Jacks Point structure plan case study

Location and local authority

In 1993, the Queenstown Lakes District Council commissioned the preparation of a settlement strategy to assist in decision making related to urban growth issues. The settlement strategy identified the Coneburn Downs Area as having ‘considerable potential’ for future residential development. The Proposed Queenstown Lakes District Plan, notified in 1995, further identified this area as suitable for ‘new town’ development by introducing a ‘New Residential Development Zone’ (NRDZ). Although the NRDZ was subsequently deleted from the plan at the conclusion of a submission process, the owners of the land appealed Council’s decision and an application for Variation to the District Plan was made by the owners of the land that is the subject of this Case Study asking for their land to be re-zoned in accordance with the original NRDZ. The Structure Plan became the product of satisfying a consent order, which required a detailed assessment of the following issues:

• Landscape values
• Amenity values
• Views from rural scenic roads
• Protection of the Lake Wakatipu margin
• Transportation
• Servicing
• Integrated development and design.

Jacks Point is located south of Frankton and below The Remarkables, approximately 10 minutes drive from Queenstown Airport and 35 minutes drive from central Queenstown. The general locality comprises significant national landscapes that are highly valued by residents and visitors.

The original site constituted an area of approximately 420 hectares with the majority of land forming part of Remarkables Station. However, after submissions closed, the Jacks Point Zone constituted 1253 hectares of land.

The local authority is the Queenstown Lakes District Council, working in close liaison with Civic Corporation Limited, the consulting company who are contracted to carry out a number of regulatory and policy functions of Council.

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Design detail

Structure plan process

The purpose of the Structure Plan was to form the foundation of the preparation of zone provisions. The new zoning would then enable the development of a high quality resort based primarily on a championship golf course, with associated housing, visitor accommodation and outdoor recreation opportunities. The ultimate development will comprise two international standard golf courses with ancillary passive recreation activities (hiking, mountain biking).

A key objective is to enable development of an integrated resort community, incorporating residential activities, visitor accommodation and outdoor recreation – with appropriate regard for landscape and visual amenity values, servicing and public access.

The intention of the Structure Plan was for Remarkables Station to continue to be run as a viable working farm with the Jacks Point Residential Zones enhancing viability and productivity of the balance of the farm.

Step one: Justification

A study of the site’s land use capability by Moore and Associates Limited provided an early indication that the farmland could continue to function as a sound economic farming unit with the proposed 20% reduction in stock carrying capacity for the reduced land area. Alongside this report Philip Donnelly and Associates Limited carried out an economic analysis. This report concluded that although the variation would result in potential loss of agricultural production, the potential loss to the community of economic wellbeing should be offset many times by the enabled developments and land uses.

The report concluded that the construction of the resort and its associated buildings and accommodation of a large number of additional short and long stay visitors/residents would increase the Queenstown Lakes District’s households, employment and regional gross domestic product.

Step two

Initially, the developer commissioned a number of reports on the following issues:

• Visibility and landscape values
• Valuation – Land Use Capability
• Natural Hazards and Geotechnical Issues
• Indigenous ecosystems - Identification of any habitats of native fauna and flora with recommendations for planting of suitable native species.
• Soils
• Archaeology of the site
• Economic cost and benefits of the proposal
• Transportation
• Infrastructure
• Hydrological.

These reports, their findings and conclusions became key determinates for the development of the structure plan and in preparation of zone provisions.

Landscape values - Detail

An early assessment of the landscape effects of the proposal was completed. It took an interactive approach whereby visibility; landscape character and topography were mapped as key determinates for the development of the structure plan and in preparation of zone provisions. This assessment utilised a computer programme to identify the extent of the site visible from nominated viewer positions and heights. The site was then mapped according to what parts were highly visible, moderately visible, or low/no visibility. This analysis provided an overview of the site’s visibility and the extent to which the structure plan avoids areas of higher visibility and the ability to mitigate these effects. The conclusions drawn were applied in the formulation of the Structure Plan.

Combined with natural site factors such as geology, soils, hydrology and ecology, areas suited for building or open space protection were identified and further refined by visual assessment and mitigation planning. A three-stage process: Stage 1 – Landscape Inventory, Stage 2 Landscape Analysis; Landscape Assessment of Effects; and Landscape Inventory was followed.

Stage 1 – Landscape inventory

• Detailed topographic survey.
• Mapping of geological landforms, soil types, hydrology, vegetation and specialist habitats.
• Identification of predominant viewpoints around the site.
• Detailed mapping of key landscape factors.

Stage 2 – Landscape analysis

• Classification of the site into areas of common visual character being a unique and identifiable combination of landscape elements such as landform, vegetation cover, land use and/or spatial character – based on explicit descriptions.
• Classification of the site into areas of high, medium and low visibility from identified public viewpoints – based on explicit criteria.

Stage 3 – Landscape assessment of effects

• Assessment of potential landscape effects of proposed activities alteration of landscape character, introduction of new landscape elements or patterns; visibility of those changes, new elements or patterns.
• Identification of mitigation measures, specific controls; further refinement of outline development plan/structure plan.

Step Three

A major consideration was the likely servicing demands of the proposed number of residential units (single lot and cluster layout) and its impact on groundwater (infiltration as well as extraction), the quality of the lake water and spiritual values. Other considerations were the other toxins, which can enter the water through the use of sprays on the golf courses.

An overview of the infrastructure services was completed to identify the issues and options for servicing the proposed development. This report gave an early indication that there were no major obstacles that would prevent the provision of adequate infrastructural services to this development.

Access

Two main accesses to the site were considered necessary, one main entrance and a secondary access. An assessment and description of the preliminary traffic and access effects arising from the proposed zoning was completed. This led to a preliminary road layout being prepared which recommended the cross section design.

Wastewater

Detailed reports were prepared for wastewater management because of the very sensitive nature of the receiving environment within the catchment of Lake Wakatipu and the high value placed on both lake water quality and the natural environment of the area. The approach taken was to minimise the quantity of effluent residuals discharged into the environment by use of high performance pre-treatment units followed by land application of the resulting high quality effluent for further in-soil treatment and uptake by vegetation. The final effluent for land application results in a “reclaimed” water source which following storage in dedicated ponding areas has value as irrigation water for controlled summer utilisation on the golf course and landscaping features of the resort area.

Stormwater

Several means of disposal of stormwater were identified as appropriate depending on the area within which development is located. For example, where the housing density is low and ground and subsoil conditions are suitable, ground disposal will be utilised. In other areas stormwater may be reticulated, filtered and discharged into the proposed water features, avoiding lengthy reticulation and providing clean inflow into the ponds. Excess stormwater is then diverted to natural watercourses if necessary. Alternatively stormwater can be collected and conveyed via open grass swales to natural watercourses as far as practicable. Did they do a Stormwater Management Plan?

Recreation features

• 18-hole champion ship golf course which is set to be operational, as the first residential units are made available.
• Completion of a foreshore linkage between Kelvin Heights and the Wye Creek area.

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Design detail

The Structure Plan provides for a number of different activities. The land is split up into several activity areas, which provide for different levels of activities depending on the sensitiveness and visibility of the site. These areas and the activities they provide for are as follows:

• Tablelands
  36 Homesite Activity Areas ranging in size from 2,400m 2 to 2,900m 2 in area, which include all built improvements except access, underground services and waste water disposal systems.
• Jacks Point
  Luxury lodge.
• Lake and Peninsula Hill escarpments
  Landscape protection areas.
• Central Valley
  • Village development comprising commercial, recreational, resident and visitor activities).
  • Residential nodes within the village providing up to 1400 dwellings.
• Hummocks
  Residential development areas and open space.
• State Highway 6 Corridor
  A landscape protection area includes all land clearly visible from the highway.
• Golf course and open space
  • 85% to 90% will be in open space (incl. farmland) or golf course.
  • A public domain area 26 hectares.
• Lake terraces –
  • A village development at Homestead Bay including a vineyard and residential area containing 15 building platforms and winery activities;
  • Open space areas where land use is limited to regenerating native vegetation and public walkways; a residential preserve limited to 12 building platforms;
  • A farm buildings activity area; a boating facilities area;
  • A high density, high quality village area with a diversity of housing types mixed in with hotels, inns, small scale retail activities and recreation and entertainment facilities. This village will provide for between 140 and 200 residential units.

Consultation

Significant consultation was undertaken prior to the draft variation being submitted to by? CivicCorp. A consultation log from June 2001 to October 2001 was kept recording all consultation undertaken prior to notification of the Variation. Early on in the process, a number of groups and organisations were targeted and provided with a copy of the draft Structure Plan and invited to contact the applicant and be shown around the site. These groups highlighted any adverse impacts that might not have been considered and suggested methods by which there concerns could be alleviated, whether through cooperation with other organisations or through appropriate measures being implemented.

Public meetings were held at various stages of the project and the draft variation was submitted to CivicCorp for comments and a meeting held before the Planning Committee to review work completed to date. Further meetings with CivicCorp and the Planning Committee were held to discuss recommended changes and further amendments before submitting to CivicCorp for notification.

Statutory method and rules applied

The process took place through a submission and consent order process under the Resource Management Act, with the developer seeking to amend the Proposed District Plan by Variation under Section 74 of the RMA 1991 (Variation 16).

The structure plan has been based on an outline development plan prepared and amended as part of the comprehensive site studies to ensure the successful integration of development and landscape. Scale, character, location and visibility of buildings were all key considerations. Any adverse landscape effects were successfully mitigated by applying development controls proposed in the variation and restricting development to the activity areas identified in the Structure Plan.

Strict adherence to building design guidelines were promoted through the District Plan and, in part, implemented through a Design Control Committee. All buildings not in accordance with the Structure Plan are assessed as a non-complying activity, ensuring that full effect can be given to the Zone’s objectives and policies, and future development does not result in adverse effects on the landscape and visual amenity values or the desired environmental outcomes being compromised.

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Unique features

The features of the structure plan, which enabled it to give rise to good environmental outcomes and be robust and successful, included the following:

• Emphasis on open space protection, total building site coverage restricted to 5%.
• All development required to be in accordance with an outline development plan which defines the roading network and development areas and identifies where public walkways will be.
• All buildings and landscape planting controlled in respect to design and location.
• On-site sewerage treatment and use of renovated water for irrigation of landscape planting areas.
• Flexible methods for dealing with disposal of stormwater, combining ground disposal, reticulation and open grass swales/channels has overall benefit of increasing the concentration time and recharging the water table.
• The use of a visibility analysis as a planning tool to assist the formulation of a site sensitive structure plan for the zone and appropriate mitigation measures.
• All buildings located in specific activity areas identified for site suitability for development and low visibility from the SH6 corridor and the Lake. Strategic mitigation planting within the SH6 corridor to further reduce visibility of those activity areas.
• Long-term protection of the SH6 corridor visual corridor and Lake margins through specific policy areas identified on the structure plan. Rigorous design control and co-ordinated landscape planting should effectively mitigate any adverse visual effects of the Jacks Point Special Resort Zone.
• The Council has entered into an agreement with the developer, which seeks to set aside land for affordable housing provision. This agreement requires a 5 percent commitment of all residential allotments created, contributed in either land or money, which can only be used for the purpose of affordable housing.
• The use of development controls and design guidelines in conjunction with a ‘Design Review Board’ to ensure quality environmental outcomes.
• An upper limit (in terms of percentage) on the area of land that may be developed within the Zone. A requirement to stage open space or recreational development at the same rate as other development.
• The establishment of a ‘Stakeholders Deed’ between the primary landowners and Council, to ensure certainty in regard to the quality environmental outcomes sought by the community.
• Entirely private owned infrastructure (roads, water, sewage and stormwater).
• Only a handful of key stakeholders or landowners to deal with over such a large area.
• The key planning mechanism of the Jacks Point Resort Zone was the implementation of a structure plan (identifying activity areas suitable for various types of land use activities).

Lessons learned

The real lesson is the systematic approach to the identification of constraints and opportunities offered by the site and its wider environmental context and the development of a structure plan that is sensitive to and cognisant of these. From this basis, drafting district plan provisions is relatively straightforward.

Other important factors were:

• Gaining early community acceptance through the District’s strategic planning process that the landscape could successfully absorb future urban development if it was carried out in an environmentally sensitive manner.
• Having a key person with the overall concept ingrained to take lead of the process and engage other people in their vision.
• Negotiation and compromise with key stakeholders regarding the location of development to ensure satisfaction with the type and scale of development proposed.
• Allowing for a high degree of predictability for stakeholders as to what outcomes will be and won’t be realised.
• Exhaustive resource studies are crucial when dealing with a greenfield development of this scale. Rigorous studies were needed to ensure that the developer had a thorough understanding of constraints and opportunities. The outcome of these studies was that the main constraint, visual impact from the SH6, was identified. These studies then set parameters within which more detailed site planning can occur.

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Jacks Point structure plan maps

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