Rural Residential
Land Use Strategy
June 2012
ACKNOWLEDGEMENTS
The Palmerston North City Council wishes to thank the submitters, government agencies
and interest groups who have contributed to the development of this Strategy.
Content developed by Cynthia Ward | Senior Policy Planner | Palmerston North City Council
Design & Layout by Simone Viljoen at Print Synergy | Palmerston North City Council
Images courtesy of the Palmerston North City Council and used with the land owners permission
Published by Palmerston North City Council 2012 |
© Copyright Palmerston North City Council
This document was adopted by the Palmerston North City Council in June 2012.
1.1
1.2
1.3
1.4
2
Strategic Planning Framework
and Strategic Directions
2.1
2.2
2.3
2.4
3
3.2
3.3
Overview of Rural Residential
Development in Palmerston North
Feedback from Community Consultation:
Rural Residential Land Use Strategy
Discussion Document
Feedback from Community Consultation:
Draft Rural Residential Land Use Strategy
Growth Projections
4.1
4.2
4.3
5
Strategic Planning Framework
Overview of Council’s Strategic
Planning Framework and Key Strategies
The Residential Growth Strategy
and Urban Growth Monitoring
Palmerston North City and
Manawatu District Boundary Change
Rural Residential Development
in Palmerston North
3.1
4
Statement of Purpose
Core Components of the Rural
Residential Land Use Strategy
Relationship to Other Land Use
Strategies and Plans
Why a Strategy for Rural Residential Land Use?
5
5
9
9
11
11
11
13
13
15
15
16
19
21
Analysis of Residential Development
Preferences21
Managing Supply and Demand
22
Options Analysis – A more sustainable approach? 25
Development Principles for
Rural Residential Development
5.1
5
27
Broad Strategic Approach and
Schematic Diagram
27
5.2
Rural Residential Development Principles
30
5.3
Collaborative Relationships
35
6.0 Summary of Next Steps
37
Glossary38
[ Contents ]
Introduction to the Rural
Residential Land Use Strategy
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
1
Introduction to
the Rural Residential
Land Use Strategy
1
5
Rural residential living is a popular form of development nationally and in the past
decade has shown steady signs of increase within Palmerston North. The purpose of
the RRLUS is to provide:
a)
a high level overview of how and where rural residential land should be provided
in order to meet demand;
b) an outline of the general principles and planning rationale for future development; and
c)
a framework for new regulatory controls in the District Plan for Palmerston
North City.
1.2 Core Components of the Rural Residential Land Use
Strategy
The RRLUS has been developed around the following core components:
1.2.1 Structural approach for managing rural subdivision and
development
Palmerston North’s historical pattern of development, key physical and social
infrastructure, and natural landforms all contribute to influence and shape
future opportunities and investment priorities, such as subdivision activity. The
RRLUS recognises the importance of:
•
The primary sector and rural diversification opportunities
•
Strategic infrastructure (transport, water, wastewater, energy and
communications)
•
Integrated land use and transportation planning
•
Our natural and physical resources, including amenity landscapes,
biodiversity habitats and native vegetation
•
Population projections and housing demand patterns
The RRLUS seeks, first and foremost, to protect the economic viability of Palmerston
North’s rural economy taking into account social, economic and environmental drivers.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The Rural Residential Land Use Strategy (RRLUS) sets out a new direction for planning
and managing rural residential land use in Palmerston North City over the next ten years.
[ Introduction to the Rural Residential Land Use Strategy ]
1.1 Statement of Purpose
1.2.2 Integrated Growth Management
The RRLUS provides direction as to how the projected demand for rural living
will be managed over the ten year planning period in an integrated manner.
This needs to be considered alongside the Council’s wider strategic planning
initiatives, in particular the Residential Growth Strategy16, which seeks to
maintain the City’s urban and rural distinction by promoting a compact
city and carefully managing peripheral growth. The RRLUS recognises that
uncoordinated rural-residential development has the potential to undermine
the primary objectives of the Residential Growth Strategy.
6
The RRLUS includes:
•
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
A management framework for rural subdivision. This framework reflects
the types of development evident in our rural environment. In order of
hierarchy, the four principal development types are:
A: Rural Producer
B: Satellite Rural Residential Development
C: Integrated Developments
D: The Existing Rural Residential Areas of Aokautere RuralResidential, Moonshine Valley and Parklands17
•
A clear strategic direction which is reinforced by some important general
development principles for rural residential development, as well as
specific development principles customised to the four development
types listed above.
[ Introduction to the Rural Residential Land Use Strategy ]
An illustrative, schematic diagram of the rural
management hierarchy and detailed description of the
general development principles is provided in Section 5.0
of this strategy. A brief explanation of the four primary
types of development is provided below.
Explanation of Development Types:
Rural Producer means subdivision of rural land in a way which ensures the productive
potential of the land is maintained and avoids conversion of highly productive
agricultural and horticultural land for rural living.
Satellite Rural Residential Development means land subdivision having a small scale,
lower density character, located in the Rural Zone and at a distance from the City’s urban
areas. These subdivisions typically comprise 4-5 lots and have a density character of 1-2
households per hectare.
16
The Palmerston North Residential Growth Strategy was adopted by Council in September 2010.
17
The Aokautere-Parklands Area is zoned Residential under the operative District Plan. However, there are strong similarities
between this area and other rural residential areas, particularly in terms of its large lot character and the limited provision
of services, hence information on it has been included in this strategy.
Integrated Development means comprehensive rural residential subdivision
developments. These subdivisions usually have a more intense subdivision pattern
(with lots averaging at less than 1 hectare) allowing for a greater intensity of buildings
and development. These developments also tend to be staged with development
being phased over many years. The planning objective is that this type of subdivision
will be required to meet strict development criteria designed to ensure that they are
self-sufficient and achieve high quality urban design and environmental outcomes.
1.2.3 Rational Servicing Approach
The approach taken for managing rural residential development and service
provision recognises the following:
a)
The Council vision, goals and key strategies;
b) The Council priority for future infrastructure investment is to provide
additional capacity to support projected residential and industrial growth,
not rural-residential development;
c)
The financial constraints faced by Council, in particular as it relates to
future capital works;
d) The inefficiencies and costs associated with the provision of reticulated
water and wastewater services in rural areas;
e) The existing state and level of investment, along with the environmental
performance of on-site wastewater systems (septic tanks);
18
Areas adjacent to or contiguous with existing urban areas, or planned future growth areas, as identified within the
Residential Growth Strategy (2010) and residential zoning through the RMA plan change process.
19
More than two households per hectare.
20
The Parklands Area is illustrated on Planning Map 23 and covers Waicola Drive and Titirangi Drive.
[ Introduction to the Rural Residential Land Use Strategy ]
Existing Rural Residential Areas means those areas identified for rural residential
purposes within the operative District Plan being the Aokautere-Rural Residential Area,
the Moonshine Valley Area and the Parklands Area20, which has been acknowledged
in the RRLUS as it forms part of the land supply (26ha) potentially available for rural
residential style living.
7
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
There is an opportunity for Integrated Developments to be designed and planned in
a manner which provides for Future Urban development in areas located close to or
in proximity to identified urban growth areas18, and/or existing settlements where
future residential intensification is supported by Council. These lower density, rural
residential subdivisions at urban-edge locations will be required to be master planned
(using a staged approach) and meet strict development criteria designed to facilitate
orderly, efficient urban intensification. The planning objective is that subdivisions in
these locations will be staged (via a structure plan) to enable transition to full urban
development, in the longer term. A Plan Change will be required to rezone the
land from Rural to Residential. These areas are based around locations having good
transport access, amenity value for rural living, block patterns/nodes that can support
further intensification (i.e. they have physical and social infrastructure in place and few
development constraints)19. Future Urban developments are envisaged as a subset of
the Integrated Development Category, as they will be assessed by Council in a similar
manner.
f )
The increased travel costs and roading upgrades associated with ruralresidential development;
g) The long term costs associated with maintaining local reserves in rural
communities when suitable open space is generally provided on-site;
h) The costs associated with providing urban services to established ruralresidential areas; and
i)
8
The equitable distribution of costs associated with maintaining services in
the future.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The RRLUS provides a clear direction about the circumstances in which Council
will support further investment in infrastructure, in particular reticulated water
and wastewater services, so that the market can respond with confidence.
The Council is keen to optimise investment and ensure that any investment in
infrastructure delivers the greatest return and benefit for the City.
A twofold approach to servicing is proposed for the Satellite Rural Residential
Development and Integrated Developments:
Satellite Rural Residential Development – Council will not provide reticulated
services.
Integrated Development – Council may contemplate the provision of
reticulated services in these areas, subject to strict development criteria. Land
use policies will be developed to ensure that Future Urban developments
are master planned in a staged approach to enable future intensification
and to support synchronised provision and funding of social and physical
infrastructure.
For the existing Rural Residential Areas21 situated in Aokautere, the following
approach to servicing is proposed:
[ Introduction to the Rural Residential Land Use Strategy ]
Existing Rural Residential Areas: Aokautere Rural Residential Area and
Moonshine Valley Area
Council may contemplate service provision in these areas but only where there
are extenuating circumstances, for example, reduced environmental outcomes
at a neighbourhood-wide scale associated with poor performance of treatment
systems and a broad agreement has been reached with the Community that
reticulation represents the most appropriate and effective option.
1.2.4 Collaborative Working Relationships
Achieving the purpose of the RRLUS requires the collaboration and agreement
of key stakeholders to the conceptual approach outlined in this Strategy.
In summary, strategically linking the types of growth, location and infrastructure
investment will promote greater certainty about rural residential subdivision for the key
stakeholders.
An overarching strategy for rural residential land use will support our traditional pastoral
and dairy farms, horticultural and market gardens and ancillary activities connected to
the rural environment, from being compromised by residential intensification (rural
21
Refer to explanation of existing rural residential areas on page 7.
residential subdivision). It will ensure that the resources and production systems
underpinning our working rural land are protected, maintained and improved.
The RRLUS also seeks to create a balance between rural and horticultural production and
rural residential living, with the preservation of environmental and landscape features,
stimulating progress towards the sustainable development of our extensive rural area.
1.3 Relationship to Other Land Use Strategies and Plans
The RRLUS forms part of a ‘suite’ of land use strategies that the Council has prepared to
inform the Sectional District Plan Review.
9
The Residential Growth Strategy (September 2010)
•
The Joint Industrial Land Review (2007)
•
The Palmerston North Retail Strategy (May 2003 – data updated in 2011).
The land use strategies above, together with the RRLUS and the Regional Land Transport
Strategy (RLTS), collectively form an integrated approach for managing growth and
development within Palmerston North City over the next 10-30 years.
Significant infrastructure investment will be required from the Council and other
agencies to support the implementation of the existing land use strategies and the
RLTS. It is important the RRLUS reflects the infrastructural commitments of the existing
strategies.
1.4 Why a Strategy for Rural Residential Land Use?
Rural-residential living is popular and has become an established form of new housing
development within our City. Historically, 12% of new dwellings constructed within
the City are located within our rural areas22. The Council has traditionally developed
land use strategies for residential, industrial and retail development. While the current
District Plan provides a management framework for rural-residential subdivision this is
the first specific RRLUS developed for Palmerston North City.
The impetus to prepare a RRLUS was principally supported on the grounds that Council
needed to address the specific issue of rural residential subdivision and develop a
clear, community informed position, prior to reviewing the Rural Zone and supporting
subdivision sections of the District Plan.
In addition throughout the RRLUS development process, feedback from the community
through phased formal consultation generates important baseline information to
sharpen the Council’s overall policy direction and assist in defining the scope for the
review of the Rural Zone of the District Plan.
The key role of the RRLUS is to provide a ‘helicopter view’ of the growth and development
issues that are of planning concern including the fair distribution of costs and benefits
across the community. It also serves to provide the background rationale and planning
logic for targeted regulatory intervention in terms of rural residential land use controls
in the new District Plan.
22
PNCC Urban and Citywide Residential Dwelling Growth Monitoring Reports (various); Opus Consultants Ltd (2011)
Planning for Rural Residential Development in Palmerston North City: Background Technical Report (Table 3 Rural
Residential Development in Palmerston North).
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
[ Introduction to the Rural Residential Land Use Strategy ]
The RRLUS sits alongside the following key land use strategies:
Strategic
Planning Framework
and Strategic Directions
2
11
The RRLUS sits within the context of the Council’s strategic planning framework, notably
the Sustainable City Strategy and supporting Urban Design Strategy. It also reflects the
Council’s Residential Growth Strategy.
An overview of the key strategies and strategic directives is provided below.
2.2 Overview of Council’s Strategic Planning Framework
and Key Strategies
Council’s approach to sustainable development
In 2010, Council formulated the Sustainable City Strategy, a high-level overarching
strategy, to promote and guide the sustainable development of the City. This strategy
document sets out a vision and guiding principles for the future development of the
City including the expansive, productive rural areas.
The Sustainable City Strategy also fulfils a directive
purpose to ensure clear linkages and alignment
between Council’s Goals (in the 10 Year Plan) and its key
programmes, with Council’s aspirations to move towards
becoming a more sustainable city.
A significant component to successfully delivering the Sustainable City Strategy is the
new Urban Design Strategy. The Urban Design Strategy and supporting initiatives seeks
to promote positive change in the design and quality of the City’s environment. The
Urban Design Strategy views the City as a whole and identifies five focus areas (drivers)
for future action: Public Realm, Diversity, Connectivity, Character and Environment.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The Council has an established strategic framework which guides its decision making.
The strategic planning framework analyses and decides what economic, environmental
and social outcomes need to be achieved, and prioritises actions to achieve these
outcomes.
[ Strategic Planning Framework and Strategic Directions ]
2.1 Strategic Planning Framework
This Strategy also provides design direction for public spaces, new subdivisions, site redevelopment as well as working to support co-ordinated action across the Council on
public transport and climate change initiatives.
2.2.1. The Sustainable City Strategy
12
The Sustainable City Strategy acknowledges that future development,
including the use and development of our rural lands, will be influenced by
rising energy costs and the Government’s imperative to reduce greenhouse
gas emissions overall. The potential implications of these factors for rural
residential development is to consider the case to explicitly direct this type of
development closer to the City’s urban edge, to help minimise the need for
travel and reduce travel costs and CO2 emissions.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Of particular relevance to framing of the RRLUS, were the following objectives
set out in the Sustainable City Strategy:
•
Sustainable Transport: Encourage development which is close to and
well linked to the City and its facilities, with a variety of public and private
transport alternatives
•
Compact City: Encourage development which is close to and well linked
to the City and its facilities, so as to reduce fossil fuel dependency for
travel, and to facilitate active travel modes (cycling and walking)
•
Accessibility: Development which is close to and well linked to the City
and its facilities
•
Housing Choice: Encourage development in area(s) which would enable
diversity in the City’s housing stock, including quality, affordable housing
•
Improving the stock of and quality of habitats and native vegetation in
the City
•
Ensuring that land is identified to meet the projected growth for the City.
[ Strategic Planning Framework and Strategic Directions ]
2.2.2. The Urban Design Strategy
Urban design is concerned with the arrangement, appearance and function of
our urban areas, suburbs and expansive rural areas. It is both a process and an
‘outcome’ of creating localities in which people live, engage with each other,
and engage with the physical world around them. The Urban Design Strategy
adopts a ‘place-based’ approach to the improvement of our environment and
sets out key priorities and urban design initiatives.
The Urban Design Strategy acknowledges the importance of providing
choices of living spaces and lifestyles as well as the importance and value
of the City’s landscapes in providing character to different parts of the
City. The configuration, design and layout of rural subdivisions are also
important structuring elements in delivering high quality, living and working
environments, strong neighbourhoods and improving compatibility with their
surroundings. The Urban Design Strategy provides a directive to develop ‘best
practice’, environmental design guidelines for subdivisions.
The Urban Design Strategy directs the review of the Rural Zone provisions
towards ensuring that the rural residential lifestyle developments occurs
in planned locations with clear policy differences between rural and rural
residential development. The key challenges identified for rural residential
development planning are:
•
Desire for city services, transport impacts, loss of productive land and
sensitivity to the effects of rural activities
•
Interactions with planning for urban areas of the city and infrastructure
provision (e.g. roads).
13
•
City West (Anders Road and Racecourse)
•
Whakarongo (Kelvin Grove)
Council is also progressing residential growth planning for Ashhurst Village.
It is important that the implementation of the Rural Residential Land Use Strategy does
not undermine Council’s residential growth planning, i.e. rural-residential development
should not become an alternative form of greenfield residential development.
Council proactively undertakes growth monitoring which is reported annually.
Research and monitoring across the four residential demand categories of residential,
apartments, residential infill and rural residential, shows that population growth in our
rural areas, as measured through subdivision and building consent data (2000-2008),
makes up approximately 12% of total residential growth demand. Population and
demand projections are discussed further in Section 4.0 of the RRLUS.
2.4 Palmerston North City and Manawatu District
Boundary Change
The Rural Residential Land Use Strategy will inform future land use planning for all the
land zoned Rural that will be incorporated into Palmerston North City as a result of the
boundary change with the Manawatu District Council that takes effect from 1 July 2012.
23
Palmerston North City Council (2010) Residential Growth Strategy.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The Residential Growth Review and the subsequent Residential Growth Strategy23
focussed on investigating the capacity of the existing residential landbank to meet
the City’s longer term residential growth requirements and the assessment of various
greenfield options in terms of their suitability for future rezoning from rural to residential.
The preferred residential growth areas are recognised as those sites most capable of
achieving the objectives of the Sustainable City Strategy. The adopted growth options
for Palmerston North for the next 20 years are:
[ Strategic Planning Framework and Strategic Directions ]
2.3 The Residential Growth Strategy and Urban Growth
Monitoring
Rural Residential
Development in
Palmerston North
3
15
In Palmerston North rural residential development generally means development
occurring within the City’s Rural Zone at an average density of between one to two
households per hectare.
There is a unique range and choice of environments
available for rural residential development reflecting
the City’s diverse landscapes and natural features and its
roading pattern. Roading is a key structuring element in
our rural environment defining and framing settlement
areas, providing access and opportunity for rural
residential development.
Three distinct rural-residential areas are identified within the operative District Plan
and illustrated on the Planning Maps: Aokautere-Parklands Area; the Moonshine Valley
Area and the Aokautere Rural-Residential Area. In addition to these areas, further
opportunity is provided for smaller lot subdivision (1ha) in the Rural Zone within
the Rural Residential Overlay locations24. The current Rural Residential Overlay areas
accounts for around 42% of the total areal extent of the Rural Zone. Within the Overlay,
land may be subdivided (as a Controlled Activity) to a 1 ha minimum lot size, subject to
meeting specific performance conditions25.
The traditional form of subdivision, the ‘10 acre block’, is also provided in the Rural
Zone (as a Controlled Activity) subject to meeting specific performance conditions.
This subdivision pattern is a legacy from former planning practice and the legislative
principles of the Town and Country Planning Act 1977.
As with other parts of the land and housing market, demand for rural residential living
operates across local authority boundaries. This means that a co-ordinated planning
24
The Rural Residential Overlay is identified on the Planning Maps as a ‘hatching’ over large parts of the Rural Zone.
25
Refer Section 7: Subdivision, Rule 7.16.1.2 (b) (iii) of the operative District Plan for the relevant Performance Conditions.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Rural residential areas are different from other types of living environments in Palmerston
North. Characteristically these areas are larger-sized residential properties in rural areas
with no reticulated Council services such as water, stormwater and wastewater (sewage)
infrastructure.
[ Rural Residential Development in Palmerston North ]
3.1 Overview of Rural Residential
Development in Palmerston North
approach for rural residential development is a pragmatic and prudent approach for
Palmerston North City and Manawatu District Councils to consider in the medium term.
3.2 Feedback from Community Consultation: Rural
Residential Land Use Strategy Discussion Document
16
150 submissions were received by the Council on the Discussion Document at the close
of the consultation period in June 2011. Feedback was received from rural ratepayers,
rural residential property owners and rural stakeholder interest groups, which
represented a fair response from all rural parts of the City. The feedback responses
provided valuable information and significantly updated Council’s knowledge of rural
residential characteristics such as land use planning issues, motivations and drivers for
this lifestyle type, attitudes on environmental issues including reverse sensitivity effects,
protecting landscapes, natural features and amenity landscapes.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Feedback was also provided on the more technical
aspects of land use subdivision including design, lot
size preferences and locations and on-site servicing
arrangements. Suggestions were provided on new
planning and subdivision controls, preferred locations and
where rural residential development should be avoided.
Key Findings
A summary of the key findings from community consultation are provided below:
a)
[ Rural Residential Development in Palmerston North ]
The main aspirations of rural residential landowners residing in the country are
to seek space, privacy, openness, no close neighbours, peace, quiet, tranquillity,
open rural outlook and country living. The primary motivations for rural residential
living are for amenity and lifestyle reasons rather than small holdings or productive
farming.
b) The most common lot size preferences for rural residential living are:
c)
•
rural residential section: 2,000m2 -2,500m2
•
small rural lot: 1 ha
•
smallholding: 2-4 ha
The great majority of respondents were satisfied with the size of their landholding
(lot).
d) Feedback on the subdivision rules was mixed and wide ranging including requests
to provide a greater range of lot sizes, provide large lots linked to services, provide
mid-ranged sections (2,000m2-5,000m2), retain the 1.5 ha lot pattern in Moonshine
Valley. Other general comments were: 1 ha is too small for rural living and for
enjoying rural lifestyle; raise the 4 ha minimum lot size for rural land having more
productive, arable soils; and lifestyle blocks are getting too small and too many
together.
e) Over 50% of respondents supported a review of the Overlay approach. The most
commonly cited reasons and a snapshot of the comments are:
•
“transport impacts”
•
“impacts of lifestyle blocks on the development of the City and the
surrounding farm industry”
•
“loss of productive land”
•
“need to respond to reverse sensitivity effects”
•
“health impacts of rural residential growth e.g. increased cost
of commuting, traffic flows, noise/dust/odour nuisance, social
disconnectedness”
•
“need to protect particularly sensitive areas and guard against the
overdevelopment of the countryside”
•
“providing diversity and choice (in residential living) needs to be
balanced with the continued productivity of agriculture”
•
“need to consider the issue of rural residential growth where residential
growth needs to occur”
•
“consider reduced demand (for rural residential) due to rising fuel prices
and lack of infrastructure”
•
“significant part of the District’s rural land is able to be developed in an
ad-hoc manner for rural residential development”
•
“consider other forms of development which keeps land open for rural
uses e.g. co-housing and eco-village communities”
•
“integrate the Urban Design Protocol into the design and development
of new rural residential areas.”
78% of respondents supported Council’s planning approach and servicing rationale
requiring rural residential landowners to provide their own on-site systems for
water/wastewater. The most commonly cited reasons for this support are:
•
Enables opportunities for sustainable living/self sufficiency
•
Part of the costs and responsibilities of rural living
•
Inefficient and not cost effective for Council to reticulate over such low
household density
•
Places an unfair burden on Council ratepayers
•
(providing services) will lead to further subdivision pressure potentially
destroying the character of rural environment and higher rates
•
Unnecessary to provide reticulated services as there is generally
sufficient land area to provide (on-site) services
•
(on-site services) minimises adverse effects on the environment, human
health and ecology
•
A minority commented that shared services should be considered for
nodal or clustered development.
g) The preferred directions for rural residential development were:
17
[ Rural Residential Development in Palmerston North ]
“need to consider a greater range of factors (in addition to soil
characteristics)”
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
f )
•
18
•
On land which is poor quality, less productive soils, or difficult to farm;
•
Away from reserves/natural features/the Manawatu River;
•
Away from areas where reverse sensitivity effects occur (productive
rural lands, piggeries, windfarms, archaeological/heritage sites, State
Highways/ KiwiRail transport networks, Linton Military Camp and
Manawatu Prison);
•
There was a fairly even spread of support for existing locations of rural
residential development: Tararua Foothills (Rural Residential Overlay),
Turitea Valley, areas close to the City ie Stoney Creek/Tutaki Road
area, towards Ashhurst, south of Ashhurst, Linton and Hewitts Road.
Respondents were concerned to avoid rural residential development on
floodplains, the edges of the river terraces and land which is prone to
erosion.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
h) The majority of respondents (81%) considered that the open views they had of the
landscape were either important or very important.
i)
Working collaboratively with adjoining Councils on planning for rural residential
development was strongly supported. 25% of respondents submitted that an
integrated regulatory approach for rural residential subdivision should be adopted.
87% supported regular communications and meetings on land use matters
that cross Council boundaries. Only five respondents opposed joint planning
approaches.
[ Rural Residential Development in Palmerston North ]
3.3 Feedback from Community Consultation:
Draft Rural Residential Land Use Strategy
102 submissions were received by Council on the Draft Strategy when consultation
closed in March 2012. Feedback was received from a diverse range of organisations
and rural residents in Palmerston North, including some from the adjoining rural areas
located within the Manawatu – Palmerston North Boundary Change Area.
Key Findings
A summary of the key findings are:
b) Some submitters requested more detail and information on Category C: Integrated
Developments to provide greater certainty on Council’s approach to these forms
of subdivision and to clarify its relationship to the Council’s Residential Growth
Strategy.
The specific support for the identified Development Categories, were as follows:
Category A: Rural Producer (85% support)
Category B: Satellite Rural Residential Developments (77% support)
Category C: Future Urban/Integrated Developments (84% support)
Category D: Existing Rural Residential Areas (54% support)
c)
66% of respondents supported an increase in the minimum lot size from 4 hectares.
The most commonly cited reasons for this support were:
•
To protect the rural landbank and probability of lost production
•
To reduce the loss of rural amenity and landscape values
•
To protect high class soils from rural residential subdivision.
d) 62% of respondents supported a reduction in the extent of the overlay for rural
residential subdivision (i.e. the Rural Residential Overlay). The most commonly
cited reasons for this support were:
•
To protect rural amenity values and landscapes
•
To protect nationally important strategic infrastructure from potential
reverse sensitivity effects of rural residential development.
e) Reservations to the proposed direction focussed on where and how future land
supply would be provided.
f )
26
52% of respondents supported the direction to promote additional wastewater
controls. Analysis of feedback indicates that this response is a mis-interpretation of
resident’s acceptance of on-site servicing26. A small number of respondents raised
costs of compliance as a concern.
Refer finding (f ) on page 17.
[ Rural Residential Development in Palmerston North ]
The majority of submitters supported the strategic intent of the Strategy (64%),
the proposed rural management hierarchy (83%) and the relevant development
types (86%).
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
a)
19
4
Growth Projections
21
4.1 Analysis of Residential Development Preferences
Based on the past 20 year average residential preferences from 1991 to 2010 and
Statistics New Zealand’s household growth projections, the following distribution
of residential lots is projected for Palmerston North City. It should be noted that the
following residential preferences data does not include apartments27. The following
Table assumes that residential preferences remain constant over the 20 year period
from 2012 to 2030.
Greenfields
(Lots per
annum)
Infill
(Lots per
annum)
Rural
Residential
(Lots per
annum)
Total Lots
required
from
2012-2030
High
(1.45%)
313
165
72
11,000
Medium
(1.03%)
208
109
48
7,300
Low
(0.55%)
103
54
24
3,625
Source: Statistics New Zealand Family and Household Projections: 2006 (base) – 2031 Update.
Council’s planning approach is to target the Statistics New Zealand’s Medium Growth
projections. Accordingly, a target of 48 rural residential lots per annum is recognised by
Council for growth management planning.
27
Over the 20 year period from 1991 to 2010 (December years) 212 consents were issued for apartments, accounting for
3.6% of total consents issued by Council for new residential dwellings (5,880 consents). In the five years from 2006 to 2010
apartments accounted for 9.5% of total new dwelling consents issued. The average floor space for consents issued for
apartments during 2010 was just over 100m2 while the average for other residential dwellings was 210m2.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Statistics
New Zealand
projection
(2006 base)
2010 update
[ Growth Projections ]
Palmerston North Projected Residential Dwelling
Preference for 2012–2032 (20 years)
4.2 Managing Supply and Demand
The Rural Residential Landbank: A Stocktake
Compositional Analysis of Rural Landbank-2011
The Rural Residential Landbank: A Stocktake
22
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
[ Growth Projections ]
Type
Land
Area (ha)
Minimum Lot Size
Controlled Activity
Subdivision (ha)
Development Capacity
Rural Zone
1500512
4
Land available.
Rural Residential
Overlay
1080513
1
Land available, Some
areas with development
constraints and/or
development cost issues.
Rural Residential
Areas15:
375
Moonshine Valley
76
1.5
At, or near capacity.
Aokautere Rural
Residential
299
0.13
Nearing capacity Easy
development options
taken up. Balance
land has development
constraints e.g. roading
access, costly.
ParklandsAokautere14
26
0.35
Approaching capacity.
Kingsdale Park
(Consented 2008)
Range of lot sizes:
0.40 - 2.65ha
5 Stage, 120 lot
Subdivision,(Rural
Zone and Rural
Residential Overlay).
Hartwell
(Proposed
2011 – Hearing
Adjourned)
Range of lot sizes:
1370m2-15920m2
8 Stage, 60 lot Subdivision,
(Rural Residential Overlay).
Nearing capacity. Easy
development optionstaken up, balance land has
development constraints
e.g. access, costly.
Other:
Non-Complying
Subdivisions
Rural Residential
Integrated
Developments
12
Land zoned Rural, subject to 4 ha subdivision (Rule 7.16.1.2 (b))
13
Land zoned Rural and identified on the Planning Maps for rural residential subdivision (1 ha lots) (Rule 7 16.1.2(b)(iii)).
14
Parklands-Aokautere is zoned Residential, but is considered in this analysis, as the subdivision pattern and resultant
residential amenity meets demand for rural living, being larger lots and predominantly un-serviced sections.
15
Land zoned Rural and identified on the Planning Maps as Rural Residential Areas (dotted perimeter): Aokautere Rural
Residential Area (R7.16.1.2(b) (i)) and Moonshine Valley (R 7.16.1.2 (b)(ii)).
Subdivision for rural residential development has been a
strong feature of consent activity in the Rural Residential
Overlay area (1ha lots) and in the general Rural Zone (4ha
lots).
Monitoring of subdivision consent data indicates that the most prevalent subdivision
pattern has been 4-5 lot subdivisions with preferred locations being the foothills of the
Tararua Ranges notably: the elevated flats, incised valleys and the Ngahere Park and
Forest Hill slopes. Smaller scale, cluster-type subdivisions have also been popular in
the north east of the City at Stoney Creek/Tutaki Road and on the upper plains at Kelvin
Grove/ Whakarongo.
a)
23
The Rural Residential Overlay
For the Overlay areas, Council can expect to process more non-complying resource
consent applications for rural residential subdivisions with a large-scale, multistaged, integrated development format. The RRLUS constructively provides
a principle based planning framework to assist with processing these highly
technical and complex consents in the rural environment.
b) Rural Residential Areas
Of note, the early rural residential areas provided in the operative District Plan,
of Moonshine Valley and Aokautere Rural Residential, are nearing development
capacity.
The RRLUS seeks to move away from the ‘blanket’ planning approach for rural residential
subdivision in the Overlay area, given the planning, servicing and development
costs issues, to a more “principle-based” planning framework signalling a significant
reduction in the area identified as potentially suitable for subdivision. Area-specific
16
An expression coined by the property development sector. It refers to the practice especially in recessionary economies,
for financial institutions to move away from financing high-risk, lower-cost development and towards funding higher
quality, market proven development models.
17
Projections for Palmerston North (September 2011). Rural Residential is approximating 10% of total residential demand
(adapted from Table 24: New Dwelling Units by Development Type, 1999-2010).
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Against a backdrop of physical and economic constraints, rural residential
development is predicted to tail-off until finance and market conditions improve.
The indications are already there, in terms of the latest economic monitoring
report, which shows that rural residential demand has declined as a proportion of
total demand17 in the past four years.
[ Growth Projections ]
Most recently, rural residential subdivisions within the Overlay area have trended
towards larger scale (in terms of total lot numbers), high design market offerings.
This reflects the difficult financial market conditions and the ‘flight to quality’
phenomenon16 for development capital. It also reflects the significant costs of
developing the land types located within the Overlay and the development drivers
to maximise overall lot yields to finance expensive roading and service infrastructure.
With much of the remaining land in the Overlay being topographically steep (with
potential for geotechnical issues) or low-lying, the balance of land in the landbank
is likely to be difficult and expensive to develop. High design and high priced
sections are the inevitable end result.
technical investigations will further sharpen the planning approach for rural residential
subdivision in a reduced Overlay area18.
The general and specific development principles for rural residential development are
outlined in Section 5.0 which follows.
Rural Land Management: A Stocktake
There has been strong feedback from rural ratepayers and residents concerning the need
to preserve and sustainably manage the productive land resource19. The fragmentation
of farmland and concerns about reverse sensitivity, due to rural residential subdivision,
were key themes.
24
To progress the design of a purposive planning framework and subdivision rules
applying to the productive areas of the Rural Zone, Council has commissioned specific
research with rural landowners to better understand the drivers for land subdivision
and the evidence base for potentially increasing the maximum lot size upwards from 4
ha. This rural research will support future policy design and development principles for
rural land with the strategic aim of protecting rural land from ad-hoc subdivision (and
the consequent upwards pressure on rural land values) whilst preserving opportunities
for ‘entry level’ farming.
Managing Supply and Demand: Important Considerations and Consequences
A prudent and balanced approach is required for managing rural residential land use. It
is also important to recognise that there are direct consequences of actively providing
for full demand (100% provision equates to a supply of 48 lots per annum). Some of
these costs include:
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
Traffic generation and vehicle kilometres travelled
•
Infrastructure and environmental costs, in terms of failed effluent systems
•
Upwards pressure on rural land values driving land use change (residential
intensification in the rural environment)
•
Reverse sensitivity issues20
•
Loss of rural amenity (open rural outlook), potential effects on landscape
character
The enabling approach of the current District Plan is
based on meeting 100% of projected demand or market
preference for rural residential living. The rural residential
overlay in effect provides an oversupply of land required
for rural-residential subdivision for the next 10 years.
[ Growth Projections ]
18
Under the RRLUS, this form of development is proposed to be called Satellite Rural Residential Development.
19
Please refer to Section 3.2 of the RRLUS.
20
Reverse sensitivity arises where a new incompatible activity (e.g. residential dwelling) is introduced into an environment
which has the potential to limit operation of existing activities (e.g. normal farm operations).
4.3 Options Analysis – A more sustainable approach?
There are alternative options available to Council to manage demand and supply for
rural residential living, especially in view of the costs, for example, to only provide
land area for 80, 60 or 40% of rural residential demand projections. Allied to this is the
option of staging the allocation of the landbank for rural residential development over a
specified planning period e.g. sequencing land provision over the next 10 years.
The preferred planning approach for managing rural residential land use and its supply,
is to adopt a transparent, design-led, “principle-based” approach, aligned to the four
development types taking place in our rural environment. Such an approach will likely
result in a reduction of the land presently identified as available for rural-residential
subdivision.
25
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
[ Growth Projections ]
The strategic land use framework for rural residential and the general development
principles are set out in Section 5.0.
5
Development
Principles for Rural
Residential Development
27
Category A: Rural Producer
Category B: Satellite Rural Residential
Category C: Integrated Development
Category D: Existing Rural Residential Areas
The rural land management hierarchy recognises Council’s
strategic planning framework and reflects the key
planning priorities for the Rural Zone.
Specifically, the strategic directions and imperatives seek to:
•
protect the rural land bank – to better recognise and provide for the “Rural
Producer”
•
direct growth to identified residential growth areas to support the investment
made in these locations and/or to existing urban areas (i.e. to promote
intensification and redevelopment, or residential infill development)
•
limit the financial impact of rural-residential subdivision on Council
infrastructure demands
•
limit the environmental impact of rural residential subdivision on rural
environmental qualities including biodiversity and water quality values, rural
amenity character, landscapes and natural features and open views.
New rural residential development must, therefore:
•
be capable of being serviced by on-site water and wastewater services (unless
services are to be reticulated – Integrated Development only, subject to Council
support)
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
To support our productive rural areas and to lessen the potential longer term
consequences of rural subdivision, including the fragmentation of rural land and
‘domestication’ of rural landscapes, a new management framework is proposed.
It specifically recognises the four development types via the following rural land
management hierarchy:
[ Development Principles for Rural Residential Development ]
5.1 Broad Strategic Approach and Schematic Diagram
28
•
not conflict with Council’s Long Term Plan and foreseeable long-term plans for
growth and infrastructure
•
be directed and controlled in a manner that recognises the primacy of the Rural
Zone for rural activity and more responsive to evident market demands and
expectations for rural residential living21
•
support integrated land use and transport planning objectives (The Local
Government Act 2002)
•
be responsive to natural and cultural heritage, and natural landform patterns
•
address planning issues – high quality soils, reverse sensitivity, community
development
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The following schematic diagram illustrates the management framework and highlights
the key directions and development principles.
Schematic Diagram:
Rural Land Management Hierarchy and Key Development Principles
Key Development Principles
A:
[ Development Principles for Rural Residential Development ]
B:
C:
•
The priority is to protect the rural land bank for
primary sector production activities
•
Protect productive land from rural residential
subdivision
•
Increase the minimum lot size from 4ha, subject
to supporting research. Recognise the specific
requirements of horticulture and nursery operations
for smaller lots.
•
Retain the 1ha minimum lot size
•
Self-serviced lots
•
Council adopts a more “hands off” approach than for
Integrated Development
•
Increase the burden of proof for applicants regarding the
long term performance of on-site wastewater systems;
and the appropriate and timely supply of energy
•
Typically 4-5 lots
•
Lower risk to Council in terms of supporting
infrastructure investment.
•
High threshold for approval
•
2500m2 – 1ha lots
•
Specific approval required from Horizons Regional
Council if the new lot is below 5000m2
•
Initial presumption of self-serviced lots
The Rural Producer
Satellite Rural
Residential
Development
Integrated
Development
21
Refer to consultation findings on motivating drivers for rural living in 3.2(a), page 16.
Key Development Principles
Increase the burden of proof for applicants regarding the
long term performance of on-site wastewater systems;
and the appropriate and timely supply of energy
•
Specifically recognise a residual risk remains for
Council and the community with body corporate
management regimes
•
Should not undermine the purpose of the Council’s
Residential Growth Strategy, including residential
growth planning for villages, e.g. Ashhurst
•
Should not become the preferred form of rural living
•
Should not represent a new market but provide an
alternative for those seeking rural residential living in
proximity to existing urban areas
•
Recognise that approved and pending subdivision
consents may provide sufficient capacity in the short
term to meet demand
•
Approval will be subject to future infrastructure
planning by Council
•
Reticulation should be cost neutral to the Council
•
Specific development criteria for biodiversity,
landscape, connectivity and community matters
•
Council will only contemplate reticulation (water and
wastewater) in certain Future Urban situations22
•
Future Urban is a specific subset of Integrated
Development and will only be contemplated where
future intensification is supported by Council.
Future Urban:
D:
Existing Rural
Residential Areas:
Parklands Area,
Moonshine Valley
Area, Aokautere
Rural-Residential Area
22
•
Compliance with specific design requirements that
enable intensification over the long term
•
Reticulation should be cost neutral to the Council
•
Specific development criteria for biodiversity,
landscape, connectivity and community matters.
•
Reticulated services will only be provided on a user
pays / cost recovery process
•
Reticulation is not a priority for Council investment
and/or a means of providing for growth
(intensification)
•
Council will only contemplate reticulation where
there is broad agreement from the affected
community to cover the cost of new services and
support for future intensification
•
Recognise and protect the historic 1.5ha minimum
lot size at Moonshine Valley.
Where there is spare network capacity available and/or where there are network efficiencies resulting.
29
[ Development Principles for Rural Residential Development ]
•
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
5.2 Rural Residential Development Principles
General Development Principles have been developed to support the proposed rural
land management hierarchy.
The development principles in themselves are not absolutes but are provided as
guidelines to inform development decisions, for example, where or how rural residential
development should occur (i.e. the locational aspects of rural residential development).
In some cases, one principle can conflict with other principles. These tensions need to
be dealt with through the development planning process on a case by case basis.
30
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
The general development principles for rural residential land use are set out below:
General Development Principles:
Land Supply
[ Development Principles for Rural Residential Development ]
•
Rural residential development should be directed away from land with high
capability for pastoral use (e.g. Class 1 and 2 land).
•
Planning for rural residential development should seek to avoid, where possible,
the potential for reverse sensitivity issues to arise. For example, in locations
where there are existing pastoral dairy farms, intensive farming activities such
as deer, poultry farms and piggeries or existing rural industry activities such as
quarries or windfarms, consider large buffer zones or setback provisions and/or
preventing rural residential subdivision in these areas.
•
Direct rural residential development away from potential wind electricity
generation sites and associated transmission and/or distribution infrastructure.
•
Where there is existing strategic infrastructure, facilities and developed land,
these should be recognised without compromising their efficient functioning.
As much as possible, protect these existing strategic assets and activities from
any adverse effects of rural residential development.
•
The National Grid and associated electricity transmission corridors which may
be needed over the next 50 years should be identified and protected from rural
residential development.
•
Limit land supply in the Rural Zone for rural residential living i.e. reduce the
extent of the Rural-Residential Overlay available for Satellite rural residential
development.
•
Direct Integrated Development as close to the City’s urban limits as possible,
without adversely affecting Council’s future residential growth options.
Through the Rural Zone review detailed policy and assessment criteria will be
developed to guide this development type and respond to locational aspects23.
Alignment with Council’s infrastructure investment and the Long Term Plan
needs to be demonstrated.
Natural Hazards
•
23
Avoid or direct rural residential development away from floodplains, ponding
areas, and/or areas subject to flood protection schemes and areas subject
to erosion and steep areas where landslide potential is high. In some cases
rural residential development, with appropriate building controls, may be
appropriate where there is a medium hazard risk (but not a high risk).
These future development areas will be carefully master planned, as staged developments, to enable future residential
intensification in the long term, as the market demands, and subject to Council's Growth Monitoring.
Landscape and Heritage
•
Consider effects of rural residential development on areas/features of
particularly high landscape character (e.g. Outstanding Natural Features or
Outstanding Natural Landscapes24). It is important to note that this principle
is not just about protecting high value landscapes, it is also about maintaining
and enhancing other amenity landscapes so all development decisions need to
be based on a clear understanding of the effect of development on landscape
values.
•
Give special consideration to landscape values along high volume traffic routes
e.g. SH 56 and 57. Viewing lines from these highways should be considered
when planning for rural residential development.
•
Heritage: Development planning and decisions need to take account of
potential effects of rural residential development on historic heritage, sites and
features. Such sites and features should be identified and the appropriate level
of protection determined before development decisions are finalised.
•
Sometimes cultural heritage values are not well known or understood (e.g.
‘silent files’ are sometimes used by iwi as a way of protecting sites). Development
planning and decisions therefore need to be made in consultation with iwi.
Infrastructure/Servicing
24
•
Presumption of self-servicing for all rural-residential areas and new subdivisions.
Limit unplanned extensions to the water and wastewater networks which
bring additional costs, requests for further connections and reduce network
efficiencies.
•
Increase consent applicant’s burden of proof regarding future operation of onsite wastewater systems to ensure performance and positive environmental
outcomes.
•
Consider adequacy and design of infrastructure such as stormwater, pipes and
culverts, in view of the impacts of climate change.
•
Give effect to the Horizons Regional Council One Plan requirements for
domestic on-site wastewater treatment and disposal systems.
•
Consider the adequacy of on-site reticulated water supply systems, in terms of
the both the standards of water supply and access by the NZ Fire Service, in
order to enable effective response to a fire emergency.
•
Increase consent applicant’s burden of proof in terms of demonstrating that
an appropriate and timely supply of electricity can be achieved to the new
development.
ONF’s and ONL’s are defined in the Horizons Regional Council One Plan.
31
[ Development Principles for Rural Residential Development ]
Consider landscape character and heritage values, not only where it should
occur, but also what landscape, heritage and ecological considerations should
apply to development. A range of policy responses may be considered to
address these planning matters from active prevention of development, limited
controlled development, through to less restrictive development in particular
areas. The Palmerston North Landscape Inventory (2011) identifies the City’s
Landscape Units, character and values and is a key reference document.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
32
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
[ Development Principles for Rural Residential Development ]
•
Consider major transport routes. These may need to be well-buffered and
designed so that there is room for expansion of road widths in the future (such
as additional slip lanes and/or passing lanes) and to minimise conflicts with
rural activities and other land uses.
•
Ribbon development along State Highways and major transport corridors
should be discouraged to protect the efficient and effective functioning of
these routes. Nodal development along main corridors may be appropriate in
some cases. Development decisions therefore need to be made in consultation
with relevant roading authorities.
•
Rail routes should be protected from further rural residential development
which may increase the potential for reverse sensitivity to arise.
•
Future potential infrastructure corridors (such as for electricity transmission,
road and rail) need to be determined and development (existing and future)
needs to be buffered from these corridors. Development decisions therefore
need to be made in consultation with Electricity Generation Companies and
energy transmission and distribution companies, NZTA and KiwiRail.
Energy
•
Direct rural residential development away from consented and potential wind
electricity generation sites.
•
Electricity and gas transmission corridors which may be needed over the next 50
years should be identified and/or protected from rural residential development.
•
Increase consent applicant’s burden of proof in terms of demonstrating that
an appropriate and timely supply of electricity can be achieved to the new
development.
•
Integrated Development – These development areas should be near existing
public transport routes and capable of being serviced by public transport.
Reserves
•
Initial presumption is that local reserves are not required in rural areas as
adequate open space is generally provided on site.
•
The provision of local reserves in rural areas increases maintenance costs in an
inequitable manner.
•
Rural residential development should not limit public access to rivers, lakes
and streams, and where practicable, development plans should augment the
public’s ability to access these features.
•
Development can support or help re-establish wetland and biodiversity
habitats (bush/scrublands) – this can occur through land being set aside for
reserves and/or as ‘ecological patches’/green corridors or biodiversity corridors
to provide links with existing waterbodies, wetlands, bush/scrublands.
•
Where rural residential development is to occur in the vicinity of an area of high
biodiversity value or habitat (or recognised potential), development buffer
zones, setback provisions or reserve provision may be considered.
Specific Development Principles:
Category A: Rural Producer
•
The priority is to protect the rural land bank for primary sector production
activities.
•
Increase the minimum lot size from 4ha, subject to supporting research,
to establish a minimum lot size that maintains and protects the rural land
bank for primary sector production activities, whilst also providing for
entry level farming operations. Also recognise the specific requirements
of horticulture and nursery operations for smaller lots.
•
Self-serviced.
33
[ Development Principles for Rural Residential Development ]
Rural residential development should be designed to make the best use of
north facing hill sites. Rural residential lots should be designed and sited to
maximise solar gain, particularly in winter months.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
Category B: Satellite Rural Residential Development
34
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
Retain the 1ha minimum lot size.
•
Self-serviced.
•
Council adopts a more “hands off” approach than for Integrated
Development.
•
Increase the burden of proof for applicants regarding the long term
performance of on-site wastewater systems.
•
Appropriate and timely supply of energy.
•
Typically 4-5 lots.
•
Lower risk to Council in terms of supporting infrastructure investment.
•
Recognise the Urban Design Strategy objectives and promote best practice
design for rural residential subdivisions, especially local connectivity.
•
Recognise and work with the natural environment.
•
Recognise and protect rural amenity, notably views and local landscapes/
natural features.
•
Consider opportunities to enhance biodiversity and water quality values,
stock and quality of habitats and native vegetation.
Category C: Integrated Development
[ Development Principles for Rural Residential Development ]
•
High threshold for approval.
•
2500m2 – 1ha lots.
•
Specific approval required from Horizons Regional Council if any new lot(s)
is below 5000m2.
•
Initial presumption of self-serviced lots.
•
Increase the burden of proof for applicants regarding the long term
performance of on-site wastewater systems.
•
Appropriate and timely supply of energy.
•
Specifically recognise a residual risk remains for Council and the community
with body corporate management regimes.
•
Should not undermine the purpose of the Council’s Residential Growth
Strategy, including residential growth planning for villages, e.g. Ashhurst.
•
Should not become the preferred form of rural living.
•
Should not represent a new market but provide an alternative for those
seeking rural residential living in proximity to existing urban areas
•
Recognise that approved and pending subdivision consents may provide
sufficient capacity in the short term to meet demand.
•
Approval subject to future infrastructure planning by Council.
•
Future Urban is a specific subset of Integrated Development and will only
be contemplated where future intensification is supported by Council.
•
Council will only contemplate reticulation (water and wastewater) in
certain Future Urban situations where there is spare network capacity
available and/or where there are network efficiencies resulting.
•
Reticulation should be cost neutral to the Council.
•
Specific development criteria for biodiversity, landscape, connectivity and
community matters.
•
These areas should be near existing public transport routes and/or capable
of being serviced by Public Transport.
•
Alignment with Council’s planned infrastructure investment, in particular
the transportation network, must be demonstrated.
•
Connectivity and accessibility within the rural residential subdivision
and to the external transportation network must be demonstrated for all
modes of transport.
•
Initial presumption is that local neighbourhood reserves are not required
in rural areas. However, in certain circumstances Council may consider
reserves, for example, where Council considers there are opportunities to
enhance biodiversity and water quality values, stock and quality of habitats,
native vegetation or improved public access. Alignment with Council’s
Recreation and/or Biodiversity Strategies will need to be demonstrated.
•
Recognise the Urban Design Strategy objectives and promote best practice
design for rural residential subdivisions, especially local connectivity.
•
Recognise and work with the natural environment.
•
Recognise and protect rural amenity, notably views and local landscapes/
natural features.
Category D: Existing Rural Residential Areas
•
Self-serviced.
•
Reticulated services will only be provided on a user pays / cost recovery
process.
•
Reticulation is not a priority for Council investment and / or a means of
providing for growth (intensification).
•
Council will only contemplate reticulation where there is broad agreement
from the affected community to cover the cost of new services and support
for future intensification.
•
Recognise and protect the historic 1.5ha minimum lot size at Moonshine
Valley.
5.3 Collaborative Relationships
•
Suggest policy alignment with Manawatu District via MDC District Plan Review.
•
Ensure policy alignment with Horizons Regional Council in relation to the
5000m2 minimum lot size for on-site wastewater treatment and disposal
systems.
•
Work with Horizons Regional Council to ensure a co-ordinated and integrated
management approach, for biodiversity and regionally significant landscapes.
35
[ Development Principles for Rural Residential Development ]
Compliance with specific design requirements for Future Urban
developments that enable intensification over the long term.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
•
6
Summary
of Next Steps
37
Once formally adopted by Council, the RRLUS will have status as a strategic planning document
and be given effect to via the Sectional District Plan Review.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
[ Summary of Next Steps ]
Further technical reports and feasibility studies may be required to support the implementation
of the RRLUS within the District Plan.
GLOSSARY
38
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
Ancillary Activities – Means an activity or service
which is related to, or supports the principal activity
on a site, or the specialised function of an area or
zone.
Block Pattern/Cadastral Pattern – A technical term
associated with land survey and the subdivisions
process and which also describes the size, location
and layout of lots and general form of development
which emerges through the process of land
development.
Density - A term that describes the intensity of
building on a particular site or in a particular zone, as
defined within the District Plan. For example, in the
Rural Zone, the density of development is primarily
controlled through the minimum lot size rule.
[ Glossary ]
Development Capacity - Means the permitted
number of household lots/dwellings that a site or
an area is able to accommodate at current densities
(intensity), as defined within the District Plan.
Development Criteria - Criteria used to assess the
suitability of development, generally in terms of its
effects on the environment, and compliance with
objectives, policies and rules of the District Plan.
Household - Defined as one person usually living
alone, or two or more people usually living together
and sharing facilities in a private dwelling (e.g
cooking facilities, bathroom and toilet facilities, and
living areas).
Infrastructure – the same meaning as infrastructure
in the RMA 1991.
Intensification – Means subdivision, use and/or
redevelopment of areas within existing, urban areas.
Landbank - Specific blocks of land that are zoned
for development. This term is often used in relation
to growth forecasts and monitoring reports, notably
the uptake of residential and industrial zoned land.
Lot and Allotment - As per the definition of
“Allotment” in Section 218(2) of the Resource
Management Act 1991, including: any parcel of land
under the Land Transfer Act 1952 that is a continuous
area and whose boundaries are shown separately on
a survey plan; or any parcel of land or building or part
of a building that is shown or identified separately on
a survey plan; or any unit on a unit plan; or any parcel
of land not subject to the Land Transfer Act 1952.
Development Pattern - The subdivisional and land
use pattern (or activities) taking place in an area or
location.
Minimum Lot Size - Means the total area of the lot
allowable, less the area used for access where the lot
concerned is linked to a public road via a single or
shared access strip.
Farmparks or Ecoparks - A specifically designed
farm (or forest park) within rural areas where the
design of the allotments and dwelling sites are each
individually located to ensure the least impact on the
rural environment and rural landscape values.
Nodes or Cluster Developments - Clustering of
residential allotments within the rural environment
to retain and preserve the open visual character and
expanse of rural areas. Sometimes called ‘hamlets’
this pattern of land development is recognised as
This provision is sometimes referred to as the Rural
Residential Overlay or Overlay Area.
On-site Systems/Services – These systems include
private water bores, domestic water and wastewater
(grey water) or stormwater systems designed to
serve rural households in rural areas.
Resource Consent – Has the meaning set out in
section 87 of the Resource Management Act 1991. A
consent can generally be described as a permission
(usually a written application) required from a
Regional Council or a territorial authority or local
authority, to carry out an activity under the Resource
Management Act 1991 and includes all conditions to
which the consent is subject.
Reticulated Services or Infrastructure – Means
publicly or privately owned network utility
infrastructure and generally includes water supplies,
pump stations, wastewater sewers and stormwater
reticulation services to service residential households
and new residential areas.
Rural Lifestyle Block - Rural land used primarily for
farming activities and usually containing a dwelling,
comprising an area of about four hectares.
Rural Residential Area - Land which is identified in
the District Planning Maps for rural residential living,
for example, Moonshine Valley Area and Aokautere
Rural Residential Area.
Strategic Infrastructure – Infrastructure identified
in Policy 3-1 of the Horizons Regional Council One
Plan as being of regional or national importance.
Subdivision – Subdivision is defined in the section
281(1) of the Resource Management Act 1991 to
mean the division of an allotment by various means
including cross-lease, unit titles and for leases which
are for 20 years or longer (including renewals).
Subdivision or Residential Infill - Means the
splitting of an existing section into two or more
allotments (lots) usually for the purpose of building
another dwelling(s).
Zoning - A system of land use regulation whereby
land is mapped into zones which separate one set of
permitted land uses from another.
39
[ Glossary ]
Overlay/Rural Residential Overlay Area – The
land area which is identified on the District Planning
Maps legend (under the heading Miscellaneous) as
‘Rural Residential Area’ and graphically illustrated
on the Rural Zone through horizontal hatched lines
(hatching overlay). The land parcels within this
area are potentially suitable for subdivision for rural
residential living, subject to meeting the specific
rules in Section 7 Subdivision. The Rural Residential
Area covers or overlays a large area of the Rural Zone,
and serves to clearly identify where the opportunity
for subdivision down to 1 ha allotments is allowed.
Reverse Sensitivity - Reverse sensitivity arises
where a new incompatible activity is introduced into
an environment which has the potential to limit the
operation of existing activities.
RU R A L R E S I D E N T I A L L A N D U S E S T R AT E G Y
one option for meeting demands for rural lifestyle
subdivisions.
Palmerston North City Council
Private Bag 11034, The Square, Palmerston North, 4442 | P 06 356 8199 | W www.pncc.govt.nz