ROBERT A McCLEAN R. A. McClean Matakana Island Sewerage Outfall Report VOLUMES ONE AND TWO: MAIN REPORT AND APPENDIX Wai 228/215 January 1998 Robert A McClean Any conclusions drawn or opinions expressed are those of the author. Waitangi Tribunal Research 2 R. A. McClean Matakana Island Sewerage Outfall Report THE AUTHOR My name is Robert McClean. I was born in Wellington and educated at Viard College, Porirua. After spending five years in the Plumbing industry, I attended Massey University between 1991 and 1996. I graduated with a Bachelor in Resource and Environmental Planning with first class honours and a MPhil in historical Geography with distinction. My thesis explored the cartographic history of the Porirua reserve lands. Between 1995 and 1997, I completed a report for the Porirua City Council concerning the the management. of Maori historical sites in the Porirua district. I began working for the Waitangi Tribunal in May 1997 as a research officer and I have produced a report concerning foreshores and reclamations within Te Whanganui-a­ Tara (Wellington Harbour, Wai 145). I am married to Kathrin and we have four children; Antonia, Mattea, Josef and Stefan. ACKNOWLEDGEMENTS I would like to express my appreciation to all those persons who have helped me research this claim. Especially Dr Johanna Rosier (Massey University), Andy Bruere, Rachel Dadson, Betty Martin (Environment B.O.P), Graeme Jelly, Alison McNabb (Western Bay of Plenty District Council), Bob Drey (MAF), David Phizacklea (DOC), Erica Rolleston (Secretary of Tauranga Moana District Maori Council), Christine Taiawa Kuka, Hauata Palmer (Matakana Island), Rachael Willan, Anita Miles and Morrie Love (Waitangi Tribunal). Special thanks also to Kathrin and my children for their support and encouragement. Front cover Aerial photo of proposed pipeline route, 1977. Source, K. Craven, BOP Co-op Dairy Association, Information accompanying Company's application to discharge waste off Matakana Island, 25 February 1977, WBOPDC. Waitangi Tribunal Research 3 R. A. McClean Matakana Island Sewerage Outfall Report List of Abbreviations . .. 7 List of Illustrations ...................................................... 8 Explanation of Terms ................................................... 9 Report Summary ...................................................... 11 Chapter 1 :Matakana Island Sewerage Outfall and the Tauranga Claims ..................................... 15 1.1 Claims concerning sewerage discharge and piscary rights ................. 15 1.2 Main Issues . 17 1.3 Methodology .................................................... 20 Chapter 2: Matakana Island Coastal Environment; Customary Use and Piscary Interests ........................... 21 2.1 Maori settlement of Matakana Island ................................. 21 2.2 Record of Protest; customary piscary interests within Tauranga Moana ....... 27 Waitangi Tribunal Research 4 R. A. McClean Matakana Island Sewerage Outfall Report Chapter 3: Sewerage Disposal Management Regime .............. 32 3.1 Early Regulation ................................................. 32 3.2 Water and Soil Conservation Act 1967 .. : ............................. 35 3.3 Tauranga Harbour Water Classification 1971-1975 ...................... 38 3.4 Resource Management Act 1991 ..................................... 42 Chapter Four: The History of the Matakana Island Sewerage Outfall 1950-1990 ............................................... 48 4.1 Waste disposal from the Katikati Factory, 1965-1980 .................... 48 4.2 Katikati sewerage plans, 1965-1977 .................................. 59 4.3 Katikati joins the Matakana Island outfall scheme ....................... 66 4.3.1 Post Hearing reaction ......................................... 71 4.3.2 Katikati sewerage plans are implemented .......................... 80 4.3.2 Outfall monitoring and opposition from the Matakana Island Community 1985-1989 .................................................. 90 Chapter Five: Matakana Island Sewerage Outfall 1990-1997 ....... 94 5.1 Shellfish monitoring after 1990 ...................................... 94 5.2 Planning for sewerage, early 1990s ................................... 98 5.2.1 Treatment plans at the old dairy factory site ....................... 102 5.3 Opposition from the Matakana Island Community ...................... 105 5.4 Katikati Sewerage Outfall proposals, 1995-1997 ....................... 114 Chapter Six: Conclusions .................................... 128 Waitangi Tribunal Research 5 R. A. McClean Matakana Island Sewerage Outfall Report () Appendix A. Research Commission ......................................... 137 B. Water Right Application, Katikati Dairy Factory, 1977 0 0 0 0 • 0 0 0 138 Co Water Right Application, Tauranga County Council, 1977 000000 145 D. Summary of Bacteriological Testing and Shellfish Monitoring, 1977-1997 0 •• 0 0 0 0 0 • 0 0 0 0 • 0 • 0 • 0 0 0 o. 151 E. Sewerage Disposal Management Regime, 1967-1997 .00 •• 00 ••• 157 Eo1 Water and Soil Conservation Act 1967 ....... 0 •••••••••••••••••• : •••• 157 E.2 Harbours Act 1950 ............................................... 159 E.3 Town and Country Planning Act 1977 ........................... : ... 160 EA Resource Management Act 1991 .................................... 161 E.5 Consultation under the Resource Management Act 1991 ................. 170 E.6 Understandings of Maori waste management values ..................... 178 E.7 Relevant Policy Documents and Plans ............................... 180 Bibliography ....................................................... 199 Waitangi Tribunal Research 6 R. A. McClean Matakana Island Sewerage Outfall Report BOD Biological Oxygen Demand BOP Bay of Plenty BOPRC Bay of Plenty Regional Council (Environment BOP) BP Before Present CMS Conservation Management Strategy DOC Department of Conservation Doc Document DP District Plan Ed Edition gpd gallons per day KWWP Katikati Wastewater Working Party MAF Ministry of Agriculture and Fisheries MFE Ministry for the Environment MHWS . Mean High Water Springs MPN Most Probable Number NA National Archives NAC US National Advisory Committee on Microbiological Criteria for Foods NAS US National Academy of Science ) NZCPS New Zealand Coastal Policy Statement NZFP New Zealand Forest Products NZLR New Zealand Law Review NZRMA New Zealand Resource Management Appeals NZTPA New Zealand Town Planning Appeals RCP Regional Coastal Plan RMA Resource Management Act 1991 RMLR Resource Management Law Reform RPS Regional Policy Statement ROD Record of Documents SS Suspended Solids SQA Shellfish quality assessment programme of Environment BOP TCC Tauranga County Council TCPA Town and Country Planning Act 1977 US United States of America WBOPDC Western Bay of Plenty District Council Wai Waitangi Tribunal Claim Waitangi Tribunal Research 7 R. A. McClean Matakana Island Sewerage Outfall Report Figure Page 1.1 14 Matakana Island Sewerage Outfall 2.1 23 Distribution ofPre-European contact archaeological sites 2.2 24 Stratigraphy of dunes exposed in estuarine cliff 3.1 34 Final classification, Tauranga Harbour, 1964 3.2 39 Final classification, Tauranga Harbour, 1972 4.1 53 Proposed route, Combined Sewerage Scheme, 1976 4.2 54 Proposed route, Katikati pipeline, 1976 4.3 59 Katikati Township 4.4 69 Location plan of outfall pipe 4.5 81 Construction of the Matakana Island pipeline, 1978 5.1 100 Proposed long-term wastewater collection and disposal concept plan 5.2 101 Katikati catchment wastewater scheme concept 5.3 110 Sketch plan of proposed Katikati sewerage disposal scheme Appendix D.1/D.2 155 Shellfish bacteria, 1991 E.1 172 Approaches to Environmental Dispute Resolution E.2 172 Continuum of Public Involvement Waitangi Tribunal Research 8 R. A. McClean Matakana Island Sewerage Outfall Report Bacteria and viruses . Various different types of .hacteriaare .. found in sewage. Some, such as faecalcoliforms, salmonella, and Escherichia coli, are used as an indicator of bacterial pathogens. Increasingly, viruses rather than bacteria are being used as an indicator to determine shellfish suitability for consumption. In particular,the United States. National Advisory Committee recommends monitoring of vibrio. species of virus. Three main vibrio species are considered harmful to human health: vibrio parahaemolyticus, vibriovulnificus,~.andvibrioalginolyticus.Monitoring of both .bacteria and viruses is· requiredjnorderto~determine the level ofshellfish contamination . .Biological .oxygen Demand (BOD) This is an indicator ofresidual organic content in the effluent. This content may involve further biodegradation and therefore place a demand on oxygen in the environment. Faecal Coliforms (FC) These are bacteria that are present in the gut and in the faeces of warm blooded animals. For this reason they are often used to indicate the presence ofpollution (bacterial pathogens) derived from humans. Faecal coliforms are less useful as indicators of excreted viruses. Pathogens Disease-causing micro-organisms; viruses, fungi, bacteria and eggs of parasites. pH A measure of acidity or basicity of a substanc.eranging from 1.0 to 14.0 with 7 being neutral. Sewage . Generally refers to: the actual liquid waste ofa community. Sometimes this sewage may include stormwater infiltration. Sewage sludge Solid material derived from settled material during treatment process. Sewerage Waitangi Tribunal Research 9 R. A. McClean Matakana Island Sewerage Outfall Report Refers to both the sewage and the trunk mains or