WAIROA - OPEN SPACES ACTIVITY MANAGEMENT PLAN 2021-2031 - consultations.nz
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WAIROA DISTRICT COUNCIL
OPEN SPACES
ACTIVITY
MANAGEMENT
PLAN
2021-2031
WAIROA
DISTRICT COUNCIL
1
CONTENTS EXECUTIVE SUMMARY
WAIROA AT A GLANCE
EXECUTIVE SUMMARY 3 This Open Spaces Activity Management Plan acts as a route map for
Strategic Context 3 7. LIFECYCLE MANAGEMENT PLAN 33 the future. It provides the reasoning and context behind how we
COMMUNITY
Our Biggest Challenges & How We Plan To Respond 4 7.1 Introduction 33 propose to maintain, operate, renew and improve Wairoa’s open
Levels of Service 5 7.2 Operations & Maintenance Plan 33 spaces.
Managing Risk & Resilience 5 7.3 Renewals Plan 35 Other
What We Are Investing In 5 7.4 Asset Creation 35 The primary purpose of the Open Spaces Activity is to support the 33% Māori
Plan Improvement 6 7.5 Disposal Plan 36 following key functions and services. Descent
Limitations & Assumptions 7 67% 8,367
8. FINANCIAL SUMMARY 37 population
• Parks and reserves including sports grounds, neighbourhood
1. INTRODUCTION 9 8.1 Introduction 37
parks and playgrounds, public gardens, riverbank and
1.1 Purpose of this Plan 9 8.2 Financial Projections 37
foreshore reserves
1.2 Scope of this Plan 9 8.3 Revenue Summary 44
1.3 Relationship with other Council Plans 10 8.4 Implications Of Meeting Budget Limitations 46 • Public toilets on parks and reserves and other locations
1.4 Limitations & Assumptions 10 8.5 Financial Assumptions and Confidence Levels 46
• Cemeteries including land and facilities and record keeping.
8.6 Assumptions And Confidence Levels 50
2. THE STRATEGIC CONTEXT 12
ENVIRONMENT
2.1 National Context 12 9. PLAN IMPROVEMENT & MONITORING 47
2.2 Wairoa Local Context 12 9.1 Overview 47 STRATEGIC CONTEXT
2.3 Strategic Assessment 16 9.2 Asset Management Practices 48
We want to clearly show the value of any investment made in
9.3 Improvement Monitoring 51
addressing our strategic Open Spaces problems and undertaking
3. LEVELS OF SERVICE 18 9.4 Improvement Planning 51
core business activities. Any investment needs to achieve the
3.1 Overview 18
desired outcomes and benefits for our customers and represent
3.2 Legislative Requirements 18 GLOSSARY 53 130KM 4,119KM2
value for money.
3.3 Understanding Our Customers Needs 19 of coastline Land area
3.4 Service Level Overview 20 APPENDICES 56
VISION
3.5 Current Levels of Service 21 Appendix 1: Asset List 56 Desirable Lifestyles, Thriving Economy, Treasured
OUR
Appendix 2: Risk Register 62 Environments, Connected Communities
4. DRIVERS FOR CHANGE 22
4.1 Population & Demographic Change 22
4.2 Demand Trends 22
4.3 Affordability 23
ECONOMY
4.4 Economic Development 24
4.5 Demand Management 24
5. RISK AND RESILIENCE 26
5.1 Risk Management Policy 26
5.2 Critical Assets 26 $32,778 $284
5.3 Key Risks 26 GDP per capita GDP (M)
5.4 Resilience 26
6. OUR ASSETS 28
6.1 Introduction 28
6.2 Asset Location 28
6.3 Asset Description 30
6.4 Asset Ownership 31
6.5 Asset Criticality & Risk 31
6.6 Asset Valuation 31
6.7 Asset Condition & Remaining Life 32
6.8 Asset Performance 32
2 3
OUR BIGGEST CHALLENGES & HOW WE PLAN TO RESPOND Problem Evidence
Investment
Key Strategic Response Benefits of Investing
Key problems identified for Wairoa’s Open Spaces activity are: Objective
Collate data for critical
Asset assets
Legacy issues
Information Improve asset Invest in formal condition Optimised decision making
Limited asset data
knowledge for assessments of our critical
Unknown asset available. Significant Data will be used in optimised
key decision assets.
condition results renewals may be required decision making to ensure
in uncertainty of to address Council parks making appropriate renewals programmes
Improve forward
renewals planning assets.
programming for renewals
and maintenance
Formal Contracts &
Roles & Operating Agreements
Responsibilities For a number of Collate data for critical
recreational facilities and assets
Lack of clarity sportsgrounds there is Invest in improved asset
around ownership Improve Maintenance responsibility fairly
limited formal agreement clarity around data, including owner / apportioned between Council
and operating on maintenance tenant information and
agreements governance and Users
and operations any agreements that are in
results in poor responsibilities between place for maintenance and
maintenance Council and the clubs/ operations.
management organisations using the
facilities.
LEVELS OF SERVICE MANAGING RISK & RESILIENCE
Performance measures have been reviewed and amended to meet Resilience has been identified as a significant challenge for Wairoa in
Council objectives. the 2021-2051 Infrastructure Strategy with the following responses
followed:
There is a high level of community satisfaction with parks and
• Good asset management practices and robust renewals
reserves and cemeteries. The level of satisfaction continues to
programmes based on the condition and the remaining life of
increase particularly for has been an increase in satisfaction with
infrastructure assets.
reserves and sportsgrounds in the latest (2020) Communitrak
Survey. • Identification of critical assets and management of these
assets to ensure that they do not fail or to limit the effect of a
Council recognises that there are a wide range of customers and failure.
stakeholders with an interest in how the open spaces are managed. • Emergency Response and Business Continuity Plans to be in
The community are interested in safe and accessible open spaces in place for emergency events.
their community, including parks and public toilet facilities provided
in right location, which meet the demand/needs of the community. Other specific open spaces risks include:
• Poor asset management practices including lack of
Reserves & Sportsgrounds information/knowledge on which to make informed decisions
on utilisation and investment
• Overall asset life and condition is compromised due to limited
asset information, maintenance and renewal programmes
The table below provides a more detailed summary of our strategic responses and the benefits of investing in these areas. • Cemeteries do not meet community/family asset expectations.
Investment The improvement items included in this plan address all of these
Problem Evidence Key Strategic Response Benefits of Investing
Objective specific risks.
Safety Audits
There are no recent safety
audits, although one is WHAT WE ARE INVESTING IN
Levels of Service being completed in late
2020. However, visual Review levels of service Our investment going forward will address the problems identified
Parks & Reserves Compliant service delivery Cemeteries
condition inspections Check that levels of service for Wairoa within the context of local and national strategic drivers.
and Public Toilets Fit for purpose Parks and reserves are available
completed during 2020 facilities are realistic and can be
not fit for purpose for community events such as
indicate a number of met. Ensure right tools and OUR PROPOSED INVESTMENT PROGRAMME
results in health festivals and sports activities.
assets are in average procedures in place. OVER THE NEXT 10 YEARS
and safety issues condition. Playgrounds
may need to be closed The total amount of expenditure for operations and maintenance
if not fit for purpose and and capital over the next ten years is $17.6 million as shown
safe to use for public. below. The average annual cost is approximately $1.7 million per
annum. Operational expenditure represents 88% of the 10-year
forecast total.
4 5
Improvement Indicative
Description Action
Area Framework
There is a need for full review of the Open Spaces Risk Register to ensure risk
Risk &
Risk Register issues have been adequately identified and ensure that current high risks are 2021/22
Resilience
still relevant.
Full review what assets within the Open Space portfolio need to be assessed
Condition for current condition to better inform future maintenance and renewals need.
2021/22
Assessment In particular, wharves and boat ramps require regular condition assessments
Asset to ensure fit for purpose.
Description
Formally audit playgrounds against the New Zealand Standard 5828: 2015
Playground Audit 2021/22
Playground Equipment and Surfacing on an annual basis, as good practice.
Public Toilets Complete an assessment of the existing pubic toilet performance. 2021/22
Lifecycle Use Business Case Approach to review disposals to provide an optimized
Disposals Review 2021/22
Management generational lens to asset disposal.
Key capital projects for the next 10 years are detailed below. FUNDING SOURCES
Wairoa’s open spaces services are currently funded through a LIMITATIONS & ASSUMPTIONS
combination of user charges and rates. User charges including Key areas of uncertainty and assumptions made as part of this planning process and their likely consequence or impact are included below.
Estimated internment fees and reserve leases however only cover a very small
Asset Description Timing
Cost (
Limitation/
Description Consequence/Impact Risk Level
Uncertainty 1. INTRODUCTION
Assumption Level
Project estimates of cost and timing
Physical Works Costs may be more
are based on the best available
Project Estimates
scope, asset and market information
or less than budgeted for based on Low Low 1.1 PURPOSE OF THIS PLAN
estimates.
available at the time of planning. This Open Spaces Activity Management Plan (AMP) acts as a route clearly show the value of any investment made in addressing our
map for the future, by providing the logic, reasoning and context strategic open spaces problems and undertaking core business
behind how we propose to maintain, operate, renew and improve activities. Any investment needs to achieve the desired outcomes
Wairoa’s open spaces facilities. It informs the development of Wairoa and benefits for our customers and represent value for money.
District Council’s (Council’s) 2021-31 Long Term Plan (LTP).
This AMP seeks to demonstrate that the proposed programme
A key driver for the open spaces activity is understanding the needs presents value for money by doing:
of the community and setting appropriate levels of service, so this
is core to the development of this plan. However, we also need to
1.2 SCOPE OF THIS PLAN • The provision and operation of cemeteries and memorial
spaces for those wishing to remember people that have passed
on, together with the provision of records and enquiry services
1.2.1 OVERVIEW OF SERVICES for all Council owned cemeteries.
The primary purpose of the Open Spaces Activity is to support the
following key functions and services:
• The provision of sports grounds for active recreation, 1.2.2 PLAN STRUCTURE
neighbourhood parks and playgrounds for passive recreation To achieve the above purposes, this AMP is structured to provide a
for local communities and visitors, and public gardens, ‘top down’ approach to managing the open spaces activities. This
riverbank and foreshore reserves for local communities and means we link to key Strategic Drivers, at the start of the plan, to
visitors to enjoy the outdoor environment. inform the direction for the plan. The plan is divided up into the
• The provision of Public toilets for the comfort of the community, following sections.
visitors and tourists, situated in safe and convenient locations
in the District.
8 9
1.3 RELATIONSHIP WITH OTHER Limitation/ Uncertainty
Description Consequence/Impact Risk Level
COUNCIL PLANS Assumption Level
The Activity Management Plan (AMP) is a tactical plan that gives This plan should be read in conjunction with Council’s other key Climate change makes our weather
effect to a range of other strategic and tactical planning documents planning documents. The diagram below shows “line of sight” more extreme and unpredictable
including Council’s strategic direction and Long Term Plan (LTP). between Council’s objectives and our Activity Management Planning leading to flooding and rising sea
through Council’s various strategic and planning documents. Increased rainfall intensity will stress
levels. Although we understand that
Climate Change our Open Spaces assets causing Medium High
change is occurring, it is unknown
potential loss of assets.
how fast change will occur or the full
extent to which consequences will
happen in future.
Asset renewal and maintenance
forecasts are based on the
condition and the remaining life of
infrastructure assets.
There is limited asset data and asset
The accuracy of asset data has a
Asset Revaluations valuation information available for
direct impact on the accuracy of Low Medium
& Data Accuracy open spaces assets.
renewals and maintenance forecasts.
Assumptions on an asset’s useful
life and its replacement cost have
been made. We have targeted
data collection for continuous
improvement.
Project estimates of cost and timing
Physical Works Costs may be more
are based on the best available
Project Estimates or less than budgeted for based on Low Low
scope, asset and market information
estimates.
available at the time of planning.
** Note that the Open Spaces Activities are not specifically covered in the Infrastructure Strategy, however the principles con-
tained in the strategy have been adopted where applicable.
This AMP demonstrates how Council’s goals and strategic targets will • International Infrastructure Management Manual (IIMM) 2015,
be achieved through effective management of open spaces assets. published by New Zealand Asset Management Support (NAMS).
This AMP covers a period of ten years between 1 July 2021 and 30
June 2031. The AMP is updated every three years, unless there are
significant changes to activities, programmes and expenditure.
1.4 LIMITATION AND ASSUMPTIONS
This plan has been written to provide the information required for Key areas of uncertainty and assumptions made as part of this
good asset management planning as set out in: planning process and their likely consequence or impact are
included below.
• LGA 2002 Schedule 10 and amendments
• Office of the Auditor General criteria for AMPs, 2006
Limitation/ Uncertainty
Description Consequence/Impact Risk Level
Assumption Level
Current predictions of a static (or
decreasing) population base and
socio-economic demographics
mean makes it difficult to provide
sustainable services that the
Community ability Programmed works are not affordable
community can afford. High Medium
to pay in the long term for rate payers.
Ongoing COVID-19 impacts may also
result in further impacts on the local
economy, including possible income
reduction.
10 11
2. THE STRATEGIC CONTEXT Community Outcome Open Spaces Contribution
2.2.3 OUR TEAM
Our Community Assets & Services Team delivers core services,
• Correct management including open spaces, to our community. The open spaces activity
of open space assets is managed through our Property Management Team. The Property
ensures safe and secure manager reports to the Group Manager, Community Assets &
2.1 NATIONAL CONTEXT agree on the best pathway forward for the community and the
communities. Services who is part of the Senior Leadership Team.
environment.
Legislation influences Level of Service (LOS) by effectively setting the • Future planning of
minimum required LOS alongside other drivers such as customer the activity ensures a Our team provides management and engineering services to
requirements, industry codes of practice and standards, and the sustainable service over deliver all asset-based activities. We are supported by professional
2.2.2 CONTRIBUTION TO THE COMMUNITY Protected services providers who provide planning, technical design and asset
desire to achieve best practice. time.
OUTCOMES and healthy
• Compliance with RMA and management support. The physical works required to deliver the
Taiao environment services and assets are completed through various short and long
A community and Council cannot agree to a LOS that does not meet Sitting beneath this vision is a statement outlining the expected legislative requirements
minimum legislative standards, even if they would prefer to do so to Environmental ensures a protected term physical works contracts.
Strategic Result for each activity. The vision is supported by four
reduce costs. As new legislation is created it establishes benchmarks community well beings and four Council Outcomes. environment.
and Council is required to meet certain thresholds. These usually • Sustainable management Our Property management Team also work closely with other
have an associated cost and may increase the cost to deliver the of this activity ensures a Council service areas, including transportation and 3-waters, to
service. Cultural Wellbeing Social Wellbeing sustained environment deliver all community services in a coordinated and efficient way.
Valued and cherished Safe, supported and
COMMUNITY
OUTCOMES
going into the future.
community well-led community
Economic Wellbeing Environmental
2.2 WAIROA LOCAL CONTEXT Strong and prosperous Wellbeing
economy Protected and healthy
Council’s mission defines who we are, what we are trying to achieve
environment
and who our intended customers are in a single succinct statement.
From these community outcomes, activity specific objectives and
MISSION
To lead and support the Wairoa community through
Level of Service statements are derived. Associated performance
OUR
decision-making that promotes the social, economic,
environmental and cultural well-being of the District measures and targets allow for a monitored achievement of
now and in the future. Council’s contribution towards those community outcomes.
The open spaces contribution to the Community Outcomes are
Council’s vision defines our aspirations for Wairoa’s future. It helps shown in the table below.
us to focus on what matters the most for our community.
Community Outcome Open Spaces Contribution
VISION
Desirable Lifestyles, Thriving Economy, Treasured
OUR
Environments, Connected Communities • The cemeteries service
encourages communities
to value the District
Safe, through provision of family/
Council’s specific vision for the future for the Open Spaces Activity is:
supported community resting places.
and well-led • Correct management of the
Oranga community parks and reserves ensures
SPACES
Continued access to, and sustainable management of,
OPEN
GOAL
parks and reserves Social a safe facility for the public.
Reliable and safe management of public cemeteries • The cemetery is considered
accessible and safe.
The vision is supported by the following principles:
Strong and
• Prudent financial management provides for maintaining levels prosperous N/A
of service for current and future generations Ōhanga economy
• Proactive provision and management of critical assets Economic
• Integrated provision of infrastructure • Parks and reserves
• Making the best use of our existing investment encourage team sports 2.2.4 CUSTOMERS AND STAKEHOLDERS Understanding the customer and stakeholder gives an understanding
and the unique culture at a of how the service is provided. The table below shows the key
Valued and Our key partners are those groups or organisations that we are customers and main stakeholders involved in Council’s open spaces
• Robust asset management practices community level.
cherished aligned with as owners or that lease our open spaces facilities in our and their specific areas of interest.
• Partnership with Māori. • Unique relationships with region and district.
Ahurea culture
communities and church
Cultural organisations create Our key stakeholders are those groups or individuals who can help
2.2.1 PARTNERSHIP WITH MAORI inclusive communities. us to focus our strategic planning on the right things. They have
information and knowledge to help us make better decisions.
Council acknowledges the inclusion and importance of mātauranga
Māori in its infrastructure design and implementation processes. Our customers are people who use our open scapose assets and
Council is committed to exercising due diligence in this area in facilities.
order to achieve the best outcome for the community and the
environment. In terms of setting the strategic context and direction for the AMP
our key partners and stakeholders and their reason for involvement
Council is committed to meaningful engagement with Māori on are shown in the tables below.
issues that are pertinent to all parties and working together to
12 13
OUR KEY PARTNERS Stakeholder Groups Full List of Stakeholders OUR CUSTOMERS
Wairoa Waikaremoana Māori Trust
Partners Knowledge/Involvement Board Customer Group Key Service Focus
Government Agencies Waikaremoana tribal Authority – • Interested in safe and accessible
Interested in the prudent representing interests for Ngāi Tūhoe
(Office of the Auditor open spaces in their community.
management of the open space Ngāti Kahungunu (Wairoa Taiwhenua) The community and
General, Audit New • Interested in facilities provided in
activity and legislative compliance. Incorporated – representing the users
Zealand) right location and meets demand/
interests of NKII needs.
Coordinating with Council on sports Ngāti Ruapani ki Waikaremoana –
Sports Hawke’s Bay
programmes and available facilities. representing the interests of Ngāti • Well maintained and safe cemeteries
Safe, available and functional Māori Boards / Māori Ruapani (Treaty Claim) Family members (from to visit.
Sports Clubs and within and outside of • Readily available and accessible
facilities that are affordable and in Committees / Tribal Kahungunu Executive (Māori health
schools the District) information on family genealogy.
good condition. Authority and social services)
Te Whare Māire o Tapuwae (Whānau • Other burial choices are available.
Hawke’s Bay Regional
Sound pest management. Ora) • Safe, hygienic and functional
Council Residential users
Māhia Māori Committee facilities in good order.
(Rongomaiwahine) • Location and quality of facilities.
Rongomaiwahine Iwi Trust – Tourists and visitors to
MĀORI STAKEHOLDERS • Meets their demands particularly in
representing the commercial interests the District
the peak summer months.
of Rongomaiwahine
Stakeholder Groups Full List of Stakeholders Whakaki Lakes Trust
Whakaki Lands Trust
Council acknowledges the inclusion and importance of Including Māori trusts, whanau trust
mātauranga Māori in its infrastructure design and implementation Māori Land Blocks (including Ahu Whenua Trusts), farm 2.2.5 OUR LOCAL STRATEGIES AND PLANS
processes. Council is committed to meaningful engagement with blocks (stations, etc.)
Māori on issues that are pertinent to all parties and working
together to agree on the best pathway forward for the community Wairoa District Council Māori Council strategies, plans Linkages to Open Spaces
and the environment. Standing Committee (representing all
39-operational marae) The LTP is the key planning document for Council and describes how Council will fulfil its
Ngāti Kahungunu Ngāti Kaungunu (Wairoa Taiwhenua) responsibilities under the Local Government Act (LGA) 2002 to promote the well-being of the
Ngāti Pāhauwera Incorporated district and enable democratic decision making.
Ngāi Tūhoe Kahungunu Executive (Māori
Iwi
Ngāti Ruapani Marae Executive Committee) The LTP outlines the Community Outcomes and land transport Level of Service (including
Ngāti Rakaipaaka Long Term Plan (LTP)
Wairoa Waikaremoana Māori Trust associated customer performance measures) the Council seeks to achieve, which this AMP
Rongomaiwahine Board links back to. The LTP is to be adopted by June 2021 with reviews triennially.
Ngāti Pāhauwera Development Trust Māhia Māori Committee
Post-Treaty Settlement (Representing all marae in The LTP outlines the Community Outcomes and Open Spaces Levels of Service the Council
Tu Uru Taumatua (Tūhoe)
Governance Entities Rongomaiwahine) seeks to achieve, which this AMP links back to.
Tātau Tātau of Te Wairoa Trust
(PSGE) – Treaty All marae within the Wairoa district
(including Tripartite Agreement and
Partners Tātau Tātau o Te Wairoa, Ngāti Pāhauwera Development Trust and Wairoa District Council
Matangirau Reserve Board) Māori Community at A Wairoa Journey Together: Covid-19
have come together to develop a community driven, aligned, focused, and coordinated socio-
Ngāti Pāhauwera Development Trust Large Economic Recovery
economic response to COVID-19 supporting the Wairoa region, its communities, and peoples.
Tātau Tātau of Te Wairoa Trust
Te Rākatō Marae Outlines procurement objectives and legislative requirements to ensure value for money,
Te Iwi o Rakaipaaka Incorporated/ OTHER STAKEHOLDERS Procurement Strategy 2020
Mandated Iwi transparency and fairness, accountability and integrity, and sustainability.
Trust
Authority (Resource
Ngāti Kahungunu Iwi Incorporation This report completed by Economic Solutions Ltd was developed in December 2017 and
Management Act 1991) Stakeholders Knowledge/Involvement
(NKII) Long Term District Planning, provides key insights into economic development and growth over the 2018-2028 LTP period,
Te Uru Taumatua (Ngāi Tūhoe) Demographic and Economic Growth and beyond. It provides context and direction for potential future Wairoa district transport
• Strategic outcomes
Rongomaiwahine Iwi Trust (to be Directions, 2018-2048 impacts. This response focuses on immediate actions, employment, short and long-term
Mayor and Councillors • Rates impact
confirmed by TPK) projects, that address the current response and align with the aims of Wairoa.
• Customer satisfaction
Mandated Iwi Ngāti Kahungunu Iwi Incorporation
• Interested in specific projects in This document provides key strategy for economic development in the district. It outlines
Organisation (Maori (NKII)
their area, levels of service, and Economic Development Strategy Wairoa’s current and future economic prospects and goals for further economic development
Fisheries Act 2004) Te Uru Taumatua (Ngāi Tūhoe) Community Boards
rates impact, and working with and population growth.
community groups
• Provide maintenance and This policy provides a foundation for establishing processes that provide for tangata whenua to
management services to council contribute to Council’s decision-making responsibilities.
Contractors
• Health and safety of staff and other • Establish a relationship between Wairoa District Council and tangata whenua to achieve
workers mutually beneficial outcomes for the community of Wairoa.
• High quality, appropriately located
Maori Policy 2012 • Set up processes and procedures that facilitate effective communication between Wairoa
and sufficient facilities provided for
Wairoa i-Site District Council and Tangata Whenua o te Wairoa.
tourists to meet their needs
• Service provision • Enable a Māori world view to be incorporated into local government decision making,
policies and procedures.
• Improve the degree to which Māori participate in Council/community consultation.
14 15
Council strategies, plans Linkages to Open Spaces Link to
Investment Benefit of
Problem Evidence Key Strategic Response Community
Objective Investing
The Plan sets out the framework for the sustainable management of natural and physical Outcomes
District Plan resources in the Wairoa District. It gives key guidance on land use, changes and effects, as well
as natural resource management impacting on land transport considerations. Safety Audits
There are no recent safety Compliant
The Annual Plan provides details on the current year’s financial predictions and budgets, in Levels of Service audits, although one is being service delivery
Review levels of service
Annual Plan accordance with the current LTP. It primarily describes the projects for a single year, however, it completed in late 2020. Parks and
may give some indication of projects for subsequent years. Parks & Reserves Check that levels of Safe, supported
However, visual condition Fit for purpose reserves are
and Public Toilets service are realistic and and well led
inspections completed during facilities available for
The Annual Report details achievements against performance measures and targets set in the not fit for purpose can be met. Ensure right community
Annual Report 2020 indicate a number of community
Annual Plan. results in health tools and procedures in
assets are in average condition. events such as
and safety issues place.
Playgrounds may need to be festivals and
closed if not fit for purpose and sports activities.
safe to use for public.
2.3 STRATEGIC ASSESSMENT Collate data for critical
Optimised
decision
Asset assets making
2.3.1 KEY ISSUES & CHALLENGES Information Invest in formal condition
Legacy issues Data will
The goals that we will use to achieve the open spaces vision are: Improve asset assessments of our critical
Unknown asset Limited asset data available. be used in Strong and
knowledge for assets.
• Continued access to, and sustainable management of, parks condition results Significant renewals may be optimised prosperous
key decision
and reserves in uncertainty required to address Council decision making economy
making Improve forward
of renewals parks assets. to ensure
• Reliable and safe management of public cemeteries programming
planning for renewals and appropriate
maintenance renewals
programmes
Roles & Formal Contracts & Operating
Responsibilities Agreements Collate data for critical
assets Maintenance
For a number of recreational responsibility
Lack of clarity facilities and sportsgrounds Invest in improved asset
around ownership there is limited formal Improve fairly Safe, supported
clarity around data, including owner / apportioned and well led
and operating agreement on maintenance tenant information and
agreements governance between community
and operations responsibilities any agreements that are Council and
results in poor between Council and the in place for maintenance
maintenance users
clubs/organisations using the and operations.
management facilities.
16 17
3. wLEVELS OF SERVICE Legislation Requirement Policy/Standard/
Description
Guideline
Defines the offence of littering in This bylaw is to control freedom
Litter Act 1979 a public place. The Litter Act also camping in the District in order to
defines the actions that can be taken. protect areas, and access to areas,
3.1 OVERVIEW Legislation Requirement This is the primary legislation for the and to protect the health and safety
Freedom Camping
This section defines the Levels of Service customers can expect cemetery activity and states: Bylaw 2019 of people who may visit the District
from Council and the measures that are used to identify Council’s The Health and Safety at Work areas. It specifies areas that are:
Act 2015 (HSWA) is New Zealand’s • It shall be the duty of every
performance in delivering them. • prohibited from freedom camping
workplace health and safety law. local authority, where sufficient
It came into effect on 4 April 2016. provision is not otherwise made for • allows restricted freedom camping.
This section outlines the following:
HSWA repeals the Health and Safety in the burial of the bodies of persons
• Key drivers for Levels of Service (legislation requirements and dying within its District, to establish This is the key performance standard
Employment Act 1992. The HSWA sets
engagement with customers to understand needs) and maintain a suitable cemetery. for public conveniences and covers
out the principles, duties and rights
design information and advice on
• Current Levels of Service and how they are measured in relation to workplace health and • Every local authority is hereby the numbers, location, type and
safety. authorised to undertake any work
• Future changes to the Levels of Service. Health & Safety at quality including features and fittings
Under HSWA, a business or for the purpose of carrying out the NZS 4241:1999 – Public for public toilets in any location, as
Work Act (HSWA) 2015
undertaking (PCBU) must look after duty imposed on it by subsection Toilets well as accessibility. This standard
Council aims to manage the Open Spaces Activity to deliver the (1) of this section and to expend
the health and safety of its workers assesses against different fit for
Levels of Service in a sustainable and safe manner over the long Burial & Cremation Act such money as it thinks fit on the
and any other workers it influences or purpose criteria to assess with regard
term. 1964 acquisition of land for cemeteries,
directs. The business or undertaking to functionality. This standard is
is also responsible for the health and and on the establishment, recognised as the minimum standards
safety of other people at risk from its maintenance, and improvement of for service levels for Councils.
3.2 LEGISLATIVE REQUIREMENTS work including customers, visitors, or cemeteries.
the general public. This is called the
Legislation has an effect on LOS by effectively setting the minimum The Burial and Cremation Act also
‘primary duty of care.’
required LOS alongside other drivers such as customer requirements, states that bylaws may regulate 3.3 UNDERSTANDING OUR
industry codes of practice and standards, and the desire to achieve The building of houses and other
best practice. The table below details the summary of relevant buildings is controlled by the Building
the cemetery use and the setting of CUSTOMERS NEEDS
fees and charges (s16 and s40). The
legislative requirements that affect the open spaces activity. Act 2004. This Act applies to the Community and customer expectations are very important in
Council also has a responsibility for
construction of new buildings, as well determining future levels of service and in assessing how well
the burial of poor persons (s49) and
as alterations and the demolition of Council is performing against current levels of service.
Legislation Requirement for the maintenance of and public
existing buildings.
access to burial records. Council is
This Act requires local authorities to: The Building Act 2004 introduced not the only provider of cemeteries.
Building Act 2004
• describe the activities of the local some significant changes to the 3.3.1 COMMUNITY ENGAGEMENT
authority way the building industry in New
Zealand is regulated, with the intent Community engagement on developing levels of service for the open
• provide a long-term focus for the spaces activity used the following main consultation initiatives:
decisions and activities of providing greater assurance to
consumers. • LTP and Annual Plan consultation processes
• prepare a LTP, at least every three 3.2.1 STANDARDS AND GUIDELINES
years. Council has public toilets that are • Request for Service (RFS)
classed as buildings.
A key purpose of the LGA is the Policy/Standard/ • customer surveys
The management of assets located Description
role of local authorities in meeting Guideline
Local Government Act on the reserves must be consistent • user surveys.
(LGA) 2002 the current and future needs of with the reserve management plan The purpose of the bylaw is to ensure
communities for good-quality local adopted under the Reserves Act, that acceptable standards of safety, LONG TERM PLAN
infrastructure, local public services, when a reserve management plan convenience, visual amenity and
and performance of regulatory Public Safety Bylaw The Long-Term Plan (LTP) places significant emphasis on the need
is required to be adopted. The civic values are maintained. It covers
functions in a way that is most 2007 to consult with the community and other stakeholders.
Reserves Act provides a framework possession and consumption of
cost-effective for households and for the preservation and management liquor in public places safety in public
businesses. places. The intended process is to gather expectations of all stakeholders
of natural ecosystems, preserved and then to communicate back on the cost of meeting these
landscapes, and indigenous species The policy addresses the current expectations. Through this process, an indicative understanding of
AMPs are the main method of of flora and fauna for the benefit needs of older people within the customer focus can be achieved. This will help in developing future
demonstrating Schedule 10 and enjoyment of the public. Older Persons Policy
Wairoa District and ensures that they levels of Service.
requirements. There is also a requirement to 2006
experience positive ageing. This also
Reserves Act 1977 manage reserves vested under covers disability considerations. To better understand the cost of service versus service expectations
the Reserves Act in accordance we also complete:
This bylaw enables Council to control
with their legal classification. The
and set standards for the operation
Reserves Act includes a requirement • Customer satisfaction surveys annually
Cemeteries Bylaw 2011 of cemeteries within the boundaries
for customer consultation in • Workshops/meetings on more specific aspects of service (i.e.
covered by the Council’s responsibility
development of a management plan a specific project) to better understand customer needs and
or ownership.
and sets requirements for leasing, wants
classification, use of land, and
application of funds. • Analysis of service costs against specific service expectations
of community and other stakeholders and then feed this
Reserve Management Plans (RMP)
information back
are developed for the long term
management, development and • Undertake a detailed analysis of research and customer
financial planning of the reserve as expectations to better define the links between customer and
per the Reserves Act. technical Level of Service.
18 19CUSTOMER SERVICE REQUEST (CSR) SYSTEM PARKS AND RESERVES The key drivers of the levels of service are: Red = target not achieved, yellow = close to target, green = target
achieved.
Council maintains a Customer Service Request System to allow There has been an increase in satisfaction with reserves and • Community expectations are established through both formal
customer comments and feedback to be recorded and managed. sportsgrounds. and informal research with stakeholders and users of each
Where there are ‘Service Gaps’ between the level of service provided
These results give Council some direction for prioritisation and activity. These are covered in detail in section above.
and the target level of service we have outlined initiatives to address
targeted activities to undertake in their endeavour to improve public
• Community Outcomes as outlined in the Strategic Context these gaps.
satisfaction and deliver an acceptable level of service.
Section.
ANNUAL COMMUNITY SURVEY
The Council ensures that Levels of Service are customer focused and
CommunitrakTM is a survey undertaken by the National Research address the issues that are important to the community. There are 3.5 CURRENT LEVELS OF SERVICE
Bureau (NRB). Council has a long history of using this annual survey two types of Level of Service performance measure used by Council: The open spaces Levels of Service have been developed based on:
to assist in the assessment of customer satisfaction, and more
• Customer Measure: How the customer receives or experiences • Statutory requirements
importantly to monitor trends over time.
the service, e.g. “% customers satisfied with the reliability of
• Public health and safety
Open Spaces services”. Key customer performance measures
linking Community Outcomes to the planned levels of service. • LTP and Annual Plan consultation processes
3.3.2 CUSTOMER SATISFACTION
• Technical Measure: What the organisation does, e.g. “the • User service expectations.
Council monitors customer satisfaction with its services and number of disruptions to service”. These operational measures
facilities annually based on the customer experience. Two open and other technical guidelines are relevant for setting service The performance measures will be achieved through the delivery of
space services are monitored as shown below. standards for Open Spaces activity. our capital and operational works programmes.
CEMETERIES The levels of service and performance measures for the open space
There is a high level of satisfaction with cemeteries. The specific 3.4.1 PERFORMANCE AGAINST LEVELS OF portfolios are summarised in the table below.
feedback on cemeteries is mixed with a large number of positive SERVICE
comments around the cemeteries being well maintained and some Performance against the Levels of Service targets has improved
that believe maintenance is being neglected.] Performance measures are monitored and reported on annually for cemeteries due to enhanced vegetation management and
through the Long Term and Annual Planning process. in particular the removal of unsightly or poorly placed trees.
Performance has also improved for parks and reserves due to the
Where possible target levels are set for each performance measure. development of a new contract with tighter specifications to reflect
Any non-achievement of these targets, while not favourable, feedback from previous years. The contract includes management
gives Council the ability to focus on specific issues for resourcing of walkway edges, spraying programme and mowing specs.
improvements where necessary.
The Levels of Service customers can expect for each activity is
tabulated below. Performance against these and other key Council
measures against target for the last three years is detailed below.
The highlighted red, yellow and green cells indicate where Council
has performed worse or better than target.
Community Customer Customer Level Measure Target 2017/18 2018/19 2019/20
Performance Measure
Outcome Outcomes of Service Type 2021-24 Actual Actual Actual
Safe and Percentage of
Parks and reserve
accessible residents’ overall
Quality assets that are Customer 80% 89% 89% 96%
recreational satisfaction with parks
well maintained
facilities services provided
A community
Percentage of
3.4 SERVICE LEVEL OVERVIEW that values Cemetery assets
residents’ overall
and promotes Quality that are well Customer 80% 70% 75% 99%
Levels of Service statements describe how Council intends to deliver satisfaction with
its culture maintained
the open spaces activity to the customer. Levels of Service are used cemetery maintenance
and heritage
to:
• Inform customers of the existing and alternate types and levels Supportive, Percentage of open
Provide prompt
of service caring and space requests
Responsiveness responses for Customer >85% NA NA >96%
valued responded to within 24
• Enable customers to assess suitability and affordability of the service
communities hours
services offered
• Develop asset management strategies to deliver the required
level of service
• Measure performance against defined targets
• Identify costs and benefits of the services provided
20 214. DRIVERS FOR CHANGE The figures below show that the Wairoa District has a slightly higher
provision of sports parks and playgrounds for the population
CEMETERIES
There is no crematorium located in the District. The closest facility
compared with the total sample medians. This is based on
is located in neighbouring Napier City or Gisborne District. There
population driver only rather than attracting tourists to the District
are no plans to provide a crematorium in the District due to the low
or improving amenity value.
demand.
4.1 POPULATION & DEMOGRAPHIC 4.1.1 COMMUNITY BEHAVIOUR CHANGE
CHANGE PARKS AND RESERVES
There is adequate cemetery capacity at the Council owned
cemeteries to meet current and future demand for the next ten
The open spaces services provided are directly influenced by the The major demographic patterns affecting parks and reserves years. There is vacant land above the main Wairoa Cemetery that
number of customers accessing these services. facilities are the aging population, the population under 15 years, could be developed when required in about 20 years.
and tourist trends. In 2013 the proportion of people aged 65+ made
The current estimated population for the Wairoa District is 8,960 up around 15.6 per cent of the total population which is slightly
people (estimate as at 30 June 2020). Statistics New Zealand have higher than the national average of 14.3 per cent. The proportion
provided various prediction scenarios through to 2043, based off of the population under 15 years of age was 24.6 per cent compared
4.3 AFFORDABILITY
2013 census data. These show general population decline. However, with 20.4 per cent for all of New Zealand.
recent population data shows growth for Wairoa. It is expected that WAIROA COMMUNITY ABILITY TO PAY
Wairoa’s population will remain relatively static over the duration There has been a large increase in tourists in New Zealand Wairoa’s low population base and median household income
of this plan. particularly to the coastal areas. Wairoa District is part of the popular significantly impacts on the community’s ability to pay for transport
East Coast tourist trail and is experiencing an increase in visitor services. Wairoa is also has high unemployment and is the most
It is expected that growth, if any, will occur in Mahia, as that is a numbers coupled with the space launch development’s. This places deprived part of the Hawke’s Bay region, with most
desirable location for holiday homes and more people are retiring pressure on Council’s infrastructure including car parking at parks
and returning to the area. It is relatively affordable for coastal and reserves, and public toilets. In particular, freedom camping
property. has increased with more tourists. Freedom campers typically stay
one to two nights in the restricted areas allowed under the 2015
An assessment of the change in demographics of the population Freedom Camping Bylaw. This impacts the use of public toilets and
will also need consideration. Statistics suggest that by 2028, 1 in in reserve areas.
5 Wairoa residents will be over the age of 65. As the workforce
declines and people move to retirement incomes, the ability to fund PUBLIC TOILETS
cost increases can reduce.
The major demographic patterns affecting public toilet services are
The Mahia area is a popular location in the summer season, the summer seasonal peak and tourist trends.
particularly the Christmas and New Year period. The large influx
of visitors and non-resident holiday house owners causes the The Mahia Peninsula is a popular place in the summer season
population to increase to much greater numbers than the usually especially the Christmas and New Year period. The large influx PUBLIC TOILETS
resident population. This seasonal peak has a large impact on of visitors and non-resident holiday house owners causes the There is currently no quantitative demand information for public
demand for services. The population in this area can increase by up population to increase to many times larger than the usually resident toilet facilities. At a high level, it is known that the following facilities
to 10 times from a normally resident population of 1,000, to 10,000 population. This seasonal peak has a large impact on demand and have the highest demand:
over the summer season. services, in particular public toilets.
• Pohutakawa Foreshore Reserve
CEMETERIES • Blue Bay Foreshore Reserve
The major demographic patterns affecting cemetery services are the • Oraka Foreshore Reserve
aging population and demand for choices. Ethnicity and religious
practices also need to be considered with cemetery services. There • Nuhaka Rest Area
is relatively high Māori population resident in the District. Ethnic • Mahanga Beach
diversity is not expected to change significantly in the District
compared to other areas in New Zealand. • Blacks Beach.
There is an ash area available at the Wairoa Cemetery. The Figure below shows that Wairoa has a higher provision of public
toilet facilities (per capita) than the total sample median, however
In considering future development, there is also demand for natural given the relatively small population this result is not significant. It
burials where no preservatives are used. The plots are hand dug should also be noted that this benchmarking is based on population
so bodies are buried as close to or within the active soil layer, and only. Public toilets may not be meeting community or tourist asset
typically a native tree is planted at the head or base of the plot. expectations or demand as noted above. The development of a
strategy to guide location of public toilet facilities in the District has
been identified as a future improvement project.
4.2 DEMAND TRENDS
PARKS AND RESERVES
There is currently no quantitative demand information for parks
facilities. At a high level, it is known that the following facilities have
the highest demand:
• facilities located in urban centres
• facilities in the popular summer and tourist destinations such
as Mahia.
22 23community view of the district’s future.
Programme Description
Tourism is an area of focus, in particular the potential tourism
related to Rocketlab. This has the potential to attract a significant Promotional Information on the parks and services is
number of visitors to the Mahia area and infrastructure must be in information on provided on Council’s website including
place to support this. events sports event for the Hawke’s Bay Region.
Council’s Property Team manages the
Booking system
booking system for public reserves.
4.4.1 POST COVID RECOVERY
Wairoa has put considerable effort into proactively responding to Council works closely with the community
COVID-19 through strategic planning. A Wairoa Journey Together: Education and police to promote personal safety which
Covid-19 Economic Recovery outlines the key impacts of COVID-19. to promote reduces the demand for additional lighting
personal safety where additional expenditure may not be
affordable (e.g. local reserves).
Information on the cemetery services is
provided on Council’s website including the
location of cemeteries, online cemetery GIS
Promotional map layer, and fees and charges.
information
Other requests are dealt with through the
Royal New Zealand Returned and Services’
Association or Council’s Property Team.
Most businesses halted during Level 4 and Level 3 because they
were unable to operate from their home due to the nature of their
business, the lack of connectivity and/or no online marketplace
presence. Infrastructure, forestry, and other industries that provide
employment to Wairoa people were halted. Although there was a
Population and socio-economic depravity indicators have a large uptake by businesses of the wage subsidy programme and
significant impact on affordability of the open spaces activity, other government assistance, job losses occurred. A survey of a
with limited ability for the ratepayers to finance any increases in sample of local businesses during Level 4, identified approximately
maintenance and renewals costs. Economic Solutions Ltd’s 2017 17% expected to cut jobs. This aligns with MSD’s information noting
Report outlines “In terms of the ability of district residents to meet an increase in job seeker support.
Wairoa District Council rating requirements, it is noted that the current
level of average residential rates ($2,500-$3,000 as advised by Council
staff) represents approximately 6-7% of estimated annual median
household income in the district at the present time. This compares to
4.5 DEMAND MANAGEMENT
approximately 3-4% at the national level.” The key growth and demand assumptions are as follows:
• aging and youth population results are based on Statistics New
With a small rating base and higher ability to pay challenges, Council
Zealand 2013 Census
needs to think more broadly about how to fund its infrastructure
programme. This will therefore challenge Council to look for • the summer seasonal peak period will continue based on
alternative funding sources. historical trends and locations
• tourist numbers continue to grow based on historical trends at
Council also needs to make sure its infrastructure is well maintained national and regional levels.
to avoid future unexpected costs for repair or replacement, and to
prevent unexpected disruption of services to the community. Managing open spaces demand is not only about managing
increasing future needs and expectations, but also about change in
behaviour. Our current demand management programme by open
4.4 ECONOMIC DEVELOPMENT space portfolios is summarised in the table below.
Economic Development is viewed as a vital element in keeping the
Wairoa District alive and thriving, both now and into the future.
The economy of Wairoa is based on the rural sector. Approximately
60% of the total land is in productive use, of which some 48% is in
pasture. Sheep/beef farming and related processing, and forestry
are the leading rural production industries in Wairoa district.
Council has embarked on an ambitious programme of attracting
new businesses to the district and further developing our district’s
strength in land-based industries. An increased emphasis by the
Wairoa District Council on economic development, particularly
aimed at encouragement of diversification of agribusiness,
ecotourism, digital creative industry attraction, and attraction of
new and returning residents, has led to an increasingly positive
24 255. RISK AND RESILIENCE 5.4.1 NATURAL DISASTERS & BUSINESS
CONTINUITY
We assume that in the event of a significant disaster, natural or
man-made, Council can continue to provide sufficient services to
the community. We have assumed we could extend our external
5.1 RISK MANAGEMENT POLICY 5.3 KEY RISKS borrowing to fund the clean-up and ongoing capital work to rebuild
Risk Management continues to be an area of learning and growth for The activity review as part of the development of the 2018 AMP any damaged assets, for which we don’t fully insure.
Council. We are focussed on developing a consistent organisational identified eight risk events (refer to Appendix 1) with three
approach to risk management. classified as high as follows: Alongside the Council, Central Government also has a role in disaster
recovery and restoration works after natural disasters happen.
Council’s updated Risk Management Policy was adopted in
December 2017. This is a Council-wide policy overseen by the Chief Initial Other than increased insurance costs, there is no further allowance
Risk Event Caused by
Executive Officer. Staff, contractors, and elected members have a Risk in this plan for funding the repair of infrastructure damaged by any
shared role to play in the identification, reporting and management Poor asset management future natural disasters.
of risk through risk management processes being integrated with practices including
planning processes and embedded in management activities. lack of information/ Lack of knowledge; BUSINESS CONTINUITY PLANS
knowledge on which to Limited asset data HIGH Business Continuity Plans (BCP) are developed to coordinate efforts
Since this time, Council has commissioned a Risk Management make informed decisions recorded for keeping Council business operating through high risk events
Framework Review by independent consultants in March 2018, on utilisation and such as pandemics, staff death and terrorism, as well as if a place of
which introduced a number of improvement recommendations investment business, such as the main office building, are affected by adverse
for future implementation. Then in early 2020, we commissioned
physical conditions. Events may include earthquakes, storm,
WSP to further review our risk management processes and develop Overall asset life Limited condition unhealthy building (i.e. asbestos), fire, crime, prolonged IT outage,
a practical Risk Management Strategy to align risk management and condition is assessments to date; or the death of a key role.
across the Community Assets and Services Group. A key component compromised due to Limited funding for
of the Risk Management Strategy is the provision of a process for HIGH
limited asset information, maintenance and Council has an existing BCP (2001) for response processes to be
identifying critical assets. maintenance and renewals at asset implemented for any major interruption to business operations and
renewal programmes component level service delivery. It is recognised that it needs updating to better
This section of the AMP highlights key Risk Management outcomes
reflect latest industry practices.
incorporated into the future planning included in this AMP. Cemeteries do not meet
Lack of maintenance;
community/family asset HIGH
poor appearance
expectations
5.4.2 CLIMATE CHANGE & RESILIENCE
5.2 CRITICAL ASSETS
Our current actions to improve the resilience for the open spaces
Asset Criticality is the consequence arising from the sudden and infrastructure assets to climate change include:
total loss of an asset. The principal objective is to prevent the 5.3.1 RISK REGISTER
deterioration of critical assets to “very poor” condition where major • To monitor the asset age, condition and performance and
and urgent replacement is required, to allow for service continuity As a result of this Risk Management Strategy, we are currently renew as necessary.
and minimise disruption costs. To assess the criticality of an asset completing a full review of our Risk Register. In the interim, • To assess asset condition survey of high risk open space assets
the following three factors are considered: our previously identified high risks have been included. At this (staged over two to three years).
point investment has been primarily been prioritised through
• Service Importance: The importance of core asset groups our understanding of our critical assets and their condition / • Consider the location of any new Council open space facility
providing the service to the community. This answers the performance. taking into account natural and geological hazards as well as
question: What is the effect on the community of losing service avoiding low lying areas that may be prone to tsunamis, sea
provision? IMPROVEMENT ITEM – There is a need for full review of the Open level rise and/or coastal erosion.
• Functionality: Reflects how important the specific asset is to Spaces Risk Register to ensure risk issues have been adequately
the functionality of the core asset groups providing the service. identified and ensure that current high risks are still relevant.
It answers the question: What is the impact on the service if the
asset fails?
• Down-time: Duration that the asset will be “down”, until return 5.4 RESILIENCE
of the asset to full capacity, if it fails. It answers the question: Resilience has been identified as a Significant Challenge for Wairoa
How quickly can the asset be repaired/replaced? in the 2021-2051 Infrastructure Strategy with the following responses
followed:
Service Importance has a 1 to 5 scale where 1 is of Low Importance
and 5 is Extremely Important. Using this assessment process from • Good asset management practices and robust renewals
our Risk Management Strategy, the Service Importance of core asset programmes based on the condition and the remaining life of
groups within the Open Spaces activity have been determined as infrastructure assets.
follows. • Identification of critical assets and management of these
assets to ensure that they do not fail or to limit the effect of a
Core Asset Group Delivering Importance to Service failure.
Key Services Provision
Cemeteries Highly important
Public Toilets Important
Parks and Reserves Moderately Important
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