Investigating the Role of Iwi Management Plans in Natural Hazard ...

Investigating the Role of Iwi Management Plans in Natural Hazard Management: A Case Study from the Bay of Plenty Region WSA Saunders GNS Science Report 2017/50 March 2018

DISCLAIMER The Institute of Geological and Nuclear Sciences Limited (GNS Science) and its funders give no warranties of any kind concerning the accuracy, completeness, timeliness or fitness for purpose of the contents of this report. GNS Science accepts no responsibility for any actions taken based on, or reliance placed on the contents of this report and GNS Science and its funders exclude to the full extent permitted by law liability for any loss, damage or expense, direct or indirect, and however caused, whether through negligence or otherwise, resulting from any person’s or organisation’s use of, or reliance on, the contents of this report.

BIBLIOGRAPHIC REFERENCE Saunders WSA. 2018. Investigating the role of iwi management plans in natural hazard management: a case study from the Bay of Plenty region. Lower Hutt (NZ): GNS Science. 74 p. (GNS Science report 2017/50). doi:10.21420/G2VW63.

WSA Saunders, GNS Science, PO Box 30368, Lower Hutt, New Zealand

© Institute of Geological and Nuclear Sciences Limited, 2018 www.gns.cri.nz ISSN 2350-3424 (Online) ISBN 978-1-98-853046-8 (Online) http://dx.doi.org/10.21420/G2VW63

CONTENTS ABSTRACT ................................................................................................................. V KEYWORDS ................................................................................................................ V GLOSSARY ................................................................................................................ VI 1.0

INTRODUCTION ...............................................................................................1 1.1

2.0

RESEARCH DESIGN ........................................................................................3 2.1 2.2

2.3 3.0

SELECTION OF BAY OF PLENTY AS A CASE STUDY AREA .............................3 DESKTOP DOCUMENTARY ANALYSIS ..........................................................4 2.2.1

Identification of relevant documents ........................................................ 4

2.2.2

Data Collection ........................................................................................ 5

2.2.3

Data analysis ........................................................................................... 6

CASE STUDIES .........................................................................................6

NATURAL HAZARDS OF THE BAY OF PLENTY REGION .............................7 3.1 3.2 3.3 3.4

3.5 3.6

4.0

OUTLINE OF REPORT ................................................................................2

AVAILABILITY OF NATURAL HAZARD INFORMATION .......................................8 VOLCANIC HAZARDS .................................................................................8 EARTHQUAKE HAZARDS ............................................................................9 COASTAL HAZARDS.................................................................................10 3.4.1

Tsunami ................................................................................................. 10

3.4.2

Erosion .................................................................................................. 11

3.4.3

Inundation .............................................................................................. 12

FLOODING..............................................................................................13 LANDSLIDE AND DEBRIS FLOWS ...............................................................14 3.6.1

Ōpōtiki District ....................................................................................... 14

3.6.2

Tauranga City ........................................................................................ 15

3.6.3

Whakatāne District ................................................................................ 15

IWI OF THE BAY OF PLENTY ........................................................................16 4.1 4.2 4.3 4.4

TAURANGA MOANA .................................................................................16 TE ARAWA AND NGĀTI TŪWHARETOA.......................................................17 MĀTAATUA .............................................................................................17 RAUKAWA ..............................................................................................18

5.0

BAY OF PLENTY LOCAL AUTHORITY BOUNDARIES .................................19

6.0

BAY OF PLENTY REGIONAL MAORI GOVERNANCE ..................................20 6.1

7.0

INCLUSION OF NATURAL HAZARDS IN IWI MANAGEMENT PLANS.........21 7.1

8.0

HIMP LODGEMENT PROCESS .................................................................20 ANALYSIS OF PLANS ...............................................................................22 7.1.1

Policy Framework .................................................................................. 22

7.1.2

Opportunities for future enhancement ................................................... 25

FURTHER ANALYSIS OF IMPS THAT INCLUDE NATURAL HAZARDS ......26

GNS Science Report 2017/50

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8.1

8.2

8.3

8.4

9.0

8.1.1

Inclusion of natural hazards .................................................................. 28

8.1.2

Relationship with other plans and policies ............................................ 29

8.1.3

Consultation........................................................................................... 30

MATAKANA AND RANGIWAEA ISLANDS HAPŪ MANAGEMENT PLAN ............. 30 8.2.1


8.2.2


8.2.3

Consultation........................................................................................... 35

TE RUATAKI TAIAO A RAUKAWA (RAUKAWA ENVIRONMENTAL MANAGEMENT PLAN) ....................................................................................................35 8.3.1


8.3.2


8.3.3

Consultation........................................................................................... 38

NGĀTI RANGIWEWEHI IWI ENVIRONMENTAL MANAGEMENT PLAN ............... 39 8.4.1


8.4.2


8.4.3

Consultation........................................................................................... 44

RECOGNITION OF IMP’S IN COUNCIL PLANS.............................................45 9.1 9.2 9.3

9.4 10.0

TE MAHERE Ā ROHE MŌ RANGITIHI (NGĀTI RANGITIHI IWI ENVIRONMENTAL MANAGEMENT PLAN) ..............................................................................26

BOP REGIONAL POLICY STATEMENT .......................................................45 PROPOSED BOP REGIONAL COASTAL ENVIRONMENTAL PLAN .................. 46 DISTRICT PLANS .....................................................................................48 9.3.1

Tauranga City Plan ................................................................................ 48

9.3.2

Western Bay of Plenty District Plan....................................................... 48

9.3.3

Whakatāne District Council ................................................................... 48

9.3.4

Kawerau District Council ....................................................................... 50

9.3.5

Ōpōtiki District Council .......................................................................... 50

9.3.6

Rotorua District Council ......................................................................... 50

9.3.7

Taupō District Council ........................................................................... 51

RECOGNITION OF IMP’S IN CDEM PLANS ................................................51

DISCUSSION...................................................................................................53 10.1 10.2 10.3 10.4 10.5

INCLUSION OF NATURAL HAZARDS IN IMPS ...............................................53 CALLS FOR ACTION .................................................................................53 ACKNOWLEDGEMENT OF IMPS IN OTHER PLANS AND POLICIES .................. 54 RESEARCHER OPPORTUNITIES ................................................................54 QUESTIONS FOR FURTHER RESEARCH .....................................................54

11.0

CONCLUSION .................................................................................................55

12.0

ACKNOWLEDGEMENTS ................................................................................55

13.0

REFERENCES ................................................................................................55

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FIGURES Figure 1.1

Research programme investigating the role of iwi management plans in natural hazard management. ................................................................................................................... 1

Figure 2.1

List of IMP’s from Bay of Plenty Regional Council (Bay of Plenty Regional Council, 2017). ......................................................................................................................................... 3

Figure 3.1

Location of the Taupo Volcanic Zone, map 3 (Bay of Plenty Regional Council, 2016). .... 9

Figure 3.2

BayHazards map of active (solid red line) inactive (dotted red line), and offshore (dotted black line) faults.............................................................................................................. 10

Figure 3.3

BayHazards map showing an example of the tsunami evacuation mapping available ... 11

Figure 3.4

BayHazard coastal erosion hazard zones. ..................................................................... 12

Figure 3.5

Tauranga Harbour 100 year inundation levels................................................................ 13

Figure 3.6

An example of how flood hazard is mapped in BayHazards........................................... 14

Figure 4.1

Indicative rohe for Ngāti Pūkenga, Ngāi Te Rangi, and Ngāti Ranginui. ........................ 16

Figure 4.2

Rohe of Ngāti Tūwharetoa and Ngāti Tūrangitukua ....................................................... 17

Figure 4.3

Rohe of Mātaatua (source: http://www.tkm.govt.nz/region/mataatua/) ........................... 18

Figure 4.4

Rohe of Tainui, Ngāti Maniapoto and Raukawa ............................................................. 18

Figure 5.1

Regional and local government boundaries of the Bay of Plenty ................................... 19

Figure 7.1

Percentage of IMPs that include issues, objectives, policies, methods and outcomes... 23

Figure 7.2

Identification of natural hazards within the policy framework of IMPs ............................. 23

Figure 7.3

Statutory planning documents referred to in IMPs.......................................................... 24

Figure 7.4

Specific natural hazards included in assessed IMPs. ..................................................... 24

Figure 8.1

Painting of Mount Tarawera eruption by A.D. Willis ....................................................... 26

Figure 8.2

Ngāti Rangitihi rohe boundary map ................................................................................ 27

Figure 8.3

Rohe of Matakana and Rangiwaea Islands. ................................................................... 31

Figure 8.4

Raukawa rohe boundary map. ....................................................................................... 35

Figure 8.5

Relationship of the Raukawa Environmental Plan to external statutory documents (p161). ....................................................................................................................................... 38

Figure 8.6

Core rohe of Ngāti Rangiwewehi with lands where there is an ancestral connection (p9). ....................................................................................................................................... 39

Figure 8.7

Aerial photographs showing the inundation of the Papahikahawai area over time (p46). ....................................................................................................................................... 43

Figure 9.1

Example of how IMP links to council plans (Tauranga Moana IMP 2016 p5) ................. 45

Figure 9.2

Context of plans under the RMA, as presented in the Tauranga City Plan (Section 2A, p1). ....................................................................................................................................... 48

Figure 9.3

RMA context for the Western Bay of Plenty District Plan (p1-5). .................................... 49

TABLES Table 2.1

IMP’s included and excluded from the study .................................................................... 4

Table 7.1

Inland and coastal IMPs considered in analysis ............................................................. 21

Table 7.2

IMPs that included natural hazard objectives, policies, or methods 1 = yes, 0 = no ....... 22

Table 8.1

Specific natural hazard provisions in the Ngāti Rangitihi IMP (p34-36) .......................... 28

Table 8.2

Summary of issues, concerns, policies, outcomes and responsibilities for the Matakana and Rangiwaea Island HMP (p46-47) ............................................................................ 33

Table 9.1

Recognition of IMPs in CDEM plans of the Bay of Plenty region.................................... 52


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APPENDICES A1.0

APPENDIX 1: IMP ANALYSIS PROTOCOL ...................................................58

A2.0

APPENDIX 2: RESULTS OF IMP ANALYSIS .................................................59

A3.0

APPENDIX 3: MATAKANA AND RANGIWAEA HMP PROCESS FOR CONSULTATION AND ENGAGEMENT ............................................60

A4.0

APPENDIX 4: CLIMATE CHANGE AND NATURAL HAZARD SECTIONS OF TE RAUTAKI TAIAO O RAUKAWA (RAUKAWA ENVIRONMENTAL MANAGEMENT PLAN) 2015.............................................................62

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ABSTRACT This report forms the second stage in a four-stage research programme investigating the role of iwi management plans in natural hazard management. Iwi management plans (IMPs) provide a valuable strategic tool for natural hazard management, however their potential influence and role is uncertain. To assist in the evaluation of IMPs as a tool for natural hazard management, a case study was undertaken of IMPs in the Bay of Plenty Region. Of the 29 IMPs lodged with the Bay of Plenty Regional Council, 21 plans were analysed for their natural hazard provisions, linkages to other plans and policies, and consultation process. Of these 21 IMPs, only six included reference to natural hazards, to different degrees; some had specific and explicit information on natural hazard risks and climate change; others were more general. Based on the content of these six plans, four were analysed in more detail to ascertain to what degree natural hazards were included. The findings of this research can be summarised into three key issues: the variable inclusion of natural hazards in IMPs; calls for action in IMPs; and the variability and lack of acknowledgement of IMPs in other plans.

KEYWORDS Iwi Management Plans, Bay of Plenty, Natural Hazards, Climate Change


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GLOSSARY Hapū

A section of a large kinship group and the primary political unit in traditional Māori society. It consists of a number of whānau sharing descent from a common ancestor. A number of related hapū usually share adjacent territories forming a looser tribal federation (iwi).

Iwi

Extended kinship group, tribe, nation, people, nationality, race — often refers to a large group of people descended from a common ancestor and associated with a distinct territory.

Kaitiakitanga

Exercise of guardianship by the tangata whenua of an area in accordance with tikanga Māori in relation to natural and physical resources; and includes the ethic of stewardship (as defined in section 2, Resource Management Act 1991).

Kāwanatanga

Government, dominion, rule, authority, governorship, province.

Mana Whakahono a Rohe

Iwi participation arrangements Management Act 1991.

Mātauranga Māori

Knowledge, wisdom, and/or understanding.

Rūnanga

Council, tribal council, assembly, board, boardroom, iwi authority — assemblies called to discuss issues of concern to iwi or the community.

Rohe

Boundary, district, region, territory, area, border of land.

Tangata whenua

Local people, hosts, indigenous people — people born of the whenua, i.e. of the placenta and of the land where the people's ancestors have lived and where their placenta are buried.

Tino rangatiratanga

Self-determination, sovereignty, autonomy, self-governance, domination, rule, control, power.

Wāhi tapu

Sacred place or site — a place subject to long-term ritual restrictions on access or use, e.g. a burial ground, a battle site or a place where tapu objects were placed.

under

the

Resource

(www.Māoridictionary.co.nz)

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1.0

INTRODUCTION

This report forms the second stage in a four-stage research programme investigating the role of iwi management plans in natural hazard management (see Figure 1.1). Iwi management plans provide a valuable strategic tool for natural hazard management. However, although a legislative document through the Resource Management Act 1991 (see Saunders, 2017), their potential influence and role is uncertain. As of 1 July 2015, 53 local authorities had one or more iwi/hapū management plans lodged with them; 190 iwi/hapū management plans had been lodged with local authorities throughout New Zealand; and 25 local authorities had no iwi/hapū management plans lodged with them (http://www.mfe.govt.nz/rma/rma-monitoring-andreporting/reporting-201415/m%C4%81ori-participation/iwi-management-plans).

Stage 1 - Context Iwi Management Plans Legislative framework Governance Engagement Mātauranga Māori

Stage 2 – IMP Case Study Bay of Plenty Natural hazard context IMP content analysis Opportunities Challenges

Stage 3 – IMP/Science/ Council interface Explore the relationship between IMPs, science translation, and councils

Stage 4 – Summary discussion and recommendations

Figure 1.1

Research programme investigating the role of iwi management plans in natural hazard management.

Funded through the National Science Challenge “Resilience to Nature’s Challenges” Mātauranga Māori research theme, the aim of Stage 2 of the research project involves a case study of IMPs in the Bay of Plenty region. It identifies the iwi management plans that include natural hazards; reviews and evaluates how those iwi management plans include natural hazards information; how well that information relates to the regional, district and Civil Defence


1

Emergency Management (CDEM) group plans and vice versa; and outlines any opportunities and barriers to the use of IMPs as a hazard management tool. Bay of Plenty's Māori landscape is culturally rich and dynamic, with the region's population being 28 percent Māori. Of the region's land area, 38 percent is in Māori ownership, with 1800 Māori Land Trusts managing these assets. There are 34 iwi, over 142 hapū and more than 200 marae located across the region. Te Arawa, Mataatua, Nukutere, Takitimu, Horouta and Tainui are the Waka groupings (https://www.boprc.govt.nz/council/kaupapa-maori/) The Stage 1 report provides the context for the subsequent stages. The report outlines what IMPs are; their legislative context; how IMPs contribute to co-governance and comanagement arrangements; the role of IMPs as an engagement tool; and the inclusion of mātauranga Māori in IMPs. Based on the outcomes of this Stage 2 report, Stage 3 will explore the relationship between IMPs, the transfer of science knowledge into IMPs, and councils. The aim is to understand and improve the system of knowledge transfer between the IMPs, scientists, and council. From the findings of the previous stages, Stage 4 will test the hypothesis of an alternative planning framework that links mātauranga Māori, IMPs, science, and council responsibilities. It will present final recommendations made in the previous stages, including a recommended way forward for future research to improve and encourage the role of IMPs in natural hazard management.

1.1

OUTLINE OF REPORT

The report begins by looking at how iwi management plans fit into the planning context and what the legal requirements are for including them in the resource management and decisionmaking process (Section 3). This investigation also looks at the content of iwi management plans, and generally their intention for resource management. Section 4 looks at the process of engagement that has been created under the Resource Management Act 1991 and the Local Government Act 2002. This section will highlight the opportunities for Māori to be involved in the planning and decision-making process. Section 5 will review the natural hazards identified in the Bay of Plenty Regional Plans, district plans, and Civil Defence Emergency Management Group plans. This section is concerned with what natural hazards information is provided, and how/if that information has been mapped. The report then concludes with a summary of the research findings, and based on those findings, makes a series of recommendations on how the natural hazards information could be included into iwi management plans.

2


2.0

RESEARCH DESIGN

The objective of this research is to determine how or if natural hazards information is being incorporated into iwi management plans. The information will then be reviewed against what is provided in the regional and district plans, and civil defence emergency management plans. A toolbox of social science research methods has been deployed to achieve this objective. The following sections in this chapter describe the methods used to undertake the research, in particular: •

Desk top documentary research

•

Screening criteria

•

Case studies of three IMPs.

This combination of methods allows for an in-depth level of information to be gathered from the research process. The framework of research methods discussed in here will provide a robust analysis of the effectiveness of the natural hazards information included in iwi management plans.

2.1

SELECTION OF BAY OF PLENTY AS A CASE STUDY AREA

Due to limited funding available, a case study region was required to enable an in-depth analysis to be undertaken of iwi management plans. The Bay of Plenty region was selected as a case study area due the wide variety of natural hazards in the area (i.e. flooding, coastal erosion, land instability, tsunami, volcanic, geothermal, subsidence, active faults, sea level rise, outlined in further detail in Section 3), and the large number of IMPs available to be assessed (see Figure 2.1).

Figure 2.1

List of IMP’s from Bay of Plenty Regional Council (Bay of Plenty Regional Council, 2017).


3

The combination of natural hazards and number of plans allows for a better understanding of the priorities, opportunities and challenges for incorporating natural hazard and risk provisions in IMPs. This will be further explored in Stage 3 of the research programme.

2.2

DESKTOP DOCUMENTARY ANALYSIS

The research will be undertaken according to secondary documentary methods, where documents that have not been primarily developed for the study (i.e. have been used for other purposes) are used to inform the research findings (Sarantakos, 1998). In this case, these documents are iwi management plans. Documentary research can take many forms, however for this research it will be qualitative in nature. According to Sarantakos (1998, p275), “[In] Qualitative research … the researcher identifies and interprets information contained in the documents; ascertains aspects of the issue in question and main ideas, statements and thoughts on the subject; investigates the main theme of the document, who the author is, when the document was written, the reliability of the source, and arrives at relevant conclusions”. This will be the methodological process that will be followed for this research, based on four key stages of documentary research (Sarantakos, 1998): 1.

Identification of relevant documents;

2.

Data Collection;

3.

Data analysis; and

4.

Interpretation of the findings.

2.2.1

Identification of relevant documents

The iwi management plans were sourced from the Bay of Plenty Regional Council’s online list1 of hapū/iwi management plans that have been lodged with the council. While many of the plans listed were hyperlinked to their respective plans, a number of plans were not, and were unable to be located through internet searches. These plans were not analysed, and have been excluded from the remainder of this research. As shown in Figure 2.1, there are 29 IMPs lodged with the Bay of Plenty Regional Council as of June 2014, with another six in progress, and eight either on hold, partially completed, or overdue. This list of plans that were included and excluded are shown in Table 2.1 below. In total, 21 IMP’s were included in the study, with 11 unable to be located. Table 2.1

IMP’s included and excluded from the study.

IMP’s included in study

IMP’s excluded from study

Ngati Pukenga Resource Management Plan

Te Runanga o Ngati Pikiao Iwi Resource Management Strategy Plan

Tapuika Environmental Management Plan

Tawharau o nga Hapū o Whakatohea

Whaia te mahere taiao o Hauraki - Hauraki Iwi

Ngaiterangi Iwi Resource Management Plan

Environmental Plan Ngati Whakaue ki Maketu IMP Phase 2

Nga Tikanga Whakahaere Taonga o Ngati Pikiao Whanui Iwi Resource Management Plan

1

https://www.boprc.govt.nz/about-council/kaupapa-maori/hapuiwi-resource-management-plans/ 4


IMP’s included in study

IMP’s excluded from study

Motiti Island Native Resource Management Plan

Ngati Whakaue ki Maketu Hapū Iwi Resource Management Plan

Ngati Kahu Hapū Environmental Management Plan

Ngapotiki Environmental Management Plan (Draft)

Ngāi Te Ahi Hapū Management Plan

Te Whatu: Ngaiterangi Natural Resources Environment Management Manual

Ngāti Pūkenga Iwi ki Tauranga Trust IMP

Ngati Umutahi Whenua Resource Management Plan

Te Mana Taiao O Ngāi Tamarāwaho HMP

Te Whanau a Te Ehutu Iwi Management Plan (Draft)

Ngai Tukairangi Ngai Tapu HMP

Ngati Manawa Iwi Management Plan

Ngāi Tamawhariua HMP

Ngaitai Iwi Management Plan

Waitaha IMP Tauranga Moana IMP A joint environmental plan for Ngāti Ranginui, Ngāi Te Rangi and Ngāti Pūkenga Matakana and Rangiwaea Islands HMP Pirirakau HMP Ngāti Rangiwewehi Iwi Environmental MP Ngāti Tamateatutahi-Ngāti Kawiti HMP Raukawa Environmental Management Plan Ngāti Kea Ngāti Tuara Iwi Environmental MP Ngati Whare IMP Ngāti Rangitihi Iwi Environmental MP

2.2.2

Data Collection

For this research, the data collection process primarily involved assessing the prominence of natural hazards in the IMPs. A coding protocol was developed (see Appendix 1) and tested before undertaking the full coding process. The coding protocol was adapted from a 2004 KCSM Consultancy Solutions report for the Ministry for the Environment (MfE) titled ‘Review of the Effectiveness of Iwi Management Plans: An Iwi Perspective’ (KCSM Consultancy Solutions, 2004). The wider focus of the report was on improving the effectiveness of Māori participation in the management and use natural resources. As part of the project, KCSM developed assessment criteria for reviewing iwi management plans which has been adapted for use in this analysis. The criteria adapted from the analysis includes the following criteria: •

Purpose of the iwi management plan – why was it prepared, who was it prepared for and what is it seeking to achieve i.e. environmental, social, cultural, and economic goals

•

Rohe – the area covered by the iwi management plan

•

Issues the iwi management plan seeks to address – both within a general sense and natural hazard specific

•

Objectives, policies, and methods – both within a general sense and natural hazard specific


5

Participation – the circumstances when the iwi or hapū seek consultation with an agency, i.e. a council or consent applicant, the process to be used, and the information the iwi or hapū need to enable it to assess the agency’s proposal.

•

Building on these criteria, the coding protocol also applied the following criteria: •

Natural hazards information – what natural hazards are specifically acknowledged in the plan?

•

Reference to the regional plan, CDEM group plan, or district plan

•

Emergency management details – does the plan acknowledge any emergency plan for the iwi, or in conjunction with civil defence emergency management?

Questions were coded according to whether the IMPs contained or did not contain parameters (i.e. 1 = yes, 2 = no), outlined in the Appendix 1. 2.2.3

Data analysis

A basic content analysis was undertaken to ascertain which IMPs included natural hazard provisions. The findings of the data analysis were used to undertake a simplistic screening to understand which plans contained natural hazard information, and of those, what the ‘top three’ were for further in-depth analysis of how natural hazards were incorporated. The results of the data analysis are presented and discussed in Section 6 of this report.

2.3

CASE STUDIES

The case study method was selected to investigate in further detail how the IMP’s in the Bay of Plenty include natural hazard information, and how the natural hazard information reflects what is provided in the district and regional plans. The results of the ‘top four’ IMPs for including natural hazards are presented in Section 7 of this report.

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3.0

NATURAL HAZARDS OF THE BAY OF PLENTY REGION

Te Moana a Toi-te-Huatahi is the recognised Māori name for the region that translates to "The Ocean of Toi of the First Fruits". The region has a range of pristine natural landscapes including the Rotorua Te Arawa lakes, Tauranga harbour, Ōhiwa harbour and the Whakatāne, Kaituna, Rangitāiki and Wairoa rivers. These natural resources are some of the jewels (taonga) of the region (https://www.boprc.govt.nz/council/kaupapa-maori/). At the same time, the Bay of Plenty is exposed to a wide variety of natural hazards. This section will outline the natural hazards information that has been provided in the regional, district and Civil Defence Emergency Management (CDEM) group plans. These plans identify a number of natural hazards that can affect the region, which include but are not limited to: •

•

•

•

Volcanic activity -

Ash fall

-

Pyroclastic and lava flow

-

Landslip, debris flow and lahar

-

Geothermal hazard

-

Caldera unrest

Earthquakes -

Fault rupture

-

Liquefaction and lateral spreading

-

Ground shaking

-

Landslide and rock fall

-

Tsunami

-

Tectonic Subsidence

Coastal/marine processes -

Coastal inundation

-

Coastal erosion

-

Sea level rise

Extreme or prolonged rainfall -

Flooding

-

Landslide/debris flow

-

Debris flow/flood

To manage the natural hazards, a risk management approach is taken, where the risk of a natural hazard is determined by a combination of an event’s likelihood (i.e. chance of an event occurring), and its potential consequence (i.e. amount of damage it would cause should an event occur). The regional policy statement acknowledges that for some natural hazard events such as flooding, steps can be taken to reduce the likelihood of an event occurring by providing flood protection. However, for most hazards, an event occurring is beyond human control. In these situations, the risk is reduced to ensure the consequences of an event are as low as possible.


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3.1

AVAILABILITY OF NATURAL HAZARD INFORMATION

BayHazards is an on-line GIS map based viewer of the Bay of Plenty's natural hazards, with the purpose to make natural hazard information open and accessible (https://www.boprc.govt.nz/residents-and-communities/natural-hazards-living-with-risk/bay hazards/). The natural hazard layers are based on existing research. Not all areas of the region have been investigated, therefore additional natural hazards may exist in areas not currently mapped in BayHazards. Features of BayHazards include: •

A brief hazard description with a link to Civil Defence and Emergency Management (CDEM) for key messages on preparedness and what to do in an event;

•

Interactive maps displaying natural hazard layers (GIS) made available by the district and city councils across the region. Type in your address and get to know your hazards; and

•

Technical documents are provided under the resources tab for further information if you want to dig deeper.

Natural hazards currently included in BayHazards are: earthquake; tsunami; coastal; flooding; and volcanic. Information in the following sections has been sourced from this website.

3.2

VOLCANIC HAZARDS

The Bay of Plenty area sits within the Taupō Volcanic Zone (TVZ), where the major features are active volcanoes, geothermal fields, and several earthquake fault lines. The TVZ links the volcanic cones of Ruapehu and Tongariro to White Island. Figure 3.1 displays the location of the TVZ, and identifies the volcanic features located within the TVZ. The active volcanic centres in the region each represent a different level of hazard: •

Okataina – A caldera volcano that produces infrequent moderate to large eruptions usually every 700-3000 years and will have a significant impact.

•

Pūtauaki/Mt Edgecumbe - A young multi-cone complex near Kawerau. The largest cone erupted as a series of lava flows and volcanic breccias. Geological evidence suggests that much of the cone has grown in the last 5000 years, with recent eruptions dating back 2300–3100 years ago.

•

Tuhua/Mayor Island – Lies off the coast of Tauranga and Whangamata, and had a moderate caldera forming eruption around 6300 years ago. Smaller and undated eruptions around 500–1000 years ago have followed the caldera forming eruption. Future eruptions could significantly impact the coastal areas.

•

Whakaari/White Island – An active volcanic pile off shore from Whakatāne. Past eruptions have not typically had significant impacts on the Bay of Plenty region, but can have a significant effect on the island. A sustained episode occurred between 1975 and 2000 which created a new crater complex and lake.

8


Figure 3.1

Location of the Taupo Volcanic Zone, map 3 (Bay of Plenty Regional Council, 2016).

The last major eruption was in 1886, when Mt Tarawera erupted resulting in an estimated 120 people killed, many displaced, and the environment completely changed (https://www.teara.govt.nz/en/historic-volcanic-activity/page-2, 9 August 2017).

3.3

EARTHQUAKE HAZARDS

Running along the eastern side of the TVZ is a major belt of faults and folding which makes up the steep ranges that form a spine along the North Island. This is known as the ‘North Island Shear Belt’, and extends from the East Cape down to Wellington. Earthquakes generated in the Shear Belt are likely to be significantly more powerful, although also less frequent, than those from the Taupō Fault Belt. The movement of the Shear Belt faults tends to be more a sliding action than a pulling apart, which gives rise to the term 'Shear Belt'. To the west lies the Hauraki Graben, a less active example of rifting like in the Taupō Volcanic Zone. Small to moderately damaging earthquakes may occur in this area and affect


9

the western extremes of the region. Figure 3.2 shows the active and inactive faults of the region.

Figure 3.2 BayHazards map of active (solid red line) inactive (dotted red line), and offshore (dotted black line) faults (http://boprc.maps.arcgis.com/apps/MapSeries/index.html?appid=351747f1ca8347c483371b822198bba8, 9 August 2017).

The most recent large earthquake to affect the Bay of Plenty was in 1987, when a magnitude 6.3 earthquake occurred, centred north of the township of Edgecumbe. While there was no loss of life, several dozen people were seriously injured, and industrial sites were badly affected. Associated earthquake hazards include tsunami, subsidence, liquefaction, landslides, fault rupture, and ground shaking.

3.4

COASTAL HAZARDS

3.4.1

Tsunami

There are three types of tsunami that could inundate the Bay of Plenty coast: 1.

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Distant Tsunami: These are generated from a source that is a long way away, such as across the Pacific in Chile. For a tsunami generated from a distal source, there is likely to be at least three hours warning prior to its arrival. For example, a magnitude (Mw) 9.5 earthquake in Chile generated a tsunami that prompted the evacuation of Whakatāne, Ōhope, and Ōpōtiki in 1960.


2.

Regional Tsunami: A tsunami that would take between one to three hours to reach the Bay of Plenty is described as a regional tsunami. They are usually generated from earthquakes along the Kermadec/Tongan trench, which lies to the northeast of New Zealand.

3.

Local Tsunami: A local tsunami is one that will take less than one hour to reach the shoreline. They are the most dangerous form of tsunami as they can occur within minutes of the generation, leaving little time for a formal warning or evacuation. Earthquakes from fault lines close to the shore or from areas within the southern part of the Kermadec trench are the most likely sources for local Tsunami generation.

Tsunami evacuation maps are available on BayHazards; an example is provided in Figure 3.3.

Figure 3.3 BayHazards map showing an example of the tsunami evacuation mapping available (Source: 2 http://boprc.maps.arcgis.com/apps/MapSeries/index.html?appid=351747f1 ca8347c483371b822198bba8, November 2017).

3.4.2

Erosion

Coastal erosion is a natural process by which sediment is removed from beaches and cliffs and transported by currents. Erosion occurs through geological and hydrodynamic processes such as king tides, storm surges, wind waves, and swell waves. Most coastlines will undergo a series of periodical shifts between erosion and accretion. Erosion can be caused by wave action generated from strong storms, winds, or from human activity such as hard engineering structures along the coast. Climate change is causing the sea level to rise, frequency and magnitude of storm surge, wave/swell conditions, rainfall patterns, and tidal range. It is expected that climate change will increase the rates of coastal erosion. Figure 3.4 shows the erosion zones for the Bay of Plenty (noting that where there are ‘gaps’ between lines, further information is to come).


11

Figure 3.4 BayHazard coastal erosion hazard zones. Green = current erosion hazard zone; blue = 50 years erosion hazard zone; yellow = 100 years erosion hazard zone (Source: 9 http://boprc.maps.arcgis.com/apps/MapSeries/index.html?appid=351747f1ca8347c483371b822198bba8, August 2017).

3.4.3

Inundation

Inundation is the flooding of low lying coastal areas by raised sea water elevation. Coastal inundation is particularly likely when high tides, storm surge and wave set-up occur at the same time. Areas that are inundated only occasionally now are likely to be inundated much more frequently in the future as climate changes. Sea level rise and intensification of storms is likely to put many low-lying areas not previously affected by coastal inundation at risk. More extensive and frequent coastal inundation events will impact coastal margins with predicted sea level rise, modification of estuaries and harbour tides, and impacts on storms, waves, river floods, and sediment supply. Figure 3.5 provides an example of how inundation is mapped for the Tauranga Harbour.

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Figure 3.5 Tauranga Harbour 100 year inundation levels (Source: http://boprc.maps.arcgis.com/apps/ MapSeries/index.html?appid=351747f1ca8347c483371b822198bba8, 9 August 2017).

Information is also provided for the Whakatāne inundation risk zone in the BayHazards online application.

3.5

FLOODING

Floods are New Zealand’s number one hazard in terms of frequency, losses, and declared civil defence emergencies. Floods can be caused by storms and heavy rain that cause rivers to overflow their banks or street drains can become blocked causing urban flooding (BayHazards, 9 August 2017). The Bay of Plenty region has eight major rivers emptying into the Bay; the Wairoa, Kaituna, Tarawera, Rangitāiki, Whakatāne, Waioeka, Mōtū and Raukokore rivers. Schemes have been put in place by the Bay of Plenty Regional Council for rivers and streams to protect our communities from flooding. An ongoing 24/7 flood warning service is also maintained by the Regional Council to provide early warning advice to landowners, general public, and emergency management authorities (BayHazards, 9 August 2017). The CDEM group plan identifies that there are two main types of flooding that can affect the Bay of Plenty: river bed flooding, where continuous heavy rainfall can cause the river levels to GNS Science Report 2017/50

13

rise and for river water to top their banks; and flash floods, where a large amount of rain over a short space can cause flooding in the streets, storm water drains, or rivers. Figure 3.6 provides an example of how flooding is mapped in BayHazards. Street views of Tauranga City are also available.

Figure 3.6 An example of how flood hazard is mapped in BayHazards (Source 9 http://boprc.maps.arcgis.com/apps/MapSeries/index.html?appid=351747f1ca8347c483371b822198bba8, August 2017).

3.6

LANDSLIDE AND DEBRIS FLOWS

Landslides can range in size from a single boulder in a rock fall to a very large avalanche of debris with large quantities of rock and soil. There are many triggering factors for landslides which include changes in ground water levels to human activity (i.e. the removal of vegetation, steep roadside cuttings, or leaking pipes). However, the most common triggers are heavy rainfall events or an earthquake. There are many examples of large landslides in the Bay of Plenty; a summary for three districts (Ōpōtiki District, Tauranga City, and Whakatāne Districts) are below. 3.6.1

Ōpōtiki District

Ōpōtiki District is mainly made up of hilly and mountainous land covered in dense bush, which when combined with high annual rainfall means rainfall triggered landslides area a serious risk. In 2004, severe landsliding occurred following a heavy rainfall event. The landslides damaged properties and infrastructure, and resulted in the loss of one life. Serious landslides on State Highway 2 in the Waioeka Gorge and on State Highway 5 east of Ōpōtiki have recently resulted in the closure of these road sections for prolonged periods of time (BOPEM, 2017).

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There is a high risk of landsliding within the Ōpōtiki District. Due to only a small number of residents living in landslide prone areas, the main risk from landsliding within this district is likely to be to transport networks and those travelling along roads in landslide prone areas. 3.6.2

Tauranga City

Tauranga City is located on a landform built by erosional processes and their interactions with groundwater levels, slope geometry, and soil profiles/properties. Landslides are common throughout this area but are dependent on the landform shape, soil profile, the extent and manner of development, and rainfall. Landslides are also caused when the harbour erodes the toes of the slope, creating accommodation space for the landslide to move into. Tauranga has experienced severe landslides in 1979, 1984, 1995, 2001, and 2012. The most notable occurred in 2005 when 300 landslides were recorded and 42 homes were destroyed. Another notable landslide period was 2011 where more than 40 slips occurred however no homes were destroyed (BOPEM, 2017). 3.6.3

Whakatāne District

Whakatāne District landslides include those at Whakatāne City, Ōhope, and Matatā. The backdrop to all of these towns is steep escarpment slopes that could potentially fail during heavy rainfall or an earthquake posing a risk to people and infrastructure (BOPEM, 2017). There are many examples of landslides within the Whakatāne District. These include (BOPEM, 2017): •

In Matatā several large landslides and debris flows were triggered following heavy rainfall over the area in May 2005. One of the main debris flows which caused widespread damage through the town of Matatā occurred within the Awatarariki and Waitepuru Streams.

•

A large landslide on West End Road in Ōhope in 2011 destroyed houses and tragically claimed the life of a young teenager. The death was a result of vegetation debris from the failing slope impacting an occupied house.

•

A number of landslides in 2004 destroyed homes and buildings in Whakatāne.


15

4.0

IWI OF THE BAY OF PLENTY

The Te Kāhui Māngai (directory of iwi and Māori organisations) has identified the following iwi groups in the Bay of Plenty region. This information is based on iwi identified in the Māori Fisheries Act 2004, and those iwi/hapū that have begun the process of negotiating settlement of their historical Treaty of Waitangi claims (http://www.tkm.govt.nz/, accessed 28 August 2017). All iwi rohe are susceptible to natural hazards.

4.1

TAURANGA MOANA

This rohe represents three overlapping iwi: Ngāti Pūkenga; Ngāi Te Rangi; and Ngāti Ranginui (Figure 4.1).

Figure 4.1 Indicative rohe for Ngāti Pūkenga, http://www.tkm.govt.nz/region/tauranga-moana/ )

Ngāi

Te

Rangi,

and

Ngāti

Ranginui.

(source:

Each iwi include coastal whenua within their rohe.

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4.2

TE ARAWA AND NGĀTI TŪWHARETOA

The rohe presented in Figure 4.2 represents Ngāti Tūwharetoa and Ngāti Tūrangitukua.

Figure 4.2 waka/ )

Rohe of Ngāti Tūwharetoa and Ngāti Tūrangitukua (source: http://www.tkm.govt.nz/region/te-arawa-

Within the Te Arawa iwi rohe the following groups are represented: Ngāti Mākino; Ngāti Pikiao; Ngāti Rangiteaorere; Tapuika; Ngāti Tarāwhai; Tūhourangi; Te Ure o Uenukukōpako / Ngāti Whakaue; Waitaha; Ngāti Tahu / Ngāti Whaoa; Ngāti Kea / Ngāti Tuarā; Ngāti Rongomai; Ngāti Rangiwewehi; and Ngāti Rangitihi. Of these 13 rohes, seven do not have any coastline: Ngāti Tarāwhai; Tūhourangi; Ngāti Tahu / Ngāti Whaoa; Ngāti Kea / Ngāti Tuarā; and Ngāti Rongomai.

4.3

MĀTAATUA

Figure 4.3 shows the rohe of Mātaatua, which has a substantial coastline included in their boundary.


17

Figure 4.3

4.4

Rohe of Mātaatua (source: http://www.tkm.govt.nz/region/mataatua/)

RAUKAWA

Raukawa is a ‘land-locked’ iwi, and straddles the Waikato and Bay of Plenty regional government boundaries.

Figure 4.4

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Rohe of Tainui, Ngāti Maniapoto and Raukawa (source: http://www.tkm.govt.nz/region/tainui/ )


5.0

BAY OF PLENTY LOCAL AUTHORITY BOUNDARIES

The iwi boundaries outlined in the previous section are located within the jurisdiction of the Bay of Plenty Regional Council, whose boundary is shown as a blue line in Figure 5.1. There are seven district councils that fall under the Bay of Plenty Regional Council’s authority, as shown in Figure 5.1: •

Western Bay of Plenty;

•

Tauranga City;

•

Rotorua District (part);

•

Kawerau District;

•

Whakatāne District;

•

Ōpōtiki District; and

•

Taupō District (part).

Figure 5.1 Regional and local government boundaries of the Bay of Plenty (Source: https://catalogue.data.govt.nz/dataset/bay-of-plenty-local-council-boundaries-map-book, 2 November 2017).

It can be seen from Figure 5.1 and the rohe boundaries in Section 4 that the local government and rohe boundaries do not ‘match’. Hence the importance of IMPs in being able to provide a consistent message to local government across the region.


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6.0

BAY OF PLENTY REGIONAL MAORI GOVERNANCE

The Bay of Plenty Regional Council (Māori Constituency Empowering) Act 2001 established the three Māori Constituencies. The Regional Council became the first territorial authority to provide for Māori representation in local government. Councillors are elected to each constituency by residents on the Māori electoral roll. Māori Councillors are members of Council and fully participate in the decision-making processes (Bay of Plenty Regional Council, 2017b). The Māori Committee of Council was established in 2006. Its primary function is to implement and monitor Council's legislative obligations to Māori. Māori Committee meetings are held on marae across the region to enhance participation. Committee members include three Māori Constituency Councillors, two general Councillors and the Council Chairman (ex-office). Anyone is welcome at meetings of the Māori Committee (Bay of Plenty Regional Council, 2017b). Bay of Plenty region's Treaty landscape is a dynamic space. The Waitangi Tribunal has held 16 historical inquiries across the region identifying Treaty breaches. The region's iwi have used the reports to support negotiations of several comprehensive Treaty settlements with the Office of Treaty Settlements. We expect the region's iwi to settle all of their historical Treaty claims comprehensively soon (Bay of Plenty Regional Council, 2017b). Hapū/Iwi Resource Management Plan (HIMP) documents approved by iwi are taken into account by Council in the management of the region's natural resources. HIMPs identify cultural and natural features important to Māori and outline consultation processes. Funding is available for iwi/hapū that are in the process of creating a new plan, or revising an existing HIMP document (Bay of Plenty Regional Council, 2017b).

6.1

HIMP LODGEMENT PROCESS

A copy of the final hapū/iwi resource planning document is to be deposited with Council prior to the final payment being released. To ensure that Council has regard to this document, the plan must be recognised by the relevant iwi authority and lodged with Bay of Plenty Regional Council. The several lodgement options available to hapū/iwi include (Bay of Plenty Regional Council, 2011): 1) Lodge the plan with a covering letter from the relevant iwi authority. 2) Lodge the plan with a copy of minutes of a hapū/iwi/marae meeting where the plan was mandated by representatives. 3) Lodge the plan at an official meeting in which Council staff and hapū/iwi representatives are present. 4) Lodge the plan by completing Council’s ‘plan acknowledgement’ form. 5) Another method as agreed by the applicant and Council.

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7.0

INCLUSION OF NATURAL HAZARDS IN IWI MANAGEMENT PLANS

The iwi management plans analysed in this research were identified through the Bay of Plenty Regional Council website. Those IMPs included in this study are shown in Table 7.1, as well as if they are inland or include coastline in their rohe. Table 7.1

Inland and coastal IMPs considered in analysis.

IMP’s included in analysis

Inland/Coastal

Ngāti Pūkenga Resource Management Plan

Coastal

Tapuika Environmental Management Plan

Coastal

Whaia te mahere taiao o Hauraki - Hauraki Iwi

Coastal

Environmental Plan Ngāti Whakaue ki Maketu IMP Phase 2

Coastal


Coastal

Ngāti Kahu Hapū Environmental Management Plan

Coastal

Ngāi Te Ahi Hapū Management Plan

Coastal

Ngāti Pūkenga Iwi ki Tauranga Trust IMP

Coastal

Te Mana Taiao O Ngāi Tamarāwaho HMP

Coastal

Ngai Tukairangi Ngati Tapu HMP

Coastal

Ngāi Tamawhariua HMP

Coastal

Waitaha IMP

Coastal

Tauranga Moana IMP A joint environmental plan for Ngāti

Coastal

Ranginui, Ngāi Te Rangi and Ngāti Pūkenga Matakana and Rangiwaea Islands HMP

Coastal

Pirirakau HMP

Coastal

Ngāti Rangiwewehi Iwi Environmental MP

Coastal

Ngāti Rangitihi Iwi Environmental MP

Coastal

Ngāti Tamateatutahi-Ngāti Kawiti HMP

Inland

Raukawa Environmental Management Plan

Inland

Ngāti Kea Ngāti Tuara Iwi Enviornmental MP

Inland

Ngati Whare IMP

Inland

As shown in Table 7.1, 17 of the 21 plans have coastlines (i.e. 81% of IMPs). An initial screening of the plans was undertaken to determine if the plans contained natural hazard information, and if so, what type of information was included. The screening identified that the majority of iwi management plans did not consider natural hazards, or if they had, it was a secondary concern to another issue (see Appendix 2). For example, the erosion of land around waterways that was resulting in the sedimentation of a water body that was impacting on the water quality and subsequently affecting the ability of an iwi or hapū to gather seafood within their rohe. The initial screening identified six iwi management plans that included natural hazards objectives, policies and methods, to varying degrees, shown in Table 7.2. GNS Science Report 2017/50

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Table 7.2

IMPs that included natural hazard objectives, policies, or methods 1 = yes, 0 = no

Iwi Management Plan

Natural hazards are identified within objectives

Natural hazards are identified within policies

Natural hazards are included in methods

Total score

1

1

1

3

0

1

1

2

1

0

1

2

0

0

1

1

1

0

0

1

1

0

0

1

Ngāti Rangitihi Iiwi Environmental MP Matakana and Rangiwaea Islands HMP Raukawa Environmental Management Plan Ngāti Rangiwewehi Iwi Environmental MP Motiti Island Native Resource Management Plan Whaia te mahere taiao o Hauraki - Hauraki Iwi Environmental Plan

Four of these iwi management plans were further analysed to identify what natural hazard information they contained, and if the natural hazard information reflects the information provided in the regional, district, and CDEM group plans.

7.1

ANALYSIS OF PLANS

Appendix 1 presents the protocol used for screening the plans; Appendix 2 presents the screening results based on the protocol. The following subsections outline the findings from the plan analysis process. 7.1.1

Policy Framework

The results of the analysis show that 95% of the 21 Iwi Management Plans in this study have a clear purpose; and 95% of the 21 Iwi Management Plans include a map (rohe). Figure 7.1 presents the percentage of plans that include the planning mechanisms of issues, objectives, policies, and anticipated outcomes. While 100% of plans include a statement on issues, less than 50% have objectives.

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Figure 7.1

Percentage of IMPs that include issues, objectives, policies, methods and outcomes.

Within the policy framework outlined in the previous section, natural hazards were not often explicitly identified, as shown in Figure 7.2. The figure shows that only a quarter of IMPs include natural hazards as an issue, with 10% including them within policies. 19% of IMPs had natural hazards included within objectives and methods.

Figure 7.2

Identification of natural hazards within the policy framework of IMPs

Figure 7.3 shows which statutory planning documents are referred to in the IMPs. While 81% of plans analysed referred to district plans, only one plan referred to the Civil Defence GNS Science Report 2017/50

23

Emergency Management Group Plan. Other planning documents were referenced; these were often related to other policy areas such as fisheries and fresh water.

Figure 7.3

Statutory planning documents referred to in IMPs.

Figure 7.4 shows what hazards are specifically included in the IMPs that were assessed. Reference to climate change and erosion where the most referred to at 35% each, followed by flooding (30%), then general coastal hazards (15%). Sea level rise and climate change are categorised separately in Figure 7.4; this is due to how they are represented in plans, i.e. some plans refer to ‘climate change’ and/or ‘sea level rise’.

Figure 7.4 24

Specific natural hazards included in assessed IMPs. GNS Science Report 2017/50

In addition, 5% (1) of the 19 IMPs included emergency management functions and responsibilities in their Plan. 7.1.2

Opportunities for future enhancement

It is noted that while 81% of IMP jurisdictions have coastlines, only 10% specifically address sea level rise and tsunami. It appears that sea level rise does not appear to be a priority at the moment; issues around water quality and land use associated with degraded water quality seem to be the environmental priority areas for iwi. Considering the number of natural hazards that could impact communities across the Bay of Plenty, there is plenty of scope to have these hazards included in future generations of IMPs across the region. The is also an opportunity to strengthen the linkages between IMPs and CDEM Group Plans, which is discussed further in Sections 9.4 and 10.


25

8.0

FURTHER ANALYSIS OF IMPS THAT INCLUDE NATURAL HAZARDS

Case studies allow for a more in-depth analysis of the natural hazard provisions within the IMPs, and their context within the plans. Four were selected by cross-tabulating the results from the analysis of IMPs, based on whether the IMP contained hazard specific objectives, policies, and methods. There is no standard format for producing IMPs, which can be seen from the different approaches outlined in the following sections.

8.1

TE MAHERE Ā ROHE MANAGEMENT PLAN)

MŌ

RANGITIHI (NGĀTI RANGITIHI IWI ENVIRONMENTAL

The Ngāti Rangitihi Rohe includes a number of natural hazards that could impact on their people, property and environment: volcanic activity; floods; landslides; active faults; tsunami; coastal erosion; tectonic subsidence; and sea level rise. Within the IMP, there is a specific description of the 1886 Tarawera eruption, and the effect this event had on the people of Ngāti Rangitihi, many of whom moved to Matatā and still remain there. The eruption resulted in significant loss of life and the devastation of villages, pā, gardens, and landscape, and a painting of the eruption is included in the IMP (see Figure 8.1).

Figure 8.1 Painting of Mount Tarawera eruption by A.D. Willis (Alexander Turnbull Library, C-003-002), included in the Ngāti Rangitihi IMP (p11).

The Ngāti Rangitihi iwi environmental management plan was prepared by Te Mana o Ngāti Rangitihi Trust in 2011. The plan identifies the key issues for Ngāti Rangitihi, their guiding

26


principles, and objectives for managing the environment. The identified rohe for Ngāti Rangitihi is shown in Figure 8.2, and covers a large area of land and water.

Figure 8.2

Ngāti Rangitihi rohe boundary map

The plan establishes seven resource areas of focus: 1.

Ko te Iwi – the people;

2.

Ngā Rawa Whakahirahira – places of significance, customary resource areas, archaeological sites and water bodies;

3.

He Wai – water;

4.

Ko Te Papa – land;

5.

Ko Tāne Mahuta – flora and fauna;

6.

Ko Tangaroa me Tūtewehiwehi – fisheries; and

7.

Ko Tāwhirimātea – air.

Each of these seven resource areas includes issues, objectives, policies, and methods for addressing the important resources to Ngāti Rangitihi. The list is not intended to be a comprehensive response to resources, rather it is a focus on what is important to Ngāti Rangitihi and how the issues may be addressed.


27

8.1.1

Inclusion of natural hazards

The Ngāti Rangitihi IMP has a specific policy framework for natural hazards, which is under the key resource area of Ko Te Papa. The framework for natural hazards is shown in Table 8.1 below (emphasis added). Table 8.1

Specific natural hazard provisions in the Ngāti Rangitihi IMP (p34-36)

KO TE PAPA – KO TĀWHIRIMĀTEA – KO TANGAROA Resource

Issues

Natural hazards – tsunami, earthquake, volcanic eruption

Natural hazards pose a risk to people, property and the

– Ngā rū whenua, parawhenua

environment.

Objectives

Policies

Methods

To avoid, remedy, or mitigate

Natural hazard management is an

BOPRC will co-ordinate the

the adverse effects of natural

important role of Councils, Civil defence

management of natural hazards

hazards on human life,

and other agencies.

throughout the Region by setting

property and the environment,

Before provision is made enabling

standards and ensuring consistency

while minimising the adverse

significant development or redevelopment

among TAs.

effects of measures

of land which will result in intensification of

The BOPRC and TAs will jointly

implemented to reduce the

land use, any flood hazards and measures

advocate methods to avoid, remedy,

risks of natural hazards

to avoid or mitigate their adverse effects

or mitigate the adverse effects of

shall be identified.

natural hazards on the environment.

Development shall not be permitted if it is

Ngāti Rangitihi will promote a

likely to accelerate, worsen or result in

comprehensive catchment-wide

inundation of other property, unless it can

approach to flood management.

be demonstrated that the adverse effects

TAs will ensure that any required

can be avoided or mitigated.

hazard mitigation works are

Construction of mitigation works shall be

undertaken, and that they are

encouraged only where people, property

adequately maintained.

and the environment are subject to

BOPRC will implement objectives,

unacceptable risk from flood hazards.

policies and rules with respect to

In the coastal environment, new

coastal hazards in the coastal

subdivision, use or development should be

environment, through the provisions in

located and designed, so that the need for

the Regional Plan — Coastal, which

hazard protection measures is avoided.

will encourage subdivision, use and

Where existing subdivision, use or

development in the coastal

development is adversely affected by a

environment to locate in appropriate

coastal hazard, coastal protection works

areas.

should be permitted only where they are

TAs will ensure that current

the best practicable option for the future.

information about known hazards is

The abandonment or relocation of existing

available to all persons.

structures and the use of non-structural solutions should be considered among the options. A precautionary approach shall be used in avoiding, remedying, or mitigating the adverse effects on development, of earthquake, volcanic activity, sea level rise and global climatic change.

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Natural hazards - in particular tsunami, earthquake, and volcanic eruption - are seen as a resource within the Ngāti Rangitihi IMP. The policy framework takes a risk-based approach, with a strong risk reduction theme. The key issue for natural hazards is the risks they pose to people, property and the environment, which is consistent with the legislative well-beings (Saunders & Beban, 2012). The objective also includes reducing the risks of natural hazards, which is consistent with the National Emergency Management Strategy (MCDEM, 2008). The focus on risk (rather than the hazards themselves) in the issue statement and objective is considered good practice, particularly with the April 2017 Resource Management Act reforms requiring the significant risks from natural hazards to be managed. Framing the issue as a risk will allow for the plan to take a risk-based approach in any future actions, and allows for a consistent approach between the IMP and the outcome of the recent RMA reforms. The policies are considered comprehensive in the range of hazards and issues they address. The policies acknowledge the role of councils, civil defence and other agencies in managing natural hazards. Flooding or inundation is included in three policies (including unacceptable risk from flooding); coastal hazards in two policies; and a policy for the use of the precautionary principle addresses earthquake, volcanic activity, sea level rise, and global climatic change. The policies also address intensification of land use; construction of mitigation/protection works; and the use of non-structural solutions. The methods listed are predominantly in the domain of either the BOPRC or the territorial authorities (TA), with only one method specific to Ngāti Rangitihi (to promote a comprehensive catchment-wide approach to flood management). No anticipated outcomes are included. 8.1.2

Relationship with other plans and policies

The plan refers to other plans and policies, specifically around the format of the plan (emphasis added): The third section of the plan provides the Iwi policies for resources of significance to Ngāti Rangitihi. The format of resource, issue, objective policies and methods is a framework that is commonly used in resource management planning, particularly regional policy statements, regional plans and district plans. Whilst Ngāti Rangitihi would prefer to use and would be more comfortable using a more strategic format or business model of Vision, principles, strategic objectives, work programmes, the key audience of an iwi management plan is regional councils and territorial authorities. It was considered prudent to use a familiar format to those used in plans to avoid possible misinterpretations and lost in translation situations. It also considered that plan would set out a consistent approach to resource management matters, both from a proactive and reactive point of view. (p3) And in regard to the maps that are supplied (emphasis added): Due to the significant amount of information relating to statutory and planning mechanisms, schedules have not been prepared for these maps. This information can be accessed in district plans, regional plans, regional policy statement and other statutory and planning documents. (p4)


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In addition, Table 8.1 provides an example of how the Plan can link into regional and local government actions, for example: BOPRC will implement objectives, policies and rules with respect to coastal hazards in the coastal environment, through the provisions in the Regional Plan — Coastal, which will encourage subdivision, use and development in the coastal environment to locate in appropriate areas. The plan does not acknowledgement the CDEM Group Plan. 8.1.3

Consultation

The Plan includes a section on Te Hononga – consultation and engagement principles. The principles are focused on the those that Te Mana o Ngāti Rangitihi Trust will uphold when engaging with external parties. It outlines the information requirements required before and during formal consultation; and includes a section on monitoring and review of the plan.

8.2

MATAKANA AND RANGIWAEA ISLANDS HAPŪ MANAGEMENT PLAN

The 2017 Matakana and Rangiwaea Islands plan is an updated edition of the 2012 plan. It provides guidance and describes the environmental aspirations, responsibilities and cultural values that encapsulate the views of tangata whenua from the islands of Matakana and Rangiwaea. The Plan encourages participation by whanau, whanui in overcoming the barriers for our collective growth and development that ultimately allows for responsible decisionmaking amid the diverse itinerary of network strategies. Located north-west of Mt Maunganui, the rohe for Matakana and Rangiwaea Islands is provided in Figure 8.3.

30


Figure 8.3

8.2.1

Rohe of Matakana and Rangiwaea Islands.


Issue Statement 7 outlines that the forested area Te Ure Kotikoti on Matakana Island is a significant natural feature of the Island, and a critical component of the Island’s natural environment. The Issue Statement acknowledges that the area is an important natural hazard defence mechanism acting as an important feature to stabilise the mobile sandy coastal fringes. It states (emphasis added, p33): Inconsiderate and/or poor planning and decision making for Te Ure Kotikoti could lead to severe environmental and social impacts including the destabilisation of the whole Island which removes the purpose of its ‘whakaruruhau’ abilities against coastal hazards such as sea-level rise, erosion and tsunami and therefore will sever the relationship of nga Hapū o Matakana me Rangiwaea with the one place they can call home. Coastal hazards including sea level rise, erosion, and tsunami are included within the issue statement. There is also a clear link between the physical, environment, social and cultural impacts of poor planning and decision making. Objectives associated with the issue do not explicitly include natural hazards, however they are aimed at maintaining the existing


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environment, restricting future use and activities, and avoiding all subdivision and residential proposals. Issue Statement 12: Protecting our Coastal Environment (emphasis added, p35): The removal of significant tracts of forestry from Te Ure Kotikoti exposes the Islands to damage from adverse weather conditions and also serves as a protective barrier for the islands. Natural hazards are an obvious concern given we are an Island nation. Given our low-lying land and profile, we are conscious of the risks of Tsunami and other natural disasters. We are concerned about coastal erosion and sand dune degradation. The proliferation of man-made hard structures in the coastal environment on the mainland cause significant adverse effects in areas where natural defences are vulnerable. Our preference is the soft options approach where possible and supporting the Island natural defence mechanisms. In places, we might need to look at hard options ourselves for instance, where our marae are toppling into the moana and we have limited ability to do anything. This issue statement clearly acknowledges the impact of harvesting trees on the islands. The hapū are very aware of the risks of tsunami and other natural disasters that could impact them, including coastal erosion. The issue statement also highlights the vulnerability of their assets, with the example of marae falling into the sea; and the helplessness they feel to mitigate this threat. The issues and policies are summarised in tables within the plan. Those relevant to natural hazards are reproduced in Table 8.2 (emphasis added). Table 8.2 shows that the iwi are very aware of their risk from tsunami, and how climate change will affect other natural hazards the Islands are susceptible to. In particular, they specifically include the need for an effective tsunami warning system for the Islands.

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Table 8.2

Summary of issues, concerns, policies, outcomes and responsibilities for the Matakana and Rangiwaea Island HMP (p46-47)

Issues & Concerns

Our Policies, requirements and desired outcomes

Responsible Agencies

The removal of significant tracts of

Our position is that we want the forest areas on Te Ure Kotikoti to be carefully managed so it serves

Forestry

forestry from the Te Ure Kotikoti

as a protective barrier for the Islands.

companies

exposes the Islands to damage

* The natural buffer along the coastal edge of the entire Te Ure Kotikoti to be set aside for ecological

Hapū

from adverse weather conditions and erosion.

References

purposes at 350m from the mean high-water mark along the open coast and 250m along the inner harbour margins to protect from coastal erosion and the effects of climate change. * Robust discussions on any developments planned for the forestry area

Natural hazards - Given our low-

Our position is that we want full consultation and engagement to develop plans for coping with climate

BOPRC

RMA

lying land and profile, we are

change and natural disasters.

conscious of the risks of Tsunami

WBOPDC

Building Act

*Utilise Frameworks developed by Tangata Whenua ie; Matakana Island 1st Responders and

Civil Defence

Regional and

Maritime NZ

District Council

and other natural disasters as a result of climate change.

Tauranga Moana Iwi Response Framework * We oppose any new residential housing developments built within the high-risk tsunami zone

Policies

* We urgently need an effective warning system for the Islands We are concerned about coastal

We want to work closely with the relevant authorities to mitigate the challenges of coastal erosion in

BOPRC

NZCPS

erosion and sand dune degradation

areas of high risk.

WBOPDC Coast

Regional &

* Our Islands provide a shelter (whakaruruhau) for the wider community of Tauranga Moana - the

care MIMC

District Council

importance of this needs to be recognised in all coastal planning documents * We want all coastal areas of medium and high risk to be planted in coastal native plants * With risk mitigation procedures, such as enforcing speed limits for recreational boats — to limit wash on foreshore * We oppose ski lanes that encourage erosion along the inner harbour of Te Ure Kotikoti.

Policies on Erosion Buffer zones Conservation laws Ecological Enhancement Fund


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8.2.2


It is clear from the plan that Matakana and Rangiwaea hapū want to be influential within all aspects of the RMA process, as shown in an issue statement within the plan (emphasis added, p33): Issue Statement (8) Nga Hapū o Matakana me Rangiwaea want a Plan that meets the needs of the Hapū while being influential within RMA and Council plans and processes, particularly those that affect the Island and the way decisions are made that affect the Island and Hapū. Objective 8 Processes, proposals and decision making reflect and are consistent with, the issues, objectives and policies contained in the Plan. Policy 8 Authorities use, reflect and incorporate the Plan into all decision making affecting the Island(s) and Hapū. Policy 8(a) Developers or Resource Consent Applicants use, reflect and incorporate all relevant provisions of the Plan in any proposal, Plan, and Policy reviews and Plan changes including private plan changes. Footnotes associated with Objective 8 state: Includes policy reviews, national, regional and district plan reviews, changes or submissions, development or review of assessment criteria, landscape designation, notices of requirement, certificates of compliance, resource consent applications and associated activities, land-use changes or re-zoning, biodiversity overlays, fishing techniques and protections, establishment of new zones, long term and annual plans, plan or policy statement implementation programs; all applies to land and coastal marine areas and the interface between each; applies to all users and authorities identified in RMA, Local Govt, Marine Mammals, Marine Reserves, Pouhere Taonga Act, Maritime regulations, Nav Safety By-laws, Conservation Act and Fisheries legislation In addition, a further issue statement specific to the coastal environment outlines the ‘want’ to work collaboratively with councils to mitigate natural hazards and risks, and reinforces the need for a tsunami warning system: Issue Statement 12: Protecting our Coastal Environment (emphasis added) We want to work collaboratively with all relevant authorities to mitigate dangers arising from coastal inundation, climate change, tsunami, flooding, earthquakes and all natural and man-made disasters. We urgently need an effective tsunami warning system for the Islands. We also need to collaborate on risk mitigation procedures that would require speed limits for recreational boating activities around the Island(s) because the wake they create accelerates the erosion problems we face. These issues and outcomes provide a clear message for Councils around the needs and priorities of the respective hapū, and where collaboration will be supported.

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8.2.3

Consultation

The plan outlines three levels of consultation and engagement: initial; secondary; and full. A summary of this consultation is provided in Appendix 3. It provides guidance on the principles of engagement, particularly for representatives of government departments, local authorities, business and private interests.

8.3

TE RUATAKI TAIAO A RAUKAWA (RAUKAWA ENVIRONMENTAL MANAGEMENT PLAN)

Te Ruataki Taiao a Raukawa (Raukawa Environmental Management Plan) was published by the Raukawa Charitable Trust and the Raukawa Settlement Trust in 2015. The plan identifies four distinct rohe of Raukawa, each with their own unique but interrelated histories. These four rohe areas can be seen in Figure 8.4, and extend across both the Waikato and Bay of Plenty regions.

Figure 8.4

Raukawa rohe boundary map.

The iwi management plan includes a physical description of the geography of each of the four rohe for Raukawa. These descriptions allude to the natural hazards within the rohe through the description of the volcanic activity across the central plateau, and the high winds that can blow across their rohe. Raukawa see that their kaitiaki and manaaki roles and responsibilities are key in the event of natural disasters and events occurring within their takiwā. 8.3.1


The plan identifies 15 policy areas that Raukawa is concerned or has interests in – including two areas of climate change and natural hazards. Each of these policy areas state the issues GNS Science Report 2017/50

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that Raukawa are concerned about, then provides the policy framework and mechanisms to overcome the issues. Each of the policy areas includes a vision statement, which incorporates the desired outcomes and aspirations for Raukawa. The issues are then supported by objectives, ‘Kete for Kaitiaki’ (aimed at personal actions), and methods. Appendix 1 provides the full two sections in the plan that address climate change and natural hazards. The key points from each section are discussed below. Climate Change The section specified eight issues for the takiwā; those of particular note include (emphasis added): •

Raukawa are not well informed about the challenges climate change will present, and how their behaviours and choices can increase or decrease their contribution to climate change;

•

Raukawa do not fully understand the effects of climate change on their biodiversity taonga, their current primary productive practices, or their economies;

•

Raukawa are unclear as to the role they play amongst the Waikato regional local government nexus.

These three issues imply that the information transfer from climate change science to the iwi needs to be improved so that Raukawa are well informed - and understand - the effects of climate change, and the future challenges they can expect. The last point highlights that engagement is required between councils and Raukawa so that both parties have a clear understanding of their roles, and their contributions to adapting to climate change. To assist in addressing the issues for climate change, the Raukawa Plan includes 20 proactive methods / action points. These include: •

Wanting to collaborate with government, local authorities and other agencies to investigate the development of a resilience profile, including the likelihood of extreme events, predicted climatic changes, and responses;

•

Collaborating with the above agencies to provide up to date information on climate change, including science and research;

•

Developing an information and resource hub to assist with climate change preparedness;

•

Working with marae to ascertain climate change risk and mitigation strategies;

•

Developing a climate change policy document to guide decision making; and

•

That government agencies and local authorities ensure mātauranga Māori is used in collaboration with western science in the development of climate change policy and science.

Te Ruataki Taiao a Raukawa clearly acknowledges and supports adapting to climate change; to encourage and support this, further engagement between Raukawa, science providers and councils is necessary to capture this support for climate change adaptation. The plan highlights that science providers and government agencies need to be aware of the issues and methods contained in the plan; in doing so, there is a huge potential for partnerships to develop to assist in managing the impacts of climate change at an iwi level.

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Natural Hazards As provided in Appendix 4, the issues included in the natural hazard section of the Raukawa Environmental Management Plan are similar to those for climate change. Eight issues are listed, including (emphasis added): •

Raukawa are not well informed about the challenges posed in the event of a natural disaster;

•

Raukawa do not have comprehensive response plans in place to be able to respond to nature disasters;

•

Raukawa are unsure of natural hazards planning by local authorities and government agencies; and

•

Raukawa are unclear as to the role they play amongst the Waikato regional local government nexus in times of natural disasters.

As for the climate change section, these four issues imply that the information transfer for natural hazard information and science to the iwi needs to be improved so that Raukawa are well informed - and understand - the natural hazards in their rohe. There is clearly an opportunity for CDEM to work with Raukawa to develop comprehensive response plans. The last two points highlight that engagement is required between councils and Raukawa so that both parties have a clear understanding of the planning, roles, and contributions all can make in relation in natural hazards. To assist in addressing the issues for natural hazards, the Raukawa Plan includes 11 proactive methods / actions. These include: •

Developing an information and resource hub to assist with natural hazard preparedness;

•

Wanting to collaborate with government, local authorities and other agencies to investigate the development of resilience profile, including the likelihood of extreme events, responses to climate change and extreme events, and to identify areas of natural hazard occurrence; and

•

Supporting flood mitigation works where people, property and the environment face significant risk.

Of particular interest is the last point, which refers to ‘significant risk’. Although the Raukawa Environmental Management Plan was published in 2015, amendments to the Resource Management Act in 2017 include the management of significant risks of natural hazards as a matter of national importance. This wording is therefore already in alignment with what local authorities will be required to plan for. In addition, there are five methods / actions for local authorities to consider: •

Require flood hazards to be identified, avoided or mitigated in any intensification of land use;

•

A precautionary approach be applied in avoiding, remedying, or mitigating the adverse affects on development from earthquakes, volcanic activity, and climate change;

•

A coordinated approach to the development of natural hazard management strategies; and

•

Ensure that all relevant information regarding natural hazards is available to Raukawa at all times.


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The Raukawa Environmental Management Plan clearly supports avoiding, remedying and/or mitigating natural hazards, particularly those for flooding, earthquake-related hazards, volcanic activity and climate change. Similar to the climate change section, Raukawa are keen to collaborate with government, local authorities, and other agencies to understand the natural hazards of their rohe and implement mitigation measures. This section of the Plan highlights that science providers and government agencies need to be aware of the issues and methods contained in the plan; in doing so, there is a huge potential for partnerships to develop to assist in managing the impacts of climate change at an iwi level. 8.3.2


While Raukawa are unclear about the role they play within the council planning framework, they do have an understanding of how their Environmental Management Plan relates to the hierarchy of plans. The plan includes a clear acknowledgement of its influence in other statutory documents, as shown in Figure 8.5.

Figure 8.5

8.3.3

Relationship of the Raukawa Environmental Plan to external statutory documents (p161).

Consultation

A process for how to engage with Raukawa is outlined in Appendix G of Te Ruataki Taiao a Raukawa. The appendix provides guidance on principles for engagement; engagement on policy development and advice; engagement on resource consents and activities; outlines their process for assessing proposals; information requirements; guidelines for assessing proposals; and contact details.

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8.4

NGĀTI RANGIWEWEHI IWI ENVIRONMENTAL MANAGEMENT PLAN

The Ngāti Rangiwewehi Iwi Management Plan was prepared by the Te Maru O Ngāti Rangiwewehi Iwi Authority in 2012. This version of the iwi management plan is an update of the 2008 environmental plan and is an expression of the vision, mission and values to be pursued by Ngāti Rangiwewehi. The geographical area for Ngāti Rangiwewehi is shown in Figure 8.6, covering a large area around Lake Rotorua and Mokoia Island. The description of the rohe discusses the physical environment, the activities that were undertaken on the land by their ancestors, and the boundaries of their rohe.

Figure 8.6

Core rohe of Ngāti Rangiwewehi with lands where there is an ancestral connection (p9).


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8.4.1


There is no stated purpose within the iwi management plan. There is a lot of detail on how the plan came about, and the process that has gone into creating the plan. The iwi management plan identifies key resource areas that Ngāti Rangiwewehi is primarily concerned about, which includes water and air quality (but not natural hazards). Each of these resource areas includes a set of objectives, policies and methods that Ngāti Rangiwewehi consider to be the most appropriate course of action for overcoming the issues within their rohe. Additionally, the plan establishes a framework for action in order to achieve the objectives stated in the two resource areas.

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Climate Change Under the section on ‘Whenua: Lands and Areas of Significance’, there is a sub-section on climate change, reproduced in Text Box 8.1 (emphasis added). Text Box 8.1 Climate change extract from Ngāti Rangiwewehi IMP (p30-31).

How the environmental, economic, social and cultural elements of our society is likely to be impacted by climate change this century is becoming a priority consideration when planning for our collective future. What are the risks, coping capacity, and adaptation options available to our people across key sectors, systems and groups? Rural settlements such as Awahou Village are vulnerable to extreme weather events. Important contextual factors that influence the exposure and sensitivity of rural Maori settlements and infrastructure to climatic hazards include low investment in rural infrastructure (e.g., clean water resources, housing, and roading), the marginal nature of some Maori land-blocks and the building of settlements and infrastructure close to waterways, floodplains and coastal areas. Additionally, landowners often have lower economic power and restricted access to finance and these factors contribute to an overall reduced capacity to cope. In 2011-2012 a comprehensive investigation into the predicted impacts of climate change on Awahou village was carried out. The aim of this project was to prepare a sustainable Marae management plan to help guide social, cultural and economic development for Ngāti Rangiwewehi, having regard to the known and /or foreseeable physical and environmental constraints, including the predicted impacts of climate change of the next 25 years. Ngāti Rangiwewehi has been utilising an in-house Geographical Information System (GIS) to support a number of its strategic goals and objectives including Waitangi Tribunal claims, local government engagement processes and of course the management and protection of its natural and physical resources. It was considered appropriate and prudent to therefore engage this technology to assist in the development of a sustainable Marae management plan. This report will form a platform upon which a stage 2 implementation plan will be based. Adaptation options include setting construction and development away from floodplains and flood zones, improving water supply, drainage and wastewater systems, and futureproofing new infrastructural developments such as the introduction of minimum floor levels for building. Adaptations such as these will contribute to making our community infrastructure more resilient to current and future climatic hazards. Further, designing and building new housing or infrastructure to cope with a changing climate is likely to be more cost effective than retrofitting later. Incorporating climate change issues into iwi management plans and meaningful participation in the development of local and regional planning, such as hazard management, are needed to prepare and reduce the exposure of our community to climate variability and change. A key outcome of this investigation included a strategic mapping analysis centred specifically on Tarimano Marae but including the wider communal lands and areas. The resulting map series now provides Ngāti Rangiwewehi with important spatial information on various environmental, social and economic factors that can now be used to provide detailed information when considering the future development of our community. Specific areas of focus included land tenure identification; historical survey maps and aerial photography, subsurface geology, ground and surface water analysis, vegetation and land cover information, and climate and atmospheric data mapping.


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The text reflects an impressive understanding of risks, coping capacity, adaptation, exposure and impacts of natural hazards and climate change. It provides a summary of the issues the iwi face (e.g. vulnerability to extreme weather), and actions (e.g. the investigation into impacts from climate change; designing and building new housing or infrastructure to cope with a changing climate). In addition, they are aware of the cost savings of implementing adaptation measures now (e.g. “…designing and building new housing or infrastructure to cope with a changing climate is likely to be more cost effective than retrofitting later”). Coastal issues One of the seven coastal issues Ngāti Rangiwewehi has documented is low-lying land flooding, and/or permanent inundation of this land. Flooding and/or drainage of low-lying lands is acknowledged as a development barrier and risk, adding to the cumulative impacts of unsustainable development in the Lower Kaituna/Maketu area and associated mitigation requirements which sky-rocket development costs. The lands known as Papahikahawai 1 and 2 has been significantly impacted by the modification of the lower Kaituna River and the Maketu Estuary. Modifications carried out by the local and regional authorities has led to the inundation of over 80% of the legally surveyed land area (87 hectares). Today, only 10 hectares remains above sea level, with the balance now part of the Maketu Estuary. The Ahu Whenua Trust is currently working with the Bay of Plenty Regional Council to find solutions for the betterment of the whenua and the estuary (see Figure 8.7).

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Figure 8.7

Aerial photographs showing the inundation of the Papahikahawai area over time (p46).

Within the Ngāti Rangiwewehi plan there is a section on flooding and drought protection, with the aim of “Restoring the catchment by encouraging actions that effectively buffer against flooding and drought” (p57). Associated actions are to “act in partnership with others to evaluate wetland restoration activities and changes to waterways and water tables in existing and restored wetlands as a way to monitor the recovery or capacity of catchments to buffer GNS Science Report 2017/50

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flood and drought effects” (p57). Potential external partners listed to meet this aim are regional and district councils, Ministry for the Environment, NIWA and Landcare. 8.4.2


The Ngāti Rangiwewehi plan outlines the legal context for Te Maru O Ngāti Rangiwhewehi, and its involvement in resource management within its rohe. It discusses the Treaty of Waitangi, the RMA and four other relevant statutes, in addition to 16 other statutes which are relevant. Details are provided on the RMA and IMPs, as reproduced below (p53): Through sections 66 (2a) and 74 (2a) Iwi management Plans have been given legislative recognition. Part II of the RMA also sets the purpose and principals of the Act and makes provisions for a Māori perspective to be considered by local authorities in their decision making processes. In regards to processing resource consents Iwi Management Plans such as this document shall be of assistance to local authorities in fulfilling section 104 of the RMA. 8.4.3

Consultation

The Ngāti Rangiwewehi plan establishes the principles for consultation and engagement with local authorities and external parties. Guidance is provided for how to consult under resource management and historic place matters, and the information that is required by Ngāti Rangiwewehi when seeking consultation with external parties in order to achieve mutually beneficial outcomes. The plan establishes the principles for consultation and engagement for Ngāti Rangiwewehi when working with external parties in order to reach meaningful and mutually beneficial outcomes. The principles include the ability and mandate to make decisions, face to face engagement, time to consider proposals, reciprocity, and hospitality to guests and visitors. There are also information requirements for any consultation with Ngāti Rangiwewehi that outline the expected amount and type of information to be provided when consulting with them.

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9.0

RECOGNITION OF IMP’S IN COUNCIL PLANS

The desktop analysis of IMPs included if they acknowledged council plans; an example of this recognition is from the Tauranga Moana IMP, which includes a diagram to represent the relationship between their plan and other plans and policies (see Figure 9.1). However, there is no reference to the regional Civil Defence Emergency Management Plan; this may reflect that the Tauranga Moana IMP does not have a focus on natural hazards, but on water quality.

Figure 9.1

Example of how IMP links to council plans (Tauranga Moana IMP 2016 p5)

This section outlines how council plans of the Bay of Plenty region acknowledge IMPs.

9.1

BOP REGIONAL POLICY STATEMENT

Within the Bay of Plenty Regional Policy Statement (RPS) there is an explicit section devoted to Iwi Resource Management Policies, in particular Policy IW 8D that specifically focuses on encouraging the development of iwi and hapū resource management plans. The policy states (p154–155): Encourage iwi and hapū to develop resource management planning documents that contain:


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a.

Specific requirements to address cultural issues pertaining to the management of water, land, air and geothermal resources, including mauri, and in relation to section 6(e), 7(a) and 8 of the Act;

b.

Protocols to give effect to their role of kaitiaki of water, land and geothermal resources;

c.

Instructions or protocols describing how the document is to be used, monitored and reviewed, including by Bay of Plenty Regional council, city and district councils and the community; and

d.

Sites of cultural significance identified using criteria consistent with those in Appendix F sets 4 (Māori culture and traditions) and 5 (Historic heritage). Explanation Iwi and hapū resource management plans are useful policy documents for identifying issues of significance to iwi and hapū and policies and methods proposed by iwi and hapū to address specific resource management issues within their rohe. These plans can assist local authorities with undertaking their obligations under Part II of the Act. They can assist local authorities where they contain information on how the authors intend them to be interpreted and implemented. Sensitive cultural information needs to be treated with care to avoid offence to tikanga Māori. A precautionary approach shall be taken to activities with unknown but potentially significant adverse effects on ancestral taonga. Where iwi management plans use the Statement Appendix F criteria to identify sites of cultural significance, their assessments must be recognised in resources consents and plan change processes.

This provides a very strong policy direction for the development of IMPs, their value and use.

9.2

PROPOSED BOP REGIONAL COASTAL ENVIRONMENTAL PLAN

The Proposed Regional Coastal Plan (dated 28 April 2017, partly operative) refers to iwi management plans (and/or any other relevant planning documents to iwi) in the sections on natural heritage, water quality, iwi resource management, and historic heritage, as well as in two schedules: Natural Heritage: Policy NH 9A Recognise and provide for Māori cultural values and traditions when assessing the effects of a proposal on natural heritage, including by: (d)

Applying the relevant Iwi Resource Management policies from this Plan and the RPS.

Water Quality: Policy WQ 2 To take into account the recommended actions, objectives and policies of the following documents when making decisions on the management of land and water resources, including coastal waters, in the Bay of Plenty region:

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(d)

Any relevant planning document that is developed as a result of Treaty of Waitangi Settlement agreements or recognitions made under the Marine and Coastal Area (Takutai Moana) Act 2011; and

(e)

Any relevant iwi or hapū resource management plan (e)recognised by an iwi authority and lodged with the Regional Council. GNS Science Report 2017/50

Iwi Resource Management: Policy IW 1 Proposals which may affect the relationship of Māori and their culture and traditions must recognise and provide for: (c) Areas of significant cultural value identified in Schedule 6 and other areas or sites of significant cultural value identified by Statutory Acknowledgements, iwi and hapū resource management plans or by evidence produced by tāngata whenua and substantiated by pūkenga, kuia and/or kaumatua. Policy IW 4

The following shall be taken into account during decision-making:

(a) The consistency of the proposal with any iwi or hapū resource management plan recognised by an Iwi Authority and lodged with the Regional Council that applies to the area affected; and (b) Recognition provided under any other legislation – including but not limited to: Treaty of Waitangi settlements; gazetting of Rohe Moana and Mātaitai under the Kaimoana Customary Fishing Regulations 1998 and the customary rights recognitions available under the Marine and Coastal Area (Takutai Moana) Act 2011. Historic Heritage: Policy HH 1 Protect historic heritage resources within the Bay of Plenty coastal marine area that are: (d) Identified in any iwi and hapū resource management plan; Policy HH 2 When making decisions on any subdivision, use or development that may have an adverse effect on historic heritage resources in the coastal environment, regional, district and city councils shall: (c) Ensure matters of significance to Māori are managed in accordance with RPS Policies IW 2B, IW 4B, and IW 5B and the policies specific to Māori cultural heritage in Section 3 - Iwi Resource Management of this Plan. Coastal Hazards: Policy CH 8A Having particular regard to Policies IW 1 and CH 7 when considering the most appropriate methods for protecting coastal urupā from the effects of coastal erosion [Policy IW 1 being a direct link to IMPs]. Reference is also made in Schedule 3 on Outstanding Natural Features and Landscapes (ONFL) in the Coastal Environment, in that the method of assessing criteria for Māori values is to: Review of information collated from iwi and hapū management plans, Treaty Settlement documents, customary fishing recognitions provided under the Fisheries Act. There is also specific mention of iwi and hapū management plans for specific areas of ONFL within Schedule 3; and Schedule 6 – Areas of Significant Cultural Value, also includes reference to iwi management plans.


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9.3

DISTRICT PLANS

9.3.1

Tauranga City Plan

The Tauranga City Plan became operative on 9 September 2013. The plan defines IMPs as planning documents recognised by an Iwi Authority, and that these plans must be taken into account when preparing the Plan (Section 2A p2). The Plan provides a graphic showing the context of plans under the RMA (see Figure 9.2), which includes where IMPs sit within the hierarchy of plans.

Figure 9.2

9.3.2

Context of plans under the RMA, as presented in the Tauranga City Plan (Section 2A, p1).

Western Bay of Plenty District Plan

The Western Bay of Plenty District Plan became operative on 16 June 2012 (excluding Matakana Island, which became operative from 19 December 2015). The only reference to IMPs is in the explanatory statement for Section 5 - Natural Environment, which states that: “Significant Ecological Features may be located on multiple owned Māori land. In these instances, Council recognises the contribution of iwi management plans” (Section 5 page 2). 9.3.3

Whakatāne District Council

The Whakatāne District Plan became operative on 21 June 2017, and has relatively extensive acknowledgement of IMPs. Section 1.3 on legislation and planning documents includes a graphic showing the context of RMA plans, which includes IMPs (see Figure 9.3).

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Figure 9.3

RMA context for the Western Bay of Plenty District Plan (p1-5).

Figure 9.3 is supported by the following statement in Section 1.3.7 (chapter 1 p1–6, emphasis added): Iwi and Hapū Management Plans: The RMA states that the Council must take into account any relevant planning document by an iwi authority and lodged with the Council. A number of iwi management plans have been received by Council’s Iwi Liaison Committee and the minutes acknowledged by Council. Hapū management plans may be prepared by hapū within the District and can form part of an iwi management plan, or be standalone documents. Iwi and hapū management plans provide useful information and guidance to Council when assessing the impact of activities on the environment and also assist our consultation process. These plans provide an understanding of iwi and hapū aspirations. As iwi and hapū build capacity through Treaty settlements, the number of plans is likely to increase as iwi and hapū become more engaged in resource management issues. In addition, Chapter 2 (Strategic) includes in ‘other methods’ that (emphasis added): 2.5.1 Council will work with tangata whenua to identify and formalise appropriate consultation processes, for example through Iwi Management Plans, memorandums of understanding and other agreements, the use of iwi and hapū contact databases, and spatial information systems. Chapter 15 on indigenous biodiversity under Objective 1B1 Policy 2 includes reference to IMPs, and Chapter 16 on heritage includes under ‘other methods’ (emphasis added): GNS Science Report 2017/50

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16.6.1.1 The Council will … c) work with iwi and hapū to include information from iwi management plans, including sites of significant, in Council’s GIS system; and d) consider including additional sites of significance in Schedule 16.7, in consultation with iwi and hapū and affected landowners, through a variation or change to the Plan. 9.3.4

Kawerau District Council

The Kawerau District Plan become operative on the 1 May 2012. In section A1.3 ‘Other statements and plans to be considered’, it states: Iwi Planning Documents - Local Iwi planning documents establish protocols for dealings with matters that may affect statutory areas or sites of significance and consultation. Council can advise further in this regard. This limited acknowledgement of IMPs could be expanded in the future to other specific issues beyond sites of significance. 9.3.5

Ōpōtiki District Council

While Ōpōtiki has an operative plan (dated 22 September 2005); their Proposal District Plan is being developed, with submissions heard during July and August of 2017. As such, this assessment has been made on the operative plan, as the planning provisions can change during the submission process. Under Section 2 ‘Relationship with other planning agencies’ of the District Plan, it states that: Council must have regard to Planning documents recognised by an Iwi authority or Hapū, such as the Tawharau o Nga Hapū o Whakatohea - Whakatohea Resource Management Plan (p18). In regard to the Treaty of Waitangi, the District Plan includes the provision to “ensure recognition of, or provision for relevant planning documents prepared by iwi and/or hapū” (p19). This limited acknowledgement of IMPs could be expanded in the future to address other specific issues. 9.3.6

Rotorua District Council

The Rotorua District Plan became operative on 10 July 2016. IMPs are addressed in three areas: 3.2.3 Sustainable development of Māori Land (Part 3 Iwi cultural and historic heritage and economic resources, p3.3): Resource consents or Iwi and Hapū management plans can be prepared by Iwi for the future intended development of Māori land. Such development may include Marae, papakāinga, kaumātua housing, habitat/wetland restoration, and commercial activities such as tourism ventures, business hubs, fishing, aquaculture, forestry and geothermal energy production. Iwi and Hapū management plans need to be lodged with the council and taken into account in planning documents and decision making. 50


Objective 3.3.2 - Resource management decisions that give appropriate weighting to the relationship of tangata whenua with water, the lakes, rivers, and streams of the district, is followed on with Policy 3.3.2.3 p3.4: Consider Iwi and Hapū management plans, or memoranda of understanding between Iwi and the council (available on the Council’s website) when making decisions on resource consents and plan changes. And section 3.9.1 General assessment criteria for discretionary activities: The extent to which policies of any Iwi and Hapū management plan, conservation plan and heritage inventory relating to the heritage resource are achieved. 9.3.7

Taupō District Council

The Taupō District Plan was made operative on 11 October 2007, and was reviewed on 19 October 2017. IMPs are briefly acknowledged under Section 1.4 Other national plans and documents: There are a number of planning and policy documents in this country which contribute to the sustainable management of New Zealand's resources. The District Plan must work in conjunction with these other documents, which may include: iwi management plans. They are also mentioned in the section on Land Development (Section 3e.7) Structure Plan process: The overall outcomes desired of the structure plan should have regard to Urban Growth Areas, and as applicable: national policy directions, regional policy statements and plans, regional land transport strategies, community outcome statements in Long Term Council Community Plans, District Plan, Council development guidelines, and iwi management plans. Similar to other district plans, there is an opportunity in the future to make more explicit and specific text with regards to the alignment of policies and outcomes between the district plan and IMPs.

9.4

RECOGNITION OF IMP’S IN CDEM PLANS

There is a lack of recognition of IMPs in CDEM plans throughout the region, highlighted in Table 9.1 below.


51

Table 9.1

Recognition of IMPs in CDEM plans of the Bay of Plenty region.

Title & Description

Reference to IMPs

Rotorua Lakes Council CDEM Plan 2015

No

The purpose of this Plan is to provide a framework for civil defence and emergency management decisions to be made in respect of Rotorua Lakes Council BOPCDEM Group Recovery Plan 2015

No

The purpose of this plan is to ensure a sound recovery capability across the Bay of Plenty Civil Defence Emergency Management Group (the Group) by confirming the recovery arrangements, including roles and responsibilities, structures and processes, required to support local disaster recovery management. Ōpōtiki District Council CDEM Plan 2012

No

The purpose of this Plan is to provide a framework for civil defence and emergency management decisions to be made in respect of Ōpōtiki District Council. Whakatāne District Council CDEM Plan 2012

No

The purpose of this Plan is to provide a framework for civil defence and emergency management decisions to be made in respect of Whakatāne District Council. BOPCDEM Distant-Source Volcanic Plan 2012

No

This is a Bay of Plenty CDEM Group plan. This guiding document provides information on the potential impact of volcanic ash fall in the Bay for the CDEM Group. It also provides direction to agencies and sectors for their planning preparation and response to volcanic ash fall. Bay of Plenty CDEM Group Plan 2012-2017

No

The purpose of this Plan is to provide a framework for civil defence and emergency management decisions to be made across the Bay of Plenty. BOPCDEM Group Public Education Strategy 2012-2017

No

Through this Strategy we aim to do that by increasing awareness and understanding; increasing the participation of our community; and implementing a monitoring and evaluation process. Kawerau District Council CDEM Plan 2011

No

The purpose of this Plan is to provide a framework for civil defence and emergency management decisions to be made in respect of Kawerau District Council. BOPCDEM Group Alerting and Communication Strategy

No

The purpose of the Alerting and Communications Systems Strategy is to clearly define the principles around the adoption and implementation of emergency alerting and communication systems. Source: http://bopcivildefence.govt.nz/documents/cdem-plans/, 11 August 2017.

52


10.0

DISCUSSION

The findings of this research can be summarised into three key issues: the inclusion of natural hazards in IMPs; calls for action in IMPs; and the variability and lack of acknowledgement of IMPs in other plans. Each of these are discussed below, with questions raised for the next stage of the research project.

10.1

INCLUSION OF NATURAL HAZARDS IN IMPS

Of the 29 IMPs lodged with the Bay of Plenty Regional Council, 21 plans were analysed for their natural hazard provisions, linkages to other plans and policies, and consultation process. Of these 21 IMPs, only six included reference to natural hazards, to different degrees; some had specific and explicit information on natural hazard risks and climate change; others were more general. Based on the content of these six plans, four were analysed in more detail to ascertain to what degree natural hazards were included. Given the number of natural hazards in the Bay of Plenty (outlined in Section 3), history of hazardous events, and the availability of natural hazard information (i.e. through the online BayHazards application, although it is noted that this has only been available for a short time), it is surprising that natural hazards and climate change are not more recognised as an issue for iwi of the region. In particular, climate change will exacerbate many hazards, and needs to be taken into account now in order to make sustainable decisions for the future. The lack of recognition of natural hazards in many IMPs may be due to competing priorities (e.g. water quality); the reasons for this lack of acknowledgement will be investigated further in the next stage of the research. All four IMPs discussed in Section 8 (Ngāti Rangitihi, Matakana and Rangiwaea Islands, Raukawa and Ngāti Rangiwewehi) included natural hazards and climate change into their plans in a very comprehensive way. They were written for Council, so theoretically they should be ‘easy’ to incorporate into decision making. They provide clear guidance as to their needs, actions, and aspirations for their iwi.

10.2

CALLS FOR ACTION

The IMPs further analysed in Section 8 had some very explicit calls for action. For example, the Matakana and Rangiwaea Islands clearly expressed a need for a tsunami warning system. This call for action needs to be bought to the attention of the emergency management office (EMO), as it provides a clear direction of need that the EMO can address. Similarly, Raukawa state in their IMP that they are not well informed about climate change; do not understand the effects of climate change; and are unclear as to their role in regional and local government. This call can be easily remedied with Council staff engaging with Raukawa to share information on climate change, and discuss together the role each can play in governance. IMPs are valuable documents that can provide many actions for Councils to follow up on, some of which will be aligned with their own policies/programs/outcomes. The opportunity for sharing information (two ways between councils and iwi), and having a consistent approach to natural hazard management and climate change adaptation, is wide open.


53

10.3

ACKNOWLEDGEMENT OF IMPS IN OTHER PLANS AND POLICIES

The acknowledgement of IMPs in and regional district plans is variable; the Regional Council RPS and proposed Regional Coastal Environment Plan have comprehensive acknowledgements; while some district plans make ‘token’ reference to them (e.g. Kawerau). Others (i.e. Whakatāne District Plan), also have comprehensive acknowledgements and actions of IMPs. For the Regional Council, this level of inclusion is expected, as they contribute funding for the development of IMPs in the region. However, the variability between district plans is large. This leads to a research question for the next stage of this project – whether the regional council evaluates the implementation of IMPs within the districts. No CDEM Plans refer to IMPs, and yet some of the IMPs analysed (e.g. Raukawa, Matakana and Rangiwaea Islands) have clear calls for actions around CDEM. CDEM officers need to be aware of IMPs, and work with iwi to fill gaps in need, share information, and improve understanding between both iwi and CDEM officers. This will increase the resilience and sustainability of Maori communities across the Bay of Plenty.

10.4

RESEARCHER OPPORTUNITIES

When developing research proposals/projects, a first step in developing iwi relationships is for researchers to see if there is an IMP in the location of their research. This can be a desktop exercise, and if an IMP does exist, then the proposed project should be assessed against the needs and priorities presented in the respective IMP. Gaps in knowledge within IMPs is also important - for example, the Bay of Plenty case studies have shown that sea level rise is a gap in many IMPs, which could be addressed in the future through the co-development of a research project.

10.5

QUESTIONS FOR FURTHER RESEARCH

This stage of the research has raised a number of questions that will be further investigated in the next stage of the research. Questions that direct the next stage of the research will include (but are not limited to): •

How do iwi prioritise the issues in their IMPs?

•

How do iwi gather information on natural hazards?

•

What are the barriers for iwi to include natural hazard management and climate change adaptation into their IMPs?

•

What opportunities exist to strengthen the linkage between producers of natural hazard and climate change information, iwi and councils?

•

How do councils use IMPs? Are council staff aware of IMPs?

•

Does the BOPRC (who fund IMPs), evaluate their implementation at a district level?

•

How can natural hazard research be shared with iwi?

•

Is an alternative planning framework required, based on the Principles of the Treaty of Waitangi?

54


11.0

CONCLUSION

This research, based on IMPs in the Bay of Plenty region, has shown they are extremely valuable resources which document iwi issues, actions, and aspirations. The four IMPs that were further analysed were well structured, written for ease of use by councils’ staff, and comprehensive in the way they addressed natural hazards and climate change. They have huge potential to influence policy and decision making, if used to their full potential. This stage of the research has raised further questions around the use of IMPs, both from a land use planning and emergency management perspective; and from a sharing of knowledge perspective. This research is based on the Bay of Plenty IMPs only; it will not reflect IMPs elsewhere in the country, many of which may include natural hazard policies.

12.0

ACKNOWLEDGEMENTS

This research would not have been possible without the support from the Mātauranga Māori and Governance programmes of the ‘Resilience to Nature’s Challenges’ National Science Challenge; Maureen Coomer for tabulating the analysis data in SPSS; and reviewers Lucy Carter from the Joint Centre of Disaster Research, Bevan Hunter and Diane Bradshaw from GNS Science, and Garth Harmsworth from Landcare Research.

13.0

REFERENCES

BayHazards. c2018. Whakatane (NZ): Bay of Plenty Regional Council; [accessed 2018 Mar 01]. https://www.boprc.govt.nz/residents-and-communities/natural-hazards-living-withrisk/bayhazards/ BOPEM. 2017. Slope Instability (Landslide, Debris Flow, Slumping). [Whakatane] (NZ): Bay of Plenty Civil Defence Emergency Management Group. Bay of Plenty Regional Council. 2011. Ngā Tikanga Tuku Awhina ā Te Kaunihera mo ngā Mahere Whakahaere Rawa a ngā hupū/iwi a-rohe: Policies and procedures for funding to develop hapū/iwi resource management planning documents of our region. Whakatane (NZ): Bay of Plenty Regional Council, Māori Policy Section. Bay of Plenty Regional Council. 2016. Bay of Penty Regional Policy Statement. Whakatane (NZ): Bay of Plenty Regional Council. MCDEM. 2008. National Civil Defence Emergency Management Strategy 2007 Wellington (NZ): Department of Internal Affairs. Saunders WSA. 2017. Setting the scene: the role of iwi management plans in natural hazard management. Lower Hutt (NZ): GNS Science. 34 p. (GNS Science report; 2017/30). Saunders WSA, Beban JG. 2012. Putting R(isk) in the RMA: Technical Advisory Group recommendations on the Resource Management Act 1991 and implications for natural hazards planning. Lower Hutt (NZ): GNS Science. 52 p. (GNS Science miscellaneous series; 48).


55

APPENDICES

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A1.0

APPENDIX 1: IMP ANALYSIS PROTOCOL

Summary

Description

Coding

Comments

IMP

Name of IMP

Year

Year of publication

Purpose

Does the plan have a clear purpose?

1 = yes

2 = no

Rohe map

Is a map included of the area?

1 = yes

2 = no

Issues

Does the plan identify issues for the iwi?

1 = yes

2 = no

Hazard issues

Are natural hazards identified as an issue?

1 = yes

2 = no

Can be for a specific hazard

Objectives

Does the plan include objectives for the iwi?

1 = yes

2 = no

May also be aims, goals

Hazard objectives

Are natural hazards identified within objectives?

1 = yes

2 = no


Policies

Does the plan include policies?

1 = yes

2 = no

Hazard policies

Are natural hazards identified within policies?

1 = yes

2 = no


Methods

Are methods of implementing policies outlined?

1 = yes

2 = no

Can be an action

Hazard methods

Are natural hazards included in methods?

1 = yes

2 = no


Outcomes

Are anticipated outcomes of the policies outlined?

1 = yes

2 = no

Hazard outcomes

Are outcomes related to natural hazards?

1 = yes

2 = no

Consultation process

Is the consultation/engagement process with the iwi outlined?

1 = yes

2 = no

What hazards are included?

If natural hazards are included in the plan, which ones?

1 = yes

2 = no

Flood

Flood

1 = yes

2 = no

EQ

Earthquake

1 = yes

2 = no

CC

Climate change

1 = yes

2 = no

Erosion

Erosion (primarily, as a hazard rather than an effect)

1 = yes

2 = no

Tsunami

Tsunami

1 = yes

2 = no

SLR

Sea Level Rise

1 = yes

2 = no

Coastal

Coastal

1 = yes

2 = no

Drought

Drought

1 = yes

2 = no

Other

Any other hazards e.g. fire

1 = yes

2 = no

Reference to planning documents

Does the plan refer to other planning documents?

1 = yes

2 = no

RPS

Regional Policy Statement

1 = yes

2 = no

DP

District Plan

1 = yes

2 = no

CDEMGP

CDEM Group Plan

1 = yes

2 = no

RP

Regional Plan of any type

1 = yes

2 = no

Other

Any other plan (e.g. Smartgrowth)

1 = yes

2 = no

EM?

Are emergency management functions and responsibilities included?

1 = yes

2 = no

Plan reference

Whereabouts in the plan the hazards info is located


Hazards must be primary, not secondary e.g. Water pollution from flooding would not count as the primary concern is pollution, not the flooding

* natural hazards include climate change* * related to natural hazards e.g. not secondary i.e. sedimentation * must be explicit e.g. protection of riparian margins not enough, must be specifically for reducing flood risk

58


A2.0

APPENDIX 2: RESULTS OF IMP ANALYSIS

IMP

Rohe Hazard Hazard Year Purpose map Issues issues Objectives Objectives Policies

Hazard Hazard Hazard Consultation Policies Methods methods Outcomes outcomes process

Reference to planning documents

What hazards are included? Flood EQ CC Erosion Tsunami SLR Coastal Drought Other

Ngati Pukenga Resource Management Plan Tapuika Environmental Management Plan

2013 20142024

DP's

Plan reference

RPS RP CDEMGP Other EM?

1

1

1

2

2

2

1

2

1

2

1

2

1

1

2

1

2

1

2

1

1

1

2

2

2

1

2

1

2

1

2

1

2

2

2

1

2

2

2

2

2

1

2

2

2

2

2

Whaia te mahere taiao o Hauraki - Hauraki Iwi Environmental Plan

2004

1

1

1

1

1

1

2

2

2

2

1

1

2

1

2

1

2

2

2

2

1

2

2

2

2

2

1

2

Ngati Whakaue ki Maketu IMP Phase 2

2011

1

1

1

2

2

2

2

2

1

2

1

2

1

2

2

2

2

2

2

2

2

2

2

1

2

2

1

2


2012

1

2

1

2

1

1

2

2

1

2

2

2

1

2

2

2

2

2

2

2

2

2

1

2

2

2

2

2

Ngati Kahu Hapu Environmental Management Plan Ngāi Te Ahi Hapu Management Plan Ngāti Pūkenga Iwi ki Tauranga Trust IMP Te Mana Taiao O Ngāi Tamarāwaho HMP Ngai Tukairangi Ngai Tapu HMP Ngāi Tamawhariua HMP Waitaha IMP Tauranga Moana IMP A joint enviornmental plan for Ngāti Ranginui, Ngāi Te Rangi and Ngāti Pūkenga Matakana and Rangiwaea Islands HMP Pirirakau HMP

2011 2013 2013 2014 2014 2015 2014 20162026 2017 2017

1 1 1 1 1 1 1

1 1 1 1 1 1 1

1 1 1 1 1 1 1

2 2 2 2 2 2 1

2 2 2 2 2 1 2

2 2 2 2 2 2 2

1 2 1 2 1 2 2

2 2 2 2 2 2 2

1 1 2 1 1 2 1

2 2 2 2 2 2 2

1 1 1 2 2 2 1

2 2 2 2 2 2 2

1 1 1 1 1 1 1

2 2 2 2 2 2 2

2 2 2 2 2 2 2

1 2 2 2 2 2 1

2 2 2 2 2 1 1

1 2 2 2 2 2 2

2 2 2 2 2 2 2

2 2 2 2 2 2 2

2 2 2 2 2 2 2

2 2 2 1 2 2 2

1 1 1 2 1 2 1

1 2 2 2 1 2 1

1 1 1 2 1 2 1

1 2 2 2 2 2 2

1 2 1 2 1 2 1

2 2 2 2 2 2 2

1

1

1

2

1

2

1

1

2

2

2

1

2

2

2

2

2

2

2

2

2

1

1

1

2

1

2

1 1

1 1

1 1

1

1 2

2 2

1 1

1 2

1 1

1 2

1 1

1 2

1 1

1 2

1 2

1 2

1 2

1 2

1 2

1 2

2 2

1 2

1 1

1 1

2 2

2 2

1 1

2 1

Ngāti Rangiwewehi Iwi Environmental MP Ngāti Tamateatutahi-Ngāti Kawiti HMP Raukawa Environmental Management Plan Ngāti Kea Ngāti Tuara Iwi Enviornmental MP Ngati Whare IMP

2012 2015 2015 2016 2011

2 1 1 1 1

1 1 1 1 1

1 1 1 1 1

1 2 2 2 2

1 1 1 1 2

2 2 1 2 2

2 1 2 2 1

2 2 3 2 2

1 1 1 1 1

1 2 1 2 2

2 1 1 2 1

2 2 1 2 2

1 1 1 1 1

1 1 1 2 2

2 1 2 2

1 2 1 2 2

1 2 2 1 1

2 2 2 2 2

2 2 2 2 2

1 2 2 2 2

1 2 2 2 2

2 2 1 2 2

1 1 1 1 1

2 1 1 1 2

2 1 1 1 1

2 2 2 2 2

1 1 1 1 1

2

Ngāti Rangitihi Iwi Environmental MP

2011

1

1

1

1

1

1

1

1

1

1

2

2

1

1

1

1

2

2

1

1

2

1

1

1

1

2

1

2


2 2

2.3 PROTECTING & RESTORING COASTAL DUNE LANDS 2.4 PREVENTING FLOOD & DROUGHTS, p33; flood reduction p38 pg 146; App 1 - science & research. 33.7.2 Objective: To protect resources and areas of value to Ngāti Te Hapu that may be vulnerable to erosion or other hazards where practicable (p165, 170) Tsunami specifically addressed in section 3.10.1 p32; Climate change section 4.2.2 p39;

Storms mentioned p11 wrt erosion of waterways

Climate change p81 Policy 36.1(c) How to align – in a practical sense – mātauranga and tikanga Maori with science and planning (p72. POLICY 37 Policy 37 Increase knowledge and understanding of resource management issues, approaches and processes (p73) p35 tsunami warning system required, p46 Nat Haz issues, policies, p53 Fire risks p39 EM response p30 CC section, p45 coastal flooding, p57 flooding & drought p36 flooding mentioned Chapter on CC and natural hazards, CD mentioned

p11 description of 1886 Tarawera eruption. p34-36 Section on natural hazards. Policy - A precautionary approach shall be used in avoiding, remedying, or mitigating the adverse effects on development, of earthquake, volcanic activity, sea level rise and global climatic change.

59

A3.0

60

APPENDIX 3: MATAKANA AND RANGIWAEA HMP PROCESS FOR CONSULTATION AND ENGAGEMENT


A4.0

62

APPENDIX 4: CLIMATE CHANGE AND NATURAL HAZARD SECTIONS OF TE RAUTAKI TAIAO O RAUKAWA (RAUKAWA ENVIRONMENTAL MANAGEMENT PLAN) 2015


128 TE RAUTAKI TAIAO A RAUKAWA

Section 2.9 Climate Change – Te Hurihanga o te Āhua o ngā Rangi 2.9.1 Issues Statement – Climate Change Raukawa understand that we are living in a prolonged period of technological development, and societal and cultural change, with unprecedented and unrelenting population growth. We recognise that these changes have brought us increased affluence, improved health and life expectancy, and access to unimagined technologies, all of which have fundamentally changed the way that Raukawa live, work, and play. We fully recognise that these changes have not come without significant cost. We also recognise the significant cost of these changes and that these costs have been largely borne by the natural capital that lies within our environment and felt most by those who are socially and economically marginalised within our communities. Finally, we recognise that our connection to all things within the environment implies an intergenerational duty of responsibility for our actions and behaviours that rests with Raukawa uri as individuals, as collectives, and as members of the broader global community.

Some of the current issues in the takiwā include: •

We are not well informed about the challenges climate change will present, and how their behaviour and choices can increase or decrease our contribution to climate change.

•

We do not fully understand the effects of climate change on our biodiversity taonga, our current primary productive practices, and our economies.

2.9 CLIMATE CHANGE – TE HURIHANGA O TE ĀHUA O NGĀ RANGI 129

• We are unclear as to the role that Raukawa will play amongst the Waikato regional local government nexus. • Our marae and dwellings have not been planned for, nor designed in anticipation of, the effects of climate change such as changing weather patterns and intensities. • We have not undertaken a takiwā wide risk assessment of our marae, papakāinga, and industry/ production assets. • We do not have comprehensive response plans in place for our people and places in the event of emergency. • There is a strong continuing reliance upon carbon based energy, particularly for transportation, with growing emission levels. • RCT/RST/RIDL does not currently have a policy on climate change to influence and guide Raukawa decision-making.

2.9.2 Vision Climate Change

Statement

–

Raukawa acknowledge and understand the concept of Te Ao Hurihuri, that is, all existence is in a constant state of motion. Equally Raukawa realise that we are living in a period of unprecedented change, which can be attributed to an imbalance in environmental mauri as a direct result of the effects of current human activity and behaviour. Our planning horizons are therefore intergenerational in outlook.

Raukawa understand and proactively plan for the anticipated effects of climate change. Our people embrace low carbon living, and support renewable sources of energy as a means for providing for our lifestyle within a low environmental footprint. Our marae, papakāinga, homes, workplaces, and developments have been designed to meet the foreseeable effects of revised weather patterns and intensities. Our communities are strong and prepared, with comprehensive civil defence plans in place across the takiwā, with our marae as central community civil defence posts. We have strong and well tested support emergency planning and provisioning agreements in place with our surrounding iwi. Our primary production systems and management regime planning ensures that Raukawa farms, gardens, and plantations anticipate climate change effects on stock and crops and the need to respond to changing conditions. Our farming infrastructure is able to cope with increased volumes and intensity of rainfall, ensuring our farms remain highly profitable and establish best practice within the takiwā at all times. Soil erosion is managed andmitigated through whole of operations planning. Raukawa work with government agencies and external stakeholders to promote the uptake of smaller grids and infrastructure systems, providing for systems resilience within our communities, particularly during natural emergencies.


Pohatura and Lake Atiamuri with MRP hydro station. Pohaturoa is a key landmark or Pou for Raukawa and is seen from Lake Atiamuri


Section 2.9.3 Objectives • Our world view is revitalised, normalised, and underpins our lives and identity. • Our world view is shared, acknowledged, and applied. • Raukawa and all partners will fulfil their obligations and responsibilities for mutual benefit. • RCT and its partners will promote internships and educational scholarships that support a focus on improved environmental outcomes. • RCT and its partners educational opportunities.

will

support

partnerships,

2.9.4 Kete for Kaitiaki

2.9.5 Methods

Energy use

Raukawa

K1

M1

K2

Insulate your house as well as your budget allows. Heat escapes from the ceiling, walls, floor, and windows. Block off your house.

any

draughts

research,

RCT to co-partner with agencies to secure up to date information on Climate Change including: a. Science and research. b. Alternative energy and energy efficiency.

in

c. Transport efficiency. K3

K4

Switch off any appliances at the wall – appliances left on standby are using up power. Keep heat from escaping your windows with sealing, double glazing, or thermal-lined curtains.

d. Climatic predictions for the takiwā. e. Information to support uri ‘kete for kaitiaki’. M2

RCT will collaborate with agencies

and


K5

Use efficient heating, such as a heat pump.

to investigate the development of a resilience profile for the Raukawa takiwā including:

K6 Consider efficient water heating systems such as solar water heating or heat pump water heating.

a. Likelihood of extreme events.

K7

c. Predicted effects on biodiversity.

K8

b. Building resilient homes, marae, and business.

When buying new appliances, look at the energy rating labels to make sure it is energy efficient.

d. Predicted climatic changes for the takiwā. e. Reponses for Raukawa uri to climate change and extreme events.

Alternative energy sources such as windmills and solar panels are becoming more popular, and could suit your lifestyle.

Transport K9 Reduce vehicle use by using public transport, car pooling, walking, or cycling. K10 Purchase a fuel-efficient, low greenhouse gas producing vehicle. K11 Consider how you drive: maintaining steady speeds, driving smoothly, reducing idling time, and keeping your load down can all contribute to reduced emissions. K12 Maintain your vehicle with regular services and ensuring tyre pressure is maintained at the appropriate level.

M3 Within the Raukawa Sustainable Farming strategy Raukawa will consider the options and alternatives for farming readiness for climate change. M4 RCT will develop a hub of information and resources to assist uri with preparedness for climate change. M5

RCT will collaborate with partners to investigate the development of a Raukawa Environment Centre – a place to get up to date information and resources about the environment.

M6 Where appropriate, RCT will work with marae to ascertain climate change risk and mitigation strategies.


K13 Consider appropriate.

bio-fuels

where

M7 RCT will work with our partners to develop a Climate Change policy document to guide decision-making.

Afforestation M8

RCT, RST, and RIDL will advocate for and promote the uptake and use of environmentally friendly and sustainable homes, marae, and business practices, including the use of clean technologies, energy, waste, and water reduction and efficiency methods, efficient appliances etc.

M9

RCT, RST, and RIDL will minimise effects on Papa-tū-ā-nuku and Ranginui through sustainable corporate practices such as procurement and design guidelines (e.g. motor vehicle purchasing and use, transport planning, and building energy efficiencies etc).

K14 Look at opportunities to plant trees at home or around your marae, this will help to reduce carbon dioxide emissions to the atmosphere. K25 Make sure you replace any trees you cut down to absorb the carbon dioxide released during harvest.

M10 Raukawa will support and collaborate with partners to promote and implement tree planting projects to offset and mitigate climate change.

RCT Environment Group Staff and Waikato Regional Council at Pikitu Marae

M11 RCT will advocate for afforestation as a mitigation tool for climate change. M12 RCT will partner with stakeholders to develop opportunities for afforestation within the Raukawa takiwā.


M13 Raukawa will promote and advocate for responsible consumption practices that include, where appropriate, buying locally, buying products that have a low footprint, and buying products with less packaging.

Raukawa Partners M14 Government agencies and local authorities should collaborate with RCT in developing a resilience profile for the Raukawa takiwā including: a. Likelihood of extreme events. b. Building resilient homes, marae, and business.

c. Transport efficiency. d. Climatic predictions for the takiwā. e. Information to support uri ‘kete for kaitiaki’. M16 Government agencies and local authorities will continue to provide opportunities for RCT to participate in working groups and policy development workshops addressing climate change issues. M17 Government agencies and local authorities should ensure mātauranga Māori is used in collaboration with western science in the development of climate change policy and science.

c. Predicted effects on biodiversity. d. Predicted climatic changes for the takiwā. e. Reponses for Raukawa uri to climate change and extreme events. M15 Government agencies and local authorities should copartner with RCT to provide up to date information on Climate Change including: a. Science and research. b. Alternative energy and energy efficiency.

M18 Government agencies and local authorities should ensure policy responses to climate change do not exacerbate health and housing issues in low socio-economic communities. M19 Government agencies should coordinate with RCT at all levels to remove uncertainties with climate change policy. M20 NZTA and local authorities to collaborate with Raukawa on opportunities to improve public and shared efficient transport.

2.10 NATURAL HAZARDS – NGĀ AITUĀ TAIAO 135

Section 2.10 Natural Hazards – Ngā Aituā Taiao 2.10.1 Issues Statement – Natural Hazards Our takiwā is situated in the shadow of the tūpuna maunga of the central plateau and the Kaimai-Mamaku, and we live with the tangible evidence of volcanic activity reflected in our landscapes on a daily basis. As possibly the defining landscape characteristic of our takiwā, water in its many forms is ever present. High winds regularly blow across our takiwā, with an increasing regularity of cyclones likely to occur based on climate change predictions for our takiwā.

In their normal benign form and displaying gentle demeanour, our atua work together to provide place and means for our lives and livelihoods. At times, however, Tāwhirimātea and Rūaumoko conspire to wreak havoc on our lands, waters, forests, farms, and our lives reminding us of their presence, power, and authority. Raukawa live with our own environmental knowledge and mātauranga handed down to us, and we need to be able to utilise this knowledge to assist us to be ready for the challenges presented by natural disasters and emergencies.

The current issues in the takiwā include: •

In general our Raukawa uri are not well informed about the challenges posed in the event of natural disaster.

•

We do not have comprehensive response plans in place for our people, or places to meet in emergencies to respond to natural disasters.

•

We have not undertaken a takiwā wide risk assessment of our marae, papakāinga and farming assets.

•

Our marae, papakāinga, offices, and dwellings have, for the most part, not been constructed to current building code and may present personal risk in the event of a


large earthquake. • We need to build resilience into our primary production industry systems to provide for personal safety, farming infrastructure (e.g. effluent storage), and animal welfare in the event of severe flooding. • We are unsure of natural hazards planning by local authorities and government agencies within our takiwā and how this is rolled out beyond individual local authority jurisdictions. •

We are unclear as to the role Raukawa are to play within the Waikato regional/ local government nexus in times of natural disaster.

• With the space and facilities offered by Raukawa marae, these places make natural community civil defence points in times of emergency and community need. We need to formalise this community function with our marae and local authorities to define their civil defence responsibilities and planning.

2.10.2 Vision Natural Hazards

Statement

–

Raukawa see that our kaitiaki and manaaki roles and responsibilities are key in the event of natural disasters and events occurring within our takiwā. Our marae form a core component of the broader

Civil Defence network as local civil defence points, and marae communities are trained in civil defence processes and procedures. Raukawa actively engage with local government and government agencies to ensure comprehensive and current natural hazards risk assessment and planning extends across the entire takiwā, as opposed to being focused on local government boundaries. Raukawa risk assessment and planning ensures marae and other Raukawa developments are located appropriately to manage and minimise risk to both built form and our communities Disaster planning is managed by marae, at marae rohe level, as part of a comprehensive Raukawa plan for the takiwā. Raukawa uri housing is of a high standard to ensure personal safety. Raukawa uri are well informed of natural hazards within the takiwā, and are prepared and understand what to do and where to go in the event of natural disaster occurring. Raukawa relationships with local authorities, government agencies, and infrastructure providers ensure robust connections to communications and energy networks maximise the ability of marae to operate as safe and welcoming environments for displaced uri and members of the wider community. Infrastructure networks across the takiwā are well managed, resilient, and responsive, minimising adverse effects.


Section 2.10.3 Objectives • Raukawa uri understand the potential effects and likelihood of natural disasters within their rohe, and are prepared. • Raukawa and our partners are committed to and actively build community resilience to deal with natural disasters and other emergencies.

2.10.4 Kete for Kaitiaki

2.10.5 Methods

Being ready

Raukawa

K1

Get your emergency response kit ready and make sure your whānau has theirs set up as well.

M1

RCT will develop a hub of information and resources to assist uri with preparedness for natural disasters.

K2

Talk with your whānau about your emergency response plan.

M2

Familiarise yourself with your local civil defence emergency procedures.

RCT will support Raukawa whānau to develop home emergency response kits.

M3

RCT will collaborate with Raukawa marae to investigate the opportunity for marae to become civil defence posts for the takiwā.

M4

RCT will collaborate with agencies to investigate the development of a resilience profile for the Raukawa takiwā including:

K3

K4

K5

Look at having a first aid kit at home and if you can, in your car at all times. Donate your time or some resources to helping community groups that assist with natural hazard response or community responses.

a. Likelihood of extreme events.


K6

K7

Keep gutters and drains debrisfree during winter to avoid localised flooding during times of heavy rain.

b. Building resilient homes, marae, and business.

Work with your marae committee to ensure your marae is ready to support whānau and the wider community in the event of natural disaster or other emergency.

d. Predicted climatic changes for the takiwā.

c. Predicted effects on biodiversity.

e. Reponses for Raukawa uri to climate change and extreme events. f. Identify areas of hazards occurrence.

natural

M5

RCT will work with local authorities to develop guidelines on responses to civil defence emergencies in all locations of the Raukawa takiwā.

M6

RCT will support flood mitigation works where people, property and the environment face significant risk.

Raukawa Partners M7 Local authorities should require flood hazards to be identified, avoided, or mitigated in any intensification of land use.

Heritage Shot - Waikato River. This photo gives some indication of how the Waikato River has changed with the advent of the hydro electricity system

M8 Local authorities should apply a precautionary approach in avoiding, remedying, or mitigating the adverse effects on development of earthquakes, volcanic activity, and climate change.


M9

Local authorities and government agencies should adopt coordinated approaches to the development of natural hazard management strategies within the Raukawa takiwā.

of a resilience profile for the Raukawa takiwā including: a. Likelihood of extreme events. b. Building resilient homes, marae, and business. c. Predicted effects on biodiversity.

M10 Local authorities and government agencies should ensure all relevant information regarding hazards is available to Raukawa at all times. M11 Local authorities and government agencies should collaborate with RCT to investigate the development

d. Predicted climatic changes for the takiwā. e. Reponses for Raukawa uri to climate change and extreme events. f. Identify areas of hazards occurrence.

Example of Land Slumpage and Tomo on Farm North of Tokoroa

natural

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