before a board of inquiry peka peka to north Ōtaki expresswayproposal · 2019. 4. 6. · peka peka...

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BEFORE A BOARD OF INQUIRYPEKA PEKA TO NORTH ŌTAKI EXPRESSWAY PROPOSAL

UNDER the Resource Management Act 1991

IN THE MATTER OF applications for resource consents and a notice of requirement in relation to the Peka Peka to North Ōtaki Expressway Proposal

BY New Zealand Transport Agency and KiwiRail

STATEMENT OF EVIDENCE OF JULIA ANNE WILLIAMS ON BEHALF OF THE KĀPITI COAST DISTRICT COUNCIL

Landscape and visual effects and urban design

DATE: 9 August 2013

Barristers & Solicitors

D J S Laing / M G ConwayTelephone: +64-4-499 4599Facsimile: +64-4-472 6986E-mail: [email protected] SX11174PO Box 2402Wellington

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INTRODUCTION

1. My full name is Julia Anne Williams.

2. I am a landscape architect in private practice, and a director of Drakeford Williams

Limited, Landscape Architects. I am a Fellow of the New Zealand Institute of

Landscape Architects (NZILA) and hold current professional registration. I am also a

member of the NZILA Accreditation Panel. I have over 30 years of experience as a

landscape architect in design, assessment and landscape development projects.

3. I hold a Bachelor of Architecture degree (Auckland University), a Postgraduate Diploma

in Landscape Architecture (Lincoln College) and an Advanced Certificate in Tertiary

Teaching (Wellington Polytechnic). I am a current certificate holder in the ‘Making Good

Decisions’ Programme for Resource Management Act decision-makers.

4. In my professional capacity I have been involved in a number of landscape

assessments, site planning, and landscape management and strategy reports. I have

prepared and presented landscape expert witness evidence at planning hearings, the

Environment Court and a Board of Inquiry on behalf of a number of clients.

5. Projects of relevance I have been involved in include:

(a) Mackays to Peka Peka Expressway Proposal (2012), where I presented

evidence to the Board for Kāpiti Coast District Council;

(b) Turitea Wind Farm Proposal (2009), where I prepared a section 42A report for

the Board of Inquiry;

(c) Horowhenua District Council Plan Change 22: Outstanding Natural

Landscapes and Features, where I was employed as a Hearing

Commissioner;

(d) Porirua City Council Plan Change 7 (Windfarms) appeal where I presented

evidence to the Environment Court for Porirua City Council; and

(e) Western Corridor Transportation Study where I worked in collaboration with

another landscape architect, Linda Kerkmeester, undertaking a landscape

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assessment and review of the Western Corridor and Transmission Gully

routes.

6. My involvement to date in the proposed Peka Peka to North Ōtaki Expressway project

(Expressway) has involved: assisting the Kāpiti Coast District Council (Council) with

its submission and pre-conferencing with New Zealand Transport Agency (NZTA)

experts Mr David McKenzie (Landscape and Visual) and Mr Bruce Curtain (Urban

Design). I am familiar with the area that the Expressway covers and visited the site of

the proposed Expressway on 20 May 2013 and again on 17 July 2013.

7. I am authorised by the Council to present this evidence on its behalf.

8. I have read and am familiar with the Code of Conduct for Expert Witnesses in the

Environment Court Practice Note 2011. I agree to comply with that Code. Other than

where I state that I am relying on the advice of another person, this evidence is within

my area of expertise. I have not omitted to consider material facts known to me that

might alter or detract from the opinions that I express. In addition, as a registered

landscape architect I respect and am bound by the Constitution, Code of Ethics and

Code of Conduct of the NZILA.

SCOPE OF EVIDENCE

9. My evidence will address the following matters relating to the potential landscape, visual

and urban design impacts of the Expressway:

(a) The Effects of the Expressway and the width of the transport corridor;

(b) Effects on landscape and amenity values of waterways;

(c) Effects on landscape and amenity values of Pare-o-Matangi Reserve;

(d) Design detail and quality assurance;

(e) Otaki Gateways and signage; and

(f) Design and connectivity of local road bridges.

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10. In preparing my evidence I have read the evidence of Mr McKenzie and Mr Curtain and

their respective Technical Reports as provided in the Assessment of Environmental

Effects (AEE). I have also reviewed the Technical Reports on terrestrial ecology,

proposed conditions, planning, social effects and project design and consultation where

they are relevant to landscape, visual and urban design issues or the mitigation of

effects on these issues, and Ms Beals’ evidence including updated proposed conditions.

I have also reviewed the Designation Conditions produced in the Decision for the

MacKays to Peka Peka Expressway Project.

EXECUTIVE SUMMARY

11. The location of the selected Expressway route has avoided a number of potential

adverse effects that would arise had a greenfields route been selected, and avoids

effects on the wider landscape context. However the scale of the proposed transport

corridor is very different from the scale of the existing State Highway 1 (existing SH1)

road and railway, or a new Expressway alone.

12. It is my opinion that the cumulative landscape, visual and amenity effects of the

proposal extend across the wider transport corridor of the Expressway and SH1 and

into the adjoining landscape. Restricting planting and noise reduction structures to the

areas within the designation limits the effectiveness of the proposed Urban Landscape

Design Framework (ULDF) principles and the subsequent mitigation of effects.

13. There are sites outside the Expressway designation where there are opportunities for

further meaningful planting to screen views and reinstate local vegetation and land use

patterns. In addition, for a number of rural properties to the east of the Expressway, well

designed mounding and planting within the property may mitigate a range of amenity

effects with the additional benefit of creating localised outdoor acoustic screening.

14. The application for this proposal has been made on the basis that greater detail about

the Expressway will be provided at some later time. For this reason, the detail on

proposed mitigation in the AEE is indicative only and the effectiveness of the mitigation

is heavily reliant on adherence to principles outlined in the ULDF.

15. Unlike the MacKays to Peka Peka Expressway proposal, where a relatively high level of

implementation detail was provided, the draft Landscape Plan (LP) and Designation

Conditions are generic. They make no reference to the requirements of the specific

route landscapes and community of interest and there is currently no opportunity for the

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Council to certify the LP, the document that provides assurance that the proposed

landscape works are fit for purpose and will continue to mitigate landscape and visual

effects on an on-going basis.

16. The Kāpiti Expressway may be constructed in multiple parts but when completed will be

experienced as one road, extending from MacKays Crossing through to Peka Peka

through a sequence of towns and landscapes. In my opinion there should be a

consistent approach to mitigation for the entire length of the Expressway in terms of

consultation, quality assurance and specification, particularly for areas that the Council

considers to require particular attention at a site specific management level.

THE EFFECTS OF THE EXPRESSWAY AND THE WIDTH OF THE TRANSPORT CORRIDOR

17. The Landscape and Visual Assessment states:1

“The main measure already incorporated into the project design in order to avoid,

remedy or mitigate potential adverse effects is that the Expressway ‘sits’ within or

immediately beside the existing dual road and rail corridor through the local

landscape. This eliminates many potential adverse landscape effects that would

arise if a ‘greenfields’ route had been chosen.”

18. Mr McKenzie explores this statement more fully in his evidence:2

“…the Expressway route follows the existing transportation corridor from north of

Ōtaki through to the Peka Peka area in the south, which means that the

landscape and visual effects of the Project will be concentrated predominantly on

the east side of the existing corridor, but will not affect parts of the broader Ōtaki

and Hautere Plains landscape that are not already affected by the proximity of

SH1 or the NIMT railway.”

19. I agree that the location of the selected Expressway route has avoided a number of

potential adverse effects that would arise had a greenfields route been selected, and

avoids effects on the wider landscape context. However siting the Expressway

alongside an existing road and rail corridor will create a different range of effects on the

local landscape. I discuss these effects under the headings below.

1

Landscape and Visual Assessment 1.4, page 32

Mr David McKenzie Statement of Evidence part paragraph 116

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Visual effects

20. The final NZTA Road layout plans include the 4–lane Expressway, the North Island

Main Trunk line (NIMT) plus an allowance for a second set of tracks in order to

safeguard the future double tracking of the NIMT, and the 2-lane existing SH1. In a

number of locations along the route, additional new local roads are proposed to provide

access to properties to the east and west of the Expressway and the final corridor is

over 140 metres wide. In short, the proposal creates a transport landscape that has a

much larger scale than the existing road and rail corridor.

21. This is particularly evident in the more open and rural landscape from the south Ōtaki

interchange through to Mary Crest where the Expressway is at grade or slightly

elevated above the existing SH1. For five kilometres, the full width of transport corridor

will be visible from the Expressway, from the local arterial route (the existing SH1), from

the NIMT for travellers on the train and potentially from a number of properties either

side of the corridor.

22. The designation extends west of the Expressway up to the NIMT rail corridor, stopping

short of the railway to allow for a future second rail line. The designation extends east of

the Expressway including an allowance for water run-off swale, and in some areas

along the route, a new local road. The topography and the narrowness of the

designation limit opportunities to screen the Expressway in views from the east and in

particular, from the west.

Landscape effects

23. Changed land use patterns are expected when a new piece of transport infrastructure is

inserted into an existing largely rural landscape. The ULDF acknowledges that the

Expressway will require the removal of localised vegetation clusters. It puts forward

design objectives to both minimise the removal of native vegetation where possible and

to mitigate any vegetation removal by planting and building on remaining remnant

vegetation clusters where practicable.

24. The changes to the local landscape character from the removal of vegetation are

significant. These localised small stands of trees reflect historic patterns of settlement

and land use. Remnant specimen totara in particular are under-rated in terms of their

bio-physical, landscape character and associative values. The evidence of Ms Shona

Myers, terrestrial ecologist, notes that the Expressway will result in the loss of remnants

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of native forest including over 100 mature native trees (mainly totara trees) and

fragments of lowland indigenous forest on alluvial plains, which is a nationally under-

represented type.

25. The AEE tends to be dismissive of the values of these individual trees, noting that “the

long term preservation of these stands of native trees and their resultant natural

character is dependent on the stands being self-sustaining and that is highly unlikely

relative to current farming practices.”3. No replacement or trade-off mechanisms have

been offered in the Designation Conditions for these trees.

26. The Expressway also cuts the pattern of the landscape at an individual property level,

slicing through shelterbelts, taking the edge off small stands of bush and removing

individual totara trees. The impact of the Expressway on the ground is not necessarily

evident in the landscape plans but can be seen when the Expressway is viewed more

closely, as illustrated in the following sequence of figures.

i) Existing landuse and vegetation patterns along SH1, east of Te Waka Road. Note the

individual trees (mainly totara) scattered across the site in the top left corner of the aerial.

ii) Overlay of Expressway route on existing landscape.

3

Landscape and Visual AEE, 6.3.1 Vegetation page 57

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iii) New edge planting (bright green) is of individual trees rather than a cohesive area of bush. Note the remnant paddock (red shading) alongside Expressway.

Figure 1: Changes to existing landuse and vegetation patterns along SH1, east of Te Waka Road

27. The vegetation shown on the landscape plans, and illustrated in these figures,

effectively replants the exposed edge of bush remnants and stands of trees, rather than

‘planting and building on remaining remnant vegetation clusters’. It is my opinion that

this narrow border of planting is not adequate in terms of mitigating the effects of the

Expressway on the landscape character of the adjoining land, and that more meaningful

planting that extends outside the designation to link with bush remnants and individual

trees is required to reinstate vegetation patterns and restore landscape values.

28. The Expressway also changes existing land patterns by creating a number of

landlocked sites. Mr Tony Coulman’s response to the Council’s submission on this

issue focusses on NZTA’s processes for reinstating vehicle access from private

properties onto the existing SH1. However from a landscape perspective, the issue is

less about vehicle access than the impact of the Expressway's location on existing land

use where pockets of land are either captured within the designation or landlocked

between the designation and an existing fixed land use such as an area of bush or the

NIMT line. New access may be established but potentially the sites would no longer be

fit for purpose in terms of their existing use or suited to an economic rural activity. This

is illustrated by the following figures (and Figure 1iii) above):

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Figure 2: Site south of Old Hautere Road

Land (red shading) located outside the designation, now a remnant paddock.

Figure 3: Te Horo bridge

Landlocked site (red shading), located within the designation.

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Figure 4: Ōtaki River

Site (red shading) located within the designation bounded by the Expressway, stopbank

and Winstone site.

Figure 5: South of Waitohu Stream

Land (red shading) located partly within the designation, bounded by the NIMT rail line,

Waitohu Stream and the Expressway. There is no obvious access into the site.

29. It is my opinion that the landlocked sites, particularly those within the designation,

provide an opportunity for mitigation of landscape and visual effects, with potential for

an extension of wetland and riparian plantings, and reinstatement of native forest cover.

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Amenity effects west of Expressway

30. Views, particularly from locations west of the Expressway, have the potential to extend

over the full width of the corridor. Along Te Horo straight residents and people travelling

on the local arterial route are physically separated from the Expressway with views to

the 4-lane carriageway partially screened by the rail embankment. However the

Expressway traffic, guardrails, the movement of the traffic, and car lights at night will still

be visible. Drivers will be aware that although they are on a local road, they are driving

within a much larger transportation environment. Local residents, even those who have

vegetation within their property that screens views to the east, will be made aware of

the Expressway and wider transport corridor as they exit their property.

Amenity effects east of Expressway

31. A number of rural properties east of the designation, particularly (but not exclusively)

those south of Ōtaki River, are adversely affected by the proximity of the Expressway.

Submitters4

note the loss of amenity values in terms of noise, removal of shelter belts

and consequent changes to the microclimate around the property such as increasing

salt and wind damage, loss of established plantings of orchard trees and amenity trees

and the impact of car lights at night. As submitted by Alliance for a Sustainable Kāpiti

“property owners alongside the proposed route have paid a premium for a high quality

environment”.5

32. At this level of design, there has been no assessment of effects on the amenity of

residents either on a property by property basis or as clusters of properties such as

those between School and Gear Roads, apart from an assessment of noise effects for

individual dwellings.

33. In the matter of noise, Dr Chiles states in his evidence at paragraph 60 that there are

increases in road-traffic noise predicted for a small number of houses on Old Hautere

Road, School Road and Gear Road that are relatively close to the new Expressway. He

notes that one house requires direct mitigation but noise levels at other dwellings

“remain within reasonable limits that should not interfere with normal domestic activity.”

34. The designation boundary to the east of the Expressway appears to be quite narrow. I

understand that there may be a number of reasons for this, not the least being

4

Review of listed submissions in EPA Summary of Submissions 7.9 Landscape, visual and amenity impacts. 5

Submission 102898, paragraph 7.

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minimising the impacts of property acquisition on affected landowners. However the

limited land available for planting, bunds or noise structures makes it difficult to find

design solutions that mitigate visual, noise and amenity effects for affected residents

without compromising road users’ views to the surrounding rural landscape and the

distant Tararua Ranges. For example, a 3m high wall at the edge of the Expressway

may mitigate noise for residents to the east but will have limited success mitigating the

wind damage created by the removal of shelterbelts and will create monotonous views

for drivers.

35. However outside the designation, well designed mounding and planting within the

property of an affected resident may mitigate a range of amenity effects with the

potential to create some localised outdoor acoustic screening, reduce noise levels

inside the house and provide shelter and visual screening for outdoor living areas.

36. It is my opinion that the effects on the amenity of a number of rural properties,

particularly with regard to outdoor living and garden areas within the curtilage cannot be

mitigated within the proposed designation but there are opportunities to mitigate effects

outside the designation that would provide additional benefits in terms of acoustic

screening. This may be completed on an individual property basis or in consideration of

a cluster of properties in order to achieve a more integrated design that mitigates a

range of effects such as the restoration of landscape character across the wider

landscape context.

Cumulative effects

37. In the matter of the widening of the transport corridor, the AEE states:6

“The visual aspect of the Expressway passing through the northern section of the

‘Te Horo Straight’ that will be most obvious will be the doubling in width of the

overall transport corridor. Placing the further four lanes of the Expressway will

directly affect the existing landcover and landuse on the east side of the NIMT

railway and it is the visual aspects of these changes that will be most noticeable,

along with seeing two new ‘strips’ of sealed carriageway. This will have a major

visual effect and also a cumulative effect. This combined effect will be

moderated, to a degree, in that the new visual ‘lines’ of roading can readily be

integrated in a flat landscape that already contains two obvious sets of transport

‘lines’."

6

Landscape and Visual AEE page 49

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38. While I agree that the new visual ‘lines’ of roading can be integrated into a flat

landscape, I do not agree that this mitigates the visibility of the Expressway. The 4-lane

Expressway structure includes the fill slopes that support the carriageway, guard rails

and traffic sign supports. These elements will be visible as will the vehicles travelling on

the Expressway and vehicle lights at night.

39. In addition, as I have discussed, the scale of the proposed transport corridor is very

different from the scale of the existing SH1 road and NIMT railway, or a new

Expressway alone. Running these roads in parallel and including associated run-off

swales, new local roads and the allowance for double tracking more than doubles the

width of the transport corridor.

40. A stated design objective for this proposal is to ensure that the project footprint is kept

to the minimum practicable. The narrow designation allows minimal opportunities to

reinstate land cover and local character. The proposed plantings on small sections

alongside the Expressway and in some areas alongside the local arterial route are

linear and on average about 20m wide, enough for three rows of mature trees but

insufficient to mitigate the visual effects of the proposal or the loss of landscape

character in the form of established trees and bush along the edge of the existing SH1

that will be removed as part of the Expressway project. As a consequence, if mitigation

is restricted to areas within the designation as appears to be intended, there are limited

opportunities to screen or mitigate the scale of the Expressway or to create a landscape

that is sympathetic to local landform, landuse and landcover.


proposal extend across the wider transport corridor of the Expressway and the existing

SH1 and into the adjoining landscape. Limiting planting and noise reduction structures

to the areas within the designation limits the effectiveness of the proposed ULDF

principles in their ability to mitigate effects.

42. The ULDF notes that "many of the urban design benefits of the project will be realised

as improved environments for urban areas as part of the SH1 revocation project". The

change in use from a State Highway to a local arterial road may provide an opportunity

for reducing the width of the road corridor and allow for bunding or planting of sufficient

scale to mitigate some of the landscape and visual effects I have described. However

one cannot rely on the broad principles outlined in the ULDF to be implemented under a

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separate revocation process at some future point in time to successfully mitigate the

effects of the proposal that are outlined in this Application.

43. For this project, there is additional space for mitigation to the west of the designation

along Te Horo straight where there is a variable albeit relatively narrow strip of land

between the rail corridor and the edge of the existing SH1, as illustrated below in Figure

6. This space provides opportunities for planting that will filter views to the Expressway

and mitigate the scale of the wider transport corridor. An example of the suitability of

mitigation of this type can be seen opposite the Red House Café at Te Horo where, as

described by Mr McKenzie, “a dense stand of tree and shrub vegetation obscures the

view to the NIMT railway; this will also screen the Expressway.”7

44. The downgrading of the existing SH1 to a local arterial road may also create

opportunities to reduce the width of the carriageway, with potential for further planting of

larger trees that will break up the expanse of the transport corridor and partially screen

views from the road and properties west of the Expressway.

Figure 6: Cross section 8 of Road, Drawing 5/2664/1/6504

Red shading denotes potential area for additional planting outside the Expressway

designation.

45. Accordingly I recommend that:

(a) additional landscape mitigation is provided outside the Expressway

designation boundary in the area of Crown land to the west of the rail corridor

from the south Ōtaki interchange through to Mary Crest. This may be either

within an extension to the proposed designation boundary, within the existing

SH 1 designation or as part of the revocation process where there is potential

to reduce the width of the carriageway;

7

Evidence Mr McKenzie, part paragraph 125.

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(b) adverse effects on amenity for property owners adjoining the eastern

designation boundary from the south Ōtaki interchange through to Mary Crest

are identified and a wider range of mitigation options including mitigation

outside the currently proposed designation boundary are consulted on with the

affected owners, both individually and in local groups;

(c) the LP sets out a process to clarify how landlocked sites within the designation

will be used and maintained;

(d) the LP sets out a process to identify remnant or orphan sites outside the

designation that require more detailed design and consultation with the

associated landowners;

(e) the LP requires the Project Landscape Architect to liaise with the Project

Ecologist on appropriate mitigation, enhancement or restoration of affected

areas of native vegetation or individual specimen native trees outside the

designation; and

(f) a condition is made that gives the Council assurance that further mitigation will

be considered in the planning for the future revocation of the existing SH1 to a

local arterial road.

EFFECTS ON LANDSCAPE AND AMENITY VALUES OF WATERWAYS

46. As described in the AEE, the Expressway traverses the Ōtaki Coastal Plain that lies

between the Tararua Ranges to the east and the coast to the west. It crosses a range of

small, medium and large waterways including the Ōtaki River and its associated

floodplain.

47. While none of the watercourses in the Landscape and Visual Assessment are described

as having high natural character, they are significant to the local community. The

Greater Ōtaki Community Freshwater Vision details how the community values these

waterways and wishes to see them protected and maintained for future generations.8

The Ōtaki River and the Waitohu Stream are identified as the most significant water

bodies but it is clear that all waterways have meaning for the community whether they

are natural streams, managed to provide flood protection or highly modified drains.

8

KCDC Greater Ōtaki Community Freshwater Vision November 2006

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48. Given the importance the community and Council place on streams and rivers,

landscape plans need to demonstrate that landscape values will be enhanced by

creating a high quality natural environment where the route crosses waterways. This

requires an integrated solution that looks at restoration planting in conjunction with

mitigation for underbridge areas and facilitating connections to the existing and future

cycleway/walkway/bridleway (CWB) network.

49. I have been involved in the certification process for the MacKays to Peka Peka

Expressway Management Plans. Early engagement with the Council has resulted in

reduced risks for NZTA in terms of timeframes and certainty of certification.

50. I therefore recommend that:

(a) NZTA consults with the Council prior to design commencing on the Ōtaki River

corridor and Waitohu Stream corridor, with continuing engagement throughout

the design and documentation process; and

(b) specific reference is made in the LP to earthworks and planting

implementation methodology and monitoring where the Expressway crosses

rivers, streams and wetlands.

EFFECTS ON THE LANDSCAPE AND AMENITY VALUES OF PARE-O-MATANGI RESERVE

51. It is generally agreed by both the Applicant and submitters that Pare-O-Matangi

Reserve has strong community, cultural and ecological values. The Expressway Project

in this area includes the Expressway itself, a relocated NIMT line and the abutments for

the Rahui Road Bridge. These would remove over half the land area of the reserve

including established vegetation, remove the main entry and require additional

culverting of the Mangapouri Stream. Mr McKenzie acknowledges that these landscape

and visual effects are “relatively significant”.9

52. The landscape plans propose ‘like-for-like’ mitigation in the form of incorporating an

adjacent block of land into the reserve. Mr McKenzie notes at paragraph 80 of his

evidence that “While this would do little to compensate for the loss of the 'horse

paddock' open space or the established house sections that front onto Rahui Road, it

would create a connected passive reserve space that focuses on Mangapouri Stream.”

9

Mr McKenzie evidence para 76.

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53. I concur that the addition of the L-shaped block of motel-owned land would provide

mitigation in the form of pleasant recreational space, a new reserve entry and a place to

relocate a number of established trees that were planted by the community. It is my

opinion that the value of the proposal to add the L-shaped block of motel-owned land

lies in the location of the land adjacent to the Reserve and its ability to make a

meaningful contribution to the reserve landscape and the aims of its ‘caretakers’, the

Keep Ōtaki Beautiful group.

54. Mr Curtain in his evidence at paragraph 134 states “I note in particular that Keep Ōtaki

Beautiful, the group largely responsible for the original development of the reserve, has

acknowledged the positive approach of the NZTA and accepted the proposed offset

mitigation as appropriate mitigation.”

55. At the time this evidence was written, no formal agreement had been reached on the

purchase of the site. It is my opinion that without the addition of this specific piece of

land, the form and functionality of the reserve is compromised and the adverse

landscape and visual effects are likely to be significant.

56. I recommend that:

(a) the addition of the L-shaped block of land to Pare-O-Matangi Reserve is

formalised in the consent conditions;

(b) a condition is added that provides for the relocation of specimen trees (which

have been identified by the Keep Ōtaki Beautiful group and noted on a site

plan). Furthermore, as transplantation cannot be guaranteed to have a 100%

success rate, the condition should require that additional specimen trees are

provided for Keep Ōtaki Beautiful to plant, at the rate of one additional large

grade plant to match each tree to be relocated; and

(c) a condition is added that ensures the additional culverting of the Mangapouri

Stream is undertaken only after consultation with the Council, Keep Ōtaki

Beautiful and the community in order that the effects of culverting are

appropriately mitigated.

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DESIGN DETAIL AND QUALITY ASSURANCE

57. Unlike the MacKays to Peka Peka Expressway proposal where a relatively high level of

design and implementation detail was provided, the application for this proposal has

been made under a planning process where greater detail of the Expressway will be

provided at some later time. For this reason the detail on proposed mitigation in the

AEE is indicative and is reliant on principles outlined in the ULDF. In addition the

associated Designation Conditions are generic with limited reference to the specific

route landscape and community of interest.

58. Mr McKenzie has supplied more detail in his evidence with the provision of a draft LP

which includes the proposed landscape works implementation methodology, monitoring

and a maintenance schedule and a framework for the evaluation of landscape and

visual effects arising from construction activities. The LP proposes a two year

maintenance period for terrestrial planting and a four year period for wetland planting.

The Designation Conditions have also been amended, extending the role of the LP to

cover both landscape and urban design issues.

Soft landscape works

59. The LP will form part of a suite of environmental controls for the construction of the

Expressway, addressing all aspects of the landscape and urban design management

and monitoring initiatives during the construction process and extending to the time of

final completion when the works are handed over to NZTA. Its function is to provide

assurance that the proposed landscape and urban design works implementation

methodology and maintenance measures are feasible and will be carried out to specific

standards.

60. More specifically, given the emphasis in this Application on planting for the mitigation of

visual and landscape effects, the LP should demonstrate through the principles,

methods and procedures set out in the document that the proposed planting works will

be fit for purpose and will establish healthy and sustainable plant communities. It is my

opinion that the draft LP does not provide the level of detail required to give the Council

this assurance.

61. In his evidence,10 Mr Peter Coop gives his opinion that the standard of mitigation for the

Expressway should reflect: the receiving environment between Peka Peka and north

10

Mr Peter Coop Statement of Evidence paragraph 131.

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Ōtaki, which will necessarily differ in many respects from other sections of the

Wellington Northern Corridor Roads of National Significance (RoNS); the nature and

scale of the Expressway's adverse effects; and what measures would be adequate to

mitigate these effects.

62. I agree that the character of the landscape from Peka Peka to north Ōtaki is unique in

terms of its landform, land use and land cover. I also agree that the nature and scale of

the Expressway’s adverse landscape, visual and urban design effects will require

specific design details and management tools to mitigate these effects.

63. Unlike the MacKays to Peka Peka Expressway which is located in a dune landscape,

the major part of this section of the Wellington Northern Corridor runs over lowland

terraces where “The combination of good drainage, drying winds and summer drought,

plus frost – or the clay rich silts that are heavy in winter and dry in summer, reduces the

range of plants that will do well without shelter.”11

64. It is my understanding that detailed design methodology and implementation are not

part of this the Expressway application. However given that the Expressway comes with

its own unique set of environmental conditions and limitations, the most relevant

measure of success for mitigation planting will be the establishment of a thriving and

sustainable plant community.

65. For these reasons I recommend that the provisions of the LP and proposed designation

conditions should be extended to ensure the success of the planting works and in turn

provide the Council with an assurance that the proposed planting works will be fit for

purpose and will continue to mitigate landscape and visual effects on an on-going basis.

66. Accordingly the LP should:

(a) include a three-year maintenance period for all terrestrial planting including a

definition of what constitutes a successful rate of plant survival at the time of

Final Completion after which the works are handed over to NZTA to maintain;

(b) include details on the types and levels of animal and weed pest control; and

11

Kapiti Coast District Council. Growing Native Plants in Kapiti 1999.

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(c) be in accordance with best practice for landscape or ecological mitigation and

consistent with the Council’s 2013 document Planting Principles for Roads of

National Significance (attached as Appendix A).

67. In order to give the Council confidence that the works are fit for purpose, conditions

should be added, according to which the Council is able to certify the LP and any

subsequent more detailed site specific plans.

Earthworks

68. In its submission the Council noted that the restoration of the dune landforms at Mary

Crest and the Waitohu Plateau was an issue of importance. Mr McKenzie’s draft LP

provides a guide to earthworks and more specifically, a guide to how the restoration of

dune landforms will be developed during the detailed design phase of theExpressway.

The issue of dunes was extensively covered in the MacKays to Peka Peka Expressway

Board of Inquiry process. It is my opinion that for these specific landforms the final

Designation Conditions for that project are appropriate for this section of the Wellington

Northern Corridor RoNS.


(a) NZTA consult with the Council prior to design commencing on the dune

landforms at Mary Crest and Waitohu Plateau; and

(b) the relevant Conditions are made consistent with the corresponding conditions

relating to dune landforms for the MacKays to Peka Peka Expressway.

ŌTAKI GATEWAYS AND SIGNAGE

70. The Council is concerned that the viability and vibrancy of the Ōtaki town centre will be

affected, at least in the short to immediate term, by the removal of State Highway

through traffic. To reduce that impact, the NZTA is proposing “splitting” the Ōtaki

interchange to the north and south of the town, to allow traffic to readily come off the

Expressway and travel through the town to rejoin the Expressway. Landscape plans

outline a Northern Gateway Zone and a Southern Gateway Zone at these interchange

areas, with the ULDF noting that from an urban design perspective it is important to

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create a legible, accessible entry and exit to and from Ōtaki, the Kāpiti Coast District

and the Wellington Region.12

71. There are no plans (indicative or detailed) for the identified gateway areas north and

south of Ōtaki, although the ULDF sets out design principles for these areas as

follows:13

“Both the quality and legibility of the wider gateway experience is clearly outlined

and referenced to the Greater Ōtaki Vision document to ensure the local

character is incorporated in a range of gateway elements such as landscaping,

signage, street lighting, and public art.”

72. NZTA is clearly committed to signage at the Ōtaki interchange. In his evidence Mr

James sets out the objectives of the Expressway,14 one of which is “To efficiently serve

Ōtaki and its future development by providing appropriate vehicle access and signage

to and from the Expressway.”

73. Mr Tony Coulman, when discussing Project Design and Consultation, states:15

“I agree with KCDC's submission that effective and appropriate signage signalling

Ōtaki as a destination and service centre is important, and this is reflected in the

Project objectives… Further consultation between the NZTA, KCDC, the OCB

and Nga Hapū-o-Ōtaki is recommended to inform the final signage and gateway

designs, and this is reflected through the updated proposed designation

conditions.”

74. I agree that it is important to ensure that effective and appropriate signage is provided

at the Gateway zones north and south of Ōtaki. The Council considers it crucial that

such signage is not based on standard road directional signage but is designed

specifically as a gateway feature that appropriately reflects the character and identity of

Ōtaki. It may also be that signage is not limited to off-ramp signage but that there is

additional high quality signage to effectively promote the town.

75. The proposed condition (Transport – Operational DC 80) referencing signage may

provide guiding principles for future design phases for gateway signage. However it is

12

ULDF page 14.13

Mr Bruce Curtain Statement of Evidence page 15, paragraph 12714

Mr Rod James Statement of Evidence page 15, paragraph 5815

Mr Tony Coulman Statement of Evidence paragraph 218

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my opinion that the issue of effective and appropriate signage is best addressed as an

urban design issue within the Landscape and Urban Design conditions.


(a) there is a specific reference in the Landscape and Urban Design Conditions

for a requirement for NZTA to consult with the Council prior to detailed design

commencing on the design and mitigation measures for the Gateway Zones;

(b) the Northern Ōtaki Gateway Zone and the Southern Ōtaki Gateway Zone are

identified as areas requiring particular attention at a site specific management

level; and

(c) Gateway signage is provided that clearly promotes the Ōtaki town as a

destination and that is developed in consultation with identified community

representatives.

DESIGN AND CONNECTIVITY OF LOCAL ROAD BRIDGES

77. In 2009 NZTA consulted on the Kāpiti Expressway including sending brochures to over

26,500 postal addresses in the district, open days and meetings with stakeholders. A

large number of submissions were received. According to the ULDF, severance and

community connectivity were two of the main concerns expressed in the submissions

process. The Council is concerned to ensure that connectivity is maintained through

local east-west road connections as well as the interchange at the Southern Ōtaki

Gateway.

78. The Expressway design reinstates three local connections including:

(a) Te Horo bridge (Bridge No. 8). The local road bridge connecting the eastern

and western sides of Te Horo community crosses over the existing SH1, the

NIMT railway, and the proposed Expressway. It will be a large structure in a

flat and open landscape and its final design will need to be sympathetic to this

context and designed to facilitate local connectivity, especially as this will be

the only access for children going to and from Te Horo School on School

Road.

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(b) Rahui Road bridge (Bridge No. 4). The proposed local road bridge over the

Expressway at Rahui Road will require the removal of a number of houses.

Located within an urban landscape, the design of this bridge will not only need

to be sympathetic to its context but also responsive to the restoration and/or

enhancement of connectivity in terms of the CWB network.

(c) The Ramp (covering Bridges No. 2 and 3). This replaces an existing bridge

with a longer structure. It will have low visual impacts from adjoining residential

areas but the embankments form one edge of Pare-O-Matangi Reserve and

requires CWB connections through the reserve to Ōtaki Railway Station.

79. Each of these bridges is located in a unique landscape context, is used by a different

community of interest and requires integration into the existing CWB network in order to

restore local connectivity and community amenity in the form of linkages to recreational

areas. For example, the Te Horo bridge will be used by horse traffic which has specific

requirements for path widths and waiting areas. In addition, the Rahui Road bridge

should provide for the restoration of walkway links to Ōtaki Railway Station to the south

and Pare-O-Matangi Reserve to the north. In short the bridge structures and associated

infrastructure should “respond to local landscape context and reflect local themes.”16

80. In the matter of bridge structures, the ULDF sets out the principles to be implemented in

future design phases. As I have outlined above, the fine-grain detail is critical to the

successful resolution of the bridge design. This was recognised in the MacKays to Peka

Peka Expressway Board of Inquiry Decision where Condition DC.59A e) required that

Site-specific Urban Design Plans (SSUDPs) be prepared for ‘specified locations where

the Expressway interacts with local vehicular and non-vehicular pedestrian/cyclist

movement’.


(a) there is specific reference in the Landscape and Urban Design Conditions for

a requirement for NZTA to consult with the Council prior to detailed design

commencing on the design and mitigation measures for the three local bridges

(the Ramp, the Rahui Road Bridge and the Te Horo Bridge);

16

Mr Bruce Curtain Statement of Evidence paragraph 40

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(b) the design of the local bridges is to a standard consistent with those provided

for other RoNS projects in the Kāpiti Coast District, with due regard to the

specific context of the bridges; and

(c) the bridges including structures, finish and CWB connections are identified as

areas requiring particular attention at a site specific management level.

CONCLUSION

82. The location of the selected Expressway route has avoided a number of potential

adverse effects that would arise had a greenfields route been selected, and avoids

effects on the wider landscape context. However the scale of the proposed transport

corridor is very different from the scale of the existing SH1 road and NIMT railway, or a

new Expressway alone.


proposal extend across the wider transport corridor of the Expressway and existing SH1

and into the adjoining landscape.

84. The topography and narrowness of the designation limit the effectiveness of the

proposed ULDF principles and the ability to avoid, remedy or mitigate landscape and

visual effects through the use of vegetation and noise reduction structures.

85. Landlocked sites, particularly those within the designation, provide an opportunity for

mitigation of landscape and visual effects, with potential for an extension of wetland and

riparian plantings, and reinstatement of native forest cover.

86. There are sites outside the Expressway designation where there are opportunities for

further meaningful planting to screen views, reinstate local vegetation and land use

patterns. In addition, for a number of rural properties to the east of the Expressway, well

designed mounding and planting within the property may mitigate a range of amenity

effects with the potential to create some localised outdoor acoustic screening as well as

provide shelter and visual screening for outdoor living areas.

87. The LP is the document that is intended to provide assurance that the proposed

landscape works are fit for purpose and will continue to mitigate landscape and visual

effects on an on-going basis. It is my opinion that that the provisions of the LP should

be extended to ensure the success of the planting, earthworks and noise reduction

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structures, and that the Council should have a role in the consultation and certification

process.

88. I consider that further design detail is required to provide more certainty and assurance

that the proposed design measures deliver an appropriate level of mitigation,

particularly for areas requiring particular attention at a site specific management level

including the Northern and Southern Ōtaki Gateway Zones, the three local bridges at

The Ramp, Rahui Road and Te Horo, the Ōtaki River and Waitohu Stream corridors

and at Pare-O-Matangi Reserve. This should be undertaken in conjunction with a

programme of early and continuing engagement with the Council in order to provide

greater certainty for the proposed Council certification process.

89. A summary of my specific recommendations is set out below in paragraph 90 of my

evidence.

RECOMMENDATIONS


(a) additional landscape mitigation is provided outside the Expressway

designation boundary in the area of Crown land to the west of the rail corridor

from the south Ōtaki interchange through to Mary Crest. This may be either

within an extended designation boundary, within the existing SH 1 designation

or as part of the revocation process where there is potential to reduce the

width of the carriageway.

(b) adverse effects on amenity for property owners adjoining the eastern

designation boundary from the south Ōtaki interchange through to Mary Crest

are identified and addressed at both site specific level on a case by case

basis, and at a local level considering a local cluster of properties.

Consideration should be given to mitigation that provides multiple benefits by

addressing a range of landscape, visual and amenity effects. This could be

addressed through the LP;

(c) the LP sets out a process to clarify how landlocked or remnant sites within the

designation will be used and maintained;

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(d) the Project Landscape Architect liaises with the Project Ecologist on

appropriate mitigation, enhancement or restoration of affected areas of native

vegetation or individual specimen native trees outside the designation;

(e) a condition is made that gives the Council assurance that further mitigation will

be considered in the planning for the future revocation of SH1 to a local arterial

road;

(f) NZTA consults with Council prior to design commencing on the Ōtaki River

corridor and Waitohu Stream corridor, with continuing engagement throughout

the design and documentation process;

(g) specific reference is made in the LP to earthworks and planting

implementation methodology and monitoring where the Expressway crosses

rivers, streams and wetlands;

(h) the addition of the L-shaped block of land to Pare-O-Matangi Reserve is

formalised in the consent conditions;

(i) a condition is made that provides for the relocation of specimen trees (which

that have been identified by the Keep Ōtaki Beautiful group and noted on a

site plan). Furthermore, as transplantation cannot be guaranteed to have a

100% success rate, I recommend that additional specimen trees are provided

for Keep Ōtaki Beautiful to plant, at the rate of one additional large grade plant

to match each tree to be relocated;

(j) a condition is made that ensures the additional culverting of the Mangapouri

Stream is undertaken after consultation with the Council, the Keep Ōtaki

Beautiful group and the community in order that the effects of culverting are

appropriately mitigated;

(k) the LP includes a three-year maintenance period for all terrestrial planting

including definition of what constitutes a successful rate of plant survival at the

time of Final Completion after which the works are handed over to NZTA to

maintain;

(l) the LP includes details on the types and levels of animal and weed pest

control;

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(m) the LP is required to be in accordance with best practice for landscape or

ecological mitigation and consistent with the Council’s 2013 document Planting

Principles for Roads of National Significance (attached in Appendix A);

(n) a condition is made that the Council certifies the LP and subsequent Site

Specific Landscape Plans;

(o) NZTA consults with the Council prior to design commencing on the dune

landforms at Mary Crest and Waitohu Plateau;

(p) conditions are made that are made consistent with the corresponding

conditions relating to dune landforms for the MacKays to Peka Peka

Expressway;

(q) there is specific reference in the Landscape and Urban Design Conditions for

a requirement for NZTA to consult with the Council prior to detailed design

commencing on the design and mitigation measures for the Gateway Zones;

(r) the Northern Ōtaki Gateway Zone and the Southern Ōtaki Gateway Zone are

identified as areas requiring particular attention at a site specific management

level;

(s) gateway signage that clearly promotes the Ōtaki town as a destination and

that is developed in consultation with identified community representatives;

(t) there is specific reference in the Landscape and Urban Design Conditions for

a requirement for NZTA to consult with Council prior to detailed design

commencing on the design and mitigation measures for the three local bridges

(the Ramp, the Rahui Road Bridge and Te Horo Bridge);

(u) the design of the local bridges is to a standard consistent with those provided

for other RoNS projects in the Kāpiti Coast District, with due regard to the

specific context of the bridges; and

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(v) the bridges including structures, finish and CWB connections are identified as

areas requiring particular attention at a site specific management level.

Julia Anne Williams9 August 2013

Appendix A: Planting Principles for Roads of National Significance

DRAFT

Kāpiti Coast Planting Principles for Roads of National Significance

Introduction

Prior to settlement, Kāpiti Coast had a complex and diverse vegetative cover, reflecting the

natural patterns of landform, climate, soils and water systems. Today the natural

environment of the district has been modified significantly by past human activity and land

use practices and continues to be changed and affected by current activities and practices.

It is intended that these planting principles are used as guidelines to promote plantings that

enhance the District’s environment. While priority needs to be given toward further

improving the District’s biodiversity, Council recognises that the proposed Expressway

passes through dunes and wetlands, farmland, rural lifestyle properties, residential, urban

and industrial areas, each of which has a different landscape character. Rather than provide

prescriptive vegetation lists, Council prefers to see planting that reflects natural patterns,

adds visual amenity and reinforces local identity.

The principles are supported by the following Kāpiti Coast District Council strategic

documents:

Long Term Plan 2012 – 2032 (LTP)

The LTP document sets out district wide aspirations and an overall strategy for the future of

the District. The outcomes sought at the local community level vary in detail but common to

all is the need to maintain local character coupled with the provision of healthy natural

systems which are associated with landscape values. A key priority for the Council is to

ensure that the NZTA Expressway project reflects the needs of the community.

The Council has adopted 14 sustainable development principles to guide decisions and

actions including:

Principle 7: the interconnectedness of the natural environment and communities is

recognised when taking action.

Kāpiti Coast District Council District Plan

The District Plan seeks to control the adverse effects of activities on the natural

environment in a manner that protects the integrity of ecosystems. This is to ensure that

natural features and qualities of the environment, in particular the indigenous flora and

fauna, are sustained.

The objectives and policies set out in Chapter 11 Ecology are intended to address a number

of these significant resource management issues. In the matter of biodiversity and planting

they include:

Objective 1.0

Protect and enhance the natural environment and ecological integrity of the district,

including protection of significant indigenous vegetation and significant habitats for

indigenous flora and fauna.

To achieve this objective, Council will implement a number of policies including:

POLICY 8: Encourage planting of locally sourced indigenous species adjacent to water

bodies and other areas that will restore linkages and ecological corridors.

POLICY 9: Encourage restoration of degraded habitats with locally sourced (genetically

appropriate) native vegetation.

POLICY 10: Advocate for the protection of areas identified as suitable for providing linking

corridors for fauna.

POLICY 11: Maintain and enhance the natural landscape values of the District.

POLICY 12: Ensure that appropriate buffer zones are provided around areas of significant

natural value and that wider ecological processes are considered when making

decisions about significant sites.

Proposed District Plan

The Proposed District Plan speaks more directly on the need to retain and enhance the

extent and biodiversity of indigenous vegetation: “The sustainable management of natural

resources in the District cannot be achieved if biodiversity is not recognised and protected.

While not yet completed, the importance of biodiversity has been signalled in the

government’s development of a draft National Policy Statement on Indigenous Biodiversity

which was released for submissions in early 2011.”

Objectives and policies make specific reference to the management, enhancement and

restoration of biodiversity.

Objective 2.2 – Ecology and biodiversity

To improve indigenous biological diversity and ecological resilience through the:

protection of areas of significant indigenous vegetation and significant habitats of

indigenous fauna;

restoration of the ecological integrity of important degraded environments and

habitats;

enhancement of the health of terrestrial and aquatic ecosystems; and

enhancement of the mauri of waterbodies.

Policy 3.12 – Management approach to biodiversity protection

Adverse effects from subdivision, use and development on significant indigenous vegetation

and significant habitats of indigenous fauna including aquatic ecosystems will be minimised,

including by:

a) avoiding the removal or significant modification of any significant locally indigenous

vegetation, in particular avoiding disturbance of all indigenous vegetation within

ecological sites;

b) managing land use activities resulting in increased sediment and contaminant levels of

surface water, including storm water, to reduce the likelihood of aquatic ecosystems

being detrimentally affected;

c) creating and maintaining appropriate buffer zones around and linkages between, areas of

significant indigenous vegetation, significant habitats of indigenous fauna and around

aquatic ecosystems to ensure that wider ecological processes are considered when

making decisions about significant sites; and

d) preventing the introduction or spread of exotic weed species and pest animals (both

terrestrial and aquatic).

Policy 3.13 – Enhancement

Where a subdivision or significant development is undertaken on land containing rare and

threatened vegetation species or an ecological site, enhancement of the ecological site or

rare and threatened vegetation species shall be required.

Policy 3.14 – Restoration

When considering applications for subdivision, land use or development, active restoration

or remediation will be required on sites identified as priority areas for restoration, to

achieve the following biodiversity benefits:

a) resilient riparian buffers and margins which provide benefits in terms of sediment and

erosion control and increased biodiversity values; and

b) expanded ecological sites and habitat enhancement which provide greater benefits to

biodiversity values through the planting of locally indigenous vegetation surrounding and

linking fragmented remnant ecological sites.

Open Space Strategy

The Council’s recently released Open Space Strategy guides the open space vision for the

District. Relevant principles include: protecting indigenous biodiversity; preserving

landscapes, landforms and amenity values; protecting local character; and protecting

cultural and heritage values. Working to develop mountains to sea ecological corridors is a

priority of the Open Space Strategy.

The Strategy notes that the District has many opportunities with regard to open space

development:

use of the road network (including the expressway), waterways and rural areas

provides greater opportunities for community cohesiveness, recreation activities and

environmental benefit;

appropriate planting of streets, parks, river corridors and coastal reserves can help

the District cope with the extremes of climate change, preserve water quality,

reduce flood and fire danger, coastal erosion and provide opportunities for local

food production;

Note that the following points are not in any particular order of importance but are

organised according to scale, from over-arching principles that apply from district-wide

down to the use of specific plants in specific places.

References:

Isobel Gabites. Growing Native Plants in Kāpiti. 1999

GWRC. Wellington Regional Native Plant Guide. Revised edition 2010

Isthmus Group Ltd. Kāpiti Coast District Landscape Study. December 2012

Kāpiti Coast District Council. Open Space Strategy February 2012

Kāpiti Coast District Council District Plan

Kāpiti Coast District Council Proposed District Plan

Kāpiti Coast District Council Long Term Plan 2012 – 2032

Planting Principles for Roads of National Significance

Kāpiti Coast District Council aims to enhance the District’s biodiversity, character and

cultural identity through:

Using the RoNS programme to promote the establishment of a native plant corridor

extending the length of the district;

the establishment of as many ‘mountains to sea' native plant corridors along east –

west connections as possible, especially restoring planting along waterways;

where restoration of sustainable native plant communities is the objective, planting

for the future, starting with appropriate pioneering species followed by a sequence

of enrichment plants that will replicate the natural processes of colonisation and

succession;

the establishment of sustainable plant communities that will create habitat for

native birds, fish, invertebrates and lizards;

planting nodes of individual native species as seed sources that can be maintained

to encourage natural regeneration of the highest possible number of locally native

species appropriate to the location;

planting (whether native or exotic) for local conditions to minimise requirements for

long term maintenance;

planting to reinforce the concept of distinctive ‘local landscapes’ to preserve local

character and create a sense of place;

use of vegetation that is appropriate to its landscape context, noting that exotic

species may be considered in an urban or pastoral landscape where they are already

established, for example at major intersections where there are existing street trees

Where native plants are used, these should be ‘eco-sourced’ from the Foxton

Ecological District, i.e. grown from seed collected from wild populations of plants

native to Foxton Ecological District, thereby preserving and enhancing the character

and genetic diversity of the local flora.

where exotic plants are used, select species that provide bird food, berries, fruit or

nectar, but will not create future problems with self-seeding and establishment in

ecologically sensitive areas;

use of plant species that are appropriate to the scale of the landscape context.

Where large trees are appropriate, plant with an eye to the future with the use of

native ‘heritage’ trees. This may require sequential or enrichment planting to create

the right conditions for trees to thrive including:

- wetland trees such as kahikatea, pukatea and swamp maire

- lowland trees such as titoki, kohekohe, totara and matai, and wharangi

- trees on steeper slopes such as rimu, white maire, tawa, northern rata and miro

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