Victoria 50 Limited
Resource Consent for a Variable Image
Advertising Display
Resource Consent Application to the
Christchurch City Council
April 2016
Planz Consultants
Quality Assurance Statement:
Application Prepared By:
Planz Consultants Ltd, 124 Peterborough Street, PO Box 1845, Christchurch 8140,
www.planzconsultants.co.nz
Jonathan Clease, Associate
E: [email protected]
Reviewed By:
Tim Joll, Consultant Planner
E: [email protected]
DDI: (03) 372 2282
Project Number:
14502
Document Status:
Final
Date:
April 2016
The information contained in this document produced by Planz Consultants Ltd is solely for
the use of the Client for the purpose for which it has been prepared and Planz Consultants Ltd
undertakes no duty to or accepts any responsibility to any third party who may rely upon this
document.
All rights reserved. No section or element of this document may be removed from this
document, reproduced, electronically stored or transmitted in any form without the written
permission of Planz Consultants Ltd.
T: 03 377 9829 E: [email protected] W: planzconsultants.co.nz A: 124 Peterborough St PO Box 1845 Christchurch 8140 New Zealand
TABLE OF CONTENTS
1
INTRODUCTION ---------------------------------------------------------------------------------------------------------------------- 1
1.1
1.2
1.3
2
BACKGROUND -------------------------------------------------------------------------------------------------------------------- 1
PURPOSE OF THIS REPORT ------------------------------------------------------------------------------------------------------- 1
STRUCTURE OF THIS REPORT ----------------------------------------------------------------------------------------------------- 1
SITE DESCRIPTION ------------------------------------------------------------------------------------------------------------------- 2
2.1
2.2
APPLICATION SITE ---------------------------------------------------------------------------------------------------------------- 2
SURROUNDING AREA ------------------------------------------------------------------------------------------------------------- 2
3
PROPOSAL DESCRIPTION ---------------------------------------------------------------------------------------------------------- 3
4
DISTRICT PLANS ---------------------------------------------------------------------------------------------------------------------- 4
4.1
4.2
5
STATUTORY FRAMEWORK -------------------------------------------------------------------------------------------------------- 5
5.1
6
OVERVIEW ------------------------------------------------------------------------------------------------------------------------ 7
VISUAL EFFECTS ------------------------------------------------------------------------------------------------------------------- 7
HERITAGE EFFECTS ---------------------------------------------------------------------------------------------------------------- 9
TRAFFIC SAFETY ------------------------------------------------------------------------------------------------------------------10
CONCLUSION ---------------------------------------------------------------------------------------------------------------------10
OBJECTIVES AND POLICIES -------------------------------------------------------------------------------------------------------10
7.1
7.2
8
PART 2 OF THE RMA------------------------------------------------------------------------------------------------------------- 5
ASSESSMENT OF EFFECTS ON THE ENVIRONMENT------------------------------------------------------------------------ 7
6.1
6.2
6.3
6.4
6.5
7
OPERATIVE CHRISTCHURCH CITY PLAN------------------------------------------------------------------------------------------ 4
PROPOSED CHRISTCHURCH REPLACEMENT DISTRICT PLAN -------------------------------------------------------------------- 5
OPERATIVE CHRISTCHURCH CITY PLAN-----------------------------------------------------------------------------------------10
PROPOSED CHRISTCHURCH REPLACEMENT DISTRICT PLAN -------------------------------------------------------------------11
OTHER MATTERS -------------------------------------------------------------------------------------------------------------------12
8.1
8.2
PRECEDENT ----------------------------------------------------------------------------------------------------------------------12
RECOVERY STRATEGY FOR GREATER CHRISTCHURCH--------------------------------------------------------------------------12
9
CONSULTATION/NOTIFICATION -----------------------------------------------------------------------------------------------12
10
CONDITIONS OF CONSENT -------------------------------------------------------------------------------------------------------13
11
CONCLUSION ------------------------------------------------------------------------------------------------------------------------13
APPENDICES:
Appendix 1:
Locality Plan
Appendix 2:
Certificate of Title
Appendix 3:
Photographs of site
Appendix 4:
Resource Consent Decision RMA92026891
APPLICATION FOR RESOURCE CONSENT
SECTION 88 OF THE RESOURCE MANAGEMENT ACT 1991
To: the Christchurch City Council
1.
Victoria 50 Limited applies for the following resource consent:
A land use consent to allow for the establishment of a 40m2 digital sign attached to the
existing building at 50 Victoria Street.
The proposal is more fully described in the attached AEE and plans which form part of this
application.
2.
The owners and operators of the site to which the application relates are:
Victoria 50 Limited
3.
The location of the proposed activity is as follows:
Address:
50 Victoria Street, Christchurch.
Legal Description:
Lot 1 DP 462635
4.
In accordance with the Fourth Schedule of the Resource Management Act 1991, an assessment
of the environment effects in the detail that corresponds with the scale and significance of the
effects that the proposed activity may have on the environment is attached.
5.
No other information is required to be included in this application by the district/regional plan,
the Resource Management Act 1991, or any regulations made under that Act.
The required deposit of $1,500 (incl GST) will be paid on receipt of Council’s invoice.
_______________________
Jonathan Clease
Planz Consultants Limited
On behalf of Victoria 50 Limited
Address for Service:
Address for Billing:
Planz Consultants Limited
PO Box 1845
CHRISTCHURCH 8140
Attention: Jonathan Clease
Victoria 50 Limited
c/o Jo Appleyard
Chapman Tripp
PO Box 2510
CHRISTCHURCH 8140
DDI:
Email:
964 4630
[email protected]
Victoria 50 Limited
Variable Image Display
Resource Consent Application
April 2016
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Resource Management Act 1991
Fourth Schedule
Assessment of Effects on the Environment
1
Introduction
Victoria 50 Limited (the applicant) seek resource consent to establish a digital billboard at 50
Victoria Street. The proposed billboard will be attached to the north-western wall of the
existing building on the site and will display variable digital images.
1.1
Background
In 2014 the applicant applied for resource consent RMA92026891 (decision attached as
Appendix 4) to establish site related signage on the building at 50 Victoria Street. Upon being
granted consent, the applicant mounted a ‘Guinness’ outdoor advertising sign on the northwestern wall of the building. It is noted that although the resource consent allowed for the sign
to be 40m2 in area and at a maximum height of 14.5m, the established advertising is at a lower
height and is lesser in area than what has been permitted.
The applicant now aims to replace the existing outdoor advertising sign on the north-western
wall with a variable image display that will be identical in terms of height and area to what has
previously been consented in RMA92026891.
1.2
Purpose of this Report
The purpose of this report is to provide the Council with the information required in order to
obtain resource consent for the proposed variable image display on the application site.
1.3
Structure of this Report
This report is divided into eleven sections as follows:
Section 1:
provides an introduction and background to the application and identifies the
purpose and structure of the report.
Section 2:
provides a brief description of the site and surrounding environment.
Section 3:
provides a detailed description of the proposal.
Section 4:
outlines the relevant City Plan and proposed Christchurch Replacement
District Plan provisions for the application and assesses compliance with the
Plan rules.
Section 5:
identifies the relevant statutory framework in such detail as is commensurate
with the proposal.
Section 6:
evaluates the proposal in terms of its actual and potential effects on the
environment and outlines the mitigation measures to be adopted.
Section 7:
identifies the relevant City Plan and proposed Christchurch Replacement
District Plan objectives and policies and evaluates the proposal.
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Section 8:
evaluates potential for the proposal to set a precedent and identifies and
assesses any other relevant statutory and non-statutory documents.
Section 9:
outlines the consultation undertaken with neighbours and the basis for nonnotification of the application.
Section 10:
outlines suggested conditions of consent.
Section 11:
provides a summary and conclusion.
The appendices at the end of the report contain all the plans and other relevant information to
support the proposal.
2
Site Description
2.1
Application Site
The application site is located on the north-eastern side of the Victoria Street – Peterborough
Street intersection. The site is a triangular shape with the apex pointing north. The eastern
boundary adjoins Victoria Street, whilst the southern boundary, which is approximately 5
metres in length, fronts the corner of the intersection between Victoria and Peterborough
Streets.
Prior to the 2011 Canterbury Earthquakes, the site contained a four-storey commercial building.
The building was demolished after sustaining damage in the earthquakes, and was replaced by
a four-storey development of similar design and build. The existing building extends to the
boundaries of the site and is triangular in shape. The building currently contains a food and
beverage outlet known as ‘The Bog’ at ground floor level. The remaining three floors are leased
as office space.
Approximately 50m2 of site-related signage exists on the north-western, south-western and
southern walls. The eastern wall is covered by a large mural and does not contain any signage.
A locality plan showing the location of the site is attached as Appendix 1.
A Certificate of Title for the site is attached as Appendix 2.
Photos of the site and the surrounding area are attached as Appendix 3.
2.2
Surrounding Area
The surrounding area is predominately occupied by multi-storey commercial buildings, as is
typical of the Central City Business Zone in which the site lies. Commercial buildings align either
side of Victoria Street, with a number of buildings containing advertising signage. The site is
adjoined by Victoria and Peterborough Streets on its western and southern boundaries
respectively. Neighbouring the site to the east is a large outdoor carpark associated with the
Christchurch Casino, which exists opposite the application site on the south-eastern corner of
the Victoria Street – Peterborough Street intersection. An empty lot adjoins the site to the
north-west for which development is anticipated in the near future.
Further to the north of the site is a Central City Residential Zone containing a number of multistorey apartment style developments fronting both sides of Salisbury Street. The two small
corner sites on the north-western and south-eastern corners of the intersection between
Peterborough and Victoria Streets are both zoned Central City Community Park and are
maintained as greenspace. The intersection of Montreal, Salisbury and Victoria Streets is
located approximately 150m to the north-west of the site.
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There are three heritage buildings in close proximity to the site; the ‘Victoria Mansions’ at 91
Victoria Street, approximately 100m to the north-west of the application site; the Jubilee Clock
Tower which adjoins the northern boundary of the Victoria Mansions site; and ‘Ironside House’
at 32 Salisbury Street.
3
Proposal Description
The applicant is seeking consent to allow for the attachment of a digital billboard to the northwestern façade of the existing building at 50 Victoria Street.
The proposed digital billboard will be attached at a maximum height of 14.5m and will measure
40m2 in area. The approximate proposed location of the sign is shown in Figure 1, below. The
bulk and location specifications for the proposed sign will match those previously permitted for
the site as a result of resource consent RMA92026891 which was for non-digital outdoor
advertising. The previously consented sign on the north-western wall will be removed should
this application for a digital billboard be granted. The application (and the resultant removal of
the existing sign on the north-western wall) will result in a total of 52.5m2 of outdoor advertising
on the site, which is the same as the total consented amount.
Approximate location
of proposed billboard
Figure 1: A photo of the application site showing the approximate location of the proposed
billboard.
In terms of the operation and display of the digital billboard, it is proposed that a variety of both
site and non-site related images will be displayed. The sign will show static images only and will
not contain any sound emitting equipment. Each image will be replaced by another image
through a cross-dissolve of between 0.3 and 1 second. Lighting controls will be installed on the
sign to ensure display brightness is automatically adjusted to suit ambient light levels.
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It is noted that although this application does not propose any specific time period for the
existence of the digital billboard, it is anticipated that the neighbouring vacant lot at 56 Victoria
Street will soon be developed at which point the proposed sign will be obscured and will
therefore become obsolete and will be removed.
The plans and elevations of the proposed digital billboard are identical to those shown in the
decision on RMA92026891, attached as Appendix 4.
4
District Plans
4.1
Operative Christchurch City Plan
All rules applicable to this application are operative in the Christchurch City Plan (“City Plan”).
The application site is zoned Central City Business. The following table assesses the proposed
activity against the relevant provisions of the operative City Plan:
Rules
Assessment
Rule Status
Part 10 – Heritage and Amenities
3.4 Outdoor Advertisements – Development Standards
Rule 3.4.1 Area and Number
(b) Central City Business Zone:
The maximum total area of outdoor
advertisements on any site shall be
10% of the site frontage area,
provided that the maximum area of
any single outdoor advertisement
shall be 3m2.
Rule 3.4.3 Height
(c) The maximum height of any outdoor
advertisement attached to or
displayed on a building shall be 6m,
or 500mm less than the facade height
of the building, whichever is the
lesser
except
for
building
identification
outdoor
advertisements.
Rule 3.4.4 Illumination
Any outdoor advertisement shall not be
internally or externally illuminated by
intermittent or flashing light sources.
Rule 3.4.10 Traffic Safety
(a) Any outdoor advertisement shall not
be located so as to be likely to obscure
or to confuse the interpretation of any
traffic signs or controls.
Rule 3.4.11 Landscaping
No landscaping required by the Plan shall
be removed, other than by necessary
trimming and pruning, to afford greater
visibility of any outdoor advertising.
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The proposed billboard will be 40m2 in
area and thus exceeds both the total
allowable signage for the site (14.5m2) and
the maximum area for an individual sign.
Restricted
Discretionary
The outdoor advertisement will have a
maximum height of 14.5m.
Restricted
Discretionary
The proposed advertisements will not be
illuminated by intermittent or flashing
lights.
Complies
The existing advertisements are not likely
to obscure or confuse the interpretation of
any traffic signs or controls.
Complies
No landscaping will be removed as a result
of this proposal.
Complies
April 2016
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Rules
Assessment
3.5 Outdoor Advertisements – Critical Standards
3.5.1 Relationship to the Site
(a) Central City Business Zone:
Any outdoor advertisement shall be The outdoor advertising billboard will
displayed on the building or site to which it display a combination of site and non-site
relates and shall only contain the name of related advertising.
the building or site, the names of the
owners, occupiers or tenants, and details
of the goods and services available from
the building or site.
3.5.3 Moving, flashing or retro-reflective
displays
No outdoor advertisement shall involve
any flashing or apparent movement of any
of its parts or messages. No outdoor
advertisement shall be finished in any
retro-reflective material.
The proposed advertisements will not
involve any flashing, moving or retroreflective parts.
Rule Status
Non-complying
Complies
Based on the assessment of the proposed development against the applicable rules in the City
Plan, the activity status of this application is Non-Complying.
4.2
Proposed Christchurch Replacement District Plan
It is noted that while Stages 1, 2 and 3 of the Proposed Christchurch Replacement District Plan
(pCRDP) have been notified, no decisions have been released with respect to section 13.14.7
Central City Signs. As such, there are no rules of the pCRDP relevant to the proposed billboard
that currently have legal effect pursuant to s86B of the Resource Management Act (RMA).
However, it is noted that under the proposed provisions for Central City Signs, Rule
13.14.7.2.2.4 (D4) states that billboards in all Central City Zones shall be considered a
Discretionary activity. Nevertheless, little weight can be given to this provision until a decision
is released on Chapter 13 of the pCRDP.
The Strategic Directions chapter of the pCRDP is operative. This chapter contains a series of
objectives that are discussed in more detail in Section 7, below.
5
Statutory Framework
5.1
Part 2 of the RMA
Part 2 of the RMA sets out the purpose and principles of the Act, being “to promote the
sustainable management of natural and physical resources” which is defined to mean:
“managing the use, development, and protection of natural and physical resources in
a way, or at a rate, which enables people and communities to provide for their social,
economic and cultural wellbeing and for their health and safety while –
(a)
Sustaining the potential of natural and physical resources (excluding minerals) to
meet the reasonably foreseeable needs of future generations; and
(b)
Safeguarding the life-supporting capacity of air, water, soil and ecosystems; and
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(c)
Avoiding, remedying or mitigating any adverse effects of activities on the
environment.”
Section 6 sets out matters of national importance, being the natural character of the coastal
environment, protection of outstanding natural features, protection of areas of significant
indigenous vegetation and habitats of indigenous fauna, maintenance and enhancement of
public access along coastal marine areas, lakes and rivers, and the relationship of Maori and
their culture and traditions. These matters will not be placed at risk by the proposal as the
application site does not contain any of the values within the scope of subsections 6(a) to (g) of
the RMA.
Section 7 requires particular regard to be had to ‘other matters.’ Of relevance to this application
are:
(b) the efficient use and development of natural and physical resources;
(c) the maintenance and enhancement of amenity values; and
(f) maintenance and enhancement of the quality of the environment;
When considered against the consented baseline which provides for a 40m2 static billboard to
be erected in the same position as the proposed electronic billboard it is considered that the
proposal will not result in any adverse effects on the amenity values and quality of the
environment of the application site.
Section 8 requires the principles of the Treaty of Waitangi to be taken into account. There are
also no known cultural values that need to be taken into account in respect of this proposal.
The assessment set out in this report (below) has shown that the potential for adverse effects
on the environment associated with the proposed activity will be less than minor, and relate
primarily to consideration of visual amenity. Overall, it is considered that the proposal is
consistent with the requirements of Part 2 of the RMA.
5.2
Section 104 RMA
Section 104 of the RMA provides the statutory requirements for the assessment of the
application and sets out those matters that the Council must have regard to when considering
the application. Subject to Part 2 of the RMA, it is considered that the relevant matters for the
assessment of this application include:
Any actual or potential effects on the environment of allowing the activity;
The relevant objectives, policies, rules and other provisions of the District Plan;
and
Any other matter that the Council considers relevant and reasonably necessary
to determine the application.
Section 104 (2) allows the Council when forming an opinion in relation to any actual or potential
effects on the environment of allowing the activity to disregard an adverse effects of the activity
on the environment if the District Plan permits an activity with those effects.
Section 104D sets out particular restrictions for non-complying activities, a consent authority
may grant a resource consent for a non-complying activity only if it is satisfied that either—
(a)
the adverse effects of the activity on the environment (other than any effect to which
section 104(3)(a)(ii) applies) will be minor; or
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(b)
the application is for an activity that will not be contrary to the objectives and policies
of—
(i) the relevant plan, if there is a plan but no proposed plan in respect of the activity; or
(ii) the relevant proposed plan, if there is a proposed plan but no relevant plan in respect
of the activity; or
(iii)
both the relevant plan and the relevant proposed plan, if there is both a plan
and a proposed plan in respect of the activity
Under Section 104B of the RMA the Council may grant or refuse an application for a noncomplying activity, and if it grants the application, may impose appropriate conditions in
accordance with section 108.
5.3
Section 104D Threshold Test
As the application has been assessed as a non-complying activity the provisions of s.104(D) of
the RMA are relevant. In this instance the application is considered below to satisfy both limbs
of the Threshold Test, being that the adverse effects on the environment will be less than minor
and that it is not contrary to the objectives and policies of the Operative City Plan and the pRDP.
As such, the application is eligible for approval under s.104 and s.104B
6
Assessment of Effects on the Environment
6.1
Overview
This assessment has been prepared in accordance with the requirements of Section 88 and the
Fourth Schedule of the Resource Management Act 1991. The relevant potential effects of the
proposed outdoor advertisements are visual effects, heritage effects and traffic safety. These
matters are considered in the assessment below:
6.2
Visual effects
The City Plan’s standards pertaining to the size and number of outdoor advertisements reflect
the relative sensitivity of the receiving environment and its ability to absorb any adverse visual
impacts. The purpose of the ‘area and number’, ‘height’ and ‘site relationship’ rules for outdoor
advertisements are generally related to visual impact and amenity, and they have the effect of
controlling the number of signs and their design and position within a site, throughout different
parts of the city.
It is recognised that the existing environment already provides for a 40m2 sign in this location,
which is authorised to display site related advertising. The proposed change to a digital display
will not increase the scale of advertisement. The potential effects of the proposal when
considered against the consented baseline therefore relate to the effects on visual amenity and
traffic safety arising from the change in the method of display and the authorisation to display
non-site related advertisement.
When considering visual effects, it is important to review the context in which the proposed
sign will be viewed. Despite the above non-compliances, it is considered that the proposed
digital billboard will not look out of place in the receiving environment given that it can largely
be absorbed as a result of its location, its immediate backdrop and the activities which typify
the surrounding area.
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It is considered that the proposed location for the sign will ensure that its view-shaft is
minimalised. The targeted viewing audience for the proposed billboard is pedestrians and
vehicles heading south-east on Victoria Street between Salisbury Street and Peterborough
Street. The predominant viewing audience is therefore transitory and where views are available
from stationary audiences, such as from nearby footpaths and car parks the billboards will be
seen as part of a wider busy urban outlook that includes various other signage. Furthermore,
for the most part, the display will not be visible from ground level on any of the surrounding
streets, other than Victoria Street. It is anticipated that the billboard will be visible at ground
level for approximately 160m to the north-west along Victoria Street between Salisbury and
Peterborough Streets. Beyond this point, the display is obscured as a result of the multi-storey
development at 76 Victoria Street and the angle at which the street veers. It is noted that the
proposed billboard will be partially visible between buildings and vegetation when heading east
on Salisbury Street for approximately 150m from the intersection with Victoria Street. However,
it is considered that the billboard will be largely obscured and will not be overtly visible from
the street scene, which minimises any potential effects associated with the display of digital,
non-site related advertisements.
Two multi-unit residential buildings exist approximately 50m to the north of the application
site, within the Central City Residential Zone aligning Salisbury Street. In considering the
consented baseline, the separating distances and the commercial character of the site, it is
anticipated that the proposed billboard will have a limited effect on the residential area.
Furthermore, the location of the proposed display ensures that it is angled away from the
residential units and is not obtrusive. Additionally, the sign’s automated lighting controls and
the fact that the billboard will only display static images, will ensure any effects of the display
in terms of light-spill will be less than minor for the occupants of the units.
The north-western façade of the existing building on the site provides the immediate backdrop
for the proposed sign. The wall is painted black and does not contain any architectural features
or additional signage (the existing sign will be removed should this proposal be granted
consent). It is anticipated that the proposed sign will assist in breaking up the blank façade and
the use of multiple display images will add visual interest to the otherwise plain wall. As a result,
the billboard will not look out of place attached to the façade and will have a positive impact
on the visual amenity of the building. It is noted that the proposed display will be located
approximately 1m below the roofline, ensuring the sign is not visible from any point to the south
of the existing building, which is consistent with the existing consent. The outcome of the
abovementioned factors in relation to the proposed digital sign and its immediate backdrop, is
that any potential visual effects as a result of the sign’s height are mitigated by the way in which
the billboard remains below the roofline of the building to which it will be attached.
Furthermore, the proposed sign is not considered to be visually out of character with the
surrounding environment when assessed against the context of general activity within the area.
Victoria Street has undergone a significant level of rebuild and recovery in recent years
following the Canterbury Earthquakes in 2010/2011. The area is now largely rebuilt and consists
predominantly of multi-storey commercial buildings aligning either side of Victoria Street, a
number of which contain food and beverage outlets at ground floor level. Signage is common
on Victoria Street and is anticipated by the City Plan within the Central City Business Zone.
Although it remains partially in a state of recovery, the street has become a hive of activity in
the past year as businesses begin to operate out of the newly established commercial buildings.
Traffic movements, street lights and traffic signals, as well as the adjacent Casino, associated
carpark, and a number of nearby late-night bars and restaurants all contribute to the creation
of a visually active environment. In this regard, it is considered that the billboard will not be
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contextually out of place with its surrounding environment. The illumination of the digital
display will be largely absorbed as a result of the existing light emitters (traffic lights, street
lights and vehicle lights) and will appear to blend into an already illuminated setting. Any visual
effects as a result of the transitioning images being displayed will be less than minor given the
extensive level of movement already existing in the receiving environment which will ensure
the images do not dominate the visual amenity of the area.
As a result of the above discussion, it is considered that the visual effects of the proposal will
be less than minor. The location of the proposed sign as well as its immediate backdrop and the
nature of the receiving environment will allow it to be readily absorbed with little impact on the
existing visual amenity of the area.
6.3
Heritage effects
The proposed billboard will be visible or partially visible from three heritage buildings: the
‘Victoria Mansions’ (Group 3 in the City Plan), the Jubilee Clock Tower (Group 2) and ‘Ironside
House’ (Group 4). It is considered that the separation distance between the heritage buildings
and the proposed sign, as well as the points from which the buildings will be most
predominantly viewed, will ensure that any adverse effects on heritage values are minimised.
The Victoria Mansions is the closest heritage building to the application site, existing
approximately 100m to the north-west. The Jubilee Clock Tower adjoins the northern boundary
of the Victoria Mansions, located on the corner of Montreal and Victoria Streets. Opposite these
sites, on the corner of Montreal and Salisbury Streets, is Ironside House.
It is not anticipated that the digital display will be obtrusively visible from any of the
aforementioned heritage sites. The sign will be at such a distance from the buildings that for
the most part, they will not share the same view shaft. Although, it is noted that in viewing the
Jubilee Clock Tower from the corner of Montreal and Salisbury Streets, the proposed sign will
be in the same view shaft (as can be seen in photo 3 of Appendix 3). However, the lighting
controls associated with the sign and the distance between the Tower and the application site
(approximately 120m) when combined with the consented baseline, will ensure the billboard
does not detract from the amenity value of the heritage structure.
The Victoria Mansions are located on the opposite side of Victoria Street to the application site,
and face the street scene in a northerly direction. Therefore, the building is most commonly
viewed from the street by looking south, and not south-east which would incorporate the
proposed sign into the view shaft. Additionally, the building is five-storeys and at an adequate
height to screen the billboard from view when viewing the building from Montreal Street.
Although the proposed sign will be partially visible from the Ironside House Montreal Street
frontage, it is not anticipated to be the main visual attraction. For the most part the Jubilee
Clock Tower will obscure the view of the proposed sign from the Montreal Street frontage and
will significantly reduce the visual impact of the sign. Ironside House and the proposed billboard
will not be viewed collectively from any point.
Given the separation distance between the three heritage buildings discussed and the location
of the proposed sign, it is considered that the sign will not be obtrusively visible or impact on
the visual amenity of the heritage sites beyond that anticipated by the consented baseline.
Additionally, the points from which the heritage sites are most commonly viewed ensure that
generally the sign and the heritage buildings will not be viewed collectively. For these reasons,
the potentially adverse effects of the proposed sign on heritage structures are considered to be
less than minor.
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6.4
Traffic safety
Victoria Street is classified as a ‘local’ road in the pCRDP and currently has a 30kmph speed limit
south of the Victoria – Montreal – Salisbury Street intersection. The low speed limit, in
combination with the elevation of the proposed sign will ensure that there will not be any
adverse effects on traffic safety for vehicles heading south east on Victoria Street as a result of
the proposal.
The proposed billboard will be located approximately 150m to the south-east of the
intersection of Montreal, Salisbury and Victoria Streets. As a result of existing buildings and
vegetation aligning Victoria Street, the visibility of the billboard from the intersection will be
largely obscured from traffic heading south-east towards the proposed sign. The display will be
partially visible from the intersection by traffic heading east on Salisbury Street. However, the
separation distance between the billboard and the intersection will ensure that there are no
traffic safety effects. The billboard will not be visible to traffic from the nearby intersection of
Peterborough and Victoria Streets.
Furthermore, it is noted that the findings of other TAR prepared for similar types of proposals
provide some generic guidance as to the potential traffic safety effects arising from digital
signage. In particular, it is noted that previous traffic advice1 states that while intuitively it might
seem that a variable image digital billboard has the potential to be more distracting than a static
billboard, there has been recent published research that indicates that billboard advertising,
including variable image digital billboards, do not create distractions of the nature necessary to
generate a traffic hazard.
In conclusion, the effects of the billboard on traffic safety will be negligible given the low speed
limit associated with Victoria Street, and the separation distance between the proposed
billboard and the intersection of Montreal, Salisbury and Victoria Streets.
6.5
Conclusion
On the basis of the preceding assessment, it is considered that the proposal will generate less
than minor adverse effects on the environment. It is considered that the proposed billboard will
not be visually obtrusive and will be absorbed into the receiving environment without creating
adverse visual amenity or traffic safety effects.
7
Objectives and Policies
7.1
Operative Christchurch City Plan
The objectives and policies of the Operative City Plan that are considered to be the most
relevance to the proposal are as follows:
Objective 4.4 aims to ensure that outdoor advertisements do not detract from amenity values,
have a detrimental impact upon natural and built heritage values or cause danger to public
safety. Associated Policy 4.4.1 sets out a range of criteria which reflect the assessment matters
contained in Volume 3, Part 10, Clause 3.6.2. Policy 4.4.2 addresses the potential adverse
effects of outdoor advertisements to ensure that the billboard does not compromise traffic,
pedestrian or cycle safety. Further, Policy 4.4.3 seeks to ensure that billboards do not detract
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Prepared by TDG in support of a s127 application recently lodged for the conversion of an existing billboard adjacent to a
roundabout at Christchurch International Airport
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from heritage values.
The significance of the effect of billboards on amenity values is stated as being dependent on
the nature of the outdoor advertisement itself and the character of the environment into which
it is to be located. In this case, the receiving environment contains a consented baseline which
provides for a 40m2 billboard in this location, therefore any additional effects beyond the
consented baseline are related to the display of non-site related advertisements and the
electronic displays. The surrounding area is characterised by commercial and retail activities,
and consequently advertising is already a component of the surrounding environment. Further,
the proposed billboard’s location will result in a confined view shaft, limiting its effects on the
surrounding area. The backdrop for the sign will be a black painted wall and it is considered that
this will assist in ensuring the billboard will blend in to its receiving environment.
With regard to effects on natural and built heritage, it is considered that any potential adverse
effects on the heritage listed Victoria Mansions, Jubilee Clock Tower and Ironside House,
beyond the consented baseline are mitigated by the separation distances from the billboard,
and its location. Viewing the signage in the context of modern buildings and existing signage
which are both common within the area, will allow the billboard to be more readily absorbed
into the receiving environment with limited effect on the visual amenity of the nearby heritage
buildings. Furthermore, the location of the proposed billboard will mean that the heritage
buildings and the sign will only be collectively viewed from the Victoria Street – Montreal Street
– Salisbury Street intersection, which exists approximately 150m to the north-west. These views
are partially obstructed by multi-storey buildings aligning Victoria Street and the angle at which
the views can be obtained.
Overall, taking into account the above factors, it is considered that the proposal is consistent
with the relevant objectives and policies of the Plan.
7.2
Proposed Christchurch Replacement District Plan
Stage 1 of the Proposed Christchurch Replacement District Plan was notified on 27 August 2014,
and while the rules do not yet have effect, regard must be had to the relevant objectives and
policies, albeit with very limited weight placed on these provisions apart from the Strategic
Directions Chapter that is now operative. In particular it is noted that the objectives and policies
relating to advertising forms part of Phase 3 of the District Plan Review that were publicly
notified on 25 July 2015. The objectives and policies relating to advertising therefore have very
limited legal effect.
Objective 3.3.5 and 3.3.6 seek to provide for a range of business opportunities and that the
recovery and stimulation of commercial activities occurs in manner that expedites recovery and
enables the rebuilding of existing business areas. It is considered that the proposed billboard
provides for economic activity.
Objective 3.3.7 seeks to provide for high quality urban environments and amenity value
outcomes. It is considered that the context and character of the surrounding environments will
absorb the proposed billboard without adverse effects on the amenity and design expectations
anticipated in the area.
Objective 13.14.7.1.1 aims to ensure signs contribute to the Central City’s vitality and recovery
by supporting businesses and communities, and do not compromise public safety, visual
amenity and the character of the surrounding area. Associated Policy 13.14.7.1.1.1 focuses on
maintaining appropriate built form and location of signs, whilst Policy 13.14.7.1.1.2 seeks to
ensure signage does not detract from neighbouring buildings. Additionally, Policy 13.14.7.1.1.3
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states that signs should not cause obstruction or distraction for motorists or pedestrians and
other road users.
It is considered that the proposed sign will support businesses and communities by providing
appropriate advertising in combination with community notices. Further, the sign will not
compromise public safety or detract from surrounding buildings. For these reasons, the
proposed sign is considered to be generally in keeping with the relevant objectives and policies
in the pCRDP.
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Other Matters
8.1
Precedent
Given the non-complying status of this application, it is appropriate to have regard to the issue
of precedent, as well as the effect of granting consent upon the integrity of the Plan and on
public confidence in its consistent administration.
It is considered that the integrity of the Plan is not challenged by this proposal and that there is
unlikely to be any significant precedent created for the following reasons:

Any adverse effects from the proposed billboard are considered to be less than minor
and are restricted to a localised area on Victoria Street. It has been concluded that the
proposal is not contrary to the objectives and policies of the Plan.

Digital billboards are, despite their non-complying status in the City Plan, a common
feature of Central City and beyond, and they are both nationally and internationally a
virtually universal and accepted advertising medium. The issue is properly one of site
suitability which is a matter of fact and degree to be determined in each case. In this
case, the site is not considered to be visually sensitive.
Overall, it is considered that there is unlikely to be any significant precedent effect created that
will undermine the environmental results anticipated for the Central City Business Zone.
8.2
Recovery Strategy for Greater Christchurch
The Recovery Strategy prepared by CERA under the Canterbury Earthquake Recovery Act
became operative on 1 June 2012. This is a statutory document that must be “read together
with, and forms part of” other relevant legislation within the greater Christchurch area. The City
and District Plans (and other statutory documents) must not be interpreted or applies in a way
that is inconsistent with the Recovery Strategy.
Section 04 of the Recovery Strategy identifies the vision for the recovery of Greater Christchurch
and supporting goals relating to the six components of recovery: leadership and integration,
economic recovery, social recovery, cultural recovery, built environment recovery and natural
environment recovery. It is considered that this application is consistent with the goals of the
Recovery Strategy which seek to facilitate the revitalisation of Christchurch as a prosperous
region for business, work and increased investment in new activities. Granting consent to this
application is not considered to be inconsistent with any of the priorities for recovery.
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Consultation/Notification
Under the provisions of the amended RMA there is now no presumption in favour of notification
(section 95A). The requirement for the Council to be “satisfied” that the effects “will be minor”
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before proceeding on a non-notified basis has been removed. Instead, public notification is
only required if the Council “decides” that the activity:
... will have or is likely to have adverse effects on the environment that are more than
minor.
The nature of the proposal and resulting non-compliance with the Christchurch City Plan are
such that it is considered that the effects of the proposal will be less than minor and as such no
effected parties have been identified.
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Conditions of Consent
Should the application for a resource consent to allow for a digital sign at 50 Victoria Street be
granted, the applicant offers the following conditions:
1. Only still images shall be displayed on the sign. There shall be no transitions between still
images apart from either:
a. An immediate change;
b. A cross-dissolve between images of between 0.3 and 1 second.
2. The sign shall not contain any of the following on the display screen:
a. Live broadcast or pre-recorded video;
b. Movement or animation of the images;
c. Flashing images or any retro-reflective material;
d. A split sign (two adverts on the sign at the same time).
3. There shall be no sound associated with the sign and no sound equipment is to be installed
as part of the screen.
4. Any content on the screen shall be consistent with the guidelines contained in the NZTA
Traffic Control Devices Manual, Part 3, Advertising Signs.
5. The maximum digital sign luminance shall be 500 cd/m2 during hours of darkness and 5,000
cd/m2 during daylight hours.
6. Luminance of the sign shall be audited by an appropriately qualified lighting
engineer/designer within 7 days of installation and operation of the sign to confirm
maximum luminance levels in condition 5 are not being exceeded. Confirmation of this is to
be forwarded to the Resource Consents Manager, Christchurch City Council within 48 hours
of the audit being complete.
7. The digital LED screen shall incorporate lighting controls to adjust brightness in line with
ambient light levels.
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Conclusion
The proposed development is a non-complying activity under the City Plan, due to the third
party nature of the proposed outdoor advertising and the ‘site relationship’ rule that applies to
the Central City Business Zone. On the basis that the proposal is compatible with the existing
level of amenity in the surrounding locality of the site and that it will not interfere with traffic
safety, any adverse environmental effects are considered to be less than minor. For these
reasons it is also considered that the proposal is not inconsistent with the objectives and
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policies of the City Plan. The proposal therefore meets both legs of the s.104D ‘threshold test’
and is appropriate under the wider assessment required under s.104.
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APPENDIX 1
Locality Plan
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APPENDIX 2
Certificate of Title
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APPENDIX 3
Photographs of site
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Photo 1: The north-western wall of the existing building to which the proposed billboard
will be attached
Photo 2: The existing building at 50 Victoria Street, facing east.
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Application site
Photo 3: View of Victoria Street, facing south-east, taken from the corner of Montreal and
Salisbury Streets. The Jubilee Clock Tower and Victoria Mansions can be seen in the
foreground
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APPENDIX 4
Resource Consent Decision RMA92026891
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COMPUTER FREEHOLD REGISTER
UNDER LAND TRANSFER ACT 1952
Guaranteed Search Copy issued under Section 172A
of the Land Transfer Act 1952
Identifier
610784
Land Registration District Canterbury
13 May 2013
Date Issued
Prior References
CB28A/256
Fee Simple
Estate
473 square metres more or less
Area
Legal Description Lot 1 Deposited Plan 462635
Proprietors
Victoria 50 Limited
Interests
348905 Document imposing Building Line Restriction
9502980.2 Mortgage to ANZ Bank New Zealand Limited - 30.8.2013 at 3:42 pm
Transaction Id
Client Reference
Guaranteed Search Copy Dated 13/04/16 12:28 pm, Page 1 of 2
QuickMap
Register Only
610784
Identifier
Transaction Id
Client Reference
Guaranteed Search Copy Dated 13/04/16 12:28 pm, Page 2 of 2
QuickMap
Register Only
13 May 2016
Ruth Markham-Short
Christchurch City Council
PO Box 73014
CHRISTCHURCH
Sent by email to:
[email protected]
Dear Ruth,
RE:
RESOURCE CONSENT RMA92033100, 50 VICTORIA STREET
Further to your request for further information dated 3rd May, I set out the Applicant’s response as
follows:
1. To assess the visual impact of the sign, please provide:
a) Plans/ elevations/ details of the proposed sign, including its exact location on the building
and the thickness and framing of the LED sign itself;
The proposed sign is to be located in the same position on the building as the consented sign as per
the approved plans and elevations under RMA92026891. It is important to emphasise that in terms
of plans and elevations no changes are proposed from the consented sign – the only change sought
through this consent is to enable the content of the sign to not be site-related, and that the sign
will have a LED display. The thickness of the sign is considered to be visually indiscernible in the
context of a town centre environment (and likewise will be indiscernible on the approved 1:100 @
A2 scale plans) and is anticipated to be less than 30cm thicker than a standard non-LED billboard
structure. If need be a condition could be placed on the consent limiting the thickness of the sign
to less than 40cm in total.
b) Photo simulations of the sign to show how it will appear on the building and to better
understand where it will be visible from (acknowledging this is discussed in the text of the
AEE but has not been shown in a visual representation, i.e. through photos depicting the
billboard at various locations and ideally a map showing the distance of likely maximum
visibility), particularly view shafts from public streets and spaces and the Central City
Residential Zone boundaries;
It is again emphasised that the proposed sign is no different in size or location than the already
approved sign. The visibility and visual effects of the consented sign have already been fully
assessed as part of the previous consent, including consideration of viewpoints. The key resource
consent matter is not therefore where the sign can be seen from, but rather is simply the effects of
the change in content from site-related to no longer being site-related. The approved plans clearly
show the size and location of the sign on the blank side wall of the building. It is considered that
photo simulations will not assist in understanding the proposal any more than the existing approved
elevation plans or better inform an assessment that has already been able to be adequately
T: 03 377 9829 E: [email protected] W: planzconsultants.co.nz A: 124 Peterborough St PO Box 1845 Christchurch 8140 New Zealand
undertaken through the previous consent. I would be more than happy to accompany you on a site
visit where the side of the building can be viewed from various points and the elevation plans read.
c) An assessment of the relationship between the sign and the building, including the building’s
architectural features and visual amenity;
As set out in the application, the sign is to be located on a blank side wall. This side wall is devoid
of any architectural features and does not contain any doors, windows or other openings.
Architectural detailing is limited to subtle variation in pre-cast concrete lines and the ‘Kingspan’
cladding system along the upper third of the elevation. As such, the existing approved sign
represents in its simplest form a rectangle placed in the upper quarter of a blank side wall than
itself comprises a larger rectangle form. The approved sign does not extend above the parapet and
instead is set both beneath the parapet line and in from the western (road) boundary so that the
building wall ‘frames’ the sign. The immediately adjacent site has been cleared of previous buildings
following extensive earthquake damage and is currently comprised of a formed gravel carpark. At
some point in the future it is anticipated that this adjacent site will be redeveloped, with the
potential for a new building to be erected immediately adjacent to the application site side wall,
hence the absence of windows or other features on this side wall where there is a strong likelihood
of future built-out occurring. Both the consented sign and the proposed non site-related sign
constitute a transitional use of this side wall until such time as the adjacent site redevelops.
d) An analysis of the surface brightness or luminance of the existing sign and the contrast with
the luminance of the wall on which it is placed and the luminance of the proposed sign and
its contrast. This contrast should be analysed both during the daytime and at night and will
assist in understanding the appropriateness of the luminance levels proposed in condition 5.
Digital LED billboards are becoming relatively common in Christchurch (and indeed across all the
major urban centres in New Zealand). There is now a well-established suite of conditions that are
purpose-designed for managing luminance to appropriate levels in urban environments. The
application site is located within a City Centre Commercial Zone and is likewise located adjacent to
the road reserve with associated high levels of ambient lighting at night-time. The following
conditions are therefore offered to control luminance. These conditions expand beyond just those
already offered in Condition 5 and are consistent with conditions approved by Council in relation
to other digital billboards in the City’s commercial zones as effective methods for managing any
potential effects of luminance.
Condition 1: The maximum digital sign luminance shall be 500 cd/m2 during hours of darkness and
5,000 cd/m2 during daylight hours;
Condition 2: Luminance of the sign shall be audited by an appropriately qualified lighting designer/
engineer within 7 days of installation and operation of the sign to confirm the maximum luminance
levels in condition 1 are not being exceeded. Confirmation of this is to be forwarded to the Resource
Consents Manager, Christchurch City Council within 48 hours of the audit being completed;
Condition 3: The LED screen shall incorporate lighting control to adjust brightness in line with
ambient light levels.
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2. To assess the impact on traffic safety, please provide the image duration time.
As with luminance, a standard set of conditions for managing effects of LED displays on traffic safety
are now well established. As set out in the application, the site is located mid-block on a straight
section of road with good sight-lines in both directions. The proposed sign will not obscure or
distract from traffic signals given its location on the side of a building in a mid-block location. The
following amendment to Condition 1 offered in the application is set out below to clarify the
duration time, along with Condition 2 which is reiterated in terms of its effectiveness in managing
traffic safety risk:
Condition 1: Only still images shall be displayed on the sign with a minimum duration of 8 seconds
per image. There shall be no transitions between still images apart from either:
a. An immediate change;
b. A cross-dissolve between images of a maximum of 0.5 second;
Condition 2: The sign shall not contain any of the following on the display screen:
a. Live broadcast or pre-recorded video;
b. Movement or animation of the images;
c. Flashing images or any retro-reflective material;
d. A split sign (two adverts on the sign at the same time).
If you have any queries regarding the above, or would like to arrange a time for a site visit to
consider visibility please do not hesitate to get in contact with me.
Yours faithfully
PLANZ CONSULTANTS LTD
Jonathan Clease
Associate and Urban Designer
DDI:
Email:
03 964 4630
[email protected]
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