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The Whakatōhea Mandate Inquiry Report

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The Whakatōhea Mandate Inquiry Report Downloaded from www.waitangitribunal.govt.nz T H E W H A K A T Ō H E A M A N D A T E I N Q U I R Y R E P O R T Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz T H E W H A K A T Ō H E A M A N D A T E I N Q U I R Y R E P O R T W A I 2 6 6 2 W A I T A N G I T R I B U N A L R E P O R T 2 0 1 8 Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz National Library of New Zealand Cataloguing-in-Publication Data A catalogue record for this book is available from the National Library of New Zealand ISBN 978-1-86956-329-5 (pbk) ISBN 978-1-86956-330-1 (PDF) www.waitangitribunal.govt.nz Typeset by the Waitangi Tribunal This report was previously released online in pre-publication format in 2018 as The Whakatōhea Mandate Inquiry Report – Pre-publication Version This edition published 2018 by Legislation Direct, Lower Hutt, New Zealand Printed by Printlink, Lower Hutt, New Zealand 22 21 20 19 18 5 4 3 2 1 Set in Adobe Minion Pro and Cronos Pro Opticals Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz CONTENTS Letter of transmittal ix Chapter 1 : Introduction to this Inquiry 1 1 1 The urgent inquiry 1 1 1 1 Introduction 1 1 1 2 The journey to settlement 1 1 1 3 The mandating process 2 1 1 4 The applications for urgency 3 1 2 The people of Whakatōhea 4 1 3 The claimants in this inquiry 4 1 4 The structure of this report 5 Chapter 2 : The Positions of the Parties 7 2 1 Introduction 7 2 2 The parties to this inquiry 7 2 2 1 The claimants and their positions 7 2 2 2 The Crown’s position 8 2 2 3 The interested parties 8 2 3 The issues for this inquiry 9 Chapter 3 : Whakatōhea’s Experience in the Modern Period of Crown Settlement Policy 11 3 1 Introduction 11 3 2 Crown settlement policy 11 3 3 The negotiation process : 1989–98 12 3 4 The latest mandate process : 2010–15 13 3 5 Moving towards recognition of the Pre-settlement Trust mandate : 2016–17 16 3 5 1 Request for Waitangi Tribunal inquiry 17 3 5 2 Agreement to pursue an accelerated negotiation pathway 18 3 5 3 Recognising the Pre-settlement Trust mandate 18 Chapter 4 : Treaty Principles and Standards 21 4 1 Introduction 21 4 2 Jurisdiction 21 4 3 The Treaty principle of partnership 21 4 3 1 Informed decision-making 22 4 3 2 Whanaungatanga 22 4 4 The Treaty principle of active protection 23 4 5 Conclusion 24 v Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents Chapter 5 : The Tribunal’s Analysis of Mandate Issues 27 5 1 Introduction 27 5 2 The ‘Te Ara Tono’ report 27 5 3 The mandate vote and hapū rangatiratanga 29 5 4 The mandate vote and the Trust Board register 31 5 4 1 The Trust Board register : eligibility and opportunity to participate in the mandate vote 31 5 4 2 Communicating participation rates to Ministers 33 5 4 3 Conclusions on the use of the Trust Board register as a basis for the mandate vote 34 5 5 Consideration of support for and opposition to the Deed of Mandate 34 5 5 1 Submissions on the Deed of Mandate 35 5 5 2 The withdrawal petition 37 5 5 3 Consideration of support for a Waitangi Tribunal district inquiry 39 5 5 4 Conclusions on the consideration of support and opposition 43 5 6 Hapū rangitiratanga and the process for selecting trustees 44 5 7 The process for recognising additional hapū 46 5 8 The process for withdrawing support for the mandate 47 5 8 1 Is there a fair process for determining whether the 5 per cent threshold has been met ? 48 5 8 2 Are the requirements for amending or withdrawing the mandate workable ? 49 5 8 3 Does the withdrawal process adequately provide for the interests of hapū ? 50 5 8 4 Conclusions on the withdrawal mechanism 53 5 9 The impact of the Crown’s 2016 strategy for accelerated Treaty settlements : ‘Broadening the Reach’ 53 5 9 1 September 2016 invitation to participate in accelerated negotiations 54 5 9 2 Including Whakatōhea in the ‘Broadening the Reach’ strategy 55 5 9 3 Assessing capacity, capability, and cohesion 56 5 9 4 Conclusion on the influence of the accelerated negotiation process 58 Chapter 6 : The Tribunal’s Analysis of Specific Claims 59 6 1 Introduction 59 6 2 Ūpokorehe claim (Wai 2563) 59 6 2 1 Introduction 59 6 2 2 The claim 59 6 2 3 Key issues for Ūpokorehe 60 6 2 4 The positions of the parties 60 6 2 5 Should Ūpokorehe be part of a Whakatōhea mandate ? 63 6 2 6 The Crown’s ‘large natural group’ policy and a ‘parallel, non- competing’ mandate 69 6 2 7 Does the Ūpokorehe Claims Trust speak for Ūpokorehe ? 72 vi Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents 6 3 The Mokomoko whānau claim (Wai 2609) 74 6 3 1 Introduction 74 6 3 2 The findings of the Te Urewera Tribunal 75 6 3 3 The 2011 Crown commitment to the Mokomoko whānau 75 6 3 4 Settling the Mokomoko whānau claim and the large natural groups policy 76 6 4 Te Whānau a Te Kahika claims (Wai 2594 and Wai 2605) 80 6 5 The Moutohorā Quarry claim : Whakapaupākihi No 2 Trust (Wai 2592) 81 6 6 The Raupatu Working Party claimants and the section 30 order (Wai 2657) 82 6 7 Conclusion 83 Chapter 7 : Findings and Recommendations 85 7 1 Introduction 85 7 2 Issue 1 : The Crown’s recognition of the Deed of Mandate 85 7 2 1 Issue 1(a) : Reasonableness of the Crown relying on the Trust Board register 86 7 2 2 Issue 1(b) : Sufficiency of the Crown’s knowledge of the support for and opposition to the mandate prior to its recognition 87 7 2 3 Issue 1(c) : Sufficiency of support to warrant mandate recognition 88 7 2 4 Issue 1(d) : Consideration of reasonable alternative mandating structures 89 7 2 5 Issue 1(e) : Appropriateness of Ūpokorehe being included in the Pre-settlement Trust Deed of Mandate 89 7 2 6 Issue 1(f) : Appropriateness of Te Whānau a Mokomoko being included in the Pre-settlement Trust Deed of Mandate 90 7 3 Issue 2 : Provision for Whakatōhea hapū in the Pre-settlement Trust Mandate and any resultant prejudice 91 7 4 Issue 3 : Fairness of the remedies under the Deed of Mandate and recognition and protection of hapū rangatiratanga 91 7 5 Issue 4 : Fairness and reasonableness of the Crown continuing to recognise the Pre-settlement Trust mandate 92 7 6 Summary of findings 92 7 7 Provision of information 93 7 8 Prejudice 94 7 9 The current difficulty 94 7 10 Our recommendations – next steps 96 7 11 Further specific recommendations 99 7 11 1 The Mokomoko whānau 99 7 11 2 The Te Kahika claimants 99 7 12 The outcome and consequences of vote 99 Appendix i : Whakatōhea Pānui 103 vii Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents Appendix ii : Select Record of Inquiry 105 Select record of proceedings 105 1 Statements 105 1 1 Statements of claim 105 Wai 2257 105 Wai 2510 105 Wai 87 105 Wai 203 105 Wai 224, Wai 1082, Wai 1759, Wai 2008, Wai 2049, Wai 2055, Wai 2066, Wai 2097, Wai 2290, Wai 2346, Wai 2462 105 Wai 1092, Wai 1787, Wai 1758 105 1 4 Tribunal statement of issues 106 2 Tribunal memoranda, directions, and decisions 106 3 Submissions and memoranda of parties 106 3 1 Pre-hearing stage, including judicial conferences 106 3 2 Hearing stage 106 3 3 Opening, closing, and in reply 107 3 4 Post-hearing stage 108 4 Transcripts 108 Select record of documents 109 A Inquiry documents 109 viii Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Waitangi Tribunal Te Rōpū Whakamana i te Tiriti o Waitangi Kia puta ki te whai ao, ki te mārama The Honourable Andrew Little Minister for Treaty of Waitangi Negotiations The Honourable Nanaia Māhuta Minister for Māori Development The Honourable Kelvin Davis Minister for Crown and Māori Relationships Parliament Buildings Wellington 12 April 2018 E ngā minita, tēnā koutou, Kia whatua te kāwai o te tangata ; Kia whitauria te kīwai o te kete ; Kia tānikohia ki te kāwei rangatira. To weave the strands of people together, To give handles to the spiritual kete, and To embellish that work with a fitting nobility. Enclosed is our report on the Whakatōhea mandate This is the outcome of an urgent hearing held in Whakatāne on 6–10 and 21–22 November 2017 The primary issue for inquiry was whether the Crown’s decision to recognise the Whakatōhea Pre-Settlement Claims Trust (Pre-settlement Trust) Deed of Mandate was fair, reasonable, and made in good faith We conclude that there has been a failure to fulfil the Crown’s duty to act reasonably, honourably, and in good faith, and that this constitutes a breach of the Treaty principles of partnership and active protection We believe it came about because the Crown effectively prioritised its political objective of concluding settlements by mid-2020 over a process that was fair to Whakatōhea This not only caused prejudice to Whakatōhea, but it also puts Level 7, 141 The Terrace, Wellington, New Zealand.
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