Supplementary Reports Agenda of Bay of Islands-Whangaroa Community Board Meeting

Bay of Islands-Whangaroa Community Board Meeting Agenda

11 June 2025

7.1 The Strand, Kororāreka Russell Traffic Trial

File Number: A5145928

Author: Emma Manning, Senior Strategic Planner

Authoriser: Ken MacDonald, Chief Financial Officer

Take Pūrongo / Purpose of the Report

To recommend a permanent solution for after The Strand, Kororāreka Russell Traffic Trial ends on 1 September 2025 to the Bay of Islands-Whangaroa Community Board.

WhakarĀpopoto matua / Executive Summary

· The Bay of Islands-Whangaroa Community Board granted the community of Kororāreka Russell $100,000 for placemaking in 2022 ($15,000 via Resolution 2022/09 and $85,000 via 2022/56).

· Extensive community engagement throughout 2024 identified 79% of participants surveyed wanted to change the use of The Strand from a road.

· Under the Land Transport Rule: Streets Layout 2023, Council as the Road Controlling Authority decided on 12 September 2024 to implement a six-month trial (Resolution 2024/126).

· The Strand Traffic Management trial commenced on 8 December 2024.

· On 10 April 2025, Council decided to extend the trial to 1 September 2025.

· Staff conducted a four-week consultation ending on Tuesday 27 May 2025 which received 383 submissions which asked submitters what they think should happen after the trial ends.

· The consultation survey found 33.60% wanted to keep the trial, 33.90% wanted to revert The Strand, and 32.30% wanted all of The Strand to be pedestrian priority.

· Staff recommend that the trial be made permanent after further design work based on the following:

o Analysis of the consultation submissions

o Statements from the Project Steering Group and Traffic Management Group

o Consideration of the existing Parking Bylaw and Mobility Access in Cass Street

o Consideration of the objectives of the Russell Historic Township Overlay.

tŪtohunga / Recommendation

That the Bay of Islands-Whangaroa Community Board:

a) Recommend that Council, as the Road Controlling Authority under the Land Transport Rule: Streets Layout 2023 (Rule) change:

I. from mid-block Cass Street to the boat ramp at the northern end of The Strand to a shared space,

II. the southern end of The Strand to pedestrian priority with access for essential vehicles, and

III. the layout of Cass Street to make the trial permanent, and

b) Recommend that the features installed temporarily in Cass Street during the trial be retained in its current form until a permanent solution can be installed consistent with the objectives of the Kororāreka Russell Historic Township Overlay, except for the planters and barrel adjacent to Russell Fresh which are to be removed immediately, and

c) Incorporate the above recommendations into the Bay of Islands-Whangaroa Community Board Strategic Plan to be considered for inclusion in the Long-Term Plan.

1) TĀhuhu kŌrero / Background

In early 2024, the community with support from the new FNDC Growth Planning and Placemaking team started the Kororāreka Russell Placemaking Plan project. This project was initiated in response to an application for alfresco dining by the Duke of Marlborough. On 5 August 2021 the Bay of Islands-Whangaroa Community Board (Community Board) resolved (2021/61), in addition to considering the alfresco dining application, for the ‘community board members to engage with the Russell community to develop a Placemaking kaupapa for the Strand, Russell’. As a result, in 2022, the Community Board granted the Kororāreka Russell community $100,000 for placemaking (Resolution 2022/09 and 2022/56).

To support a new placemaking initiative for Kororāreka Russell, a Project Steering Group comprising community representatives was established to partner with Council and lead the placemaking project. Throughout 2024, the Steering Group led engagement events which attracted over 1300 ideas to improve the public realm and foreshore of Kororāreka Russell.

One of the outcomes of the engagement in 2024 was the Kororāreka Russell community wanted to change in the way people and cars interact along the waterfront. In response, the community were asked via an online survey what they wanted to change, and the community provided the following feedback:

• All of the Strand as a pedestrian priority from Pitt Street to Kent Street providing access for essential vehicles = 45%

• Pedestrian priority along south of The Strand from Cass Street to Pitt Street with access for essential vehicles = 19%

• All of the Strand as a shared space from Pitt Street to Kent Street = 15%

• The Strand remain as a road = 21%

Based on the above, at its meeting on 15 August 2024 (Resolution 2024/90), the Community Board recommended a six-month traffic management trial during which the use of The Strand would be changed to allow essential vehicle access only between Cass Street to Pitt Street (Refer to the Diagram on Page 4 of Attachment 1).

Under the Land Transport Rule: Streets Layout 2023, Council is the Road Controlling Authority. Therefore, subsequently, Council considered the above recommendation at its meeting on 12 September 2024 and agreed to implement the trial (Resolution 2024/126). As a result, The Strand Traffic Management trial commenced on 8 December 2024.

The Project Steering Group formed a traffic management sub-committee (Traffic Management Group) to oversee the trial and report back to the Project Steering Group.

2) matapaki me NgĀ KŌwhiringa / Discussion and Options

Council Consultation

In accordance with 3.5(b)(i) of the Land Transport Rule, Council must give the public a reasonable opportunity to provide feedback on the trial. As a result, staff facilitated a four-week consultation period from Tuesday 29 April 2025 to Tuesday 27 May 2025.

The consultation included two information sessions in Kororāreka Russell, promotional video shared on Councils Facebook and social media, letters and emails sent directly to ratepayers and occupiers from Tapeka Point across to Rawhiti, including Kāretu Marae, Waikare (Te Tūruki) Marae, Te Rāwhiti (Omakiwi) Marae, Kaingahoa (Rāwhiti) Marae and Kororāreka Marae inviting them to participate in an online survey. The Project Steering Group and the Traffic Management Group also used their local networks to promote the consultation.

Survey

The central question of the consultation survey was, “What next for the Strand?” with the below three options.

· Option 1: “Keep the current trial layout - Shared space from Seaside Café to the boat ramp. Pedestrian priority zone from Cass Street to the Marae, with access for essential vehicles only. 'No Left Turn' sign to remain on Cass Street.”

· Option 2: “Remove the trial layout and return The Strand to its original setup.”

· Option 3: “Full pedestrian priority zone from the boat ramp to the Marae (not funded) with access for essential vehicles only.”

Staff also developed concept diagrams for each option to help the community understand the interconnection and interdependence between Cass Street and The Strand when voting on a permanent solution (see Attachment 2). What was trialled and what was approved to be trialled deviated slighted. Please refer to Attachment 3 for a detailed explanation of what was trialled and the term essential vehicle.

The key statistics from the consultation results are as follows:

· 383 total submissions, including 365 survey responses.

· 63% of survey respondents said their experience of The Strand since the trial began was either the same or better.

· 93% of survey respondents identified as fulltime or part time residents.

· 60% of survey respondents said they visit The Strand daily.

· 65.7% of total submissions (252 submissions) wanted either all or part of The Strand to be pedestrian priority with access for essential vehicles.

In addition to the above, the data collected for the survey questions relating to the to safety, access, signage, and accessibility to the wharf has been excluded from the report because the data is unreliable due to the answer options switching between a positive and negative sentiment ranking.

The results of the survey are as follows:

	Keep the current trial layout with access for essential vehicles only	Remove the trial layout and return The Strand to its original setup	Full pedestrian priority zone with access for essential vehicles only	TOTAL
Online Survey (including any subsequent email comments)	100*	92	99	291
Hard Copy (including any subsequent email comments)	21	36**	17	74
Email Submissions (officer assigned category)	8	2	8	18
TOTAL	129	130	124	383
PERCENTAGE	33.60%	33.90%	32.30%
16 respondents selected two options. This figure includes 15 respondents that selected keep the trial and full pedestrian priority and 1 respondent that selected keep the trial and go back *7 late hard copy submissions were received on 4 June 2025 which are not included in these statistics or this analysis. Inclusion of these late submissions in these statistics would not have altered FNDC Staff recommendations.

Survey Comments

The survey asked respondents whether their experience of the trial was better or worse during the trial and also provided a freeform box allowing 150-200 words explaining why their experience was better or worse. The depth, breadth and specificity of the comments has been integral in forming this recommendation.

Broadly, the comments align between people whose experience of the trial was better or worse. The people who had a better experience referenced the correlation between improved ambiance/atmosphere (181) on the foreshore and their being less cars (157), resulting in an increased feeling of safety and enjoyment of the foreshore and the adjacent businesses. Equally there was strong correlation between comments where users experience of the changes to Cass Street – including reduced visibility, reduced manoeuvrability, difficulty parking, congestion, and impeded access to the wharf – meant that their experience of the trial was negative. Even if they agreed that having less traffic on the Strand enhanced the foreshore for others, such as children, visitors and tourists. While the overall sentiment in the comments reflected the choice for what happens next, the comments raised important design considerations for any permanent solution which are detailed in Attachment 4.

Options for a Permanent Solution

Option 1: “Keep the current trial layout - Shared space from mid-block Cass Street to the boat ramp. Pedestrian priority zone from Cass Street to the Marae, with access for essential vehicles only. 'No Left Turn' sign to remain on Cass Street.”

Advantages:

· Supported by the Project Steering Group (see Attachment 5).

· Supported by the Traffic Management Group (see Attachment 6).

· The Transportation Capital Works and Renewals Team has estimated that the cost of permanently installing roading infrastructure would be between $20,000-$30,000. There may be additional costs associated with achieving a high-quality design response, if engagement of a heritage consultant is required.

· Enables residents and visitors to go to the south of the Strand if they want to enjoy the foreshore with less traffic which is quieter and with less emissions and feels safer because there are less cars.

· The trial has demonstrated that less traffic enhances the atmosphere and ambiance of the foreshore.

· Less traffic to the south of the Strand reduces the risk of a collision between a car and a person or a child.

· Less traffic is safer for people with limited mobility.

· Ensures tangata whenua access to the coastal marine area.

Disadvantages:

· The submitters (30) whose comments indicated that they did not enjoy the trial or who missed being able to drive down the south of the Strand will not be able to drive down the south of the Strand unless they are an essential vehicle.

Staff Recommendation: While a permanent solution needs to be responsive to the concerns raised by the community during the consultation relating to the functionality of Cass Street and the objectives of the Kororāreka Russell Township Heritage Overlay, staff recommend retaining a pedestrian priority with essential vehicle access from Cass Street to the Marae without a physical barrier because:

1. The majority of submitters wanted to see either part or all of the foreshore as pedestrian priority,

2. The trial demonstrated that reducing traffic on The Strand increased the ambiance of the foreshore and users felt safer,

3. The majority of the concerns raised with the trial pertained to design issues which can be addressed prior installation of a permanent solution,

4. Keeping the trial will enhance the foreshore as a tourist destination, and

5. Keeping the trial is in line with the strategic priorities of the Bay of Islands-Whangaroa Community Board Strategic Plan 2022.

While staff support keeping the trial, it may take some time for a permanent solution to be installed because there is currently no funding and further detailed design work is required. In the interim, the planters and barrel adjacent to Russell Fresh are recommended to be removed as they are impeding both a legal loading zone and a mobility space.

Also, the Transportation Capital Works and Renewals Team have advised that the longevity of the temporary planters and barrels in Cass Street could be up to ten years depending on upkeep. The rocks and landscaping may not last as long because they are placed on top of the asphalt and are not fixed in place and can be shifted easily. Note, any permanent roading infrastructure constructed as part of this option would be owned and maintained by Council.

Option 2: “Remove the trial layout and return The Strand to its original setup.”

Advantages:

· Returning The Strand to its previous form will ensure that users of the wharf will have unimpeded access to the foreshore.

· Removing the trial would be the cheapest option, but it would still attract some expense to remove and dispose of the trial devices and signage currently installed in Cass Street. The Transportation Capital Works and Renewals Team has estimated that removing the trial infrastructure would cost $5,000 or less. In addition, there is no budget provision for any solution in the Transportation Capital Works and Renewals budget presently. If this option was chosen, funding would need to be allocated from existing placemaking funding or Council would have to allocate additional funds from a different budget.

· Would enable all people to enjoy driving down The Strand.

· The speed limit of The Strand may be reduced from 30kmh to 10kmh via a separate Council process. Therefore, in that case, reverting to a road would be less hazardous than it was before the trial.

· Ensures tangata whenua access to the coastal marine area.

Disadvantages:

· The trial has demonstrated a correlation between less traffic and increased ambiance on the foreshore. This option would increase the number of vehicles using The Strand which would make The Strand less enjoyable for pedestrians.

Staff Recommendation: Staff do not recommend this option because extensive community engagement throughout 2024 identified that 79% of survey respondents wanted to change the use of The Strand from a road to a shared space or to all or part pedestrian priority. Subsequently the trial confirmed that after experiencing and change of use on the Strand 65.7% of submitters still wanted all or part of The Strand to be pedestrian priority. Additionally, the majority of opposition to the trial related to the changes to Cass Street, not prioritising the use of the Strand for pedestrians.

Option 3: “Full pedestrian priority zone from the boat ramp to the Marae (not funded) with access for essential vehicles only.”

Advantages:

· Traffic counts collected by the Traffic Management Group show there are instances of vehicles travelling at up to 60kmh along The Strand. A full pedestrian priority option would provide a physical barrier to prevent speeding vehicles from endangering pedestrians.

· Full pedestrian priority would enable people to dine at businesses along the waterfront with less vehicle noise and exhaust.

· Concerns have been raised by owners of businesses to the north of the Strand that cars fly past their businesses and they are worried – because of the speed – that one of their staff, or patrons or a child could be hit by a car. Full pedestrian priority would ensure that the businesses and not burdened with increased risk to their staff because more vehicles are using the north of the Strand now that they can’t turn left from Cass Street.

· Speed humps have been suggested to reduce traffic speeds on the Strand. Speed humps are not supported by the Disabled Persons Assembly New Zealand because they are difficult to navigate for people with limited mobility.

Disadvantages:

· Reduces tangata whenua access to the coastal marine area.

· This would be the most expensive option to implement. The Transportation Capital Works and Renewals Team has estimated that the cost of installing a mini-roundabout, bollards, signage and narrowing features would be at least $250,000.

· Russell Volunteer Fire Brigade and other emergency services need to have uncompromised access to the Strand in the event of an emergency, any lowerable bollards would take time to remove in an emergency.

· The legal mobility space, bus stop and loading zone in the Parking Bylaw 2022 adjacent to the wharf would need to be removed and relocated elsewhere.

· This solution would mean there is nowhere for cars to stop to pick up/drop off passengers to the passenger ferry at the end of the wharf.

· With a mini-roundabout, there is nowhere for vehicles to pass other vehicles which are stopped adjacent to the wharf to restock/services vessels.

Staff Recommendation: Staff developed concept diagrams for this permanent solution to show the Kororāreka Russell community that, in order for full pedestrianisation to be achieved, a mini-roundabout would need to be installed in Cass Street and lowerable bollards (or similar) installed to prevent access from Cass Street to The Strand. Staff do not support this option because there is strong opposition in the community to defining, policing or enforcing the distinction between essential and non-essential vehicles. Also, between the pre-trial survey and the post-trial survey, support for this solution decreased by over 10%. While the comments have not illuminated the reason for this shift, the mini-roundabout would mean that the shared space next to the wharf that is currently used like a town square would be lost. Note, any permanent roading infrastructure constructed as part of this option would be owned and maintained by Council.

Options for Funding

The Bay of Islands-Whangaroa Community Board identifies in its Strategic Plan dated July 2022: “Placemaking The Strand Russell. Finding creative solutions to manage the Strand area the many user groups while respecting the historic significance of the area.” Therefore, while the trial was initiated as result of community engagement, pedestrianising the Strand aligns with the Strategic Priorities of the Bay of Islands-Whangaroa Community Board.

Option 1: Fund a permanent solution via inclusion in the Long Term Plan

Advantages: A long term funding strategy ensures there is time to plan and execute a high-quality responsive design to ensure the concerns that have been raised throughout the trial by the Kororāreka Russell community are mitigated in a permanent solution.

Disadvantages: The temporary instillations will degrade over time and could potentially become a safety hazard or detract from the protected heritage attributes of the Kororāreka Russell Township.

Staff Recommendation: Staff recommend this option because roading infrastructure will need to be designed and implemented by Council’s roading representatives in line with Council’s obligations as the Road Controlling Authority. Council’s representatives are therefore best placed to ensure a permanent solution complies with safety standards and complements Kororāreka Russell’s heritage aesthetic.

Option 2: Fund a permanent solution via Community Board Grant Funding

Advantages: providing grant funding to start the detailed design work for a permanent design will be faster and give the community more control over the final design of the roading solution if they are leading the engagement with heritage architects and engineers. The Community Board’s Strategic Plan justifies using grant funding for a permanent solution because the outcome will both effect and benefit the whole Kororāreka Russell community and the Ward and District more broadly. Using grant funding as a mechanism to implement a permanent solution ensures the Community Board have control over the detail design and can award grants to local providers in line with the wishes of the Kororāreka Russell community.

Disadvantages: Using grant funding for a permanent solution may result in less funding being available for grant proposals in other areas of the Ward. It may result in complexities not having the project managed by the Transportation Department.

Staff Recommendation: Staff would not discourage the Community Board from using grant funding to expedite a permanent solution but note this is not likely to be financially viable within the Community Board’s allocation for the next financial year. It may also be challenging for a community board to direct functions that would normally be managed by the Transport Department.

Next Steps

After the Community Board decide on a permanent solution, the decision will need to be referred to Council for endorsement as the Road Controlling Authority in accordance with the Land Transport Rule: Streets Layout 2023 before any design work can commence toward a permanent solution. Upon a decision of the Council, if supported, the planters and barrel adjacent to Russell Fresh are recommend to be removed immediately.

Under the Land Transport Rule: Street Layouts 2023 a trial period means the two year period from the date of the installation of the trial, in this case 8 December 2024 to 8 December 2026 (r 1.4(1)). A Road Controlling Authority may end a trial before the two-year trial period has expired by making a decision on a permanent solution (r 3.9(2)). After Council has made its decision and before the trial period ends, Council must notify the public a) when the trial will end (under r 3.8) and tell the public of the decision/outcome of the trial (under r 3.9(2)).

If Council resolves to make the street layout changes that were subject of the trial permanent, then Council can keep installed on the road the street layout changes that were subject to the trial until a permanent solution can be installed (r 3.11(2)). There is no time limit for permanent roading infrastructure to be installed. Council is however required to keep the public informed as to the design and timeline of the installation of permanent roading infrastructure via, for example, a website page providing updates to the community on progress.

TAKE TŪTOHUNGA / REASON FOR THE RECOMMENDATION

The Kororāreka Russell community are a highly active community that have championed changing the use of The Strand from a road to pedestrian priority for the benefit of residents, visitors and tourists. The trial proved that the foreshore would be better with less traffic and making the trial permanent subject to further detailed design to Cass Street enables less traffic on the Strand without requiring physical barriers. Keeping the trial also ensures the waterfront can be accessed by tangata whenua, businesses that need to access The Strand, residents with properties on The Strand and emergency services.

3) PĀnga PŪtea me ngĀ wĀhanga tahua / Financial Implications and Budgetary Provision

The Transportation Capital Works and Renewals Team have advised that none of the options for a permanent solution would likely be able to meet the criteria for New Zealand Transport Agency (NZTA) subsidy so any works would be at 100% Council share. There is no budget provision for any solution in the Transportation Capital Works and Renewals budget presently.

The recommended by staff estimates that the cost of permanently installing roading infrastructure to make the trial permanent would be between $20,000-$30,000. There may be additional costs associated with achieving a high-quality design response if engagement of a heritage consultant is required. There funds are recommended to come from a Long Term Plan.

Āpitihanga / Attachments

1. Pre-Trial Concept 2024 - Option 3 - A5217030 ⇩

2. Trial 2025 - The Strand Consultation Diagrams - A5208811 ⇩

3. What was trialled - A5218739 ⇩

4. Analysis of Submission Comments and Recommended Responses - A5218735 ⇩

5. Statement From The Kororāreka Russell Steering Group – Received 27 May 2025 - A5217055 ⇩

6. Statement From The Kororāreka Russell Traffic Management Group – Received 28 May 2025 - A5217059 ⇩

Hōtaka Take Ōkawa / Compliance Schedule:

Full consideration has been given to the provisions of the Local Government Act 2002 S77 in relation to decision making, in particular:

1. A Local authority must, in the course of the decision-making process,

a) Seek to identify all reasonably practicable options for the achievement of the objective of a decision; and

b) Assess the options in terms of their advantages and disadvantages; and

c) If any of the options identified under paragraph (a) involves a significant decision in relation to land or a body of water, take into account the relationship of Māori and their culture and traditions with their ancestral land, water sites, waahi tapu, valued flora and fauna and other taonga.

2. This section is subject to Section 79 - Compliance with procedures in relation to decisions.

He Take Ōkawa / Compliance Requirement	Aromatawai Kaimahi / Staff Assessment
State the level of significance (high or low) of the issue or proposal as determined by the Council’s Significance and Engagement Policy	The Kororāreka Russell Historic Township is of district wide significance and therefore a four-week community consultation process was conducted to ensure anyone across the district could comment on what should happen after the trial ends. The matter is of high significance because the proposal is likely to generate considerable community interest.
State the relevant Council policies (external or internal), legislation, and/or community outcomes (as stated in the LTP) that relate to this decision.	Accessibility Policy (2022) Art and Memorials in Public Places Policy (2017) Community Gardens Policy (2013) Community Grant Policy (2018, currently under review) District Plan 2009 Footpath Policy (2016) Heritage New Zealand Pouhere Taonga Act 2014 Iwi/Hapu Environmental Management Plans Policy (2016) Local Government Act 2002 Long Term Plan (2024-2027) Parks and Reserves Policy (2022) Parking Bylaw 2022 Procurement Policy Resource Management Act 1991
State whether this issue or proposal has a District wide relevance and, if not, the ways in which the appropriate Community Board’s views have been sought.	The Kororāreka Russell Historic Township is of district wide significance and the Community Board have been involved throughout the process via the appointment of a Project Steering Group led by a Community Board Member.
State the possible implications for Māori and how Māori have been provided with an opportunity to contribute to decision making if this decision is significant and relates to land and/or any body of water. State the possible implications and how this report aligns with Te Tiriti o Waitangi / The Treaty of Waitangi.	The Project Steering Group engaged widely during the trial, this included: - Hapū representation on the Project Steering Group and the Traffic Management Group - Direct invitation to surrounding Maraes in the consultation - Consideration of access to water for tangata whenua
Identify persons likely to be affected by or have an interest in the matter, and how you have given consideration to their views or preferences (for example – youth, the aged and those with disabilities).	The engagement identified over fifty local groups and community groups and five Maraes within surrounding area with an interest in Kororāreka Russell. In order to ensure a comprehensive and inclusive engagement, there has been a range of events and methods employed to ensure opportunities for participation. The consultation identified significant impacts to the use of the legal mobility space, the recommendation seeks to have this concern addressed. Also, business owners, property owners who are directly abutting the roads that are affected, and their concerns have been reflected throughout the discussion.
State the financial implications and where budgetary provisions have been made to support this decision.	The Transportation Capital Works and Renewals Team have advised that none of the options for a permanent solution would likely be able to meet the criteria for NZTA subsidy so any works would be at 100% Council share. There is no budget provision for any solution in the Transportation Capital Works and Renewals budget presently. Funding would need to be allocated from placemaking funding or Council would have to allocate additional funds from a different budget.
Chief Financial Officer review.	The Chief Financial Officer has reviewed this report.

Bay of Islands-Whangaroa Community Board Meeting Agenda

11 June 2025

7.2 Kororāreka Russell Placemaking Plan

File Number: A5145940

Author: Emma Manning, Senior Strategic Planner

Authoriser: Ken MacDonald, Chief Financial Officer

Take Pūrongo / Purpose of the Report

To seek the Bay of Islands-Whangaroa Community Board’s endorsement of the Kororāreka Russell Placemaking Plan and its implementation.

WhakarĀpopoto matua / Executive Summary

· The Bay of Islands-Whangaroa Community Board (Community Board) granted the community of Kororāreka Russell $100,000 for placemaking in 2022 ($15,000 via Resolution 2022/09 and $85,000 via Resolution 2022/56).

· Extensive community engagement throughout 2024 culminated in eleven placemaking initiatives documented in the attached Kororāreka Russell Placemaking Plan (Attachment 1).

· The $100,000 granted placemaking funding was allocated by the Project Steering Group to implement four initiatives.

· Seven initiatives remain fully unfunded.

· Staff recommend the Community Board endorse the Kororāreka Russell Placemaking Plan and decide whether to adopt a funding strategy for implementation.

tŪtohunga / Recommendation

That the Community Board:

1. Endorse the Kororāreka Russell Placemaking Plan and incorporate its initiatives into the Community Board Strategic Plan,

2. Confirm that funding granted under Resolutions 2022/09 and 2022/56 can be used towards the implementation of the initiatives in the Kororāreka Russell Placemaking Plan, and

3. Approve the remaining funding be paid to Far North Holdings Limited for the implementation of the Kororāreka Russell Placemaking Plan at the direction of the Community Board or their nominated representative.

1) TĀhuhu kŌrero / Background

The Kororāreka Russell Placemaking Plan project was initiated in response to an application for alfresco dining on 5 August 2021. The Bay of Islands-Whangaro Community Board (Community Board) resolved (2021/61), in addition to considering the alfresco dining application from the Duke of Marlborough, for ‘community board members to engage with the Russell community to develop a Placemaking kaupapa for the Strand, Russell’. As a result, in 2022, the Bay of Islands Whangaroa Community Board (BOIWCB) granted the community of Kororāreka Russell a total of $100,000 for placemaking.

The Kororāreka Russell community have been developing plans for improvements to the waterfront since 1970s. These initiatives are detailed in the attached Kororāreka Russell Placemaking Plan (Attachment 1).

In 2024 it was agreed that the development of a community led placemaking plan for Kororāreka Russell supported by the new FNDC (Far North District Council) Growth Planning and Placemaking Team would be a good opportunity to test the “best practice guide developed for creating placemaking plans” and also enable the community board grant to be used to implement initiatives rather than only design.

To support this new placemaking initiative for Kororāreka Russell, a Steering Group comprising community representatives was established to partner with FNDC staff and undertake a placemaking project. Throughout 2024, the Steering Group championed engagement events seeking views from the community about what is important to them, and to describe and prioritise placemaking outcomes on the Kororāreka Russell foreshore including:

· E-newsletter, social media and website,

· Pop-up shop in Russell 24 April 2024 to 3 May 2024 resulted in 1300 ideas,

· Public activation weekend 15 June 2024 to 16 June 2024 resulted in 880 submissions, and

· Online survey and vote via the ‘Russell Noticeboard’ Facebook group resulted in 456 responses received.

As a result of the distillation of ideas throughout the engagement phase, the Steering Group identified the following eleven improvements to the foreshore to be progressed for implementation:

Short term:

· The Strand traffic management trial (6 months)

· Adding more seats along The Strand

· A play trail along The Strand

· Natural steps with rails for beach access

Medium term:

· Additional picnic tables and rubbish bins

· Additional pontoon with water play feature

· Commission a landscape plan for the Village Green

· Explore options for drinking fountain

Longer term:

· Review signage and commission new signage

· Identify stories and how to tell them

· Explore options for BBQ/Hangi area

Due to the availability of funding, after the engagement phase was complete, the Steering Group decided to proceed to implement the four short term projects. For completeness, these four projects which have begun to be implemented, have been included in the Kororāreka Russell Placemaking Plan as they may require more funding to be fully realised.

The $100,00 Community funding has been allocated as follows:

· Initial placemaking report (Barkers and Associates) $7,500

· The Strand traffic management trial six months $40,000

· Adding more seats along The Strand $25,000

· A play trail along The Strand $7,500

· Natural steps with rails for beach access $20,000

In order to implement the above initiatives, the Steering Group appointed four sub-committees with local volunteers to oversee and report back to the Steering Group on their progress as follows:

· The Strand traffic management trial six months - traffic management trial currently being conducted by FNDC staff,

· Adding more seats along The Strand - the seats are close to installation,

· A play trail along The Strand - the play trail has been completed, and

· Natural steps with rails for beach access - beach access is progressing slowing due to issues with heritage and beach erosion.

A traffic management trial is required to be conducted by FNDC staff for any change to the function of a road. At its meeting on 15 August 2025 (Resolution 2024/90), the Community Board recommended to Council a six-month trial. Subsequently, Council at its meeting on 12 September 2024 agreed to implement the trial (Resolution 2024/126). As a result, the trial commenced on 8 December 2024 and will end on 1 September 2025 (an extension was obtained). A separate agenda item at the June Community Board meeting is seeking a recommendation from the Community Board as to what should happen after the trail is concluded.

2) matapaki me NgĀ KŌwhiringa / Discussion and Options

Funding and Far North Holdings Limited

Since 2022 when the funding was allocated, the Steering Group established in 2024 progressed to start implementing the four priority initiatives. However, the original decisions approved the funding to be spent on detailed design work and concept drawings as follows:

· 2022/56: “That the Community Board commits $85,000 from its Placemaking Fund for 2021-22 to detailed design work at The Strand, Russell.”

· 2022/09: “that, as a result of consultation with the Russell Community thus far, the Community Board approve the cost of procurement up to $15000 for concept drawings for The Strand, Russell, from the Bay of Islands - Whangaroa Community Board placemaking funds.”

Because Council created a Growth Planning and Placemaking team in 2023, there was some overlap between what FNDC staff were able to complete since the original funding was allocated and therefore not all these funds were needed for detailed design work and concept drawings, and most of the funding has therefore been spent on implementation. While endorsement was given, no additional Community Board resolution was passed to reflect the change in how the grant could be spent and staff are now seeking that to be rectified. Additionally, any unspent funding will not role over to the next financial year, as has been the case in previous years, if not spent by 30 June 2025 due to changes in auditing regulations. Therefore, the unspent funds need to be transferred to an external party such as Far North Holdings Limited (FNH), or they will be lost.

Option 1: Accept the Funding Recommendation

Advantages: the recommendation allows for all remaining funds to be paid to FNH for the implementation of the Kororāreka Russell Placemaking Plan which could be used for beach access which was the initiative which received the most support from the community throughout the engagement in 2024.

Disadvantages: the Community Board would not be able to reallocate the remaining funding to other grant applications being considered before the end of this financial year.

Staff Recommendation: Staff recommend this option because the Kororāreka Russell Placemaking Plan has a high level of community support and if the funding is not spent by 30 June 2025 the funding will be lost and there is not enough time between now and the end of the financial year for any other placemaking projects to be scoped.

Option 2: Reject the Funding Recommendation

Advantages: the Community Board would be able to provide savings by not spending their full budget allocation or putting this funding towards achieving a different strategic priority.

Disadvantages: not paying this funding to FNH would mean that the Community Board would lose the funding because there is not enough time between now and the end of the financial year to grant this funding to another party for a different project.

Staff Recommendation: Staff do not recommend this option. If the funding is not paid to FNH before the end of the financial year, the Community Board will lose the opportunity to use this funding.

Kororāreka Russell Placemaking Plan

The engagement led by the Steering Group throughout 2024 identified eleven improvements to the Kororāreka Russell foreshore that were supported by the people who participated in the engagement. Seven of these initiatives however are not costed and there has been no investigation into the viability of the implementation of these initiatives. Also, some of the initiatives proposed involve creating FNDC owned assets that may overlap with upgrades that would ordinarily be carried out by FNDC’s Property and Facilities Management Department. Therefore, as some of these initiatives relate to providing more civil amenities on FNDC Land, others relate to works in the coastal marine area that would ordinarily be undertaken by FNH, and some are related to capturing the history and significance of Russell which require leadership and input from the community, a mixed funding strategy may be most appropriate. Nonetheless, including all the initiatives in the Community Board’s Strategic Plan provides clarity to the Kororāreka Russell that these initiatives are supported by the Community Board and certainty for anyone wishing to invest in developing these concepts.

If the Community Board agree with the community that these initiatives will improve the public realm in Kororāreka Russell, the following options are available to the Community Board to fund and deliver some or all of the initiatives:

a) Implemented by Council as part of the Long Term Plan,

b) Implemented by the Kororāreka Russell community using Community Board grant funding, or

c) Implemented by the Kororāreka Russell community using private or volunteer funding sources.

Option 1: Endorse the Kororāreka Russell Placemaking Plan and include its initiatives in the Community Board’s Strategic Plan without a funding strategy

Advantages: The Community Board may decide that it does not want to utilise its resources for the implementation of these projects because it has other strategic properties and need to use its funding resources for a different purpose. Endorsing the Kororāreka Russell Placemaking Plan will affirm the wishes of the Kororāreka Russell community to implement these improvements to the Kororāreka Russell foreshore. Including these initiatives in the Community Board’s Strategic Plan formalises the support from the Board.

Disadvantages: The community has expressed their wishes to be involved in implementation and this option could lead to outcomes which do not reflect the needs of the various vested interested in Russell.

Staff Recommendation: Staff recommend the Community Board endorse the Kororāreka Russell Placemaking Plan but that, because the initiatives are not costed, further investigation into the viability of each initiative occur before the Community Board decide how to implement each of the supported initiatives.

Option 2: Endorse the Kororāreka Russell Placemaking Plan and include its initiatives in the Community Board’s Strategic Plan with a funding strategy

Advantages: Implementation by FNDC staff where appropriate will ensure safety standards and compliance with regulatory requirements. Using grant funding where appropriate ensures that the Community Board have control over assessing the detailed design of assets to be vested in Council and award grants to local providers in line with the endorsed placemaking plan and its vision for Russell.

Disadvantages: Through the 2024 engagement findings, the community indicated a preference to be involved in and drive the implementation of the initiatives and be involved in detailed design. Conversely, using grant funding for implementation of multiple projects may result in less funding available for grant funding to be allocated for improvements to the public realm in other areas of the Ward. Also, delegating implementation to external providers with no control over the design or implementation is high risk and could lead to division within the community or assets which do not comply with FNDC standards and result in a high-cost burden to ratepayers to maintain long term.

Staff Recommendation: using a combination of Long Term Plan (LTP), grant funding and private funding provides the greatest flexibility to Council and enables the Community Board to decide in the future which is the best method of funding to implement the placemaking plan and whether the Community Board wants control over how any of the initiatives are implemented (e.g. grant). Staff recommend the Community Board endorse the Kororāreka Russell Placemaking Plan but Council support would need to be sought if the Community Board wanted to seek Long Term Plan (LTP) funding for some or all of the initiatives.

Example of a mixed funding strategy:

Long Term Plan to be implemented by FNDC

o Additional picnic tables and rubbish bins

o Explore options for drinking fountain

o Explore options for BBQ/Hangi area

Grant Funding to be implemented by the community

o Commission a landscape plan for the Village Green

o Review signage and commission new signage

o Identify stories and how to tell them

Private or Volunteer Funding Sources to be implemented by Far North Holdings Ltd

o Additional pontoon with water play feature

Option 3: Not endorse the Kororāreka Russell Placemaking Plan

Disadvantages: The Kororāreka Russell community have invested heavily in participating in this engagement process and believe the initiatives proposed for endorsement will benefit this community and improve the Kororāreka Russell foreshore.

Staff Recommendation: Staff do not recommend this option. The placemaking process was community led, and the members of the Kororāreka Russell community want to see these initiatives implemented.

TAKE TŪTOHUNGA / REASON FOR THE RECOMMENDATION

The Kororāreka Russell community have participated in a community driven engagement process to identify initiatives that would improve the Kororāreka Russell foreshore. Given that the projects identified are located on publicly land owned by FNDC, and any assets created would be vested in FNDC and maintained by FNDC, it is appropriate for some or all of the projects to be funded by ratepayers.

Implications and Budgetary Provision

The $100,000 budget allocation for placemaking from the Community Board has been fully allocated or spent (Resolutions 2022/09 and 2022/57). Any future works associated with implementation of the initiatives in the Kororāreka Russell Placemaking Plan are currently unfunded (expect for beach access). The seven unfunded initiatives recommended for endorsement by the Community Board are not costed and some of these initiatives may overlap with renewals carried out by FNDC’s Property and Facilities Management Department.

Āpitihanga / Attachments

1. Kororāreka Russell Placemaking Plan - A5220772 ⇩

Hōtaka Take Ōkawa / Compliance Schedule:

Full consideration has been given to the provisions of the Local Government Act 2002 S77 in relation to decision making, in particular:

1. A Local authority must, in the course of the decision-making process,

a) Seek to identify all reasonably practicable options for the achievement of the objective of a decision; and

b) Assess the options in terms of their advantages and disadvantages; and

2. This section is subject to Section 79 - Compliance with procedures in relation to decisions.

He Take Ōkawa / Compliance Requirement	Aromatawai Kaimahi / Staff Assessment
State the level of significance (high or low) of the issue or proposal as determined by the Council’s Significance and Engagement Policy	While Kororāreka Russell Historic Township is of District wide significance, the minor initiatives proposed by the community will not have a major impact on the significance of Russell. Also, due to the extensive engagement process which received over 1300 responses, the community have already provided their feedback on these proposals throughout the refinement built into the engagement process. Also, the Strand Traffic Management Trial is being considered separately to the Kororāreka Russell Placemaking Plan, and there was a four-week public consultation process for the community to comment on what should happen after the trial ends.
State the relevant Council policies (external or internal), legislation, and/or community outcomes (as stated in the LTP) that relate to this decision.	Accessibility Policy (2022) Art and Memorials in Public Places Policy (2017) Community Gardens Policy (2013) Community Grant Policy (2018, currently under review) District Plan 2009 Parks and Reserves Policy (2022) Footpath Policy (2016) Iwi/Hapu Environmental Management Plans Policy (2016) Public Toilets Policy (2011) Procurement Policy Street Lighting Policy (2014) Long Term Plan (2024-2027)
State whether this issue or proposal has a District wide relevance and, if not, the ways in which the appropriate Community Board’s views have been sought.	While Kororāreka Russell Historic Township is of District wide significance, the minor initiatives proposed by the community will not have a major impact on the historic significance of Russell and any changes would need to comply with the objectives of the Heritage Overlay and the requirements of Heritage New Zealand.
State the possible implications for Māori and how Māori have been provided with an opportunity to contribute to decision making if this decision is significant and relates to land and/or any body of water. State the possible implications and how this report aligns with Te Tiriti o Waitangi / The Treaty of Waitangi.	The Steering Group engaged widely throughout the engagement phase, this included: - Hapū representation on the Steering Group - Engagement at the Kororāreka Marae - Inclusions of Māori histories within the Kororāreka Russell Placemaking Plan
Identify persons likely to be affected by or have an interest in the matter, and how you have given consideration to their views or preferences (for example – youth, the aged and those with disabilities).	The engagement identified over fifty local groups and community groups and five Maraes within surrounding area with an interest in Kororāreka Russell. In order to ensure a comprehensive and inclusive engagement, there has been a range of events and methods employed to ensure opportunities for participation. In addition, the Steering Group and the Sub-Committees are made up of a diverse representation across the stakeholder groups, disability advocacy and Hapū in order to ensure a diverse range of views and opinions.
State the financial implications and where budgetary provisions have been made to support this decision.	The seven unfunded initiatives recommended for endorsement by the Community Board are not costed and some of these initiatives may overlap with renewals carried out by FNDC’s Property and Facilities Management Department. Additional funds are also required to fully implement some of the four initiatives already being worked on.
Chief Financial Officer review.	The Chief Financial Officer has reviewed this report.