MĀORI PLANNING FUTURES - Productivity Commission€¦ · development of iwi management plans, and...
Transcript of MĀORI PLANNING FUTURES - Productivity Commission€¦ · development of iwi management plans, and...
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MĀORIPLANNINGFUTURESREVIEWOFPRODUCTIVITYCOMMISSION’S“BETTERURBANPLANNING”DRAFTREPORT(AUGUST2016)
NGĀAHO&PAPAPOUNAMUAuthoredbyTeMarinoLenihanandJackyBartleyEditedbyBiddyLivesey
October2016
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NgāAhoandPapaPounamureservetherighttopublishthismaterialformembersandthepublic.NgāAhoIncorporatedSociety1/[email protected]āori.nz
Ourauthors:NgāAho:TeMarinoLenihan(NgāiTahu.BA,LLB)has20years’experienceadvocatingforwhānau/hapū/iwivalues,rightsandinterestswithinthebuiltandnaturalenvironments.HehasworkedextensivelywithlocalgovernmenttoestablishandstrengthentherecognitionandprovisionoftheTreatyofWaitangiprincipleswithinplanningdocuementsand‘inthefield’.Importantly,TeMarinohasoveradecadeofexperienceworkingdirectlywithCrownagencies,developersanddesignprofessionalsonbehalfofhisownhapūandiwithroughoutTeWaipounamuenablingthemeaningfulenagement,activeprotectionandauthenticexpressionandNgāiTahu/NgāiTūāhuririculturewithintheurbanandruralenvironments.PapaPounamu:JackyBartley(TeWhānau-a-Apanui.BSc,NZPI)isaspecialistinMāoriPolicydevelopmentandengagementprocesseswithapost-graduatediplomainenvironmentalmanagement.Shehasover16yearsofexperienceinstrategicandregulatoryplanning,workingcollaborativelywithmanawhenuainthedevelopmentofMāoriPolicydevelopmentofDistrictandUnitaryPlanreviews(AucklandUnitaryPlanandKaiparaDistrictPlan).MostrecentlyJackyhasbeeninvolvedintheAucklandCouncilMāoriCulturalHeritageProgram,whichisalong-termprogramtoidentifyandprotectsitesofsignificancetoManaWhenuathroughfutureplanchangestotheAucklandUnitaryPlan.
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MIHI
TēneiterūrūtekoukouneiKīhaiimāwhitiwhiti,KīhaiimārakarakaTeūpokonuioterūrūterekouHepō,hepōHeao,heaoKaawateaTiheimauriora.
Thisisthemorepork,harbingerofthespiritworld,calling.Whoseheaddoesnotbowsidetoside,nornodupanddown.ItisthesteadfaststanceoftheRūrūThatanchorsitscallthroughoutthenightTilthedawnofunderstandingenlightens.Behold,itislife.
Tēnākoutouotemotu,ngāmaungawhakahī,ngāawawhakatere.TēneimātouoNgāAho,oPapaPounamuanōhoki,ewhakatakotoneiiōmātouneiwhakaaromōtepūrongoaTeKomihanaWhaiHuaoAotearoa(NZProductivityCommission).Hepūrongoiaepāanakingāturewhakariteritetaone,whakahaeretaone,whakawhanaketaone,rauhītaiao.Kotearonganuiotāmātouiwhakatakotoai,kotewhakatutukiingātikangaoKuimā,oKoromāewhaimanaaitēnahapū,ewhairawaaitēnāwhānau.Ōtirā,kotāmātouwhāingamatua,māwēneikupuwhakatauneiewhaiwāhiaiaNgāiMāorimākingāmahiwhakariteritetaone,whakahaeretaone,whakawhanaketaone.Heoianō,heiteotingaatu,māngāIwi,ngāHapū,ngāMata-a-wakamengāTaungaHouotemotutēneikaupapaekōkirikiatikaaikitēnāmoka,kitēnāmokaotemotu.Kongākupukōreroewhaiihonei,hewhakaaroāwhinanoaihonōmātouoNgāAhomePapaPounamu.Hemeatukumāwaiake,māwaiakeewānanga,,ewhiriwhiri,ewhakatau.Kiahuianōtātoukiterangiora.Hariamaitetoki.Hāumiē,HuiēTāikiē.
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PREFACE
ThisReviewReportpresentsajointperspectiveontheProductivityCommission’s‘BetterUrbanPlanning’DraftReportfromthenationalinstitutesofMāoridesignandurbanplanningprofessionalsandpractitioners–NgāAhoandPapaPounamu.TheProductivityCommissionisundertakingareviewoftheurbanplanningsysteminAotearoa/NewZealandtoidentify,fromfirstprinciples,themostappropriatesystemforallocatinglandusethroughthissystemtosupportdesirablesocial,economic,environmentalandculturaloutcomes.InDecember2015theProductivityCommissionreleaseda‘BetterUrbanPlanning’IssuesPapertoassistpeopletoparticipateintheinquiry.TheCommissionthencontractedNgāAhotoworkwithPapaPounamutoinformtheir‘BetterUrbanPlanning’DraftReport.AwānangawasheldatwiththeProductivityCommissionatTeNohoKotahitangaon17June2016,anda‘WānangaReport’preparedsubsequentlybyNgāAhoandPapaPounamurepresentativesinJuly2016.The‘WānangaReport’madethefollowingpointsabouturbanplanning:
• Māoricommunitieshavestrongandvariedinterestsinbetterurbanplanning.• Abetterurbanplanningsystemneedstorecogniseplanningbasedon
mātaurangaMāori.• Betterurbanplanningmustfocusonholisticoutcomes.• TheexistingplanningframeworkdoesnotdeliveroutcomesforMāoricommunities.• Thereisalackofguidanceandcapacity.• Kaitiakitangaismorethan‘preservation’.• Rangatiratangaismorethan‘consultation’.
TheProductivityCommissionpublishedtheir‘BetterUrbanPlanning’DraftReportinAugust2016,andasecondwānangaofNgāAhoandPapaPounamumemberswasheldon25-26Augusttoreviewitscontents.AttendeesagreedthataformalreviewwaswarrantedandnominatedrepresentativesfromNgāAho(TeMarinoLenihan)andPapaPounamu(JackyBartley)todraftareview.AgreementwasreachedwiththeProductivityCommissiontoundertakethereviewandfocusspecificallyonChapter11(UrbanPlanningandtheTreatyofWaitangi).Adraftreviewreportwaspreparedanddistributedtoallwānangaattendeesforreviewandcomment,andspecificallytoapanelofNgāAhoandPapaPounamurepresentativessothatitskeyfindingsandrecommendationscouldberobustlyinterrogatedandrefined.Thepanelconsistedof:
• ReginaldProffit(Chair–PapaPounamu)• DesnaWhaanga-Schollum(Chair–NgāAho)• DrDianeMenzies(DeputyChair–NgāAho)
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• ProfessorHiriniMatunga(ProfessorofMāoriandIndigenousDevelopment,LincolnUniversity)
• LenaHenry(Lecturer,SchoolofPlanningandArchitecture,UniversityofAuckland)• CraigPauling(Kaiarataki,BoffaMiskell)• LaraTaylor(SpecialistinMāoristrategy,policyandplanning)
Thefinaldraftreviewreportwerediscussedandendorsedatameetingon7October2016,andthefinalreportwaspresentedtotheProductivityCommissionon14October2016.NgāAhoandPapaPounamuwouldliketoacknowledgetheProductivityCommissionforsupportingthisreviewandagreeingforitscontentstobesharedamongstourprofessionandwidercollectiveofManaWhenua,Mata-a-wakaandurbanMāoriauthorities.
“Kamaukoe,āe,ārahinaaukiteroheotōkuwhenuapatuai,kiamihiaukitōkuwhenua”1
Youwillsurelyunderstand,Imustbetakentotheboundaryofmylandtobekilled,
sothatIcangreetmyland
–HiriniMokoMead
1ThissayingisillustrativeoftheloveofMāorifortheirhometerritory.
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CONTENTS
1. EXECUTIVESUMMARY.............................................................................................................7
2. KEYRECOMMENDATIONS.....................................................................................................10
3. CONTEXT&OVERVIEW.........................................................................................................13
4. CHAPTER11–URBANPLANNINGANDTHETREATYOFWAITANGI.................................15
5. FEEDBACKONOTHERCHAPTERS........................................................................................32
CHAPTER3–ARATIONALEFORPLANNING...........................................................................33
CHAPTER5–THEURBANPLANNINGSYSTEMINNEWZEALAND.........................................35
CHAPTER6–OUTCOMESFROMTHECURRENTSYSTEM......................................................38
CHAPTER7–REGULATINGTHEBUILTENVIRONMENT..........................................................39
CHAPTER8–URBANPLANNING&THENATURALENVIRONMENT.......................................41
CHAPTER12–CULTURE&CAPABILITY.................................................................................42
6. TEREOMĀORITERMS..........................................................................................................44
7. CONCLUSION.........................................................................................................................45
8. WORKSCITED........................................................................................................................46
APPENDIXA–GLOSSARYOFMĀORITERMS...............................................................................47
APPENDIXB–POSSIBLEOUTLINEOFPROPOSEDNATIONALPOLICYSTATEMENTONTETIRITIOWAITANGI................................................................................................52
APPENDIXC–TABLEOFRECOMMENDATIONS...........................................................................57
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1. EXECUTIVESUMMARY
Thisreportprovidesasummaryofperspectives,experiencesandrecommendationsfromabroadrangeofMāoriplanners,designprofessionalsandpractitionersfromthroughoutAotearoameTeWaiPounamu,NewZealand.
TheMāoriworldischangingrapidly:TeAoHurihuri.SincethelastreformoftheurbanplanningsysteminNewZealandinthelate1980’s,andthecorrespondingamalgamationofvarious‘townplanning’actswithintheResourceManagementAct1991,muchhashappenedinregardstothesettlementofTreatygrievances,theemergenceofiwiandurbanMāoriauthorities,thedevelopmentofiwimanagementplans,andriseofco-managementandco-governancearrangementsbetweenCrownandManaWhenuarepresentatives.
WhilethecurrenturbanplanningsystemincludessomestrongprovisionsforrecognizingandprotectingMāorirelationshipswithnatural,physicalandspiritualresources,it’simplementationhasbeen‘uneven’and,exceptionalexamplesaside,cannotbesaidtohaveachievedgenuineplanningoutcomesforMāoricommunities.
AnyfutureplanningsystemmustthereforebuilduponthecurrentprovisionsandstrengthenourabilityasanationtoenabletheexpressionandactiveprotectionofMāorivalues,rightsandinterestsintheirancestrallands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga,inclusiveofurbanenvironments.
• StrongnationalguidanceonTeTiritioWaitangiandtheroleofManaWhenuainplanninganddecision-makingprocesses:LocalgovernmentapproachestoengagingMāoricommunitiesinurbanplanningprocessesareuneven.Therangeofvalues,rightsandinterestsheldbyiwi,hapūandwhānauisoftennotrecognisedorprovidedforwithinlocalgovernmentplanningdocuments.OneofthekeydesirableoutcomesthatManaWhenua(iwi,hapūandwhānau)seekfromtheplanningsystemistobeabletomakejointdecisionswithlocalgovernmentonmattersofsignificancetothem.Bestpracticeco-governanceandco-managementhasemergedthroughTreatysettlementswherecentralgovernmenthasworkedwithiwitoprovidestrongguidancetolocalgovernmenttoestablishnewrelationshipsbasedontheTreatyprincipleofpartnership.AnyfutureurbanplanningsystemmustthereforeacknowledgethefundamentalrelevanceofTeTiritioWaitangiandprovideappropriateopportunitiesforbothManaWhenua(Article2)andMata-a-waka(Article3)toparticipateappropriatelyintheplanningprocess,includingplandevelopment,decision-makingandimplementation.
Strongnational-levelguidanceisrequiredfromcentralgovernmenttodirectlocalgovernmentengagementandpartnershipwithMāoricommunities,includingadequateresourcingandrepresentation.Clearprotocolsarerequiredtomanagesensitiveinformation.
• Coherentlegislativeframework:ThecurrentapproachtorecognisingandprovidingforMāorivalues,rightsandinterestsin
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urbanplanninglegislationisfragmented.AnyfutureplanningsystemmustthereforeprovideastrongerplatformforenablingtheexpressionandactiveprotectionofMāorivalues,rightsandinterests.Anysuchplatformmustprovideacoherentstatementofthenature,extentandrelevanceofMāorivalues,rightsandintereststotheplanningsysteminNewZealand.Moreover,afutureplanningsystemmustexplicitlyacknowledgethevalidityofplanningapproachesbasedontikangaMāoriandmātaurangaMāori,andbuildstrongerconnectionsbetweeniwiandlocalgovernmentplanningdocuments.
• “Effects”vs“Valuesandoutcomes”:Thecurrent“effectsbased”approachtoplanningfocuseson‘avoiding,remedying,andmitigating’adverseeffectsonresourcesandtheenvironment.ThisapproachhasledtothecumulativedegradationofcoreMāorivalues,rightsandinterests(e.g.waterquality)asdecisionmakersanddevelopershaveonlyeverbeenrequiredtomitigatetheiradverseeffects.Inordertosupport“desirablecultural,economic,environmentalandsocialoutcomes”(astheProductivityCommissionhasbeentaskedtodo),afutureplanningsystemshouldinsteadadopta“valuesandoutcomes”basedapproachtodecision-makinganddevelopment.Thequestioncanthenbeasked:howdoesanygivendevelopmentordecisionalignwiththeunderliningvaluesandleadtotheoutcomesidentified?
• “Enablingtheexpressionandactiveprotection”:AfutureplanningsystemmustenableMāoricommunitiestoexpressandactivelyprotecttheirvalues,rightsandinterestsintheirancestrallands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga.Itisnotalwayssufficienttosimple“recogniseandprotect”.
• “Urban”vs“Rural”TheholisticMāoriworld-viewrecognisesasafirstprincipletheintegratedrelationshipofallnaturalandphysicalresourceswithinacatchment.Itdoesnotmatterifnaturalandphysicalresourcesfallwithinanurbanorruralzonewithinatown-planningdocument:theyareconnectedregardless.Anyfutureplanningsystemmustensure,therefore,thattheurbanenvironmentisnotdivorcednormanagedindependentlyfromitssurroundingnaturalenvironment.
• CapacityBuilding&CulturePlannersanddecision-makersmustup-skilltounderstandtherelevanceofMāorivaluestourbanplanning(includingvaluesarticulatedthroughCulturalValueAssessments)andimplementplanningoutcomesthataremeaningfultoMāoricommunities.
• Fast-trackedplanningmustincludeManaWhenua:Anyproposalswithinafutureplanningsystemtofast-trackurbanplanningprocessesbylimitingcommunityengagementorrestrictingappealsmustprovideopportunitiesforManaWhenuatoparticipateindecision-making.Withouttheseopportunities,fast-trackedprocesseswillcontinuetominimiseMāorivalues,marginalizeMāorirightsanddestroyMāoriinterests.Fast-
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trackedprocessesmayalsounderminecarefullynegotiatedredressforsettlementofbreachesofTeTiritioWaitangi.Fasterplanningrequiresstrongerrelationshipswithclearprotocolsaroundengagement.
• Improvedcoordinationandalignment:Iwi,hapūandwhānaustruggletoworkeffectivelywithmultipleagenciesacrossvariouslocalgovernmentterritoriesthatoverlaptheirtakiwā(tribalterritory).ImprovedcoordinationandalignmentbetweencentralgovernmentandlocalgovernmentagenciesiscriticaltosupportingeffectiveengagementwithManaWhenuainanyfutureurbanplanningsystem.
Itisclearthatthe‘principalpurposeoftheCommissionistoprovideadvicetotheGovernmentonimprovingproductivityinawaythatisdirectedtosupportingtheoverallwell-beingofNewZealanders,havingregardtoawiderangeofcommunitiesofinterestandpopulationgroupsinNewZealandsociety’(NewZealandProductivityCommissionAct,Part1s7).AsstatedinourWānangaReport,‘nootherpartyhasmoreofavestedinterestinurbanplanningthanthatofManaWhenua’.2TheperformanceofNewZealand’surbanplanningsystemiscriticallyimportanttotherelationshipofallMāoritoourancestrallands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga.WethereforeexpectthatanyfuturereviewoftheurbanplanningsysteminNewZealandwillmeaningfullyengagewithMāori–includingManaWhenua,Mata-a-wakaandMāoriprofessionals–fromthebeginningoftheprocess.WhileweacknowledgethesupportoftheProductivityCommissioninholdingawānangawithourorganisationsinJune,wenotethatthedraftreportstrugglestoanalyseinformationonMāoriplanningissuesinameaningfulway,anddoesnotofferrecommendationstostrengthenthecurrenturbanplanningsystemwhichisclearlynotworkingforMāoricommunities.WeappreciatethatunderstandingofteaoMāoriand,morespecificallytothisreport,kaupapaMāoriplanning,isaspecializedskill.Ataminimum,therefore,wewouldexpectaninquiryofthisnaturetoengageanadvisorskilledinMāoriplanningissues,values,rightsandintereststonotonlyhelpdesigntheaimsandscopeoftheinquiry,buttoassistwithplanningengagementwithMāoricommunitiesduringtheinquiry,andtoworkalongsidecolleagueswithotherskilltoensurethatMāoriissuesareunderstoodandintegratedthroughouttheinquiry.Intheabsenceofanysuchinvolvement,weareultimatelyrestrictedtocommentingonProductivityCommissionfindingsandrespondingtoProductivityCommissionrecommendations.Astherecommendationsofthisinquiryareadvanced,weurgeParliamentandtoproactivelyinvolveadiverserangeofMāoriexpertsandcommunityvoices(ManaWhenua,Mata-a-wakaandUrbanMāoriAuthorities)indevelopingpolicyandlegislation,andtoconsiderhowMāorivalues,rightsandinterestsarebestrepresentedontheProductivityCommissionitselfmovingforward.
2NgāAhoandPapaPounamu(July2016)atpage1.
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2. KEYRECOMMENDATIONS
R1 Thatafutureplanningsystemmust:
a) centrethefundamentalrelevanceofTeTiritioWaitangi;
b) enabletheexpressionandactiveprotectionofMāorivalues,rightsandinterestsinmanagingtheenvironmentwithintheirtribaltakiwā;
c) recogniseandprovidefortheongoingrelationshipMāorihavewiththeirlands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga;and
d) reflectthediversityofMāoriidentitiesandrealitiesbyusingtheterms‘Māoricommunities’,‘ManaWhenua’and‘Mata-a-waka’asappropriate,ratherthanjust‘iwi/Māori’.
R3 Thatafutureplanningsystemmust:
a) recognisethatMāorivalues,rightsandinterestsinurbanplanningareframedbytheholisticnatureofMāoriworldviews,whichunderstand:
i. theinter-connectedrelationshipbetweennaturalandphysicalresourceswithinacatchment;and
ii. theintrinsicrelationshipbetweencultural,economic,environmentalandsocialwell-beings.
b) provideforthesevalues,rightsandinterestsinamannerthatgiveseffecttotheintegralrelationshipsbetweenenvironmental,social,culturalandeconomicwell-beings;and
c) supportthedevelopmentofurbanareasinwayswhichenableMāoricommunitiestoseetheirculture(values,narrativesandaspirations)reflectedintheurbanlandscape,includingpromotingahikāthroughenablingMāoritooccupyancestralland.
R12 ThatafutureplanningsystemmustacknowledgetheexistenceofadualplanningtraditioninAotearoaNewZealandby:
a) recognisingthatMāorisocietymanagednatural,physicalandspiritualresourceswithintheirtakiwā,includingthelocationandorganisationofresidentialandindustrialsettlements,priortotheinstitutionalisationofEnglishlawsandtheWestminstersystemofgovernment;
b) recognisingthatManaWhenuaaretheCrown’sTreatypartnerandaretakingincreasingresponsibilityinthisrolethroughtheTreatySettlementprocess;
c) developinganewcategoryofplanningdocumentthatconnectsiwiandlocal
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governmentplanningdocuments;and
d) institutinganewnationalplanningauthoritywithspecificexpertiseinMāorivalues,rightsandinterestsinurbanplanningandthemanagementofnatural,physicalandspiritualresources.
R25 Thatafutureplanningsystemshould:
• requiregreateralignmentandco-ordinationacrosslocalandregionalcouncilboundariestoreducecomplexitiesandcostsonMāoricommunitiesengaginginplanningprocesses.
R24 Thatafutureplanningsystemshould:
• ensuregreaterconsistencyinhowMāorivalues,rightsandinterestsarerecognisedandprovidedforacrosslocalgovernmentboundariesthrough,forexample,theamalgamationofcurrentplanninglegislationandalignmentofcoreprovisionsthateffectssuchmatters.
R2 Thatafutureplanningsystemshould:
• requirethedevelopmentofaNationalPolicyStatementforTeTiritioWaitangitoprovidecleardirectionabouthowMāorivalues,rightsandinterestsaretobeenabledandactivelyprotectedthroughoutthecountry.
ANationalPolicyStatementshouldcoverarangeoftopics,includingbutnotlimitedto:
i. TheprinciplesofTeTiritioWaitangi;
ii. Māoriworldviews,tikangaMāoriandmātaurangaMāori;
iii. Theexerciseoftinorangatiratanga;
iv. Theexerciseofkaitiakitanga;
v. ProtectionofManaWhenuacustomary,proprietaryandusufractuaryrights;
vi. Landuse,subdivisionanddevelopmentofancestrallands(includingpapakāinga);
vii. Waterquality,quantityanduse;
viii. Coastalenvironments,coastalprocessesanduseoftheCoastalMarineArea(includingmātaitaiandtaiapure);
ix. SitesofsignificancetoMāori(includingwāhitapuandwāhitaonga);
x. Māoriculturallandscapes(includinghistoricandnaturalheritagefeatures);
xi. Othertaonga(includingintellectualpropertyandbiodiversity).
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R22 Thatafutureplanningsystemmust,ifitistoeffectivelysupportdesirablecultural,economic,environmentalandsocialoutcomes,moveawayfromthecurrent“adverseeffects”baseapproachandinsteadadopta“valuesandoutcomes”basedapproachtoallocatingandmanaginglanduse.
R23 Thatafutureplanningsystemshould:
• requirelocalgovernmentauthoritiesand,whererelevant,centralgovernmentagenciestocollaboratewithbothManaWhenuaandMata-a-wakarepresentativesto:
i. identifytheirrespectivevalues,rightsandinterestsintheurbanenvironment;
ii. determinetheirkeycultural,economic,environmentalandsocialoutcomes;
iii. developassessmentandmonitoringmethodologiesandframeworksthatintegratetikangaMāoriandmātaurangaMāori,inorderthataculturallyresponsiveandrobustevidencebasecanbedevelopedtoinformurbanplanningprocessesanddecision-making;and
iv. developannualandlong-termworkprogrammestoresourceanddeliverthesocial,cultural,environmentalandeconomicoutcomesthatMāoricommunitiesidentifyasimportantinurbanenvironments.
R20 Thatthefinal‘BetterUrbanPlanning’ReportadequatelyexploresthefollowingcoreMāorivaluesandrightsinordertocontextualizeandexplainrespectiveManaWhenuaandMata-a-wakavalues,rightsandinterestsinurbanplanning:
i. whakapapa
ii. manawhenua,manamoana
iii. rangatiratanga
iv. kaitiakitanga
v. wāhitapu
vi. wāhitaonga
vii. mahingakai
viii. papa-kāinga
ix. taonga
x. thecentralrelevanceofTeTiritioWaitangiinurbanplanninginNewZealandincluding,butnotlimitedto,thedistinctionbetweenArticleIIandArticleIIIrightsandresponsibilitiesforManaWhenuaandMata-a-waka.
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3. CONTEXT&OVERVIEW
TERMSOFREFERENCE
TheProductivityCommissionhasbeentaskedtoreviewtheurbanplanningsysteminAotearoaNewZealandandtoidentify,fromfirstprinciples,themostappropriatesystemforallocatinglandusethroughthissystemtosupportdesirablesocial,economic,environmentalandculturaloutcomes.
Importantly,thereviewistolookbeyondthecurrentresourcemanagementandplanningparadigmandlegislativearrangementstoconsiderfundamentallyalternativewaysofdeliveringimprovedurbanplanning,andsubsequently,development.
InexaminingalternativeplanningapproachesanddesignattributesthatcouldformthebasisofafutureplanningsysteminAotearoaNewZealand,theCommissionhasbeenguidedbytheextenttowhichthefollowingfourgoalsarelikelytobeachieved.
i. flexibilityandresponsiveness-abilitytochangelanduseseasily
ii. provisionofsufficientdevelopmentcapacitytomeetdemand
iii. mobilityofresidentsandgoodstoandthroughthecity
iv. abilitytofitland-useactivitieswithinadefinedbiophysicalenvelope.
Inthisinquiry,theCommission’sfocusisonenvironmentalissuesmostcloselyconnectedtocities,urbandevelopmentandland-use,including:
− airquality;
− water(potable/drinkingwaterandwaterquality);and
− climatechange.
The‘BetterUrbanPlanning’DraftReportidentifiesthefollowingkeyareasofchange:3
− Clearersetofdistinctionsbetweenthebuiltandnaturalenvironment.
− Greaterprioritisation.
− Moreresponsiveinfrastructureprovision.
− Amorerestrainedapproachtolanduseregulation.
− Strongercapabilitieswithincouncilsandcentralgovernment.
3ProductivityCommission(2016)pp6-9
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Thedraftreporthasidentifiedanumberofpriorityareasthatafutureplanningsystemshouldprovidefor,including:4
− Apresumptionthatfavoursdevelopmentinurbanareas,subjecttoclearlimits.
− Aclearersetandhierarchyofprioritiesforthenaturalenvironment.
− Moreandmorerobust,environmentalmanagementtools.
− Infrastructurepricingandfundingthatmoreaccuratelyreflectsactualcosts,useandimpacts.
− Rezoningandregulatorychangethatadaptsmorerapidlytocircumstances.
− Afocusonthosedirectlyaffectedbychange,notthirdparties.
− Adifferentrolefortheenvironmentcourt.
− Morerepresentative,lessrigidconsultation.
− ContinuedrecognitionandprotectionofMāoriinterests.
− Spatialplanningasacore,andfullyintegrated,component.
COMMENTS–OVERALL
NotsincethedraftingoftheResourceManagementAct1991(RMA)hastherebeensucharadicalreviewoftheurbanplanningsysteminAotearoaNewZealandandacorrespondingopportunitytocraftimprovementstobetterrecognizeandprovideforthevalues,rightsandinterestsofiwi,hapūandwhānauinrespectofthegovernanceandmanagementoftheirancestrallands,waters,wāhitapu,wāhitaonga,papa-kāinga,mahingakaiandothertaonga.
WeagreewiththeCommission’sstatementthat:
“Successfulcitiesarenotonlyplaceswherepeoplework;theyarealsoattractiveplaceswherepeopleconsumegoodsandservices,playandarecreative,allwithinurbanareasthathaveatmosphereandunrivalledaccesstoawiderangeofamenities.SuccessfulNewZealandcitiesalsoacknowledgethespecialrelationshipofMāoriwiththelandonwhichcitiesarebuilt,andprovide“greatspacesandplacesforMāoritobeMāori”5
Inordertodeliveronthisvision,itisfundamentallyimportantthatanyfutureurbanplanningsystemenablestheexpressionandactiveprotectionofMāorivalues,rightsandinterests.
The‘BetterUrbanPlanning’DraftReportcontainsnorecommendationsinrelationtoMāorivalues,rightsandinterests.Conversely,theCommissionfoundthat“thereisbroadsupportforcarryingforwardintoanynewurbanplanningsystemthecurrentgeneralregulatoryframeworkforrecognitionandprotectionofMāoriinterestsandforMāoriengagementinland-useplanning”(Finding11.4)
4ProductivityCommission(2016)pp7-95ProductivityCommission(2016)p1
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WhilewesupporttheCommission’sfindingtoretainthestrongprovisionsinthepresenturbanplanningsystem,weareemphaticthatimprovementsmustalsobemadeinanyfutureurbanplanningsystem.Ourcitiesaregrowing,andlargeurbandevelopmentsarebeingproposedinareassignificanttoMāoricommunities.StrengtheningtherecognitionandprovisionforMāorirights,valuesandinterestsinurbanplanningisabsolutelycriticalwhenconsideredinthelightoftheCommission’srecommendationstoreducethelevelofengagementwithinanewurbanplanningsystem,limitappealrightsandfast-trackplanningprocesses.EarlyengagementincreasescertaintyforbothdevelopersandMāori.
“ItisfundamentallyimportantthatanyfutureurbanplanningsystemenablestheexpressionandactiveprotectionofMāorivalues,rightsandinterests.”
4. CHAPTER11–URBANPLANNINGANDTHETREATYOFWAITANGI
OVERVIEW
Chapter11(UrbanPlanningandtheTreatyofWaitangi)canvassesthefollowingspecificareas:
i. Māoriandurbandevelopment.
ii. TheTreatyinlegislationandjurisprudence.
iii. TheTreatyandprotectionofMāoriinterestsinplanninglegislation.
iv. Thecurrentlaw:meshingtwotraditions.
v. HowwelldoestheplanningsystemrecogniseandprotectMāoriinterests?
vi. HowwouldanewplanningsystemproviderecognitionandprotectionofMāoriinterests?
The“KeyPoints”notedbytheCommissionare:6
1. “Māorihavediverseinterestsinurbandevelopment,arisingfrom:
− culturalconnectionswithancestrallands,expressedthroughtheobligationofKaitiakitanga(stewardshipandprotection);
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− adesireto“creategreaturbanspacesandplacesforMāoritobeMāori”;
− beingownersanddevelopersofurbanland;includingbeingcollectiveownersasaresultofTreatysettlementsoverthelastseveraldecades;and
− beingurbanresidentswithadesireforprosperityandwellbeing.
2. Māoridesignersandplannershavedevelopedandpromotedasetofprinciplesfora“Māoriculturallandscapestrategy”thatreflectvaluesandknowledgebasedinMāoricultureandcustom.
3. NewZealand’splanninglawcontainsdiverseprovisionsthatgiverecognitiontoandprotectMāoriinterestsarisingfromtheTreatyofWaitangi.
4. Planninglegislationrequireslocalauthoritiestoengagewithiwi/Māoriindevelopingandadministeringplans.Othernever–orlittle–usedprovisionsallowdevolutionofplanningtoMāoriauthorities,orforthemtojoinwithcouncilsinmanagingparticularareasoraspectsofplanning.
5. SomeTreatysettlementshave,overthelastdecade,providedforiwi,localauthoritiesandcentralgovernmentagenciestoco-governthemanagementoffeaturesofthenaturalenvironmentsuchasriversandmountains.Someofthesearrangementscoverurbanareas.Sucharrangementshavehelpedbuildrelationshipsbetweeniwiandlocalauthoritiesanddevelopcapabilityonbothsides.Asaresult,engagementoftheseiwiinotherplanningprocesseshasstrengthened.
6. Overthelast25years,iwi/MāoriengagementinplanningprocessesandtheprotectionofMāoriinterestshasgrownthroughpracticeguidedbylegislationandcaselaw.FromaMāoriperspective,engagementhasbeenmostsuccessfulwhereithasbeenbasedonbuildingpositiverelationshipsthatallowMāoritoparticipateearlyandstrategicallyinplanning.TherearemanyexampleswherethisapproachhasproducedoutcomeswelcomedbybothcouncilsandMāori.
7. DespiteongoingdevelopmentintherelationshipsbetweencouncilsandMāorionplanning,practiceremainsunevenacrossthecountry.ThebiggestbarrierstogoodpracticeseemtostemfromsomecouncilsandsomeMāorigroupshavinginsufficientcapacitytoengageeffectively.Informationonwhathasbeenachievedbygoodpractice,learningfromexperience,andgrowingcapabilityfromTreatysettlementprocessesshouldstimulatefurtherimprovements.
8. CarryingforwardthecurrentgeneralframeworkfortheplanningrelationshipbetweenMāoriandlocalauthoritieshasbroadsupport.Successfulrelationshipsdependmoreonlocalcircumstances,goodpracticeandwillingnesstoengage,thanonadjustmentstothenationalregulatoryframework.
9. FruitfulopportunitiesexisttodrawonmātaurangaMāori(Māoriknowledge)inurbanplanningandtobuildonMāoridesignprinciplesinurbandesign”.
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COMMENTS–KEYBARRIERS
WeagreethatrelationshipsbetweencouncilsandMāoriinurbanplanningarefragmentedandremainunevenacrossthecountry.Wedisagree,however,thatthebiggestbarriertoeffectiveengagementis‘insufficientcapacity’.Instead,wesuggestthatamoresignificantfactoristhepresentlackofnationaldirectionandguidanceonhowcouncilsandMāori(ManaWhenuaandMata-a-waka)mighteffectivelyworktogether.
WealsodisagreethatengagementbetweenCouncilsandMata-a-wakahasimprovedsignificantly.Thelocalgovernmentlandscapeisstilltoounevenonthisfrontforsuchaconclusiontobemade.
StrongerlegislativeprovisionsandguidancefromcentralgovernmentisstillrequiredtodrivegreaterefficiencyandconsistencyintermsofhowlocalgovernmentworkwithManaWhenuaandMata-a-wakathroughoutthecountrytoenabletheexpressionandactiveprotectionoftheirrespectivevalues,rightsandinterests.
Theneedforsuchimprovementsinanyfutureurbanplanningsystemisfundamental,particularlygiventheCommission’sproposaltointroduce‘faster’processesand‘lessprescriptive’rulesaskeycomponentsofafutureplanningsystem.7
Fortunately,wecannowdrawon25yearsofexperienceinthedevelopmentofiwiplanningdocuments,theevolutionofTreatysettlementsandresourcemanagementjurisprudencerelatingtoMāorivalues,rightsandinterests,andtheemergenceofiwiandurbanMāoriauthorities.Thepresentreviewoftheurbanplanningsystemisafineopportunitytocapitaliseonsuchdevelopmentsandadvances,andre-setthebaselineforwhatconstitutesgoodpracticeinurbanplanningandresourcemanagementinNewZealand.
COMMENTS–UNDERSTANDINGTETIRITIOWAITANGI
TherelevanceofTeTiritioWaitangi(includingit’sprinciples)tourbanplanningisclearlynotwellunderstood.ThedevelopmentofaNationalPolicyStatementonTeTiritioWaitangiwouldpromotegreaterunderstandinganddrivegreaterefficiencyandconsistencythroughoutNewZealandintermsofhowlocalgovernmentworkswithManaWhenuaandMata-a-wakarepresentativestoenabletheexpressionandactiveprotectionoftheirrespectivevalues,rightsandinterests.Section45(2)oftheResourceManagementActalreadyprovidesthelegislativemandatebywhichsuchaNationalPolicyStatementonTeTiritioWaitangicanbedeveloped,subsection(h)ofwhichstates:
“Indeterminingwhetheritisdesirabletoprepareanationalpolicystatement,theMinister
7ProductivityCommission(2016),p340
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mayhaveregardto–(…)Anythingwhichissignificantintermsofsection8(TreatyofWaitangi).”
Notwithstandingsuchprovision,onehasyettobeprepared.
RECOMMENDATION1
Thefinal‘BetterUrbanPlanning’Reportshouldrecommendthatanyfutureplanningsystemmust:
i. CentrethefundamentalrelevanceofTeTiritioWaitangi;ii. RecogniseandprovidefortheongoingrelationshipMāorihavewiththeirlands,
waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga;iii. Enhance,expressandenableMāorivalues,rightsandinterestsinurban
environments;iv. RecogniseandprovidefortherightsandresponsibilitiesthatManaWhenuahavein
managingtheurbanenvironmentwithintheirtribaltakiwā.
RECOMMENDATION2
ANationalPolicyStatementforTeTiritioWaitangishouldbedevelopedtoprovidecleardirectiononhowtoenabletheexpressionandactiveprotectionofMāorivalues,rightsandinterestsconsistentlyandeffectivelythroughoutthecountry.AnysuchNationalPolicyStatementshouldcoverarangeoftopics,includingbutnotlimitedto:8
i. TheprinciplesofTeTiritioWaitangi;
ii. Māoriworldviews,tikangaMāoriandmātaurangaMāori;
iii. Theexerciseoftinorangatiratanga;
iv. Theexerciseofkaitiakitanga;
v. ProtectionofManaWhenuacustomary,proprietaryandusafructoryrights;
vi. Landuse,subdivisionanddevelopmentofancestrallands(includingpapakāinga);
vii. Waterquality,quantityanduse;
viii. Coastalenvironments,coastalprocessesanduseoftheCoastalMarineArea(includingmātaitaiandtaiapure);
ix. SitesofsignificancetoMāori(includingwāhitapuandwāhitaonga);
x. Māoriculturallandscapes(includinghistoricandnaturalheritagefeatures);
xi. Othertaonga(includingintellectualpropertyandbiodiversity).
8RefertoAppendixBforalistoffurthertopicsthatcouldbecoveredbyaNationalPolicyStatementonTe
TiritioWaitangi.ThislistisnotexhaustiveandrequiresfurtherdevelopmentthroughengagingwithMāoricommunities.
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COMMISSION’SFINDINGS
DrawingoninsightsandexamplesfrompractitionersaroundAotearoaNewZealand,theCommissionhasraisedfivekeyquestionsinrelationtoUrbanPlanningandtheTreatyofWaitangi,andmadefourspecificfindings.Inpreparingthisreport,NgāAhoandPapaPounamuhavereviewedeachfindingandofferthefollowingcommentsandrecommendations.Furthermore,weconsiderthatthequestionsraisedbytheProductivityCommissionarebestansweredthroughthedevelopmentofaNationalPolicyStatementonTeTiritioWaitangi(seeRecommendation2above).
Finding11.1–Māoriandurbandevelopment
“Māorihaveabroadrangeofinterestsinurbandevelopmentarisingfromconnectionswithancestrallands;adesiretoliveinspacesidentifiablyMāori;theirindividualandcollectiveownershipanddevelopmentofurbanland;andtheirdesireforprosperityandwellbeing.Someoftheseinterestsaremorecloselyconnectedtourbanland-useplanningthanothers”9
COMMENTS–HOLISTICWORLDVIEWS
WedisagreewiththeimplicationofFinding11.1thattheholisticnatureofMāoriworldviewsisirrelevanttourbanplanningprocesses.Conversely,weconsiderthatitisfundamentallyimportanttounderstandMāoriworldviewsinordertocomprehendthenatureandextentofMāoriinterestsinurbanplanning.Asstatedclearlyinourwānangareport(July2016),Māoriworld-views:
a) recognisetheinterconnectedrelationship(andthereforewell-being)ofallpartsoftheenvironment,includingpeople;
b) donotdistinguishurbanandruralareasbyartificiallinesonmaps;
c) areframedby‘whakapapa’(genealogy)whichrecordsandaccountsfortherelationshipeachwhānau,hapūandiwihaswiththeirancestrallands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga.
ThereareanincreasingnumberofresearchersandpractitionersworkingtoarticulatehowurbandevelopmentcancreatedecolonisedcitiesthatactivelyprotectandreflectMāoriculture(values,narrativesandaspirations)intheurbanlandscape.Māoriorganisationsareincreasinglyinvolvedasinvestorsanddevelopersinurbanareas.InrespectoftheholisticnatureofMāoriworldviews,theseorganisationstendtooperatewitha‘quadruplebottomline’approachthatseeseconomicdevelopmentasanintegraldriverforsocial,culturalandenvironmentalimprovements.
TheurbanplanningsystemcaneitherconstrainorenabletheexpressionofMāorivalues,rightsandinterests(particularlytheabilitytoexercisetheirrolesandresponsibilitiesaskaitiaki),andthuswecontendthatholisticMāoriobjectivesforinvestmentanddevelopmentneedtobeacknowledgedinplanningprocessesanddecisions.
9ProductivityCommission(2016)p.279
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RECOMMENDATION3
Afutureplanningsystemmust:
a) recognisethatMāorivalues,rightsandinterestsinurbanplanningareframedbytheholisticnatureofMāoriworldviews,whichunderstand:
i. theinter-connectedrelationshipbetweennaturalandphysicalresourceswithinacatchment;and
ii. theintrinsicrelationshipbetweencultural,economic,environmentalandsocialwell-beings.
b) provideforthesevalues,rightsandinterestsinamannerthatgiveseffecttotheintegralrelationshipsbetweenenvironmental,social,culturalandeconomicwell-beings;and
c) supportthedevelopmentofurbanareasinwayswhichenableMāoricommunitiestoseetheirculture(values,narrativesandaspirations)reflectedintheurbanlandscape,includingpromotingahikāthroughenablingMāoritooccupyancestralland.
RECOMMENDATION4
Afutureplanningsystem(includingstructure,spatial,land-useandfinancialplans)should:
• enableMāoritoprotect,developandsustainablymanagetheirnatural,andspiritualphysicalresourcesinaccordancewiththeirvalues,rightsandinterests.
Finding11.2–TheTreatyandprotectionofMāoriinterestsinplanninglegislation
“Treatysettlementshaveoftengiveniwiandhapūasignificantroleinthegovernanceandmanagementofenvironmentalfeaturesandresources.Atthesametime,thesettlementprocesshasstrengthenediwiandhapūcapabilitiesandprovidedresourcesthatenablestrongerparticipationinenvironmentalplanningundertheResourceManagementAct”10
COMMENTS–CO-GOVERNANCE
WeagreewiththeCommission’sfindingthatsomeTreatysettlementshaveledtoiwiandhapūauthoritiesplayingsignificantrolesingoverningormanagingtriballysignificantenvironmentalfeaturesandresources(e.g.WaikatoandWhanganuiRiverSettlements).Co-governancearrangementsaroundtheCountryhaveenabledsomeiwiandhapūtoparticipatemoreefficientlyandeffectivelyinplanningprocesses.
However,theseco-governancearrangementsarestillexceptionalandarenotthenorm.NotallManaWhenuainurbanareashavecompletedTreatysettlements.Despitetheexistenceof
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provisionsforco-managementwithintheResourceManagementAct(e.g.s36–JointManagement,s33–TransferofPowers),onlyahandfulofexamplescanbeidentifiedoccurringinthelasttwodecades.Wesuggestthatthelimiteduseofco-governancemechanismsindicatesalackofpoliticalwill.Basedonourexperience,wesuggestthatitisoftenpoliticallydifficultforcouncilstoincludeManaWhenuarepresentativesoncouncildecision-makingcommitteeswithoutstrongdirectionfromCentralgovernmentrequiringMāorirepresentation.
RECOMMENDATION5
AfutureplanningsystemshouldcontainacoherentoverviewofMāori(ManaWhenuaandMata-a-waka)values,rightsandinterestsinplanningandresourcemanagementsupportedbyalegislativeframeworkthatenablestheexpressionandactiveprotectionofthosevalues,rightsandinterestsasandwhereappropriate.(SeeRecommendation20fornon-exhaustivelistofkeyvaluestobecovered.)
RECOMMENDATION6
Afutureplanningsystemmustdirectcouncilstoestablishco-governancearrangementswithManaWhenuaoverkeynatural,physicalandspiritualresources(lands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga)identifiedasimportanttoManaWhenua.
RECOMMENDATION7
AfutureurbanplanningsystemmustprotectMāoricustomary,proprietaryandusufractuaryrightsintheirlands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaonga.
RECOMMENDATION8
AfutureurbanplanningsystemmustberegularlyreviewedinordertoaccountforandreflectemergingTreatysettlementsandevolvingTreatyjurisprudence.
Finding11.3–HowwelldoestheplanningsystemrecogniseandprotectMāoriinterests?
“Māoriengagementinurbanland-useplanningisgrowingasaresultofimprovingcapabilityinlocalauthoritiesandMāorigroups,experiencefromsuccessfulpractice(oftenstimulatedbyTreatySettlements)andstrengtheningrelationships.Yetthesystem’sperformancehasprovenuneven,duetofactorssuchas:
i. Constraintsonthecapabilityofsomecouncilsandsomeiwitoengagewitheachother;ii. LackofclarityabouthowtoimplementlegislativerequirementsforMāoriparticipationin
planning;andiii. Varyingexpectationsaboutthenatureofcouncil-Māorirelationships”11
11ProductivityCommission(2016)p.299
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COMMENTS–CAPACITY&CAPABILITY
WeagreewiththeCommission’sfindingthatthereareconstraintsonthecapabilityofcouncils,iwi,hapūandotherMāoricommunities.TheWaitangiTribunalhasfoundthatprotectingandtransmittingmātaurangaMāoriisasharedresponsibilitybetweenMāoriandtheCrown.12However,inourexperience,manyplannersanddecision-makersdonotknowhowtomeaningfullyintegratetikangaMāoriandmātaurangaMāoriintoplanningprocesses.ThislackofcapabilitymaymeanthatinformationprovidedthroughsubmissionsfromManaWhenuaandCulturalImpactAssessmentsisnotintegratedintothedecision-makingprocess.
Inadditiontothelimitedcapabilityofplannersanddecision-makers,poorpastrelationshipsmeanthatManaWhenuadonotalwaystrustplannersorresourceconsentapplicantstoprotectandrespectinformationabouttheirsitesofsignificance.ItisappropriatethatthisknowledgeisheldbyManaWhenua,notcouncils,andinmanyplaces,thislackoftrusthasresultedinlittleifanyprotectionforsitesandplacesofsignificancetoManaWhenuainplanningdocuments.
WeagreewiththeCommission’sfindingthatthereisalackofclarityaboutlegislativerequirementstosupportMāoriparticipationinplanningandconsiderthatMāorineedtobeinvolvedatallstagesintheplanningprocessinorderfortheirvalues,rightsandintereststobeconsideredappropriatelywithintheurbanplanningsystem.
PlansthathavemoresuccessfullyintegratedtikangaMāoriandmātaurangaMāorihaveofteninvolvedManaWhenuaandMāoriplannersaspartoftheplandevelopmentteam(e.g.ProposedAucklandUnitaryPlan;KaiparaDistrictPlan;ChristchurchCityPlan).
InplanningprocessesthataffectMāorivalues,rightsandinterests,afutureplanningsystemmustprovideforsuitablyqualifiedpeoplewithunderstandingofMāoriworldviewstoactas:
a) Decision-makers(forexample,representativesonIndependentHearingsPanels,localgovernmentbodies,sittingonco-governanceorjointmanagementcommittees,and/orIndependentMāoriCommissionerswherethereisapotentialforconflictsofinterest).
b) Planners(forexample,developingprovisionsrelatingtoMāorivalues,rightsandinterests).BestpractiseapproachesinvolveManaWhenuaaspartofthedraftingteamtoprepareplans,andpartneringManaWhenuawithkaupapaMāoriplannerstoassistwithtranslatingvalues,rightsandinterestsintopolicyandplanningoutcomes.
c) Specialists(forexample,providinginputintoresourceconsentprocessesthroughCulturalImpactAssessmentsorprovidinginputdirectlyintoResourceConsentapplications).
FurtherissuesencounteredinattemptingtoimplementprovisionsforMāoriparticipationwithintheResourceManagementActinclude:
• “limitstotheapplicationofss6(e),7(a)and8;
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• absenceofcompulsiontoaccordweighttoMāorirightsandinterestsandprovidemeaningfuloutcomesforMāori;
• lackofincentivestousesection33TransferofPowers(neverbeenusedforMāoriauthorities);section36Bjointmanagementagreements(seldomused);andsection188(enablesiwiasheritagemanagementauthoritiesbutneverbeenusedforMāoriauthorities);
• limitedcapacitybuildingandfundinginitiatives;and
• lackofcentralgovernmentdirection”13
WeagreewiththeCommission’sfindingthattherearevaryingexpectationsaboutthenatureofcouncil-Māorirelationships,andthatthishasledtoinconsistentapproachestoMāoriparticipationinplanningprocesses(includingspatialplanning,plandevelopment,planchanges,andresourceconsents).
Toimprovetheurbanplanningsystem,werequiremandatoryminimumstandardsforeffectiveengagementwithManaWhenua,andaconsistentapproachtothethresholdsforrequiringaCulturalImpactAssessmentandtimelinesforassessments.
ManaWhenuashouldberesourcedtoparticipateinplanningprocesses,justasCouncilsandcentralgovernmentagenciesare(i.e.ratesandtaxes).
RECOMMENDATION9
AfutureurbanplanningsystemshouldenablethedevelopmentoflocaltrainingprogrammestoimproveunderstandingofMāoriworldviews,tikangaMāoriandmātaurangaMāoribyplannersanddecision-makers.
RECOMMENDATION10
AfutureplanningsystemmustrecognisethatManaWhenuaaretheexpertsintheirownvaluesandinterests;andprovidefortheirinvolvementastechnicalspecialists,planwritersanddecisionmakerswheretheirvalues,rightsandinterestsintheurbanenvironmentareaffected.14
RECOMMENDATION11
Afutureplanningsystemmust,whereMāorivalues,rightsandinterestsareaffected,provideforsuitablyqualifiedpeoplewithunderstandingofMāoriworldviewstoactas:
a) Decision-makers(forexample,representativesonIndependentHearingsPanels,local
13Taylor(2015)p.5914RefertoRecommendation2forproposedcontentofaNationalPolicyStatementtoaddresscapacityand
capability.
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governmentbodies,sittingonco-governanceorjointmanagementcommittees,and/orIndependentMāoriCommissionerswherethereisapotentialforconflictsofinterest).
b) Planners(forexample,developingprovisionsrelatingtoMāorivalues,rightsandinterests).BestpractiseapproachesinvolveManaWhenuaaspartofthedraftingteamtoprepareplans,andpartneringManaWhenuawithkaupapaMāoriplannerstoassistwithtranslatingvalues,rightsandinterestsintopolicyandplanningoutcomes.
c) TechnicalSpecialists(forexample,providinginputintoresourceconsentprocessesthroughCulturalImpactAssessmentsorprovidinginputdirectlyintoResourceConsentapplications).
Finding11.4–HowwouldanewplanningsystemproviderecognitionandprotectionofMāoriinterests?
“ThereisbroadsupportforcarryingforwardintoanynewurbanplanningsystemthecurrentgeneralregulatoryframeworkforrecognitionandprotectionofMāoriinterestsandforMāoriengagementinlanduseplanning”15
COMMENTS–REGULATORYFRAMEWORK
WeagreewiththeCommission’sfindingthatthecurrentregulatoryframeworkforrecognisingandprotectingMāorivalues,interests,andrightsshouldberetained–butemphasisethatthisframeworkneedstobestrengthened.ThereissignificantevidenceprovidedinChapter11todemonstratethatthecurrentplanningsystemneedstobeimprovedinordertomanageMāorivalues,rightsandinterestswell.
COMMENTS–IWIPLANNINGDOCUMENTS
IwiManagementPlansandIwiPlanningDocumentsareavaluablewayforManaWhenuatoidentify,recordanddisseminatespecificvalues,rightsandintereststheyhaveinanygivenenvironment.IwiplanningdocumentsassistsManaWhenuatodetermineaconsistentapproachtothemultipleplanningprocessestheyareaskedtoparticipatein.However,theeffectivenessofiwiplanningdocumentsishinderedbylimitedresourcesandlimitedrecognitionintheexistingplanningsystem.
Māoricommunitieshavemanycompetingdemandsontheirtimeandmanydonothaveadequateresourcestoperiodicallyreviewtheiriwiplanningdocuments.Givenconstantchangesinthenationalandlocalplanningsystem,olderiwimanagementplansmaynotbeseentomeaningfullyaddresscontemporaryplanningissuesortoprovidesufficientdirectiontoinformplanreviewprocesses.Neweriwiplanningdocumentsaremorefocussedonimplementation,andtargetspecificresourceissues,opportunities,andactions.
15ProductivityCommission(2016)p.300
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Preparinganiwi-planningdocumentrequiresresources,skills,andtime.Iwiorhapūthathavenotpreparedaniwiplanningdocument,orhaveyettoupdatetheiriwiplanningdocumentaredisadvantagedinplanningprocesseswhichmustoftenmeetshorttimeframes.Withouttherobustevidencebaseprovidedbyaniwimanagementplan,decisionsaremadethatimpactonMāorivalues,rightsandinterestwithoutappropriateconsiderationoftikangaMāoriandmātaurangaMāori.
Weconsiderthatthereisgreatpotentialforiwiplanningdocumentstomeaningfullyinformlocalandnationalplanningprocesses,butsufficientsupportisrequiredforManaWhenuatoprepare,reviewandupdatethesedocuments.Forexample,localgovernmentcouldprogrammeandresourcethereviewofiwiplanningdocumentsalongsidethereviewofdistrictand/orregionalplans.Furtherguidancecouldbeprovidedtocouncilsonhowtoconsideriwiplanningdocuments;andnon-mandatorytemplatesprovidedtosupportiwiandhapūtodraftiwimanagementplansthatcanreadilybetranslatedintoplanningoutcomes.
Basedonourexperience,thereisaneedforanewkindofplanningdocument–jointlydevelopedbylocalgovernmentandManaWhenua–toconnectobjectives,policiesandrulesbetweeniwiplanningdocumentsandlocalgovernmentplanningdocuments.
COMMENTS–SITESOFSIGNIFICANCE&CULTURALIMPACTASSESSMENTS
WehavesimilarexperiencesrelatingtothelimitedresourcesandtimeavailableforManaWhenuatoschedulesitesofsignificancethroughplanreviews,ortoprepareCulturalImpactAssessmentsforresourceconsents.Theprocesstoschedulingsignificantsitescantakeseveralyears,andrequiressignificantinvestmentoftimeandmoneybybothcouncilandManaWhenua.
RECOMMENDATION12
AfutureplanningsystemmustacknowledgetheexistenceofadualplanningtraditioninAotearoaNewZealandby:
a) RecognisingthatMāorisocietymanagednaturalandphysicalresourceswithintheirtakiwā,includingthelocationandorganisationofresidentialandindustrialsettlements,priortotheinstitutionalisationofEnglishlawsandtheWestminstersystemofgovernment;
b) RecognisingthatManaWhenuaaretheCrown’sTreatypartnerandaretakingincreasingresponsibilityinthisrolethroughtheTreatySettlementprocess;
c) Developinganewcategoryofplanningdocumentthatconnectsiwiplanningdocumentsandlocalgovernmentplans;and
d) InstitutinganewnationalplanningauthoritywithspecificexpertiseinMāorivalues,rightsandinterestsinurbanplanningandthemanagementofnatural,physicalandspiritualresources.
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RECOMMENDATION13
AfutureplanningsystemshouldretainandstrengthenprovisionsandmechanismswithinthecurrenturbanplanningsystemthatenabletheexpressionandactiveprotectionofManaWhenuaandMata-a-wakavalues,rightsandinterestsintheirancestrallandandseascapesincluding,butnotlimitedto;
a) sections5,6c,6e,6f,6g,7a,7d,8,61(2A)(a),66(2A)(a),and74(2A)oftheRMA;and
b) provisionsinboththeLocalGovernmentActandLandTransportManagementActthatprovideopportunitiesforMāoritobeinvolvedindecision-making.
RECOMMENDATION1416
AfutureplanningsystemshouldalignwithandgiveeffecttorecognisedTreatyPrinciplesthroughsuchmeansas:
a) engagingwithManaWhenuaandMata-a-wakafromthebeginningofthereformprocess;
b) draftingpoliciesandlegislationinpartnershipexpertsinTreatyjurisprudenceandexperiencedplanningpractitioners;and
c) ensuringMāoricommunitiesarerepresentedondecision-makingbodies.
RECOMMENDATION15
FundingforthemeaningfulengagementofMāori(ManaWhenuaandMata-a-waka)inplanningprocessesshouldbeprovidedbytheCrownand/orlocalgovernmentthroughratesand/ortaxes.
CHALLENGESOFCOMMISSION’SPROPOSEDFUTUREPLANNINGSYSTEMFORMĀORICOMMUNITIES
WhiletheCommissionhasnotmadeanyrecommendationsinChapter11,theOverviewsectionofthe‘BetterUrbanPlanning’DraftReportstates:
“ContinuedrecognitionandprotectionofMāoriinterests:Māorihaveabroadrangeofinterestsinbothurbandevelopmentandtheprotectionofthenaturalenvironment.SothereshouldcontinuetobeanexpectationunderafutureplanningsystemthatcouncilswillengagewithMāori/iwiearlyoninthedevelopmentandreviewofPlans,andclearprovisionstoensurethatengagement.Thisshouldincludethetoolsthatcurrentlyexistinplanningandotherrelatedstatutes(e.g.devolutionandjointmanagementarrangements),andincurrentplanningpractices
16RefertoRecommendation2forproposedcontentofaNationalPolicyStatementtoaddressiwiplanning
documents.
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(e.g.theidentificationandprotectionofsitesofsignificancetoMāoriandtheuseofculturalimpactassessments)”17
Itisimportanttoviewthisstatementinlightofotherfindingsandrecommendationswithinthedraftreport.The‘BetterUrbanPlanning’DraftReportconcludesthatafutureplanningsystemwouldprovideforthefollowing:
a. “Lessprescriptivelanduserules,creatingmorespaceforlocalinnovationandadaptation;
b. Faster“eventbased”processesforchanginglanduserules,betterallowingregulationandthesupplyofdevelopmentcapacitytokeepup;
c. Moreuseofmarket-basedtoolsandinfrastructurepricing,whichsignaltoindividualsandfirmstheefficientlocationstodevelop,ortimestouse,infrastructure,butleavethemtodecidehowtorespond;
d. Longer-terminfrastructureandland-useplanningbasedonrealoptionsanalysis,whichexplicitlyfactorsuncertaintyintothedevelopmentandanalysisofoptions,andincorporatesflexibilityintheinvestmentsdecision-makingprocess”18
COMMENTS
Asstatedabove,wedisagreethatafutureplanningsystemshouldsimplyretainthestatusquo.Lookingbeyondthecurrenturbanplanningandresourcemanagementparadigms,toolsandlegislativearrangementstoconsiderfundamentallyalternativewaysofdeliveringimprovedurbanplanning,requiresconsideringnewapproachestosupportbetterurbanplanningforMāoriandothercommunities.WeofferadditionalfindingsbasedonourexperienceandfeedbackfromNgāAhoandPapaPounamumemberstobeconsideredforinclusioninthefinal‘BetterUrbanPlanning’Report.
OURFINDINGS–‘Tools’vs.‘Frameworks’
Whatwewantareframeworksthatempowertheindigenousvoiceinurbanplanningandresourcemanagementprocesses.Toolsdonotdothis;rathertheyperpetuatethemindsetofthepractitionerswhodevelopthetools.IndigenouspeoplesoutsideAotearoahaveapreferenceforframeworksratherthantoolsforthisreason,toavoidfurtherperpetuationofcolonisingprocesses.
OURFINDINGS–EnhancedEngagement
The‘BetterUrbanPlanning’Draftreportrecommendsstrongerguidanceatanationallevelfor“NaturalandUrbanPlanning”,howeverthereportissilentonwhetherguidancewillalsoincludeaddressingMāorivalues,rightsandinterests.WesuggestthattherearebetterwaysofworkingwithMāoriindevelopingandreviewingplans.Wesupporttheneedforclearprovisionsonhowthatengagementisundertakenatalocallevel.Theseprovisionsmustbesupportedbyguidanceata
17ProductivityCommission(2016)p.9
18ProductivityCommission(2016)p.340
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nationallevel.
OURFINDINGS–TimingandCertaintyIn“Fast-Tracked”Processes
Demandforhousing,inparticular,meansthereisalotofpressuretodeveloplandontheedgeofcitiesthatmaybesignificanttoMāoricommunities.ThereareanumberofexamplesofdecisionsmadeunderexistingplanningsystemwhichhavecompromisedboththevaluesoflandreturnedunderTreatysettlementascommercialand/orculturalredress.WeholdastrongconcernthatMāorivalues,rightsandinterestmustberecognisedandprovidedforinfast-trackedplanningprocesseswithinafutureplanningsystem.Thereisatleastoneexampleofadevelopmentfast-trackedundertheHousingAccordsandSpecialHousingAreaAct(2013)whichthreatenstodestroyasignificantculturallandscapeandhasbeenstronglyopposedbyManaWhenua.
ItisnotclearhowMāorivalues,rightsandinterestswillbemanagedinanyfutureplanningsystem,givenanumberoftherecommendationsinotherchaptersofthe‘BetterUrbanPlanning’DraftReportthatfocusonreducingthelevelofengagement,limitingappealrightsandfast-trackingplanningprocesses.BothManaWhenuaandMata-a-wakamustbeeffectivelyandmeaningfullyengagedinanyfast-trackedplanninganddecision-makingprocesses.Infast-trackedplanningprocesses,bothdevelopersandManaWhenuaneedcertaintyaboutplanningprocessesanddecision-making.AttemptingtoassessMāorivalues,rightsandinterestsinashorttimecanbecounter-productive,causingdelaysanddamaginglong-termrelationships.
Toachievetimingandcertainty,councilsanddevelopersneedtoworkstrategicallywithManaWhenuainplanningprocessesanddecision-makingtoensurethatMāorivalues,rightsandinterestsareenhanced,expressedandenabled.Forexample,afutureplanningsystemcouldrequiremajordevelopmentinareassignificanttoManaWhenuatobereferredtoajointdecision-makingbodyincludingkaitiakiandplannersselectedbyManaWhenuaandchairedbyanEnvironmentCourtjudge.PrecedentsincludeajointmanagementarrangementinitiatedbyGisborneDistrictCouncilandNgātiPorououtsideoftheTreatysettlementprocess.
OURFINDINGS–IdentifyingCulturalLandscapesInAreasIdentifiedForLarge-ScaleUrbanDevelopment
Weemphasisethatavoidingthedestructionoflands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaongamustbeacriticalconsiderationinanyfast-trackedplanningprocess.Whenplanningtodevelopanareaidentifiedforlarge-scaleurbandevelopment,mappingculturallandscapesallowsbothManaWhenuaandcouncilstounderstandthefullsignificanceofurbanareas,andprovidesanevidencebasewhichcanbeusedtomakeinformeddecisionsaboutdevelopment.AprecedentcanbefoundinPolicy15oftheCoastalPolicyStatementthatrequirestheprotectionofMāoriculturallandscapesandfeaturesfrom‘inappropriatesubdivision,use,anddevelopment’.
ManyplacesinAotearoaNewZealanddonothavearobustevidencebaseofculturalvaluesassociatedwithplacesasthisknowledgeisheldwithwhānau/hapū/iwi.ItisimportantthatcouncilsfocusondevelopingarobustevidencebaseincollaborationwithManaWhenuatoinformplanning
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processesparticularlyinareaswhereurbangrowthisanticipatedsothatculturalvaluesarenotlost.NoclearmethodologyexistsinAotearoaNewZealandonhowMāoriCulturalLandscapesshouldbeidentifiedandmappedandreflectedinplans,andthistypeofworktakesasignificantamountoftimetodocument.
UnlessManaWhenuaarepartoftheplanningprocessandabletodirectlyinformurbanplanningprocesses,thesevalueswillcontinuetobedestroyed.AfutureplanningsystemmustprovidecouncilsandManaWhenuawithsufficienttimeandresourcestoidentifyandprotectsitesandplacesofsignificancebeforemoredetailedspatialplanningoccurs.
RECOMMENDATION1619
Afutureplanningframeworkmust,wherelimitedevidenceexistsregardingMāorivalues,rightsandinterestsinareasmarkedforlargescaleurbandevelopment:
a) takeaprecautionaryapproachtostructureplanning,spatialplanningandplanreviewprocesses;and
b) enableManaWhenuatomeaningfullyparticipateindevelopingplanstoensurethattheirvalues,rightsandinterestsareappropriatelyrecognisedandprovided.
RECOMMENDATION17
AfutureplanningsystemmustrequirecouncilstoprovidemeaningfulopportunitiesforManaWhenuatobeinvolvedinfast-trackeddecision-makingprocessesthataffectMāorivalues,rightsandinterestsinurbanareasincluding,butnotlimitedto:
• CouncilparticipationinwānangaonurbanplanningissueswithManaWhenuaandMata-a-waka;
• BuildingrelationshipswithManaWhenuathroughregularface-to-facecontact(formalandinformal,atthecouncil,onthemarae,inthefield).
• Identifyingandrobustlydiscussingissuesandopportunitiesofmutualinterestinamannerthatmeaningfullyinformsdecision-makingandsupportstheroleofManaWhenuaaskaitiaki.
• Framingdecisionsandassessingtheirimplementationandimpactagainstallfourwell-beings.
19RefertoRECOMMENDATION2forproposedcontentofaNationalPolicyStatementtoaddressMana
Whenuaparticipationinurbanplanning.
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RECOMMENDATION18
AfutureplanningsystemshouldprovideastreamlinedapproachtoidentifyandactivelyprotectMāoriCulturalLandscapes,includingsitesofsignificancetoManaWhenuainurbanareasmarkedformajordevelopment.
LANGUAGE&CONTENT
ThroughoutChapter11,theCommissiontalksabout“recognisingandprotectingMāoriinterests”.WeareconcernedthattheuseofthisterminologyrisksasituationwherebycouncilsanddeveloperswillonlyberequiredtomaintainMāoriinterestsinnatural,physicalandspiritualresourcesastheypresentlyexist.Weconsiderthat“recognitionandprotection”alonewillnotfacilitatethesustainablemanagementofnatural,physicalandspiritualresourcesthatarealreadydegradedoroverexploited.20
RECOMMENDATION19
Thefinal‘BetterUrbanPlanning’Reportshouldadoptlanguagethat:
a) enablestheexpressionandactiveprotectionofMāorivalues,rightsandinterestsintheurbanenvironment,and
b) recognisesthediversityofMāoriidentities,communitiesandrealitiesbyusingthefollowingtermsasandwhereappropriateratherthan‘iwi/Māori’
i. ‘ManaWhenua’ii. ‘Mata-a-waka’iii. ‘Māoricommunities’
RECOMMENDATION20
Thefinal‘BetterUrbanPlanning’ReportexploresthefollowingcoreMāorivalues,rightsandinterestsinordertoadequatelycontextualizeandexplainrespectiveManaWhenuaandMata-a-
20See,forexample:Morgan,T.K.K.B.,Faaui,T.N.(inreview)EmpoweringIndigenousVoicesinDisaster
Response:ApplyingtheMauriModeltoNewZealand’sworstEnvironmentalMaritimeDisaster.EuropeanJnlofOperationsResearch
Morgan,T.K.K.B.,Fa`aui,T.N.(2014).DecisionSupportSystemsAndPromotingSociallyJustEnvironmentalManagement.11thInternationalConferenceonHydroinformaticsHIC2014,NewYorkCity,USA.17-20August,2014.ISBN978-0-692-28129-1
Morgan,T.K.K.B.,TEAHO,L.(2013).WaikatoTaniwharau:PrioritisingCompetingNeedsinCo-managementoftheWaikatoRiver.Adv.inEnv.Res.29:85-106.
Morgan,T.K.K.B.(2009)ExploringKnowledgeSystemSynergiesforIntegratedDecisionMaking,JnlofIndigenousIssues,MonashUniversity.12(1-4):299-308.
MorganT.K.K.B.(2006)Decision-supporttoolsandtheindigenousparadigm.ProceedingsoftheInstnofCivilEngineers,EngineeringSustainability,159(4):169–177.
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wakavalues,rightsandinterestsinurbanplanning:
• whakapapa
• manawhenua,manamoana
• rangatiratanga
• kaitiakitanga
• wāhitapu
• wāhitaonga
• mahingakai
• papa-kāinga
• taonga
• thecentralrelevanceofTeTiritioWaitangiinurbanplanninginNewZealand,includingthedistinctionbetweenArticleIIandArticleIIIrightsandresponsibilitiesforManaWhenuaandMata-a-waka.
ProposedAmendmentsToDraftReport
Chapter11ofthe‘BetterUrbanPlanning’DraftReportcontainsanumberofstatementsthatwerecommendareamendedtobetterreflectMāoriworldviewsandvalues.Theyare:
1. Page275(Manawhenuainterestsinurbandevelopment)
− Currenttextstates:“Manawhenuahaveaparticularsetofinterestsbecauseoftheirkaitiakitangarelationshipwiththeirancestrallandsandnaturalresources(Box11.1).”
− Comment:ManaWhenuarightsandinterestarisebecauseoftheirwhakapapaandahi-kā-roa(ancestraloccupationandlongstandingrelationship),notbecauseoftheirresponsibilitiesaskaitiaki.
− Proposedamendment:“Manawhenuahaveaparticularsetofinterestsbecauseoftheirancestraloccupationandlongstandingrelationshipwiththelandscapewhichgivesrisetoongoingrightsandresponsibilitiesaskaitiaki.”
2. Page277(TeArangaPrinciplesforaMāoriCulturalLandscapeStrategy)
− Currenttextstates:“Māorihaveaninterestinseeingthemselvesreflectedintheurbanlandscape.”
− Comment:Itmightencouragewiderunderstandingifthisstatementwasdrawnoutalittlemoresuchastobecleareraboutwhatwemeanby‘seeingourselves’inthelandscape.
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− Proposedamendment:“Māorihaveaninterestinseeingtheirculture(values,narrativesandaspirations)reflectedintheurbanlandscape.”
3. Page278(TeArangaPrinciplesforaMāoriCulturalLandscapeStrategy)
− Currenttextstates:“Mātaurangaisknowledgegeneratedthroughlong-termoccupationofanenvironment,andisspecifictoeachwhānau,hapūandiwi.”Inaddition,MātaurangaMāoriisevolvinganddynamic.Asaresult“MāoricreativepractitionerscanplayacentralroleintranslatingconceptsofmātaurangaMāoriintothecontemporarycontext”(NgāAho&PapaPounamu,2016,p.20).”
− Proposedamendment:“Mātaurangaisknowledgegeneratedthroughlong-termoccupationofanenvironment,andisspecifictoeachwhānau,hapūandiwi.”Likeallbodiesofknowledge,MātaurangaMāoriisevolvinganddynamic.Atalltimes,however,mātaurangaMāoriisfoundedupontikanga,Māoriworld-views,andanintimaterelationshipwiththeenvironment.”
5. FEEDBACKONOTHERCHAPTERS
Eachchapterofthe‘BetterUrbanPlanning’DraftReporttacklesparticularaspectsofthereviewandidentifiesanumberofrelatedquestions,findingsand/orrecommendations.Chapter11ofthedraftreportaddresseskaupapaMāoriplanningissuesundertheheading“UrbanPlanningandtheTreatyofWaitangi”.
COMMENTS
WesupportthevalueofakaupapaMāorichaptertofocusattentiononourparticularvalues,rightsandinterests.However,weemphasisethatbestpracticeistoaddressrelevantandrelatedMāoriissuesinanintegratedwaywithineachchapter,inadditiontoakaupapaMāorichapter.WehaveprovidedtheCommissionwithfeedbackonChapters3,5,6,7,8and12.ManawhenuaandMata-a-wakaalsohaveinterestsincontentcoveredinotherChapters:forexample,‘TheThirtyYearNewZealandInfrastructurePlan2015’includescasestudiesdocumentingMāoriinterestsininfrastructure.
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RECOMMENDATION21
Thefinal‘BetterUrbanPlanning’Reportshould:
• incorporatecommentary,findingsand/orrecommendationsonMāorivalues,rightsandinterestsasandwhererelevanttothecontentofeachchapter,notjustChapter11.
CHAPTER3–ARATIONALEFORPLANNING
Finding3.3–Twobroadapproachestoplanningincomplexurbansystems.
“Citiespresentachallengeforurbanplanning,giventhatitisnotpossibletopredictorcontrolinafine-grainedmannertheirdevelopmentpaths.Anoverlydirectiveapproachtoregulatinglanduseincitiesriskssuppressingthediversity,creativityandentrepreneurshipthatsuccessfulcitiesdisplay.
Oneresponsetothecomplex,adaptivenatureofcities,isforplannerstousearelativelyfew,simplerulesthatprohibitcertaintypesofharmfulspillovereffects.Plannerswouldotherwiseleavehouseholdsandbusinessesfreetodevelopprivatelandastheywish.
Anotherlogicalresponseisacollaborative,participativeapproachtocitydevelopmentinwhichlocalcommunities,withinenvelopessetbyhigherlevelsofgovernment,workouttheirownprovisionalandadaptivesolutionstoemergentopportunitiesandthreatsthatariseascitiesdevelop.Hybridsoftheseapproachesarepossibleandmaybeoptimal”21
COMMENTS–APPROACHESTOPLANNING
Wesuggestthatthedecisiontoapproachurbanplanningthroughrules,codesorahybridofbothisoneofthemoresignificantdecisionstobemadeinconsideringafutureurbanplanningsystem.FromakaupapaMāoriperspective,traditionalmanagementofterritoriesandcommunities(‘urbanplanning’)wasbasedupontikangaandmātaurangaMāori:thatis,asystemofcommunallyheldvaluesandassociatedpractices(customs)thatwerebasedonanintimateunderstandingofthelocalenvironmentandintendedtoensurethelongterm,holisticwell-beingofthelocalcommunity.22
WeconsiderthatanyfutureplanningsysteminNewZealandwouldbestalignwithkaupapaMāoriplanningapproachesbyadoptinga“valuesandoutcomesbasedapproach”tourbanplanningandresourcemanagement.Thisapproachwouldcomprisebothacodes(settingoutvaluesandprinciples)andrules(toprovideconsistency).
Wesuggestthatadoptingavaluesandoutcomes-basedapproachwouldfulfillTreatyrights.The
21ProductivityCommission(2016)p.6222See,forexample,Chapters3and5ofLawCommission(2001)
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LawCommissionnotedinits2001studypaperonMāoriCustomsandValuesinNewZealandLawthattheTreatyprotectedMāoricustomandculturalvaluesandthatthisrightextendstoboth(a)thecontrolofpropertyinaccordancewithcustomandhavingregardforculturalpreferences,23and(b)theprotectionoftheirtinorangatiratanga,beingthefullauthority,statusandprestigeasregardsMāoripossessionsandinterests.24TheLawCommissionconcludedthattherightthereforeencompassesthepreservationforMāorioftheircustomarytitle25andtheCrown’sobligationtotakeactivestepstoensurethatMāorihaveandretainfullexclusiveandundisturbedpossessionoftheirculture.26
RECOMMENDATION22
Thatafutureplanningsystemmust,ifitistoeffectivelysupportdesirablecultural,economic,environmentalandsocialoutcomes,moveawayfromthecurrent“adverseeffects”baseapproachandinsteadadopta“valuesandoutcomes”basedapproachtoallocatingandmanaginglanduse.
Desirablecultural,economic,environmentalandsocialoutcomescanonlybesupportedifallthoseexercisingplanningfunctionsandpowersarerequiredtoshowhowtheirdecisionsandactivitiesenableorconstraincultural,economic,environmentalandsocialwell-being’s.
RECOMMENDATION23
Afutureplanningsystemshouldrequirelocalgovernment(andrelevantcentralgovernmentagencies)tocollaboratewithbothManaWhenuaandMata-a-wakato:
a) identifytheirvalues,rightsandinterestsintheurbanenvironment;
b) determinesocial,cultural,environmentalandeconomicoutcomes;
c) developassessmentandmonitoringmethodologiesandframeworksthatintegratetikangaMāoriandmātaurangaMāori,inorderthataculturallyresponsiveandrobustevidencebasecanbedevelopedtoinformurbanplanningprocessesanddecision-making;27and
d) developannualandlong-termworkprogrammestoresourceanddeliverthesocial,
23WaitangiTribunalReportFindingsandRecommendationsoftheWaitangiTribunalonanApplicationbyAila
TaylorforandonbehalfofTeAtiawaTribeinRelationtoFishingGroundsintheWaitaraDistrict–Wai6(DepartmentofJustice,Wellington,1983)51.CitedinNZLCSP9onp.80.
24WaitangiTribunalReportoftheWaitangiTribunalontheManukauClaim–Wai8(Wellington,1985)67.Ibidatp.80.
25TeRunanganuioteIkaWhenuaInc.SocietyvAttorney-General[1994]2NZLR20,24;WaitangiTribunalReportoftheWaitangiTribunalontheOrakeiClaim–Wai9(Wellington,1987)135.Ibidatp.80.
26WaitangiTribunalReportoftheWaitangiTribunalontheOrakeiClaim–Wai9(Wellington,1987)135.Ibidatp.80
27Forexample,theMauriModelDecisionMakingFrameworkisonepossibleapproachthathasdeliveredoutcomesforiwiandhapūinplanningcontextsrelatedtowaterresourcesmanagement(Kaitunadiversion),urbanstormwater(AucklandCouncil),wastewaterschemes(RotomaWWTP),irrigationdams(Ruataniwha),anddisasterresponse(Rena).
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cultural,environmentalandeconomicoutcomesthatMāoricommunitiesidentifyasimportantinurbanenvironments.
CHAPTER5–THEURBANPLANNINGSYSTEMINNEWZEALAND
Finding5.1–Roleclarity
“TherehasbeenconsiderabledebateaboutthepurposeoftheResourceManagementAct1991,andthepracticalimplicationsof‘sustainablemanagement’forcouncilplansandrules.ConfusionaboutthepurposeoftheRMAinitsearlyyearsmadeitharderforcouncilstodevelopandimplementlanduseplans”28
COMMENTS–PURPOSEOFTHERESOURCEMANAGEMENTACT
WeagreethattherehasbeenconsiderabledebateaboutPart2oftheResourceManagementAct.Inourexperience,Part2oftheResourceManagementActiscriticaltoensuringthatMāorivalues,rightsandinterestsarerecognisedandprovidedforwithinlocalgovernmentplans.The‘fourwell-being’s’withinthepurposeoftheResourceManagementActalsoaccordwiththeholisticnatureofMāoriworldviews.The‘quadruplebottomline’approachwasincludedinplanninglegislationtoreflectprotestsfromMāoricommunitiesagainstthehistoricalexclusionofMāorivalues,rightsandinterestsfromtheplanningsystem29.
Inpractice,however,Part2istreatedasa‘balancingexercise’where‘Māoriperspectivesareaconsiderationtobeweighedagainstotherconsiderations,ratherthanafundamentalinstitutionoftheplanningsystem’30.TheCommissionhasidentifiedtheneedforclearerprioritieswithinafutureurbanplanningsystem31.ManawhenuaandMata-a-wakamustbeinvolvedindecidingthesepriorities.
However,wealsonotethatthepurposeoftheLocalGovernmentActwasamendedin2012toremovethereferencetothe“fourwell-beings”.Atthatpoint,thepurposeoflocalgovernmentchangedfrompromotingcommunitywellbeingtomeeting“thecurrentandfutureneedsofcommunitiesforgood-qualitylocalinfrastructure,localpublicservices,andperformanceofregulatoryfunctionsinawaythatismostcost-effectiveforhouseholdsandbusinesses”.
28ProductivityCommission(2016)p.9029Rikys(2004)
30White(2012)p.82
31ProductivityCommission(2016)p.6
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Finding5.2–Roleclarity
“ThedifferingpurposesofthethreeplanningActscreateinternaltensions,duplication,complexityandcosts”32
COMMENTS
WeagreewiththeCommission’sfindingthatworkingbetweenmultiplepiecesoflegislationiscomplicated.Thesedifferencesalsocreatedifficultiesforiwi/hapū,andtheexistenceofmultipleprocessesoftencompromisethecapacityofMāoricommunitiestoengageeffectivelyinurbanplanning.Thecomplexityofengaginginmultipleplanningprocessesisamplifiedwhentribaltakiwāstraddlemultipledistrictsorregions.
Finding5.4–AppealRights
“AppealrightsinNewZealandarebroaderthaninothercomparablejurisdictions.TheabilitytoappealprovisionsofPlansisparticularlyunusual”33
COMMENTS
WeacknowledgetheCommission’sfindingthatappealrightsinAotearoaNewZealandarebroad.However,theseappealrightshavebeenextremelyimportanttoadvancingMāorivalues,rights,andinterests.BecauseoftheissuesoflimitedcapacityandmultipleprocessesexperiencedbyMāoricommunities,coupledwiththefactthatcouncilsdonotengagesufficientlyearlywithManaWhenua,anumberofiwiandhapūhavehadtouseappealrightstoparticipateinplanningprocesses.
Finding5.7–Monitoring,leadershipandmanagementfromthecentre.
“Apartfromlandtransport,centralgovernmenthas,untilveryrecently,playedarelativelyweakroleinleadingandmanagingtheplanningsystem”34
COMMENTS–GUIDANCEFROMCENTRALGOVERNMENT
InaccordancewiththeCommission’sfinding,wesuggestthatgreaterinvolvementfromcentralgovernmentinurbanplanningcouldstrengthenrecognitionforkaupapaMāoriplanningand
32ProductivityCommission(2016)p.9233ProductivityCommission(2016)p34734ProductivityCommission(2016)p118
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provisionforMāorivalues,rightsandintereststhroughoutthecountry.
Inourexperience,‘bestpractice’planningpracticeshaveeitherbeendirectedthroughTreatySettlementlegislation,and/oremergedfromstrongexistingrelationshipsbetweenlocalgovernmentandrepresentativesofMāoricommunities.SuccessfulrelationshipshavebeenpredicatedonindividualsandorganisationsdevelopinggenuineunderstandingandrespectforrespectiveMāoriandcouncilrolesandresponsibilities.Unfortunately,inmanyplacesgenuineunderstandingandrespectiseitherabsentorstilltoolimitedtoresultinmeaningfulparticipationbyMāoriindecisionmakingprocessesand/oreffectiverecognitionandprovisionforMāorivalues,rightsandinterests.
Finding5.8–Devolution&CentralControl
“Afterdecadesofgreaterdevolutionofplanningpowerstolocalgovernment,recentdevelopmentshaveseenatrendtowardscentralcontrol”35
TheconceptofdevolutionisrelevanttodebatesaroundtheTreatyresponsibilitiesoflocalgovernment.Section5.8(EnsuringtheprinciplesoftheTreatyofWaitangiaretakenintoaccount)statesthat:
“TheTreatyofWaitangiisanintegralpartofNewZealand’sconstitutionalfabric,andtherightsandobligationsthatitcreatesneedtobereflectedaccordinglyinregulatoryandpolicysystems.Thisisparticularlythecasewiththeplanningsystem,wheredecisionsoverlandandothernaturalresourcescantouchonArticle2rightsandobligations.AllthreeplanningstatutesrefertotheTreaty,andrequirecouncilstotakestepstoenableMāoritoparticipateinmakingdecisions.However,councilshaveperformedtheseobligationstovaryingextents”.36
COMMENT–TREATYPRINCIPLES
Inourexperience,theuncertaintywhichremainswithinlocalgovernmentaboutTreatyresponsibilitiesisakeybarriertoeffectiveengagementwithMāoriasTreatypartnersinplanningprocesses.
RECOMMENDATION24
AfutureplanningsystemshouldensuregreaterconsistencyinhowMāorivalues,rightsandinterestsarerecognisedandprovidedforacrosslocalgovernmentboundariesthrough,forexample,theamalgamationofcurrentplanninglegislationorthealignmentofcoreprovisionsthat
35ProductivityCommission(2016)p11936ProductivityCommission(2016)p112
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effectssuchmatters
RECOMMENDATION25
AfutureplanningsystemshouldrequiregreateralignmentandcoordinationacrosslocalandregionalcouncilboundariestoreducecomplexitiesandcostsofMāoricommunitiesengaginginplanningprocesses.
CHAPTER6–OUTCOMESFROMTHECURRENTSYSTEM
TheCommissionnotesthatwhilethecurrentplanningsystemasawholecurrentlyhasnosinglepurposestatement,thethreemainActs(RMA,LGA,LTMA)suggestthatthepresenturbanplanningsysteminNZhasthefollowingmainoutcomes:37
a. Protectionandenhancementoftheenvironment:TheResourceManagementAct(RMA)isanenvironmentalmanagementstatute,withadefinitionofthe‘environment’thatgivesprominencetobiophysicalfeatures.
b. Theefficient,effectiveandappropriateprovisionofinfrastructureandlocalpublicservices:TheLocalGovernmentAct(LGA)explicitlyidentifiestheseasfallingwithinthepurposeoflocalgovernment.
c. Safe,efficientandeffectivelandtransport:AsstatedinthepurposeoftheLandTransportManagementAct(LTMA),andreinforcedbythespecificprioritiesoftheGovernmentPolicyStatement(GPS).
Findings6.3to6.10–PoorOutcomesfromtheCurrentSystem
TheCommission’sfindingsinChapter6pointtoweaknessesinthedesignandoperationofthecurrenturbanplanningsystem,including:
– Freshwaterqualityisgenerallylowerinwaterwaysthatflowthroughpredominantlyurbanareas.Thesourcesofpollutioninurbanwaterwaystypicallyincludesewageleaksandstorm-waterrun-off.(Finding6.3)
– Netandtotalgreenhousegasemissionsincreasedfrom1990to2014by54%and23%respectively.Mostoftheincreaseswereduetoroadtransportactivities,agricultureandreducedcarbondioxideabsorptionfromforests.(Finding6.4)
– Housingaffordability,asexpressedastheportionofthecommunitypayingmorethan30%ofdisposableincomeonhousing,hasdeterioratedsignificantlyoverthepast25
37ProductivityCommission(2016)p.25
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years.Peopleonlowerincomesfeeltheburdensofthisdeteriorationmostheavily.(Finding6.5)
– NewZealandseweragesystemscompareunfavorablyagainstanumberofinternationalperformancebenchmarks(Finding6.9)
– Theabsenceofnationalstandardsandlocalorpoliticalresistancehaslimitedtheplanningsystem’sabilitytomanagepollutionoffreshwaterorcumulativepollution(Finding6.10).
COMMENTS
WeagreewiththeCommission’sfindingsinChapter6thatthecurrentplanningsystemhasresultedinpoorenvironmentaloutcomes.ThesefindingsreinforceourconcernsthatthecurrentplanningsystemisnotfullydeliveringtheoutcomesthatMāoricommunitiesexpectandaspireto(forexample,waterqualitystandardsthatsustainmahingakai).
WebelievethattheCommission’sfindingssubstantiatesupportforgreaterinvolvementfromcentralgovernmentinanynewplanningsystemthroughdevelopingandimplementingnationalpolicystatementsandenvironmentalstandardsunderPart5oftheRMA.
RECOMMENDATION26
AfutureplanningsystemshouldimproverequirementstomeasureandmonitorenvironmentaloutcomesagainstaframeworkwhichincludesindicatorsbasedinmātaurangaMāori.
CHAPTER7–REGULATINGTHEBUILTENVIRONMENT
Finding7.5–Howdoescurrentpracticestackup?
“Councilrequirementsonsomedevelopmentstoundergourbandesignassessmentsareleadingtopoorexercisesofregulatorydiscretion.Urbandesigncriteriacanlackclarityandprecision,anddesignadvicetoresourceconsentapplicantscanlackperspective,consistency,orasenseoftheircostoreconomicimplications”38
COMMENT–URBANDESIGNGUIDELINES
WedisagreewiththeCommission’sfindingthatimpliesaminimalvalueofurbandesign
38ProductivityCommission(2016)p.172
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guidelines.AnumberofMāoricommunitiesaredevelopingorhavedevelopedurbandesignguidelinesbyiwi/hapūindependentlyorincollaborationwithlocalorcentralgovernmentagencies39.TheseinitiativesreflectthedevelopingcapacityofMāoricommunitiesandpractitionerstoengagemoreeffectivelyinurbanplanninganddesign,aswellasthegrowingcommitmentfromlocalandcentralgovernmenttoworkcollaborativelywithMāori.KaupapaMāoriurbandesignguidelinesareintendedtofacilitatemeaningfulandauthenticexpressionsoftherelationshipthatManaWhenuahavewiththeirancestrallands,waters,wāhitapu,wāhitaonga,mahingakai,papa-kāingaandothertaongawithinurbanenvironments.
Finding7.9–TimeforPlanningProcesses
“Councilsfaceproceduralbattlesinrespondingtochangingcircumstancesandpreferencesthroughtheplanningsystem.ThecurrentprocessesforchanginglandusecontrolsthroughtheResourceManagementActcantakeconsiderabletimetocomplete”40
COMMENT–TIMEFORPLANNINGPROCESSES
WeagreewiththeCommission’sfindingthatplanningprocessescanbetime-consuming.However,wereiteratetheneedforanyfast-trackedplanningprocesstoprovidespecificopportunitiesforMāoricommunitiestoparticipateinplanningprocessesanddecision-making.
Finding7.11–LackofClearLimits
“Theplanningsystemlacksclearstatutorylimits.Thishasledthesystemtorespondtoagrowingvarietyofsocialandotherissues,withoutconsideringwhetherlanduseplanningisthemosteffectiveandefficientmechanismfortheirresolution”41
COMMENTS–SCOPEOFURBANPLANNING
TheCommissionconsiders42:
• thatthelackofclearlimitsisareflectionofthewidescopeofthepurposesanddefinitionsofboththeRMAandtheLGA,aswellassomeunhelpfulcentralgovernmentguidance;
39Forexample,see.NgāiTūāhuriri/MatapoporeUrbanDesignGuidelineswww.Matapopore.co.nz/wp-
content/uploads/2016/05/Matapopora-UDG-Finalv3-18Dec2015.pdfandtheChristchurchCBDStreetsandSpacesGuidewww.ngaitahu.iwi.nz/our_stories/joint-award-central-city-design-guide/
40ProductivityCommission(2016)p17641ProductivityCommission(2016)p17942ProductivityCommission(2016)p177-179.
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• thatthesecircumstances,combinedwiththerangeofothersissuesthatmustbeconsideredorgiveneffecttoinPart2oftheRMAaswellastheabsenceofnationalpolicystatementsonurbanissues,provideslittleguidancetocouncilsonprioritiesandleavesthesystemopentobehaviourthatseekstorespondtoanever-growingvarietyofsocialills,withoutconsideringwhetherplanningorlocalgovernmentactionisthemosteffectiveandefficientmechanism;and
• Thattherangeofsocial,economic,culturalandenvironmentalobjectivesthatsomecouncilsseektoachievethroughtheplanningsystemcanleadto“objectiveoverload”andconflictinggoalsataDistrictPlanlevel.
Inresponse,wenote:
• thatMāoriworldviewsareholistic;
• thatitisentirelyartificial,andthereforeunreal,toseparatepeopleandeconomicsfromthenaturalworldandenvironmental,socialandculturalwell-beings;
• thatanysuch‘separation’willelevateprivatepropertyrightsabovetherighttoexercisekaitiakitanga;43
Inconclusion,wedonotbelievethatdivorcingenvironmentalprotectionfromtheurbanplanningsystemwillresultinbetteroutcomesforeitherMāoricommunitiesorthecountry.
RECOMMENDATION27
Afutureplanningsystemshouldcontinuetoencompassbothurbanplanningandenvironmentalprotectionandinstitutebettermechanisms(e.g.NPAonTeTiritioWaitangi;quadruplebottomlineaccountingsystems)toframeandguidelocalgovernmentdecisionmakingprocessesanddevelopments.
CHAPTER8–URBANPLANNING&THENATURALENVIRONMENT
Finding8.6–InsufficientMonitoringofEnvironmentalOutcomes
“RecentstepstostrengthencentralgovernmentoversightoftheResourceManagementActhavefocusedpredominantlyonprocessindicators(suchasthetimetakentoprocessconsents)ratherthantheenvironmentaloutcomesofplanningdecisions’44
43Memon&Kirk(2012),Coombesetal(2011),Kepe(2008)ascitedinTaylor(2015)44ProductivityCommission(2016)pp204-206.
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COMMENT–FOCUSONOUTCOMES
TheCommissionnotesthat:
• Monitoringthehealthofthenaturalenvironmentisvitaltoevaluatewhetherexistingregulatoryregimesareleadingtothedesiredoutcomes,yetforthefirst20yearsoftheRMA,itseemscentralgovernmenthadlittleoversightofwhethertheActwasactuallyachievinggoodenvironmentaloutcomes.
• Inrecentyears,thegovernmenthastakenstepstoimprovethemonitoringofenvironmentalhealth.
• Whilethisisastepforwardfromtheinconsistentreportingofthepasttwodecades,questionsremainaroundhowtolinktheevaluationofthedatatomonitoringtheeffectivenessoftheplanningsystematboththelocalandcentralgovernmentlevel.
Whileweacceptthatthereareexampleswheredecision-makershavefocussedondetailsratherthanoutcomes,wecons