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MĀORIPLANNINGFUTURESREVIEWOFPRODUCTIVITYCOMMISSION’S“BETTERURBANPLANNING”DRAFTREPORT(AUGUST2016)

NGĀAHO&PAPAPOUNAMUAuthoredbyTeMarinoLenihanandJackyBartleyEditedbyBiddyLivesey

October2016

NgāAho&PapaPounamuReviewof“BetterUrbanPlanning”DraftReport(August2016)

www.ngaaho.māori.nz www.papapounamu.org 2

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.



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.



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)



• 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.



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



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



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-



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.



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



governmentplanningdocuments;and

d) institutinganewnationalplanningauthoritywithspecificexpertiseinMāorivalues,rightsandinterestsinurbanplanningandthemanagementofnatural,physicalandspiritualresources.

R25 Thatafutureplanningsystemshould:

• requiregreateralignmentandco-ordinationacrosslocalandregionalcouncilboundariestoreducecomplexitiesandcostsonMāoricommunitiesengaginginplanningprocesses.


• ensuregreaterconsistencyinhowMāorivalues,rightsandinterestsarerecognisedandprovidedforacrosslocalgovernmentboundariesthrough,forexample,theamalgamationofcurrentplanninglegislationandalignmentofcoreprovisionsthateffectssuchmatters.


• 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).



R22 Thatafutureplanningsystemmust,ifitistoeffectivelysupportdesirablecultural,economic,environmentalandsocialoutcomes,moveawayfromthecurrent“adverseeffects”baseapproachandinsteadadopta“valuesandoutcomes”basedapproachtoallocatingandmanaginglanduse.


• 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.



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



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



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);

6ProductivityCommission(2016)p.272



− 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”.



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



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.



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.




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




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




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;

12WaitangiTribunal(2011)p584



• 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.



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.




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.



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.



(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





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



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.



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.



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.



− 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.



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)



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).



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




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



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



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




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




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.



• 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.



COMMENT–FOCUSONOUTCOMES

TheCommissionnotesthat:

• Monitoringthehealthofthenaturalenvironmentisvitaltoevaluatewhetherexistingregulatoryregimesareleadingtothedesiredoutcomes,yetforthefirst20yearsoftheRMA,itseemscentralgovernmenthadlittleoversightofwhethertheActwasactuallyachievinggoodenvironmentaloutcomes.

• Inrecentyears,thegovernmenthastakenstepstoimprovethemonitoringofenvironmentalhealth.

• Whilethisisastepforwardfromtheinconsistentreportingofthepasttwodecades,questionsremainaroundhowtolinktheevaluationofthedatatomonitoringtheeffectivenessoftheplanningsystematboththelocalandcentralgovernmentlevel.

Whileweacceptthatthereareexampleswheredecision-makershavefocussedondetailsratherthanoutcomes,wecons