatile soils are all dependent upon the relative areal extent or density of housing, hard surface, earthworks, septic tanks etc. Other things being equal, there is a general principle that the smaller the average area of lots within a subdivision, the larger the impact of subdivision. Therefore where small subdivision sizes are proposed, more care must be taken by decision makers to ensure that there will not be significant adverse effects. This may not apply to such an extent, when services such as effluent disposal are integrated, as in a rural-residential development. From a number of studies looking at smallholders and small holdings in Canterbury, Cook & Fairweather (2005) noted two conclusions as to why larger farming blocks were being subdivided into smaller units. Firstly, subdividing into smaller horticultural blocks is attractive as smaller blocks are more viable units for this type of production. And secondly, subdivision also meets market demand from purchasers having the desire for a rural lifestyle, where production activity is a secondary consideration. They went on to state, the immediate implication of the second wave is concern over impacts on agricultural production from the increase in small holding, where land previously used for farming fails to be used for the production of agricultural goods. As Hayes (2002) observed, such concerns have resulted in legal challenges to the subdivision of farmland with appeals to the Courts for the purpose of overturning decisions to subdivide. The Environment Court has found the efficient use of the land area had bearing on decisions to subdivide rural land while expressing concern over the changes that might occur in the rural landscape (e.g., Tata Partnership v Tasman District Council 22/1/03, Wg/2003). However, as Wheen (2002) has highlighted, the Courts have also concluded that while subdivision of rural land would not necessarily sustain the life supporting capacity of the soil and maintain resources for future generations, it is possible to argue that other uses can be condoned where they provide for the needs and rights of an expanding community Land Use and Production on Rural Residential Blocks Research on land use change and the wider regional implications of smallholding, confirms that seeking privacy is an important motivation for smallholders and that long-term ownership of land is anticipated by smallholders. The literature also shows subdivision from 8 Opus International Consultants (2008), Palmerston North Landscape Study. 219 November

20 traditional farm land does not necessarily lead to a decrease in productivity. For Scarrow et al. s (1996) study at least, an estimated 52 per cent of land included in the survey was producing more, or equal, to what it produced prior to subdivision, presumably on the larger-sized holdings. Fairweather & Robertson (2000) surveyed a number of small holders to ascertain the smallholders past, present and future land use activities to find out what they produced on an annual basis. The results are shown as Table 6 below, the table. Shows the land-use activity data and reports the number who selected each option and presents the land uses in order from most to least frequently selected. Table 6: Smallholders past, present and future land use and value of production (from Fairweather and Robertson (2000)) Disadvantages of Rural Residential Living In their research, Cook and Fairweather (2005) surveyed smallholders to gain an understanding of the disadvantages encountered with the rural-residential lifestyle choice. This is shown in Table 7 below. 220 November

21 Reverse sensitivity, or complaints about existing farming operations (smell, noise) is anecdotally a common concern with rural residential development as reported by Local Government Planning Staff. The scale of this issue prompted MfE to produce a brochure Thinking about living in the Country. Table 7: Survey results of smallholders to gain an understanding of the disadvantages encountered with rural residential dwellings (from Cook and Fairweather (2005)) 3.2 Horizons Regional Council Concerns with rural residential development Horizons Regional Council notified the Proposed One Plan (POP) in May Hearings were completed in April 2010 and the Decisions on the POP released in August The relevant Proposed One Plan objectives and policies, (and where appropriate rules), were reviewed in order to identify areas likely to be of interest to the City Council in reviewing the rural residential rules and also potential impacts on planning for future rural residential development. In addition, to a brief analysis of the implications of the Proposed One Plan, matters addressed in discussions with Horizons staff from have been incorporated into the section below Effluent disposal There are strong Policy signals in the POP and from discussions with staff that effluent disposal is a key concern, particularly onsite disposal from clusters of small allotments. The proposed RPS sets out policies relating to point source discharges to land, it requires that point source discharges are managed so that there is no significant degradation of existing groundwater, that pathogens are controlled, and the re-use of nutrients and water is maximised. The Proposed Regional Plan allows for the onsite wastewater disposal subject to performance standards, the permitted activity standards depend on the overall size of the property (lots) and soil type. Smaller lots will require secondary treatment systems and the standards would not allow for onsite wastewater discharges to land where properties are 221 November

22 smaller than 2500m 2 (or 5000m 2 for subdivisions after the rule came into effect) as a permitted activity. Properties that were smaller than 5000m 2 would require consent as a restricted discretionary activity for onsite wastewater disposal. This will be an important matter for Council to consider in its reviewing of the ruralresidential subdivision rules. As part of the development of the POP, Horizons have developed a standard also known as a Manual for Onsite Wastewater Systems, to assist applicants with the design and management of systems. The relevant provisions are set out below; 1.3 Regional Rules New Proposed Regional Rules for land disposal of treated effluent have been developed with the objective of improving the quality of effluent discharge and land disposal systems. The overall aim is better protection of surface water and groundwater in the Region. The proposed rules for land disposal are more stringent than previous rules for small sites (generally accepted as being up to 5,000 m 2 where there are risks from cumulative effects of multiple onsite effluent disposal systems. Proposed requirements for large sites (defined for this document as being greater than 10 hectares), are less stringent Permitted Activity Rules On-site wastewater systems must comply with Permitted Activity criteria, or they will require discharge consents from Horizons. Policy 13-3 of the Proposed One Plan (POP) sets out the management objectives for discharges of domestic wastewater. Proposed Rule sets out the conditions/standards for Permitted Activity classification for the discharge of domestic wastewater from systems that existed lawfully when the POP came into effect. Rules and set out the conditions/standards for Permitted Activity classifications for new and upgraded systems. The rule for new systems only becomes applicable after the One Plan, or this section of the Plan, becomes operative. [pg 3 Manual for Onsite Wastewater Systems (2010)] Biodiversity The loss of indigenous biological diversity is identified as a significant resource management issue in the POP. In fact, the POP (as amended by Decisions) has the loss of the Region s native habitat (indigenous biological diversity) as one of its four keystone environmental issues. Objectives in the RPS are designed to protect rare and threatened habitats, and maintain at-risk habitats November

23 The Regional Plan specifies rare, threatened and at-risk habitats and sets out a methodology for determing how these are to be identified and classified. Schedule E is a component of Part II - the Regional Plan, and assists the undertaking of assessment of habitats, and in determining whether a resource consent is required. The policy implications for rural residential development are that such habitats are predominantly located in the rural areas (hence Council Planners processing development or subdivision consents may need to consider if the application triggers Regional Council consent requirements in addition to those in the District Plan). Such biodiversity features (e.g. bush remnant, wetlands) may also be a catalyst for protection, through techniques used to manage or control the effects of rural-residential subdivision (see Section below) Natural Hazards The Manawatu-Wanganui Region is vulnerable to a number of natural hazards. The principal threat is from flooding. Other natural hazards include earthquakes, tsunami, volcanic action and land subsidence. Climate change is likely to influence the frequency, scale or intensity of atmospherically influenced natural hazard events such as flooding. The vulnerability of the Manawatu-Wanganui Region to natural hazard events is increased because of human activity such as: land disturbance and vegetation clearance, particularly on hill slopes in a Hill Country Erosion Management Area, which can increase the erosion risk and the amount of sediment in the flood channel, in turn increasing the intensity of, and effects from, floods and reducing the effectiveness of mitigation measures such as stopbanks; the increasing number of people living in hazard-prone areas (including associated infrastructure) such as along the coast and adjacent to rivers, which increases the damage potential from natural hazard events, putting lives at risk. It can also reduce the effectiveness of existing mitigation measures such as stopbanks. The approach to managing natural hazards in POP is to: a) set out a clear regional framework for natural hazard management, b) improve clarity around the respective roles of the Regional Council and Territorial Authorities under the RMA, c) discourage future residential development and placement of critical infrastructure* in areas prone to natural hazard events, particularly areas at high risk of flooding, and d) continue to provide information to Territorial Authorities and the general public with regard to natural hazards. [refer Chapter 10 Natural Hazards] 223 November

24 Schedule I shows floodways and areas prone to flooding and include a number of areas in the City: Moutoa floodway, Taonui Basin spillways, floodways and floodable area and the Reid Line floodway. Policy 10-2 in the RPS is particularly relevant as it places restrictions on development in areas prone to flooding. Flood avoidance is to be preferred to flood mitigation, the RPS generally requiring dwellings not to be located in any 0.5% AEP area Landscapes and natural character The POP identifies the Tararua and Ruahine Ranges in particular as being at risk from the effects of development, including from development in the rural zone and rural residential subdivision. The policy objective is that the outstanding landscapes identified are protected as far as practicable: Table 8: Part of Table F1 in Schedule F, showing Regionally Significant landscapes within the Palmerston North City Council area Schedule F: Regionally Outstanding Natural Features and Landscapes is a component of Part I - the Regional Policy Statement and lists some regionally outstanding natural features 224 November

25 and landscapes in the Manawatu-Wanganui Region and their associated characteristics and values, in narrative form. Similar to the requirement for assessments to be undertaken for biodiversity purposes, further studies under this policy will be required (using the approach set out in Policy 7-7A and the criteria listed in Table 7.2) at the time that any use or development is proposed for those areas, so that the actual location of the feature or landscape can be defined in relation to the use or development proposal. This will be an important consideration for Council to consider in its review of rural residential subdivision rules. The Palmerston North Landscape Study and supplementary work will significantly assist in providing direction and a defining a landsape management framework for the City, including the management of the landscape values within the rural areas. Also see Section below that discusses the technique of identifying particular ridges which are considered by the community to have special landscape values and which may be adversely affected by activities occurring along or close to the line of the ridge Discharges to Air In the decisions on the POP Chapter 8 Air in the RPS it is noted that in respect of ambient air quality: Policy 8-4 and the associated methods assist in education of the community about rural versus lifestyle block incompatibilities and also encourage Territorial Authorities to review future land use developments to prevent incompatibility and reduce future complaints. This policy reads: Policy 8-4: Incompatible land^ uses Air quality problems arising from incompatible land^ uses establishing near each other must be avoided, remedied or mitigated primarily through district plans^ and Territorial Authority^ consent decisions which: (a) (b) prevent the future establishment of potentially incompatible land^ use activities near each other, or allow the establishment of potentially incompatible land^ use activities near each other provided no existing lawful activity, operated in a manner that adopts the best practicable option^ or which is otherwise environmentally sound, is restricted or compromised. Air quality is therefore another consideration that should be taken into account when determining the best locations for allowing rural-residential development. These effects are touched on in Section above. 225 November

26 3.3 District Plan Review Discussion Document Summary of Submissions relating to rural residential matters SUBMITTER Perception: PLANNING (Phillip Percy & Alan Titchener). Trust Limited Power Rosemary Adams Aggregates Quarry Association and Nigel & Shirley Ellingham John Whitelock SUMMARY OF SUBMISSION POINTS Gives the example of the Hart subdivision on the eastern end of Kelvin Grove which includes a list of environmental outcomes that can be used when planning and designing rural residential land. Notes that a prescriptive minimum lot size approach would not allow the design to be fully responsive to the limitations of the site nor would it provide a means for fully utilising the positive opportunities available on the site. The minimum lot size is classed as a blunt instrument for managing the effects of development in rural areas whereas the preference should be to create an optimum development rather than necessary a complying development. The revised provisions in the District Plan should allow for more creativity, innovative and flexibility in planning and design of communities. With specific regard to landscape character and amenity values, these need to be tailored together with the outcome of the Palmerston North City Landscape study. Comprehensive planning for larger areas should encourage integration and connectivity within and between development which can be achieved through structure planning, design guide or both. Integrated management of rural land across local government boundaries should occur. PN city has relatively small land area and relatively high proportion of urban land use compared with neighbouring local authorities. No minimum lot size suggested. The conception is to retain the ability of land to be subdivided into smaller lots. Concerned about rural residential development being inappropriately located incurring reverse sensitivity effects. Supports lifestyle blocks of less than 1 hectare. Would like the speed limit on local rural roads to be lowered from 100km to 70km thereby enhancing safety for cyclists and motorists. Raises concern about ongoing rural zone subdivision as it represents a threat to the overall productivity of the zone and that lifestyles blocks can adversely affect the efficient use and development of the significant natural resources such as aggregate in the zone. This is because aggregates may be constrained by adjoining incompatible or inappropriate land uses such as rural-residential subdivision. Does not support the notion of lifestyle blocks in Rural Zone less than 1ha. Comments that PNCC need to better manage land identified for rural-residential and to establish a rural-residential strategy to identify the preferred locations for development to occur. Concern that there is no overall plan for potential developers to adhere to in terms of rural residential subdivision. There are no provisions made for paper roads and no buildings should be allowed to be located on paper roads. Developers have subdivisions approved with plans within their boundaries. No provision has been made for continuity of roads to adjacent properties. Believes that Council should make long term plan (20 years) to freeze land for paper roads which would assist potential developers to have clear understanding of the land that could not be built on thereby enhancing the city to have through roads rather than having pockets on a case by case basis No existing or previous strategy exists to guide the future development of lifestyle blocks within the City. Within the large rural sector of PN, there is a need to create an environment that ensures that the rich rural asset is recognised and able to fulfil its production potential. 226 November

27 SUBMITTER Jenny Olsson Mid Health Phil Pirie Central Selwyn Wycherley Kevin O Connor & Associates Ltd David Parham Bruce & Marilyn Bullock Judy Milne Higgins Aggregates Ltd Noel Olsson SUMMARY OF SUBMISSION POINTS A rural residential subdivision area be designated and contained within poorer fertility land Questions the social and personal compatibility between rural residential subdivision and business of rural sector which includes the following: o rural farm odours o harvesting, cultivation at extended hours o early morning stock movements o farm motorbikes o plant operations Believes that 1 hectare may not be benchmark, if effluent and access can be accommodated in smaller lots. Lifestyle blocks and rural residential needs to be defined Minimum lot size requirement must be in line with what the industrial sector can supply in equipment to treat effluent and household requirements so that the reticulation is not required to be supplied by Council. The effects of changing zone to allow for more rural residential properties changes the dynamics of rural community as rural residential people don t necessary have the background of how to behave and make commitment to rural community living. Encourages Council to use Health Impact Assessment to determine the future development of lifestyle blocks. This will determine the true costs on the rest of Palmerston North citizens of increased urban sprawl created by the current popularity of lifestyle blocks. Subdivision controls in the Rural Zone should be similar to Manawatu District Council which will ensure that there is no creation of inefficiently large lifestyle lots and consequential loss of productive land. PNCC should review performance standards and strategic direction for rural residential development including minimum and maximum thresholds. Uses the example of Mr Wycherley site which is currently seeking to subdivide the site into 29 lots. This site as stated in the submission is considered to be an excellent example of where a reduction in the minimum rural-residential lot size would provide for demand while avoiding ad hoc rural residential development. The District Plan should acknowledge unique positive attributes that serviced rural lots and reduce minimum size standards for similar proposed developments in the vicinity of 4000m². Outlines the example of the Kingsdale Park Drive subdivision as an opportunity for Council to illustrate strategic planning. The District Plan should reflect that serviced rural residential lots require less land than conventional rural residential subdivision. A semi urban Greenfield zone should be created to avoid planning and infrastructure problem where rural land is urbanised. The suggested zone would control activities and co-ordinate development so that future use is not prejudiced. Provision for a village like development with small lots within a larger rural zone could be provided for people who wish to live in rural environment but not have the responsibility of looking after a large area of land. Rural subdivision has adverse effects on rural landscape and poses conflicts of interest between farmers and lifestyle expectation. Higgins Aggregates Ltd considers it to be inappropriate to implement a minimum lot size of 1heactare for lifestyle blocks as this increases the fragmentation and would create a density of development that is not considered appropriate in Rural Zone. They also note that the other important issue to consider is the issue of reverse-sensitivity effects arising from rural residential subdivision located in close proximity to industrial type activity and request Council to consider this during the District Plan review. The District Plan needs to have zones which do not permit rural residential subdivision 227 November

28 SUBMITTER MC² Group Ltd New Zealand Defence Force AgResearch Limited J & K Love Trust Partnership Horizons Regional Council PN Industrial & Residential Developments Ltd Kevin O Connor & Associates Ltd Alison Mildon SUMMARY OF SUBMISSION POINTS Restrictions in rural areas on commercial or industrial development The release of appropriate lifestyle zones should be balanced against needs to retain productive farmland as well as reserving land on perimeter of city for future growth. Concerned about rural residential development located close to the Linton Army Camp due to reverse sensitivity issues, security of Camp and traffic issues associated with movement of large military vehicles. No mention of Linton Army in the reverse sensitivity policies of the subdivision section. NZDF believe adding such a reference would be helpful. Rural residential development close to Grasslands Research Centre has the potential to result in reverse sensitivity issues that could limit research undertaken at research centre. AgResearch seeks Council to introduce guiding provisions in relation to the location of rural residential zones requiring an adequate setback such as 500m from the research centre. That restricted access roads are removed from the Plan as it places subdivision pressure on better rural land in the City. Rural lifestyle blocks have the potential to improve the landscape. The Proposed One Plan has a higher standard for disposal of effluent waste on site with an aim to minimise cumulative effects on the environment. R13-11 incorporates the minimum lot size required for onsite domestic wastewater discharge. The minimum lot requirements should be 5000m² but between m² of stable land. Minimum lot sizes needs to be considered in conjunction with the soil type. Lots of 20 hectares and greater in rural zone subdivision to be non-complying to protect productive farming capability. Any block suitable for subdivision should have a calculation standard similar to the Manawatu District Council to provide subdivision opportunities. A minimum lot size of m² but with between m² of stable land. The rational behind lots sizes is the size of effluent disposal area, water collection tank, driveway and area for dwelling. Lifestyle blocks are a threat to the overall productivity of the rural zone. Ross Castle Manawatu Chamber Commerce of Ashhurst zoning to be either rural or rural residential and wishes for the minimum lot sizes to increase in Ashhurst. A sustainable and cohesive future development plan should be put in place for Ashhurst before rezoning. Council provides services to the community and if the community has a demand for lifestyle blocks then Council s job is to manage and enable this. 3.4 Results of Consultation on Residential Growth Options for Palmerston North (2010) Council has recently been undertaking work looking at future areas for accommodating urban growth, one of the questions asked during this consultation process specifically related to rural residential development. The question and responses are set out below: 228 November

29 Question 7: Do you think that any of the residential growth areas should be used for other uses, such as rural residential/lifestyle? Some submitters were supportive of rural residential subdivision, provided the following requirements were met: - Rural residential should be located where soils are difficult for farming and landscape and vistas are not compromised. - Council should decide what size of land holding is relevant, with minimum section sizes for properties. - Landowners must comply with planning restrictions for that area. - Fitzherbert East together with Pahiatua Track East and West and Polson Hill (on the left of SH57 travelling south) should be reserved for rural residential subdivision. - Old West Rural/residential subdivision (on left of SH57 travelling south). - Kahuterawa East and West, and the area between Millricks and Kendalls Line could be considered for rural residential. - The existing integrity and character of any particular area must be maintained as much as possible. - Some areas have rugged terrain and would be more suited to rural residential than residential due to infrastructure costs. - Ashhurst South would suit small lifestyle blocks hectares, better than higher density housing. - Need for rural residential lifestyles to cater for all needs - but these should not be on the better class land (should be on Massey side). - Those further away from the city should be used for rural residential lifestyle e.g. Ashhurst North and South, Kahuterawa East and West, Linton, Linton East, Fitzherbert East, Pahiatua Track West and Hendersons. A number of submitters were opposed to rural residential subdivision, for the following reasons: - Rural residential developments use large areas of land that could otherwise used for 500m 2 or 1000m 2 sections. - Rural residential is very expensive to redevelop at a later date - the services have to be redirected. - Allowing rural residential development around a city makes urban expansion more difficult (e.g. Anders Rd). - Class III soils are valuable too and lifestyle development is not a 'green' option in terms of reducing carbon footprint or peak oil. - Would prefer to see residential growth rather than lifestyle as it is a better use of land to house a greater population. Lifestyle blocks waste farmable land. - More intensive development contributes more to compact city. - Lifestyle blocks mean more vehicle trips to town, reduce quality of life for urban residents, increase crime, and discourage active transport. - Rural residential development undermines the goal of environmentally sustainable transport. 229 November

30 4 Techniques to Control Effects relating to Rural Residential Development 4.1 Introduction A Ministry for the Environment Publication 10 outlined a toolbox of planning techniques that relate to the development of land in rural areas. This stock take of techniques, provided the basis for the following section, but has been expanded on, and where possible examples are cross referenced to actual Council policies that are summarised in Appendix B, Review of Territorial Authority Policies. Councils use a range of planning techniques to control the effects of rural residential development. These include: Specifying standards for lot size, shape, minimum frontages Controlling rural subdivision as a controlled activity, discretionary activity or noncomplying activity with respective performance conditions for each Setting minimum allotment areas for subdivision and associated minimum site areas for dwellings (permitted or controlled activity), defined according to zones or management areas Placing controls over buildings rather than allotments Protecting ridgelines and view-shafts Using rationing methods Identifying special areas Using structure plans Using clustering techniques Residential Farm (or Forest) Park Development Requirements Allowing nature feature protection lots Transferable Development Rights Each of these techniques are outlined. The advantages and disadvantages are outlined Specifying standards for Lot size, shape, minimum frontages This is a common control technique that gives clarity and is used as an alternative to minimum lot sizes in order to space lots out along roads for traffic safety reasons and to retain open space between allotments. An example of this type of technique is in the Manawatu District Plan, which has a standard that in Rural zones the minimum lot size is 8 ha (in Rural Zone 1) and an average 4 ha lot size in the Rural Zone 2. These rules relate to the effects on versatile land and productive options. 10 The Impact of Development on Rural Lanscape Values, November

31 Advantages Can assist in ensuring subsequent development is well-spaced from adjoining development. Avoids irregular or awkward shapes and maintains spaciousness between lots. Disadvantages An arbitrary standard with no better relationship to the variability of soils or the landscape. Can be difficult to apply to complex and varied topography. The use of standards relating to road frontages and entrances would need to be based on sound evidence that the perception of a property from its road frontage is an important landscape value for road users. A frontage requirement does not control where dwellings and driveways will be built and these are often the most obvious visual effects of a new allotment. Requirements for lengthy road frontages can cause allotments to be strung-out along roads compared to a concentration of allotments and therefore could impact on landscape values Controlled Activity A common control technique is to enable rural subdivision as a controlled activity and generally a minimum allotment area standard applies. There are many examples of the types of provisions that can be included regarding controlled activity applications, ranging from very general to very specific. Section 6.7 in Appendix B shows a range of allotment standards which have been defined by other territorial authorities. Advantages Some certainty regarding level of subdivision and development that can take place. Assessment criteria that relates clearly to the values of a particular area is useful in providing specific guidance. Non-regulatory information, guidelines, advocacy and other assistance can support the plan s provisions. Can specify what matters will be assessed as part of an application. For example, Tauranga District Council s Variation No 1 to its Proposed District Plan required as a standard for its controlled activity status, that a landscape assessment be undertaken and presented with the application for subdivision. Disadvantages Council staff are concerned as to how far they can go in go in applying conditions that seek amendments to boundaries, design, layout, reserve before it effectively becomes a declination of what was originally sought. Avoidance of adverse effects limited to matters of detail, if greater discretion or control is required to ensure values are not adversely affected controlled activity status may not be sufficient. Inconsistency of interpretation by staff and applicants of assessment criteria. 231 November

32 4.1.3 Discretionary Activity The category of consent can sometimes be a default activity status for applications that do not meet controlled activity rules, though for a number of Councils both full and restricted discretionary status are used. District Plans have been found to vary markedly in the level of guidance given on policy or assessment criteria to assist Councils and applicants in considering whether an application will be deemed controlled or discretionary activity subdivision consent. Section 6.7 in Appendix B shows a range of allotment standards which have been defined by other territorial authorities. Advantages Ability to decline applications. Can consider wider effects (compared to controlled). Flexibility to consider range of allotment sizes without being arbitrarily limited by a minimum allotment area. Opportunities for public involvement (assuming public notification). Restricted discretionary status can be used to clearly define the matters to be considered, and applications can be specified as non-notified without the written approval of affected persons being obtained. Disadvantages Uncertainty for landowners, may discourage investment. Potential for issues that may or may not be of resource management concern to be raised. Public involvement through public notification and submissions can act as significant disincentive to pursuing a resource consent Non-Complying Activity Many District Plans specify subdivisions that do not comply with controlled activity status as non-complying activity. Advantage Clear and certain application of rules, gives a clear signal that the minimum area or other standards must be complied with, or the application will default to being a Non-Complying Activity and can be more difficult to obtain consent. Disadvantages Can be an arbitrary approach, and not allow sufficient flexibility to consider a range of approaches Can be used as a default position. Significant disincentive to landowners and potential purchasers. 232 November

33 Creative approached may be stifled Minimum Allotment Area for subdivision and associated minimum site areas for dwellings (permitted or controlled activity) or other activities, defined according to zones or management areas The minimum areas are usually based on a range of environmental outcomes sought for different zones in the district. It is not uncommon for the District Plan to have different allotment areas based on different zones. For example the Manawatu District Council has different standards for subdivisions within defined nodal areas. This technique may also include specifying a minimum effective disposal area (e.g. as proposed by Horizons in the POP see Section 3.2.1). The Tararua District Council s District plan has moved away from defining a minimum allotment area, instead a suitable subdivision area is based on meeting the effluent disposal areas required. The District Plan does however have minimum subdivision sizes around urban buffer areas. Advantages Certainty regarding level of subdivision and development that can, or is likely to take place, in any area. Relatively straightforward enforcement and administration of subdivision. Overall density of dwellings can be precisely achieved. Disadvantage With performance standards for effluent disposal fields, likely that easier option of meeting the standards would be chosen, and opportunity for enhancing treatment or design lost Controls over buildings rather than allotments This is a traditional District Plan approach where controls are placed over buildings in rural areas such as setbacks from boundaries and separation distances between dwellings. Standards are used for different reasons e.g. amenity and landscape values to retain spaciousness, rural outlooks and privacy. An example of this technique is found in the Manawatu District Council Plan, whereby in the rural zone, houses within 100m of road frontage cannot be located within 400m of an existing dwelling. The purpose of this rule is to prevent ribbon development along rural roads. Advantages Certainty regarding the location of dwellings and other buildings, for people wanting to build, and for adjoining landowners. 233 November

34 Enforcement and administration of building requirements are relatively straightforward. Where the effect of building is on visual amenity as viewed from roads, a separation distance can ensure buildings do not dominate the outlook from adjoining roads. Disadvantages Standards often imposed without research or sound understanding of their effects or whether or not the desired environmental results will be achieved. Often the effectiveness of separation distances is overestimated particularly in a rural area. Does not take into account the varied nature of the landscape or control the siting and orientation of buildings on the site. Separation distances often fail due to the unfairness of the first-in first-served nature of the rule, which then constrains the choice of sites for subsequent houses Ridgeline and View-Shaft Protection This is where District Plans identify particular ridges which are considered by the community to have special landscape values and which may be adversely affected by earthworks, utilities, vegetation clearance, or buildings immediately along or close to the line of the ridge. Some Plans also identify view shafts from important or popular public viewing points, which could be blocked or detracted from tree planting or buildings in close proximity to the viewing point. The Hastings District Plan and Manawatu District Plan are both examples where view-shaft and ridgeline protection areas are identified and must be taken into account with consenting subdivisions. Consent Notices are sometimes placed on Certificates of Title restricting certain types of buildings on property that may affect these special amenity areas. Advantage Adverse effects on ridgelines or view shafts can be avoided or mitigated. Disadvantages Need to be clear about how the location of any activity is measured in relation to the ridgeline or viewing point. Can be crude or limited in the landscape issues they address; more comprehensive assessments may be needed so that the standards imposed can more effectively address the landscape impacts of building in these areas. Where ridgeline avoidance rules have been used without identifying specific ridgelines on Planning Maps most Councils have found the rules vague and difficult to interpret. These rules are very specific in the landscape effects being addressed and need to be based on a good understanding of precisely what effects the standards are seeking to avoid or mitigate. 234 November

35 Rules tend to have general statements about avoiding development on ridgelines, skylines and hill tops but need to be backed up by landscape assessment reports to show that a proposed development is any more detrimental to landscape values than development on hill slopes, in gullies, or in flat paddocks Rationing Methods A method that is increasingly being used by Councils to achieve a fair and workable way of ensuring a low density of residential development throughout the countryside. The method is based on the development principle that subdivision of additional allotments can be rationed over both time and space. Advantages Seen as being fair between landowners allowing the ability to subdivide at least one house site from their existing title. Rationing across existing ownership patterns means the effects are spread more evenly across the countryside. Disadvantages There is no relationship between the location of the existing allotments and the ability of the landscape to absorb the development without adverse effects on landscape values. Potential for cumulative adverse effects on rural character and amenity. May be no control over the location and layout of the new allotments as these are likely to be sited to most suited to the landowner. In areas where the landscape can accommodate greater levels of development without adverse effects on landscape values, these techniques can be inflexible and arbitrarily restrict more development; potentially increasing costs and contributing to housing unaffordability. Entirely unrelated to landscape effects; lack of guidance on how to consider applications that go beyond the standard or how to consider conditions on controlled activity applications Identification of Special Areas This is where a District Plan identifies parts of their rural areas where the community has accepted development in the rural environment at a more intensive level (and variously name these areas as: country-side living areas, rural-lifestyle zones, ruralresidential areas etc.) or alternatively that development needs to be carried out in a sensitive way because of the vulnerability of the landscape values (and known as outstanding natural features or landscapes, coastal protection areas etc.). For example, the POP has set out criteria for identifying significant natural areas see discussion in Section There are then rules that restrict certain activities in proximity to significant natural areas that meet the criteria specified. 235 November

36 The Hutt City Plan has a Landscape Protection Residential Activity Area. The Hastings District Plan has a number of special areas defined, such as the Te Mata and Tuki Tuki Special Character Areas. Advantages Guides development into suitable areas and away from areas, where the adverse effects from development can be more severe or obvious. Disadvantages Whatever rules and standards are applied, the specific areas must be identified through a rigorous landscape assessment process done expressly for this reason or via the methodology or criteria specified Structure Plans Structure Plans may be included in District Plans to define the allotment pattern and overall layout of roads, open space and protection areas for future development. Often used for areas likely to be under pressure for development, in the immediate future, and to ensure efficient and co-ordinated infrastructure provision. Advantages The process and results can be easily understood through the preparation of a detailed development plan. Where there has been community input there can be considerable community buy-in to the overall development concept. Enables the co-ordinated consideration of an area with an integrated vision aligned to a logical cost effective and funded infrastructure plan. Can achieve specific outcomes for an areas including avoiding adverse effects on landscape values. Provides certainty for landowners and the wider community as what s likely to happen on a particular piece of land and when. Disadvantages Unless the Structure Plan is included in the District Plan, it has no legal status and outcomes are not assured. Inflexible any variations require a resource consent or a change to the District Plan. Some Councils can get concerned that development rights (such as subdivision potential) will not necessarily be spread equitably or evenly between landowners. Flexibility may be improved if allotment boundaries are not shown, so strategic direction is given through road layout, open space/protection areas etc; thus allowing imaginative subdivision design process to be controlled by the landowner/developer. 236 November

37 Clustering Techniques This is where subdivision rules encourage clustering of residential allotments within a countryside or rural environment. Specific standards may be prescribed for such things as defining the cluster, the proximity of the residential allotments and distances from other clusters or other developments. Advantages Means that large rural open-space areas are retained while still accommodating residential activities. Hamlets are a recognised feature of many rural landscapes and provide an option for meeting the demand for rural lifestyle subdivisions, provided a rural character is maintained. Disadvantages Not always the most suitable pattern of subdivision in terms of the ability of the landscape to absorb development without adverse effects. May compromise the rural qualities, of separation and privacy, that rural residents frequently seek. Rules often include complex standards to prescribe the clustering of residential allotments. Adequate monitoring and reporting mechanisms need to be put in place to enable the long-term management of the balance of the undeveloped allotment and to prevent further future subdivision Residential Farm (or Forest) Park Development Requirements This is where District Plan provisions enable the development of residential allotments as a farm park development within the rural area. Residential allotments and their dwellings are each individually located to ensure the least impact on landscape or natural character and this is sometimes controlled through the use of a Structure Plan, which is included within the Plan rules. The Hastings District Plan has different standards for allotment sizes in Farm Park Developments, together with supporting policy outlining what is hoped to be achieved by the development of Residential Farm Parks. Advantages Innovative new technique that will mature with further adaptation and development. Can achieve comprehensive land diversification and management while managing any adverse effects from subdivision and development on important values or natural features. Disadvantages Plan change procedures can appear unduly onerous and time-consuming to potential subdividing landowners especially when the development model is 237 November

38 unfamiliar to Councils and because the outcome of any plan change request is uncertain. Clear guidance on the environmental outcomes sought need to be articulated in the plan, to provide certainty as to how any application is going to be considered, and its fit with more conventional zones. Rules and standards need to provide sufficient flexibility, evolve with experience, and to ensure that they do not place unnecessary impediments in the way of achieving the desired results. Adequate mechanisms need to be put in place to enable the long-term management of any balance farm or forest areas, and to prevent further inappropirate subdivision Nature Feature Protection Lots Some Plans include provisions enabling the subdivision of residential allotments in rural areas where the long-term legal protection of a natural feature (e.g. bush or wetland) is achieved at the same time. Typically the creation of a rural residential type allotment is allowed where it would not otherwise be allowed, on the proviso that an area of native bush or other natural heritage feature is identified and protected. The technique can be enhanced by stipulating performance standards or conditions regarding the design and layout of subdivision to enhance, for example, ecological corridors; increasing threshold and/or intensification sizes of natural areas that qualify as protection lots; and enabling developments where planting is part of a comprehensive approach to rehabilitation and enhancement of land. Advantages Protection of lots provides an effective incentive for legal, long-term protection of natural features. Landowners receive some financial gain from having a natural feature on their property. Opportunities are made available for people to live in rural areas but dispersed according to the location of the natural features. Techniques are well accepted and understood in the areas where they have been applied. Enables active management and enhancement of the natural feature to be implemented via conditions e.g. fencing, weed and pest control. Disadvantages Residential allotments can become located in an ad hoc manner based on the location of the natural features rather than on the most suitable location in terms of avoiding or mitigating effects on more general landscape values, natural resources or servicing requirements. If rules aren t carefully prescribed and appropriate assessment required, very small areas of low-quality bush can be used as the basis for obtaining additional 238 November

39 residential development rights, without there being much advantage in terms of protection of the natural feature. New owners of residential allotments containing natural features may, have little experience, or be unaware, of the active management that is needed to ensure long-term protection of the feature. The focus may be on protection of existing significant stands to the detriment of areas of regenerating areas. Small, isolated pockets of bush can have significant edge effects diminishing the overall ecological value of the bush lot. Insufficient public benefits may accrue vis-a-vis the private benefits (subdivision bonuses) being given Transferable Development Rights This is where the right to subdivide and erect an associated house is transferred from the property containing the natural feature to another location provided that long-term legal protection is given to the natural feature. Transferable rights may also apply to other situations (not involving natural features) and forfeiture of rights to develop in certain areas or to subdivide from areas, where it is considered that the adverse effects of subdivision and development cannot be avoided, remedied or mitigated, into a wider range of recipient areas. Advantages As for above; residential development can be directed to locations where the environmental effects are not as significant or can be managed more effectively. Transfer of development rights enables landowners to benefit from having a natural feature in their property (which is protected) whilst development can occur in a more suitable area (or at a greater intensity/density). Disadvantage Recipient areas (or criteria for determining recipient areas) for any transferred allotments, must be carefully chosen Rules limiting Earthworks These can include limits on volumes or area of earthworks and setbacks, these can occur in both Regional and District Plans. Advantages Can be a useful way to control potential nuisance effects associated with the development of subdivisions, particularly if a number of lots are being developed at the same time 239 November

40 Disadvantages Detailed design of subdivisions is not always known at the time subdivision consent is being sought, leading to the need for further consents being sought once a subdivision consent is granted. 4.2 Monitoring Rural Land Use Change The study by Hunter et al (1998) has shown that in rural subdivision certain resource components (water resources, soil, biodiversity) may be affected, while others remain unchanged. Often the degree of adversity of the effect is directly influenced by a range of local (e.g., existing land use) circumstances and vulnerabilities of the system (e.g., movement of contaminants through soils) within which the subdivision occurs. Further, the effects of rural subdivision are not unique to rural subdivision. Monitoring the effects of rural subdivision could therefore be indistinguishable from the broader matter of "environmental monitoring". It is therefore inappropriate to design a generic indicator or a set of indicators to monitor the effects of rural subdivision. Hunter et al (1998) suggests it appears to be more useful to clearly identify two parameters: the critical components of the system and the carrying capacity. The critical components are those that when changed are likely to produce the most deleterious effects. These components will vary between regions and districts. Carrying capacity is a measure of how much change in the critical components can be imposed before the component becomes dysfunctional within the ecosystem and therefore becomes a problem. Identifying the critical components comes from an understanding of the types of land use activities and the environmental issues in the locality. Potential critical components that are subject to impact by rural subdivision are listed in Table 9. Carrying capacity is determined from an understanding of the additive impacts of subdivision in relation to those critical components. Environmental Effect Water quality (septic tank related) Indicator Ground and/or surface water nitrate and coliform values Groundwater nitrate and pesticides values Water quality (bore aquifer related) Water resource Water consumption, stream flow (in terms of frequency, duration and extent of water shortage) Waterways Weed growth, physical condition of waterway When needed Average section size <2 ha or when ground or surface water is vulnerable Land use is intensified with subdivision Limited water resource Land use is intensified with subdivision and/or cropping 240 November

41 Table 9: Environmental Effect Stormwater runoff Indicator Water flow in drainage channels during rainfall events Sediment Turbidity, sediment deposition affecting other values (e.g., aquatic habitat), costs of maintaining waterways Versatile soils Area of versatile soils under hard surfaces Soil erosion Severity of erosion (area and depth of soil loss) Soil health Organic matter and bulk density in upper 10 cm, % bare ground Weed diversity Changes in number of species of problem weeds per unit area of land Weed spread Temporal changes in weed species distribution Mammal pests Changes in desirable biodiversity components impacted on by pests Insect pests Changes in abundance or frequency of outbreaks of insect pest species Bird pests Changes in number or diversity of bird pests per unit area of land Pathogens Changes in abundance or frequency of outbreaks of pathogen pests Indigenous Abundance and numbers biodiversity - plants of indigenous species Indigenous Abundance and numbers biodiversity - birds of indigenous species Habitat diversity Changes in habitat types per unit area When needed Average lot size is <2 ha and land is difficult to drain or ponds downstream A number of sections developed in one year and drain into a sensitive water body Average section < 4ha Sloping land with erodible soils Generally more relevant to large-scale agriculture rather than rural subdivision per se Land use becomes a mosaic of differing types, each with own weeds As land use changes, affecting neighbour interactions Where sensitive biodiversity components are part of the system Little different for rural subdivision than other land uses When mosaic of differing land uses occurs Little different for rural subdivision than other land uses Where indigenous vegetation is part of or directly affected by subdivision Where indigenous species are part of or directly affected by subdivision Little different for rural subdivision than other land uses, but rate of change may be greater following subdivision Potential critical components that are subject to impact by rural subdivision and potential indicators for monitoring effect of rural Land Use Change (from Hunter et al, 1998) Monitoring the rate of development (subdivision consents) and the uptake of sections in rural areas is an important component of meeting Councils obligations in terms of Section 35 of the Resource Management Act and appropriately providng for this aspect of the residential market, through District Plan provisions. 241 November

42 In Greater Christchurch Sub Region, the Council s have collaborated on developing a monitoring strategy to monitor the development capacity of the landbank (aligned to a growth model), including demand trends for rural residential development, which is capped to a maximum number for each district. 4.3 Managing Demand/Growth A number of different methodological approaches can be distinguished in research on managing demand/growth. Green Philosophy A number of the techniques identified in this section can be considered a green approach to managing growth and development. Generally Councils seek to be proactive by imposing specific standards and selecting areas for development that have been considered in the wider context to be the best fit for the area. This can be considered a more pro-active approach as by imposing more comprehensive requirements that restrict where development can occur. Responding to Demand Some growth can be more demand driven, by allowing the wider market to determine where development occurs often when an individual has a particular desire to subdivide an area. This can be considered a more reactive approach, and has the potential to lead to varying pressures on infrastructure. 242 November

43 5 APPENDIX A - Rural Residential Development within the Palmerston North Boundary November

44 Page Intentionally Blank Map One A3 to be inserted here 244 November

45 Page Intentionally Blank Map Two A3 to be inserted here 245 November

46 Page Intentionally Blank Map three A3 to be inserted here 246 November

47 6 APPENDIX B Review of Territorial Authority Policies A number of District Plans from a range of territorial authorities were reviewed. The focus was to look at what particular issues were being addressed in their objectives and policies, as well as looking at plan specifications for different rule categories. Where possible, information about the level of rural residential subdivision in that district is also provided. 6.1 Manawatu District Council Objectives and Policies Rural Zone In the Rural Zone, the sustainable use of soil resources is highlighted. Objectives relate to promoting sustainable land use, safeguarding qualities of the District s soils, maintaining future options and managing the effects of urban growth. There is particular policy around the quantity of versatile land lost under buildings etc. The Plan defines versatile land to mean Class I and II of the LUC, but specifically excludes IIs2 as not being as versatile. The Table below shows that compared to national figures, MDC area has a relatively high proportion of Class I and II land compared to both the wider region (Horizons Regional Council) and the North Island. MDC HRC North Island Class I 5.5% 1.5% 1.3% Class II 12.9% 3.9% 4.0% Other relevant objectives and policies relate to: Rural Character and Amenities In order to maintain character and amenity, one objective refers to maintaining a predominance of primary production, so the natural environment predominates over the built one, there is a environmental contrast between town and country and the natural quality of forests, rivers and lakes is enhanced (see Objective LU8). Outstanding Landscapes Objective LU9 is to protect, and where appropriate, enhance the quality of outstanding landscapes. Various landscapes in the District are named, being: a) Pohangina River and river valley. b) Oroua River and river valley upstream of the Mangoira Stream confluence. c) Rangitikei River and river valley upstream of Putorino. d) The ridgeline of the Ruahine ranges. e) The Ruahine State Forest Park. f) Pukepuke lagoon. g) The coastline of the District, including the dune areas immediately adjacent to the sea. 247 November

48 h) The vistas from Stormy Point lookout and the Mt Stewart Memorial. New subdivision in some of these landscapes are specifically covered in associated policies a) and d). Potential Conflict Between Rural Land Uses Ensuring rural dwellings and properties enjoy rural amenity consistent with primary production and other rural activities are provided for by Objective LU 10; and LU 11 seeks to minimise conflict between potentially incompatible activities. Associated policies are aimed at around trying to deal with reverse sensitivity issues. For example Policy D which seeks to ensure that the presence of existing land uses and their right to continue is recognised by those who purchase or use land within the area affected by those land uses Subdivision Chapter Managing Impact on Rural Soils Objective S1 is to Protect the Life Supporting Capacity of Soils. The Policies are aimed around protecting future use, and the loss of versatile soils to urban use. The Plan uses an average lot size philosophy. There can be some small blocks, but still have to have some large blocks. There is the requirement that at least 50% or 20ha, whichever is smaller, be left as one piece. The Plan also does not want uniform blocks. Two Rural Zones are defined: Rural Zone 1 identifies the main areas of versatile land and recognises potential effects on its productive options by requiring an 8ha minimum average lot size. Rural Zone 2, which comprises areas of less versatile land, the average lot size must be 4ha. Subdivision control in this area is primarily based on landscape and rural character considerations. It is noted in the Plan that freeing up rural-residential subdivision of non-versatile land close to Palmerston North and Feilding may bring overall small-block prices down. This would allow productive users to compete for high quality land on a more equal basis. 248 November

49 6.1.3 Subdivision Trends The following tables have been copied from the Manawatu District Council s 2007 State of the Environment report: Figure 6: Subdivision trends in the Manawatu District (from Manawatu District Council's 2007 State of the Environment report) 249 November

50 From the three tables in Figure 6 above it can be seen that the majority of the subdivision occurred within Rural Zone 2. Comparing the Lot sizes created the distribution of Lots sizes in Rural Zone 1 and Rural Zone 2 are similar for lots created up to 8ha in size. Of the lots created in Rural Zone 1, there is a higher proportion of larger lot sizes (over 8 hectares). This is likely a reflection of the policies which required a large minimum average lot size in Rural Zone 1. Of note from the tables above, the largest proportion of Lots created were between 1 and 2 hectares followed by Lots sizes 2 and 4 hectares. 6.2 Rangitikei District Plan The Rangitikei District is approximately 4,500 square kilometres of predominantly rural land. The Rangitikei District landforms are made up of the following types: Sand country - 5% Alluvial plains and terraces - 15% Downlands 11% Hill country 50% Mountainlands 19% Objectives and Policies Objective 5 relates to the sustainable management of soils for future use. Highly versatile soils are valued for potential use. Objective 6 relates to the protection of the productive capability of scarce soils. This is supported by policies which seek to avoid subdivision and development of Class I and II soils for urban purposes, and avoiding the expansion of Marton and Bulls onto Class I and II where infill capacity remains. The Plan tries to confine urban density to urban areas, and promote low density development in rural areas. Objective 7 is for the provision for activities in the rural environment in a way that maintains and enhances environmental amenity, community health, safety and convenience. The policies supporting this objective are to ensure opportunities for privacy, maintain low density of built development and open character, including maintaining overall low building height. Policies also refer to maintaining separation distances between residential activities and rural activities. Objective 8 is for the provision for range of allotments suitable to support diverse rural production and rural communities. The policies are for subdivision allotments able to provide water supply, effluent, and network utilities. Any subdivision is a controlled activity, the allotment size and shape to accommodate any existing buildings or activities on the site and to accommodate any of the permitted activities listed for the zone. 250 November

51 6.2.2 Subdivision Trends Analysis of subdivisions in Rangitikei since show there has been little in the way of pressure from subdivision over this period. Of particular interest is subdivision of land with Class 1 and 2 soils, which showed that: There were 500 lots created by subdivision over the 10 years from of these (or 20%) were on Class 1 or 2 soils. All of the subdivided lots on Class 1 and 2 soils were of less than 8 hectares and involved a total land area of 242 hectares. However despite this level of subdivision only 12 new dwellings have been built on Class 1/2 soils during that period. Since the District Plan became operative in 1999, there have been 40 subdivisions on Class 1/2 land with only 3 dwellings built in this period. It is not known why this has occurred, but possible reason may include people landbanking lots as a form of future investment, or changes in the economic climate. Figure 7: Subdivision and Dwelling on Class I and II land; Rural Subdivision trends (Rangitikei District State of the Environment) 11 Rangitikei District Council, State of the Environment Report (2003) 251 November

52 6.3 Tararua District Plan The Tararua District covers an area of approximately 436,500 hectares. Significant landscape features within the District include mountain ranges and hill country, interspersed with alluvial plains and fans, and river terraces. The alluvial plain to the east of the Tararua and Ruahine Ranges forms a corridor of high quality land intensively used for farming and horticulture. From the 2006 NZ census data 17,631 people usually live in the Tararua District Objectives and Policies One of the objectives of this District Plan is the sustainable rural land use and efficient use of resources. The policies that support this objective are (1) that activities must be compatible with the inherent productive capabilities of land and protect soil structure; and (2) to avoid, remedy or mitigate against significant irreversible losses of productive capabilities of the Districts Class I and II land. The Plan defines boundaries of rural and urban management areas and rules ensure non-rural activities are generally located within the urban management areas. Another objective is to maintain the vitality and character of the District s rural areas. Policies provide for a range of rural subdivision and housing in rural areas, subject to environmental standards. The plan encourages non-rural activities to locate within urban management areas, rather than rural areas. The Plan notes a move away from specifying minimum lot sizes. In most rural areas no minimum subdivision size is specified, rather the minimum area required is defined by the area needed to meet the Plan s effluent disposal standards. The Plan does have minimum subdivision size controls around urban buffer areas. The Plan goes on to outline the reasons for not defining lot sizes, stating that arbitrary minimum subdivision size standards throughout rural areas have often led to people being forced to have more than then they actually want or need, and this often results in a lack of stewardship of the land. Minimum subdivision size controls have only been retained in the urban buffer areas around the District s four main towns as an additional mechanism to promote urban consolidation. 6.4 Hutt City District Plan Lower Hutt City is made up of the area bounded by the coast between Korokoro and Windy Point (Palliser Bay), by the western hills of the Hutt Valley, the ridge of the Rimutaka Ranges, and ending just beyond the Taita Gorge. This land area totals 37,998 hectares ( km 2 ). The usually residential population of Lower Hutt City, as recorded in the 2006 Census, was 97, November

53 Topography of the Hutt City area varies. There are two major river valleys the Wainuiomata and Orongorongo. Flat river terraces rise to dominant and often steep hill areas. Within the hilly areas are isolated locations of more gentle topography. On the western hills of the Hutt Valley the topography is characterised by the steep escarpment bordering the Hutt River and gentler hill country leading back into the Belmont Regional Park. The influence of the coast on the character of some parts of the rural environment is very significant Subdivision General Rural and Rural Residential Activity Areas The resource management issue is identified in this section of the District Plan is defined as inappropriate subdivision leading to adverse effects on amenity values and an inefficient land use pattern. The associated District Plan objective is to ensure that the amenity values and the efficient use of land in the General Rural and Rural Residential Activity Areas, are maintained by restricting subdivision of lands which would lead to greater intensity of use and development for urban related purposes, such as more intense residential development. One of the policies supporting this is that the minimum size of allotments should be large so as to ensure that rural amenity values and an efficient land use pattern are maintained. In the related explanation, it is considered that there is an adequate supply of urban land and it would be inefficient to subdivide rural land into urban sized allotments. Subdivision in the Rural Residential and General Rural Areas is a Controlled Activity. The Hutt City Plan has a Landscape Protection Residential Activity Area. They have some Rural Residential Activity Areas, with the following performance standards: - No allotments < 8,000m 2 - Average area of all allotments 1.5ha - Optimum house sites - Show proposed works - Areas of regenerating bush are to be identified and preserved Other Rural Residential Activity Areas have the following performance standards: - Minimum size of allotment 2ha - Minimum frontage requirements - Compliance with policies and objectives General Rural Activity Areas have the following performance standards: - Minimum allotment size 15ha - Minimum frontage 253 November

54 6.4.2 Rural Zone Rural Residential Activity Area - Definition This Area consists of areas where the subdivision pattern has already allowed for the establishment of rural residential lifestyle development. It also includes areas where future urban development may occur, as the land adjoins residential activity areas. The more intense subdivision pattern allows for a greater intensity of buildings and development than in the General Rural Activity Area. General Rural Activity Area The remainder of the rural area is identified as the General Rural Activity Area; where more extensive rural activities occur. The Activity Area includes land adjoining the coast with high amenity values which should be protected from inappropriate subdivision, use and development. Rural Residential Activity Area One of the objectives is to ensure the character and amenity values of Rural Residential areas are maintained and enhanced. Policies seek to provide for Rural Residential subdivision within the established areas with Rural Residential characteristics and amenity values. Policies aim not to detrimentally affect Rural Residential Character and amenity values or intrinsic values of ecosystems. Allowance for small businesses providing products and services to city and rural environment is more appropriate because of the scale and effects generated by activities. Character and amenity is not compromised by inappropriate subdivision standards. Subdivision pattern is very important, the City wants large allotments, of varying size and wide frontages. The District Plan has specified some elements within the site that determine the character and amenity values of rural residential subdivision. It highlights in particular where buildings are to be located on the site. The first determinant is minimum size and shape of sites; then the relationship of buildings to boundaries, height of buildings and adequacy of daylight admission etc. There are various standards prescribed for permitted dwellings. 6.5 Hastings District Plan The Hastings District has a total land area of 5,229 km 2. The total population of the District as at the 2006 census was 70,842. The Hastings District is situated on the fertile alluvial Heretaunga Plains. Topography varies from the hills of Havelock North to sandy beaches. Hastings is located approximately 15km inland from the coast. 254 November

55 6.5.1 Rural Residential Zone Rural residential use is recognised as having grown in popularity and is generally located on land of lower fertility, mostly on hills close to the urban areas of Hastings, Havelock North and Napier. The Rural Residential zone provides for those people who seek to live in a semi-rural environmental, while remaining within close commuting distance to urban areas for employment, shopping, entertainment and recreation activities. In addition to providing a lifestyle choice for the community, the Rural Residential Zone also supports a range of specialist land use activities, which often requires only small amounts of land, or which are sustainable in a part-time or hobby capacity. The resource management issues that the Hastings District Plan seeks to address include; the need to provide for a range of activities within the Rural Residential Zones; that these zones are generally located in close proximity to urban areas; potential for conflict between Rural Residential activities and other activities in the Rural and Plains Zones are minimised; protection of significant landscapes, natural areas, historic or cultural features; and that in areas where Rural Residential development is aggregated, there may be demand generated for Council to provide reticulated services to those areas and that this needs to be carefully managed. The objectives of the Hastings District Plan are as follows - To provide for Rural Residential activities within Hastings District while avoiding, remedying or mitigating any potential adverse effects of the activities on the environment. - To provide a buffer between rural and rural residential activities to mitigate the adverse effects of these activities both within the Rural Residential Zone and at the zone interfaces. - To provide for low density rural residential development within close proximity to urban areas in a manner that protects the future use of the finite soil resource of the Heretaunga Plains. A range of policies support the above objectives, these are around providing for a range of activities to provide flexibility for people living in the zone to meet their needs; mitigating the effects of buildings; requiring that activities are self-sufficient in the provision of on-site water supply, wastewater and stormwater disposal; requiring specific consideration of landscape and visual effects of development on land comprising Significant Landscape Character Areas; minimum lots sizes; and monitoring effects to determine the on-going appropriateness and necessity of Development and Performance Standards included in the District Plan. A number of methods are used within the District Plan. As well as identifying the role of Rural Residential Zone as a key component of Council s wider Urban Development Strategy, the District Plan also contains a Low Density Residential Strategy, sensitive landscape, natural, historic or cultural features are identified, and minimum subdivision sizes and other criteria are identified. 255 November

56 Hastings District Council makes use of Land Information Memorandums when one is requested by a member of the public, a statement will be included that specifically notes the zone concerned is located close to productive rural areas and that residents live in an environment where agricultural practices occur. Minimum site area for Rural Residential Zone is 0.8 hectare, with an average of 1ha. Sites created by subdivision for lifestyle lots or residential farm parks shall comply with the standards specified for each zone in Table (see below) Heretaunga Plains Urban Growth Needs Hastings District Council, Napier City Council and the Hawkes Bay Regional Council are currently working together on the Heretaunga Plains Urban Development Strategy. This work includes market analysis of the various components of the residential sector on the Heretaunga Plains and to explore residential demand. The key findings for the Lifestyle Market Analysis were as follows: There is sufficient supply to 2015 with a predicted surplus in supply from , however this is based on projected demand for new lifestyle housing being 10% of household growth projections. Over the last 10 years it has been approximately 20%. Lower future demand is predicted due to changing demographics, demonstrated by a significant fall off in demand over the last 2 years when demand has been between approximately 5-10%. 256 November