REVIEW OF LANDSCAPE AREAS AND IMPLICATIONS FOR PLAN REVIEW Hastings District Council April 2013
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Bibliographic reference for citation: Boffa Miskell Limited 2013. REVIEW OF LANDSCAPE AREAS AND IMPLICATIONS FOR PLAN REVIEW: Hastings District Council. Report prepared by Boffa Miskell Limited for Hastings District Council.
Pre-Key Stakeholder Consultation Draft: Note this draft report does not include input from any stakeholder engagement or consultative process and represents the findings of preliminary desktop analysis and selected field work investigation.
Prepared by: Craig Batchelar Rebecca Ryder
Peer reviewed by: John Goodwin / Shannon Bray
Status: DRAFT For Council Review Issue date: April 2013
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Cover photograph: Te Mata Peak. Image provided by Hastings District Council, 2012,
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CONTENTS
1.0 Introduction 1
1.1 Purpose 1 1.2 Scope 1
2.0 Strategic Background 3
2.1 Hastings District Council Sustainability Philosophy 3 2.2 Heretaunga Plains Urban Development Strategy 3 2.3 Hastings Coastal Environment Strategy 2000 6 2.4 Landmarks Development Plan 7 2.5 Renewable Energy 8
3.0 Statutory Considerations 10
3.1 Resource Management Act1991 10 3.2 National Environmental Standards (NES) for Electricity Transmission Activities 13 3.3 National Policy Statement for Renewable Electricity Generation 2011 13 3.4 Regional Policy Statement 15 3.5 Regional Policy Statement – Change 4 - Managing the Built Environment 16 3.6 Regional Coastal Environment Plan 16 3.7 Adjoining Territorial Local Authorities 16 3.8 Case Law 17 3.9 Significant Cultural Landscapes 23
4.0 Identification of Hastings Landscape Areas 24
4.1 Background 24 4.2 Identified Outstanding Natural Features and Landscapes and Amenity Landscapes. 36 4.3 Identified Landscape Character Areas 65
5.0 Implications for Review of District Plan 67
5.1 Current Approach - Resource Management Unit 68 5.2 Alternatives 71 5.3 Place Based Planning 73 5.4 Recommended Landscape Management Approach 74
Appendices
Appendix 1: Assessment Method
Appendix 2: Outstanding Natural Landscapes – A Maori cultural review of current schedule of Outstanding Natural Landscapes.
Appendix 3: Maps Rural and Coastal Landscape Character Areas
Appendix 4: Field Assessment Sheets
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1.0 Introduction
1.1 Purpose
This report is a review of the existing landscape assessment report titled “Outstanding Natural Landscapes Report” (Isthmus 1996) and is part of a package of background work to inform the current District Plan review process.
Hastings District Council has a number of landscape related statutory obligations under the Resource Management Act (1991) as well as through relevant National Policy Statements.
These obligations relate to management of the natural character of wetlands lakes, rivers and their margins and of the coastal environment; outstanding natural landscapes; the relationship of Maori and their culture and traditions with their ancestral lands, water, sites waahi tapu, and other taonga; and amenity landscape values.
Case law has also influenced the criteria used in the assessment of landscape values since the 1996 report and Council has indicated that more recent land use change has altered people’s appreciation and perceptions of landscapes. These community landscape values are also reflected in core non-mandatory strategy documents such as the Landmarks Development Plan.
An increased awareness of the importance of cultural landscape values through statutory planning processes is also a key reason for this review with the acknowledgment of Nga Wahi Tuturu o Heretaunga (significant cultural landscapes) to appropriately reflect the relationship of Maori and their culture and traditions with their ancestral lands, water, sites waahi tapu, and other taonga as required under section 6e of the Resource Management Act.
1.2 Scope
This report addresses the following matters:
Strategic Background - Consideration of influences on landscape management since the 1996 assessment report was completed, including:
• Hastings District Council Sustainability Philosophy
• Heretaunga Plains Urban Development Strategy
• Hastings Coastal Strategy
• Landmarks Development Plan
• Energy Development
Statutory considerations - including:
• Resource Management Act
• National Environmental Standard for Electricity Transmission
• National Policy Statement on Renewable Energy Generation
• Recent Case Law
• Significant Cultural Landscapes
• Regional Policy Statement and Plans
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Identification of Hastings Landscape Values - through a review of the 1996 Report including:
• Assessment and evaluation methodology
• Review of current Outstanding Natural Features and Landscapes (ONFLs) and Significant Landscape Character Areas (SLCAs)
• Additional ONFLs and SLCAs
• Regionally significant landscapes
• Subdivision and landscape design aspects in Significant Landscape Character Areas
Implications for Review of District Plan - including:
• Evaluation of the appropriateness of the current RMU approach
• Alternatives
• Place Based Planning
• Recommended Landscape Management Approach
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2.0 Strategic Background
2.1 Hastings District Council Sustainability Philosophy
2.1.1 Summary
The Council’s Sustainability Philosophy is set out in the Ten Year Plan:
“Great living, for a sustainable future
We will progress as town and country together and sustain our natural resources, enhance our valued lifestyle, culture and heritage, and build a strong economy and community founded on innovation and partnering for success. Hawke’s Bay will be the premier land based production region of the South Pacific.”
Community aspirations include:
“An environment that is appreciated, protected and sustained for future generations”
Community outcomes include having :
“a nurtured environment for future generations through the care, protection and best use of resources”.
Landscape values have a strong relationship to this philosophy. Although landscape values are not referred to directly in the defined community outcomes, the issue is addressed in the context of having a “strong district identity”. The relationship Tangata Whenua have with their land and their traditions and values are a key part of identifying the values attributed to landscape.
The Landmarks Development Plan picks up on this outcome which includes recognition of the Districts iconic landscapes” (See below).
2.1.2 Implications for Landscape Management
The Review of Landscape Areas will support the Council’s Sustainability Philosophy.
2.2 Heretaunga Plains Urban Development Strategy
2.2.1 Summary
The purpose of the Strategy is to provide a comprehensive, integrated and effective growth management strategy for the Heretaunga Plains sub-region.
HPUDS takes a long-term view of land use and infrastructure and how growth will be managed in the Heretaunga Plains sub-region for the period 2015-2045.
HPUDS describes what the anticipated level of growth will be over the next 30 years and beyond by identifying:
• Where growth will go and desired density
• What the sequence of development should be and the anticipated timetable/or triggers
• The criteria for establishing the boundaries to urban growth
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• What infrastructure is needed, with particular reference to transportation and drainage
• The budget implications
HPUDS is implemented through:
• Regional Policy Statement(s)
• District Plans
• Council’s Long Term Plans (LTPs)
• The Regional Land Transport Strategy
• Infrastructure development planning (including both policy and social infrastructure networks).
HPUDS covers the Heretaunga Plains including the small rural settlements on the fringes such as Maraekakaho, Puketapu, and Pakipaki. The coastal settlements of Waimarama, Ocean Beach, Te Awanga and Haumoana also fall into the study area as does Waipatki on the northern boundary.
The Strategy Vision is:
“In 2045, the Heretaunga Plains is a place where there are thriving communities, quality living environments with high levels of amenity, and where mana whenua values and aspirations are recognised and provided for, and where:
• There is a growing and resilient economy which promotes opportunities to live, work, play and invest.
• The productive values of its soil and water resources are recognised and provided for, and sustainable use is promoted.
• The urban centres of Napier and Hastings have distinct identities and provide complementary living, working and learning opportunities.
• Community and physical infrastructure is integrated, sustainable and affordable.”
Guiding Principles1 underpinning the vision include several that relate directly to landscape values:
• Maintain and enhance the cultural and heritage values of the Heretaunga Plains.
• Maintain the separation of defined urban areas by green and open space.
• Recognise that the amenity of the Plains environment is characterised by the openness to the sky, and significant landscapes including skylines clear of development.
2.2.2 Landscape
The Implementation Plan recognises landscape as a component of “Quality Living Environments with High Levels of Amenity and Thriving Communities”.
HPUDS identifies that the most attractive parts of the Heretaunga Plains and coastal area are under increasing pressure for development.
The key approaches include active consideration of landscape character in development planning, alongside specific responses in some areas.
Actions 2 are:
1 HPUDS, 1.6 Guiding Principles Page 16
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1. Promote changes to the RPS, regional plans, and district plans to ensure:
- Existing landscape values are identified and understood
- The effect of development on landscape is appropriately managed
- High value landscapes and key view paths are identified and protected
- New urban development is consistent with the New Zealand Urban Design Protocol
- Rural residential development is directed to locations where it will not detract from rural or natural character
- New industrial and infrastructure development does not compromise landscape character
2. Develop guidelines for landscape and view path protection to apply in the Heretaunga Plains.
2.2.3 Urban Intensification
The Strategy recognises long term drivers3 that support urban intensification including:
• There will be an ongoing decline in household occupancy rates leading to a demand for housing that is close to population growth.
• The aging population will demand a range and quality of housing in locations that offer convenience and amenity.
• Rising energy costs have the potential to bring about transport changes which will in turn influence residential location decisions.
The Strategy adopts targets for urban intensification while maintaining housing choices. The key elements of the settlement pattern are:
• 60% intensification 35% greenfield
• 5% of population in rural areas.
2.2.4 Rural Lifestyle Development
The Strategy recognises that the same long term drivers4 will reduce demand for rural lifestyle development. There is a predicted surplus in the supply of rural residential sites over the period. Sites based on this sector are expected to make up 5% of the market.
2.2.5 Coastal Development
Consolidation of development in selected settlements is the primary strategy:
Provide limited coastal development in the areas identified in the strategy already compromised by existing development and away from coastal hazard zones.
2 Action 5.14.4 p 89-90 HPUDS 3 HPUDS 1.3 Strategy Development 4 HPUDS 1.3 Strategy Development
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2.2.6 Implications for Landscape Management
The Strategy does not cover the whole of the Landscape Review study area, being limited to the Plains and other defined areas where urban development pressures are present and transport considerations arise.
If successfully implemented, the Strategy will reduce the pressure of development on significant landscapes by guiding urban and rural lifestyle development to more sustainable forms of housing in suitable locations.
The Landscape Review will support HPUDS actions by providing an updated framework for ensuring:
• Existing landscape values are identified and understood;
• The effect of development on landscape is appropriately managed.
• High value landscapes and key view paths are identified and protected.
2.3 Hastings Coastal Environment Strategy 2000
2.3.1 Purpose
The central goal of the HCES is:
“To establish a comprehensive Coastal Environment Strategy that will enable the community to develop an integrated regime to protect, manage and develop the Coastal Environment”.
2.3.2 Approach
The HCES incorporates all aspects of Council planning, including infrastructural planning, asset management, landscape, heritage and environmental assessment, natural hazard management and rural and social planning. The Strategy identifies the interdependence and relationship between resources and values in the coastal environment, focussing on integrating the management facets of Council’s planning.
The Strategy sets out strategic issues, objectives and policies. These include the “sense of place” with reference to landscape in the context of “amenity”.
The specific issues are defined for Management Areas and these include landscape values at several locations:
• Tangoio Headland – Protection of Outstanding Landscape
• Cape Kidnappers – Protection of Outstanding Landscape
• Ocean Beach – Significant landscape features warranting protection
In overview, the Strategy promotes consolidation of development at existing settlements and careful management of coastal resources to protect and enhance its significant attributes.
The HCES was reviewed in 2011. The Strategy was found to be relatively out of date, and applied inconsistently. The review recommends refocussing the strategy to implement remaining actions. This includes specific reference to “structure plans” for Haumoana, Te Awanga and Waimarama as part of a more “place based” approach aligned with the HPUDS.
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2.3.3 Implications for Landscape Management
The Landscape Areas Review and the HCES are generally well aligned. There is consistency in the identification of key landscapes. The Review of Landscape Areas will support implementation of the HCES.
2.4 Landmarks Development Plan
2.4.1 Purpose
The purpose of the Landmarks Development Plan is to provide an integrated framework for the planning, co-ordination and implementation of District wide programmes to enhance the image and identity of Hastings District.
2.4.2 Approach
Landscape features and views are recognised as making up part of the “essential character” of Hastings.
The technical analysis that supports the Plan includes an analysis of visual character. This focussed on 5 elements that contribute to image and identity:
• Pathways – which individually provide continuity of movement and views, and collectively create patterns to give form and structure
• Districts – which are areas of homogeneous or similar characteristics in terms of physical features, land use, and architecture
• Edges – which form lines of differentiation, or barriers
• Nodes – which act as focal points of districts, points of convergence
• Landmarks – which are outstanding features viewed “externally” providing visual interest and points of orientation
Identified key landscape areas include:
• the rugged Kaweka and Ruahine Ranges with native bush and vegetation to the north and west
• the central Heretaunga Plains and associated low-lying river terraces, which are not visually dominant features
• the Coastal Ranges of rolling to moderately steep hill country to the southeast, which include the distinctive landscape features of Te Mata Peak, the Tuki Tuki river valley and the dramatic coastal scenery of cliffs, headlands and beaches around Cape Kidnappers
There are three broad land use character areas defined within the rural environment:
• Pastoral Area – undulating to hilly landform with long open views of pasture and paddocks, fields, animals, fences, forestry blocks or farm woodlots, or meandering lines of trees along water courses, sweeping roads and few built structures apart from individual dwellings, sheds, water tanks, hay barns or other structures associated with farming activities, dispersed settlement clusters (sic).
• Plains Area – flat plains accentuated by long rows of orchards, with contrasting reticulated (sic) views of fruit trees or vines behind tall shelterbelts, clusters of settlements with a mix of residential and commercial activities becoming more intensive with cool stores and large industrial plants at the fringes of urban Hastings
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• Coastal Area – cliffs, beaches and open shingle estuaries, with a mix of recreation and rural-based art and craft activities, and a number of small, long-established rural communities of mainly residential development overlooking the ocean.
A Hastings District Master Plan is included in the Landmarks Development Plan. This identifies “Landscape Zones” and “Icons and Vistas”:
• Iconic Landscape Features
• Important objects/icon to view
• Important views
The Plan establishes Action and Priorities. This includes actions to protect visual links to the districts outstanding natural landscapes and to protect the districts essential character reflected in existing icons and landscapes. The protection of icons and landscapes includes reviewing the District Plan to ensure protection measures are appropriate.
2.4.3 Implication for Landscape Management
The Landscape Areas Review and the Landmarks Development Plan are generally well aligned. However, the scope of the Landmarks Development Plan is much broader and has an emphasis on non-regulatory methods. The definition of landscapes and features, in terms of how they have been assessed and identified is understandably less precise than that required for assessment under the RMA.
The Review of Landscape Areas will support the Landmarks Development Plan.
2.5 Renewable Energy
New Zealand's wind resource is one of the best in the world5 but it is only beginning to be developed. As at July 2010, wind made up more than 490MW, and contributed almost 5% of New Zealand's total electricity supply in the final quarter of 2009. There is potential for wind to generate a much more significant amount of our electricity than it does at present.
In 2008, the Energy Efficiency and Conservation Authority (EECA) undertook a study to identify and assess the renewable energy potential in the Hawke’s Bay region and provide advice to the Hawke’s Bay Regional Council (HBRC) on how to realise this potential.
The report assessed the installed generation capacity in the region at 306 MW with a ‘normally’ available generation capacity of 146 MW.
The Hawke’s Bay region’s renewable energy potential is mainly comprised of 1,200 to 1,600 MW of wind power. This is equivalent to an installation of 1,900 to 2,600 1.5 MW turbines each with a capacity factor of approximately 40%. Renewable energy potential also comprises 230 MW of medium and small scale hydroelectric schemes that are outside DOC lands and on rivers without a Water Conservation Order6.
Marine, solar, biomass and geothermal resources were also assessed in the report. There is potential for a substantial increase in the uptake of solar thermal use in the Hawke’s Bay region. However, this is largely in the form of small scale distributed development.
5 http://www.eeca.govt.nz/efficient-and-renewable-energy/renewable-energy/wind-energy-in-nz (October 2012) 6 Renewable Energy Assessment Hawke’s Bay Region Energy Efficiency and Conservation Authority 14 August 2008
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The EECA Study identified the need to develop a regional energy plan, including the development of spatial representations of wind power resources overlaid with development constraints (e.g. DOC land, outstanding landscapes, areas of high cultural value).
2.5.1 Wind Farms/Wind Energy
There are currently no wind farms in the Hawke’s Bay Region. However, there are two sites where wind farms are planned.
The Hawke's Bay Wind Farm is a proposed wind farm which will be constructed in the Hawke’s Bay region. It is expected to have a capacity of up to 225MW, with a maximum of 75 turbines. The project received resource consent in February 2006. Appeals against the wind farm were declined at the Environment Court in October 2006 and at the High Court in May 2007.
The Titiokura/Te Waka Wind Farm was a wind farm project proposed by Unison Networks and Roaring 40s. It was to be located adjacent to SH5 in the Te Pohue - Titiokura area, 35 km west of Napier. Stage 1 of the project, Titiokura, gained resource consents in 2006 after an Environment Court appeal. This stage is for 15 wind turbines, producing up to 45 MW. Stage 2, Te Waka, was to have had a capacity of up to 102 MW from 34 turbines. The Environment Court declined this application. Both stages of the wind farm were opposed by local iwi, Ngati Hineuru and Maungaharuru-Tangitu Incorporated.
Both sites are conveniently located close to the high voltage transmission grid. The sites are identified as the two “potential wind locations” in the EECA Study7.
Meridian Energy purchased the consents for the Hawke’s Bay Wind Farm and Titiokura in 2010. A variation of the Hawke’s Bay Wind Farm consent is being sought which will reduce the number of turbines, but increase their height.
2.5.2 Implications for Landscape Management
Wind energy generation has potential to have an impact on landscape resources. There do not appear to be significant opportunities for wind farms outside the two identified sites.
Having an updated landscape assessment will assist in the implementation of the NPS.
7 Figure 18 Potential Wind Locations in the Hawkes Bay Region Renewable Energy Assessment Hawke’s Bay Region Energy Efficiency and Conservation Authority 14 August 2008
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3.0 Statutory Considerations
3.1 Resource Management Act1991
The principal statutory guidance for this review is the Resource Management Act (1991).
3.1.1 Part 2 - Purpose and Principles
Section 5 sets out the purpose the RMA (1991) as:
(1)The purpose of this Act is to promote the sustainable management of natural and physical resources.
(2)In this Act, sustainable management means managing the use, development, and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic, and cultural well-being and for their health and safety while—
(a)sustaining the potential of natural and physical resources (excluding minerals) to meet the reasonably foreseeable needs of future generations; and
(b)safeguarding the life-supporting capacity of air, water, soil, and ecosystems; and
(c)avoiding, remedying, or mitigating any adverse effects of activities on the environment.
Landscape is an expression of both natural and cultural attributes (see definitions below) and is a resource. As such landscape management is within the purpose of the RMA. The Act specifically requires the landscape related matters to be considered.
3.1.2 Matters of National Importance (section 6)
In achieving the purpose of this Act, all persons exercising functions and powers under it, in relation to managing the use, development, and protection of natural and physical resources, shall recognise and provide for the following matters of national importance:
6(a) the preservation of the natural character of the coastal environment (including the coastal marine area), wetlands, and lakes and rivers and their margins, and the protection of them from inappropriate subdivision, use, and development:
6(b) the protection of outstanding natural features and landscapes from inappropriate subdivision, use, and development:
6(e) the relationship of Maori and their culture and traditions with their ancestral lands, water, sites, waahi tapu, and other taonga:
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3.1.3 Other matters
In achieving the purpose of this Act, all persons exercising functions and powers under it, in relation to managing the use, development, and protection of natural and physical resources, shall have particular regard to—
7(c) the maintenance and enhancement of amenity values:
Where amenity values are defined within the Act (s.2) as:
“… those natural or physical qualities and characteristics of an area that contribute to people's appreciation of its pleasantness, aesthetic coherence, and cultural and recreational attributes.”
3.1.4 New Zealand Coastal Policy Statement 2010 (NZCPS 2010).
Sections 67(3) and 75(3) require that District Plans 'must give effect to’ national policy statements.
The Hastings District has an extensive coastline with areas of the coast being of particular focus for both the previous landscape assessment and through two recent development proposals.
The NZCPS 2010 sets out to define the extent and characteristics of the coastal environment under Policy 1 while recognising that the extent and characteristics of the coastal environment vary from region to region and locality to locality; and the issues that arise may have different effects in different localities.
Policy1(2) states:
Recognise that the coastal environment includes:
a. the coastal marine area;
b. islands within the coastal marine area;
c. areas where coastal processes, influences or qualities are significant, including coastal lakes, lagoons, tidal estuaries, saltmarshes, coastal wetlands, and the margins of these;
d. areas at risk from coastal hazards;
e. coastal vegetation and the habitat of indigenous coastal species including migratory birds;
f. elements and features that contribute to the natural character, landscape, visual qualities or amenity values;
g. items of cultural and historic heritage in the coastal marine area or on the coast;
h. inter-related coastal marine and terrestrial systems, including the intertidal zone; and
i. physical resources and built facilities, including infrastructure, that have modified the coastal environment.
Policy 13 (1) of the NZCPS 2010 informs implementation of Section 6a of the RMA and sets out Council’s obligations for the preservation of natural character:
1. To preserve the natural character of the coastal environment and to protect it from inappropriate subdivision, use, and development:
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Policy 13 also implies the need to identify areas of outstanding natural character
a. avoid adverse effects of activities on natural character in areas of the coastal environment with outstanding natural character; and
b. avoid significant adverse effects and avoid, remedy or mitigate other adverse effects of activities on natural character in all other areas of the coastal environment; including by:
c. assessing the natural character of the coastal environment of the region or district, by mapping or otherwise identifying at least areas of high natural character; and
Policy 13 (2) assists Council in the interpretation of natural character by distinguishing natural character from natural features and landscapes and amenity values. As such natural character under policy 13 (2) may include matters such as:
a. natural elements, processes and patterns;
b. biophysical, ecological, geological and geomorphological aspects;
c. natural landforms such as headlands, peninsulas, cliffs, dunes, wetlands, reefs, freshwater springs and surf breaks;
d. the natural movement of water and sediment;
e. the natural darkness of the night sky;
f. places or areas that are wild or scenic;
g. a range of natural character from pristine to modified; and
h. experiential attributes, including the sounds and smell of the sea; and their context or setting.
The NZCPS also seeks to address natural features and natural landscapes within the coastal environment (as distinct from areas of outstanding natural character). Policy 15: Natural features and natural landscapes seeks to protect the natural features and natural landscapes (including seascapes) of the coastal environment from inappropriate subdivision, use, and development including:
c. identifying and assessing the natural features and natural landscapes of the coastal environment of the region or district, at a minimum by land typing, soil characterisation and landscape characterisation and having regard to:
i. natural science factors, including geological, topographical, ecological and dynamic components;
ii. the presence of water including in seas, lakes, rivers and streams;
iii. legibility or expressiveness - how obviously the feature or landscape demonstrates its formative processes;
iv. aesthetic values including memorability and naturalness;
v. vegetation (native and exotic);
vi. transient values, including presence of wildlife or other values at certain times of the day or year;
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vii. whether the values are shared and recognised;
viii. cultural and spiritual values for tangata whenua, identified by working, as far as practicable, in accordance with tikanga Maori; including their expression as cultural landscapes and features;
ix. historical and heritage associations; and
x. wild or scenic values.
The NZCPS provides additional direction by which Council shall assess natural character and landscape matters within the coastal environment.
3.2 National Environmental Standards (NES) for Electricity Transmission Activities
3.2.1 Description
The National Environmental Standards (NES) for Electricity Transmission Activities came into effect on 14 January 2010.
The NES sets out a national framework of permissions and consent requirements for activities on existing electricity transmission lines. Activities include the operation, maintenance and upgrading of existing lines.
The NES specifies that electricity transmission activities are permitted, subject to conditions to ensure that these activities do not have significant adverse effects on the environment. The NES also specifies the resource consent requirements for electricity transmission activities that do not meet the conditions for permitted activities.
Undergrounding an existing transmission line is a controlled activity in the District Plan.
3.2.2 Implications for Landscape Management
Each regional, city or district council must enforce the standard and there is no discretion to enforce a stricter standard.
The NES has relatively limited implications for landscape management given that it only applies to existing transmission lines. It does not apply to the construction of new transmission lines, nor to substations.
The NES does not apply to electricity distribution lines – these are the lines carrying electricity from regional substations to electricity users.
3.3 National Policy Statement for Renewable Electricity Generation 2011
3.3.1 Description
The National Policy Statement for Renewable Electricity Generation 2011 (NPS REG) sets out the objective and policies for renewable electricity generation under the Resource Management Act 1991. It came into effect on 13 May 2011.
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This NPS is intended to achieve a consistent approach to planning for renewable electricity generation in New Zealand. It gives government direction on the benefits of renewable electricity generation and requires all councils to make provision for it in their plans:
“The NPS REG confirms that renewable electricity generation (REG), regardless of scale, makes a crucial contribution to the well-being of New Zealand, its people and the environment, and any reductions in existing REG will compromise achievement of the Government’s renewable electricity target of 90% of electricity from renewable sources by 2025. The development, operation, maintenance and upgrading of new and existing REG activities throughout New Zealand, and the associated benefits of REG, are matters of national significance.”8
The NPS REG works alongside other government initiatives as part of New Zealand’s wider response to tackling climate change.
Section 55 of the Resource Management Act 1991 (the Act) requires local authorities to amend regional policy statements, proposed regional policy statements, plans, proposed plans, and variations to give effect to any provision in an NPS that affects those documents.
3.3.2 Implementation Issues
From 13 May 2011, decision-makers on resource consent applications must have regard to the provisions of the NPS, regardless of when the application was lodged.
The NPS REG requires regional councils, unless they have already provided for renewable electricity generation activities, to give effect to its provisions by notifying changes to existing or proposed regional policy statements within 24 months of the date on which it takes effect.
HBRC9 consider that this requirement has already been given effect by the provisions of Plan Change 4 to the RPS and the inclusion of Objectives10 that relate to the integration of land use with significant infrastructure. However, none of the policies make specific reference to renewable energy generation, and the Plan Change only relates to the Heretaunga Plans, so limited guidance is actually provided.
For regional and district plans, proposed plans or variations, local authorities are required to give effect to its provisions by notifying changes within the following timeframes:
• 24 months of the date on which this national policy statement takes effect where the regional policy statement or proposed regional policy statement already provides for the policies; or
• where a change or variation to the regional policy statement or proposed regional policy statement is required, within 12 months of the date on which the change or variation becomes operative.
The Ministry for the Environment Guidelines provide “example” provisions for regional policies and plans and district plans.
Local authorities and electricity generators are encouraged to engage with each other in developing regional and district policies to give effect to the NPS REG.
8 National Policy Statement for Renewable Electricity Generation 2011 Implementation Guide 9 Pers Comm Batchelar/Ide 23 October 2012 10 OBJ UD5
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3.3.3 Implications for Landscape Management
Development of REG provisions requires a unified approach that addresses all Part 2 matters that may be relevant, and will also require engagement with electricity generators to understand the relevant issues, including gaining an understanding of:
• The nature, extent and location of relevant developed and undeveloped REG resources in their city/district;
• The composition of the current REG activity assets within the district;
• Threats to existing REG activities and assets (e.g., residential/rural residential development)
• The specific technical and operational requirements of REG activities (e.g. allowing ongoing operation, maintenance and minor upgrading of existing REG facilities to occur as of right, subject to performance standards).
• Potential offset and environmental compensation measures to be considered.
Guidance on the implementation of the NPS REG recognises that it does not resolve all the potential resource management policy tensions that can occur between REG activities and other activities or interests.
Tensions may still arise between REG activities and matters requiring consideration under Part 2 of the RMA. This will include the protection of outstanding natural features and landscapes. However, in considering and addressing these tensions decision-makers must recognise that the benefits of REG are no longer up for debate, and must ensure that those activities are explicitly acknowledged in RMA assessments.
The review of district landscapes will assist in the balancing of outcomes that will be required to give ultimate effect to the NPS through the RPS and the District Plan.
3.4 Regional Policy Statement
Sections 67(3) and 75(3) require that District Plans must give effect to Regional Policy Statements.
The Regional Resource Management Plan (RRMP) was made operative in August 2006. It sets out a policy framework for managing resource use activities in an integrated manner across the whole of the Hawke's Bay region. It was prepared under the Resource Management Act 1991 (RMA) and has effect over the whole of the Hawke’s Bay region.
Unlike most RPS, landscape management issues are not addressed in the RRMP. However, it is noted that the HPUDS signals an intention to promote changes to the RPS to identify and manage landscapes. No time frame is provided and there is no reference to this in the HBRC Ten Year Plan.
The Regional Policy Statement section of the RRMP does recognise the regional significance of the coastal marine area of Hawke’s Bay. The Sustainable Management of Coastal Resources objective states:
OBJ 4 Promotion of the preservation of the natural character of the coastal environment and its protection from inappropriate subdivision, use and development.
The review of landscape areas gives effect to the RRMP.
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3.5 Regional Policy Statement – Change 4 - Managing the Built Environment
Change 4 proposes new provisions relating to the built environment and infrastructure into the Regional Policy Statement parts of the Hawke's Bay Regional Resource Management Plan. Change 4 assists in the implementation the Heretaunga Plains Urban Development Strategy (HPUDS).
Issues include
The adverse effects of sporadic and unplanned urban development (particularly in the Heretaunga Plains sub-region), on… the natural environment (land and water);…
The establishment of a compact and strongly connected urban area is conditional on achieving listed qualities that include:
“iii. Retain heritage values and values important to tangata whenua.”
Although the Plan Change has no direct reference to landscape values, the broader references to “natural environment” and ‘heritage values” do encompass landscape values.
The Plan Change is at the stage of submission hearings (December 2012), so has no current statutory weight. If the Plan Change is implemented, having a more compact urban form and reduced urban encroachment into rural areas will reduce the potential for long tem pressure of development on many of the identified significant landscapes. The Plan Change will therefore strongly support landscape management.
3.6 Regional Coastal Environment Plan
The RCEP contains issues, objectives, policies, and reasons and anticipated environmental results for “Outstanding Natural Features and Landscapes”.
Objectives and policies are general in nature and largely reiterate RMA Part 2 matters.
The explanation and reasons refer to the “Pigeon Bay” criteria for district and regional planning. However, the plan does not adopt the criteria as policy, nor does it identify any landscapes or features of regional significance.
The review of landscape areas gives effect to the RCEP.
3.7 Adjoining Territorial Local Authorities
Bordering Hastings District a number of Districts have identified their Outstanding Natural Features and Landscapes. In particular Taupo District Council has identified the Ahimanawa and Huiarau Ranges as Outstanding Natural Landscapes. These areas adjoin the identified Ruahine – Kaweka Ranges enabling comprehensive management of these landscapes. Further north along the District boundary Whakatane District Council has identified the Te Urewera National Park as an Outstanding Natural Landscape.
The remaining bordering Council’s have not identified their Outstanding Natural Landscapes. Should these Districts identify their Outstanding Natural Landscapes a collaborative approach to managing the adjoining landscapes is recommended.
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3.8 Case Law
A summary of landscape matters is provided in the Parkins Bay decision (Decision No. [2010] NZEnvC 432). The matters discussed in this decision are based on the Court’s understanding of “landscape” and “natural” within the context of the RMA 1991 and provide a useful guide for wider discussion.
What is a “landscape”?
Section 6 of the RMA requires that outstanding natural landscapes (and features) must be recognised and provided for. Importantly the RMA requires recognition of natural landscapes that are outstanding rather than “outstandingly natural landscapes” (that is landscapes that are wholly pristine or “untouched”). However “The Act is silent on what a 'landscape' is”.
Many broad descriptions of landscape exist.
The NZILA Best Practice Note on Landscape Assessment and Sustainable Management (2010) defines landscape as:
“The cumulative expression of natural and cultural features, patterns and processes in a geographical area, including human perceptions and associations.”
The Court has stressed avoiding definitions that are “too broad to be helpful in many practical contexts”.
As a result, the Court has worked towards the identification of practical direction that assists in the identification and assessment of significance for landscape. The most often-cited response is the modified Pigeon Bay Criteria (or factors). These were applied in the Te Waka decision (Te Waka Decision No. w 24 /2007):
“...The Wakatipu case also further refined criteria for assessing the significance of a landscape, earlier discussed in Pigeon Bay Aquaculture Ltd v Canterbury Regional Council [1999] NZRMA 209. The criteria were originally developed for the Canterbury Regional Landscape Study (Boffa Miskell Ltd and Lucas Associates, October 1993). They have become known as the Pigeon Bay criteria, although they might more accurately be called factors. As since refined, they include:
- the natural science factors - the geological, topographical, ecological and dynamic components of the landscape; - its aesthetic values including memorability and naturalness; - its expressiveness (legibility): how obviously the landscape demonstrates the formative processes leading to it; - transient values: occasional presence of wildlife; or its values at certain times of the day or year; - whether the values are shared and recognised; - its value to tangata whenua; - Its historical associations.
They are now widely accepted, and we adopt them here.”
These factors were expanded and grouped later in The Lammermoor Case (as referenced in Parkins Bay) where landscape was described as follows:
... In our view a landscape is four-dimensioned in space and time within the given environment often focussed on a smaller relevant space such as an application site - which is the sum of the following:
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(1) a reasonably comprehensive (but proportionate to the issues) description of the characteristics of the space such as:
• the geological, topographical, ecological and dynamic components of the wider space (the natural science factors);
• the number, location, size and quality of buildings and structures;
• the history of the area;
• the past, present and likely future (permitted or consented) activities in the relevant parts of the environment; and
(2) a description of the values of the candidate landscape including:
• an initial assessment of the naturalness of the space (to the extent this is more than the sum of the elements described under (1) above);
• its legibility - how obviously the landscape demonstrates the formative processes described under (1);
• its transient values;
• people and communities' shared and recognised values including the memories and associations it raises;
• its memorability;
• its values to tangata whenua;
• any other aesthetic values; and
• Any further values expressed in a relevant plan under the RMA; and
(3) a reasonably representative selection of perceptions - direct or indirect, remembered or even imagined - of the space, usually the sub-sets of:
(a) the more expansive views of the proposed landscape"; and
(b) the views, experiences and associations of persons who may be affected by the landscape.
There is some repetition within the sets. For example the objective characteristics of the landscape go a long way towards determining its naturalness. More widely, the matters in the third set influence the perceptions in the second.
... To describe and delimit a landscape a consent authority needs at least to consider the matters
in set (1) and, to the extent necessary and proportionate to the case, those in sets (2) and (3) also
We broadly agree with that, although we might be inclined to place "the history of the area" in (2) - the associative or relationship values; and move legibility to (3) as a perceptual value.
This description generally corresponds with contemporary landscape practice in describing a landscape as having three sets of distinctive characteristics or influences:
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- Biogeographical elements, patterns and processes; - Perceptual aspects; - Associative or relationship contributions.
These groupings are supported in the NZILA Best Practice Note Landscape Assessment and Sustainable Management 10.1 (2/11/2010) which also describes a systematic account of landscape attributes as a key step in any landscape assessment process. Landscape attributes is preferred to criteria or factors where an attribute is defined as “a distinctive characteristic or influence”. These groupings also include:
• Biophysical elements, patterns and processes, • Sensory qualities and • Spiritual cultural and social associations including both activities and meanings.
The NZILA attributes groupings are described as follows:
Biophysical elements, patterns and processes may be natural and/or cultural in origin, and range from the geology and landform that shape a landscape to the physical artefacts such as roads that mark human settlement and livelihood.
Sensory qualities are landscape phenomena as directly perceived and experienced by humans, such as the view of a scenic landscape, or the distinctive smell and sound of the foreshore.
Associative meanings are spiritual, cultural or social associations with particular landscape elements, features, or areas, such as tupuna awa and waahi tapu, and the tikanga appropriate to them, or sites of historic events or heritage. Associative activities are patterns of social activity that occur in particular parts of a landscape, for example, popular walking routes or fishing spots. Associative meanings and activities engender a sense of attachment and belonging, and in the context of Aotearoa / New Zealand include places and associations of particular importance to tangata whenua.
3.8.1 Scale and context: Visual Landscape perception and landscape units
The Environment Court noted in Wakatipu Environmental Society v Queenstown Lakes District Council that
“It must always be borne in mind that all landscapes form a continuum physically and ecologically in the many ways they are perceived. Consequently [the court] cannot over-emphasize the crudeness of [dividing up the landscape] but it is the only way [the court] can make findings of "fact” sufficient to identify the resource management issues.” Here the court is reminding us that “there is always an element of artificiality in delimiting landscapes”
Scale and context are important considerations in landscape assessment. In the context of the RMA landscapes may be perceived at a national, regional or district scale. This review is being undertaken at the District Scale. The Court notes that at a district level smaller landscapes may nest within a larger landscape;
“…but there comes a point where that no longer applies. Care needs to be taken by local authorities not to divide a landscape into its units (which is acceptable in itself although preferable in the reverse order for analytic purposes) and then to treat units as landscapes” moreover the “Environment Court had already discussed and rejected equating landscapes with landscape units some years ago: (Wakatipu Environmental Society Incorporated and Stewart v Queenstown Lakes District Council
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In this regard care needs to be taken to acknowledge the difference between landscape areas (or units) derived for the purposes of fulfilling obligations under The Act and the wider public perception of those smaller units within a broader visual context or perception of landscape.
In keeping with the above this review identifies landscape areas within a broader landscape context. These areas may be visible either individually or collectively in any one particular landscape view from a given viewpoint location.
3.8.2 Landscape Values
Landscape values derive from the importance that people and communities, including tangata whenua, attach to particular landscapes and landscape attributes.
3.8.3 What is Natural?
Natural can be defined as “Derived from nature”. The concept of Landscape inherently includes cultural components. In this regard the court recognises that there is a spectrum of landscapes from pristine (totally derived from nature) through highly natural along to highly modified (but which can sometimes appear natural) through to urban. In this regard it is the extent of human (cultural or man-made) modification – on a continuum – that determines whether a landscape is natural or not.
The court has also noted that just because humans have intervened does not make landscape un-natural. “It is the nature of the intervention – and most notably the presence [and presumably the scale, siting, location and appearance] of buildings and infrastructure which tends to make a landscape look unnatural.”
In the Mackenzie Basin (2011 NZEnvC 387) decision the court refers to criteria of “naturalness” that normally include:
• Relatively unmodified and legible physical landform and relief; • The landscape being uncluttered by structures and / or obvious human influence; • The presence of water (lake, river, sea); • The presence of vegetation (especially native vegetation) and other ecological patterns.
The recent Mackenzie Basin (2011 NZEnvC 387) decision provides provisional endorsement of a seven point scale of naturalness.
Very high - high - moderate high – moderate – moderate low – low – very low
Landscapes that are very high and high being regarded as natural enough to reach a threshold regarding the evaluation of an outstanding natural landscape. This is qualified where the court reinforces the point that there will likely be landscapes within the moderate-high range of naturalness that could be regarded as natural enough for ONL status.
The court further points out that “...it is well established that a “cultural” landscape (and in fact all landscapes are cultural – it is a question of degree) may still be a natural landscape and even an outstanding natural landscape: Long Bay-Okura Great Park Society Incorporated v North Shore City Council ...” (referenced in 2011 NZEnvC 387, p.50).
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3.8.4 Natural Character
The NZILA (2010) defines Natural Character as the expression of natural elements, patterns and processes in a landscape.
A working definition of natural character has been previously developed by the Ministry for the Environment. Natural character describes the expression of natural elements, patterns and processes in a landscape (or the ‘naturalness)’.
The degree of ‘naturalness’ depends on;
• The extent to which natural elements, patterns and processes occur.
• The nature and extent of modifications to the landscape, seascape and ecosystems.
• The highest degree of natural character (greatest naturalness) occurs where there is least modification. The effect of different types of modification upon the natural character of an area varies with the context, and may be perceived differently by different parts of the community.
Since this time the NZCPS 2010 has come into effect which provides more direction (Policy 13.2) in terms of identifying what natural character may include as cited in the previous section.
An understanding of natural character may require specialist ecological input (natural processes).
Natural character, like landscape, is scale dependant and is influenced by the surrounding context.
Natural character occurs on a continuum (in the same way as “Natural” does) where the degree of natural character depends on
• the extent to which natural elements, patterns and processes occur;
• the nature, quality and extent of human modification;
• the highest degree of natural character occurs where there is the least modification; and
• natural character can change over time – landscapes (that are characterised by natural character) are dynamic systems.
3.8.5 What is Outstanding
The legal test for outstanding natural landscapes (and features) is
“...whether there is a landscape which is both (sufficiently) natural and outstanding.” (2011, Mackenzie Basin decision).
”Outstanding” is a comparative evaluative term meaning; to stand out, exceptional, preeminent, clearly superior to others in the same group or category.
An Outstanding Natural Feature / Landscape has attributes that are exceptional or preeminent. These attributes make it stand out amongst other natural features or landscapes. While evidence of human presence and activity may be apparent, natural attributes dominate.
A landscape feature is a discrete geographical area or element. A feature may be scale dependant and may occur within the context of an outstanding natural landscape or be distinct and separate as in the case of a rock outcrop or scarp. In some cases within Hastings there are a
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number of Outstanding Natural Features set within an Outstanding Natural Landscape e.g. Te Mata Peak.
Case law reiterates that the RMA requires recognition of natural landscapes that are outstanding rather than “outstandingly natural landscapes” (that is landscapes that are wholly pristine or “untouched”). In this regard the court suggests that in making such assessments there should not be an overreliance on vegetation cover. “May there not be instances where the landform itself is so striking even when clothed only by pasture that the landscape is outstanding?”
The Environment Courts recent decision regarding the Mackenzie Basin (2011 NZEnvC 387) also endorsed the usefulness of distinguishing the methodological steps between identifying the extent of a landscape area, analysis of that landscape, particularly regarding naturalness and evaluating “outstandingness”.
The evaluative factors applied in the Lammermoor case are summarised in the Mackenzie Basin decision, where (in addition to naturalness) the following evaluative questions were identified as needing to be addressed:
o how distinctive and important its geomorphological and ecological characteristics (elements patterns and processes) are; o how legible or expressive the landscape is; o how important its transient values are; o how rich a store of shared and recognised values there is; o how memorable the landscape is; o how important it is to tangata whenua; and o how important (or not) are any other aesthetic values it possesses.
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3.9 Significant Cultural Landscapes
A cultural review11, found within Appendix Two, has been carried out in conjunction with the landscape review. The review assessed the outstanding and significant landscapes identified in the 1996 Isthmus Report.
The identified landmarks (Ipukarea) are all assessed as being of special significance to Maori. The report identifies cultural significance of each landmark with relevant korero. The valuing of these landscapes does not diminish the importance other landscapes have and the connection they have with the community and Tangata Whenua.
The report makes several recommendations for the protection of landmarks from development and degradation:
• That the current outstanding natural landscapes and features be retained as such.
• That the special landscape areas be retained as such.
• That Motu o Kura, Waimārama coast area and Kaokaoroa & Raukawa Ranges be added to the current list of natural landscapes and features due to their significance as outstanding landscapes to both Maori and the wider community.
• That the HDC continue to protect these and other Maori landscapes from further development and degradation.
The cultural assessment has been incorporated into the review through the assessment of the Tangata Whenua values component of the assessment criteria. The value placed upon the landscape is based on the information provided within this report12.
11 A Māori cultural review of current schedule of Outstanding Natural Landscapes November 2012
12 A Māori cultural review of current schedule of Outstanding Natural Landscapes November 2012
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4.0 Identification of Hastings Landscape Areas
4.1 Background
4.1.1 Study Area
The study area is defined by the Hastings District boundary and its interface with the Hawke’s Bay Regional Council boundary along the coastline. However as landscapes do not begin and end at District or cadastral boundaries, areas outside of this boundary have been mapped where they are part of a logical wider landscape area. Some coastal landscape areas extend over the District boundary into the Coastal Marine Area (CMA = the sea) to provide connections to the coastal features including islands and rock outcrops.
This approach complements Nga Wahi Tuturu o Heretaunga which extend beyond the Council’s jurisdiction in places as they reflect the relationship of Maori with their ancestral lands, water, waahi tapu, and other taonga.
4.1.2 Review of 1996 Outstanding Landscapes Assessment
All landscapes have value to some degree. However this report is a targeted review of previously identified landscape areas and the identification of highly valued landscape areas within the context of the RMA. As a result this review focuses on highly valued landscapes at a District level and does not consider the unique character of all discrete areas of the Hastings District.
The 1996 Landscape Assessment identified 8 broad landscape units and identified 74 selected features and landscapes. The assessment provided comprehensive descriptions of the wider landscape and of the natural and cultural influences that formed its character. 18 highly valued landscapes, 9 Outstanding and 9 Significant Amenity, were identified from criteria set out in Section 613.
This review has focused on a broad assessment of the landscape of Hastings District and focuses on the highly valued landscapes previously identified in the 1996 Assessment. Through the analysis a number of landscapes not considered of high value in the prior assessment have been considered. Boundary adjustments have also been made to existing Outstanding Natural Features and Landscapes (ONFL).
4.1.3 Landscape Framework
The 1996 Assessment applied a framework of landscape areas that included five geologically based landform units and three coastal landform units.
At a district scale, this framework and accompanying descriptions remains a useful and logical approach. The mapping has been reviewed using digital terrain modelling and GIS data including geological and hydrological data. As a result these previously identified areas have been further refined.
To align with current best practice for landscape typing these areas have been further classified by generic landscape types with subclasses within each generic type:
13 Refer to Page 57, Section 6 Selection Criteria and Method, Outstanding Landscapes, Landscape Assessment of Hastings District, Isthmus Group, July 1996.
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Uplands : • Central Ranges Hill country
• North-west Hills • Lowland Hills • South-East Coastal Hills Plains • Heretaunga Plains Coast • Northern Coast • Central Coast • Southern Coast
The purpose of a landscape framework is to enable the development of a comprehensive district wide landscape character assessment for the District. Such an assessment could inform a wider understanding of the localised character of rural, coastal and urban environments not considered highly valued, in which the highly valued landscapes are located.
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Central Ranges ´
Heretaunga Plains
Lowland Hills
Northern Coast
Northern Hills
South-East Hills
Southern Coast
0 4.25 8.5 17 km
Overview - Landscape Types 4.1.4 Review of Identified Highly Valued Landscapes and Features
Part B of the 1996 Assessment identified further divisions of the 8 landform units listed above into 74 classifications termed “selected features and landscapes”. These areas then became the focus for scoring and ranking criteria based on s.6b (termed as Outstanding Landscapes) and 7c (termed as Special Landscape Character Areas) of the RMA 1991. These areas were not mapped in the 1996 report other than those identified as being either outstanding or special character areas.
The schedule14 within the report list the areas and details the criteria rankings that were used to determine cumulative scores. These criteria were grouped as:
• Natural Patterns; • Human Patterns, Perception and Experience, and; • Meaning including meaning to Ngati Kahungunu.
The assessment criteria applied in 1996 set a platform of assessment methods from which the current case law developed. Many of the criteria are reflected in the current factors, values and associations15 set out in the current case law and those criteria found within the New Zealand Coastal Policy Statement 2010.
This review utilises a scoring method that adopts a seven level ranking; very low, low, low to moderate, moderate, moderate to high, high and very high values. The scoring system is not additive, as compared to the 1996 Assessment and does not require a predetermined benchmark to identify an ONFL or Important Amenity Landscape. A landscape or feature need not necessarily be assessed as “high” or “very high” across all assessment criteria in order to achieve a recommendation as outstanding. Whilst some criteria will score highly, others may score moderate to low, with the feature or landscape still being recommended as outstanding. This apparent paradox applies particularly in working rural landscapes where native vegetation cover, for example, may well be minimal yet the landform may be iconic to the District and Region, resulting in an overall assessment as outstanding.
Appendix One details the assessment method used.
4.1.5 Recommended Outstanding Natural Features and Landscapes
Of the nine previously identified Outstanding Natural Features and Landscapes six are confirmed either wholly or in part as either Outstanding Natural Features or as Outstanding Natural Landscapes. The boundaries of these areas have also been re-defined and mapped. A description of each, together with a map showing its extent, is included in Section 4.2 of this report.
1996 Landscape Assessment 2012 Review of Landscape Assessment
Outstanding Natural Features and Landscapes Outstanding Natural Features and Landscapes • Cape Kidnappers • Cape Kidnappers/Te Matau a Maui • Te Mata Peak (east and west faces) • Te Mata Peak/ Te Mata o Rongokako (east and west faces) • Mount Erin/Kohinerakau • Mount Erin & Kohinerakau Range • Kahuranaki • Kahuranaki • Ruahine – Kaweka Ranges • Ruahine – Kaweka Ranges • Maungaharuru – Titiokura Saddle – Te • Maungaharuru – Te Waka Waka Ridgeline • Motu o Kura - Bare Island • Lake Tutira • Whakaari and Tangoio Bluff
14 Refer to Pages 61-63 of Section 6, Outstanding Landscapes, Landscape Assessment of Hastings District, Isthmus Group, July 1996. 15 Factors, values and associations is a term used to describe the attributes associated with assessment of Outstanding Natural Features and Landscapes under New Zealand Coastal Policy Statement and the Pigeon Bay criteria.
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The 1996 Assessment applied the same criteria to the assessment of the Special Landscape Character Areas (SLCAs) with a focus on Amenity Values16. The review identified a wide variety of SLCA’s ranging from working rural landscapes distinguished by the natural patterns to coastal beach settlements distinguished by cultural patterns.
In this review further clarity is provided between the differences within SLCA’s. This assessment considers the natural landscape as the baseline for assessment with the cultural patterns contributing or detracting from that landscape. Cultural patterns within the Hastings District generally comprise modified land use patterns such as vineyards, orchards, agricultural farming, infrastructure (roads, power lines, drainage etc) and buildings.
Identification of cultural influences to a landscape as either unique or worth protecting have been considered to be required as a ‘third tier’ landscape area, in lieu of a district wide character study.
In the course of the field work it was found that instances of coastal settlements or valleys which deserved to be identified as being unique or having value were frequent throughout the District. This does not diminish their importance to the character of a landscape. However they require assessment of their character at a district wide level as opposed to being part of a valley or coastal settlement.
The nine previously identified Special Landscape Character Areas have been reassessed as part of the Amenity Landscape Areas. Four SLCA are included as Amenity Landscapes with the remaining reviewed as Rural and Coastal Landscape Character Areas. Seven new Amenity Landscape Areas have been included.
1996 Landscape Assessment 2012 Review of Landscape Assessment
Special Landscape Character Areas Amenity Landscapes
• Waipunga – Tarawera Ocean Beach • Tangoio Bach Settlement Lake Tutira Basin • Esk Valley – Tutaekuri Valley Maungahururu – Te Waka • Te Mata Special Character Area Roys Hill – Hills Surrounding Heretaunga Basin • Hills Surrounding Heretaunga Basin Raukawa – Kaokaoroa Ranges • Tukituki Valley Te Aute Hill • Clifton Beach Lake Poukawa • Ocean Beach Te Mata – Mt Erin Surrounds • Ocean Beach Bach Settlement Kahuranaki Surrounds Cape Kidnappers Point Waitangi Estuary and Coastal Strip
Refer to Section 8 of Outstanding Landscapes, Landscape Assessment of Hastings District, Isthmus Group, July 1996.
16 Amenity Values means those natural or physical qualities and characteristics of an area that contribute to people’s appreciation of its pleasantness, aesthetic coherence, and cultural and recreational activities, RMA 1991.
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Outstanding Natural Feature
Outstanding Natural Landscape Area
Amenity Landscape Area
0 4.5 9 18 km
Overview - Outstanding Natural Features and Landscapes, and Amenity Landscape Areas 4.1.7 Rural and Coastal Landscape Character Areas
The landscape character of the Hastings District has been the focus of a number of existing studies including the Heretaunga Plains Urban Development Strategy and the Landmarks Development Plan. Previously identified “Landscape Units” (1996) have been reviewed within the context of sub-regional landscape areas and where appropriate Rural and Coastal Landscape Character Areas have been identified.
The areas identified comprise rural character or coastal character worth managing however they are not considered unique or significant natural landscapes at a district wide level. There are several areas within the District that comprise similar qualities associated mostly within or around existing rural or coastal settlements.
The Rural and Coastal Landscape Character Areas identified are restricted to those assessed within this review and were not evaluated as ONFL or Amenity Landscape areas. They do not represent the full classification of landscape character of the entire District. To accurately evaluate these character areas a baseline evaluation across the District is required.
These landscapes have been identified as a starting point for implementation of management methods including the application of The Guide17 and objectives and policies within the District Plan addressing rural and coastal character.
Those areas SLCAs from the 1996 Assessment not included as Important Amenity Landscape Areas have been reviewed and in some cases remapped as Rural and Coastal Landscape Character Areas. They comprise:
2012 Review of Landscape Assessment
Rural Landscape Character Areas Coastal Landscape Character Areas
• Esk Valley • Clifton Beach Settlement • Tutaekuri Valley • Tangoio Beach Settlement • Waipunga / Tarawera • Ocean Beach Settlement • Hills Surrounding Heretaunga Basin • Waimarama and Peach Gully o Korokipo Hills • Waipatiki Beach o Puketapu Road Hills o Swamp Road Hills o Matapiro Hills o NorthEastern Raukawa Hills o Raukawa Range • Ngaruroro Valley • Mid and Upper Tukituki Valley • Poukawa Valley
17 The Guide, Good Practice Guidelines for Subdivision and Development in the Hastings District, Isthmus Group, August 2005.
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Coastal Landscape Character Area
Rural Landscape Character Area
´ 0 4.25 8.5 17 km
Overview - Rural and Coastal Landscape Character Areas 4.1.8 Assessment Attributes for Outstanding Natural Features and Landscapes.
The development of a method of assessment for Outstanding Natural Features and Landscapes has been driven at a statutory level from the accumulation and acceptance of case law. As detailed in Section 3.0, of this report the Regional Policy Statement does not specifically identify the assessment criteria. However the NZCPS 2010 has identified the factors, values and associations for the coastal environment which, in turn, draw largely from the amended Pigeon Bay criteria or factors18.
In the absence of Regional Policy direction the method utilised draws upon these assessment criteria. A review by the New Zealand Institute of Landscape Architects reordered the Pigeon Bay criteria into three categories, focusing on the landscapes broad biophysical, sensory and associative values. The framework for this review has adopted this structure:
Biophysical Attributes:
• Elements and patterns of land form and vegetation \\ • Representativeness • Rarity and Natural Science Attributes • Influences of natural processes
Sensory Attributes:
• Coherence • Vividness • Naturalness • Intactness • Expressiveness and Legibility • Transient values
Associative Attributes:
• Shared and Recognised Values • Tangata Whenua Values
• Historical Associations
A detailed methodology is set out in Appendix One.
18 (C32/199 – Pigeon Bay Aquiculture Ltd v CRC and C180/1999 – Waikatipu Env. Society v QLDC)
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4.1.9 Assessment Attributes for Amenity Landscapes
The 1996 Assessment included amenity values into the ONFL assessment as part of the consideration of Section 7c in Part II of the RMA 1991. Amenity Values is defined within the Act as being:
“...those natural or physical qualities and characteristics of an area that contribute to people’s appreciation of its pleasantness, aesthetic coherence, and cultural and recreational attributes.”
Significant weight is placed on the Sensory Attributes and the relationship people have with a landscape. For the purposes of this review those landscapes not considered to be Outstanding have been re-evaluated using this framework:
Biophysical Attributes:
• Landform and drainage • Landcover • Expression of Dynamic Natural Systems and Processes
Modified and Physical Human Attributes:
• Land use and rural production • Modified natural systems • Patterns of vegetation both exotic and native
Sensory Attributes:
• Scenic Qualities • Context and Setting • Legibility • Transient Values
Associative Attributes
• Scenic Qualities • Context and Setting • Legibility • Transient Values
REVIEW OF LANDSCAPE AREAS AND IMPLICATIONS FOR PLAN REVIEW | Hastings District Council 33 4.1.10 Process of Review of Landscape Areas
The implementation of the assessment 1. Establish Landscape Areas Framework method followed the process illustrated on consistent with statutory requirements in the right. The review considered the key order to appropriately classify the review parts of the existing 1996 Assessment and of previously identified highly valued drew upon this research to inform the landscape areas and any newly identified assessment. areas. A key component to evaluating Associative Attributes is the inclusion of public and key 3. Set evaluation criteria for each landscape stakeholder perspectives on landscape. A area consistent with case law and best public perception study has not been practice. included as part of this review. However, information has been drawn from the existing study and desktop analysis of 2. Review of broad District wide landscape publications demonstrating community framework (4 x District landscape Types views and values in relation to the and 8 x District Landscape Character landscape. units.
Specific Tangata Whenua consultation has 4. Review previously Identified Highly valued been undertaken19 and transposed into the landscape areas (Outstanding natural assessment to inform the values Tangata landscapes - 6b; and Significant Whenua associate with their whenua. Landscape Character Areas - 7c ) Current case law and best practice recognises the need for the inclusion of 5. Identify any additional areas for shared and recognised values in the assessment of highly valued landscapes. consideration as highly valued This review does not include community landscapes. consultation in the determination of landscape values which would provide a 6. Review previously identified high scoring degree of validation of these values. Broad areas (1996) which were not classified as community consultation is to be undertaken Outstanding Natural Landscapes or as part of the wider District Plan review. Significant Landscape Character Areas. This review does take into consideration limited cultural landscape values as part of an understanding towards the relationship 7. Record Cultural Landscape Values and of Maori and their culture and traditions with include into assessment attributes. their ancestral lands, water, sites waahi tapu, and other taonga. 8. Develop First Draft Map Set of highly valued landscape areas according to Key internal stakeholder consultation has classification including evaluation criteria. been undertaken within Council and feedback has also been sought as part of a discussion document and consultation programme. 9. Map and release assessment with mapping and evaluations. Include landscape management issues and methods to provide guidance for decision making tools.
19 Outstanding Natural Landscapes, A Maori cultural review of current schedule of Outstanding Natural Landscapes, Bayden Barber, October 2012
34 REVIEW OF LANDSCAPE AREAS AND IMPLICATIONS FOR PLAN REVIEW | Hastings District Council
4.1.11 Field Work
The Hastings District includes large publicly inaccessible areas of inland hill country, ranges and isolated coastal areas. Not all areas have been accessed as part of this review with most field survey being undertaken via public road network with preliminary desktop survey work being used to direct overall field work.
Where access has not been possible desktop analysis though the use of GIS mapping and data sets is relied upon including aerial imagery supplied by Council. Google Earth has also been used as a means of a terrain model reference at the District scale, as well as local knowledge by two of this report’s reviewers.
4.1.12 Landscape Management and Policy Guidance
Key to the success of management of landscapes, beyond identification of their attributes and value, is the management mechanism. Regional and District Plans provide the framework within a District for decision making. The key to successful management of a landscape of value is clear policy guidance.
The landscape management issues identified within the assessment are evaluated against the District Plan Framework and recommended policy direction provided.
4.1.13 Mapping Landscape Values
Of most interest to the wider public and property owners, following policy implementation, are the identified features and landscapes. Mapping landscape is dependent on the feature or landscape and the critical attribute that defines that landscape.
The exercise used Geographic Information Systems (GIS) mapping to consider a range of biophysical, sensory and associative values. Mapping within this review ignores the District boundary and focuses on the extent of the feature and landscape.
Depending on the specific values identified a number of different mapping techniques were used in this review to identify the boundary. These include:
1. Land Typing - the boundary follows the edge of a landform or land type. 2. Contour Line Approach – the boundary follows a specific contour or a group of contours. 3. Contained Landscape Features Approach – the boundary follows a contained landscape feature and allows where appropriate for curtilage. An example would be an island and its rocky shoreline. 4. Ridges and Spurs Approach (Visual Catchment) – the boundary follows ridgelines and spurs and can be used for defining a visual catchment. 5. Land Use Approach – the boundary follows land use patterns such as a division between native bush and pastoral land.
REVIEW OF LANDSCAPE AREAS AND IMPLICATIONS FOR PLAN REVIEW | Hastings District Council 35