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City Heart Revitalisation project

 

Approach

Hamilton City Council (HCC) is seeking to revitalise our city heart. Any city revitalisation strategy, to be successful, needs to be both visionary and practical. It needs to encompass and integrate a broad range of interests ranging from user convenience and safety, city identity and creativity, public and private transport provision, event management, employment creation as well as retail vitality.

Guiding documents and principle reference texts

In developing this documentation a number of statutory documents, previous studies, and local expertise were canvassed. Principle reference sources include:

  • CBD 20/20 Future Vision;
  • Vista - Hamilton City Design Guide;
  • Creativity and Identity Strategy; and
  • City Scope

These helped provide a full and detailed background to the development issues affecting Hamilton and the outcomes envisaged for the city centre. The project work will build on, not repeat, the substantial amount of work done already in previous CBD studies which canvassed a wide range of issues.

City heart business development opportunities

During the City Heart process, identification of those sites where 'superior business settings could be created for these 'good quality', affordable, 'designer' office buildings have been indicatively identified. Creating these superior settings required an in depth analysis of existing attractions and users of space within the CBD. By taking this approach it allowed identification of those areas where the possibilities exist to focus office developments around vibrant settings.

Several suitable areas were identified which warrant further in depth analysis and feasibility studies, however essentially these areas would benefit from additional visitor attractors and high quality public spaces.

During the last six years (from 2000 to 2006), most employment growth in the Hamilton Territorial Local Authority has been generated by 'Business Services'. Most of this was in the Financial and Property Sectors in which 5,830 more jobs over the last six years have been created (at an average rate of 970 jobs per year).

Perhaps surprisingly, Retailing provided only 13.5% of Hamilton's recent employment growth, creating only 3,530 additional jobs. Most retail employment growth was in the sale of Personal and Household Goods (1,160 more jobs, one third of all additional retail jobs) and Cafes and Restaurants (970 more jobs, 27% of all additional retail jobs).

The concern expressed by representatives of retailers, real estate agents, valuers and the development industry is that there is no 'financial benefit' for businesses to locate in CBD – there is cheaper land, lower rates and lower rentals for new premises located elsewhere with more and free car parking. The trends identified support this, with employment growth in businesses commonly associated with the CBD being low.

Key Responses Proposed

  • Build a better non-financial 'business case' for businesses locating in the Hamilton CBD (based on 'superior business settings');
  • Populate the 'upper floors' of existing buildings with community, personal development, education and training, recreational, health and fitness, activities; and
  • Support nightclubs, private clubs and basement music venues away from noise sensitive areas.

New residential in and around the CBD

Historically those most vibrant cities throughout the world have a high residential component within their CBD's. Demand for residential apartment living in Hamilton is slow, with few buildings being either built or converted annually. To redress this current trend, we must ask several fundamental questions.

Why isn't it happening in Hamilton?

There are several factors preventing meaningful residential intensification within the CBD currently. These are:

  • Developers appear to be cautious of the demand, with it not being seen as strong enough to warrant the costs of construction, conversion or rebuild;
  • High refurbishment costs and difficulties in converting many of the older buildings with the CBD are also hampering meaningful residential intensification. Currently the costs of refurbishment are high and don't compete in comparison to detached conventional housing in the suburbs;
  • Ample greenfield and infill sites in close proximity to the CBD are still perceived to offer better 'bang for your buck' than what can be offered in the CBD;
  • Existing development patterns favours greenfield development particularly to the north, where significant infrastructure provision has been made;
  • There is not amenity benefit with CBD living currently, particularly when considering likely purchase costs between a detached dwelling in the suburbs and a residential unit in the CBD; and
  • Planning rules are extremely permissive, allowing greater land use opportunities (office conversion for e.g.) which is attracting people to the suburbs;
  • Affordable housing.

Key Responses Proposed

Several possibilities, aimed towards providing greater 'incentives' for residential CBD intensification could include:

  • Pricing Lever - Review existing LGA development contribution levies with the intention of determining where these can be reduced or waived for multi-unit developments;
  • Process Lever - Review existing district plan provisions, both in terms of current and future residential zonings and rules; and
  • Partnership Lever - Investigate Council led market engagement. The intention of this is to provide leadership and encourage a partnership between Council and developers, particularly where redevelopment opportunities exist on Council controlled land.

Gradual change is occurring; however this is slow with around 20 units annually being released within what could be considered the CBD. Demand and change is expected to increase noticeably in the future. ,

Movement and networks

Hamilton City, given existing road alignments and segregation created by the Waikato River effectively operates (in particular Victoria Street and Anglesea Street) as a corridor rather than as a network. Detailed analysis of this existing movement condition identifies the following key issues:

  • Large Block Structure—Inside the central CBD block is about 11 hectares. 'Typical' street blocks in town centres have on average around 2 hectares; and
  • Poor Secondary Network—The Victoria / Collingwood / Bryce / Anglesea Street block is only supported in a secondary context by the Caro Street / Alexander Street corner. In addition Ward Street contributes a very low assistance rate to the internal CBD circulation, resulting overall in poor CBD circulation. Ward Street being one way offers limited support to the city centre condition.

What are the effects of this?

Although difficult to quantify initially, indications given by parties during the focus group sessions indicate the poor circulation and difficulties associated with getting in and around the CBD are preventing visitor. This results in a direct correlation with inner city vitality and prosperity. The effects are not solely limited to the movement of traffic, pedestrians have also noted the limited and difficult crossing opportunities (particularly of Victoria Street) given current traffic volumes. Overall the effects of the large block structure are detrimental to the overall CBD functionality, which needs to be addressed as a priority in City heart.

Key Responses Proposed

  • More intersections would dilute the turning movements and reduce pressure on existing intersections;
  • More secondary links could share traffic loadings, allowing more pedestrian friendly streets and a higher quality streetscape. As a result, signal cycle times could then be reduced to the advantage of the pedestrian;
  • Some roundabouts could be removed, particularity where these are located in areas of high pedestrian use;
  • Vehicle travel distances and hence total vehicle kilometers traveled (vkt) could be reduced through the provision of a more connected street network; and
  • Vehicle speeds could be reduced through street design. This is best achieved by narrowing the carriageway, through surface demarcation and differentiation and placing extra emphasis on the role of the pedestrian network.

The fundamental design change within Garden Place and Civic Square is the reconnection of Worley Place and Alexander Streets with a corresponding lane running along the northern edge of Garden Place. While this is an approach aimed primarily at providing greater vibrancy, accessibility and retail exposure within the CBD as opposed to being aimed at providing solely traffic benefits. For obvious reasons, a greater internal network will have significant inner city benefits.

It is important to stress that the proposed street link is not being proposed as a traffic solution in itself, it seeks primarily to make economic and social gains by opening the area up to greater retail exposure and safety opportunities.

Victoria street

Pedestrian priority, noticeably lacking on Victoria Street in the past (especially crossing opportunities) can be overcome by a number of design elements. By reducing the carriageway width this offers significant pedestrian benefits without detrimentally impacting on vehicle movement patterns. Victoria Street is intended to offer simple, basic, yet functional movement opportunities.

Key Responses Proposed

  • Remove existing roundabouts to provide breaks in the traffic to assist in pedestrian crossing;
  • Reduce long traffic cycles at lights from 140 seconds to around 90 seconds;
  • Remove existing one way streets within the CBD as the general acceptance among traffic engineers that these do not contribute to an optimum movement network; and
  • Bus stops within the CBD become impromptu traffic calming measures by interrupting vehicle flow due to their placement along the carriageway.

Ward street

Key Responses Proposed

  • Reintroduce two way traffic flow, in the form of a single lane in each direction.
  • Upgrade footpath to make more pedestrian friendly, and retain parallel parking along the streets length to help facilitate retail vitality

Garden place

The northern side of Garden Place is recognised as the side that is failing economically with relatively high business turnover and businesses that offer little to Garden Place outside of regular trading hours.

A new link will consist of a single lane in each direction, with associated parallel parking (at least 7.5m). The detail of the street will be carefully managed to ensure the street continues to look like part of square, with paving (rather than asphalt) used to perceptually prompt drivers that this is a low speed environ. Car parks associated with the proposed new lane will be of great value to existing businesses. This is anticipated to not only improve the viability of these shops, they will also offer more convenient parking opportunities for people wishing to make short stops within the CBD.

Significant variation exists as to the final alignment of this proposed new lane link, as too with regard to its future use. There is an opportunity to close this during the day time, to maintain the existing characteristics of Garden Place, and opening the link after 5pm to help invigorate the 'after hours economy'. This approach has merit pending public opinion, and would to a certain extent improve the safety issues associated with the location which are generally present after hours.

Key considerations:

  • Provide spaces and events which allows creative people to show case their talent;
  • Recognise art and culture as an investment in the city to create lifestyles;
  • Foster partnerships between industry and education sectors;
  • Have relevance to the city youth;
  • Develops the heart of the city as a magnet, where people are drawn to and have a reason for being there; and
  • Create spaces that are people oriented and rooms in the city that surprise and engage people.

Key Responses Proposed (safety, identity and public ownership)

  • Clear open views into the Garden Place from Victoria Street to draw public in with activities;
  • Create clean and strong links from the river through both Garden Place and Civic Square to the urban places, institutes and landscapes beyond. Garden Place should be considered a pivoting point connecting other spaces and corridors. Presently this is being considered with the use of surface materials, planting, public art and technology;
  • Expansive views from Garden Place to the environs beyond are presently blocked by urban and landscape design forms such as the Peacewall. The proposed design would deal with creating a range of viewing expenses both intimate and expansive;
  • Create a family space at the front of the Victoria Street edge for children to interact with art, water features, multi-media (lights, image projection and sound which may cover the history, the Waikato River, cultural tradition and youth;
  • Relocate the public toilets to an area of higher public profile and improve the perceived safety of the facilities;
  • Create infrastructure for public gathering such as large open space areas that visual connect with Victoria Street;
  • Create street performance opportunities with a range of spaces with level areas thought out the square without steps or abrupt grade changes or formal stage setups;
  • Pedestrian circulation would be improved by the removal of narrow choke points at the edges of the square.

Key Responses Proposed (sustainability)

  • Retain as much of the currents squares design and infrastructure to save carbon material costs
  • Stage the project so that the first stages can integrate into the existing design giving the opportunity to test design, materials performance before the public has to commit to the entire design
  • A recycle and reuse strategy would be developed to make the most of gardens place's existing materials both surface and plantings that would not be incorporated into the proposed design.
  • Where possible much of the existing trees would be retained on site or transplanted back on to site at the end of the construction phase.
  • Urban water systems from building systems to stormwater systems could be integrated in to the design
  • Sustainable design initiatives would be made as transparent as possible to the public and future generations as a learning tool.

Possible Design Focuses

Due to a possible connection between the Waikato River and Garden Place it is likely that both physical and "virtual" links are possible. Live feeds, interactive multimedia, art, music and water play could form the base for the Garden Place design creating a sense of place and connecting the river, history and culture together.

The Wi-Fi connections may not only deliver free networking but may allow Garden Place users to interact and may even affect charge with the continuously change media art in Garden Place. You may also be able to log on and listen to stories addressed around the Garden Place design.

A transparent approach to sustainability with a focus on water systems and materials could be deliverable by the Garden Place urban design creating stronger links on responsible between the individuals and their impacts on the Rivers and its environs.

HCC reception area

The opportunity exists to significantly enhance the attractiveness of both Garden Place/Civic Square and the Council building through this process. Creating a more inviting entrance and one that has a positive relationship with the public realm is sought.

Renovations to the Council foyer are seen as an opportunity, as opposed to a prerequisite of the City Heart project. If implemented they modified reception area can contribute positively to the primary objective of this area, being to reactivate Garden Place. It is important any renovation to the existing Council building is seen as a long term solution to further improve the Garden Place / Civic Square condition.

The existing lower level of the Council building acts as the city's democratic space and retaining this flexibility of use has been incorporated into the preferred concept plan.

Information Centre

The location of the I-site in the CBD is of significant importance. This facility will create positive relationships with surrounding uses (as it currently does at the existing public transport terminal), hence its location is seen as a critical and fundamental driver in the revitalisation process.

Although the preferred option is shown within the Council foyer (2), the possibility to review the tenancy arrangement of certain shops within the mall (where superior settings can be achieved) should be pursued. The 'I-site' location is particularly important from an economic and employment perspective because it:

  • Is the 'magnet' that will attract many visitors (including those attending sports and events) to the City Centre;
  • The first introduction of visitors to Hamilton and what the City Centre has to offer;
  • The opportunity to get visitors 'out of their cars and walking around' the Central City; and
  • The opportunity to 'capture visitors' for the first set of nearby 'visitor attractions' (that will keep them for more than 1.5 hours).

Artspost centre

The envisaged use of this site is aimed at the Arts Community. Although several variations have been explored (including residential uses) the fundamental purpose of this site remains centred on the arts. Any residential use would require significant justification of which at this point in time, given the existing capacity and potential of residential elsewhere in the CBD is not justifiable.

CBD and Claudelands Events Centre pedestrian link

Cross city pedestrian links, particularly East / West across Claudelands Bridge are required to be upgraded to accommodate increased pedestrian volumes in the future. This will be brought around by a number of factors, including greater parking pressure within the CBD, residential intensification and most significantly, the completion of the Claudelands Events Centre. The role of Claudelands Bridge in all this will be defined by expected future developments in close proximity to the link. The link takes on greater importance as a result of CEC and adequate pedestrian upgrading is required as a response.

The concept plan looked at several options, including making Claudelands Bridge pedestrian only and building a new single purpose pedestrian bridge across the river. Neither of these options were deemed to be feasible in the short term. Closing the bridge to vehicles ran into problems due to the already low number of bridges providing access and secondly this would have major disruption on the movement network.

Building a new pedestrian only bridge has its merits and could warrant further investigation in the future however was discounted due to high cost at this point. This option has been previously endorsed in other City Centre studies.

O'Neil street

The intention with O'Neil Street is to create an improved, safer and more prominent pedestrian environment. This is primarily in response to expected pedestrian volumes between the CBD and CEC which is expected to peak at around 3,000-5,000 persons during events.

With regard to existing parking and access arrangements, modifying vehicle behaviour is favoured rather than restricting access or removing vehicles (and on street parking) altogether. The dynamics associated with the street will be derived from the street condition, rather than through comprehensive or expensive redevelopment. As such, modest changes are proposed, with upgraded footpaths, improved lighting and safer crossing opportunities favoured.

Sonning car park

Sonning car park, given its prime location and orientation offers perhaps the greater redevelopment opportunity within Hamilton City. The design of the site has been focussed on developing a key destination on the periphery of the CBD, an intermediary between the CBD and CEC. As such the land use mix is encompassing and of a nature that will contribute to vibrancy within this locality.

Care has been given to the retention of public car parking on site, as this is recognised as being value to commuters. In addition to this, strong links with Claudelands Bridge by means of greater pedestrian provision is also provided for with strong and clear internal links being accommodated.

Scenarios were looked at, in terms of providing a large scale hotel, but as this typology exists elsewhere in the CBD, a higher end boutique hotel has been preferred. Residential apartments situated adjoining the existing residential area buffers perceived development effects whilst the smaller building footprints associated with this concept allows the retention of the majority of existing trees on site, again maintaining amenity.

The design of the site has been undertaken to make better use of the river, with activities at ground floor fronting towards this and uses such as restaurants and cafes envisaged. Larger office / parking buildings have been located adjoining the railway, both to act as a buffer, and to take advantage of the small topographical change that makes this possible.

Council land opposite Claudelands Events Centre

The site has significant parking potential, primarily to support CEC and secondly to provide commuter parking for CBD workers. Although being outside the nominal 10m walking distance most people will tolerate there are significant benefits from providing parking in this location. The parking potential of the site needs to be fully analysed through the provision of a traffic plan. Refinement can also be gained once the use of the site is confirmed. Basement parking is deemed to be unsuitable due to the cost associated with engineering and excavations.

The development of this site, requires a design response complementary to CEC. In the short term it is envisaged developing a signature corner building (with significant at grade parking provided) ancillary to CEC will deliver the best outcome in the short term. This is because rather than one 'big bang' approach were the entire site is maxed out in one go, developing in stages allows future uses to be response and flexible given the needs of CEC as they evolve.

The provision of parking is seen to offer significant benefits to the initial viability of any potential business wishing to relate in the corner building.

A strong retail presence on the ground floor will assist in activating Brooklyn Road, which is important given the conference focus of CEC. The two sites, by forming compatible land uses will result in better integration and overall viability as a result.

Wider area around Claudelands

Future land use change along Heaphy Terrace is expected to occur in the medium to long term. This is likely to result in a number of ancillary activities in relation to the CEC becoming established. Heaphy Terrace, although subject to existing Council character protection has arguably been modified in certain areas to a point where a review is supported to determine the relevance of the protection. Residential uses at ground floor are not deemed to be compatible with CEC in the long term.

Key Responses Proposed

  • Increase development and commercial rights;
  • Undertake a character assessment;
  • Accommodate future private sector redevelopment opportunities, particularly on sites such as the BP site given its pending tender; and
  • Encourage uses ancillary to CEC, however must not undermine the Council owned site or CEC itself.

Pending the outcome of a character assessment for the area, transition of land use into that complementary to CEC is unlikely to occur without a Council initiated Plan Change. Emphasis should be placed on limiting the scope of change so that those areas subject to the Plan Change are consistent with those areas that have been most modified previously and have identified character deficiencies.

District Plan Changes

Numerous District Plan Changes and reviews are anticipated to follow on from the outputs of City Heart. Final recommendations will be very much dependant on the results of the consultation feedback.

Strategic Approach to Related Issues

  • Approach to peripheral plan changes e.g. Tamahere and Airport to maintain CBD objectives.
  • Additionally a parking strategy is required as is the integration of masterplans for Council owned sites.
  • Development of Councils Long Term Community Consultation Outcomes into a strategic document based on further EBD workshops considering a broader and intrinsically related range of issues beyond those commonly used to develop such plans. This approach will identify fundamental changes required and help deliver desired outcomes in 2009.