TRANSFORM MANUKAU

Renewal of Manukau Central

High Level Project Plan - April 2016

CONTENTS

The Thriving Heart

and Soul of the South

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PANUKU DEVELOPMENTS
DEVELOPMENT AUCKLAND
AUCKLAND

1. Introduction

07

4. Vision

38

1.1 Mihi

08

5. Goals

42

1.2 Shaping Spaces for Aucklanders to Love

09

6.

Key Principles

49

1.3

10

7.

Key Strategies

52

2.

Context

14

8. Dependencies

60

2.1

Geographical Context

15

9.

65

2.2

Property Ownership

16

10. Place-Based Community Engagement

68

2.3 Areas of Control and Influence

18

10.1 The Engagement Approach

69

2.4 Planning

22

10.2 The Manukau Community

70

2.5 Residential Market

26

10.3 Engagement with Mori

71

2.6 Commercial Market

27

11. Funding

74

2.7 The Local Community

28

12. Phasing

80

3.

Challenges and Opportunities

32

86

Panuku Who We Are

Renewal Approach

12.1 Timeframes

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INTRODUCTION

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1.0 INTRODUCTION
When it comes to transforming Manukau on a huge scale,
we first need to Start with the Heart.
Thats not just because Manukaus proposed vision is to become The Thriving Heart and Soul of
the South. It also refers to the 20ha portfolio of land within Manukau Central that Auckland Council
controls, providing robust influence for effecting change.
In total, 600ha in Manukau Central and Wiri has been chosen as a Transform project of urban
regeneration, to be led by Panuku Development Auckland (Panuku).
Manukau is the largest of Aucklands 10 metropolitan centres by employment, and the closest to
Auckland Airport, which is significant for its growth prospects. It is generally infrastructure-ready
and provides strong employment growth through its supporting employment zone in Wiri. This
underpins its role as Aucklands southern gateway, giving it a compelling position from which to
attract new market attention as a location of opportunity.
The Manukau story has long been one of unique promise. Its combination of deep Mori heritage,
the worlds Pasifika hub, geographical features of interest, and creative and economic potential
makes it unlike any other place in New Zealand.
South Auckland has been identified as the regions biggest opportunity, yet it also faces many socioeconomic challenges. As Auckland grows, it becomes even more vital that this part of the region
fulfils its potential.
Urban regeneration of this scale requires leadership and collaboration to provide strategic
responses to achieve the vision for Manukau. Its our challenge to refine an integrated approach to
development that will help empower communities, lift local well-being and build high-quality, peopleoriented urban environments.

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1.2 SHAPING SPACES FOR

AUCKLANDERS TO LOVE

1.1 MIHI
NAU MAI TAKU ITI. PIKI MAI E TAKU RAHI.
NKU KOE I TIKI ATU I TE PAE-O-TE-RANGI.
KA TIA MAI, KA KMEA MAI
KIA EKE TANGAROA, EKE PANUKU.
Panuku, panuku, kia haumi e, kia hui e
kia ara mai he tiki ngpara.

I DRAW YOU NIGH, I DRAW YOU HITHER

Upward, onward until all is met and done

and that which rises will endure still.

ka poua -whenua hei tupuranga hu.

grounded in visions of new beginnings.

Mna e huaki te mana tangata

It empowers in essence our very being

and pervades all that we have achieved.

Kia hua ko te pai,

Let good be rife

kia piki ko te ora,

and may good health be assured,

Nku te whiwhi, nku te hmrire.

Ka thono a Rangi, ka thono ki a Papa,
taku taura here whanaungatanga;
he mea n tua whakarere mai.
E kore e memeha; t te ao, t te p,
mauri tau, mauri ora.

As a development agency, Panuku

Development Aucklands structure is
the first of its kind in New Zealand.

TO RAISE EXPECTATIONS AND TO FULFIL POTENTIAL.

From high it heralds divine aspirations,

he tohu kaitiaki o taku tuakiri tuku iho.

PANUKU DEVELOPMENT AUCKLAND

YOU, FROM BEYOND THE HORIZON I HAVE TAKEN.

Ka whakairihia e te rangi hei hua tipua,

e hora ai aku mahi.

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WELCOME ONE. WELCOME ALL.

as guardianship defines a legacy given.

As destiny beckons, peace is mine.

The sky itself seems to greet the earth,

We work across multiple locations and scales from

large, long-term urban renewal projects, to small projects
on specific sites.
We operate in a commercial way but with good public
outcomes. We make a profit and deliver returns to the
Council, but at the same time ensure developments and
community outcomes are positive and sustainable.
Panuku has been established to provide leadership and
unlock barriers to enable urban transformation. We will
pilot ideas to advance Council objectives in affordable
housing, housing for older people and iwi partnerships.
We have the backing of Council finances, which allows
us to borrow at low cost and obtain funding through
Aucklands 10-year budget process. We can structure
the delivery of projects in a way that helps fund public
good outcomes.

TRANSFORM
Creating change through urban renewal.
We lead the transformation of select parts of our
region; working alongside others and using our
custodianship of land and planning expertise.
E.g. Wynyard Quarter

UNLOCK
Unlocking development potential for others.
We are the facilitator; using our relationships to break
down barriers and influencing others, including our
Council family, to create development opportunities.
E.g. Papatoetoe

SUPPORT
Making the most of what weve got.

a token from that distant past.

Intensification is a key driver in the Auckland

Plan. We support housing demands by enabling
development of Council-owned land.

It abides as day and night without fail,

E.g. Link Crescent, Whangaparaoa

epitomising all I hold and revere;

with a gentle heart and a lively spirit.

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1.3 PANUKU WHO WE ARE

Panuku Development Auckland is a Council-controlled organisation
of Auckland Council that helps to rejuvenate parts of our city.
We manage about $1.5 billion in land and buildings the Council owns. We continuously review this
portfolio to find smart ways to generate income for the region, grow the portfolio or release land or
properties that others can use better.
Its important we understand the communities in which we work. Panuku identifies development
opportunities, and plans and prepares the ground to attract private investment and make it easier for
others to develop houses and commercial buildings. Together with our partners we unlock the full
potential of this land to create spaces for Aucklanders to love.
Auckland is experiencing significant housing and infrastructure pressures as a result of rapid growth.
About 800 people move to Auckland each week, and current projections suggest the population could
reach 2.01 million by 2033 an increase of more than 517,000 people within the next two decades.
To cater for this growth, we need a step change in urban renewal and intensification of town centres
and brownfields.
Panuku has the role and mandate to address this challenge.

PURPOSE OF THIS PLAN

High-level project plans (HLPPs) are a new discipline, and key to our approach to bringing forward
locations and Council-owned sites for redevelopment or sale.
Agreement to HLPPs by the Panuku Board and Auckland Council gives Panuku the mandate to press go
on regenerating priority locations.
In drawing up an HLPP, we review earlier proposals for locations under discussion, recognising public
input to date. Any new context or considerations will be fed into the process, so that we can investigate
all the opportunities for a location and assess these against the agreed, desired outcomes expressed by
the local community.
The HLPP will outline some high-level urban planning ideas and pragmatic and commercially viable ways
to enable development projects to be taken to the market.
Panuku will draw on the resources of the Council family to compile and assess the HLPPs. The whole
organisation will work together on these plans, determining a cross-Council coordinated effort to enable
Panuku to realise the opportunities in potential development locations.

LIKE THE
NAME SAYS
Were the first Auckland Council organisation whose name
represents what makes us unique as a New Zealand-based company:
our connection to Mori culture and identity.
Development Auckland clearly states what our organisation is about,
while Panuku is an abbreviated form of the whakatauki, or proverbial
saying, Eke Panuku, Eke Tangaroa!
This saying acknowledges unseen energies from the realm of the land
and sea, which are often called upon through Mori oratory traditions
to help invigorate, inspire and manifest success, excellence and
progress within groups.
Our organisation, like a waka, not only requires strength to move
forward, but skill to navigate, balance to ride smoothly and
teamwork to propel.

The next steps after the HLPP involve more detailed project planning, including engagement and
communications plans, project planning and Framework Planning. This will be followed by detailed site
feasibility and assessments and business cases as required.

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CONTEXT

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2.0 CONTEXT

2.1 GEOGRAPHICAL CONTEXT

Manukau is Aucklands main industrial hub, with a metropolitan

centre catering to the south Auckland market of almost half a
million residents. In 2015 Manukau contributed $16 billion to the
economy or about 20 per cent of Aucklands GDP.

The 600ha Transform Manukau project area includes the whole

Metropolitan Centre zone, the Manukau Sports Bowl site and the
Wiri suburban neighbourhood to the south, including the large
49ha Manukau Super Clinic site.

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Manukaus metropolitan centre has a large Westfield shopping centre, a large district court and police
station, many Council facilities, and commercial and industrial businesses in and around the centre.
Together they employ around 17,000 workers on a daily basis. Two major tertiary institutions, Manukau
Institute of Technology (MIT) and Auckland University of Technology (AUT), have opened new
campuses here, which will attract about 10,000 students when complete in 2017.

CA
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PLU

Although declining in importance, manufacturing remains Manukaus largest industry sector, with
transport, postal and warehousing; wholesale trade; and healthcare and social assistance sectors
emerging in recent years. Its large metropolitan centre continues to serve these industries and the
wider community.

Project Area for Transform Manukau

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2.2 PROPERTY OWNERSHIP

Project Area Property Ownership

KEY
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The Transform Manukau project area aligns closely with the areas of focus for various
Council and community partnerships, and with Crown landholdings.

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This portfolio breaks down as follows:

Housing New Zealand (HNZ) three communities in Rata Vine Drive, Inverell Avenue and Trevor
Hosken Drive, about 52ha (gross)

MOE

Pacific Events Centre, 13.6ha contains Wero, car parking and stormwater area
Hayman Park, 10.3ha
Four parcels of land totalling 8.6ha cleared for sale and available for development
Westfield car parking freehold, 8.3ha leased
Manukau Institute of Technology site, 2.3ha leased for development

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New Zealand Transport Agency (NZTA) several remnants of the motorway corridors of SH20 and
SH1 could be considered later in Framework Planning

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Transpower the large Wiri substation is in the Manukau Central area

HNZ

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DHB

District Health Board

HNZ

Housing New Zealand

MOE

Ministry of Education

SHA

Special Housing Area

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Auckland University of Technology

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Manukau Plaza and Karoro Court, 0.7ha some of this was considered for development in previous
plans for Manukau.

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Together, the Council and Crown entities control more than a third of the project area; over 200ha of
the total 600.

Historic Redoubt Road reserves and a cemetery at 10 Manukau Station Road, 1.2ha

The Council also leases the ground and first floors of a building fronting Manukau Plaza for Manukau
Library and the South Auckland Research Centre.

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Three Council service properties, totalling 1.7ha Kotuku House, a Housing for Older People site,
and the Civic building and immediate grounds

Crown Entities

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PARK

Auckland Transport (AT) car parks, 2.1ha includes 2 Clist Crescent

One stormwater pond at 20 Barrowcliffe Place, 1.9ha

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Local neighbourhood parks or landscaped areas, 2.2ha

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Ministry of Education five schools, all decile 3 or lower

There are several other entities that either lease or own space such as the Ministry for Social
Development, however these are not as significant as the above.

Council
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Rainbows End freehold, 7.5ha leased until 2034 (excludes Clist Crescent car park)

Project Area

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Puhinui/Wiri Stream, 13.7ha runs 2.7km from State Highway 20 (SH20) to State Highway 1 (SH1)
through the Manukau Super Clinic site

Counties Manukau District Health Board the 49ha Super Clinic site presents a particularly strong
opportunity for regeneration and health-related housing

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Manukau Sports Bowl, 21ha large, multiple sport facility, built for the 1990 Commonwealth Games

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Auckland Council controls about 40 properties totalling 95ha within the project area.

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The following Crown entities own property within the project area:

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2.3 AREAS OF CONTROL AND INFLUENCE

Of the Council-owned 95ha of property in the Manukau project area, about 20ha
has immediate and near-term development potential, and a combined existing rating
assessment land value of about $100 million.
This value has a wide value range and is conservative, as it
was assessed from 2013 and is prior to value creation and
the transformation process. There are other medium to
longer term opportunities that will be explored through the
Framework Planning phase such as the redevelopment of the
Manukau Sports Bowl, remaining opportunities at the Pacific
Events Centre and the Councils core service accommodation
properties of Kotuku House and the Civic. The opportunities
can be summarised in three groups.

NEAR-TERM POTENTIAL CAR PARK SITES

A combined 10.4ha across six car parking sites including the
Westfield car park offer near-term opportunities to redevelop
these underused road-level parking properties for a range of both
commercial and non-financial public good outcomes.

The four sites are:

Four of these sites (1.7ha) are currently managed by AT and are

well located opposite Hayman Park and close to transport and
amenities on Davies Avenue. These four sites present a clear
transformation opportunity for a series of exemplar residential
and mixed-use development projects. The Clist Crescent car park
(0.43ha) in front of Rainbows End also presents an opportunity
for development. The potential transformation opportunity at
the Westfield shopping centre car park (8.36ha) is to redefine
and anchor the central heart of Manukau by using the car park
and its adjacent property for redevelopment into mixed-use and
residential units.

1. Lot 59, 31-33 Manukau Station Road 7100sqm

The six sites are as follows:

2. Sections 1 and 6 Manukau Station Road 18,500sqm

5. 2 Davies Avenue 1700sqm

3. 50 Manukau Station Road 9710sqm

6. 8 Davies Avenue 2542sqm

4. 20 Barrowcliffe Place 51,000sqm.

7. 14 Davies Avenue 10,600sqm

IMMEDIATE POTENTIAL VACANT LAND

There is 8.6ha of vacant land in four properties that are already
cleared for sale and present real development potential to catalyse
new development and contribute strongly to the outcomes
sought in the HLPP.

8. 9 Osterley Way 1753sqm

9. 2 Clist Crescent 4350sqm
10. 655 Great South Road Westfield car park
only 83,000sqm.

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MEDIUM TO LONG-TERM POTENTIAL

SERVICE PROPERTIES
Properties such as Kotuku House, the Manukau Plaza, the
Manukau Civic and some minor landscaped open spaces all present
opportunities to reconsider how they are best used.
There is potential to optimise and enhance the quality and range of
public service and consider some commercial uses if appropriate.
Likewise there may be opportunities to enhance and optimise
some large open spaces, sports and events facilities. Hayman
Park (10ha), the Puhinui stream (14ha), the Manukau Sports Bowl
(21ha) and the Pacific Events centre (14ha) will be investigated
further during the Framework Planning phase to understand the
potential for community benefit, enhanced people-oriented design
or financial opportunities.
There is limited redevelopment and optimisation potential for the
remaining Council landholdings in the project area. These include
Rainbows End (7.5ha) with a long-term lease, local open spaces in
existing Wiri communities, a stormwater area, historic reserves and
a small cemetery on Manukau Station Road. A Housing for Older
People site of 0.5ha is within the project area.
Framework Planning will refine these profiles and clarify the values,
priorities and our recommendations.
We could also consider upgrading or renewing open space, roading
and the public realm assets, taking into account the overall potential
of the Manukau transformation and the Councils significant role to
bring about positive urban transformation.

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KEY OVERALL OPPORTUNITIES FOR COUNCIL

PROPERTY
Seven Council-owned sites present the greatest opportunity for
transformation and are a vital support to regeneration proposals
for Manukau.
These sites are:
1. Westfield Shopping Centre and Carpark
A critical site offering significant opportunity. The whole
Manukau centre will pivot around this 8.3ha site, so we need
early resolution of its issues and challenges.
2. The Davies Avenue Sites
A series of seven Council development sites on Davies
Avenue from Wiri Station Road to Ronwood Avenue, close
to public amenities and transport options. This could be a
show street giving great examples of how the new Manukau
Central development could look.
3. Kotuku House and the Civic
With the prime location of these two Council service
properties on the plaza, we could consider co-locating them
with the library. Further optimised, they would add substantial
value to the quality of the transformation.
4. Hayman Park
This large open space offers the most significant amenity
opportunity in Manukaus centre and could act as a catalyst
for the project.

5. Manukau Plaza
This empty and underused civic space could provide an active
and attractive gathering space for the area, creating vibrancy
and a local heart.

Religious properties of various denominations and faiths.

6. The Puhinui Stream Corridor

Part of the Te Araroa national trail and connecting Manukau
centre through Wiri to the Auckland Botanic Gardens, this
corridor connection could be made more obvious and lead to
a number of positive activities and outcomes.
7. Manukau Sports Bowl
Set in generous grounds, this underused series of sporting
facilities is disconnected from the core transformation area,
but could offer an opportunity to reimagine these spaces.
While the Council controls key properties for Manukaus
transformation, there are some constraints we need to work
through. There are timing issues involved in selling sites for
development with current business owners, as well as technical
property matters such as designations, covenants, leases and
easements.
Although the Council and Crown entities together control
more than a third of the project area, these significant
private landholdings or key uses could influence planning and
engagement:
Manukau Supa Centa
Wiri Licensing Trust
Multiple healthcare sites such as Bethesda retirement, Bupa
care home, a local surgery and medical centres

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2.4 PLANNING
Previous planning for Manukau Central has been extensive. It is a major metropolitan and
sub-regional centre a CBD of the south and long identified as a key location for growth
and development.
However, the area has underperformed and not realised its
potential. Transformation will not happen by market forces, liberal
planning rules or advocacy alone. We need the Council, ideally
together with the Government (Crown entities), to respond to
the issues and challenges facing Manukau Central and its Wiri
suburban area to the south. The intervention will involve urban
regeneration, renewal and housing.
This Panuku High Level Project Plan (HLPP) includes the
following assumptions related to planning for Manukaus
transformation.
Population growth continues at a high level in Auckland,
maintaining ongoing demand for residential and commercial
property development.
Identified development sites that have been cleared by the
Council for sale will become available for use.
Previous planning is generally supported and provides a
platform for Framework Planning to review and consider.
The vision, goals and key strategic moves are broadly aligned
with other entities, parties and stakeholders.
The resources and funding required to deliver the
transformation project, as set out in this HLPP, are available.
Manukau is at the centre of significant interagency focus and
collaboration through:
The Southern Initiative (TSI)
Council designation as a Spatial Priority Area (SPA)

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Being a Transform location for Panuku

MANUKAU METRO SPATIAL PRIORITY AREA

MANUKAU BUS STATION

Being the pilot focus area for an emerging workstream known as

Collaborative Development at Scale (CDAS), which is a shared
initiative between the Council, Panuku and Crown entities.

Manukau Metropolitan Centre topped the 10 Auckland locations

identified as priority areas for the Councils long-term plan
funding. The Manukau Metro SPA has a mandate to recommend
where funding should be allocated and to coordinate work
throughout the Council related to Manukau. Approval will be
sought for projects newly aligned under this spatial prioritisation
process to start in the 2016/2017 financial year.

A bus station is proposed on part of the Civic building parking lot

as Auckland Transport rolls out a new $22 million public transport
network across south Auckland. The 26-bay station will cater for
more than 500 buses a day and make it easy to transfer between
buses, and between buses and trains at the nearby rail station.

For more information on these and other initiatives, see Current

projects below.
The project area has benefited from major investment, both
historically and more recently, including the state-of-the-art
Manukau Institute of Technology (MIT) campus building and
trenched train station, the Pacific Events Centre and the new
Wero white water project. A new bus interchange is now under
construction.
CURRENT PROJECTS
A number of key projects and work streams are under way in the
Transform Manukau project area.
THE SOUTHERN INITIATIVE (TSI)
The TSI team mobilises community innovation to deliver
transformational social, physical and economic change. The team
collaborates with the Government, Council, iwi, business and
south Auckland communities. TSI believes real transformation
must be led by and for south Aucklanders; moving from
dependency to self-sufficiency and empowerment. The team
focuses on supporting employment opportunities, creative
technologies and social entrepreneurship.

COLLABORATIVE DEVELOPMENT AT SCALE (CDAS)

This new programme investigates how the Council and the
Crown can work together to identify and undertake large-scale
redevelopment. With major Crown landholdings in the area,
Transform Manukau presents an opportunity for Panuku to work
with the Crown to align goals, resourcing and projects, and deliver
wider transformational change.
TE PAPA TONGAREWA MANUKAU
This project seeks to establish a new museum and related storage
facility at Hayman Park working title Te Papa Manukau. In
keeping with its south Auckland location, it will have a strong,
unique identity connected with the whakapapa and cultural
heritage of the mana whenua, Pasifika people and other
ethnicities, and the business and education sectors. In 2013 the
Council agreed in principle to make available 2-4ha of the park, on
a perpetual lease, at a peppercorn rental. A Government capital
contribution (up to $40 million sought in the 2015 Budget) has
not yet been approved.

This project is positive for transport, investment and increased

passengers, but the volume of buses in the station area could
present challenges to the wider centres transformational
objectives.
VECTOR WERO WHITEWATER PARK
With stage 1 now open in April 2016, this whitewater park near
the Vodafone Events Centre will be New Zealands first facility
to offer an artificial river and water course for recreation, sports,
emergency services training, school programmes and youth
development. The 1260sqm Sir Noel Robinson Conference Centre
is located next to the whitewater park.
Other recently completed projects include:
The Ministry of Justice precinct extension
MIT and Manukau rail station
M Central student accommodation and serviced apartments
Ronwood Avenue public car park (seven levels)
Davies Avenue street upgrade
AUT Manukau Campus stage 1 (under construction).

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The Manukau project area is also the location for the following
initiatives in the planning stage:
Kotuku House refurbishment a major refurbishment of the
Council service property to modernise the building, make the
floors more open plan, and redesign the ground floor to reflect
the standard of upgrades to the Bledisloe House service centre
in central Auckland. It will take 12 months, with temporary
accommodation and customer service in the Civic.
20 Barrowcliffe Place subdivision for 11 blocks is being sought
for up to 145 sites on this 5ha property.
31-33 Manukau Station Road involves a 7000sqm balance of
land from the bus station project. Concept planning for three to
four mixed-use residential and commercial buildings of 10-12 levels.
Pacific Events Centre Special Housing Area (SHA) planning
vision for 800 units, including two hotel sites; so far, consent
sought for the first stage of 50 units.
Lakewood Plaza a 15-level, mixed-tenure residential development
on the old Valentines site; in presale and concept stages.
Manukau Station Road bus priority upgrades support the
bus interchange project. Will deliver bus lanes in each direction,
rationalise intersections and try to improve the environment for
pedestrians.
Hayman Park stage 1 playground in developed design stage,
this project will provide activity in the park to help address
safety concerns. Includes a BMX pump track, skate park
upgrade, flying fox, toilets and covered seating. Budgeted for
implementation in 2017.
PLANNING: STATUTORY AND NON-STATUTORY
Manukau is coming back into focus after some years on the
periphery of planning focus. Its development strengths are
founded in property ownership, infrastructure and location.

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We have the opportunity to use these to address some of the

areas ongoing issues and challenges, and help it contribute to the
wider aspirations of the following local and Auckland-wide plans.
AUCKLAND PLAN
Transforming Manukau is part of the wider Auckland vision to
create the worlds most liveable city. This vision is supported
by seven key outcomes the Council seeks to achieve by 2040.
Panuku has considered these outcomes and the Auckland
Plans transformational shifts and development strategies when
preparing our approach to Manukau.
PROPOSED AUCKLAND UNITARY PLAN (PAUP)
Under this plan, the Transform Manukau area has enabling zoning,
supportive of high-intensity residential and business development.
Most of the sites in Council ownership are zoned Metropolitan
Centre, Mixed Use, Mixed Housing Suburban and Public Open
Space Informal Recreation.

TARA-PAPATOETOE AREA PLAN 2014

This non-statutory plan provides a clear and flexible framework to
support growth and development in this local board area over the
next 30 years.
The key moves and initiatives relevant to Transform Manukau are:
Transition Manukau from a city centre to a vibrant metropolitan
centre
Continue Hayman Park
Redevelop the Sports Bowl
Investigate streetscape improvements along Putney Way to
create a landscaped pedestrian spine
Develop a vision for Ronwood Avenue and Manukau Station
Road
Link Vector Wero Whitewater Park with the metropolitan
centre.
LOCAL BOARD PLAN 2014-2017

Manukau City is the main commercial centre for the southern

area and is zoned Metropolitan Centre in the PAUP. These zones
are second only to the city centre in scale and intensity, and act
as hubs for high-frequency public transport within their subregional catchments.

A local board plan guides decision-making and actions for the next
three years. It informs the boards decisions on local activities, and
enables it to represent the communitys interests and preferences
on regional plans.

THE MANUKAU CENTRAL BUILT FORM AND SPATIAL

PLAN 2008-2010

Manukau metropolitan centre becomes the thriving heart of

our area; an attractive visitor destination, business centre, and
place to shop, live, learn, work and play.

This is the primary set of strategic planning documents guiding

how the future development of Manukau Centre is to take place.
This High Level Project Plan, but particularly the next stage
Framework Plan, will take the Spatial Plan into account when
looking at possible density, height and uses.

This plans key priorities are:

Manukau to be a tourist destination Vector Wero Whitewater

Park, Te Papa Manukau, Rainbows End with great transport
connections to Manukau.
Improved Hayman Park, public realm, town square and
pedestrian bridge over Great South Road.

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2.5 RESIDENTIAL MARKET

2.6 COMMERCIAL MARKET

Although Manukaus housing stock is dominated by large-household,

detached dwellings, demand in the area is shifting to larger terrace
housing or smaller apartments.

The project area is a significant commercial and service centre, with

a concentration of industrial activities in the southwest, health care
activities in the south and emerging apartment developments largely
around the centre fringes.

This change is due to increasing house prices, a shortage of residential land for development, and a
strengthening student and worker population base.
Currently, there are six apartment projects in and around the area, which will create 404 mostly studio
units by 2017. Two of these, Lakewood Court and Lakewood Plaza, are within the project area, creating
a total of 82 studio and 151 two-bedroom apartments.
Future demand through to 2043 is expected to be about 1500 new dwellings within the project area,
500 within the centre. The table below summarises the population and dwelling counts in 2013 and
2043 for the centre and the scope area as:

Current and forecast population and dwellings

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MANUKAU CENTRE

PROJECT AREA

Current population (2013)

621

5865

Current dwellings

285

1734

Forecast population (2043)

2344

9548

Forecast dwellings

772

3316

PANUKU DEVELOPMENT AUCKLAND

Two of the key strategies for Panuku, outlined later in this HLPP, relate to improving the central areas
competitive position in the housing market and prompting the private sector to supply housing choice,
considering the market shift from family dwellings to smaller investor-oriented apartments.
These key strategies are supported by initiatives to introduce higher-density residential into the
central area, through underused sites such as ground level car parks, which are also critical to growing
commercial activity in the centre.
The market context for Manukau indicates significant challenges to delivering successful initiatives
from these strategies on the back of the aspiration to introduce various types of apartments. By
their nature these developments are costly and carry higher risk, particularly in developing larger
apartments to add to the diversity of the housing market.

Manukaus commercial market is strong, supported by a robust industrial base and growing residential,
worker and student demand. The vacancy rates on retail and office space will remain low, due to
limited supply and the pull factor of Manukaus strategic location.
Demand for investment in this market is expected to increase under the current favourable business
conditions declining yields, increasing values, low interest rates and vacancy rates, and growing
demand due to future developments (e.g. Te Papa Manukau).
The key sectors for commercial activities, whether or not integrated with apartment developments in
and around the central area are core retail, medical services, creative services and ICT, real estate and
construction services.

Panukus development realisation and implementation plan will need to address this critical market
dynamic. We will consider how best we enable residential apartment delivery in Manukau, including
managing the risk exposure to both Panuku and private sector partners. Panuku will need to act
effectively within the continuum between realistic development and aspirational outcomes.

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2.7 THE LOCAL COMMUNITY

Manukau is an active multicultural and worker sub-region of Auckland.
It has a strong Mori heritage and is home to a high proportion of the
regions Pacific peoples and young Aucklanders.
Manukaus 380,000 people include 40 per cent of Aucklands Pacific, Mori and Asian population, and
40 per cent of the regions blue-collar workers live or work in the area.
The centres population was 621 in the 2013 census, with 5865 people in the wider project area. These
figures are expected to rise to 2344 and 9548 respectively by 2043.
Residents in the wider area are largely of the working age group (64 per cent) and of Mori or Pacific
Peoples ethnicity (64 per cent). A large proportion of the population is school-aged (27 per cent)
and Asian (27 per cent). About 70 per cent of the households have annual incomes of up to $70,000,
compared with 46 per cent Auckland-wide.
Our project area has 6000 residents and 20,000 workers. In tara-Papatoetoe and Manurewa (where
Transform Manukau is located) 43 per cent of the population is under 25.
The local residents face some challenges. Home ownership rates are low, about 50 per cent. Youth
unemployment is double that in other parts of Auckland and a disproportionate share of young people
is not in employment, education or training. The average income is lower than in the rest of Auckland,
particularly in tara-Papatoetoe.

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CHALLENGES AND OPPORTUNITIES

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3.0 CHALLENGES AND OPPORTUNITIES

Manukau needs some publicly-led renewal to stimulate development
as it has been hampered in part by negative market perception and
safety concerns.
There are few local residents and neighbourhood support facilities in the town centre. A 9am-5pm
economy contributes to a lack of vibrancy and limited choices, with the exception of the Westfield
shopping centre. Additionally, despite Manukau being at the centre of a high-demand and broadgrowth area, the central area itself is currently in a value trough, surrounded by industry, large format
retail and motorways.
These factors, combined with poor perceptions of safety and the lower socio-economic status of the
surrounding residential area, have rendered development financially challenging. Recent developments,
many led by the public sector, have lacked overall cohesion.

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SCALE AND IMPACT

OPPORTUNITIES

CHALLENGES

OPPORTUNITIES

CHALLENGES

Name Manukau has lost scale association

Dispersed and disconnected area

Significant Council landholdings of 95ha, of

which about 20ha has development potential

Some landholdings are locked via designations,

leases, covenants and easements

Proximity of 100ha of Government landholdings

in Wiri suburban area

18ha of land are in long-term leases (Rainbows

End 7.5ha, Westfield 8.3ha, MIT 2.3ha)

Zoning and planning is enabling of regeneration

Previous planning has outlined in detail various

approaches to development

Technical matters, such as noise contours, create

constraints to development potential

Government landholdings are physically

separated from Council landholdings by SH20

Third-largest metropolitan centre by area, largest

by employment

Significant capacity to accommodate growth

and density (including supportive Unitary Plan
provisions and infrastructure readiness)

Westfield shopping centre is large and absorbs all

activity and vibrancy

In short, Manukau Central has failed to present a strong identity and brand to the region as a desirable
metropolitan centre of scale and significance in which to invest. This weakness is also its opportunity, as
land values are in a trough and more affordable than other centres and suburban areas of south Auckland.

Significant Council and Crown landholdings

Large scale of centre has resulted in few local

amenities and services

The centre of a wide and broad catchment, with

an intra-regional role

Motorway network scale create barriers and

impacts connectivity

These factors make Manukau a prime location for urban transformation and regeneration. And in
responding to them, we have an opportunity to help address underlying socio-economic, housing and
crime issues.

Home to a number of regional and national

facilities

The scale of the socio-economic dynamic creates a

significant issue to address on an ongoing basis

Ability to unlock previous challenges and

roadblocks within the Council family

Ability to influence new investment decisions

(i.e. decisions pending on major infrastructure
projects to ensure a cohesive, coordinated
approach)

Extensive local board and community planning,

and readiness for change

Housing delivery can be done at scale

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KEY LAND HOLDINGS

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COMMERCIALLY VIABLE /
MARKET ATTRACTIVE

LEVERAGE PREVIOUS INVESTMENT

PROXIMITY TO PUBLIC TRANSPORT

OPPORTUNITIES

CHALLENGES

OPPORTUNITIES

CHALLENGES

OPPORTUNITIES

CHALLENGES

OPPORTUNITIES

CHALLENGES

Challenging market economics can affect viability

of development aspirations high cost of
development, low market attractiveness, lower
socio-economic residential catchment

Collaboration within the Council family

Governance must be defined and simple

Access to Manukau train station

Partnering with Crown and communities to drive

development

Aligning different stakeholder outcomes and needs

Walking and cycling infrastructure needs

improvement

Aligning priorities

Access to key station in the new bus network

Manukau terminal station

Repositioning through redevelopment with

Government

Access to two motorways via four interchanges

Scale of bus movements in centre could impact

walkable, liveable outcomes

Lack of residential catchment within walking

distance of centre

Light rail alignment yet to be determined

Safety and crime concerns

Not for profit initiatives

Access to good parking facilities including

parking structures

Opportunity to catalyse private sector

investment

Potential to increase access to the airport

Key facilities and destinations in the local area

Manukau is well connected regionally but not locally

Aesthetics and amenities of the area require

significant improvement to attract private
investors

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PARTNERSHIPS

Significant demand for housing supply and

choice, including affordable housing
Large sites will enable housing delivery at scale
and potential to shape the market

Council and Crown can lead market confidencebuilding exercise

Generally infrastructure ready

Good proximity to large employers

PANUKU DEVELOPMENT AUCKLAND

Aligning budgets

Potential to leverage the significant transport

investment and to develop the centre as
an intensive and walkable transit-oriented
development (TOD)
Potential to leverage the investment in a range of
regional facilities (such as whitewater park, MIT,
events centre)
Several key projects underway present
opportunities to enhance, influence and speed up
transformation

Existing or planned projects may not be aligned

to the outcomes sought, such as quality,
sustainability, procurement
Lack of funding results in few opportunities to
redirect and bring forward funds

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VISION

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4.0 VISION
Manukau provides the basic ingredients that make it ready for
effective urban regeneration. Change at scale and pace is needed
and is achievable.
Sections 4 through 7 outline the recommended vision, goals, principles and strategies for regeneration
in the Transform Manukau project area. They include a high-level approach to how we stage it, with an
emphasis on the short-term recommendations and site development realisation.

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PANUKU DEVELOPMENT AUCKLAND

MANUKAU:
THE THRIVING
HEART AND SOUL
OF THE SOUTH
Manukau metropolitan centre becomes the thriving heart of our
area: an attractive visitor destination, business centre and place
to shop, live, learn, work and play.

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GOALS

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5.0 GOALS
GOAL 1

GOAL 2

GOAL 3

GOAL 4

GOAL 5

GOAL 6

A colourful, vibrant, family

friendly centre with a local heart,
that reflects and celebrates our
diverse cultures

A strong, permanent residential

population which lives, learns,
plays and works within the centre

New uses and activities support

the centres emerging evening
and weekend economy

Hayman Park and Puhinui

Stream are attractive, safe and
accessible green lungs

Manukau is a thriving visitor

destination of choice

Manukau can take advantage of its location at the

centre of a broad growth area and the lack of housing
in the centre. By changing perceptions and attracting
new residents through various strategies, the growth
of a residential population will anchor Manukau as a
vibrant centre.

Manukau needs to consolidate the centre with new

business, residents, events and attractions, both local
and regional. By doing this, the vibrancy of the centre
will prolong its current 9-5 economy into the evening
and weekends. This will make the centre more vital, not
just in one place and one time, but more continuously
and sustainably throughout the day, week and year.

Manukau is not blessed with harbours, rivers, lakes,

mountains or forests, so it is critical that the few
open space and environmental features are restored,
upgraded and enhanced as exemplar amenities and
spaces for people and flora and fauna.

The centre is reconnected to the

south: its local people, anchors
and neighbourhoods (Mori,
Pasifika, Events Centre, Wero
and Wiri)

One of the key issues to address is the perception

of emptiness, poor safety and lack of vibrancy. Place
activation and attracting new uses and activities, along
with community building and housing, will be essential
catalysts to achieving this goal.

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PANUKU DEVELOPMENT AUCKLAND

Currently Manukau is not a place to go by choice, other

than for particular experiences such as the shopping
centre or Rainbows End. It can achieve this goal over
time by enhancing and diversifying Manukau attractions
local, regional and across the event calendar spectrum
combined with key emerging anchor attractions such
as the whitewater park, Te Papa Manukau and a reenvisaged Sports Bowl.

The central area is surrounded by industry, large

format retail and motorways, These spatial barriers
have distanced Manukau Central from its natural, local,
residential neighbourhoods of Puhinui, Wiri, Redoubt
and Papatoetoe. Residents identify less with Manukau
than with other existing and emerging centres. A
key outcome would be to reconnect the centre to its
suburbs spatially, economically and socially.

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43

GOAL 7

GOAL 8

PANUKU: OUR PART TO PLAY

Our responsibilities in Manukau

A desirable and innovative place

to do business that promotes and
stimulates local enterprise and
attracts new investment
Critical to the success of the centre is increasing
market attractiveness, economic development and
commercial activity. The key commercial sectors would
be core retail, medical services, creative services
and ICT, real estate and construction services. This
can be leveraged and promoted to attract targeted
local enterprise and new investment that builds on
Manukaus point of difference.

Involvement of the local people in

the urban redevelopment process
contributes to new community
benefits and improved socioeconomic well-being
Regeneration in a Transform location is greater and
more complex and custodial than in other Panuku
locations. Manukau is well placed to collaborate with its
local people and uplift their quality of life and the areas
economic potential by encouraging their involvement at
each stage of development.

As set out in the Statement of Intent to Auckland Council,

our organisation is charged with leading urban transformation
and regeneration, facilitating vibrant development and
accommodating growth.
The following are our Business Plan objectives, as applied to the
Transform Manukau project.
To facilitate the high-quality urban redevelopment and
transformation of Manukau Central.
To coordinate provision of the Councils infrastructure and
other investment in Manukau.
To facilitate investment in Manukau through collaboration with
the private sector, third sector, iwi and the Government as
partners in the urban redevelopment.
To undertake masterplanning, engagement, place-making,
activation and development projects to catalyse and encourage
private investment.
To facilitate quality redevelopment of underused Council
landholdings in Manukau to drive commercial and strategic
value as part of urban transformation.
To facilitate housing development and an increase in housing
supply and residential choices to accommodate growth. We
will work with partners and include housing in the affordable
spectrum and Housing for Older People (HfOP).

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PANUKU DEVELOPMENT AUCKLAND

To harness and incorporate the local communitys unique

identity, attributes and potential to create vibrant communities,
through engagement and place-making.

Housing choices a range of types, sizes and price points to

suit different markets.

To identify leadership opportunities to deliver projects that

demonstrate affordability, universal design, sustainability, highquality urban design, place-making, economic development and
value for money.

Accessible and sustainable design standards appropriate to

the market and focused on affordability, supporting sustainable
lifestyles and diverse population (including the young, old,
disabled and families). A minimum of 20 per cent accessible
units, including all ground floor units.

To develop strong, meaningful and productive relationships with

iwi to achieve shared outcomes in Manukau.

Landscaping supporting the amenity, biodiversity and

environmental objectives of the Framework Plan.

To ensure Council properties are managed and maintained and

achieve optimised net returns for the Council group.

Mixed uses where ground floor activation is appropriate and

commercially viable.

OUR RESPONSIBILITIES IN MANUKAU

Appropriate density and types of homes densities in the

centre are supportive of transit-oriented development.

Panuku is required to strike a balance between commercial and

strategic outcomes and being transparent about non-financial
outcomes.

Climate change designing with this in mind, such as ensuring

shade and shelter, buildings that tolerate extremes of heat,
stormwater management.

We are developing a corporate responsibility framework to spell

out the aspirations Panuku has for Manukau and how we will
advance them.

Development opportunities with mana whenua seeking these

out with iwi and hapu and other Mori organisations.

Preliminary aspirations for Manukau are:

Affordable housing 10 per cent market or 5 per cent retained
in all residential projects as a minimum (consistent with the
requirements of private developers in Special Housing Areas).

Environmental action and green growth sustainable land

development.
Building on a Mori identity that is Aucklands point of
difference recognition and celebration of Mori cultural
values and heritage.

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KEY PRINCIPLES

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6.0 KEY PRINCIPLES

In our leadership role in the Transform Manukau project, Panuku will
be guided by these principles for successful urban regeneration.

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PANUKU DEVELOPMENT AUCKLAND

GOVERNANCE

INTEGRATED AND PARTNERED

Establish a strong, inclusive and accountable governance structure that enables and mandates Panuku to
deliver the vision in partnership with the community, Crown entities, mana whenua and the Council family.

Implement projects that enable rapid and holistic transformation through coherent and integrated
strategies and outcomes in partnership with the community, other organisations and Crown entities.

TRANSIT ORIENTED

SOCIO-ECONOMIC WELL-BEING

Guide Manukau Central towards becoming an exemplar transit-oriented development that fully
capitalises on the Metropolitan Centre zone to build a quality compact centre.

Contribute to increasing and improving the social and economic well-being of the local areas people,
businesses and communities to unlock economic potential and reduce social assistance needs.

MARKET ATTRACTIVE

THINK LOCAL

Change and improve the perception of Manukau by leading the market in consolidating the centre
with high-quality exemplar and catalytic projects. These projects will reconnect existing anchors and
attract new uses, activities and a more diverse population to live and work locally. This will establish
a clear positioning and identity to reinforce Manukaus point of difference and improve market
attractiveness and competitiveness.

Focus urban regeneration and community development towards thinking local with emphasis on
developing a local heart for Manukau. We will build to a human scale with an attractive and quality
public realm, featuring active, safe and connected places.

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KEY STRATEGIES

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7.0 KEY STRATEGIES

As a Transform location, Manukau has a unique opportunity to
reposition itself within the region and the wider upper North Island.
It also needs to change its perception in the local marketplace and
address some of its economic weaknesses and challenges.

STRATEGY 1: PEOPLE-ORIENTED DESIGN AND RAPID DELIVERY

Led by the Framework Planning phase, this strategy will further investigate the key moves, initiatives
and the way to make them happen that incorporate a strong public realm component.

POTENTIAL KEY MOVE

INDICATIVE KEY INITIATIVES

PROJECT CATEGORY

Advocate for Te Papa Manukau

Anchor development

Rejuvenate the Puhinui Stream and the Te Araroa

trail to the Auckland Botanic Gardens

Catalyst community

Focus on enhancing the pedestrian experience,

amenity and priority, e.g. shared streets, walking
and cycling

Exemplar community

Investigate new community facilities

Exemplar social focus

Explore the need for a new daycare facility in the

central area

Supporting social focus

Foster a local events calendar, i.e. night

markets, crafts, cultural events and local music
opportunities

Catalyst community

This component will consider:

We have developed five key strategies to respond to the primary opportunities and challenges that
Panuku, the Council and the Crown can tackle through the transformation process.
Aimed at addressing Manukaus problems and building on its strengths, our recommended strategies
will help navigate, guide and explore potential key moves and initiatives. These will be confirmed
through the Framework Planning process.
The five key strategies for Manukau are:

Key spatial moves, projects and initiatives

Connections and movement networks
Amenities and attractors
Walkability and place-making
Urban design, including scale and form and bulk studies, character and architecture.

Reconnect the centre to Vector

Wero Whitewater Park and Wiri
neighbourhoods with a new
transport link

1. People-oriented design and rapid delivery

2. Financial investment
3. Community benefits
4. Housing supply and choice
5. Repositioning
Develop local amenities, services
and events

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STRATEGY 3: COMMUNITY BENEFITS

STRATEGY 2: FINANCIAL INVESTMENT

Given the challenging market dynamics, we need a new collaborative and partnering approach to drive
public and private investment.

POTENTIAL KEY MOVE

INDICATIVE KEY INITIATIVES

PROJECT CATEGORY

This strategy involves identifying opportunities to ensure the planning, design and development of
Manukau provides social and economic opportunities for local people and businesses.

This approach will consider:

Dispose of some sites to deliver public good

projects and other key moves

Development feasibility, including financial modelling

Collaborate and deliver with The

Southern Initiative (TSI)

Support TSI in ensuring the socio-economic wellbeing of local people is improved and that they
share in the economic opportunities unlocked by
transformation

Anchor social focus

Local community infrastructure and services gap analysis

Land value uplift and leveraging land value to achieve outcomes

Supporting local and social entrepreneurship

Partner with Westfield to invest in the car parking
area with shared development outcomes

PROJECT CATEGORY

It might consider:

Partnering with community housing providers (CHPs)

Reinvest the proceeds of
site sales

INDICATIVE KEY INITIATIVES

Unlock development

Partnership options

Value engineering options

POTENTIAL KEY MOVE

Anchor development

Building cost options by typology.

Providing work experience

Partnering with others for construction training opportunities
Ensuring a Mori urban design aesthetic

Promote local economic development

opportunities

Support development

Building capacity in community groups

Procuring services, goods and development process in a way that supports local training and
Encourage and promote Mori and Pasifika events

employment

Investigate the need and desire for an athletics

facility and prepare a needs assessment

Ensuring a Mori approach to integrated design and development that reflects the Councils Te
Start with the Heart develop along the Davies
Avenue amenity axis

Exemplar development

Anchor community and

social focus

Aranga design principles.

Continue and complete Hayman
Park, revitalise the Sports Bowl
and rejuvenate Puhinui Stream

Lead the first high-density

housing development

Provide diverse housing options, i.e. affordable,

sustainable

Exemplar social focus

Empower community groups in open space and
environmental projects such as the Puhinui Stream
and Hayman Park

Explore enabling a hotel development

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Anchor community and

social focus

Catalytic development

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STRATEGY 4: HOUSING SUPPLY AND CHOICE

This work will investigate the delivery of a range of housing types suitable to the market and will consider:

STRATEGY 5: REPOSITIONING
POTENTIAL KEY MOVE

INDICATIVE KEY INITIATIVES

PROJECT CATEGORY

This work will review the economic context and reposition Manukau, considering the following
opportunities:

Affordable housing

POTENTIAL KEY MOVE

INDICATIVE KEY INITIATIVES

PROJECT CATEGORY

Develop the Davies Avenue amenity axis as an

exemplar, high-rise living community close to
transport and amenity

Anchor and exemplar

development

Maximise transport choice, quality and frequency

Support development

Address poor safety perceptions by attracting new

events and activating civic space with events and
place management

Support community

Ensure new buildings and public works showcase a

Mori point of difference and reflect the Councils
Te Aranga design principles

Exemplar social focus

Manukau as a key nodal point and gateway to the Auckland region

Accessible housing
Rationalise and release Auckland Transportmanaged sites

Sustainable housing

Unlock development

Creating a complementary role to other centres such as the airport, Highbrook, Ormiston, Sylvia
Park recognising Manukaus excellent location and transport connectivity

Housing price points, types and sizes, neighbours, character, scale and amenity.

A development approach that can pursue uses and activities setting Manukau apart from others,
such as housing, education, government and healthcare services
Rebranding Manukau centre in association with the business community to attract investment and
Redevelop underused car parks

Work with Rainbows End to use 2 Clist Crescent

Investigate best use of sites in the context of

others, i.e. student housing, live/work, serviced
apartments, retirement

Workshops with Crown and Counties Manukau

District Health Board

Unlock development

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PANUKU DEVELOPMENT AUCKLAND

encourage collaboration towards a strong visitor proposition.

Support development

Unlock development

Develop Crown entity land, i.e.

Manukau Super Clinic site

Investigate the sites spatial potential and range

of uses

Develop an exemplar, highquality, transit-oriented centre

Support development

Deliver places and spaces that

are safe and attractive, and
reflect south Aucklands diverse
cultures

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DEPENDENCIES

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8.0 DEPENDENCIES
The Transform Manukau project is dependent on a number of
other projects and activities.
Here we summarise the potential ways in which the projects may interrelate, be dependent on one
another and how Panuku will manage those situations. We will also consider the dependencies in the
Framework Planning phase and in our approach to the staging of the project.
ALIGNMENT WITH CROWN ENTITIES
Central government involvement and investment will be vital to achieving the full scale of change and
outcomes that Manukau needs. Panuku will continue regular engagement with the Government and
formalise a contractual framework to work together.
ALIGNMENT WITH COUNCIL AND OTHER CCOS
Panuku as the lead Council organisation for the Manukau transformation. The Councils endorsement
of this HLPP will enable us to move forward with realising the opportunities for regeneration. We will
work closely with other Council departments and Council-controlled organisations (CCOs) on priorities
and budgets to align Transform Manukau with other projects and iron out potential conflicts.
GOVERNANCE
We recognise the need for clear governance, roles and responsibilities, and accountability frameworks.
This is especially necessary given that there are several Council work streams and processes
underway, and the level of collaboration this project will require with Government agencies.

MARKET TESTING

TRANSFORM PROJECT FUNDING

Several sites in Manukau central have been identified for potential development and we need to
ensure the delivered projects are of a quality and scale in line with a metropolitan centre. To ensure
future developments are viable and to test the high-level assumptions we have used in the current
plan, Panuku will investigate whether options are feasible including market testing. This will ensure we
choose the right development options.

Along with the approval of the HLPP, the successful delivery of the Transform Manukau project
depends on the Council approving the business case for funding. The Councils agreement in principle
to fund the projects from the proceeds of property sales will pave the way for Panuku to press on with
the priorities in this HLPP.

AFFORDABLE HOUSING

The Westfield shopping centre and Rainbows End theme park are two large and critical sites on
long-term leases. Of the two, the Westfield site presents the biggest barrier. Addressing the scale,
influence, attraction and built form of Manukau Central is critical to the transformation process, so
dealing with the lease of Westfield will be a prime focus. Through negotiation, Panuku wants to unlock
the potential of the surrounding car park sites. In doing so, we will be able to address scale, built form
and activity.

WESTFIELD AND RAINBOWS END

Manukau has many positive attributes that will contribute to the affordable housing goal. However,
Panuku will carry out development feasibility tests to ensure the plans scale and intent in this area is
achievable, given other contributing factors. Our process for assessing trade-offs between financial
and non-financial outcomes will also help in this respect.
SITE CONTROLS
To ensure the various sites are suitable for development or planning requirements, we will address sitespecific issues through controls such as project planning, property clearance and pre-consent reviews.
We want to mitigate site issues that could delay us carrying out the transformation project.
OTHER PROJECTS UNDERWAY

AUCKLAND TRANSPORT PARKING SITES

These sites require release and clearance from Auckland Transport, along with the revocation of three
parking designations across their four sites in the area. Once redevelopment of these sites is possible, we
will analyse centre-wide parking provision in the Framework Planning phase to ensure there is no barrier
to development feasibility and progress. Panuku will do this in consultation with Auckland Transport.

We understand the expectation on Panuku to ensure other projects underway in the Transform
Manukau area contribute to the desired goals for those locations. To ensure alignment, we will work
with existing projects such as the new bus station, playground and Kotuku House. Overall, this will help
us fulfil the Councils commitment to the quality, timing and integrated approach of the regeneration.

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RENEWAL APPROACH

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9.0 RENEWAL APPROACH

This is the approach we will take to deliver on the key strategic moves how we will use
Panukus lead role, Council property and the roles of our development partners in the process.
The strategy will be further developed in the projects Framework
Planning and implementation phases. The strategy will comprise
the following:
Confirmation of outcomes to be delivered from development
activity consistent with the key moves and Framework Plan
Roles of the various parties, including Panuku and the private
sector
High-level programme
Strategies to address the challenging market dynamics and the
managed risk approach to enabling delivery of the outcomes
Setting out the wider benefits of realisation and subsequent
development activity undertaken by the market.
Some early moves include:
1. Start with the Heart development will focus on the
central area of Manukau
2. Davies Avenue amenity axis Development opportunities
flow from the centre along the Davies Avenue amenity axis,
focused initially on several sites as outlined in Section 12

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VALUE CREATION

COMMERCIAL VALUE CREATION

As part of Framework Planning, we will establish a way of

assessing and reporting on the creation of value arising from
implementing the Framework Plan.

A desktop assessment of the baseline existing rating assessment

land values has been undertaken for the 10 properties with
immediate and near-term potential and have an estimated
conservative value of $100 million. This value has a wide value
range and is conservative as it was assessed from 2013 and is
prior to value creation and the transformation process.

Value creation will address these commercial elements:

1. Baseline values of existing assets, or some other appropriate
measure, and an assessment of future increases in value at
key project milestones.
2. Estimates of developed project values for the Council assets
that will be realised and developed by the private sector
through the market process.
3. Consideration of reporting on value creation in the context
of other Council service assets that will benefit from Panuku
activities.
Reporting on commercial value creation will identify the nexus
between Panuku actions and the value implications, and also
seek to isolate value effects from broader issues such as general
market movements.

The subsequent framework and implementation planning will

establish the opportunities these properties and the others
potentially offer in contributing to the implementation of the key
strategies and initiatives for Manukau. This will establish the basis
for the submission of detailed business cases to the Panuku Board
and Auckland Development Committee as necessary in the future.
NON-FINANCIAL VALUE CREATION
During Framework Planning, we will establish key indicators and
a baseline for them that will enable us to monitor the broader
benefits of Transform Manukau. We will report on this at key
project milestones.

The project will seek to report on wider value creation associated

with economic and social factors, such as employment creation,
housing choice and community safety. We will further detail
and assess this element as part of the Framework Planning
and implementation stages of Transform Manukau. We will also
collaborate with Crown entities to ensure minimum overlap with
their business and social programmes.

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PLACE-BASED COMMUNITY ENGAGEMENT

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10.0 PLACE-BASED COMMUNITY ENGAGEMENT

10.1 THE ENGAGEMENT APPROACH

Based on the belief that effective collaboration will regularly outperform individual or siloed approaches, Panuku is committed to
engaging regularly with key stakeholders to ensure that urban
regeneration in Manukau takes place in a cohesive way. This approach
has proved to offer the best chance for resolving different and
complex issues.

Our approach to engagement for all development locations is to

ensure that broadly three phases help to support the planning,
design and implementation of the HLPP and Framework Plan.

Collaboration requires a close partnership between the public, private and community sectors across
key platforms to achieve an integrated urban strategy. These partnerships must be invested in and put
into practice at all levels of the organisation.
A place is an assembly of elements, characteristics and experiences that together define the identity
of a particular location. Built places are born of communities, culture, economics and technology, and
over time and in turn, built environments shape culture and particular events that take place here
gradually form a history of each and every place.
It is with an appreciation of the importance of this, that Panuku has established a place-led approach
to engagement. We recognise that valuable place-led engagement uses several disciplines, including:

These three phases and the activities comprised within each are:
Form Relationships: The engagement focus sits within the planning phase. The purpose is to
establish key relationships and build a platform for the next steps. Local boards and Council officers
will primarily guide this work; they are knowledgeable about the place and largely concentrate on
gathering and sharing information.
Launch Relationships: In the design phase, we will seek feedback and test opportunities and ideas
using the relationships and networks established as above.
Consolidate Relationships: Stakeholders are kept informed and help to support the local effects of
implementation.
Maintain Relationships: Stakeholder groups and organisations take over the place-based
engagement. Panukus focus is on communications.

Place-making
Communications
Marketing
Relationship management.

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10.2 THE MANUKAU COMMUNITY

10.3 ENGAGEMENT WITH MORI

To be effective in our work, we need to take a fresh and bold

approach to stakeholder engagement and communications. We will
be proactive, collaborative and authentic across key relationships.

MANA WHENUA IWI

MANA WHENUA EARLY DISCUSSIONS

The 11 Tmaki Makaurau mana whenua iwi and hap listed below have interests in the broader
Manukau area. Panuku will work in partnership with these tribes towards best care for land and people
throughout development planning and implementation.

Panuku is developing a work programme with mana whenua for the Framework Planning process. Our
collaborative work is to focus on developing and delivering tangible outcomes reflecting mana whenua
aspirations and interests in Transform Manukau.

Waiohua-Tmaki Ngti Tamaoho, Te Kawerau Maki, Ngi Tai Ki Tmaki, Te kitai Waiohua,
Ngti Te Ata Waiohua, Te Ahiwaru

To this end we have held initial sessions with representatives from six of the 11 mana whenua iwi
and hap with registered interests in the Manukau area on the project. Discussions and input have
been via our monthly forum, a site tour on 24 February 2016 and through individual meetings. Early
conversations have identified the high-level issues below.

A priority for Panuku is the ability to maintain positive momentum and to demonstrate quick wins.
Engaging hearts and minds will be vital to achieving this. Establishing understanding, trust and
credibility with people will help us proactively mitigate negative sentiments, which can often lead to
relitigation of proposals and a delay in progress.

Mana Whenua: A close partnership between Panuku and Mori is a critical part of the overall
stakeholder relationship strategy. There are 19 mana whenua iwi and hap with registered interests in
Tmaki Makaurau. Panuku recognises that through our collaborative partnership approach, Mori can
contribute to the successful exercise of the Panuku mandate in four key areas:

Central Government: While existing relationships are strong, we still need to ensure more cohesive
coordination with central Government across the wider Council family.

1. Working towards shared strategic outcomes.

Marutahu Ngti Paoa, Ngti Whanaunga, Ngti Maru, Ngti Tamater

Waikato Waikato-Tainui.

2. Enabling commercial investment, including partnership in commercial and housing opportunities.

IWI SETTLEMENT LAND INTEREST

HIGH-LEVEL ISSUES

Local Boards: Panuku is committed to developing collaborative partnerships with local boards. We
will develop a framework for working with local boards in Transform and Unlock locations. A tailored
approach to engaging at the local level is essential to developing a genuinely effective working
relationship with these essential partners.

3. Contribution to the urban fabric through recognition of Mori cultural footprint in design, respect
for the environment, and broader social outcomes.

Waiohua tribes indicate primary interest in this area, with Te kitai Waiohua, Ngti Tamaoho and
Ngti Te Ata yet to complete treaty settlement. All unassigned Crown-owned land is of strong
interest as potential settlement land, particularly the DHB site.

Strong interest in commercial opportunities that may arise through redevelopment, with particular
interest in Crown-owned sites. This is due to incumbent settlement agreements, potential Right of
First Refusal opportunities and in respect of treaty settlement agreements still in negotiation.

We will work with the local boards and the Councils Local Board Services to flesh out this framework
in the Form Relationships phase of our relationship cycle. The Engagement team alone will not
design the shape of this working relationship; it will be done in tandem with the Place Shaping and
Development directorates input, so as not to overcommit or misalign our respective objectives.

As the Panuku work programme develops in each focus area, we will extend into committed collaborative
engagement and relationships with mataawaka, urban Mori and the broader Mori population.

725 Great South Road, Manukau Central, is a land-banked, Crown-owned site bordering 20
Barrowcliffe Place. It is likely to be part of Ngti Tamaoho settlement and may be transferred ahead
of final settlement. Accordingly, there is strong interest from Ngti Tamaoho in Panuku precinct
planning.

Critical importance of collaborative work enabling kaitiakitanga roles and responsibilities towards
sustainable management of land and water. This includes the importance of green space and
connectivity with built environment, spaces designed for people and living.

4. G
uiding the nature of our working practice when we embed Mori values in our business at a
strategic and operational level.

Ngi Tai Ki Tmaki has two-year deferred selection rights through settlement over acquisition with
lease-back to the Crown of the Manukau Area Community Probation Centre. They are strongly
interested in ongoing conversations around the potential to acquire neighbouring site Lot 17
Manukau Station Road, also known as 50 Manukau Station Road, which they might develop in the
future.
The project area falls within Tamaki Collective Right of First Refusal zone; all accordingly interested
in any Crown plans to surplus sites that do not fall within other mana whenua iwi or hap specific
settlement agreements.

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The positive impact of improved environmental functioning of the area on the health of the
community and the feel of the place.
The importance of the Puhinui Stream as life force and life line, requiring a high level of care to
renew (commentary from Ngti Tamaoho).
Absence of cultural narratives, a need to bring cultural narratives into focus and into living presence
of the space.
Te kitai Waiohua highlight that the name of Manukau Central, which was previously known as
Wiri, was amended to Manukau. From their perspective the correct name for the area is Wiri.

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FUNDING

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11.0 FUNDING
Transform Manukau will require significant funding for both operational and capital works.
Estimates at this early pre-Framework Planning stage indicate we need about $70 million
worth of public good investment projects to realise the necessary anchor, exemplar and
catalytic initiatives.
Some of these public investments will be in streetscape upgrades, greenways, stream restorations
and place activation, while other initiatives will focus on better integration between current projects
and work streams in the area. For example, the Kotuku House refurbishment could be optimised and
enhanced from being solely a building refit by considering other integration options.
The table below gives an indicative list of potential public good projects, before Framework Planning.

Public good projects, pre-Framework Planning

PROJECT

City street, tree planting, widened footpaths, street furniture, tree planting, widened footpaths, street furniture

$3m

Osterley Way

City main street (retail/hospitality), wide footpaths, furniture, raised tables/intersections, indented car parks, street trees

$5m

Barrowcliffe Place Extension

Wide footpaths, rain gardens, some street furniture, indented car parks, street trees visual/design connection with Osterley Way

$3m

Amersham Way

City main street (retail/hospitality), wide footpaths, street furniture, raised tables/intersections, indented car parks, street trees

$4m

Manukau Station Road

Street tree planting, intersection improvements, pedestrian crossings, speed change

$5m

Cavendish Drive

PANUKU DEVELOPMENT AUCKLAND

Street tree planting, intersection improvements, pedestrian crossings, speed change

Boulevard enhancement

DESCRIPTION

INDICATIVE COST

Great South Road

Boulevard enhancement

$3m

Lambie Drive

Boulevard enhancement

$3m

East-West Over SH1

To Pacific Events Centre

$6m

Manukau Plaza and Lanes Reshape

Minor tweaks to plaza, laneway upgrade

$2m

Putney Plaza Upgrade

Minor enhancements and expansion of space

$1m

Karoro Court Plaza Creation

Transformation of laneway part of Manukau Plaza

$3m

New Hayman Park Contribution

Redevelopment of water/ponds, paths, bridges, playground

$10m

Restored Puhinui Stream Contribution

Riparian planting, stormwater control, paths, feature tree planting, street furniture, bridges, integrated art

$8m

New Greenways and Links to Auckland Botanic Gardens

Physical enhancements related to Puhinui, structures, signage, interaction, safety, activation

$4m

Public Art

Various, incorporating interventions and structures

$2m

ALL PUBLIC GOOD INVESTMENT

TOTAL INDICATIVE COST

$70m

INDICATIVE COST

Putney Way

Ronwood Avenue

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DESCRIPTION

PROJECT

$5m

$3m

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The proposed funding strategy to deliver on these public works recognises that current long-term plan
(LTP) budgets do not include funding for capital or operating expenditure for any Transform locations.
It is proposed that Transform Manukau (and Onehunga) expenditure is funded by reinvesting the
proceeds from disposed properties in each of these locations.
Panuku will start framework, design, engagement and implementation planning, along with early
place-making, which will require $1.9 million to complete. These internal and external costs will not be
recoverable against specific sites.
FUNDING STRATEGY
The scale of regeneration envisaged for Transform Manukau cannot be achieved within current
budgets, so funding for the project will require access to various funding sources:
The reinvested funds from sale proceeds for operational expenditure associated with preparing
the HLPP and undertaking the subsequent engagement plan, Framework Plan and development
realisation approach.
The use and reprioritisation of existing Council budgets towards delivering the key strategies and goals.
The release of funds from sales proceeds, under the proposal to reinvest such funds, to enable the
delivery of public good projects to help deliver agreed HLPP outcomes.
Possible access to funds arising from a partnership approach with Crown entities.
There are several possible supplementary funding options available to Panuku for operational and
capital expenditure. These include Council LTP funds, Panuku development and strategic development
funds, local board discretionary funds, Auckland Transport capital funds and the Local Residential
Growth Fund.
We will investigate all of these to assist in the funding strategy, which will be developed following
approval of the HLPP.

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PHASING

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12.0 PHASING
The primary reason for an indicative approach to staging the
Transform Manukau project is that, given the intended scale
and rapid delivery, it is important to cluster projects and focus
on single areas before extending resources to other parts.

CA
R

TH

RE

NDA

RD

Goal 2 of Transform Manukau is: A strong, permanent residential population which lives, learns, plays
and works within the centre.

RD

SPORTS
BOWL

TE

UI R

IN
UH

And one of the key initiatives under the second key strategic move is to Start with the Heart and
develop along the Davies Avenue amenity axis.

IR
NG

IRIR

The central area is the most visible part of the transformation area, with the Manukau skyline highly
visible from the airport flight path and motorway network. The centre is also a retail destination for
more than eight million people a year.

RONWOOD

ET

AVE

LD

IE
STF

E
AV

N
RO

OD
WO

WE

NK

PLU

Start with the Heart reflects the importance and urgency of transformation within the central area,
particularly focused on creating a heart. Pursuing the centre first will also leverage the recent and
planned transport and land-use infrastructure investment in the area.

ISH D

ND
CAVE

The Sports Bowl is the only part of the project area to sit east of the motorway. Its potential could
be investigated and realised independently at any time during the next 25 years. Panuku would
prefer development during the medium term, as it would enhance activity for Manukau and help
change perception.

CENTRAL HEART

Within the 84ha centre (too large to develop in a single stage), we recommend a series of short-term
projects. Seven sites clustered along the Davies Avenue axis are either cleared for sale or likely to be
released. Development of this area will contribute strongly to transforming Manukau and changing
poor market perceptions.

OAD
NR
TI O
STA
U
RAINBOWS
KA
MANU
END

BARROWCLIFFE

WERO

RN

INVERELL HOSKEN

RD

B
HO

SHA

ILL

Y
WA

R
TO
MO

O
ATI
I ST

WIR

RD

HE

TH

UT

SO

ES
UC
DR

D
NR

Short Term (0-5 years)

SO

GR E AT

Y
MOTORWA
STERN
H-WE
SOUT

Medium Term (5+ years)

RY

The central area has the highest concentration of Council-controlled property and the area south of
SH20 has the highest concentration of Crown-controlled property

KEY

BOU

NR

A
AG

RU

In recommending we start with the approach outlined in the figure pictured right, we considered the following:

The northern area between the centre and Puhinui Road has little leverage from either the Council
or Crown entities, making it less important for staging

SHORT-TERM START WITH THE HEART

Indicative staging approach

E
AV

RATAVINES

Long Term (5-25 years)

RS

KER

RD

SUPERCLINIC
D

SR

AM

OR

ETY

G
DAL
DR

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BRO

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CRES
SILKKIM

LAMB

Short-term development Davies Avenue axis

IE DR

DR
DISH

EN
CAV

KEY
Development Sites

ERN
UTH
SO

AD
RO

PLAZA
PARK

EY
UTN

This axis presents an early opportunity to develop more than 10ha of Council-owned property,
complemented by 10ha of Hayman Park as amenity. It does not preclude any urban planning outcomes
during Framework Planning.

We need to transfer the energy and effort of the transformation across SH20 and south through
Barrowcliffe and beyond. It is essential to reconnect the centre to the Vector Wero Whitewater Park,
the Pacific Events Centre and the emerging residential area of the Special Housing Area (SHA).

Panuku believes we should start the development process for the Council properties along the Davies
Avenue axis. Development can start on any of the sites in no particular order. The properties are located
along a single, clear and legible roading corridor, which can be a potential show street of development.

These developments happening in parallel are an opportunity to make a landmark and create a
connection via the Puhinui corridor, enhanced as a safe recreation link through redeveloped Crown land
to Auckland Botanic Gardens. Not only will the redevelopment of the Housing New Zealand communities
(Trevor Hosken Drive, Rata Vine Drive and Inverell Avenue) be well placed to leverage the transformation
of the centre, but the centre will importantly have a new and intensified residential catchment.

The show street is well positioned to leverage off the upgraded Davies Avenue, the park amenity,
planned playground and views to the west, views to the Manukau Harbour from above the seventh
floor and the two-minute walk to the new train station and planned bus terminal.
From north to south, the sites are:

8 Davies Avenue 2500sqm surface car park next to 2 Davies Avenue

BUS

OAD

NR

IO
TAT
US
UKA

MA

Davies Start

BARROWCLIFFE, WERO AND THE SHA

2 Davies Avenue seven-level Ronwood car park, with about 1700sqm surface area designed to be
built with apartments and retail sleeved around the outside to hide the car parks

WAY

TRAIN

E-W Axis

Y
WA

UT

AY
W

ER

AM

SO

Y
WA

T
EA

M
SHA

GR

N
LEYTO

RO

TOR
MO

VE
DA

OO
NW

N-S Axis

DAVIES AVENUE AXIS

14 Davies Avenue surface car park of more than 10,000sqm, has several options
Hayman Park developing this axis provides an opportunity to progress the park upgrades and
advocate for Te Papa Manukau to confirm its location and timing
Sections 1 and 6 Manukau Station Road 1.8ha vacant, cleared for sale and ready for development

ORWAY
SOUTH-WESTERN MOT

31-33 Manukau Station Road (lot 59) 7000sqm of residual land from the bus station, used for
car parking and cleared for sale. We recommend progressing the Davies Avenue corner of this long
east-west corridor as a first stage
50 Manukau Station Road just under 10,000sqm of vacant land, cleared for sale
20 Barrowcliffe Place (stage 1) 5.1ha of vacant land next to SH20 and Puhinui Stream, cleared for
sale. The Te Araroa national trail passes through this site into the centre.

NR

IO
TAT
IS

WI

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MEDIUM-TERM WESTFIELD, PUHINUI CORRIDOR,

SUPER CLINIC

LONG-TERM RAINBOWS END, RONWOOD

Framework Planning and collaboration with the Crown entities will continue throughout 2016 and
beyond, so it is reasonable to assume that physical works and development realisation will only occur
on Crown properties from 2020.

The expiry of the Rainbows End lease in 2034 is a critical point for understanding the factors that will
influence the Westfield site and the approach to Rainbows End. We will need to decide whether to
allow the fun park to stay or redevelop the site for other uses.

The extent and nature of the changes in the transformations early stages will guide outcomes for
the Westfield shopping centre and its surrounding car park areas. There is potential for a range of
interventions, uses and activities to truly transform the centre of Manukau, which has the shopping
centre at its core.

Panuku believes Rainbows End should become a celebrated, enhanced and expanded visitor
destination, adjusted to the entertainment needs of the time. The property could join with 2 Clist
Crescent to make a single site, extending the theme park to meet Manukau Station Road and provide
an iconic entry to Manukau Central. Meanwhile, from now until 2034, this property is essentially a
long-term land bank.

Advocating for Te Papa Manukau would provide an additional catalytic project over the medium term
to improve the centres perception. Place activation and management will ensure a regular events
calendar and activities. Beyond this period, working with Westfield is critical to the centres overall
transformation.
In parallel, development will continue south over Kerrs Road onto the Super Clinic site and into the
Rata Vine Drive community. The factors influencing market economics will be more compelling, with
housing stock aged 30-plus and the preceding development stages adding land value. This will be a
significant programme of work to unlock.

In the area covering Ronwood Avenue to the Cavendish Drive blocks, Ronwood Avenue properties will
be well prepared for regeneration in accordance with the Metropolitan Centre zone.
Farther out on the development horizon, there is an opportunity to futureproof the area for potential
light rail transit after 2040, from the airport through Manukau to Botany.

The Puhinui Stream will also be a key environmental project over the medium term.

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12.1 TIMING
As well as the mandate as lead Council agency for Transform
Manukau, we gained approval from the Panuku Board and Auckland
Development Committee to take the next steps.

TRANSFORM PROJECT PHASE

TASKS

Framework Plan: Panuku Board, Auckland

Development Committee and local board workshops

Progress and prepare the Manukau

Framework Plan document
components for review and input

Develop a Manukau Framework Plan that will assess and prioritise projects and initiatives in the
public realm and, in partnership with the private sector, development sites.
Develop an implementation plan that will outline prioritised development initiatives in greater detail
and will inform the go to market document.
Develop an engagement and communications plan that will outline the process for engaging with
the community and key stakeholders throughout the programme.
Dispose of sites that are either surplus to requirements or can be developed, in partnership, by others.

ESTIMATED
TIMING

Approvals programme
APPROVAL

AUTHORITY

DATE

HLPP report and recommendations

Panuku Board

30 March 2016
(Completed)

HLPP report and recommendations

Auckland Development
Committee

14 April 2016
(Completed)

Completion and adoption of Framework Plan

Panuku Board

July/August 2016

Completion of Implementation Plan

Panuku

July/August 2016

Completion of Engagement and Communication Plan

Panuku

July/August 2016

Engagement with Crown

Panuku/Crown

Ongoing through 2016

May 2016

Framework Plan: Final draft for approvals

Complete full suite of information,

text and diagrams to final draft stage

July 2016

Engagement Plan: Monthly project update

meetings with the tara-Papatoetoe and
Manurewa local boards

Meetings, workshops,
communications

From April and

ongoing

Engagement Plan: Engagement terms of reference

agreed with the local boards

Meeting

May-June (TBC)

Reinvest the proceeds of any asset sales into the Manukau transformation.

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Engagement Plan: Communications and Engagement

Plan developed for the execution phase

Prepare text and image documents

May onwards

Engagement Plan: Panuku Board approval of

Framework Plan

Finalise documents

July 2016

Implementation Plan: Programme development

Execution process

September 2016

Implementation Plan: Project feasibilities/costings

Site by site

April 2017

Implementation Plan: Project go to market

documents

Includes reference designs, guiding

documents and investment
memorandum

June / July 2017

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CONTACTS
PROJECT MANAGER
Richard Davison
ENGAGEMENT MANAGER
Toni Giacon
PANUKU DEVELOPMENT AUCKLAND
Level 2, Pier 21 Building, 11 Westhaven Drive, Freemans Bay.
PO Box 90343, Victoria Street West, Auckland 1142, New Zealand.
T: +64 9 336 8820
W: www.panuku.co.nz
facebook.com/DevelopmentAKL
IN PARTNERSHIP WITH:

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