Te Pātukurea | Draft Spatial Plan for Kerikeri – Waipapa

Te papa whenua e takoto nei ka tarehua koe.

E mihi ana ki nga tangata e tangi ana ki te papaptuawhenua e takoto nei!

Ka rohe i peka

Ka rohe i ao

Ko rongo i turia ki te matahau o Tu

Tu te winiwini

Tu te wanawana

Tu ka whakaputaina ki te whei ao  ki te ao marama.

Tihei Mauri Ora!

The land that lies here is sacred. We acknowledge the people who mourn for this land that lies before us!

The regions that were visited, The regions that are known, May peace be spread upon the breath of Tū (the god of war).

Tū, the awe-inspiring, Tū, the fearsome, Tū, who brings forth life into the world of light.

Behold, the breath of life!

Kia ora koutou,

He honore nui tēnei ki au ki te whakatakoto i te mahere mokowā hukihuki mō Kerikeri – Waipapa, Te Pātukurea, e whakaatu ana i ngā mea e tūmanakotia ana mō te anamata o tēnei hapori ngākau hihiko, nui hoki te tupu. He hua tēnei mahere i puta mai i te mahi tahi me ō mātou toronga, te Hapū Rōpū Governance Group, ngā rōpū whaipānga, me te hapori whānui, i mahi ngātahi ki te waihanga i tētahi huarahi anga mua, kia toitū mārika ai tōna whanaketanga i roto ngā tau 30 e tū mai nei.

I a Kerikeri me Waipapa e whanake tonu ana, hei pokapū ohaoha, ahurea anō hoki, ko te wero nui kia taurite ai tōna tupu me te mau hoki ki te motuhaketanga o tēnei takiwā. Kei Te Pātukurea te oranga, mā te whakatakoto i tētahi huarahi e mārama ai te whanake, e noho haumaru ai tō tātou taiao, e pakari ai ngā tūāhanga katoa, ā, e ora tonu ai tō tātou hapori.

Ko tēnei tuhinga hukihuki te hua o ngā whakawhitinga kōrero, te tātari me te whakamahere i whārikihia whānuitia. Heoi anō, ehara tēnei i te kupu whakamutunga— he pōwhiri kē. Me whai wāhi mai tō reo e pakari ai te iho o tēnei mahere, e whakaata atu ai ko ngā wawata me ngā hiahia o te iwi whānui. He mea hirahira tō urupare i a tātou e koke whakamua ana ki te whakatau i Te Pātukurea.

Ka nui rā te mihi ki ngā tāngata katoa kua whai wāhi mai ki tēnei mahere, mai i tōna oro tīmatanga tae rā anō ki tēnei wā pū. Ko taku tono kia uru mai koutou ki te wāhanga whakawhiti kōrero whakamutunga nei, kia āwhina i a mātou ki te waihanga i Te Pātukurea hei taonga tuku iho mā ngā uri whakatupu.

Kia ora koutou,

It is my privilege to present the draft spatial plan for Kerikeri – Waipapa, Te Pātukurea, which reflects our shared vision for the future of this vibrant and growing community. This plan is the result of thoughtful collaboration with our partners, the Hapū Ropū Governance Group, stakeholders, and the wider community, who have all worked together to shape a blueprint for sustainable growth over the next 30 years.

As Kerikeri and Waipapa continue to thrive as economic and cultural hubs, we face the challenge of balancing urban change with the preservation of what makes this area special. Te Pātukurea addresses this challenge by providing a clear direction for where and how we grow, ensuring our environment is protected, our infrastructure is resilient, and our community thrives.

This draft represents the culmination of extensive engagement, analysis, and planning. However, it is not the final word—it is an invitation. We need your voice to refine this plan, ensuring it reflects our collective aspirations and priorities. Your feedback will be vital as we look to finalise Te Pātukurea.

Thank you to everyone who has contributed to this plan so far. I encourage you to engage in this final consultation phase and help us make Te Pātukurea a lasting legacy for future generations.

Ngā mihi nui,

Moko Tepania

Mayor, Far North District Council

A spatial plan is a non-statutory document that sets out how Council will manage growth by identifying areas appropriate for housing, businesses and industry, and serves as a blueprint for future planning and investment.  We recently consulted on six potential growth scenarios for Kerikeri and Waipapa. Feedback from the community, guidance from subject matter experts, infrastructure cost analysis, and cultural analysis from the Hapū Rōpū Governance Group have all shaped our thinking.

Based on an estimated growth in population to over 25,000 by 2054, Council recognises the need to act and plan now. Te Pātukurea outlines how we will respond to urban change pressures, ensuring future development supports the wellbeing of our people, local economy, and environment, while reflecting our cultural values.

Council has decided to seek feedback on Te Pātukurea prior to considering formal adoption of the plan. The current consultation is being conducted through a  special consultative procedure  (SCP), in accordance with the Local Government Act 2002, which includes both a formal consultation period and the hearing of oral submissions by Council.

Following the SCP, Council proposes to consider the formal adoption of Te Pātukurea in June 2025.

The options available to Council include:

1. that council adopt Te Pātukurea as the spatial plan for Kerikeri-Waipapa to manage urban change, or
2. that council adopt Te Pātukurea as the spatial plan for Kerikeri-Waipapa with amendments, or
3. that council maintain status quo, and does not adopt a spatial plan for Kerikeri-Waipapa.

Te Pātukurea (the spatial plan), if adopted, will set out:

• the objectives that the spatial plan will achieve,
• the location and extent of residential, industrial and commercial urban change in Kerikeri and Waipapa,
• the infrastructure necessary to facilitate urban change,
• the actions that council will take to deliver Te Pātukurea, and
• how we will monitor and evaluate our progress against the spatial plan

It is important to note that the projects and initiatives identified in this plan are unfunded at this stage and will be implemented subject to Council review and approval of funding.

Feedback and recommendations from this consultation will guide any necessary changes to the draft spatial plan before Council considers formal adoption in June 2025. Here are the key dates to be aware of:

• Consultation and submission period runs from 20 March to 22 April 2025.  Written submissions must be submitted by 5pm 22 April 2025. People are also invited to make verbal submission if they wish to.
• Verbal submissions heard:  Council will hear verbal submissions on 1 and 2 May 2025

Here is how you can find out more:

• Online:  https://arcg.is/0X5yu01 
• Email us:   kwsp@fndc.govt.nz  
• In person: Fill out a feedback form at any FNDC service centre or library (our friendly customer service team can print the form for you)
• Have a chat with us at a pop-up event – view the schedule on our website:  https://www.fndc.govt.nz/Whats-New/current-projects/Te-Patukurea-Kerikeri-Waipapa-Spatial-Plan 
• By mail: Far North District Council, Private Bag 752, Kaikohe 0440, ATTN: Spatial Plan
• By phone: If you have any questions, feel free to call us on 0800 920 029

The Hapū Rōpū is made up of hapū that have tatai whakapapa links to the whenua, awa and taiao of the Te Pātukurea area of Kerikeri and Waipapa. Each hapū is independent and holds their own mana whenua rights and responsibilities as Ahi Kaa to the areas where they hold those rights.

In accordance with the recommendations of the 2023 Cultural Impact Assessment, the development of this spatial plan, Te Pātukurea, has considered the area’s specific archaeology, history, taonga species, mahinga kai, awa and moana sensitivities when assessing potential growth options. It is important to hapū that efforts are made to buffer special ecosystems from the effects of unplanned development and urban sprawl.

The history of land alienation and impacts on cultural sites from urban change and land development provides important context to the oral histories of hapū today, and points to the importance of the inclusion of hapū in decision making going forward.

The Hapū Rōpū acknowledge the value of long-term planning and its potential to consciously and purposefully mitigate adverse effects on the culture and landscape of this rohe. To achieve this, it is crucial that hapū continue to be involved as mana whenua for the advancement of mutual areas of concern.

The Hapū Rōpū have been integrated in infrastructure planning and the setting of strategic direction , particularly in relation to proposals that supply significant development capacity. In determining a preferred growth scenario, potential options were assessed against the core values of atuatanga, whakapapa, kaitiakitanga, manaakitanga, and rangatiratanga.

By using these core values, Te Pātukurea has been shaped to:

• Protect and enhance wāhi tapu and sites of cultural significance.
• Improve access to mahinga kai and cultural materials.
• Support biodiversity and protect taonga species.
• Maintain and improve water quality, particularly in Te Awa o Ngā Rangatira and the coastal waters.
• Promote affordable housing options for tangata whenua and the community.
• Promote connectivity to te taiaio.
• Incorporate Te Reo Māori and cultural narratives in development design.
• Adapt to climate change impacts while respecting cultural values.

As a result of this process, the Hapū Rōpū is proud to have shaped Te Pātukurea and to endorse the following draft spatial plan.

The actions that will be required to achieve the objectives set out for the plan are contained in the draft Implementation plan. Key elements of the plan include:

• Directing growth to within and immediately adjacent to the existing built-up environments of Kerikeri and Waipapa and away from rural areas.
• Establishing walkable catchments to support a compact and sustainable urban form.
• Providing for 20-40% of residential growth through intensification, enabling medium-density development within established centres in Kerikeri and Waipapa, where appropriate. This approach supports greater housing choice and affordability by allowing for duplexes, terraces, and walk-up apartments.
• Enabling commercial and industrial growth in Kerikeri which supports its role as the key economic hub for the district.
• Enabling appropriate commercial and industrial growth in Waipapa in a way that does not reduce the economic vitality of Kerikeri.
• Identifying new transport connections, local green spaces, and recreational and community facilities, along with enhancements to ‘blue-green’ networks, to support the health and wellbeing of Te Awa o ngā Rangatira and associated wai (water) and repo (swamp/marsh), while also enhancing biodiversity.
• Enabling town-centre growth and intensification of commercial development in both Kerikeri and Waipapa, including promoting a more functional layout for large-format retail within the two townships.
• Appropriately accounting for additional land necessary for industrial uses and infrastructure.

Urban change isn’t just about buildings, roads, or infrastructure—it’s about people and how they live, work, and connect within their community. To bring this to life, we’ve created personas, representing the type of people likely to call Kerikeri-Waipapa home over the next thirty-plus years.

These personas help us imagine what daily life might feel like once the vision of Te Pātukurea has been realised. But just like the community itself, these personas have evolved. In earlier reports, you might have met different characters navigating life in Kerikeri-Waipapa. However, as the community grows and changes, so do the people who live here. Some have moved on, new faces have arrived, and familiar stories have taken on new shapes.

These shifts aren’t just about updating names or faces—they reflect the dynamic nature of Kerikeri-Waipapa. People’s needs and lifestyles evolve, families grow, and newcomers bring fresh perspectives. By updating our personas, we ensure that our spatial plan remains relevant, inclusive, and grounded in the real-life experiences of our community.

The following personas are inspired by the types of people likely to shape Kerikeri-Waipapa’s future. Through their stories, we invite you to imagine how life here could look and feel as Te Pātukurea’s vision comes to life.

From late 2023 and throughout 2024, we consulted and engaged with our partners, the Hapu Ropu Governance Group, stakeholders and the wider community, in the development of this draft spatial plan.

In late 2024, we asked the public to provide feedback on the Growth Scenarios Report, which included six scenarios we developed for Te Pātukurea. In developing these scenarios, we set out to achieve the objectives set out on page 9, and were guided by the following principles for growth.

We established a robust evidence base, then analysed this evidence to develop options that would cater to urban change. These initial options were workshopped with our Hapū Rōpū Governance Group, elected members, and key stakeholders and then further refined. These initial options were then subject to an infrastructure assessment, to understand the initial water, wastewater, stormwater and transport requirements and costs for each scenario shown in Figures 11 and 12.

Feedback was recorded through a survey, online mapping tool, in-person events, longform submissions, social media comments, and direct engagement with rangatahi (young people). In total, 771 pieces of feedback from the public were received. Most respondents showed support for the growth principles underpinning the scenarios and indicated support for greater choice in housing options. Safe and attractive neighbourhoods, vibrant and economically successful town centres, and access to community facilities, parks, and walking and cycling paths were identified as key priorities.

The process highlighted strong community support for Waipapa Focused Expansion (Scenario E), reflecting Waipapa’s role as a commercial and industrial hub. Feedback emphasised priorities such as affordable housing, resilient infrastructure, and preserving the unique identities of both Kerikeri and Waipapa.

A recurring theme was the desire to combine elements from multiple scenarios to benefit both areas, underscoring the need for a balanced and integrated approach to urban change. While Waipapa was strongly favoured as a focus for future urban change, the community expressed a clear desire to ensure that Kerikeri is not overlooked and retains its village feel and character. The community strongly supported these centres growing independently and developing their own unique identities rather than merging into a single identity.

The development of a preferred growth scenario involved a comprehensive evaluation process, combining community feedback, infrastructure cost analysis, subject matter expert analysis through a multi-criteria assessment (MCA), and the Hapū Rōpū’s cultural analysis. Each stage of the process allowed for different perspectives to be considered, ensuring a well-rounded approach to decision-making. This work was structured in phases, allowing technical analysis to progress while community engagement was underway.

Community feedback played a pivotal role in shaping the final recommendation.

The preferred scenario—a hybrid of Scenario D (Kerikeri South Focused Expansion) and Scenario E (Waipapa Focused Expansion)—was selected based on its ability to balance growth efficiently, strengthen key centres, and align with cultural and environmental priorities. This hybrid forms the foundation of Te Pātukurea, the draft spatial plan. Each scenario was assessed based on key factors, including infrastructure costs, resilience to natural hazards, transport efficiency, housing affordability, and cultural and environmental considerations.

The initial rankings are summarised below:

As part of the evaluation process, a workshop was held with the Hapū Rōpū after the consultation period had closed and the feedback was summarised. This workshop was held so that Hapū Rōpū could examine the scenarios from a broader perspective, taking into account factors other than cultural considerations. Following this discussion, Hapū Rōpū identified support for Scenarios D and E, acknowledging there is some overlap between Scenarios C and E (focus on Waipapa).

The combination of Scenarios D and E was chosen as the preferred growth approach because it provides a balanced and strategic framework for the future of Kerikeri-Waipapa. Scenario D supports Kerikeri’s role as a cultural and commercial centre, while Scenario E strengthens Waipapa as a key business and employment hub. This hybrid approach ensures that urban change is cost-effective, making use of existing infrastructure while accommodating future demand. It also reflects community and Hapū Rōpū priorities, with strong public support for growth in Waipapa and efficiently utilising existing infrastructure. Please refer to Growth Scenarios Evaluation Report for further details.

Since confirmation of the preferred hybrid scenario in December 2024, we have been working to complete the draft spatial plan.

With a hybrid scenario, the distribution of growth needed to be reconsidered, and the percentage distribution of residential, commercial, and industrial growth between Kerikeri and Waipapa redefined. We also needed to revisit our assumptions around infrastructure needs. Once this process was tested and completed, we began the process of spatially identifying the distribution of land use activities between Kerikeri and Waipapa.

To do this, we finalised our Planning and Urban Design Principles, refined the Wāhi Toitū (no go) and Wāhi Toiora (go carefully) areas, reviewed our economic assessments, confirmed our infrastructure needs and density assumptions, and defined walkable catchments. Some key metrics and assumptions are summarised below. Details of this process can be found in the Mapping Technical Report. The Planning and Urban Design Principles are set out in further below. Wāhi Toitū are our no-go areas and Wāhi Toiora are ‘proceed carefully areas’. These areas are a result of constraints mapping and Hapū Rōpū input, which identify areas where development is constrained. By mapping our constrained areas, we were able to identify those areas suited to further development. The constraints mapping was reviewed to identify data gaps, leading to the incorporation of additional factors such as slope and easements. Easements, including those for utilities, access, and drainage, can sometimes limit how land can be used and built upon. Using the constraints data, a map was created to highlight developable areas, providing a foundation for identifying potential future growth areas (see Figure 13). Areas that are darker green are more appropriate for development and growth, whereas areas in white are not.

Growth distribution between Kerikeri and Waipapa

When considering the distribution of residential, commercial, and industrial land uses between Kerikeri and Waipapa, the following assumptions were made, based on the evidence gathered:

a. Household growth will occur in the short and medium-term in areas that have access to existing infrastructure. For Te Pātukurea, this means that we will expect to see residential growth in the urban areas of Kerikeri ahead of household growth in Waipapa

b. The existing centre at Kerikeri is better placed for expansion of commercial land use

c. There is some need for industrial land in Kerikeri, while the bulk of industrial growth is better placed in Waipapa due to the proximity to the state highway network and existing industrial land use. It has been assumed that future industrial development in the area will be serviced

In respect to residential distribution, the following revised growth distribution percentages were confirmed for the hybrid scenario:

Historically, rural areas saw large portion of residential growth (up to 50%). Reducing the residential distribution on rural land to 5% reflects the ambitious and aspirational nature of the plan, and the drive to achieve more affordable housing types within the study area. It also reflects the outcomes of the community consultation and evaluation process.

In respect to the distribution of commercial and industrial growth, the following assumptions were confirmed:

Since the initial growth scenario plans didn’t separate low- and medium-density areas, a study was done to figure out the right density levels. Density helps us understand how many homes can fit in existing urban areas and how much new land is needed.

The study found that for medium-density development (either by intensifying existing areas or in new areas), we need about 40-48 homes per hectare. This is based on enabling different types of housing, with typical lot sizes between 145-175 square metres, including walkup apartments, terraces, and duplexes. including walk-up apartments, terraces, and duplexes.

A key tenet of this draft spatial plan is that urban change is accommodated in an appropriate way and that it avoids excessive sprawl, by considered the most suitable locations for people and businesses, and making the most use of our existing infrastructure. This means that much of the forthcoming urban change will occur within our existing urban environment. It’s important to note that it won’t all happen at once – change will be staged over 30 years.

Done well, intensification can enhance community vibrancy, improve safety, accessibility and connectivity, and provide greater housing choice and housing affordability, all while preserving our towns’ character, our natural environment and our highly productive soils. To ensure it is done well, we have established six key Planning and Urban Design principles, which will form the basis for an Urban Design Framework that will guide the delivery of development ‘on-the-ground’.

Linking Community Challenges to Plan Objectives and Urban Design Principles

Te Patūkurea addresses key challenges identified by our community. Guided by cultural values, the plan sets strategic objectives that informed the development of our urban design principles. The diagram to the left illustrates the connection between the key challenges identified by our community and how they shaped the plan’s objectives and urban design principles, ensuring a cohesive and community-focused approach to growth.

This draft implementation plan sets out the high-level actions that Council will need to take to deliver Te Pātukurea. Whilst the spatial plan is a 30-year strategy, the implementation plan looks at the actions required in the short, medium and long-term.

The actions in this implementation plan and associated timings are indicative and based on our current understanding.

The implementation plan will be reviewed regularly, and require input from stakeholders, central government agencies, the community as well as developers. In this context, the detail of the actions will be further refined to align with council work programmes (such as the Long-term Plan).

Staging of urban change and investment

The plan directs 95% of future growth within and around the existing built-up areas of Kerikeri and Waipapa. This reflects the plan’s ambitious goal to promote urban change, enabling more affordable housing. This in turn will require a review of the rural framework (in the district plan) for the study area, which may result in future plan changes.

The timing and scale of investment will vary over the life of the spatial plan, timed to match the pace and scale of urban change. It is expected that urban change will occur in the short and medium-term in areas that have access to existing infrastructure. For Te Pātukurea, this means that we may expect to see residential and commercial growth in the urban areas of Kerikeri, and industrial growth in urban Waipapa, within ten years. Intensification in our existing urban environments is a priority. These areas already offer community amenities and services which make intensification / urban living more attractive. Figure 17 below illustrates the staging of urban change, highlighting areas where growth is expected to occur in the short, medium, and long term.

Monitoring and Evaluation

The spatial plan is a long-term strategic document that cannot be delivered all at once and will not result in immediate change. To achieve the outcomes and to deliver housing, we need to take actions over a long period of time. Ongoing monitoring and evaluation of development will assist evaluating how our urban areas are growing and whether there is a need to bring forward, push back, or re-align the zoning and infrastructure servicing of land in response to demand.

Monitoring, review and responding to change as necessary is essential to the effectiveness of the plan. In this context, we propose to:

• Establish monitoring and evaluation responsibilities for Council

• Undertake monitoring required of Tier 3 Authorities as per the NPS-UD

• Annual updates and subsequent Council endorsement of the Implementation plan.

Integration with the current hearings process

Spatial plans guide a district plan. Spatial plans guide future zoning changes and show where new infrastructure will be needed as more land is required for businesses and housing over the long term.

We notified our PDP in 2022, and hearings on submissions started in May 2024 and will conclude in November 2025. Where possible the PDP will incorporate outcomes from the spatial plan. These outcomes may include re-zoning some business and residential land within the area subject to the draft spatial plan.

Some outcomes sought in the spatial plan will need to be incorporated through future district plan changes. These may include additional re-zoning (which can include “up” or “down” zoning) and changes to district plan provisions in the short to medium term, as well as future district plan changes to implement structure plans in the longer term.

Urban Design Framework and Structure Plans

The Planning and Urban Design Principles that are outlined in this draft spatial plan will be further refined in an Urban Design Framework. This Framework will detail how these principles will be actioned on the ground and will include guidelines for the design and development of new urban areas as well as existing ones. The Framework focuses on creating high-quality, sustainable, and liveable environments by addressing aspects like building design, public spaces, streetscapes, and overall urban form.

Whilst a spatial plan provides a broad, strategic vision to manage growth and change, a structure plan offers detailed guidance for the development of specific areas. They included detailed maps and plans showing the layout of roads, open spaces, residential and commercial areas, and outline the staging and implementation of development.

The Implementation plan references structure plans for Kerikeri and Waipapa. These will be developed in accordance with the Urban Design Framework and will inform future plan changes.