1. Crossway Community Church History
2. Crossway Deputation to Shirley/Papanui Community Board (17 July 2013)
3. ‘Councillors back Shirley Community Site’ News Article (16 August 2013)
4. Shirley/Papanui Community Board Information Exchange (6 August 2014)
5. Christchurch City Council Elected Member Update (24 March 2015)
6. Shirley Community Facility Meeting Feedback (30 April 2015)
7. Shirley Community Facility Rebuild Staff Report (19 August 2015)
8. Shirley/Papanui Community Board Staff Report (6 July 2016)
9. Crossway Community Centre Submission Report (22 March 2016)
10. ‘Community centre in Shirley stalled’ News Article (19 July 2016)
11. Shirley Community Centre Feasibility Report and Business Case (8 August 2019)
The land at 10 Shirley Road is classified as reserve, vested in the Council by the Crown to be held “in trust for local purpose (site for a community centre)”.
“That means the land could not be used for any other purpose than a community centre.
It also appears the land could not simply sit ‘vacant’.”
9. Shirley Community Facility Rebuild – 10 Shirley Road (2015)
https://christchurch.infocouncil.biz/Open/2015/08/SPCB_19082015_AGN.PDF
1. Crossway Community Church History
“Crossway Community Church was formed through the amalgamation of the parishes of Shirley Methodist and St Columba Presbyterian Churches.
Shirley Methodist Church was founded in 1866 and St Columba Presbyterian in 1916, so both have a long history of worship and witness in the Shirley-Richmond area.”
https://crosswaychurch.org.nz/about-us/
2. Crossway Deputation to Shirley/Papanui Community Board (17 July 2013)
https://resources.ccc.govt.nz/files/TheCouncil/meetingsminutes/agendas/2013/July/ShirleyPapanui17July2013CONFIRMEDMINUTES.pdf
(Part A – Matters Requiring a Council Decision, 1. Deputations By Appointment, Page 1)
“Public–Private Partnership Proposal for Community Facility Shirley/Richmond Area
Jill Hawkey, Strategic Planning Coordinator, and the Reverend Joohong Kim, Minister of Crossway Community Church, attended to present a deputation regarding a proposal for a public-private partnership between the Christchurch City Council and the Methodist/Presbyterian Church to establish a new community facility for the Shirley/Richmond area.
BOARD CONSIDERATION
The Board considered the information provided to them by Jill Hawkey and agreed that a shared community facility in the Shirley/Richmond area is needed as there are groups currently requiring space to resume community activities.
Staff tabled correspondence from the Acting Chief Executive Officer to Jill Hawkey, which acknowledged that the proposal for a community facility had considerable appeal and should be presented to the Shirley/Papanui Community Board as the first stage in Council giving it consideration.
BOARD RECOMMENDATION
The Board supports in principle the proposal by Crossway Community Church to establish a public private partnership and recommends that the Council:
(a) Grant a long term lease for the former Shirley Community Centre site at 10 Shirley Road to Crossway Community Church.
(b) Note the Crossway Community Church (with the support of its parent bodies, the Methodist Church of New Zealand and the Presbyterian Church of Aotearoa New Zealand) proposes, through engagement with the local community and stakeholders, to design and build a new multipurpose community facility available for both the church and wider community.
(c) Note that the Church intends to fund the capital project and manage and operate the facility according to an operational plan agreed under the public-private partnership within available funding.
(d) Note the importance of the geotechnical investigation for the proposed site at 10 Shirley Road and requests that the Council undertake an urgent geotechnical investigation.
(e) Consider this proposal by Crossway Community Church.”
3. ‘Councillors back Shirley Community Site’ News Article (16 August 2013)
https://www.stuff.co.nz/the-press/news/9048840/Councillors-back-Shirley-community-site
“Christchurch City councillors are backing in principle a proposal by the Methodist Church to build a new community facility in Shirley that could also serve as their place of worship.
Reverend Joohong Kim, a minister of the Crossway Community Church, yesterday told councillors the quakes had left the Shirley/Richmond bereft of community facilities.
Kim said his church had settled its insurance claim and had funds available to invest in a new building. It wanted to spend that money on a new facility, preferably on the site of the old Shirley Community Centre in Shirley Rd, which could serve both its needs and the needs of the local community.
It was willing to pay for the cost of constructing the facility and the running of it, if the council was willing to grant a long-term lease on the land.
Shirley-Papanui Community Board chairman Chris Mene said the community board unanimously supported the Crossway Community Church’s proposal for a public/private partnership.
Deputy Mayor Ngaire Button said the Shirley community had huge needs and to a large extent they had suffered in silence over the past three years.
“There is just no community space there. I really hope you support this.”
But Cr Yani Johanson said he was concerned the proposal had not gone through proper council channels.*”
* see ‘Procurement Policy’, ‘How to tender for a contract’ & ‘Unsolicited proposals’
https://www.ccc.govt.nz/the-council/tenders-and-contracts/
4. Shirley/Papanui Community Board Information Exchange (6 August 2014)
https://resources.ccc.govt.nz/files/TheCouncil/meetingsminutes/agendas/2014/August/ShirleyPapanuiUNConfirmedMins6Aug14.pdf
(8. Elected Members’ Information Exchange, Page 4)
“The Board decided to request an update on the proposed Crossway Church development on the site of the former Shirley community centre and that all relevant updated information be communicated to all relevant parties.”
5. Christchurch City Council Elected Member Update (31 March 2015)
https://christchurch.infocouncil.biz/Open/2015/03/CHED_31032015_AGN.PDF
(Communities, Housing and Economic Development Committee, Page 32)
“Project: Shirley Community Centre. A meeting was held on 17/02/15 between CCC PM, representatives of church groups proposing to establish a facility on the site of old Community Centre, and the CCC Asset Owner.
At this meeting the church provided background on their work to date and the mechanics of their offering.
CCC PM is now gathering information internally to understand status from a property and community support point of view.
Feedback received as part of this will inform whether or not further stakeholder consultation is required.
The end output will be a recommendation report by the Asset Owner to the Community Board and Council regarding the Church Group’s offering.
An update is to be provided to the Community Board via a seminar sitting on 1 April, but it is highly unlikely that the recommendation report will be available at that time.”
6. Shirley Community Facility Meeting Feedback (12 June 2015)
https://christchurch.infocouncil.biz/Open/2015/08/SPCB_19082015_AGN.PDF
(Shirley Community Centre Feedback Table, Pages 30-32)
Letter to Meeting Attendees (30 April 2015) from John Filsell, Recreation and Sports Manager, Recreation and Sports Unit, Christchurch City Council.
“Thank you all for joining us at the community meeting on 30 April 2015 to discuss the Shirley Community Facility.
This was an opportunity for Council officers to listen to the views of the community on the Shirley Community Facility and a proposal from Crossways to build and operate a new facility on the site.
The points of interest presented at the meeting were recorded. I have summarised them and they are presented in the table below.
By far the most common message was the need to act and act soon. It was felt that it has been over four years since the quake and the need for a community facility has grown.
From here we intend to consider all the feedback received and refresh our understanding of all the other existing information. We will aim to get a thorough understanding of what Council and others are doing in neighbouring areas.
Using this information I report back to the Shirley Papanui Community Board identifying options and seeking a decision on how we move forward.”
7. Shirley Community Facility Rebuild Staff Report (19 August 2015)
https://christchurch.infocouncil.biz/Open/2015/08/SPCB_19082015_AGN.PDF
(Staff Report, Pages 17-28)
1.1 The purpose of this report is to seek approval to release a Request for Proposal (RFP) to the open market inviting proposals for the development and operation of a Community Centre or similar at 10 Shirley Road, the site of the former Shirley Community Centre.
1.2. This report follows a Council decision on 15 August 2013, and further consultation with the Community.
1.3. Specifically, at the meeting of the Council on 15 August 2013 it was resolved that Council:
Ask Staff to prepare a report on the proposal of Crossway Community Church to establish a public-private partnership, noting the request to grant a long term lease for the former Shirley Community Centre site at 10 Shirley Road to Crossway Community Church.
1.4. While this report discusses the proposal from the Crossway Community Church, as a result of community consultation staff consider it would be appropriate to provide an opportunity for all parties to present proposals on how any establishment of a Community Facility at 10 Shirley Road should occur.
Staff Recommendations
3.1. That the Shirley/ Papanui Community Board recommend to Council that it instruct Council Officers to prepare and release a Request for Proposal (RFP) to the open market inviting proposals for the development and operation of a Community Centre or similar at 10 Shirley Road.
4.2. The following reasonably practicable options have been considered:
– Option 1 (preferred option): Request For Proposal (RFP).
Under this option an RFP would be released to the open market asking respondents to put forward a proposal as to how best a Shirley Community Facility should be re-established at 10 Shirley Road.
The RFP document would signal an openness to a wholly third party funded and managed facility, a wholly Council funded (using $2.52m from Community Facilities Rebuild Tranche 1) and managed facility or any mixture of approaches.
– Option 2: Straight application of Tranche 1 funds.
Under this option no RFP would be released and Council staff would instead proceed with consultation to inform design of a wholly Council funded facility at 10 Shirley Road utilising the Tranche 1 allocation of $2.52m.
The operating model for the community facility would be determined separately.
– Option 3: Straight acceptance of Crossways proposal.
Under this option Council staff would receive delegation to directly progress a lease with Crossways Church who are proposing to fund and manage a replacement Community Facility at 10 Shirley Road.
– Option 4: Do not rebuild a replacement facility at 10 Shirley Road.
Under this option no replacement facility would be established on 10 Shirley Road. The $2.52m of funding allocated in Tranche 1 would either be used to establish a Shirley Facility on an alternate site or returned to the fund for allocation elsewhere as appropriate.
5.6. The Crossways Group first formally met with Christchurch City Council Staff on the 22nd of March 2013 regarding the possibility of leasing Council land to build a facility to replace churches lost in the earthquakes.
At that meeting Council staff outlined site information and requirements, identified key stakeholder groups that would need to be consulted, and recommended Crossways submits a proposal to the City Council.
5.7. On the 24th of April 2013 the Crossways Group met with representatives of the Delta Trust and Shirley Community Centre Society Incorporated. Crossways outlined their desire to seek a lease of the former Shirley Community Centre site, 10 Shirley Road, from Council to a group of interested organisations who would fund the erection of a building on the site to incorporate Church facilities, a hall, and meeting rooms etc. and this Centre could be managed by representatives from the involved organisations.
5.8. Following the meeting of 24 April 2013, the Shirley Community Centre Society Incorporated (SCCSI) sent a letter to the Crossways Group thanking them for the meeting, asking to be kept in contact regarding further developments, but advising that the SCCSI was not prepared to formally commit to the proposal at that point.
5.9. On the 17th of July 2013 the Crossways Group made a deputation to the Shirley/Papanui Community Board. In a letter dated 23rd of July 2013, setting out the agreement that the Board reached following the deputation, Crossways were advised that:
The board supports in principle the proposal by Crossway Community Church to establish a public-private partnership.
5.10. Following the Community Board’s agreement, the Crossways Group proposal was presented via deputation to the Council at the meeting of 15 August 2013.
At that meeting the motion was declared carried, that the Council:
a) Ask Staff to prepare a report on the proposal of Crossway Community Church to establish a public-private partnership, noting the request to grant a long term lease for the former Shirley Community Centre site at 10 Shirley Road to Crossway Community Church.
b) Note that the Crossway Community Church (with the support of its parent bodies, the Methodist Church of New Zealand and the Presbyterian Church of Aotearoa New Zealand) proposes, through engagement with the local community and stakeholders, to design and build a new multipurpose community facility available for both the church and wider community.
c) Note that the Church intends to fund the capital project and manage and operate the facility according to an operational plan agreed under the public-private partnership within available funding.
d) Note the importance of the geotechnical investigation for the proposed site at 10 Shirley Road.
5.11. Crossways held a “community consultation” meeting on November 21st 2013 inviting identified community stakeholders.
At this meeting the Crossways Group outlined their proposal and
sought feedback both on the general approach and also stakeholder’s requirements for a multipurpose facility.
5.12. The Crossways Group received a variety of feedback on their proposal at the meeting of 21 November 2013, both for and against.
5.13. After refining their proposal as a result of feedback to date, representatives of the Crossways Group again met with Council staff to discuss potential lease arrangements and ground improvements.
Council staff suggested that it would be helpful to have some initial concept plans to review and to provide reassurance that the proposed structure would be a genuine multipurpose facility rather than solely a place of worship with meeting rooms added.
5.14. At a meeting on 28 August 2014, the Council resolved to:
“33.1 Approve the Tranche 1 prioritised programme.
33.2 Approve funding as amended in total from the Facilities and Infrastructure Improvement – New Borrowing Allowance comprising:
$29,087,059 for Community Facilities and
$11,703,596 for Heritage Facilities
33.3 Apply proceeds of any insurance claim for these facilities to the Facilities and Infrastructure Improvement – New Borrowing Allowance.”
5.15 Within the Tranche 1 programme as approved, $2.52m was allocated to a new Shirley Community Centre.
5.16 Council staff held a community meeting on 30 April 2015 regarding Shirley Community Facilities.
This included a discussion regarding the Crossways proposal as well as a wider feedback discussion on community requirements for facility/ies in Shirley.
8. Shirley/Papanui Community Board Staff Report (6 July 2016)
https://christchurch.infocouncil.biz/Open/2016/07/SPCB_20160706_AGN_685_AT.PDF
(10. Shirley Community Facility – 10 Shirley Road, Pages 39-52)
1.1 The purpose of this report is for the Shirley/Papanui Community Board to receive the information contained within and to instruct staff on how to proceed regarding the reinstatement of a Combined Community Facility at 10 Shirley Road.
1.4 Subsequently at the Council meeting of 10 September 2015, it was resolved on the motion of Councillor Cotter, seconded by Councillor Jones, that the Council instruct Council Officers to prepare and release a Request for Proposal (RFP) to the open market inviting proposals for the development and operation of a Community Centre or similar at 10 Shirley Road.
9. Crossway Community Centre Submission Report (22 March 2016)
https://christchurch.infocouncil.biz/Open/2016/07/SPCB_20160706_AGN_685_AT.PDF
(Crossway Community Centre, Community Facility – 10 Shirley Road Submission Report 22/03/2016, Page 53-115)
1. Proposed Crossway Community Centre Site Plan, Preliminary Concept, Building Layout (Page 68 & 69)
2. Required Council Contribution (Page 71):
– Site Remediation
Council to fully fund cost of ground improvements required to construct the proposed building on the site.
Council to fund cost of capping the spring located on the site.
Council to fund on site stormwater attenuation and treatment if required as part of the consenting process.
– Council Grant towards Cost of Construction
– Ongoing Contribution
To assist with keeping room hire fees affordable for the community, Council is requested to meet the cost of ground rent, rates and water for the facility.
– Grounds
Because the site is a public park and significantly larger than the requirements of the community centre, it is requested Council continues to maintain the playground and grounds surrounding the building including removal of rubbish and emptying of public rubbish bins.
3. “There are no other space in the Shirley area at present which could be considered to be the ‘hub’ of the community providing affordable indoor and outdoor spaces for community groups and people to gather.” (Page 74)
4. 6.1 Cost Estimate (Page 81)
Quantity Surveyor’s Estimate
Construction of the Building
Siteworks, drainage, services connections
Furniture, fittings and equipment
Contingency and Escalation
Consents & Consultant Fees
TOTAL $4,670,000 (2016)
This estimate excludes ground improvements, capping well, stormwater attenuation and treatment as Crossway is requesting Council meet the cost of these items.
This Quantity Surveyor’s estimate is designed to give an initial indication of how much the building could be constructed for.
The building is yet to be designed in any detail.
10. ‘Community centre in Shirley stalled’ News Article (19 July 2016)
https://www.yumpu.com/en/document/read/59766419/norwest-news-july-19-2016
“The rebuild of the Shirley Community Centre has stalled after a private funding plan was rejected.
The Crossway Community Church proposed to the Shirley-Papanui Community Board that a collaboration between the church and the city council be used to fund and maintain the new centre.
The church would have invested $2.5m to the new centre and the city council $1.5m.
The board rejected the proposal with a 4-3 vote at a recent meeting.
Board chairman Mike Davidson said he was ‘uncomfortable’ with the level of investment needed by the city council to make it work with the church.
Cr Pauline Cotter also shared this sentiment, saying she was not happy with the terms of the agreement.
The plan now is to replicate some of the learnings the board had while getting the St Albans Community Centre off the ground.
‘It will probably start with a working party to find out what the community wants and needs. From there, things start to take off pretty quickly,’ Mr Davidson said.
He could not give a definitive time frame around when a working party would be formed, but the board is looking at its options to start sooner rather than later.”
(Front Page & Page 5)
11. Shirley Community Centre Feasibility Report and Business Case (8 August 2019)
https://www.10shirleyroad.org.nz/wp-content/uploads/2024/05/Shirley_Community_Centre_Feasibility_Report_and_Business_Case_August_2019.pdf
“On the 24 April 2013, the Crossways Group met with representatives of the Delta Trust and Shirley Community Centre Society Incorporated.
Crossways outlined their desire to seek a lease of the former Shirley Community Centre site from Council to a group of interested organisations who would fund the erection of a building on the site to incorporate Church facilities, a hall, and meeting rooms, etc. and that this Centre be managed by representatives from the involved organisations.
They followed this up with a deputation to Council in July 2013.
Council rejected their application with a view to gaining further information before decisions were made.”
(Introduction, Page 3)
“In September 2015 the Community Board instructed staff to develop a request for proposal for 10 Shirley Road.
One proposal was received and that was from the Methodist Church of NZ (Crossways Group).
This was for an approximately $4.7M facility, seeking $1.5M from Council.
The Option was assessed, and the Community Board with Crossways sought advice on a length of term 33 years with a 16 year right of renewal.
In the end, Council decided not to grant the lease for the development of a Crossways Community facility on this site.
Much of the rationale for the objections to the proposal seem to be based on Church ownership issues, and a lack of clarity or master planning for the area.
There also seemed to be a clear lack of understanding of partnership language by both organisations, Council was unclear as to its future role and Crossways had not been able to clearly articulate its ability and willingness to be inclusive of the community.
The mechanisms to make the project appealing to the wider community were not present and their application instead described in detail the Church operating system and hierarchy.
The background discussions paint a picture of some unease with a Church led project on the Council site and some residents in the community needed convincing of the value of this approach.
There is a significant history to this project with the Methodist Church and Council’s Shirley/Papanui Community Board deputation’s, letters reports and Community Board recommendations.
There are comments that the Crossways group were able to allay many of the fears of local groups at that time through open dialogue and discussion.
At the same time, the Council completed a community consultation process.
The work was undertaken by Open Strategies in November 2017.
Its report provides a unique window into what local residents identified as needed in a new community facility.
It contrasted in many ways with the proposal then submitted to the Shirley Papanui Community Board by Crossways.”
(History and background to 10 Shirley Road, Page 6-7)
13.1 Appendix 1. Key Informant Interviews
Meeting Jill Hawkey: Methodist Church, 24th January 2019 (Page 36)
– Re the Crossways project in the end they have formed a group with the Shirley Community Trust/Methodists. They connected with the Methodist Baptists so that the North Avon Church run Delta Trust is a part of the project and will be important in terms of community programming given the size of their programme footprint. A good result in the end and Delta do good things in the community.
– Its important that the Shirley Community Centre does not interrupt but instead complements the activity already underway.
– Collectively there are a number of active Church related programmes in the area.
– That said it does raise the question that there is perhaps less non-church provision and this could be a gap.
13.2 Appendix 2. Chronology – 10 Shirley Road
June 2017, Council Annual Plan 2017 – 18 (Page 41)
That the Council:
Bring the rebuild of Shirley Community Centre forward to the 2018/19 year, from 2021/22 and 2022/23 years, as part of the 2018-2028 Long Term Plan process to demonstrate the Council’s commitment to providing appropriate community facilities in this area.
Subsequently this decision was reprioritised, and funding for the rebuild of the Shirley Community Centre was pushed out to 2021/2022 and 2022/23 years.