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Professional Services Contract No. 05/092
Rotorua CBD Revitalisation Strategy
“Vision” Document 13 October 2006
Opus International Consultants Limited
Opus House, Princes Street
Private Bag 3057
Hamilton, New Zealand
Telephone :+64 7 838 9344
Facsimile :+64 7 838 9324
Date :13 October 2006
Reference : 05/092
Opus Ref: 4-51781.00
Status: Final DRAFT Rev. D
Approved for Release………………………………………….
This document is the property of Opus International Consultants Limited. Any unauthorised employment or reproduction, in full or part is forbidden.
© Opus International Consultants Limited 2006
Contents
Page - i
Contents
1 Executive Summary...................................................................................................................... 1
1.1 Shared Vision .................................................................................................................................................1
1.2 Priority Actions ...............................................................................................................................................1 1.2.1 Establish a Management Partnership (0-12 months) ..............................................................................................................1 1.2.2 Promote the CBD as a Destination (0-5 years) .......................................................................................................................2 1.2.3 Structure the CBD to Encourage Movement and Vibrancy .....................................................................................................3 1.2.4 Provide Facilitation and Support for Private Enterprise to “Run with Vision”...........................................................................3
2 Introduction................................................................................................................................... 6
2.1 Moving Forward..............................................................................................................................................6
2.2 Physical Characteristics .................................................................................................................................6
2.3 Psychological Characteristics.........................................................................................................................6
3 Methodology ................................................................................................................................. 7
3.1 A Strategic Partnership...................................................................................................................................7
3.2 Fact Finding/Information Review....................................................................................................................7
3.3 Stakeholders ..................................................................................................................................................7 3.3.1 Consultation Workshop 1 (Perspectives).................................................................................................................................7 3.3.2 Consultation Workshop 2 (Aspirations) ...................................................................................................................................7 3.3.3 Consultation Workshop 3 (Solutions and Options)..................................................................................................................8
4 Retail ............................................................................................................................................ 9
4.1 Background ....................................................................................................................................................9
4.2 The City Centre Advantage ............................................................................................................................9
4.3 Retail Trading Hours.....................................................................................................................................10
4.4 Shopping Hours and Visitors ........................................................................................................................10
4.5 Parking and Public Transport .......................................................................................................................11
4.6 Importance of Entertainment ........................................................................................................................11
4.7 Conflicts between Entertainment and Retailing............................................................................................11
4.8 Timing...........................................................................................................................................................11
4.9 Public Art ......................................................................................................................................................12
4.10 Community Entertainment............................................................................................................................12
4.11 Evening Entertainment .................................................................................................................................12
4.12 Retail Zones as Tourist Destinations............................................................................................................12
4.13 Factors in the Success and Failure of Malls.................................................................................................12
4.14 Strong Retail Base........................................................................................................................................12
4.15 Strong Business Support..............................................................................................................................13
4.16 CBD and Inner City Residential Development..............................................................................................13
4.17 Recommendations .......................................................................................................................................13 4.17.1 Mall Management.................................................................................................................................................................. 13 4.17.2 Rotorua District Council Role, Staff, Responsibilities ........................................................................................................... 13 4.17.3 Rotorua CBD Advisory Committee ....................................................................................................................................... 13
4.18 Strategies .....................................................................................................................................................14
4.19 Tactics ..........................................................................................................................................................14 4.19.1 Offer a Different/Unique Experience..................................................................................................................................... 14 4.19.2 Foster Precinct Structure of City ........................................................................................................................................... 14 4.19.3 Capitalise on Different Atmosphere ...................................................................................................................................... 15 4.19.4 Be at the Forefront ................................................................................................................................................................ 15 4.19.5 Maintain Civic Role for Rotorua ............................................................................................................................................ 15 4.19.6 Keep Target Market Informed............................................................................................................................................... 15
5 Urban Design Narrative: “Shared Vision”.................................................................................... 16 5.1.1 Central Spine, (Tutanekai Street) ......................................................................................................................................... 16 5.1.2 “Green Corridor” ................................................................................................................................................................... 17 5.1.3 Lakeside Environment........................................................................................................................................................... 17 5.1.4 “Lakeside Promenade” (Scenic Entry to Rotorua) ................................................................................................................ 18 5.1.4 “Lakeside Promenade” (Scenic Entry to Rotorua) ................................................................................................................ 18 5.1.5 “Grand Avenues”................................................................................................................................................................... 18 5.1.6 Street Network ...................................................................................................................................................................... 19 5.1.7 Urban Precincts .................................................................................................................................................................... 19
Contents
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5.1.8 New Civic Plaza.....................................................................................................................................................................22 5.1.9 General Development Guidelines..........................................................................................................................................22
6 Implementation ........................................................................................................................... 24
6.1 Indicative Timeline (Projects and Priorities) .................................................................................................24
Appendix 1 .......................................................................................................................................... 25
7 Urban Design: Existing City Centre Assessment ........................................................................ 26
7.1 “Character” ...................................................................................................................................................26 7.1.1 Identity ...................................................................................................................................................................................26
7.2 Desirability....................................................................................................................................................26 7.2.1 Shared Vision ........................................................................................................................................................................26
7.3 “Cityscape” ...................................................................................................................................................27 7.3.1 Structure ................................................................................................................................................................................27 7.3.2 Development Density.............................................................................................................................................................27 7.3.3 Land-Use/Precinct Structure .................................................................................................................................................27 7.3.4 Key Features and Landmarks................................................................................................................................................28 7.3.5 Wider Environment, Viewshafts and Vistas...........................................................................................................................28
7.4 Lifestyle ........................................................................................................................................................29 7.4.1 24/7/365 Activities..................................................................................................................................................................29 7.4.2 Special Events.......................................................................................................................................................................30 7.4.3 Cradle to Grave .....................................................................................................................................................................30
8 CPTED........................................................................................................................................ 32
8.1 Introduction...................................................................................................................................................32
8.2 Physical Aspects ..........................................................................................................................................32 8.2.1 Access: Safe Movement and Connections............................................................................................................................32
8.3 Surveillance and sightlines...........................................................................................................................33 8.3.1 Observations..........................................................................................................................................................................33 8.3.2 Solutions................................................................................................................................................................................34 8.3.3 Layout: Clear and Logical Orientation ...................................................................................................................................34 8.3.4 Activity Mix: Eyes on the Street .............................................................................................................................................35 8.3.5 Sense of Ownership – Showing a Place is Cared For ..........................................................................................................36 8.3.6 Quality Environment: Well Designed, Managed and Maintained Environments....................................................................36 8.3.7 Physical Protection: Using Active Security Measures ...........................................................................................................37
9 Strategic Planning....................................................................................................................... 39
9.1 Physical Aspects ..........................................................................................................................................39 9.1.1 Diversity and Activity ............................................................................................................................................................. 39 9.1.2 Density and Scale ................................................................................................................................................................. 41 9.1.3 Public Realm and Connectivity ............................................................................................................................................. 42 9.1.4 Vibrancy and Activity............................................................................................................................................................. 43 9.1.5 Strategic Facilities ................................................................................................................................................................. 43
9.2 Sustainability ................................................................................................................................................44 9.2.1 Social – Demographic Profiles.............................................................................................................................................. 44
9.3 Environmental ..............................................................................................................................................47 9.3.1 Natural Features ................................................................................................................................................................... 47
9.4 Metaphysical Aspects...................................................................................................................................47 9.4.1 Governance – Plan Changes................................................................................................................................................ 47
10 Transportation/Infrastructure ...................................................................................................... 50
10.1 General Layout and Local Access – Vehicular Traffic..................................................................................50 10.1.1 Observations......................................................................................................................................................................... 50 10.1.2 Key Issues to be Addressed ................................................................................................................................................. 50
10.2 Tourist Access to the CBD ...........................................................................................................................51 10.2.1 Observations......................................................................................................................................................................... 51 10.2.2 Key Issues to be Addressed ................................................................................................................................................. 51
10.3 Parking in the CBD.......................................................................................................................................51 10.3.1 Observations......................................................................................................................................................................... 51 10.3.2 Key Issues to be Addressed ................................................................................................................................................. 51
10.4 Movement Within and Around the CBD: Pedestrians...................................................................................52 10.4.1 Observations......................................................................................................................................................................... 52 10.4.2 Key Issues to be Addressed ................................................................................................................................................. 52
10.5 Movement Within and Around the CBD: Buses and Cyclists .......................................................................52 10.5.1 Observations......................................................................................................................................................................... 52 10.5.2 Key Issues to be Addressed ................................................................................................................................................. 52
11 Public Realm............................................................................................................................... 53
11.1 Natural Features...........................................................................................................................................53 11.1.1 Observations......................................................................................................................................................................... 53 11.1.2 Key Issues to be Addressed ................................................................................................................................................. 54
11.2 Cultural Landscape ......................................................................................................................................55 11.2.1 Observations......................................................................................................................................................................... 55 11.2.2 Key Issues to be Addressed ................................................................................................................................................. 55
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11.3 Public Open Space Strategies .....................................................................................................................56 11.3.1 Observations..........................................................................................................................................................................56 11.3.2 Key Issues to be Addressed..................................................................................................................................................56
11.4 Village Green................................................................................................................................................57 11.4.1 Key Issues to be Addressed..................................................................................................................................................57
11.5 Civic Plaza....................................................................................................................................................58 11.5.1 Key Issues to be Addressed..................................................................................................................................................58
11.6 Tutanekai Street ...........................................................................................................................................59 11.6.1 Key Issues to be Addressed..................................................................................................................................................59
11.7 Grand Avenues ............................................................................................................................................60 11.7.1 Key Issues to be Addressed..................................................................................................................................................60
11.8 Lake Promenade ..........................................................................................................................................61 11.8.1 Key Issues to be Addressed..................................................................................................................................................61
11.9 Lake Front ....................................................................................................................................................62 11.9.1 Key Issues to be Addressed..................................................................................................................................................62
Executive Summary
Page - 1
1 Executive Summary
1.1 Shared Vision
We believe, following this study that Rotorua’s vision for the CBD is:
“To create a public space where residents and visitors can enjoy recreation, outdoor
dining, retailing and entertainment activities within a safe and attractive environment.“
Rotorua is a unique city, not only in New Zealand, but also in the world. The potential offer of
Culture, Natural Environment and Geothermal resource, provide a great attraction to both
National and International tourism. If correctly captured (as in Queenstown, Nelson, other
examples), the economic benefit to Rotorua and its surrounding areas would be substantial.
This report is intended to act as a framework giving guidance on those issues which need to
be addressed to assist in implementation of the “Shared Vision”. It is not intended as being
prescriptive and should be considered flexible. The actual vision will be generated by the
subsequent processes resultant from the various studies/actions recommended in this
document. It is assumed that the “Shared Vision” of Rotorua may change in the future as the
City develops. Whilst we cannot foresee future drivers, we feel that this vision is flexible
enough to be able to adapt to those changing circumstances and changing visions.
The only way this vision can be successful, is through the engagement of private enterprise
and investors. Their positive engagement should be regarded as an economic pre-condition
in ensuring a successful outcome. Council must recognise that this is an important aspect
which needs to be supported and facilitated.
It is important to realise, that whilst this study focuses on the CBD, the actual issues which
need to be addressed are integral to the wider Rotorua, from the approaches to Rotorua via
the state highways, through to the “City Gates” and in the CBD proper.
Much work has been done in the past which attempts to resolve some of the issues which
currently face Rotorua’s CBD. To date, these have been focused on individual elements
within the CBD. This document is tailored to provide a holistic solution which addresses these
issues and provides an opportunity to turn the CBD around. This will result in:
• Overall strategy
• A vibrant city run by “owners” providing for the future of the Rotorua Community and
owned by private investors
• A project bigger than CBD; city entrances – heighten expectation as Rotorua is
approached, and then delivery on that expectation
• Best cultural museum in the world
• Draw and retain people from abroad, nationally and Rotorua periphery to CBD
• A Safer Caring Community
Individual sections of this report (including the appendices) will need to be studied to
determine the actions required to address the various aspects of the CBD makeup. Please
note priority actions below.
1.2 Priority Actions
The following actions are of prime importance and should be addressed as a priority:
1.2.1 Establish a Management Partnership (0-12 months)
(1) Create role of “Investment Manager; to be salaried (not by RDC direct) who will co-
ordinate and implement the actions identified in this document. This role should
typically be awarded to a person of high level experience in many fields, including;
programming, fund raising and liaison with developers, land owners and tenants.
Additionally being able to deal with a high profile role both with the public, council
representatives and politicians will be a key attribute. This person would ideally be
sourced from high level management of an existing successful corporate/ council
organisation. Amongst the Investment Manager’s functions will be:
Executive Summary
Page - 2
• Review the recommendations within this document and prioritise actions.
• Identify investment opportunities to help deliver the vision
• Co-ordinate activities of stakeholders and others to move toward achieving
the vision
• Provide information and support to the Mayor who should act as the prime
“public face” of the vision to the general public, media, investors and others.
• Set up Bi-partite group (Advisory Committee) chaired by the “Investment
Manager”. The role of the group is to provide liaison with the various
stakeholders to assist the Investment manager to deliver the vision. The
group will help determine the priority and import of the various actions
contained within this document, in addition to further actions yet to be
identified. The group will work closely together to deliver what is important for
Rotorua and the development of the CBD. This should be a local group
consisting of (but not limited to) representatives of Local Business, Local Iwi,
Local Landlords and Tenants, Local Retailers, Council Representatives,
Police and other interested parties/ stakeholders; with the Mayor acting as
the “public face” of the group. It is subsequently important that the Mayor is
well informed (by the group) and hence the public message is consistent with
the vision.
(2) Provide staff for CBD retail management roles under CBD Manager to address the
following roles:
• Asset management
• Safety camera monitoring system
• Cleaning
• Contract and permit management
• Police liaison
• Liaison with CBD “Investment manager”
It is acknowledged that this role already exists to a large extent. However, it should
be noted that this role should be linked to that of the investment manager to
ensure continuity across the whole of the CBD.
(3) Establish a communication plan for the dispersal of information relating to the
vision. This is essential at the commencement of the vision, but will also ensure
continuity of the vision and a focus for the ongoing implementation of the vision
over an extended period. The communication plan should be related to the multi-
media marketing of the vision and activities within the CBD.
1.2.2 Promote the CBD as a Destination (0-5 years)
(1) Link major events to the CBD: Improving and encouraging links to major events
both in the CBD and in the surrounding areas (mountain biking, rally etc).
Facilitating good pedestrian links between the CBD and the new Events Centre is
critical in this regard.
(2) Exploit Spa Town theme: Rotorua has a unique offer with regard to its mix of
cultural and geothermal facilities. This should be exploited through the
encouragement of international investment to improve the quality and perception
of the facilities. Locations already exist (particularly close to the lake front) which
should be elevated to international standards to attract both NZ and international
visitors alike. If developed correctly, these natural resources have the potential to
make Rotorua the spa capital of New Zealand if not the southern hemisphere.
(3) Improve family and pro-youth activities through “pro-youth” facilities and initiatives:
This is important to ensure the integration of young people and families to ensure a
sense of inclusion and hence greater guardianship. Pro-youth is particularly
important as it will have a beneficial effect through the reduction of “delinquent”
and “undesirable” behaviour.
(4) Actively market CBD via multi-media: Again, this is already being implemented to a
large extent. However, it is important once the vision has been accepted, that
future initiatives are co-ordinated through the Investment Manager to ensure
adherence to the vision.
Executive Summary
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1.2.3 Structure the CBD to Encourage Movement and Vibrancy
(1) Improve integration of Rotorua Central: Rotorua Central is an integral part of the
CBD and should be treated as such. Not only is it a generator of footfall in the
CBD, it should be regarded as an “anchor” which will draw people to the south end
of Tutanekai Street (The change of the arterial link to the south from Amohau
Street to Victoria Street will assist this perception).
(2) Link North and South of Tutanekai Street (“string of pearls”): An element should be
introduced to assist the linkage of the North and South Ends of Tutanekai Street.
Tutanekai Street should be viewed as a “string of pearls” – a well defined spine
linking a sequence of spaces, features and events. Whilst each of the features that
animate the Tutanekai Street spine can be regarded as mutually exclusive,
significant benefit would be realised from assisting their integration and connection.
This aspect could be via some form of shuttle transport, such as carriages, a
historic or modern tram or water-based transport (waka etc), which could also act
as a tourist attraction (ref. Christchurch, Melbourne, Venice etc).
(3) Improve integration of Lake Front: The two are integral to one another and cannot
be dealt with separately. Ideally the lakefront study should be rolled into the CBD
study to provide a further framework for development and private investment. The
lakefront should be regarded as the northern “tourist/ leisure anchor” to Tutanekai
Street.
(4) Maintain a high visual and environmental amenity for pedestrians: Ensure that
“streets” within the CBD area are designed to promote and serve the needs of
pedestrian traffic
(5) Adapt local and regional tourist transportation to suit “Vision”: Carefully integrate
the needs of local transport and regional transport for tourist needs including the
reinforcement of the function of the existing Information Centre/ Regional bus
interchange and relocate the local bus stops to Haupapa Street.
1.2.4 Provide Facilitation and Support for Private Enterprise to “Run with Vision”
(1) Implement changes to District Plan: This should be commenced ASAP to ensure
that any proposed developments are assessed on their merits with regard to this
strategy. This is urgent so as to ensure there are no “rogue” developments in the
interim, the effects of which are likely to take many years to mitigate.
Consideration should be given to adjustments or amendments to the District Plan
that promote the assessment of development within the CBD against urban design
principles. In some scenarios there might be a strong case for arguing that all CBD
development should be designated as “discretionary” requiring assessment
against CBD Design/ Performance Guide criteria. However in the context of the
Rotorua CBD we do not consider this approach is the most pragmatic one. For
this reason we suggest that the District Plan needs to be changed to include new
‘precinct’ or zones that either supersede the present CBD commercial zones or
work within them.
We envisage that these precincts would contain a basic set of urban design
‘performance standards’ that all developments below a threshold (established by
land use/activity and scale) would need to adhere to, and attributing to all other
developments a Discretionary status. We see this as enabling smaller
developments that conform to appropriate standards to proceed without excessive
regulatory constraint and delay while also requiring larger developments to be
subjected to greater scrutiny in respect of urban design and other considerations.
Considerations in respect of the above would include:
• Redefinition of Lakefront Promenade as an important entry to Rotorua
• Precincting to encourage clarity and variety within the CBD and introduction
of mixed use areas to include local and tourism focused retail, residential,
workspace and 24/7 environs.
Executive Summary
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• Promotion of a more compact and intense retail component with higher
density developments around the spine of Tutanekai Street
• Public arts programme
• Implement CPTED review of existing CBD and action
• Introduce CPTED reviews of all future CBD resource consent applications
• Implement active frontages policy to all CBD developments to improve
stewardship, natural surveillance and civic governance as well as addressing
other CPTED issues such as under verandah lighting
• Develop legibility and wayfinding strategies to facilitate ease of orientation
and the development of unique character areas within the CBD
• Review Council on-site parking requirements for CBD developments as well
as opportunities for greater car park provision in City Block core areas
through augmentation existing legislation (such as Service Lane Strategy)
and further study (TDM). This will also assist in determining a business case
for paid parking in the CBD and identify those CBD blocks which can be more
easily developed in the short term to advance the implementation of the
strategy
• Protection of key CBD features and identify location of new installations and
developments.
These changes may prove difficult to implement due to resourcing issues within
the Planning Department and the timing of the District Plan Review. Perhaps an
immediate action could be the creation of a “task force” whose remit would be the
determination of those issues to be resolved first and foremost (and how these
should be implemented). Consideration should be given to the utilization of
external consultants to assist in this and how these actions should be funded.
Executive Summary
Page - 5
(2) Address transport infrastructure support for “Vision”: Through developing the
hierarchy as identified in the plans. Consideration should also be given to the
location of the local Bus stops, taxi ranks etc. to support the proposals.
(3) Adapt CBD traffic management to suit “Vision”: A management plan should also
be put in place to ensure the desired effect in Tutanekai Street (particularly) as well
as other roads identified, such as the delivery of pedestrian bias at certain times
and controlled traffic flow at other times (weekends, evenings, events etc).
(4) Implement “Bike Rotorua” Cycle Strategy: Rotorua is relatively flat around the CBD
and therefore ideal for cycle transport. There is an opportunity also to link the
Cycle routes to those used for mountain biking and to adopt this as a theme,
therefore providing additional tourist attraction in addition to the provision of a
sustainable means of transport for locals and visitors alike.
It is essential that Rotorua District Council should act as facilitator in the implemention of
a framework to encourage and allow landowners and private investors the opportunity to
take the vision and “run with it”. The implementation of the “Shared Vision” is not the
responsibility of the Council alone, but it is important that the appropriate development
guidance (viz. development performance standards) is put in place to ensure that
individual developments align with, contribute to and ideally enhance the “shared vision”
for the development of Rotorua’s CBD.
Introduction
Page - 6
2 Introduction
2.1 Moving Forward
Rotorua District Council engaged Opus International Consultants Limited, together with
Chow:Hill Urban Design to provide a CBD Revitalisation Strategy. The purpose of this study
was to utilise the unique characteristics which define Rotorua, and to provide a strategic
“framework” for development over the next 15-20 years.
Our methodology has been based around engaging the stakeholders of the CBD in a series
of workshops so that they are involved in the generation of a “shared vision”. The
methodology has been designed to encourage the stakeholder group and the wider users of
the CBD, to take ownership of the strategy and drive its implementation. Only through this
active involvement, will the strategy be a success. The strategy or “shared vision” is intended
to provide a flexible framework to respond to the changing future of Rotorua.
To ensure the long-term success of the CBD as Rotorua’s pre-eminent retail destination, we
believe it should reflect the following key physical and psychological characteristics, many of
which are recognised by the 2003 CBD Retail Strategy:
2.2 Physical Characteristics
• Cityscape (connected with the city, gardens and lake; sub-components attracting
different uses);
• Movement and transportation (circulation of traffic and people; small urban blocks for
connectivity);
• Mixed-use development (eg retail, workspace, residential, boutique studios, galleries as
well as hospitality);
• Public realm (design and presentation of streets, squares, parks and other public
spaces);
• Sustainability (through retail analysis, ‘buy-in’, quality urban design, funding and
management).
2.3 Psychological Characteristics
• A “sense of place” (distinct character and personality reflecting unique location, culture
and heritage);
• Stewardship (improve security, promote civic pride and engender community
responsibility through consultation, best practice urban design and management);
• 24-hour experience (recognised as ‘always busy’ encouraging mixed-uses, events [both
for local and tourism consumption] and lighting);
• Governance (review, adapt and develop new planning and development guidance,
rules and regulations to promote and facilitate CBD aspirations);
• Desirability (a ‘must-see’ destination consolidating existing strengths and attracting
different uses).
Methodology
Page - 7
3 Methodology
3.1 A Strategic Partnership
International best practice is increasingly adopting the philosophy of Strategic Public/ Private
Partnerships for the delivery of major projects. The first action of the ‘CBD project team’ was
the formulation of (and long-term commitment to) a Tri-Partite Partnership during the
“Visioning process” and later a Bi-partite Partnership (which incorporates Consultant input
when required).
The Tri-Partite Partnership was to be dedicated to the development, delivery, promotion,
implementation and ongoing management of a shared vision and aligned strategy for the
Rotorua CBD.
The Tri-Partite Partnership for the workshops comprised:
• Community representation, eg elected representatives; Arts, Culture and Heritage
representation.
• Business representation, eg key private-sector stakeholders such as landowners,
investors, Chamber of Commerce, Iwi, Retail Rotorua, the Property Council etc.
• Technical and professional expertise, eg technical/office support (strategic planning,
transportation planning, consent planning), professional support (Project Urban Design
Team, specialist advice as required, eg retail planning, economics, branding and
procurement etc).
3.2 Fact Finding/Information Review
During this phase, the project team furthered its understanding of Rotorua’s existing situation
with regard to retail and strategic development. We built a basis for an understanding of the
likely future ‘shape’ of Rotorua, based on key documents including Rotorua CBD Retail
Strategy 2003, Bright Economy Strategy, Rotorua Urban Transport Study 2003, Bike
Rotorua, Rotorua District Growth Report, the District Plan, CBD design guides, the LTCCP,
and trends in economic development policy. The data needed for subsequent analysis was
also identified and collated at this stage.
3.3 Stakeholders
3.3.1 Consultation Workshop 1 (Perspectives)
The Project Design Team facilitated an initial consultation workshop to consolidate
shared knowledge within the Tri-Partite Partnership. This helped determine:
• The basic framework required to determine a future “shared vision” for the future
development of the CBD
• The framework for determining and analysing the physical and psychological
characteristics of the CBD.
3.3.2 Consultation Workshop 2 (Aspirations)
Workshop 2 was designed to determine:
• A “shared understanding” between key stakeholders of the current strengths,
weaknesses and key issues to be addressed within the CBD
• A “shared vision” of how the CBD might evolve in the future and what the key
elements and features that underpin its future successes will be
Key stakeholders included Rotorua District Council staff, Retail Rotorua, Rotorua
Chamber of Commerce, Ngati Whakaue, Pukeroa Oruawhata Trust. MTEC and key
landlords.
Methodology
Page - 8
The results of the workshop have been analysed and consolidated to determine a clear
vision, strategy and tactical plan for the future development of the CBD. The next stage
of the process was to identify tangible options, specific projects and their success
factors. This will be a role for the CBD “Investment Manager” in conjunction with the Bi-
partite group. The details and costs of specific projects will be scoped including funding
and issues with long-term governance. We aimed to evaluate options for implementing
the retail strategy including possible changes to plans, policy, design principles and
funding sources. A key aspect of this phase was to identify a framework for long-term
management and governance.
3.3.3 Consultation Workshop 3 (Solutions and Options)
The Project Design Team subsequently summarised the basic options for developing
the future strategy for the CBD and presented these to the Stakeholders involved to
date. Our finalised CBD Revitalisation Strategy is based on the feedback from this
presentation.
Retail
Page - 9
4 Retail
4.1 Background
Retailing is a dynamic and constantly evolving industry with shops and shopping centres
constantly changing.
Most city centres began losing retail market share shortly after the enclosed suburban
shopping centres first appeared in the 60’s and 70’s. Increases in car ownership and retail
building made the suburban shopping centre more accessible and convenient for a rapidly
growing suburbia. The suburban shopping centre grew in size and number, whilst CBD
retailing stagnated or shrank.
Today a number of suburban centres have reached regional status, ie over 35,000 square
metres, something unheard of in New Zealand 10 years ago.
Aside from the obvious advantages of free parking, climate control and safety that most large
suburban centres have over CBD retailing, other factors also impact on CBD retail
performance and growth prospects:
• Replication
Suburban centres have grown larger by incorporating more and more of what used to
be the exclusive retail and entertainment domain of the CBD. Department stores,
cinemas, restaurants, cafes and family entertainment centres (formerly amusement
arcades), were once found only in the CBD.
• Distance
As population growth pushes outward, people become more remote from the CBD. As
metropolitan areas grow larger in population and in physical extent, there also grows a
significant proportion of the population for whom the CBD and its retail, entertainment
and other facilities have little relevance. An entire generation of suburban shoppers is
emerging that has little knowledge - or need for - CBD retail facilities.
• Compactness
Shopping centres, even the largest regional centres, are comparatively compact and
shoppers quickly come to know where to find everything. CBD shopping streets and
malls are geographically more extensive so that it not only takes longer to get there, it
also takes longer to shop there.
Suburban shopping centres also have the advantage of single ownership and
management. They are able to change the merchandise mix and position of shops for
maximum synergy between destination and impulse traders, and to design and control
its carparking facilities. As private property, they operate their own security and
maintenance teams and they can control who enters the centre, their behaviour and
even their standard of dress. Centre management and security can remove undesirable
people, even if they are not breaking the laws. All these advantages combine to
produce a highly efficient and convenient retail machine.
4.2 The City Centre Advantage
CBD’s throughout Australasia have attempted to protect and nurture their retail shopping
streets by emulating some of the physical and operating characteristics of the suburban
shopping mall. The creation of a retail zone to separate people from traffic mimics the
enclosed mall. Management structures or associations were created and levies charged to
fund additional maintenance, security and entertainment programmes. Retail zone managers
are usually confined to managing the public spaces, and have little or no say over the
merchandise mix and positioning of shops fronting the mall. A city council can control how
mall frontages are used through zoning, signage and building regulations. Seldom is it used
effectively or creatively. However, the CBD has several competitive advantages over the
suburban shopping centre, as noted by the International Downtown Association:
• Innovation
As there are usually many property owners and many different tenants, and more
Retail
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diversity in size, shape, lease terms and rental levels, the CBD is a place of innovation
and incubation for new retail and entertainment ideas.
• Diversity
More than anywhere else in the community, the CBD is common ground to all members
of the community, and is reflected in the diversity of shops and entertainment available.
The retail mix of suburban shopping centres tend to be indistinguishable from one
another, and reflect prescribed socio-economic target markets.
• Culture
Many CBD’s are also the cultural centres of the city, both on the grand scale -
museums, theatres, performing arts centres and on a more modest level - historic
churches and buildings, street theatre and school performances.
• Excitement
CBD’s can be places of entertainment, excitement and anticipation. Part of the attraction
of city centres is a degree of unpredictability (unlike regional shopping centres). Things
happen there, and they can happen at any time, right in front of you.
Tolerance of diversity, willingness to experiment and take risks, together with a strong public-
private management partnership, are key attributes of a successful CBD retail base,
regardless of whether it is a shopping street, retail zone or transit mall.
Adoption of many managerial and promotional aspects of the suburban shopping centre has
improved CBD retail performance. However, it is dangerous to assume that if adopting a little
of the suburban centre management formula is good, adopting more must necessarily be
better. City administrators and their mall management groups must protect and nourish its
key competitive advantages by avoiding overly prescriptive regulations and regimentation
that might dampen innovation and tolerance. These are key advantages that cannot easily be
replicated by large suburban centres.
4.3 Retail Trading Hours
A review of pedestrian and transit malls reveal two common, and related, attributes - the high
dependence on the CBD workforce for retail sales and the desertion of the CBD and its retail
areas after 5.00 pm (such as in Rotorua CBD). Most retail shops in most CBD retail zones
close by 5.30 or 6.00 pm. Cinemas, bars and restaurants are the exceptions, but unless they
are physically “clustered”, it is difficult to create the necessary sense of activity and vitality to
encourage adjoining retailers to remain open.
4.4 Shopping Hours and Visitors
An increasing “poverty of time” experienced by workers and households is due to several
factors, including:
• the increase in two family incomes
• an increase in the average working week
• increasingly ‘busy lives'.
Despite these changes, the majority of Rotorua’s CBD retailers, as with most specialty
retailers in suburban shopping centres, have yet to find it economic to remain open after 5.30
pm or so. However, international visitors are not impressed with CBD retail streets that “roll
up the sidewalks” at 5.30 pm. Aside from a few souvenir shops, duty-free shops and
restaurants, there is little available to meet visitor shopping needs after hours. After spending
the day sightseeing or in conferences, many visitors want the opportunity to shop in the early
evening.
In cities with large tourist populations, shops stay open later; they do not where the primary
market and function of the CBD retailers is to provide for the retail and entertainment needs
of CBD workers and residents. Rather than longer hours, it was believed more important that
retailers stick to common trading hours, regardless of whether the CBD’s market is visitor or
locally based.
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4.5 Parking and Public Transport
Paid parking is a recognised deterrent to frequent CBD shopping trips by suburban residents,
even if they reside nearby. Hence, many residents use the CBD only for shopping at
Christmas and other holidays, accompanying visiting friends and relatives and special
occasions. It is less of a deterrent for late night and weekend shopping, and for entertainment
visits when parking fees are often reduced or at a flat rate. Perhaps the only bigger deterrent
is inadequate provision of carparking.
Failure to provide adequate parking available on or near retail zones will keep the suburban
shopper in suburbia (ie cost-effective/free short-term parking for casual shoppers and
separate long-term parking for staff/ office workers). It is acknowledged that the Council is
currently carrying out a study in determining transport and parking demands.
4.6 Importance of Entertainment
CBD retail zones provide a public stage for forms of entertainment that cannot be
accommodated in suburban shopping centres, This entertainment is vital to fostering the
sense of “anything can happen” anticipation in CBD workers, shoppers and visitors. Street
mimes, human statues, local performers and cultural groups are most unlikely to be
encountered at shopping centres. These forms of entertainment add to the diversity, culture
and excitement aspects of the CBD’s competitive advantages. The CBD is also an important
venue for community choirs, bands, ensembles and other performers seeking exposure. It is
even a venue for well-established performers who busk as a means of trying out new material
or who simply enjoy getting back to their “roots” occasionally. Busking appears to be the
primary form of entertainment in pedestrian and transit malls throughout Australasia and
overseas.
4.7 Conflicts between Entertainment and Retailing
Live entertainment has been part of retailing since humans first established settlements and
bartered for goods and services. Market days brought together buyers, sellers and
entertainers. Although the connection between retail and entertainment has waxed and
waned over the millennia, it has never disappeared. It has been introduced into the enclosed
shopping centre and brought back into the public retail spaces.
Despite the long and generally harmonious relationship between retailers and performers, it is
not without its problems. Performers help draw and keep people in the marketplace and they
hope to be paid for the service they provide - either by the audience or by the traders
themselves. From the perspective of some retailers, every coin dropped in a hat is one less
coin in the till; crowds of people standing around watching a juggler are being distracted from
shopping.
This problem is endemic to both suburban regional centres and CBD retail zones.
Entertainment empties out the shops for a period of time. Stationary crowds block access to
shops. A typical complaint is that the only retailers who benefit from entertainment are those
selling ice creams and drinks.
Large suburban shopping centres almost always provide a purpose-built centre stage or area
for entertainment, as well as for merchandise displays and fashion parades, which usually
solves the obstructed shop problem. Many retail zones provide similar areas but are
constrained by pre-existing conditions such as mall width and by function. A retail zone is not
only a shopping street, but is also a commercial thoroughfare.
Public squares, which are generally more spacious than retail zones, may be better venues
physically for CBD entertainment. Although generally within sight and easy walk from the
retail zone, many entertainers and retailers might find such an arrangement highly
unsatisfactory as it would remove people from the retail zone altogether for periods of time.
They run the risk of some people not visiting or returning to the shops at all. It would, on the
other hand, solve a congestion “problem” many retailers hope for.
4.8 Timing
CBD retailers do have a legitimate case for the sensible scheduling and duration of
entertainment and attractions which command large audiences. Office workers, the backbone
of most CBD retail streets in larger cities, have limited time to shop - usually during their lunch
hour. While it is easy for mall managers to control the scheduling of major events, this
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approach cannot as easily control the time and duration of buskers, even with a permit
system.
4.9 Public Art
Many city centre programs use the “percentage for art” approach whereby developers fund
commissioned works of art as part of getting a development permit. In addition to funding
standard art work, such as sculptures and murals, some programs address common
functional problems with site-specific artistic solutions. For example, rather than selecting
public seating for retail zones out of a catalogue, artistically designed and custom-made seats
can be commissioned to serve both a functional and entertaining street furniture. The artistic
touch, however, cannot override practical considerations such as vandalism and
maintenance costs.
4.10 Community Entertainment
CBD’s commonly serve as venues for the staging of school and community bands, choirs,
artists and community service group displays.
Individual or groups of retail zone retailers also provide public entertainment (and marketing)
in the form of sponsoring paid performers, fashion shows and merchandise displays.
4.11 Evening Entertainment
Few city centre retail zones in Australasia have managed to retain or attract significant
numbers of people after 6.00 pm. Those malls showing the greatest successes in attracting
evening crowds have a clustering of cinemas, theatres, restaurants (especially alfresco dining
on the mall), coffee shops/cafes and night clubs in a part of the mall. As with retailing, if these
entertainment uses are dispersed over too long a distance in the mall, they can fail to create
the necessary concentration and intensity of activity to sustain a vibrant (and safe) evening
destination.
4.12 Retail Zones as Tourist Destinations
Visitors naturally gravitate to the city centre for the same reasons as local residents – the
cultural attractions, diversity and shopping. Retail zones in themselves are not tourist
attractions with some notable exceptions. They simply provide visitors (and residents) with a
space in which to enjoy existing features of the city centre.
CBD retailers, whether on a shopping street or on a retail zone, are usually adept at
identifying visitor retail needs and adjusting the merchandise mix accordingly, although CBD
office workers and residents create demand for many of the same retail activities as visitors
(especially food, some fashion and entertainment), their needs also diverge. The retail mix
should evolve to reflect the core market of each. If a retail area becomes known as a major
tourist shopping destination, such as the malls in Surfers Paradise, it may drive the local
market away. Similarly, if it caters exclusively to a 9 to 5 workforce, visitors will seek
alternatives. Market forces ultimately produce the appropriate retail mix. However, market
forces cannot always be relied upon to provide visitor services in CBD retail streets or retail
zones. Information kiosks in highly visible locations help.
4.13 Factors in the Success and Failure of Malls
Adequate parking, the presence and strategic placement of generative or anchor retailers,
shopper amenity and security are all fundamental requirements for successful CBD retail
zones, as they are with any suburban shopping centre.
4.14 Strong Retail Base
Having one or more major department stores appears as almost a prerequisite for a
successful CBD retail zone.
However, many cities lost their department stores to the suburbs years ago, yet have
maintained (or re-invented) a vibrant CBD retail sector, at least during the weekday. Other
uses have proven viable substitutes for department stores as generative or magnet retailers.
Recent examples include sports stores, especially interactive stores, such as Niketown,
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Rebel Sports and Sony, cinemas and coffee/bookshops such as Borders (Rotorua is
fortunate in this respect as many of the department stores are located on a “retail park”
attached to the CBD).
There has also been growth in the Art Markets throughout Australasia as a weekend/tourist
destination. In New Zealand, an excellent example would be the Christchurch Arts Centre
Market that acts as both a tourist and local attraction every weekend of the year. Art Markets
encourage the best local arts and crafts people to display and sell their goods in a cohesive
and well managed manner and may be supported by unique dining and food opportunities.
As Rotorua is the heart of New Zealand’s cultural experience, it would make it the perfect
place to encourage an artisan market.
4.15 Strong Business Support
Whether a CBD retail zone is managed and promoted by city council or by a public-private
partnership, strong support from retailers, non-retailers and property owners is fundamental in
maintaining a viable and successful shopping street. Those malls that appear to work best
(and had sound conditions for establishing the mall in the first place) have active support
(monetary and time) from the private sector.
4.16 CBD and Inner City Residential Development
Residential development activity in city centres is on the increase. The people moving to the
CBD and inner city areas are generally young and mature age professionals without children.
Proximity to work, restaurants, cinemas and cultural attractions are key draw cards.
Shopping is also important, but not a determining factor. This development also adds life and
vibrancy to the CBD in addition to governance and surveillance elements.
4.17 Recommendations
4.17.1 Mall Management
Several retail zone management models are used by city councils. Some councils have
little or no private sector input into day to day management and maintenance of the
CBD, whilst others have public-private partnerships. These partnerships are the minority
in New Zealand, and while that partnership exists in the promotion of the CBD retail
zone, the physical management should be undertaken solely by the Local Authority.
However, there is the capacity for private enterprise to advise on issues through an
Advisory Committee.
4.17.2 Rotorua District Council Role, Staff, Responsibilities
The RDC Works Unit should provide staff for the operation, administration and
management of the CBD under the direction of the Rotorua CBD Manager (this role
exists largely already, the role of the CBD Manager may need to be reviewed in order to
provide further support in light of the outcomes from the “vision”). Policy and strategic
direction is provided by a Rotorua CBD Advisory Committee and the Council Works
Unit. The unit responsibilities would include:
• Asset management
• Safety camera monitoring system
• Cleaning
• Contract and permit management of all tenancies on council land
• Liaison with Police
• Liaison with the Rotorua CBD Advisory Committee.
4.17.3 Rotorua CBD Advisory Committee
A not-for-profit organization should be set up that will be the recipient of a Council
special area rate, and should include a constitution and framework under which it is to
operate. The framework assists Council in the overall management of activities in the
Mall.
This should be a local group consisting of (but not limited to) representatives of Local
Business, Local Iwi, Local Landlords and Tenants, Local Retailers, Council
Representatives, Police and other interested parties/ stakeholders; with the Mayor
acting as the “public face” of the group.
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The Advisory Committee would be funded from a benefited area rate levied by the
Rotorua District Council on rate payers within the inner city area in three distanced
categories depending on proximity to Tutanekai Street. Those closest, ie “A”
classification members contribute the highest rate, “B” classification, and “C”
classification. From this fund the Advisory Committee would receive funding that would
be expended as follows:
• Administration
• Media
• Promotions and Marketing.
The administration, media and promotions and marketing funds are expended in
accordance with that agreed by the Advisory Committee and implemented by the Rotorua
CBD Manager . The definition of the roles of both the Investment and CBD Mangers will
need to be determined by the committee. It is however important to note that the Investment
Manager’s role is more holistic and involves the implementation of the vision throughout the
wider CBD area. The role of the CBD manager is more focused on day to day delivery and
implementation of the vision within the central CBD area and is perhaps more akin to a
Retail Centre Management role and that which is currently being handled by Dennis Olliver.
4.18 Strategies
From our analysis, the following strategies may be appropriate to make it easier to use the
city:
• Provide and maintain a secure environment
• Address the parking needs
• Improve intra-city travel and links between areas
• Instill a confidence in customers they will always find what they want in the city - remove
risk and need for planning by educating the public about variety and depth of offering
including:
• Retail
• Dining
• Entertainment
• Tourism offer
• Improving familiarity
• Legibility
• City directory
• Engender notion that city can provide everything
• Encourage stronger CBD worker usage
• Encourage dwell time.
4.19 Tactics
4.19.1 Offer a Different/Unique Experience
• Foster development of precincts based on usage and notion that you can get
anything you want in the city
• Capitalise on the resulting different atmospheres through promotion
• Be at the forefront of retailing, food and entertainment
• Provide a tourism zone incorporating an Arts Market
• Protect and develop Rotorua’s civic role
• Be a family destination.
4.19.2 Foster Precinct Structure of City
• Engender the idea that the city is much more than Rotorua Central
• Develop and promote precincts for:
• restaurant/eatery belt(s)
• shopping/retail heart
• recreation/lakefront
• medical, commercial, government
• transport.
• Lobby and work with Council to assist in the realisation of precinct structure
• Continually promote precinct structure reinforcing notion that you can get
anything you want in the city.
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• Each precinct should have its own identity but under the umbrella of the city
• To reduce risk and need for planning, each commercial precinct must offer:
• a range of price points
• a range of service styles (e.g. BYO/ licensed)
• a range of styles and quality
• Reinforce linkage of precinct areas:
• opportunity to use more than one area on each trip
• provide ways people can easily move between areas
• tell people how they can do it.
4.19.3 Capitalise on Different Atmosphere
• Ensure that each area develops its own identity
4.19.4 Be at the Forefront
Establish city’s reputation as Rotorua’s:
• Retailing centre
• Food centre
• Entertainment centre
• Arts and crafts centre
• Position as Rotorua’s showpiece for new styles, outlets, etc - keep up with trends -
go to the city
• Always something new
4.19.5 Maintain Civic Role for Rotorua
• Ensure civic functions continue to happen in city
• Increase activity and profile of lakefront
• Protect because this role is unique to city
4.19.6 Keep Target Market Informed
• Inform and constantly remind target market of what’s in the city:
• Advertising
• Comprehensive store guide by category that can be handed out
• Promote guide
• Ensure retail and tenant mix continues to cover all categories
• Continued and improved promotion of entertainment activities in CBD:
• publicise schedule of activities
• Notice board - “Today in Rotorua”
• Rotorua Press
• Radio spots
In summary, all of the aforementioned would be undertaken by the Advisory
Committee as a result of monthly meetings by the Board who, whilst on day-to-day
activities may be fierce competitors but in accord as a body promoting the Rotorua
CBD. A small group of key staff co-ordinate the promotion and marketing of the
CBD in conjunction with Council staff who would administer and manage all other
attributes of the Rotorua CBD.
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5 Urban Design Narrative: “Shared Vision”
The proposed CBD concept plan has been developed as a creative response to a number of
factors identified during the information and analysis stages of the study, including:
• Key stakeholder consultations
• Consultation workshops
• Liaison with RDC representatives
• Review of current and planned initiatives within the CBD area
• Data and document analysis
• Urban design appraisals and analysis
• Retail and commercial appraisals and analysis.
The plan should provide the basis for guiding future development within the CBD with a view
to revitalising the heart of Rotorua into a vibrant, prosperous and attractive city centre that
reflects the dreams and aspirations of the Rotorua community and its key stakeholders.
The CBD concept plan has been designed around a number of key elements:
5.1.1 Central Spine, (Tutanekai Street)
A spine represents the organisational heart of an
organism – it provides the structure for the central
nervous system and the concentration of principal energy
flows.
In the case of Rotorua CBD, the spine is formed by
Tutanekai Street.
A number of factors have been considered:
• The spine must reinforce the connection between
the core CBD area and Lake Rotorua. In this
regard, it is imperative that the Tutanekai Street
spine is extended through and integrated into any lakeside redevelopment plans.
• The spine should be a vibrant, pedestrian-focused environment. We do NOT
recommend full pedestrianisation of Tutanekai Street and the exclusion of cars –
high street environments thrive off limited traffic access and there are times when
traffic access through Tutanekai Street should be encouraged (eg evenings).
However, the predominant driver for any new streetscape works should be
pedestrian amenity.
• The spine should incorporate appropriate art and street furniture to enhance
pedestrian amenity and articulate appropriate elements of the city narrative.
• Covered pedestrian access should be facilitated through enhancement of
shopfront verandas.
• The spine will transgress a number of “precincts” within the CBD area. The
interaction of the spine with the particular design characteristics of individual
precincts will enhance the sense of place and assist in wayfinding and orientation
within the CBD.
• High Street retail outlets should be concentrated in the southern section on
Tutanekai Street (between Amohau Street and Haupapa Street). This will reinforce
the retail offering that is currently being developed across Amohau Street.
• The need for a significant “attraction” along the Tutanekai Street spine to draw
people into the heart of the CBD has been identified. Within the concept plan, this
is represented by a new civic plaza located between Arawa Street and Haupapa
Street.
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5.1.2 “Green Corridor”
The need to better integrate the core CBD area with
peripheral CBD attractions has been clearly identified.
The CBD concept plan proposes the development of
the Arawa Street/Haupapa Street area as a “Green
Corridor” providing a link between Kuirau Park and
Government Gardens:
• Significant landscape enhancement of both Arawa
Street and Haupapa Street to enhance both
pedestrian and visual amenity.
• Incorporation of appropriate art and street furniture
to enhance pedestrian amenity and articulate
appropriate elements of the city narrative.
• Incorporation of cultural narrative in streetscape and parkland elements (see
Appendix “Public Realm”.
• Encouragement of Art and Cultural Precinct development within “Green Corridor”
environment.
• Amendments to Kuirau Park to enhance pedestrian connectivity with CBD area.
• Enhancement of pedestrian connection with Government Gardens.
5.1.3 Lakeside Environment
The lakeside environment lies outside the parameters
of this study. And is subject to a separate project.
However, the integration of the lakeside environment
and the core CBD area is fundamental if the CBD is to
fully realise its potential.
• The CBD “spine” (Tutanekai Street) should be
extended to provide clear and direct pedestrian
access to the lakeshore.
• Features should be used to attract lakeside
visitors into the heart of the CBD. These may
include animated pedestrian walkways, gateway
features, art works etc utilizing local themes
such as the story of Hinemoa and Tutanekai.
• The visual and physical link between Fenton Street and the lakeside should be
reinforced.
• We understand that consideration has been given to relocating the lakeshore
(bringing it closer to the City Centre). Without carrying out further design
investigation, it is not possible to comment on the viability or desirability of this
proposition. However, we would not underestimate the value of the existing
recreational areas or the “Village Common” reserve area located adjacent to
Whakaue Street.
• The opportunity to create a significant visitor/cultural attraction on the lakeshore
with direct pedestrian access to the core CBD area should be explored.
• Certain existing elements within the lakeside area appear inappropriate and
distract from the intrinsic visual and amenity value (eg existing hospital facility on
Whakaue Street)
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5.1.4 “Lakeside Promenade” (Scenic Entry to Rotorua)
Rotorua’s existing visitor arrival arrangements tend to direct visitors to the southern part
of the CBD area. This does not represent a positive “first impression” of Rotorua. Only
through exploration can visitors discover the quality of Rotorua’s City Environment. In
addressing the revitalisation of the CBD, consideration should also be given to the
manner in which visitors “arrive” in Rotorua.
• Consideration should be given to the development of a new “Lakeside
Promenade” which would serve both pedestrian and vehicle traffic.
• The “Lakeside Promenade” would represent Rotorua’s “first impression” for most
visitors.
• Visitors should, as far as practicable, be directed into the Rotorua CBD via the
“Lakeside Promenade”.
• The “Lakeside Promenade” should exploit and enhance the general lakeside
environment and associated views and vistas.
• The “Lakeside Promenade” could provide significant added value to development
opportunities in the lakeside area.
• The “Lakeside Promenade” should link Fenton Street to the access routes north of
the city.
• Traffic utilizing the “Lakeside Promenade” would need to be controlled to prevent
access to large heavy goods vehicles (other than for delivery) and to ensure the
desired nature of a picturesque approach to the city.
• 2 lanes, wide pedestrian facilities alongside and in centre (perhaps continuous
median or intermittent to slow alignment), and a clear, wide pedestrian crossing
(signal-controlled) at the Lakefront link from Tutanekai Street.
• The “Lakeside Promenade” reinstates the concept of the Lakeside “Parade” as per
the original master plan for Rotorua published in 1882.
• The actual development of the Lakeside frontage will be influenced by the outcome
of the separate project.
5.1.5 “Grand Avenues”
The core CBD area should be defined and
consolidated by the development of “Grand
Avenues”.
These avenues already exist within the CBD urban
grid. However, their current ambience is that of
“significant roads” dominated by vehicle
requirements, rather than “grand avenues” that
define and enhance the civic quality of Rotorua’s
CBD.
• The urban history of Rotorua suggests that the
development of “Grand Avenues” is entirely
appropriate. One of Rotorua’s unique
characteristics is the “layering” of culture and
history – the co-existence, for example, of
primeval natural environments and cultured, ornamental gardens. Rotorua’s urban
grid exists in contrast to the surrounding natural environments and geothermal
features. This polarisation should be enhanced and exploited within the CBD
environment.
• “Grand Avenues” should be subject to landscape enhancements that reaffirms
their status as significant civic elements within Rotorua’s CBD – street trees,
enhanced pedestrian environments, reduction of traffic impact, public art,
appropriate design guidance for associated new development etc. It is important
that in developing these features, design concepts should express elements that
are “uniquely Rotorua” in addition to choice of specimen trees.
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• CBD public transport routes should be aligned with the “Grand Avenue” structure
in order to assist orientation and wayfinding.
• Fenton Street should represent the principal “Grand Avenue” within Rotorua’s
CBD. It offers the principal vehicle connection to Lake Rotorua and defines the
eastern edge of the core CBD area.
• Amohau Street currently provides for “through-traffic” being designated state
highway. However, planned highways changes should allow the development of
Amohau Street as a “Grand Avenue” which would enhance pedestrian amenity,
encourage high quality commercial development and significantly enhance the
core retail area within the CBD area.
• Other “Grand Avenues” within the core CBD area should be Ranolf Street, Arawa
Street, Haupapa Street, Rangiuru Street and Whakaue Street. In consolidating
these “avenues”, the basis of a logical “precinct structure” for the CBD will have
been established.
5.1.6 Street Network
Within the area defined by the “Grand Avenues”, a logical and easily understood street
network should be consolidated.
• We would strongly recommend the retention of high levels of “permeability” in
respect of the street network and would consider the “closure” of streets only in
very specific locations and circumstances.
• Streets within the core CBD area should generally be two-way, but carriageway
widths should be reduced to a minimum.
• Obstacles promoting horizontal shifts in street alignment within the core CBD area
(roundabouts, chicanes, winding routes [such as City Focus]) should be avoided.
• Streets traversing the CBD in an east/west orientation should be maintained as
through-traffic routes incorporating parallel carparking to allow maximum
pavement widths.
• Within the retail high street environment (south of Haupapa Street), Tutanekai
Street should focus on the quality of the pedestrian environment but should
facilitate managed traffic access. Management of traffic access along Tutanekai
Street may vary at different times of the day or week.
• North of Arawa Street, Tutanekai Street should adopt a similar character to the
east/west street network offering through-traffic capability and parallel street
parking with wide pavements.
• Carparking should be distributed throughout the CBD area. However, large
parking areas or buildings should, wherever possible, be hidden from direct view –
Rotorua’s CBD offers an ideal structure for perimeter block commercial / retail /
residential development with carparking hidden within the centre of the urban
block. Maintenance and enhancement of the current policy of rear service lanes
should provide the necessary structure for both carpark and service access.
• Where street parking is provided, parallel parking should be the preferred model.
Parallel parking improves visual amenity, reduces the effects of vehicles and offers
a better environment for pedestrians( wide paving, narrow roads).
5.1.7 Urban Precincts
Rotorua’s consolidated CBD area should be
revitalised through the promotion and
development of distinct urban precincts:
(1) Retail Precinct
• The main domestic retail precinct
should be located around the southern
section of Tutanekai Street. Current
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retail development along Amohau Street should be reinforced by high quality
retail development within Tutanekai Street.
• Opportunities for “anchor retail” outlets should be explored at the intersection
of Amohau Street and Tutanekai Street. To encourage pedestrian migration
across Amohau Street.
• High street retail outlets should be concentrated in the southern section on
Tutanekai Street (between Amohau Street and Haupapa Street). This will
reinforce the retail offering that is currently being developed across Amohau
Street.
• Design guidelines should be developed to protect the retail amenity value of
Tutanekai Street. These guidelines should encourage the development of
appropriate retail outlets, and prevent the development of long, un-animated
and inappropriate street frontages within Tutanekai Street (frequently
encountered with banks, estate agents and similar CBD developments).
• Secondary retail outlets are likely to migrate to the secondary street network
within the CBD area.
• Fenton Street and Amohau Street will continue to provide a location for
appropriate (non-high street) retail outlets.
• The creation of an “Arts Precinct” in the vicinity of Arawa Street and Haupapa
Street will encourage pedestrian migration northward from Amohau Street
along Tutanekai Street.
• There is a distinction between domestic and tourist retail precincts. We have
identified the domestic retail precinct as being to the southern end of
Tutanekai Street. The tourist offer should be encouraged to the north to act
as a buffer between the retail and the arts precinct. This should include high
level offers such as YSL, Channel etc. This will be an area which is more
likely to be associated with the night culture and tourist leisure shopping in
the evening/night time. The Entertainment precinct (see below) will act as an
anchor to facilitate this function.
(2) Art and Cultural Precinct
• The CBD revitalisation programme should
promote and encourage the development
of an “Art and Cultural Precinct” in the
vicinity of the proposed “Green Corridor”
(Arawa Street/Haupapa Street).
• Central to the Art and Cultural Precinct,
we propose a new Civic Plaza capable of
hosting events, concerts, themed markets
etc.
• Consolidation of the Art and Culture
Precinct will require the selective removal
and relocation of inappropriate facilities
(eg Court building).
(3) Entertainment Precinct
• The entertainment precinct is shown as a
natural development of that which is
occurring in the vicinity of Tutanekai
Street and Pukaki Street.
• This area is already a focus for café
outlets, restaurants and hospitality.
Initiatives should seek to further promote
this activity.
Urban Design Narrative: “Shared Vision”
Page - 21
• Consideration should be given to artistic lighting projects in this area to
encourage night time use
• Links to the lakefront are critical from this area – the design of any such
linkage should be given careful consideration.
• Residential accommodation, small-scale business outlets, work/live units
should be encouraged in this area.
(4) Commercial Development
• The development of an intense, high
density, vibrant and prosperous
commercial component within the CBD
will be a key factor in its long-term
success.
• Commercial development should be
focussed on the peripheral areas of the
CBD area.
• Commercial development would be
welcomed on the upper levels of core
CBD developments, but not at the
expense of ground floor retail outlets
within the core Retail Precinct.
• Existing commercial developments in the southwest of the CBD are
encouraged – improving pedestrian access from these areas into the core
CBD area is important.
(5) Residential Development
• Residential development should generally
be encouraged within the CBD
environment.
• Residential development adds to a sense
of community and can promote steward-
ship and security within CBD
environments.
• Residential development will assist in
supporting local, marginal or speciality
retail outlets.
• Residential development should be
encouraged above ground floor
commercial/retail uses, particularly along
streets traversing east/west across the CBD.
• Appropriate CBD residential development may comprise apartments,
work/live units, short/medium-stay accommodation, 2/3-storey terraced
townhouses etc.
Urban Design Narrative: “Shared Vision”
Page - 22
5.1.8 New Civic Plaza
There is a strong need for the development of a
significant “attraction” within the heart of the CBD
area. The concept plan indicates a new Civic Plaza
located along Tutanekai Street between Arawa
Street and Haupapa Street.
• The new Civic Plaza would form the
centrepiece to the Art and Cultural Precinct.
• The Plaza should be envisaged as one of
Rotorua’s “must see” attractions.
• The design of the Plaza should include artistic
installations that articulate of the city narrative,
perhaps tracing layers of history from primeval
geothermal activity to modern day.
• Design and material specifications would facilitate intense use – concerts, events,
exhibitions, themed markets etc.
• The creation of a successful Plaza environment will require the rebuilding/
remodelling of buildings in the vicinity (such as the removal of the existing
Courthouse building)
• Design guides and incentives that promote the development of arts and crafts
outlets, galleries, cafés, studios etc should be considered.
• Consideration should also be given to attracting families with young children –
interactive “play” features should be incorporated (note, these should be by way of
art installations, water features etc – a children’s playground is not proposed in this
location).
• Lighting would be a major element – artistic lighting installations ensuring that the
area offered a unique and memorable night time experience.
• It is generally envisaged that traffic would be excluded from the Civic Plaza.
• The Civic Plaza would be the most significant of a series of “civic spaces” along
the spine of Tutanekai Street which would provide relief from the more intense
urban areas in between and offer opportunities for public displays, kiosks, amenity
and other uses in line with the CBD management plan. These other spaces are
also important; such as a redesigned City Focus.
5.1.9 General Development Guidelines
The CBD area should be subject to Development Guidelines that promote and guide
appropriate developments within the respective urban precincts.
• It is generally envisaged that development within the CBD area should be
restricted to three or four storeys in order to retain a “human scale” and facilitate
sunlight access etc.
• Developments of greater height should not necessarily be refused, but specific
regard should be given to location and impact.
• Single-storey development should be discouraged.
• Non-street carparking in front of buildings within the CBD area should be avoided
– building frontages should generally follow the “back of pavement” line.
• Where street parking is incorporated, it should be of a “parallel parking”
arrangement – particularly in areas reliant on high pedestrian movements.
• Guidelines should promote “active frontages”. Long, bland facades should be
avoided. In areas reliant on high pedestrian movements, physical animation of
frontages (eg access doors) should occur at 7-10m intervals.
Urban Design Narrative: “Shared Vision”
Page - 23
• Street furniture, lighting and surface materials should be consistent and
appropriate to their respective urban precinct.
• Opportunities for the incorporation, funding and promotion of public art should be
maximised.
• Surface areas dedicated to pedestrian amenity should be maximised – surface
areas dedicated to vehicle use should be minimised.
• One-way vehicle routes should generally be avoided.
• Comprehensive pedestrianisation of streets should generally be avoided.
• Initiatives to assist in the improvement and enhancement of building frontages
(historic building facades, canopy upgrades etc) should be considered. Initiatives
might include artistic lighting of historic/character buildings.
• All new developments should be subject to CPTED analysis and reports.
• All new developments should be subject to accessibility review.
• All new developments should embrace the principles of the NZ Urban Design
Protocol.
• The CBD environment should be placed under the guidance of a CBD manager –
responsible for maintaining the quality of the CBD environment, ensuring the
wellbeing of visitors, promoting events and special occasions who reports to the
CBD “Investment Manager”.
• Consideration should be given to plan changes that make all CBD developments
discretionary and subject to a “design quality” review as part of the Resource
Consent process (plan changes of this type are already in place or under active
development in several New Zealand cities).
Implementation
Page - 24
6 Implementation
6.1 Indicative Timeline (Projects and Priorities)
Timeframe Timeframe Timeframe Timeframe (years)(years)(years)(years) FundingFundingFundingFunding 1 2 3 4 5 6 7 8 9 10+
Establish a Establish a Establish a Establish a MMMManagement anagement anagement anagement PPPPartnershipartnershipartnershipartnership
Create role of “Investment Manager” Special Levy
Set up Bi-partite group chaired by the “Investment Manager” Special Levy
Provide staff for CBD Manager role and support RDC
Establish a communication plan RDC
Promote CBD as a DestinationPromote CBD as a DestinationPromote CBD as a DestinationPromote CBD as a Destination
Link major events to CBD RDC + Private enterprise
Exploit Spa Town theme RDC + Private enterprise
Improve family and pro-youth activities RDC + Private enterprise
Actively market CBD via multi-media RDC + Private enterprise
Structure the CBD to Structure the CBD to Structure the CBD to Structure the CBD to EEEEncourage ncourage ncourage ncourage MMMMovement and ovement and ovement and ovement and VVVVibrancyibrancyibrancyibrancy
Improve integration of Rotorua Central RDC + Private enterprise
Link North and South of Tutanekai Street (“string of pearls”) RDC + Private enterprise
Improve integration of Lake front RDC + Private enterprise
Maintain visual and environmental amenity for pedestrians RDC + Special Levy
Adapt local and regional tourist transportation to suit “Vision” RDC
Provide Provide Provide Provide FFFFacilitation and acilitation and acilitation and acilitation and SSSSupport for upport for upport for upport for PPPPrivarivarivarivate te te te EEEEnterprise to “Run with nterprise to “Run with nterprise to “Run with nterprise to “Run with VVVVision”ision”ision”ision”
Implement changes to District Plan RDC
Address transport infrastructure support for “Vision” RDC
Adapt CBD traffic management to suit “Vision” RDC
Implement “Bike Rotorua” RDC
Note: the above are the priority actions.
The CBD Advisory Committee will need to evaluate the recommendations in the appendix of this report and determine priority of actions in order to deliver the vision. Changes to the uses within the CBD (as well as the built environment) may take longer to implement. However, the framework to facilitate these changes should be implemented sooner.
Appendix 1
Page - 25
Appendix 1
Urban Design: Existing City Centre Assessment
Page - 26
7 Urban Design: Existing City Centre Assessment
7.1 “Character”
7.1.1 Identity
(1) Observations
• International profile
• “Maori Face” of New Zealand
• Tourist Destination: maori culture, geothermals, beautiful environment,
adventure, good story (Hinemoa and Tutanekai)
• Cohesive and attractive appearance
• Desire to change (“look how far we have come”)
• Rotorua CBD “prettiest in category”
• “Great place to live; great place to work”
• Central location
• Mixture of cultures victorian/ maori
• Huge branding potential
• No inherent precincts (too mixed)
• Buildings feel cheap
• Perceived to be a “no-go” area at night
• No visible landmarks
• Not recognised as a destination
(2) Key Issues to be Addressed
• Consider what provides Rotorua’s character
• Make more of the cultural resource (it should be in-grained into the “feel” of
Rotorua)
• Make more of the natural resource (geothermal/ spas/ lake/ forests etc)
• Address Rotorua as a lakeside city
• Better linkages between CBD and surrounding environment
• Create distinctive public spaces
• Capture tourism, CBD a disappointment/ nothing for tourists to do
• City Focus is a “blockade” and divisive
• Lack of physical and visual connectivity in CBD (City Focus, courts, trees etc)
• Turns back on lakefront
• Provide diversity in appearance to allow better orientation
7.2 Desirability
7.2.1 Shared Vision
(1) Observations
• Rotorua “has no vision”
• Multiple drivers
• Confusing
• No sense of direction
• Sense of apathy
• CBD does not live up to expectations and “propaganda”
(2) Key Issues to be Addressed
Rotorua’s future should be based on the following:
• Best cultural offer in New Zealand
• Spa capital of southern hemisphere
• Great place for investors
• Vibrant retail, food and leisure offer 24/7/365
• Harmony between locals and visitors
• Unique Rotorua - link between CBD and surrounding natural resources
(geothermal, lake and forests)
• Sense of ownership and can-do attitude
Urban Design: Existing City Centre Assessment
Page - 27
• Great partnership between public and private sectors
7.3 “Cityscape”
7.3.1 Structure
(1) Observations
• Prevailing urban grid presents robust urban structure within CBD
• Main Street (Tutanekai Street) lacks clear identity and structure
• Lack of street hierarchy and precinct structure within core CBD leads to
disorientation.
• Relative absence of wayfinding features within core CBD area
• CBD area not well defined – stakeholder perceptions of “CBD area” vary
significantly
• Peripheral CBD areas to north, east and west offer significant amenity value.
• CBD core area somewhat disconnected from primary visitor/tourist/
residential areas.
(2) Key Issues to be Addressed
• Core CBD area needs to be consolidated and better defined
• Townscape hierarchy needs to be articulated within CBD structure to assist
wayfinding and orientation
• Strategic connections to peripheral CBD feature areas (lake, gardens etc)
need reinforcement
• Main street (Tutanekai Street) needs clear definition and priority focus.
7.3.2 Development Density
(1) Observations
• Overall development density within CBD seems relatively low due to
predominance of 1/2 storey buildings
• Footprint density, however, seems reasonable high
• Predominance of single-storey and two-storey development
• Lack of development density influences social and economic sustainability
(2) Key Issues to be Addressed
• Development guidelines should promote strategic increases in development
density within CBD
• Imperative that development density provides comprehensive, continuous
and animated street frontages wherever possible
• Increases in development density should be aligned with initiatives that
promote mixed-use development precincts within the CBD (including
residential)
7.3.3 Land-Use/Precinct Structure
(1) Observations
• Land use structure within CBD is incoherent.
• No clear precinct structure within CBD.
• Lack of rational precinct structure causing confusion in respect of orientation
and wayfinding
• Core retail area ill-defined, lack of focussed tourism offer
Urban Design: Existing City Centre Assessment
Page - 28
• Retail proposition compromised by lack of coherent land-use pattern
• Night-time activity issues (lack of) exacerbated by lack of coherent precinct /
land-use structure
• Café/hospitality precinct in vicinity of Tutanekai Street/Pukaki Street com-
promised by adjacency of inappropriate developments (eg Courthouse)
(2) Key Issues to be Addressed
• Core CBD area needs to adopt rational land-use and precinct structure
• Retail main street should be consolidated around southern end of Tutanekai
Street
• Café/hospitality should be further consolidated around Tutanekai Street /
Pukaki Street
• Arts and Cultural Precinct should be focussed around Tutanekai Street /
Arawa Street / Haupapa Street
• Commercial Precinct should be located to periphery of CBD with particular
emphasis on southwest CBD area.
• Residential development should be encouraged within CBD above ground
floor commercial/retail uses
7.3.4 Key Features and Landmarks
(1) Observations
• Wider Rotorua CBD area has significant number of key features (buildings,
vistas, parks, gardens, landscape areas etc).
• However, core CBD area relatively deficient in respect of key features.
• City Focus - stakeholder/community viewpoint mixed – majority view is
negative
• City Focus generally regarded as a barrier to flow and visual vistas within
CBD
• Courthouse generally regarded as inappropriate in current location
(2) Key Issues to be Addressed
• Key features within CBD, such as buildings of note, should be protected
(through District Plan provisions etc)
• Existing features both within the core CBD area and on the CBD periphery
should be clearly identified and signposted
• Clearly differentiated precinct structure would facilitate and encourage
development of appropriate key features
• City/regional narrative (eg Tutanekai/Hinemoa) should be woven and
articulated throughout key features and landmarks within CBD
• Additional key features (eg Tutanekai Street/Arawa Street/Haupapa Street
Plaza) should be considered in order to assist orientation, wayfinding and
precinct definition within CBD area.
• Key visual vistas out-from and into core CBD area should be protected and
enhanced. Consideration should be given to “gateway features” at key
entrance points accessing core CBD area.
7.3.5 Wider Environment, Viewshafts and Vistas
(1) Observations
• Wider Rotorua environment offers significant (and unique) enhancement of
CBD
Urban Design: Existing City Centre Assessment
Page - 29
• Lakefront is major asset – currently under-utilised
• Several features (museum, gardens, park lake, events centre, reserves etc)
disconnected from core CBD – largely exist in isolation
• Potential viewshafts (particularly towards lake) often compromised or under-
exploited
• Vistas within CBD area compromised and under-exploited
• Certain key vistas within CBD compromised by engineering requirements
(often traffic related) at expense of visual amenity
• CBD “arrival experience” poor – visitors arrive through “back door”
environment
(2) Key Issues to be Addressed
• CBD redevelopment strategies should reinforce links from core CBD area to
wider CBD environment
• Viewpoints and vistas from and towards the CBD should be protected and
enhanced
• Integration of CBD with lakeside environment should be given high priority
• Visual amenity value of key vistas within CBD area should be enhanced –
pedestrian and landscape elements should be given higher priority (currently
compromised by traffic engineering requirements)
• CBD “arrival experience” should exploit lakeside environment
7.4 Lifestyle
7.4.1 24/7/365 Activities
(1) Observations
• 24-hr Activities
• 24hr activities compromised by unattractive night time environment
• Café/hospitality precinct evolving around Tutanekai Street/Pukaki Street
• Poor consolidation of retail activities unlikely to facilitate lo sustain late
opening
• Wayfinding and orientation issues affect night time amenity
• Perception of security and safety concerns at night time
• 7-day Activities
• Local CBD use seems intermittent
• CBD area largely reliant on tourism/visitor traffic
• Weekend CBD activities generally higher than weekday
• Weekday activities affected by ongoing dispersal (commercial/ retail/
residential development patterns etc)
• CBD retail offering appears unattractive to local residents - destination
shopping relocating elsewhere (Taupo, Tauranga etc)
• 365-day Activities
• CBD use reflects significant seasonal swings
• Lack of CBD residential and relatively low density CBD commercial
development unhelpful in sustaining CBD activities throughout year
• Events-based economic development initiatives (conferences, events
centre etc) important to CBD sustainability
• Major festivals, events etc offer significant benefit to CBD area
Urban Design: Existing City Centre Assessment
Page - 30
(2) Key Issues to be Addressed
• Significant effort needs to be targeted at improving CBD night time
experience
• CBD residential development and intensification of CBD commercial
development should be encouraged
• Core CBD needs to be capable of hosting significant events (craft fairs,
music and theatrical events etc) – cannot rely on fringe CBD areas
• Links to peripheral CBD areas need to be reinforced – particularly links to
events centre and lakeside
• CBD tourism offering needs improvement
• CBD retail high street environment needs focussed improvement
7.4.2 Special Events
(1) Observations
• Rotorua’s natural and tourist attractions offer significant advantages in
attracting and hosting special events
• Events-based economic development initiatives (conferences, events centre
etc) important to CBD sustainability
• New Events Centre offers significant advantage to Rotorua – impact of core
CBD area uncertain due to relatively remote location
• Major festivals, events etc offer significant benefit to CBD area
• Secondary festivals and events within core CBD area could support
economic and social activity
(2) Key Issues to be Addressed
• Core CBD needs to be capable of hosting significant events (craft fairs,
music and theatrical events etc) – core CBD should be developed as
recognisable events destination
• Links to major events locations and facilities need to be reinforced –
particularly links to new Events Centre and conferencing/convention facilities
• Lakeside offers significant potential for special events – reinforces
importance of CBD / lakeside integration
• Core CBD area capable of being developed as tourism attraction in its own
right
• Consideration should be given to hosting “retail” related special events within
core CBD area.
• Significant effort needs to be targeted at improving CBD night time
experience
7.4.3 Cradle to Grave
(1) Observations
• Rotorua’s core CBD area seems to cater for conventional (middle-NZ), local
demographic
• Core CBD offers little in the way of specific attractions for young children
• Youth market not particularly well catered for – stakeholder observations of
youth activity within CBD generally negative
• Night time youth activity within CBD area appears lower than comparable NZ
cities
Urban Design: Existing City Centre Assessment
Page - 31
• Core CBD area offers little in the way of family attractions – compared to
peripheral CBD areas
• No apparent provision for elderly, though general topography and
streetscape doesn’t appear to exclude them.
(2) Key Issues to be Addressed
• Consideration should be given to incorporation of child-related attractions
within CBD streetscape environment
• Initiatives that might attract a “positive” youth market (artistic lighting, public
art, musical events etc) should be explored
• Incorporation of family-related facilities within streets, parks, squares, plazas
etc within CBD should be considered
• Exploitation of “Spa Town” theme within core CBD area may offer potential
attractions to elderly or infirm visitor
CPTED
Page - 32
8 CPTED
8.1 Introduction
For reasons of applicability and implementation in the New Zealand context, this assessment
looks for direction to the National Guidelines for Crime Prevention Through Environmental
Design in New Zealand, but also draws on other research and publications such as the
United States’ SmartGrowth approach and the United Kingdoms ‘Safer Places’ town planning
guidance.
8.2 Physical Aspects
8.2.1 Access: Safe Movement and Connections
(1) Observations
• Pedestrian footways within the CBD including the Rotorua Central and City
Focus areas do provide clear indication of where pedestrians are supposed
to be.
• The CBD has a very strong and interconnected grid-framework providing an
easy to navigate pattern
• Service lanes provide a network of relatively under-utilised (by pedestrians)
shortcuts and alleyways
• Tutanekai Street and other streets generally have long and clear sight-lines
to help legibility – the exception to this being the City Focus which acts as a
visual impediment for CBD users.
• In general Tutanekai Street is typified by active building frontages offering
good passive surveillance opportunities. However this was not true in several
locations both on Tutanekai street and particularly on streets running east-
west perpendicular to:
• Tutanekai Street. Examples of dead or inactive frontage included
painted out windows, a medical centre, developments with long blank
wall facades.
• The service lane network provides ready access for all members of the
public, including non-legitimate users – to the rear of buildings.
• Pedestrian movement is at-grade with adjacent vehicle access,
providing additional surveillance opportunities.
• Service lanes are typically poorly if at all overlooked by adjacent
development, providing obscured areas and entrapment opportunities.
• There are a high number of concealment opportunities alongside
‘movement predictors’ (such as footpaths). Examples include City
Focus, and recessed doorways through the CBD.
• Under-verandah lighting has been assessed as of inconsistent quality
across the CBD
Left – service lanes – intended for service
vehicle and delivery access but also
provide an unintended pedestrian
thoroughfare and access to the rear of
buildings
CPTED
Page - 33
Above left and right – concealment opportunities and legitimate “lurk” opportunities
(2) Solutions
• Consider introducing minimum lighting standards for under-veranda lighting
and lighting of public areas such as carparks. These should address the
level of lighting, the direction of the lighting, and the type of illumination
source. No requirements for under-veranda lighting in D Plan section R8.2.7.
Rule 8.2.8 of D Plan seeks to minimise lighting nuisance to other
properties/activities, but no minimum standard of lighting is sought
• Consider requiring CPTED assessments to be undertaken for all new
developments incorporating walkways
• Consider removing visual barriers that adversely affect legibility, or alternately
provide additional legibility devices such as paving materials or signage
• Consider introducing District Plan criteria to prevent recessed doorways
(acknowledged as a significant CPTED factor in the UK)
• Consider introducing D Plan standards requiring minimum levels of
unobscured glazing for shopfronts adjacent to the public realm
• Consider restricting access to service lanes to only those who have a
legitimate reason to be there (gates), or introducing design criteria to identify
these areas as ‘private’ not ‘public’ such as thresholds and signage.
8.3 Surveillance and sightlines
8.3.1 Observations
• Most parts of the public realm, with the exception of service lanes, are overlooked
by buildings. However in some instances, these buildings are vacant or are not
busy throughout the day. In Rotorua’s CBD, most activity ceases at or just after
5pm, meaning that most places (footpaths, carparks etc) in the CBD have very
little or no surveillance outside the hours of 8am-5pm.
• Most shopfronts have extensive glazing providing surveillance and relationship
with the street, however in some instances this glazing has been obscured either
by painting or the location of advertising or display material inside the window.
• Concealment opportunities exist at the ground level entrance and upper floor exits
to the public carparking buildings.
• Most landscape features that could act as barriers (trees/vegetation, public art) are
either low enough or high enough to not prevent sight-lines. However a small
number do exist, predominantly around City Focus.
• There are a number of features that inhibit sight-lines, these include blind corners
and concealment spots in particular. These are worst around City Focus, the
service lanes, and the medical centre on Tutanekai Street.
• City Focus acts as a gathering point that then provides passive surveillance –
though this does not extend to capable guardianship.
CPTED
Page - 34
Top left and right – examples of blank or dead frontages in the Rotorua CBD – providing no
opportunities for surveillance and an impression of lack of care/ownership of the public realm.
Left – planting that does not obscure sight-lines
while still providing significant amenity value –
City Focus
8.3.2 Solutions
• Consider development of a CBD lighting strategy in accordance with CPTED
principles, also including a night-time route lighting and legibility component
making it clear which routes are best developed for use at night.
• Restrict or prevent obscured glazing in shopfront window beyond a set %.
• Clearly identify those parts of the CBD that accommodate night-time activity and
ensure these are well-lit
• Remove or trim vegetation and other items that prevent or obscures sightlines
8.3.3 Layout: Clear and Logical Orientation
(1) Observations
• Building entrances are generally well-defined
• Carparking facilities are in some instances located in isolated areas
• While improved paving materials have been used on Tutanekai Street and
other areas, there is a ‘sameness’ about much of the CBD that can make it
difficult to orientate oneself. This is compounded by City Focus that is a visual
barrier effectively dividing Tutanekai Street in two
• The City Focus development is fairly well overlooked by adjacent
development, also including a kiosk information centre in the City Focus itself
• Building entrances do on many occasions, create concealment spots next to
pedestrian routes.
• Few buildings feature street addresses
• No maps assisting legibility or wayfinding were noted, nor were ‘wayfinding’
signs identified in the CBD.
(2) Solutions
• Encourage new developments adjacent to or overlooking publicly accessible
open space (including carparks) to include windows and other features that
facilitate such overlooking.
• Require CPTED assessments to be undertaken for all new carparking
developments – requiring all such developments to need Resource Consent
(restricted discretionary) in order that Council has the ability to ensure
CPTED recommendations are implemented.
CPTED
Page - 35
• Develop a ‘legibility’ or ‘wayfinding’ strategy for the CBD, considering such
things as directional signage/display boards/maps, protection of viewshafts,
icons/public art/landmarks, and use of paving materials to assist pedestrians
to understand routes
• Encourage new developments with pedestrian thoroughfares or routes to
provide pedestrian-movement plan and ensure routes are as direct as
possible and along pedestrian desire-lines.
• Require premises to locate street addresses above main entranceways.
Above – no obvious pathway past this
development
Above – obvious pedestrian pathway
8.3.4 Activity Mix: Eyes on the Street
(1) Observations
• The public realm along and in close proximity to Tutanekai Street is of
relatively high quality, and the provision of facilities such as street furniture
including features at City Focus that double as seating, encourages people to
linger in the CBD.
• There are apparent few activities within the CBD targeted at younger age
groups.
• There appear to be very few mixed use developments, with the central CBD
area largely dominated only by retail type activities.
• Two clusters of licensed premises are evident in the CBD, along Hinemoa
Street and around The Streat. The former in close proximity to City Focus.
• Little residential development that could provide overlooking and surveillance
of the CBD area, particularly during non-trading hours was evident.
• Most premises had active ground level frontages, however a smaller but still
significant number of premises particularly on the side streets had extensive
‘dead’ frontages of solid materials or blanked/painted out windows.
• No evidence of a combination of night-time activities (restaurants and bars
along with shops or galleries) were identified.
Above – The Streat Above – Hinemoa Street (City Focus in
background)
(2) Solutions
• Consider active frontage requirements to ensure visual relationship/linkages
and surveillance of the public realm from within shops and other ground floor
activities.
CPTED
Page - 36
• Facilitate development of mixed use and particularly retail activity above
ground level in the CBD to increase surveillance of the public realm,
particularly during non-trading hours such as after 5pm and at weekends.
• Consider providing activities targeted or aimed at younger people who might
otherwise loiter and present a negative image, whether real or simply
perceived.
8.3.5 Sense of Ownership – Showing a Place is Cared For
(1) Observations
• In some instances, there is a clear distinction between public, communal,
semi-private and private space. Primarily this is the result of buildings directly
fronting and abutting the public road. The most obvious area where there is
little definition between public and semi-private space is with the service
lanes where there is no indication that those areas are accessible for service
access rather than as an extension of the public road network.
• There are some examples of public art and sculpture that contribute to
identity, sense of place and ownership, the most notable examples being at
City Focus, however these are large scale and partly obscured by the City
Focus structure itself – possibly detracting from the benefit they might
otherwise have.
(2) Solutions
• Consider using means to delineate service lane from public roads using
materials and/or signage indicating that they are not public areas.
• Consider development of a public art program within the public realm to
contribute to identity and sense of place. Consider extending this to private
developments and private space (publicly accessible or simply publicly
viewable), to apply to developments similar to Rotorua Central.
Above – semi-derelict construction site surrounded by poorly secured wire-
mesh fencing, with visitor accommodation adjacent, main bus stop area in
front – Pukuatua Street
8.3.6 Quality Environment: Well Designed, Managed and Maintained Environments
(1) Observations
• Quality design – the public realm and in particular Tutanekai Street has
clearly been the subject of an upgrade programme, and there is extensive
use of higher quality paving and hard and soft landscaping.
• Cleanliness – the CBD area was clean and well-maintained, although a
number of buildings fronting the public road, particularly on the side streets
were vacant, some with the appearance of having been vacant for some
time. Unfortunately the vacant premises had a significant negative impact
giving an impression that parts of the CBD were ill-cared for. The worst
example of this was adjacent to the bus-stops on Pukuatua Street. where an
incomplete construction project and poorly designed accommodation facility
present poorly to the street.
• Expanses of blank walls, or painted out windows, in some cases quite long
were present in the CBD, most notably the Bond and Bond development
which also had an adjacent solid security shutter. This gave an impression of
a lack of interest or care of the public realm adjacent to the premises
CPTED
Page - 37
resulting in that corner being the poorest in amenity terms fronting City
Focus.
• There was little evidence of graffiti in the CBD area
• City Focus has a notable police (car) and information centre custodian
presence.
Above left and right – City Focus – with an information centre and police “presence”
(2) Solutions
• Continue cleaning regime
• Consider District Plan changes and/or other mechanisms to prevent develop
with blank frontages, the painting out of obscuring or existing frontages
(advertising, security grilles).
• Maintain the information centre/custodian presence in the CBD.
8.3.7 Physical Protection: Using Active Security Measures
(1) Observations
• Few obvious security measures were identified, with security grilles, bollards
or other such features being identified.
• The quality of street and under verandah lighting appeared to vary
dependant upon location.
(2) Solutions
• Consider a CPTED-based lighting strategy for the CBD area, covering both
areas in the public realm and private developments that protrude into the
public realm (building verandas, entranceways).
• Promote safety audits and site assessments as part of the planning process.
• Consider developing a ‘Secure by Design’ type approach similar to that used
in the UK where new developments are ‘awarded’ a design award/badge for
meeting a series of specific CPTED based criteria (eg lighting, passive
surveillance and ownership, removed concealment/lurking opportunities,
activity)
• Recessed pest – introduce design criteria restricting the presence of
recessed doorways/reveals adjacent to public footways or near public
buildings.
• Adopt a public toilet design guide similar to Brisbane.
CPTED
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Note the location of ATMS adjacent to corners – concealment opportunities. Also of note, Rotorua
CBD has seats located at most corners in the CBD which while providing a valuable rest facility,
also provide legitimate ‘lurking’ opportunities.
Source RDC website June 2006.
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9 Strategic Planning
9.1 Physical Aspects
9.1.1 Diversity and Activity
(1) Observations
• Predominantly a range of commercial and retail uses, however other land
uses (such as residential, open space and institutional / cultural spaces) are
also present. Retail uses are well distributed throughout the CBD, with a
strong core along Tutanekai Street. Business/office use has an even
dispersal, but is not as strong or defined as retail uses. Residential uses are
sparse, located near the northern end of the CBD, although there are
concentrations along the western fringe. Similarly, there are significant hotel
agglomerations along the eastern and southern fringes of the CBD. (Refer to
Appendix; Distribution of Uses).
• Significant open spaces (such as Government Gardens and Kuirau Park) are
located on the fringes of the CBD, along with lakefront open space to the
north. These areas are not integrated within the overall urban fabric of
Rotorua.
• There are six zones (as defined in the Rotorua District Plan) found within the
CBD. These include:
• Commercial A and B zones (generally central, A = core, B = fringe)
• Reserve A and B zones (northern end of the CBD, also framing the
CBD to the west, east and south-west)
• Resort A and B zones (generally at or near the north and east edges of
the CBD)
• In addition and notable to this study, a significant parcel of land zoned
Residential D (Office/Residential) is located to the south-west of the CBD.
• The majority of the land in the CBD is zoned Commercial (approximately 69.5
hectares). Commercial A, being the retail core, while Commercial B, the
fringe, also contains a number of the retail and commercial floor space.
• There are two obvious clusters of ‘entertainment’ type premises, the first
associated with dining centred on a portion of Tutanekai Street known as
‘The Streat’, the second around Hinemoa Street and associated with bars.
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• Notwithstanding the intent of the Commercial A and B zones as indicated in
the zone statement and issues, the Commercial zoning provides very little
guidance as to the type of activities considered appropriate to these areas. It
is almost laissez faire, allowing a largely unspecified range of land uses,
albeit via ‘controlled activity’ status where structural or façade changes are
involved.
(2) District Plan observations and intentions of the commercial zones
• The commercial zone ‘emerging issues’ statement recognises the potential
for links between shopping (as recreation) and tourism to be taken
advantage of, and the issues re amenity for residential development within a
CBD environment (see also objective 2.2.2.2)
• The Commercial A and B zones are intended to act as a ‘containment’
mechanism for retail – to contain it within the CBD area. The commercial B1
zone contains requirements to encourage the integration of Rotorua Central
into the CBD.
• The Residential D zone is intended to allow for some office development
while retaining residential character.
• D Plan (Section 2.2) recognises the importance of retail and office activity
critical mass for retailing, business and admin.
• Recognition (section 2.2.1) that large scale developments can draw
customers away from the CBD – blighting it.
• Recognition that low density level in CBD is a contributing factor to poor
integration between its component parts. – linked to lack of vibrancy
• Section 2.2.1 recognises that length of Fenton Street and spread of CBD
means that lakefront is not integrated into CBD
• CBD policies 2.2.3.11 are all supportive of an urban design approach
• In addition, the Council has introduced ‘The Rotorua City Design Principles’
as Appendix AA to the plan – identifying design principals that should be
applied to development.
• Height and daylighting controls are included in the Commercial A, B and C
zones to preserve the CBD’s ‘provincial appearance’, and preserve ‘sunlit
areas and amenity for pedestrians’. A network of service lanes is identified in
Appendix N to ensure rear access to buildings for amenity and traffic conflict
mitigation.
• Section 2.2.4.4 identifies that applications for commercial activity outside
commercial areas will be a non-complying activity, requiring plan change
where effects are more than minor
• Activity status – sale of liquor is Perm, construction of or alteration to
buildings – Con, convention centres, carparking accessory, carparking not
accessory are Non-Complying in A and Controlled in B, wholesale outlet and
warehouses Non-Complying in A and c in b, alterations to heritage buildings
and trees – Discretionary, new or alterations to buildings for residential or
tourist accommodation. – Controlled.
• Height – a 20m, b – 15m, b1 – 15m, no site cover,
• Comer b parking required for all buildings, comer a only for tourist
accommodation and residential.
• Offices are non-complying in residential zones except residential d –
controlled in residential d, but home-based bus enterprises are permitted in
all residential zones.
(3) Comment
It is clear that the Commercial A and B zones are intended to facilitate a vibrant
commercial (especially retail) environment in the CBD area. However in seeking
to ensure quality design, the Plan places obstacles in the way of development,
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reducing the attractiveness of the CBD area relative to other urban areas. In
addition there is little real direction or guidance within the implementation methods
(rules) as to the type of activity that is sought (and not sought) in the CBD area –
despite this being reasonably clear in the zone statements. Recent resource
consent applications for offices in residential zones have been granted despite the
non-complying status, leaving a situation likely to be dependant on negotiation and
potential compromise which may not be the desired outcomes where key design
principles are at stake.
A further point of note is the reference to Appendix AA (Design Principles). While
there may be real value in the application of quality design guidelines and
principles, unless a clear framework of set of outcomes sought is provided, it can
be quite unclear what is actually desired – resulting in uncertainty (re outcomes
and applicability) for developers and Council planning staff. In addition, it is
debateable whether these types of controls could be successfully imposed on
controlled activities – which cannot be refused regardless of the extent to which
they conform to the guidelines.
The Plan also recognises an at-
present latent potential for shopping
as complementary to Rotorua’s
strong tourism industry. However the
CBD does not, at present, actually
provide this opportunity.
(4) Solutions / Aspirations
• Plan Changes (see “Governance”)
• Consider Plan Change(s) that:
• support and facilitate the location of activities supporting a dense and
vibrant retail core including redefinition of the extent of the Commercial
A (core) zone
• facilitate the development of mixed use activity and first floor level and
above in the Commercial A zone,
• facilitate mixed use development and in particular residential and office
development in the Commercial B (fringe) zone
• consider Plan Change/s or amendments to the Design Principles to
maximise ‘active’ retail frontage at ground level (restrict ‘blank’ walls and
painted out windows).
• design that is flexible and adaptable (able to be easily reused for other
appropriate activities as demand changes) should be encouraged.
• Provide incentives for greater residential and office development, providing
for a range of uses to ensure the place is a vibrant, mixed use 24/7 location.
9.1.2 Density and Scale
(1) Observations
• Development is typically low density and commonly characterised by retail
use (including presently vacant former retail premises) at ground floor level.
• Retail use is widely dispersed across the CBD with the result that a number of
vacant premises are located in-between occupied premises, resulting in at-
time lengthy inactive frontage. This is more true to the ‘side-streets’ rather
than Tutanekai Street.
• Little use of first floor and upper floors is apparent in most buildings.
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• There is a trend for office-type development to spread beyond the traditional
bounds of the CBD to the adjacent Residential D zone and to a lesser extent
beyond into other Residential zones – despite the more restrictive regulatory
provisions applicable to those areas.
• Residential and other accommodation development in the CBD is much
dispersed and/or extremely low density providing little support for business in
the CBD.
• Building scale is typically 1-4 storey, with a relatively small number of
scattered taller developments.
• The built scale and form of the CBD is typical of a New Zealand provincial
city.
• The presence of lower buildings combined with wide public roads allows good
penetration of natural light to ground level.
(2) Solutions/Aspirations
• Increased density of development including increased utilisation of upper
floors of buildings particularly for missed (office and residential) use to
support retail and other commercial development in the CBD
• Reduced geographical spread of retail land use into a central spine along
Tutanekai Street with nodes at Rotorua Central, and a central (to Tutanekai
Street) plaza
• Increased mixed use development in the CBD, with high-density residential
development and office development located above retail use on Tutanekai
Street and in the Commercial fringe area (along streets running
perpendicular to Tutanekai Street)
• Retention of a higher height limit for buildings along Tutanekai Street,
reinforcing the ‘city centre’ identity of that location and encouraging multi-
storey development.
(3) Governance
• Consider Plan Change to facilitate higher-density mixed-use development in
the CBD
• Consider Plan Change to reduce extent of Commercial A core to Tutanekai
Street and Rotorua Central
• Consider Plan change to allow medium-high density residential development
and/or ‘live-work’ type apartments in the CBD, particularly along side streets,
and above retail and/or office use.
• Integrate these developments with the ‘service-lane’ system to enable
‘ownership’ of these access areas by adjacent developments, including
responsibility for design quality during development stages and subsequent
‘maintenance or custodianship’.
• Consider relaxation of District Plan hurdles such as minimum carparking
requirements where alternatives are available such as provision of cycle
facilities, presence of public transport facilities.
9.1.3 Public Realm and Connectivity
(1) Observations
• In general the public realm is well maintained with little obvious signs of
vandalism or lack of care. Street furniture and paving are of good quality and
there is an obvious attempt to provide for pedestrians via numerous paved
crossing points.
• The CBD has few features present that assist legibility and wayfinding, the
City Focus presents a visual obstacle in Tutanekai Street.
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• There is variation in the quality of the public realm (paving materials, soft
landscaping etc) between Tutanekai Street and side-streets.
• A network of service-lanes maintained to a lesser standard and of unclear
ownership provides secondary access between streets.
(2) Solutions/Aspirations
• Consider introducing a combination of interpretive tools such as signage or
landmarks (public art?) that provide easy identification of locations and the
pathways between locations.
• Provide pedestrian pathways along obvious desire-lines.
• Remove the City Focus (in its current form), but retain the legend through
use of public art in other central CBD locations.
• Consider using street furniture to reinforce local identity.
• Consider whether service-lanes should have a pedestrian movement
function, and if not, provide clear signals to pedestrians that they are not
intended as thoroughfares.
9.1.4 Vibrancy and Activity
(1) Observations
• Tutanekai Street has a high level of occupancy, with retail along most of its
length until it reaches Haupapa Street. From Pukaki Street north is located
The Streat, a restaurant area and further to the north almost at the lakefront
is located a hotel development and a park area.
• Tutanekai Street and Rotorua Central have a good level of daytime retail
activity, however this activity diminishes significantly and rapidly on side
streets as the proximity of Tutanekai Street recedes.
• There is very little activity in the CBD after 5pm with the exception of The
Streat and a semi-cluster of bar activities along Hinemoa Street east of City
Focus.
• A number of premises within the CBD have ‘dead’ or inactive frontage even
where the premises is occupied. This is usually the result of a larger
development being constructed without windows at ground level or of
windows being painted out or obscured by advertising, reducing the level of
interaction and activity between the premises and the street.
(2) Solutions/Aspirations
• Develop clusters or nodes of like-development vibrant at certain times of the
day.
• Reinforce the identity of these clusters and the types of activity they support.
(3) Governance
• Consider a Plan Change to introduce design criteria within minimum ground
level glazing requirements for premises fronting public roads in the CBD.
• Consider a Plan Change to restrict or prohibit the use of solid security
shutters on front facades within the CBD.
9.1.5 Strategic Facilities
(1) Observations
• Strategic facilities are significant land uses that form part of the unique
character of a place. For Rotorua, strategic facilities include:
• Government Gardens
• Museum of Art and History
• The Hospital
• The Lake
• Council Chambers
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• Tourist Information Centre
• Rotorua Central
• City Focus
(2) Solutions/Aspirations
While there is undoubtedly some excellent infrastructure, this is not really
publicised or known to a new person entering the CBD. Interpretive signage may
help, along with the greater integration of the city with some facilities, especially the
lake and Government Gardens.
9.2 Sustainability
9.2.1 Social – Demographic Profiles
What are the profiles? (taken from Statistics New Zealand)
(1) Population
At the 2001 Census of Population and Dwellings:
• The census usually resident population count for Rotorua District1 was 64,473, a
change of -0.1 percent since 1996.
• In comparison, the population for New Zealand as a whole has changed by
3.3 percent since 1996.
Number of People Counted
Rotorua District New Zealand
Males 31,344 1,823,007
Females 33,129 1,914,273
Total 64,473 3,737,277
Change since 1996 Census -36 118,974
1The area used for this profile is based on Statistics New Zealand's territorial authority.
(2) Age Profile
At the 2001 Census:
• 25.8 percent of people in Rotorua District were under the age of 15 years,
compared with 22.7 percent for all of New Zealand.
• 10.6 percent of people in Rotorua District were aged 65 years and over
compared with 12.1 percent for all of New Zealand.
(3) Age Distribution
YEARS Rotorua District New Zealand
0-14
15-64
65+
0 20 40 60 80 100
PERCENT
(4) Education
At the 2001 Census, 30.6 percent of people aged 15 years and over in Rotorua
District had a post-school qualification, compared with 32.2 percent for New Zealand as
a whole.
(5) Highest Qualification
QUALIFICATION Rotorua District New Zealand
No qualification
School
Post-school
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0 20 40 60 80 100
PERCENT
(6) Ethnic Groups (Total Responses)
At the 2001 Census, 71.7 percent of people in Rotorua District said they belong to
the European ethnic group, compared with 80.1 percent for all of New Zealand.
ETHNIC GROUP Rotorua District New Zealand
European
Maori
Pacific Peoples
Asian
Other 0 20 40 60 80 100
PERCENT
(7) Income
At the 2001 Census, the median income of people in Rotorua District is $18,600,
compared with $18,500 for all of New Zealand.
DOLLARS Rotorua District New Zealand
100,001 or more
70,001 - 100,000
50,001 - 70,000
40,001 - 50,000
30,001 - 40,000
20,001 - 30,000
10,001 - 20,000
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DOLLARS Rotorua District New Zealand
1 - 10,000
Nil
Loss
0 20 40 60 80 100
PERCENT
(8) Employment
At the 2001 Census:
• The unemployment rate in Rotorua District was 8.9 percent, compared with 7.5
percent for all of New Zealand.
• The most popular occupational group in Rotorua District was Service and Sales
Workers (17.0 percent). The most popular occupational group for New
Zealand as a whole was Service and Sales Workers (14.8 percent).
(9) Families
At the 2001 Census, there were 16,458 families in Rotorua District.
Family Type Rotorua District New Zealand
Couples with child(ren) 40.8% 42.1%
Couples without children 35.0% 39.0%
One parent with child(ren) 24.2% 18.9%
(10) Households
At the 2001 Census:
• The average household size in Rotorua District was 2.8 people, compared with
2.7 for all of New Zealand.
• 94.0 percent of households in Rotorua District had access to a telephone,
compared with 96.3 percent for all of New Zealand.
• 32.5 percent of households in Rotorua District had access to the internet,
compared with 37.4 percent for all of New Zealand.
• 89.7 percent of households in Rotorua District had access to a motor vehicle,
compared with 89.9 percent for the whole of New Zealand.
• There were 22,254 households in Rotorua District.
• For dwellings that were rented, the average weekly rent paid for permanent
private dwellings in Rotorua District was $152, compared with $174 for New
Zealand as a whole.
• 66.1 percent of dwellings in Rotorua District were owned with or without a
mortgage, compared with 67.8 percent for all of New Zealand.
Information from data collected in the 2001 Household Expenditure Survey shows that
the total average annual spending for households in Rotorua District was $38,674
compared with $43,682 for the whole of New Zealand.
Average Annual Household Spending for Select Groups
Item Rotorua District New Zealand
Food $6,395 $7,004
Housing $8,211 $10,159
Housing Operation $5,222 $5,472
Transportation $6,832 $7,358
(11) Business
In 2002, there were 4,991 business locations (geographic units) in Rotorua District
compared with 309,749 for all of New Zealand.
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(12) Tourism
Tourism Rotorua Monitors Indicate at the year ended April 2005 a total of 3.3
million visitor nights per year, close to the forecast by the Tourism Research
Council of approximately 4 million nights per year.
9.3 Environmental
9.3.1 Natural Features
(1) Observations
• Several notable natural features are located on the fringes of the CBD and
include the lake, and to a lesser extent, Government Gardens and Kuirau
Park.
(2) Aspirations
• Greater integration of these natural assets with through-design, emphasising
pedestrian and other non-motorised linkages.
• Greater recognition of the value of and contribution of these features to the
unique character and identity and ‘sense of place’ of the CBD and its
component parts.
• Sensitive design to complement rather than develop in-spite of these
features
9.4 Metaphysical Aspects
9.4.1 Governance – Plan Changes
(1) Observations
• The Rotorua District Plan would require a number of changes to enable the
various strategies being implemented.
(2) Solutions / Aspirations – General
• Change how the CBD is defined in the DP.
• Alter the commercial zones to facilitate desired types of uses and discourage
other types of development in particular areas of the CBD. This may include
precinct or character statements outlining what is envisioned for the particular
areas of the CBD, indicating favourable land uses and placing restrictions on
the size of certain developments so as to achieve the necessary grain of
development desired by the vision, while allowing complementary
developments on the fringes to encourage residential and tourist growth.
• Designate a new northern gateway entrance/promenade along the lakefront
possibly tying into any future development by Ngati Whakuaue and other
developers.
• Change some rules relating to signage to ensure visual consistency
• Changes to the Design Guidelines in Appendix A
• Inclusion of provisions to vest land with Council when significant
developments take place around the location of the proposed public square.
• Provide more incentives for residential development and restriction of parking
rates.
• To provide increased certainty and guidance, consider adoption and/or
incorporation of specific key urban design criteria from the Urban Design
Protocol into District Plan objectives, policies and methods (rules,
performance matters to be considered), while relying on other criteria in the
form of guidelines or frameworks.
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(3) Commercial Core ‘Precinct’ Plan Changes
• Include retail and commercial service activities such as banks and other
financial institutions, community services.
• Require carparking to be set back behind buildings, with premises having
their facades directly at the front boundary of the property.
• Require any large-format premises to be at least ‘wrapped’ and preferably
also ‘capped’ by smaller premises.
• Provide for office type commercial activities and residential activities
(including apartments, live-work units, visitor accommodation) from first floor
upwards, but strongly discourage at ground floor
• Require developments of scale or where publicly accessible private open
space is to be provided to provide pedestrian connection to address and
provide connections to adjacent public open space and similar adjacent
developments.
• Include minimum unobscured glazing requirements at ground level and
restrict the extent of frontage without glazing
• Prohibit solid security shutters and restrict security grills to within not outside
of shop windows
• Require all new developments with publicly accessible privately owned space
to submit an associated CPTED review and details of development features
addressing the findings and recommendations of that review
• Require all new developments with publicly accessible privately owned space
to provide public art features supportive of Rotorua’s unique local identity
and/or the local context in which they are situated.
(4) Commercial Fringe Precinct Plan Changes
• For office and residential type development, consider relaxation of minimum
parking standards where alternative means of transport are provided and/or
supported by the development (eg cycle, public transport)
• For residential use consider plan changes ensuring that necessary amenity
(acoustic protection, safety –CPTED, access to open space) is available.
• For residential use, consider plan changes requiring the provision of
necessary service facilities within the development, such as waste/refuse
storage areas, lockable cycle storage area.
• To provide increased certainty and guidance, consider adoption and/or
incorporation of specific key urban design criteria from the Urban Design
Protocol into District Plan objectives, policies and methods (rules,
performance matters to be considered), while relying on other criteria in the
form of guidelines or frameworks.
• Consider relaxation of residential density limits based on ‘pedshed’ scenarios
– proximity of the development to public recreation spaces such as parks.
• Consider encouraging ownership/stewardship of service-lane areas by
adjacent development through the encouragement of improved design
criteria providing a relationship with these areas, and in particular windows
from first floor upwards looking onto those spaces.
• Require residential developments to demonstrate access to sources of
natural light unable to be obscured by development of neighbouring
properties.
• Encourage the location of small outdoor private ‘courts’ or ‘garden’ areas for
the use of residents within residential developments.
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• Encourage the location of carparking facilities within the centre of blocks –
wrapped – without road frontage.
(5) Entertainment Precinct Plan Changes
• Consider plan changes making restaurant and bar activities permitted in this
area, including building alterations. Remove signage restrictions other than
where signage is located within the public realm and/or is likely to result in
nuisance to properties in adjacent zones
• Restrict and discourage residential development from locating within this
precinct and require appropriate levels of acoustic protection for residential
development in adjacent areas.
• Remove all carparking requirements other than for staff carparking
• Promote the location of public transport facilities in close proximity, including
the provision of ‘late-night’ shuttle services, particularly to hotels.
Transportation/Infrastructure
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10 Transportation/Infrastructure
10.1 General Layout and Local Access – Vehicular Traffic
10.1.1 Observations
Transport corridors have defined the shape of the Rotorua CBD. The arterial road
network defines the perimeter. There is reasonable vehicular access around the CBD
and no clear entry point or gateway. Passenger transport, cycling and walking trips to
the CBD make up a small proportion of the total.
The strong grid network within the CBD leads to ease of circulation (except at City
Focus) and roads that are very similar – making it hard to identify where you are.
The private car is the dominant mode and likely to remain so. Continued freedom of car
movement is likely to remain important.
Network capacity for arterials is unlikely to dramatically change - note likely congestion
points, and provide for continuity of capacity (watch for rat-running). Major corridors are
generally State Highways subject to some congestion at peak times. Victoria Street
extension will redefine south end and reduce Pukuatua Street barrier.
10.1.2 Key Issues to be Addressed
Transport policy and infrastructure should support delivery rather than dictate CBD
Strategy.
Include expectations for town centre access in the Transport Demand Management
Investigation to be completed 2006/2007.
Build in flexibility to allow responsiveness to changes in CBD development (potentially
major changes if lake development becomes real).
Utilise the surrounding arterials as linked perimeter ring roads - north and south to
provide easy circulation and access
Keep distinct hierarchy from pedestrian network – manage conflict points carefully.
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10.2 Tourist Access to the CBD
10.2.1 Observations
• Coach tours appear to dominate
• Local (national) tourist market emerging mainly car-based
• Signage does not give a clear sense of location and orientation
• There are few clear access points
• Special events need to be accommodated
10.2.2 Key Issues to be Addressed
Manage interface – transition from car driver/passenger, coach tourist, hotel guest or
cyclist – to achieve increased footfall, focus activity.
Recognise the different needs of and provide for all tourist classes;
• Independent travelers
• Backpackers
• Coach tours
Promote integration and coordination of tourist centre shuttle services as a means of
linking attractions and servicing CBD as a tourist bus network.
Note tourist centre requirement for increased capacity.
10.3 Parking in the CBD
10.3.1 Observations
The demand for parking is varied, including:
• Commuter parking, long stay retail, tourist (including camper vans)
• Short term retail, courier drop of/loading
• Servicing/loading (service lanes)
The ratio of parking spaces to floor area in Rotorua is comparable to that found in other
major centres. The main difference appears to be in the distribution in Rotorua, with few
major concentrations of parking. For long term spaces/total GFA: Rotorua does well; for
short term spaces/retail GFA: Rotorua is at lower end. Parking charges are relatively
low.
The demand for commuter parking on street, commuter parking on fringes, ease of
parking at fringe appears to be leading to relocation of offices away from CBD, reducing
activity in the centre.
10.3.2 Key Issues to be Addressed
Parking will be part of Transport Demand Management Study (2006/07). Target parking
facilities that suit approaches – minimise need to circulate. Seek clear access to
parking destinations from primary routes.
Seek better distribution of parking around the CBD, including major parking centres at
anchors – north and south ends, encourage parking building(s) to service offices in
centre, support short-medium term (retail) parking in side streets off Tutanekai Street.
Include limited drop off/loading/ very short-term parking in Tutanekai Street and balance
through traffic/access/activity/space.
Aim for good security, easy access to sufficient appropriate parking and effective
integration with pedestrian network. Pursue commuter parking access and servicing
through service lane approach already in District Plan.
Review business case to establish demand for paid parking within CBD to facilitate
enhanced commercial and retailer parking.
Review existing service lane strategy in the context of providing enhanced on site
parking in “back of block” locations. This will also enable identification of those city
blocks which have the least number of barriers for early further development.
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10.4 Movement Within and Around the CBD: Pedestrians
10.4.1 Observations
• Grid network – relatively easy to circulate
• Pedestrian facilities and amenity are reasonable in developed area – but little
linkage to other attraction areas (Kuirau Park, lake, Events Centre etc)
• Quite spread out – not a single precinct
• Improved signage/precinct identity
• Be flexible - accommodate events
• High volumes present a barrier to pedestrians and cyclists
10.4.2 Key Issues to be Addressed
• Structure to CBD, links to parking, anchors and external destinations
• Diminish barrier presented by City Focus
• Areas of wider footpaths/ increased pedestrian space
• Design to accommodate events - facilities for convenient closure/traffic manage-
ment
• Promote pedestrian circulation
• Have a clear pedestrian hierarchy
10.5 Movement Within and Around the CBD: Buses and Cyclists
10.5.1 Observations
• Improvements to transport interchanges – local and tourist, Improved wayfinding,
Improve access/linkages for walking and cycling, Improved connectivity within CBD
to overcome size
• Bus service is likely to remain a social service
• Bike Rotorua cycle network strategy being implemented
• Opportunity to link in CBD as destination along with mountain bike tracks, lake
cycle routes etc.
10.5.2 Key Issues to be Addressed
• Promote easy bus circulation and travel time advantage to increase bus patronage
and reduce commuter parking demand and congestion
• Note PT Infrastructure assessment recommendations
• Review function of Haupapa Street and suitability of local bus facility (Relocate
Local Bus Stops to Haupapa Street?)
• Cycle support within District plan - secure cycle parking, showers etc.
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11 Public Realm
11.1 Natural Features
11.1.1 Observations
• The Rotorua area is rich in natural features that are currently not strongly
celebrated or woven into the experience of the CBD. Many of these natural
features also have strong historical and cultural connections associated with them.
• The Rotorua Lakes are the jewels of the landscape and a reminder of the forces
that have shaped the area. As the largest lake associated with Rotorua City, Lake
Rotorua provides a central focus for the area. The natural values of the lake and
its surrounds provide a respite from built development in the area and are a
connection with the natural and cultural history of Rotorua.
• Although in close proximity, the commercial heart of Rotorua is currently
disassociated from Lake Rotorua, one of the key cultural and natural focal points
of the area.
• There are currently few markers or indicators to draw people to the lake or reveal
its presence.
• The retention and enhancement of the natural values of the lake environment were
seen as being of importance to stakeholders, providing a counterbalance to the
built development of the CBD.
• The geothermal features are a reminder of the underground forces shaping the
landscape, bursting through in bold flashes of colour, vents of steam, interesting
forms, and fissured and cracked textures which are a visual delight.
• The steaming geothermal features and wider bush environment retain a brooding
sense of mystery of the wild and untamed.
• Pukeroa (Hospital) Hill, hillocks and caldera land forms are also features of this
landscape.
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11.1.2 Key Issues to be Addressed
• Celebrate the special identify of the Rotorua area through the use of design
features, materials and palettes that reflect and showcase the natural features of
the surrounding landscape, in particular the lake, bush and geothermal
environments.
• Reconnect the heart of the CBD with the wider natural landscape.
• Connect Tutanekai Street with the lake through visual cues and design narratives
such as a strong visual spine connecting to the lake with structural, formal tree
planting.
• Preserve and enhance the natural values of the lake environment through the
design of the lakefront area and management of wider landscape issues which
impact on the lake environment and ecological values.
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11.2 Cultural Landscape
11.2.1 Observations
• Rotorua has a wealth of Maori and European history to draw on.
• There is a strong cultural connection with landscape features of the area and many
stories and legends interwoven with the history of these features. The lake has
strong cultural associations and connections. Lake Rotorua and Mokoia Island is
the site of the Maori legend and love story of Hinemoa and Tutanekai, and the
traditional centre for the Arawa people is situated on the short of Lake Rotorua
near the city centre at Ohinemutu.
• Existing design elements such as City Focus, the footpath and kerb treatments
and amenity planting reflect and draw some of the cultural history into the CBD,
however some of the subtleties and detailing have been lost. For example. City
Focus is seen by the community as a positive feature reflecting the cultural history
and identity of the area, but also negative in that it creates a visual barrier along
Tutanekai Street. The quality of the paving treatment was seen as a positive
feature, but the blanket implementation was also seen as creating a mono effect
that does not help with wayfinding.
11.2.2 Key Issues to be Addressed
• There are opportunities through design features and amenity planting to strongly
connect with, celebrate and showcase the special history and cultural associations
of Rotorua more strongly in the heart of the CBD.
• Connect Tutanekai Street with the lake through visual cues and design narratives
that interweaves of the story of Hinemoa and Tutanekai.
• Provide for subtleties of design that reinforce the various precinct areas and help
with wayfinding around the CBD.
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11.3 Public Open Space Strategies
11.3.1 Observations
• Lack of public open space in the CBD for relaxing and people watching.
• Weak design cues and connections, and visual linkages between the CBD and
surrounding open space areas, such as Kuirau Park, Government Gardens and
the lake front.
• Lack of open space areas in the CBD which cater to a range of users and
activities, in particular children and teenagers.
• Lack of a range of types of open spaces within the CBD which connect with people
on different levels or add to the vibrancy of the CBD, inspire or challenge people or
provide a refuge.
11.3.2 Key Issues to be Addressed
• Develop a hierarchy of public open spaces that cater to a range of activities and
user groups.
• Amenity planting associated with Tutanekai Street to emphasise a strong axial
connection with the lake and re-connect with wider landscape features of the area,
such as the bush environment.
• Reinforce the hierarchy of circulation corridors, and linkages between open space
areas through a hierarchy of street tree planting.
• Reinforce the different precinct environments through layering of amenity planting
design elements, in particular a more intimate layering of amenity planting
associated with the entertainment precinct.
• Enhance street amenity and reinforce the central spine (Tutanekai Street) through
landscape planting and design features.
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11.4 Village Green
11.4.1 Key Issues to be Addressed
• This area should be more informal in nature. It is an opportunity for a more “laid
back” public space for relaxing in, flying kites, informal sports games, lying in the
sun and an area for kids to run around and stretch their legs.
• As the city develops, the retention of this open green space in the city centre will
become more important. Future residential or accommodation type development
along Whakaue Street should be encouraged to overlook the green providing
informal surveillance of the green. This area has the potential to be the “back yard”
for inner city dwellers with limited space, encouraging community ownership.
• The green will also provide an area for larger scale events and festivals in the
heart of the city, backdropped by the stunning vista of the lake.
• This area will also provide an important corridor link between the built development
of the CBD and the lakefront. A strong visual connection, along with strong
pedestrian and cycle linkages of high amenity should act to draw people between
the CBD and lakefront areas.
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11.5 Civic Plaza
11.5.1 Key Issues to be Addressed
• The Civic Plaza is a central urban space along Tutanekai Street between Arawa
Street and Haupapa Street for relaxing and people watching and participating in
city life. It should be the most formal urban public space in the city, in contrast to
the lake and village green environments.
• The plaza should be a vibrant environment that stimulates and delights the senses
for all age groups with active ground floors in the surrounding buildings which
contribute to the activity and vitality.
• The passion, fire, dynamism and vibrancy of colour of the geothermal features
should be incorporated into design elements and features, such as feature lighting,
steam fountains etc.
• The plaza should provide areas for shade and informal seating to sit back and
watch the world go by.
• The plaza should be a showcase of the cultural identity of Rotorua, celebrating the
arts and crafts of the community of the highest quality.
• Design elements should contribute to a vibrant environment during both the day
and night. The potential for mixed use of the area with opportunities for inner city
living in top stories should be investigated to contribute to an active night time
environment and informal surveillance of the area.
• Transportation nodes such as bus stops should feed into the plaza contributing to
the vitality of the space.
• The plaza should provide options and opportunities for users with signage that
reinforce linkages through to Kuirau Park and Government Gardens. The civic
plaza is the central node reconnecting the heart of the CBD with Kuirau Park and
Government Gardens through a strong green axis or corridor that is developed
with amenity planting. Examples of the type of planting of the green corridor
between Kuirau Park Government Gardens could include a formalized bush
environment. Distilling the surrounding bush environment to create a green oasis
or retreat in the city centre.
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11.6 Tutanekai Street 11.6.1 Key Issues to be Addressed
• Tutanekai Street is the “main street” of Rotorua and should be developed as
central retail street of the CBD.
• Design elements should reinforce the strong axial connection through to the lake.
Design elements should be strongly based around the story of Hinemoa and
Tutanekai and could include design elements such as sculptural overhead
coverings which provide shelter from the elements and reflect the lure like tendrils
of Tutanekai’s flute to the lake.
• An overriding framework is required to reinforce the axial link to the lake, such as a
uniform approach to the street tree planting along Tutanekai Street to create a
strong directional view shaft, with opportunities to emphasise the different precinct
areas through other design elements such as paving, lighting and layered amenity
planting.
• Tutanekai Street should be urban in character and barrier free, providing for easily
access for pedestrians along its length and across the street.
• Night time lighting should contribute to the amenity of the street environment.
• The entertainment precinct along Tutanekai Street provides an opportunity to bring
the mystic of the brooding bush environment and steamy geothermal features into
the heart of the CBD. This more intimate environment could incorporate groves of
tree ferns with the flare of fire through outdoor cooking areas and subtle feature
lighting. Other connections with the bush environment could be explored also
such as amenity planting that incorporates edible native plants..
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11.7 Grand Avenues 11.7.1 Key Issues to be Addressed
• The grand avenues define and reinforce the extent of the CBD, creating a
hierarchy of streets that clarify how people can find their way around the city and
CBD.
• The amenity of the grand avenues contributes to peoples’ first impressions of the
CBD. These avenues should be boldly planted with formal “stands” of large scale
native trees – the majestic giants of the local bush environment. The formal layout
of street tree planting along the avenues will emphasise the hierarchy of these
streets. Feeder streets off the grand avenues should provide a layered approach
to the street tree planting reinforcing the more intimate pedestrian orientated
environment or Tutanekai Street, and perhaps emphasizing the natural layering of
tree canopies in the bush environment.
• Forestry is also a feature of the Rotorua area and provides another opportunity to
reflect the identity and history of the area and bring features of the wider landscape
into the heart of the CBD. For example, street tree planting could explore design
cues which pick up the regimented, linear character of this environment, or reflect
the forestry environment through the selection of tree species.
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11.8 Lake Promenade
11.8.1 Key Issues to be Addressed
• The promenade environment is a “taster” of the delights of Rotorua, providing a
memorable sense of arrival for visitors to the CBD and Rotorua.
• This corridor should provide a high amenity environment that caters to cyclists,
pedestrians and vehicular traffic.
• The promenade should provide for strong pedestrian and cycle connections and
walkways connecting the CBD with the lake front environment.
• The promenade should embrace and respond to the lakefront environment
allowing users time to savour the scenery. The promenade should be a fanfare for
the lake, reinforcing vistas of the lake.
• As the meeting point between the more natural environment of the lake and formal
development of the CBD, the promenade should incorporate elements from both
environments.
• Formal street tree planting along the promenade will reinforce the connections
through to the grand avenues.
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11.9 Lake Front
11.9.1 Key Issues to be Addressed
• The natural environment of the lake and the transient and ephemeral nature of the
play of light and water that changes with the weather and seasons provide an
organic natural contrast to the grid layout and patterning of the CBD streets. Each
reinforces the identity of the other.
• Future development of the lakefront should seek to reinforce the natural identity of
the lack environment. An integral part of this is the protection and enhancement of
the ecological values of the lake including water quality.
• A healthy lake environment will reinforce the health spa associations of the
Rotorua area.
• The lake environment should provide a tranquil counter balance to the more formal
urban environment and the fire and dynamism of the geothermal narratives.
• The panoramic vista of the lake is a vital component of the amenity of this
environment.
• The stories and legends of the lake should be woven into the design of the lake
front, and should provide areas for strolling, seating areas for contemplation and
informal areas for relaxing.
• The lakefront proposals should be subject to the same rigor and process as the
CBD study and should ideally become part of this study.
Appendix 2