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QLDC Stage 3 Report 20.2

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QLDC Stage 3 Report 20.2 QUEENSTOWN LAKES DISTRICT COUNCIL Hearing of Submissions on Stage 3 Proposed District Plan Provisions Report and Recommendations of Independent Commissioners Report 20.2: Chapter 39 Wāhi Tūpuna and Related Variations to Chapters 2, 12-16, 25-27, 29 and 30 Commissioners Trevor Robinson (Chair) Juliane Chetham Sarah Dawson Greg Hill Quentin Smith TABLE OF CONTENTS 1. PRELIMINARY .................................................................................................................... 3 1.1 Subject Matter of this Report .................................................................................................... 3 1.2 Relevant Background ................................................................................................................. 3 1.3 Nomenclature ............................................................................................................................ 3 2. STATUTORY CONSIDERATIONS ........................................................................................... 3 2.1 RPS .............................................................................................................................................. 4 2.2 Strategic Chapters ...................................................................................................................... 4 2.3 Iwi Management Plans ............................................................................................................... 6 3. PROCESS OBJECTIONS ....................................................................................................... 7 3.1 Consultation ............................................................................................................................... 7 3.2 Section 32 Flaws ......................................................................................................................... 8 3.3 Abdication of Council’s Role ...................................................................................................... 9 3.4 Duplication with other Processes ............................................................................................ 10 3.5 Withdrawn Zones ..................................................................................................................... 12 4. GENERAL ISSUES WITH SUBSTANCE OF CHAPTER 39 .......................................................... 12 4.1 What is Chapter 39 About? ...................................................................................................... 12 4.2 Wāhi Tūpuna over Private Land ............................................................................................... 13 4.3 Consistency with NPSET ........................................................................................................... 14 4.4 Consistency with the NPSUD .................................................................................................... 15 4.5 Lack of evidential basis for identified Wāhi Tūpuna areas and connection between threats and values in those areas ......................................................................................................................... 16 4.6 Conflicts of Interest .................................................................................................................. 18 5. SPECIFIC PROVISIONS ..................................................................................................... 19 5.1 Chapter 39.1 Purpose............................................................................................................... 19 5.2 Objective 39.2.1 ....................................................................................................................... 20 5.3 Policies ..................................................................................................................................... 21 5.4 Chapter 39.3 – Other Provisions and Rules ............................................................................. 28 5.5 Chapter 39.4 – Activity Rules ................................................................................................... 29 5.6 Chapter 39.5 Rules – Standards ............................................................................................... 33 5.7 Schedule 39.6 ........................................................................................................................... 37 5.8 Mapping Issues ......................................................................................................................... 38 5.9 Variations to Chapter 2 - Definitions........................................................................................ 41 5.10 Urban Zone Rules ..................................................................................................................... 43 5.11 Variation to Chapter 25 - Earthworks ...................................................................................... 43 5.12 Chapter 26 – Historic Heritage ................................................................................................. 46 5.13 Chapter 27 – Subdivision and Development ............................................................................ 47 1. 5.14 Chapter 29 - Transport ............................................................................................................. 48 5.15 Chapter 30 – Energy and Utilities............................................................................................. 49 6. OVERALL RECOMMENDATIONS ....................................................................................... 49 2. 1. PRELIMINARY 1.1 Subject Matter of this Report 1. This Report addresses the submissions and further submissions heard by the Stream 16 Hearing Panel in relation to Chapter 39 Wāhi Tūpuna, together with the related variations to Chapters 2, 12, 13, 14, 15, 16, 25, 26, 27, 29 and 30 of the PDP. 2. Chapter 39 is an entirely new chapter that had no comparable chapter in the ODP. Its stated purpose1 is “to assist in implementing the strategic direction set out in Chapter 5 Tangata Whenua in relation to providing for the kaitiakitanga of Kāi Tahu as Manawhenua in the district”. 3. This is primarily achieved by identifying Wāhi Tūpuna areas with an overlay on the planning maps, setting out objectives and policies relating to subdivision, use and development within the identified areas and identifying recognised threats that may be incompatible with Manawhenua values for each specific area. 1.2 Relevant Background 4. This Report needs to be read in conjunction with Report 20.1 which provides a list of abbreviations that we will use in this Report, together with background detail on: (a) The appointment of Commissioners to this Hearing Panel; (b) Procedural directions made as part of the hearing process; (c) Site visits; (d) The hearings; (e) The statutory considerations bearing on our recommendations; (f) Our approach to issues of scope. 5. We do not therefore repeat those matters although, in the section following, we provide greater detail on the particular matters relevant to our consideration of Chapter 39 and the related Proposed Plan variations that we had to consider. 6. We record that we have adopted the general approach outlined in Section 3.6 of Report 20.1 to the preparation of this Report. 1.3 Nomenclature 7. The southern dialect of te reo Māori exchanges ‘k’ for ‘ng’ wherever it appears – hence Kāi Tahu rather than Ngāi Tahu. The RPS generally uses the southern dialect, whereas Chapters 3 and 5 of the PDP does not. The Kā Rūnaka expert witnesses have utilised ‘k’. We defer to their convention both in this Report and in our recommended Chapter 39 as relevant, unless quoting from another document. We have also inserted a footnote in our recommended chapter 39 to make that clear, and have updated the glossary recommended in Chapter 2 to provide for both conventions. 2. STATUTORY CONSIDERATIONS 8. As above, Report 20.1 outlines both the required approach to consideration of submissions and further submissions and the content of key documents bearing on our recommendations. We note in particular the provisions related to Te Mana o te Wai and the principle of Mana 1 Chapter 39.1 3. whakahaere referenced in Report 20.1. They confirm both the importance of the health and wellbeing of freshwater from a cultural perspective and the need to involve tangata whenua in the management of activities with potential to adversely affect freshwater. There are some specific additional provisions that we need to note, since they will drive our recommendations on this topic. 2.1 RPS 9. Section 2 of the RPS addresses Kāi Tahu values and interests. Most of the provisions of Section 2 have already been implemented through Chapter 5 of the PDP and thus we need not consider them specifically. 10. Policy 2.2.2, however, is of particular relevance on the topic we have to consider. It reads: “Recognising sites of cultural significance Recognise and provide for the protection of wāhi tūpuna, by all of the following: (a) Avoiding significant adverse effects on those values that contribute to the identified wāhi tūpuna being significant; (b) Avoiding, remedying, or mitigating other adverse effects on the identified wāhi tūpuna; (c) Managing the identified wāhi tūpuna sites in a culturally appropriate manner.” 11. This Policy needs to be read against the definition in the Glossary of the RPS that tells us that wāhi tūpuna are: “Landscapes and places that embody the relationship of manawhenua
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