New Zealand Defence Force Te Ope Kaatua O Aotearoa. Whenuapai Air Force Base. A Discussion Document for Public Consultation

Transcription

1 New Zealand Defence Force Te Ope Kaatua O Aotearoa Whenuapai Air Force Base A Discussion Document for Public Consultation DATE: October 2003

2 Contents 1 INTRODUCTION PUBLIC CONSULTATION PROCESS Purpose The Consultation Framework WHENUAPAI AIRBASE - OVERVIEW History Description REGIONAL POLICY OPTIONS FOR FUTURE USE Civilian Airport Public Work/Urban Development Development for Industrial/Commercial Uses Rural Residential Sites PROCESSES FOR DISPOSAL Delivery Options Public Works Act Standard PWA Disposal Process ADDITIONAL CONSIDERATIONS Social/Community Considerations Environmental Considerations Iwi and Maori Representation Local Economic Benefits EVALUATION CONSIDERATIONS APPENDIX APPENDIX

3 1 Introduction The purpose of this public consultation paper is to seek the views of the local community, local and central government agencies, industry and iwi/maori groups regarding the future use of Whenuapai. Military activities on Whenuapai are being transferred to Ohakea over the next five years. The site will become surplus to military use and will be available for a range of alternative uses. The Government, through the New Zealand Defence Force, is consulting with all interested parties now on the potential uses of the site, so that all possibilities can be considered. Four broad options for the future of Whenuapai have been identified: a commercial, civilian airport; another public work, and/or urban development; an industrial/development site; and rural residential sites. These options are possible either separately, or in combination. The Government is particularly seeking feedback on what the future use or uses of the site should be. To assist interested groups and individuals in making submissions, this paper provides information on the site and regional activity and plans. It also describes the four broad options for the site, the processes for disposing of the site, and the criteria against which proposed future options might be addressed. Details of the possible options have been left brief deliberately we hope that public submissions will focus on the issues of interest and concern as well as the opportunities that the Whenuapai airbase could support in the future. Specific proposals for use of the land will require detailed consultation in the form of structure plans and/or resource consent applications, at an appropriate but later time. Development or detailed planning for proposed uses may not commence until after Some activities may take years after that to implement. As an example, The Albany Centre was conceived in the late 1980 s and took some years to plan. The mid 1990 s saw the road and services infrastructure complete. Nearly 15 years on, The Albany Centre is still being developed and has some years to go to completion. Whenuapai Air Force Base Discussion Document - Oct. 03 Page 1 of 22

4 2 Public Consultation Process 2.1 Purpose In September 2003, the Government directed the New Zealand Defence Force (NZDF), in consultation with a number of other government departments, to undertake public consultation as the basis for future Cabinet consideration of the most logical future use of Whenuapai. The Minister is required to recommend to Cabinet the most logical future use of Whenuapai and the process for disposal of the airbase by the end of March The Consultation Framework The timeframe for consultation is as follows: Stage Public Consultation (first round) Public Meetings November 2003 Meetings with government agencies and other interested parties November 2003 Submissions due end December 2003 Collation and summary of submissions mid January 2004 Review of submissions and preparation for further public consultation Timing To January 2004 By early February 2004 Public Consultation (second round) February and early March 2004 Recommendation to Cabinet End March 2004 The public meetings will be held from the week beginning 10 November Details of locations and timing will be publicly advertised. The public are invited to make written submissions addressed to: The Chief of Defence Force New Zealand Defence Force RNZAF Base Whenuapai AUCKLAND and marked to the attention of Director, Property Rationalisation Submissions should be received by 31 December. Whenuapai Air Force Base Discussion Document - Oct-03 Page 2 of 22

5 Information can be obtained including a template for submissions from the following website which will be operative from 3 November 2003: Copies of the discussion document and the submission template will also be made available at the public meetings. A record of all the meetings will be kept and will form part of the information gathering exercise, which together with a summary of the submissions made, will be released as part of a feedback process in February Whenuapai Air Force Base Discussion Document - Oct-03 Page 3 of 22

6 3 Whenuapai Airbase - Overview 3.1 History Construction of Whenuapai began in the late 1930 s following the purchase of 600 acres (circa 240 hectares) of swamp and kauri forests in September In order to cope with heavy aircraft serving the Pacific, the concrete runways were constructed in 1942, along with housing and further base facilities. Whenuapai remained operational after World War Two and opened for civilian aircraft in In 1947 National Airways Corporation took over the passenger and freight carrying service and commenced regular services between Whenuapai, Paraparaumu and Harewood. International services commenced in the late 1940 s, and continued until 1965, when the international airport opened at Mangere. The 1960 s saw a return to military activities only. The level of activity remained relatively constant for the following forty years. 3.2 Description Located near the upper reaches of Waitemata harbour, around twenty minutes drive from central Auckland; Whenuapai airfield is in a mostly rural area. The Growth Concept 2050 map attached as Appendix 1 shows the position of Whenuapai in Auckland. Whenuapai is close to Hobsonville Road (SH I8). This provides easy connection with Waitakere City and North Shore City. Whenuapai Air Force Base Discussion Document - Oct-03 Page 4 of 22

7 The site occupies an area of 311 hectares, it comprises: 1. Runways, taxiways with additional land. 2. Hangars, terminal buildings and other airfield facilities. 3. Barracks, housing, administration and office accommodation on site. 4. Housing and additional land adjacent to the main site. An aerial photograph of the site is attached as Appendix 2. The site is described in more detail below: Runways, Taxiways and Additional Land Three runways are on the site. The main runway is 2,031 metres in length. This is relatively short for an international airfield and cannot accommodate longhaul departures. It is likely to be long enough to accommodate trans-tasman and national services. As a comparison, Wellington International Airport s runway is 2,000 metres long. Whenuapai Air Force Base Discussion Document - Oct-03 Page 5 of 22

8 The second runway is 1,581m long and the third runway is 1,446m long. The land around the runways includes a golf course on the eastern boundary, which covers approximately 25 hectares. The western side of the runway area has the apron parking areas and base facilities. Hangars and Air Field Facilities This includes: Four large hangars, two constructed in the 1940 s. One modern hangar has just been upgraded to include sophisticated fire fighting and safety equipment. A terminal building, which is modern and low rise. The air traffic control building. Aircraft maintenance facilities. Emergency services accommodation. Bulk fuel storage. Training areas and additional workshops. Many of the buildings were constructed in the 1940 s, though all of them have been generally well maintained. Whenuapai Air Force Base Discussion Document - Oct-03 Page 6 of 22

9 Accommodation on Site This includes: Housing (approximately 60 houses) Barrack accommodation (353 rooms) Three service mess blocks Sports fields and a gymnasium A small retail centre These are all set in an open, landscaped environment. Housing and Other Land At the southern end of the site, off the base, is a subdivision of about 100 houses. Immediately to the south of this is an area of grazing land, part of which could be used for an extension to the runway in the future. East of the site, on Kauri Road, is an area of vacant land bordering the mud flats. This contains a disused landfill. Whenuapai Air Force Base Discussion Document - Oct-03 Page 7 of 22

10 4 Regional Policy The Auckland Regional Council and Waitakere City Council have jurisdiction over the area. A comprehensive set of policies, statements and studies has been completed that relate to the area. Those that apply to Whenuapai are: The Auckland Regional Policy Statement o This includes the definition of the Metropolitan Urban Limit (MUL) and the requirement to contain development within it. Whenuapai is beyond the MUL. Completion of road developments in the next five years will include a move of the MUL to bring it closer to, but still outside, the site. The Auckland Regional Growth Strategy o This identifies regions and areas favoured for development or infill in order to house projected population increases. These are shown on the Growth Concept 2050 map attached as Appendix 1. o The Hobsonville Corridor was identified as a key area for future growth. This does not include Whenuapai but it will result in an increase in the population within a reasonably close proximity of the Whenuapai airbase. The Northern and Western Sectors Agreement o This provides further detail on the way in which the growth projected by the Regional Growth Strategy will be accommodated. o The 2021 population for Waitakere City is projected at 230,000. This compares to a 1996 figure of 156,000 and a 2001 figure of 169,000. o Development in the west will include smaller town centres in existing residential areas, greenfield development north of Westgate/Redhills and opportunities to be identified in rural areas such as Helensville and Kumeu. o The Northern Strategic Growth Area is identified, which includes Whenuapai. This area is outside the MUL but there is agreement in principle that the MUL will be extended to include selected areas. The Upper Waitemata Harbour Study o This environmentally focused study will research the area to identify ways to accommodate growth with minimal cost to the environment. It is expected to be complete later this year. Whenuapai Air Force Base Discussion Document - Oct-03 Page 8 of 22

11 Waitakere City District Plan o The Plan (adopted March 2003) identifies the Whenuapai Airbase with a defence purposes airfield designation with housing designations on the off-base roads. o The underlying zone for the site and the surrounding area is Countryside Environment. Part of the provisions associated with this zone is that the minimum site area for any proposed subdivision is 4 hectares. The Waiarohia Structure Plan o This plan relates to an area immediately east of Whenuapai. The plan is on hold, pending the outcome of the Upper Waitemata Harbour Study. If approved by Waitakere City Council, this would allow subdivision (outside the Airbase noise contour lines) down to 1 hectare from the current 4-hectare limit. Whenuapai Air Force Base Discussion Document - Oct-03 Page 9 of 22

12 5 Options For Future Use The four broad options for the future use of the site are a civilian airport, public work/urban development, industrial/development and rural residential sites. A combination of these uses is possible. This section outlines each of the options, and the processes required to achieve them. 5.1 Civilian Airport The existing runways, hangars and other buildings could be used for a civilian airport operating aircraft of 737 size or smaller. The main runway will need to be extended for larger aircraft. This could require the purchase of additional land. In any event, the main runway will need to be significantly upgraded. New terminal buildings and improvement work to the hard standings and other runways will be required over time. A civilian airport would not change the external appearance of the airport substantially. The principal concern for residents in the area would be the noise generated from commercial operations. Steps required The Airport Authorities Act 1966 allows for transfer or licensing of the land to an Airport company. The steps are set out below: 1. A licence is granted to an airport company to allow it to use the land and buildings to operate a commercial airport. 2. The land and buildings can be sold to the airport company or to another party such as the territorial authority. 3. Land not used for the commercial airport would be disposed of through the Public Works Act process. This could involve the whole site if the airport proved not to be feasible. Alternatively, Waitakere City Council could seek to acquire the land under the Public Works Act in order to establish an airport. 5.2 Public Work/Urban Development The definition of a public work is broad and can include many possible uses. Possibilities include: Infrastructure roading, water supply, sewage processing and transfer, electrical or gas transmission. Central government a prison, another type of detention centre, military use or training. Whenuapai Air Force Base Discussion Document - Oct-03 Page 10 of 22

13 Education a new university campus, or other education facilities. Health, a new regional hospital or cluster of other health facilities. Local government uses including open space, reserve and historic building/sites. Public housing. Comprehensive development of the site including affordable housing and a mixture of commercial and residential uses. The first stage of the Public Works Act is for the land to be declared surplus to the requirements of Defence. A number of other Crown entities can apply to have the land to use for a public work. The requested land is then transferred to the entity (or entities) at fair market value. If not required by central government agencies, Waitakere City Council can apply to have the land for a public work (Section 50). On completion of the process, the land can be transferred to Waitakere City at fair market value. All land not required will be disposed of under the provisions of the Public Works Act. 5.3 Development for Industrial/Commercial Uses This use could include any alternative commercial activities. The site is close to main distribution routes and could support a range of commercial uses. Included within this option could be a major residential redevelopment, perhaps structured around a new town centre. Possible uses include: New Town Regional shopping Large scale industrial development Intensive residential development Hi-tech development (small scale industrial and office) Office park Some of these uses could generate high levels of employment. Other potential uses, perhaps with a tourism or entertainment focus, could draw people to the area and generate income. Steps required Resource consent will be required to approve the proposed activity. Any application will need to prove that the proposed use will comply with the District Plan and the Regional Plan. Factors such as the location of the Metropolitan Urban Limit will determine the acceptability of any proposed activity. Whenuapai Air Force Base Discussion Document - Oct-03 Page 11 of 22

14 To achieve a particular commercial or industrial use will require the application of the Resource Management Act and other regulatory policy and process. The Crown has no direct influence on the activities that could eventuate. The territorial authority will coordinate these. The land must be disposed of through the Public Works Act process. This will involve various mechanisms including offering the land back to previous owners, mechanisms to protect various interests including consultation with iwi and (possibly) reserving strips of land for public amenity. The process takes time to work through as it serves to protect the interests of stakeholders. 5.4 Rural Residential Sites This is the current zoning for the site. It means that subdivision for residential use is acceptable for sites as small as 4 hectares each. On the assumption that the sports facilities, the golf course and some of the housing is retained, between 30 and 40 new dwellings could be created. The configuration of this use will largely be determined by the historic title boundaries. In order to achieve this use, the land must be declared surplus to requirement for public works and disposed of in accordance with the Public Works Act. Whenuapai Air Force Base Discussion Document - Oct-03 Page 12 of 22

15 6 Processes for Disposal The process below summarises how each of the different options could be achieved, as described in section 5, and that most of the options can be achieved by more than one means. 6.1 Delivery Options Current Ownership Transfer for Public Work Transfer via Airport Authorities Act Civilian airport Transfer to Housing NZ Urban development Transfer for other Public work Education Health Corrections Transfer to Waitakere City Civilian airport Urbanisation Industrial/ Development Other public work Public Works Act Disposal Rural residential Commercial dev. Urban development 6.2 Public Works Act The most relevant legal consideration for the Government is to comply with the Public Works Act. Other considerations include complying with other acts such as the Resource Management Act. The Public Works Act provisions are briefly outlined below: The Public Works Act governs the Government s rights to acquire and hold land for public works. It covers compensation for affected landowners, execution of contracts and rights of entry. The definition of public work is wide any work the Crown or local authority is authorised to conduct, including maintenance and management. Whenuapai Air Force Base Discussion Document - Oct-03 Page 13 of 22

16 Whenuapai is held in accordance with the Public Works Act and any disposal or transfer must be completed in accordance with it. Of particular relevance is the process for disposal of surplus land. This dictates that land that is no longer required for public works shall be offered back to the original owner (or descendant) at current market value. If not accepted, the land may be offered to adjacent owners or the public. The Public Works Act sets out a strict process for all disposals. A simplified diagram of the process is set out overleaf: Whenuapai Air Force Base Discussion Document - Oct-03 Page 14 of 22

17 6.3 Standard PWA Disposal Process Surplus to Defence once the RNZAF vacation is complete Required for another Crown Public Work? S.52 Yes Transfer at fair market value, Land set apart by Gazette notice Required for a public work by the local authority? S.50 Yes Advertise proposal Through the Office of Treaty Settlements Protection Mechanism Process Transfer to local authority at fair market value, Land set apart by Gazette notice No at this point the property is deemed surplus to the requirements of the Public Works Act 1981 Is there a requirement to offerback to former owners? S.40 Yes Transfer effected by Sale and Purchase agreement at fair market value No Consider provision of Sites of Significance Protection through Te Puni Kokiri Advertise disposal Through the Office of Treaty Settlements Protections Mechanism Process Land placed in Claim Settlement Landbank Transfer to Office of Treaty Settlements Balance Sheet at fair Market value Sale to Market by public Tender Full market value Whenuapai Air Force Base Discussion Document - Oct-03 Page 15 of 22

18 7 Additional Considerations This section sets out the additional considerations that those making submissions may wish to take into account. The Government will also consider these issues when making a decision about the future use of the land. 7.1 Social/Community Considerations Employment and Social Impact The NZIER report commissioned by Waitakere City Council outlines the involvement that Whenuapai and the airbase employees have in the local communities 1. This support of the community and the impact of a changing local population will be a consideration for the community. However, it is likely that the transfers will take place over the five-year period, which allows time for adjustments to be made. The social and physical infrastructure immediately around the site supports the current living and working population. Each of the options will need to be considered in terms of the impact they may have on increases or decreases in local population, the employment that will be generated, and the residents that will be attracted to the area Amenity, Facilities At present, the local community uses some airfield facilities and may wish to retain access. Schools use the swimming pool and playing fields. The local community use the golf course. The airfield is available for a limited number of civilian flights Noise Disturbance The noise generated by an airport use is of concern to people living and working close to the field. Development near the airfield will increase the number of people affected. Military use of the field is currently managed to minimise activity. Civilian use is likely to be less flexible and will require movements early and late in the day Infrastructure Intentions and Plans The Upper Harbour Crossing will be complete in Some upgrades to sewerage services may be required to cope with projected growth in the working and residential population along the Hobsonville Corridor. This may have an impact on the preferred use for Whenuapai. 1 The report is available on Waitakere City Council s web site: Whenuapai Air Force Base Discussion Document - Oct-03 Page 16 of 22

19 7.2 Environmental Considerations The key environmental focus is the Upper Waitemata Harbour. Any proposed development, including retention of the site as a civilian airport, will need to address aspects such as the quality and cleanliness of storm water run off. Any contamination of the land at Whenuapai will need to be addressed, particularly in remediation works prior to a change in use. It is possible that the site will have historic features or sites of significance to retain or protect. Some buildings are identified in the Waitakere District Plan as being of architectural interest. No animals or plants are known to have Whenuapai as an exclusive habitat. The views and appearance of the site will be a consideration. The elevation of the site means that it can be seen from a wide area including the North Harbour Crossing. 7.3 Iwi and Maori Representation Ngati Whatua, Te Kawerau a Maki, Te Taou, Marutuahu, Ngati te Ata and the Manukau Whanau are among those who claim interests in the West Auckland area. These, and any other interested groups, are invited to make submissions as part of the consultation process. 7.4 Local Economic Benefits The current economic activity on the site is assessed by NZIER to equate to approximately $103m per year, and approximately 1,061 jobs. 2 One of the government s stated objectives for the site is to select a use that contributes to the local and regional economy. Waitakere City Council and Auckland Regional Council prefer employment uses close to Whenuapai. Uses that generate employment could include manufacturing, retail, administration, education, health or other public works. The change in the total numbers employed and living in the area arising from any change in use will largely determine the economic benefit or otherwise. It must also be remembered that the availability of the land is some years away when pressure to find opportunities to accommodate growth is likely to be much greater. 2 Whenuapai Airbase social and economic impact study, Report to Enterprise Waitakere, July 2003, NZIER. Whenuapai Air Force Base Discussion Document - Oct-03 Page 17 of 22

20 8 Evaluation Considerations The Government will take a number of considerations into account when making a decision about the future use of Whenuapai. Those considerations are that: a. The disposal process should: i. take account of NZDF operational and security issues; ii. protect the Government s wider interests in the property; iii. utilise existing statutory processes in a transparent manner; iv. provide a quick and efficient exit process for the NZDF; and v. provide a fair market value return to the NZDF. b. The outcome should: i. provide for the sustainable economic development of the North- West Auckland region and the Auckland region generally; ii. iii. be consistent with relevant government policies, including the New Zealand Transport Strategy, the Tourism Strategy 2010; and the Sustainable Cities programme; and be consistent with other relevant or significant programmes in the vicinity of Whenuapai, such as Housing New Zealand Corporation s Hobsonville initiative, planned highway and harbour crossing extensions, and territorial authorities long term plans. Whenuapai Air Force Base Discussion Document - Oct-03 Page 18 of 22

21 Appendix 1 Growth Concept Plan of Auckland Produced by the Regional Growth Forum. Whenuapai Air Force Base Discussion Document - Oct. 03 Page 19 of 22

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23 Appendix 2 Aerial Photograph of the Site and the Neighbouring Uses Whenuapai Air Force Base Discussion Document - Oct. 03 Page 21 of 22

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