PART 21 - CONTENTS
PART 21 COASTAL ENVIRONMENT
2 1 . 1 INTRODUCTION
2 1 .2 GENERAL OBJECTIVE
2 1 .3 OBJECTIVES AND POLICIES FOR USE
21 .3 .1 Recreation 21 .3 .2 Economic Development 21 .3 .3 Public Access
21 .4 OBJECTIVES AND POLICIES FOR VALUES
21 .4. 1 Conservation Values 21 .4.2 Cultural/Historical Values
21 .5 ASSESSMENT CRITERIA FOR USES AND WORKS ALONG THE COASTLINE
21 .6 CROSS REFERENCES
CITY OF MANUKAU SECOND REVIEW PART 21 - COAST AL ENVIRONMENT
21 .1 INTRODUCTION Manukau City has a total of 320 kilometres of coastline, 140 km on the Manukau Harbour, and 180 km on the Tamaki River and the Hauraki Gulf. Both coastlines have significant visual, recreational, ecological and cultural values. While the relatively undeveloped Hauraki Gulf coastline provides a contrast to the built up area of South Auckland, the Manukau Harbour and the Tamaki River coastlines have a mixture of rural, residential and industrial uses adjoining them. The Manukau Harbour coastline also includes two major facilities of regional importance, the Auckland International Airport and the Manukau Sewage Purification Works.
The City's coastline is subject to a variety of demands for new and expanded uses, activities and works. As these urban pressures increase, protection of the natural character of the coastal environment will become increasingly important and there will be a need for clear management policies setting out an appropriate balance between conservation and development for each area.
*Coastal planning and management is however handicapped by being undertaken by a range of agencies with fragmented responsibilities under a multiplicity of legislative mandates. These include government departments, regional planning authorities, regional water boards, harbour boards and local authorities.
( Ideally, planning and management of the coastal environment should recognise and be based on the interactions between land and water. Currently, however, Manukau City' s planning district extends only to Mean High Water Mark on the Hauraki Gulf and Tamaki River coastline, and to Mean High Water Springs on the Manukau Harbour. (However, note the second paragraph of Part 21 .3.2 relating to planning jurisdiction over structures adjacent to the Hauraki Gulf coastline). Therefore the District Scheme can only deal directly with the land side of the land/sea interface. However, the Council does have management responsibilities under the Harbours Act 1950 for its Hauraki Gulf coastline, as it has "grant of control" of the foreshore and of the seabed and waters for 200 metres seaward of Mean Low Water Springs. The Council has prepared a non-statutory coastal management plan for this coastline. This situation does not apply however, for the Tamaki River and Manukau Harbour coastlines, where the Auckland Harbour Board has grant of control. The Harbour Board also has maritime planning responsibilities for these latter areas under the Town and Country Planning Act. There is an operative maritime planning scheme covering the Tamaki River (the Waitemata Harbour Maritime Planning Scheme), and a proposed maritime planning scheme for the Manukau Harbour will be publicly notified during 1989.
Water quality issues along the two coastlines are primarily the responsibility of the Regional Water Board **, although the Council does recognise that water quality is strongly influenced by adjoining land uses and activities, and will seek to ensure that the planning and use of coastal land is undertaken in a manner which minimises pollutants entering coastal waters. The Council also has responsibilities relating to liquid or solid wastes and other pollutants under the Health Act 1956, Drainage and Plumbing Regulations 1978, and Litter Act 1979.
In the planning and management of its coastlines, the Council will emphasise and promote public use of foreshore and marine areas, conservative management in an ecological sense, and cultural sensitivity.
* The management of the coast has undergone considerable change, see the Resource Management Act 1991
** now Auckland Regional Council
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21.2 GENERAL OBJECTIVE Objective: ( 21.2.1 To work towards a better integration of land and water planning.
Policies: 21.2.1.1 The Council will work with the maritime planning authority* for the Manukau and Waitemata Harbours to ensure compatibility between the district and maritime schemes** for Manukau City's coastlines, and will co-operate fully with the Auckland Regional Water Board and other agencies in implementing the Manukau Harbour and Tamaki Estuary Action Plans.
21.2.1.2 The Council will prepare and maintain a non-statutory coastal management plan for the City's Hauraki Gulf coastline which will be used as a guide when assessing proposals which affect this coastline.
21.2.1.3 While the Council does not have planning jurisdiction over structures or those parts of structures such as boatsheds, wharves, jetties and boat ramps which are located below Mean High Water on the Manukau Harbour or Tamaki River coastlines, if asked for its comment on any such proposal, the provisions applying to adjoining reserves and/or of the coastal management plan will be used as a guide. (
21.3 OBJECTIVES AND POLICIES FOR USES 2 1.3.1 RECREATION Manukau City's coastlines are used for a variety of recreational activities ranging from passive activities such as walking and picnicking to more active activities such as boating. Some of these activities require little or no modification of the environment whereas others may result in a demand for modifications or for areas to be exclusively set aside.
There is a need to provide for a diverse range of recreational opportunities along the coastline. These opportunities need to be convenient and adequate for the local and regional population as well as for tourists, while not detracting from the natural environment.
Objective: 21.3.1.1 To provide for and encourage the establishment of a range of recreational activities based upon the natural resources of the coastline, provided that such opportunities do not unnecessarily degrade the natural resource, or result in undue conflicts with other uses.
Policies: 2 1.3.1 .1.1 The importance of recreational experiences that are dependent on remoteness and seclusion will be recognised and attempts made to protect the characteristics of beaches and stretches of coastline which make those areas suitable for such forms of recreation.
21 .3.1.1.2 The importance of informal recreational activities not involving structures or buildings will be recognised when considering any proposal that may adversely affect that activity. ·
* now Auckland Regional Council
* * see Transitional Regional Coastal Plan
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21.3.1.1.3 The Council will, where appropriate and practicable, support efforts to acquire coastal land for public recreational use and enjoyment, e.g. regional parks, esplanade reserves etc.
21.3.1.1.4 The Council will provide public facilities, including public boatramps, public toilets, tables etc, in selected areas along the coastline, and will encourage the provision of further camping facilities in appropriate locations.
21.3.1.1.5 Recreational activities which require areas of the coastline to be set aside for their exclusive use will only be supported where:
(a) a public need and benefit is shown; and
(bl they do not interfere significantly with other recreational activities or unnecessarily degrade the natural resources of the coastline.
21.3.1.1.6 No consent to new privately owned recreational structures, boatsheds and other water orientated developments on Hauraki Gulf foreshores adjacent to rural, residential, industrial or commercial zones will be granted.
Consent to the erection in these locations of recreational boatsheds or structures by clubs, non-profit making organisations or the Council may be granted after consideration of the following aspects:
(a) Necessity for location on a foreshore, and the availability and practicality of alternative locations.
(b) The impact on public access and views to, from and along the foreshore.
(c) The extent of public use and public benefit.
(d) The size or extent of the proposed use or work, and its impacts on the surrounding environment in terms of Policy 21 .4. 1 . 1 . 2.
Note: Structures on reserves and on foreshores on the Hauraki Gulf coastline adjacent to reserves are controlled by Policies 13.2.5.5 and 13.2.5.6 and Ordinance 13.4.1 in Part 13.
21.3.1.1. 7 Recreational uses which do not require locations on the waters edge should be located inland, away from the immediate coastal area.
21.3.2 ECONOMIC DEVELOPMENT These objectives and policies deal with the built environment and particularly with commercial and industrial facilities and structures within the coastal environment. This includes marine related industry, tourist facilities, and other development which is particularly dependent on a coastal location and/or water access.
For the Hauraki Gulf coastline, once any structure, excavation or work is situated or proposed to be situated below mean high water adjacent to the district, it becomes part of Council's district under Section 2 of the Town and Country Planning Act 1977, but for the Manukau Harbour and Tamaki River coastlines, such structures or works come under the jurisdiction of the adjoining Maritime Planning Authority.
The Council's general strategy for the Hauraki Gulf coastline has been to confine development to existing urban zones in order to conserve the amenity provided by the open space of the rural coastline. For the Tamaki River and Manukau Harbour coastline, the situation is rather different, as these coastlines are already substantially developed as part of the South Auckland metropolitan area.
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Nevertheless, the principle of attempting to protect existing uncompromised coastal areas and to conserve the amenity of the coastline remains relevant. (
The strategy of locating coastal economic activities in or near existing developed areas, and of directing development away from the coastline so far as possible can be refined to make provision in limited locations for some non-farming uses which are based on and closely related to the natural character of the coastal environment.
Objective: 21.3.2.1 To locate coastal economic activities in existing areas which are already developed or set aside for similar purposes, to direct development away from the coastal edge so far as possible, and to ensure that the scale and characteristics of such activities are compatible with the uses and values of the area in which they are located.
Policies: 21.3.2.1.1 Coastal economic activities will be encouraged to locate within areas already zoned for urban purposes.
21.3.2.1.2 Residential development along the Hauraki Gulf coastline east of the ( Mangemangeroa Creek will generally be confined to existing urban zones in order to conserve the amenity provided by the open space of the rural coastline.
21.3.2.1.3 Economic activities or structures associated with them will not be permitted to locate on Hauraki Gulf foreshores adjacent to rural, residential, industrial or commercial zones, except where:
(al The location of such a structure on or near the foreshore is essential, and alternative locations away from the foreshore are not available or practical
(bl Public access and public views to, from and along the foreshore are not unduly affected;
(cl The activity includes a significant component of public use and public benefit; and
(dl The size or extent of the proposed use or work, and its impacts on the surrounding environment, are minimised in accordance with Policy 21.4.1.1.2.
Note: Structures on reserves and on foreshores on the Hauraki Gulf coastline adjacent to reserves are controlled by Policies 13.2.5.5 and 13.2.5.6 and Ordinance 13.4.1 in Part 13.
21 .3.2.1.4 General priorities for use of space adjoining the foreshore for commercial, industrial and other forms of economic development are firstly, water dependent uses, and secondly, water related uses.
21 .3.2.1.5 Coastal protection yards will be required on industrial, Commercial 9, distribution and quarry, residential, future development and rural sites immediately abutting the coastline, except where a public reserve of similar dimensions has been established immediately abutting the coastline.
21.3.2.1.6 Use of space adjoining the foreshore shall be minimised, and whenever possible multiple compatible use of facilities on the foreshore such as wharves and jetties shall be allowed for.
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21.3.2.1.7 Economic development adjoining the foreshore should provide public physical and visual access to the water to the maximum extent consistent with public health and safety.
Objective: 21.3.2.2 To provide for tourist facilities such as travellers' accommodation in the coastal environment where these are appropriate to and closely related to the natural character of this environment.
Policy: 21.3.2.2.1 Travellers' accommodation will be provided for in the coastal environment in accordance with the provisions of the relevant urban zonings and in accordance with the provisions of the Rural 1 zone.
Objective: 21.3.2.3 To maximise the use of existing utility services in coastal areas and to ensure that any further proposed utility services are fully justified on the basis of need.
Policies:
( ) 21.3.2.3.1 Development in the coastal environment will be confined to those areas where additional capacity of utility services is already available, or which can be satisfactorily serviced without unacceptable environmental impacts.
21.3.2.3.2 On the issue of any requirement to the Council, all authorities responsible for utility services will be required to fully justify and describe the nature of their proposed works.
21.3.3 PUBLIC ACCESS Manukau City's coastlines have scientific, educational, recreational, cultural, historical and commercial/economic importance to different groups in the community. It is therefore the Council's intention to develop a coastal access system that increases the amount and diversity of public access to the coastline consistent with public safety and protection of the natural character of the coastline.
Objective: 21.3.3.1 To maintain and improve public access and significant views to, and along the coastline consistent with the use, enjoyment and protection of the natural environment.
Policies: 21.3.3.1.1 Public access to and around the coastline shall be maintained and enhanced, apart from those areas where restrictions on public access are necessary for reasons of security, safety, potential damage to vegetation and wildlife, and the capacity of the area to accommodate visitors in terms of factors such as traffic and parking.
21.3.3.1.2 The Council will generally require, through the subdivision or development processes, the provision of public reserves on land abutting the coastline, and will ensure that public access to all public reserves adjacent to the foreshore is provided and maintained.
21.3.3.1.3 The Council will encourage a high degree of public access to be provided in new coastline development, including pedestrian access where coastal features are appropriate for public use or where significant views may be obtained.
21.3.3.1.4 Council will support the establishment of coastal walkways.
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21 .3 .3.1 .5 Public access will not be provided where it is culturally insensitive or inappropriate to do so, e.g . over urupa or waahi tapu.
21.4 OBJECTIVES AND POLICIES FOR VALUES 21.4.1 CONSERVATION VALUES The natural resources and qualities of Manukau City's coastlines are their physical features, ecological and scenic values, and the quality of coastal water. The Council recognises that the natural resources of the coastline contribute to its recreational, tourist, educational and scientific values, and that coastal ecosystems have intrinsic values which may warrant special protection.
While water quality along the Hauraki Gulf coastline is generally good, some pollution is occurring in the Tamaki Estuary and water quality in some parts of the Manukau Harbour is unsatisfactory. So far as it is within its jurisdiction and powers, it is the Council's intention to preserve, protect, or where possible restore, the natural resources and qualities of the coast, and it will work with other agencies responsible for coastal planning and management to achieve this end.
Objective: ( 21.4.1.1 To retain the physical features of the coastal environment in as near as possible to their natural state, and to ensure that the need for any physical modificat ions to this environment is clearly demonstrated.
Policies: 2 1.4.1.1.1 Activities and works which involve modifications to t he physical coastal environment must be shown to be necessary to the satisfaction of the Council.
2 1.4.1.1.2 The Council will encourage uses, activities and works along the coastline, t o be designed, located and carried out in a manner which minimises the size or extent of the proposed use, act ivity or work, and its impacts on the surrounding environment, including impacts on the stability of coastal margins, on coastal ecology and on sites of cultural and historic significance.
2 1.4.1.1 .3 Reclamations along the Hauraki Gulf coastline will be prohibited unless:
(a) they are publicly owned or controlled; and
(b) proximity to water is essential for the use; and
(c) alternative locations for the use away from the foreshore are not available or practical; and
(d) alternative methods for achieving the same end are not available or practical; and
(e) net public benefit can be shown.
2 1.4.1.1.4 The Council supports the recommendation of the Waitangi Tribunal on the Manukau claim, that further reclamations in the Manukau Harbour should be prohibited. The Council will also support the re -examination and revocation of authorised but uncompleted reclamations if they are found to be unnecessary.
21.4.1.1.5 The Council will take into account the protection of wildlife habitats when considering the Council's requirement for the provision of public reserves on land abutting the coast through the subdivision or development process.
Objective:
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21.4.1.2 To maintain and where practicable enhance the quality of the waters of Manukau City's coastlines, so far as this is within the Council's jurisdiction and powers, in order to permit their safe use and enjoyment for recreational and tourism purposes and to provide a healthy habitat for marine and bird life.
Policies: 21.4.1.2.1 The Council will seek to ensure that the use of coastal land and water is undertaken in a manner which minimises pollutants entering coastal waters. For the purpose of this policy pollutants include treated and untreated sewage, industrial wastes, pollutants in stormwater runoff from urban and rural areas, animal waste, oil, leachates from rubbish dumps and small scale domestic and industrial refuse tips, and sediment.
The Council will give effect to this policy by:
(a) ensuring that an appropriate standard of reticulated utility services is provided when land within the Inner Drainage District is rezoned for urban purposes;
(b) maintaining zoning and subdivisional controls on the extent, type and density of development in unserviced areas; ( ) (cl works and health and bylaws policies to address existing or potential septic tank, stormwater pollution or leachate problems in coastal areas via management techniques, other control measures and public education;
(d) considering and promoting alternative sewage treatment and disposal systems, including land-based disposal, where practicable and effective;
(el supporting upgrading of the Manukau Sewage Purification Works treatment processes to improve effluent quality, and supporting investigation of all disposal options for the effluent;
(fl encouraging the retention of vegetation, including wetlands, and where appropriate the establishment of new vegetation, along riparian areas, coastal margins and streams to minimise diffuse runoff of wastes;
(g) working with the Regional Water Board and landowners and occupiers to implement pollution abatement and prevention measures, particularly in the Manukau Harbour and Tamaki River catchments.
Objective: 21.4.1.3 To protect and enhance the visual quality and scenic value of the City's coastlines.
Policies: 21.4.1.3.1 Areas of significant visual and scenic quality along the coastline will be identified and where necessary additional controls introduced in order to maintain visual quality. The Council will also encourage the protection of dominant landforms such as headlands as natural spaces to protect visual quality.
21.4.1.3.2 In coastal areas uses, activities and works should be located and designed in harmony with, rather than in contrast to, the natural forms of bays and inlets and other forms which have resulted from nature, in order to maintain and enhance the visual quality of those areas.
21.4.2 CULTURAL/HISTORICAL VALUES These objectives and policies deal with the protection and restoration of buildings, objects, sites and areas of land and water having cultural, historic or traditional value in the coastal environment.
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The Council has a corporate objective of developing a partnership with the tangata whenua of the City - the Tainui iwi, and for the Hauraki Gulf coastline, the Ngati ( Paoa and Ngai Tai hapu more specifically. The Council also has a policy of ongoing consultation with relevant persons, groups and organisations on preservation and conservation matters generally.
Consultation with the tangata whenua has established that they see the findings of the Waitangi Tribunal on the Manukau claim as a broad model for the management of, and a basis for the development of objectives and policies for, Manukau City's coastlines. While the characteristics of the Hauraki Gulf coastline and the pressures upon it are very different to those of the Manukau Harbour and the Tamaki River, both in nature and scale, the Council will emphasise "conservative management" of both its coastlines.
Early Maori settlement of the Manukau City area was oriented to the harbour and sea , for food sources and for communication and transport. The Council acknowledges and will work towards the protection of coastal waahi tapu, as areas which are central to the spiritual and cultural heritage of tangata whenua.
Historical values along Manukau City's coastlines are similar to other areas of European settlement and farming. Coastal water transport (scow, cutter and steam services) played an important role in the opening up of coastal areas prior t o the ( construction of railways and roads. Little physical evidence of this coastal transport remains.
Objective: 2 1.4.2.1 To recognise and provide positively in coastal management and planning for the relationship of the Maori people and their culture and traditions with their ancest ral land and waters.
Policies: 2 1.4.2.1 .1 The Council will consult with the tangata whenua of Manukau City to compile an inventory of waahi tapu along its coastlines, including urupa and other t raditional sites, and in conjunction with tangata whenua, identify the most appropriate means for their protection. Protective measures may include listing in Schedule 20D t o t he District Scheme.
21.4.2.1.2 The Council will require early consultation on all development proposals around the coastline to ensure that they are designed and implemented in ways which are sensitive to traditional Maori values.
21.4.2.1.3 The Council will require consultation with tangata whenua to ensure that physical coastal works over which it has jurisdiction do not compromise traditional fishing grounds and shellfish beds, or physical access between Maori communities and marae, and adjacent sea areas and fishing and shellfish grounds.
Objective: 2 1.4 .2.2 To protect and promote the restoration of those buildings, objects, sites or areas of land and water which are representative of the historical and cultural heritage of Manukau City's coastline.
Policies: See Policies 20.1.2.1.1, 20.1 .2.3.1 and 20.1.2.4.1 .
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( 21.5 ASSESSMENT CRITERIA FOR USES AND WORKS ALONG THE COASTLINE .Policy: 21.5.1 In considering any development proposals on the coastline, or in any area where such a proposal could have an appreciable impact on the coast, the Council will take into account any or all of the following criteria, depending on the location of the proposal and the extent of Council's jurisdiction in any particular case.
Assessment criteria for certain uses and works along the coastline are also set out elsewhere in this part and in other parts of the Scheme e.g. Part 12 and Part 13. Where this occurs both the following general criteria and the more specific criteria set out elsewhere will be used to assess the proposal.
To assist the Council in making a decision on any development proposal, the Council may seek the advice of any organisations or individuals considered by the Council to have specialist knowledge or interest relevant to the proposal.
Criteria (a) The extent to which a need/demand has been demonstrated, including the necessity for location on or near a foreshore or in coastal waters. ( (b) The scale of the proposed use or work, and the scale of any associated uses and the possible pressure such development will create for further coastal development.
(c) The balance of public benefit/detriment resulting from the proposal, including:
(i) whether or not the proposal involves exclusive or private use of a public area;
(ii) the impact on public access to the foreshore and coastal waters;
(iii) the impact on public views to and from the coastline;
(iv) any other public benefit/detriment resulting from the proposal.
(d) Effects on other uses in the immediate area and in surrounding areas (including construction and operational effects of works), and including but not limited to:
( (i) Noise (ii) Dust/Odour (iii) Traffic (iv) Impacts on public safety.
(e) The adequacy of services provided for the proposal, including but not limited to:
(i) Pedestrian and vehicular access and parking (ii) Water supply (iii) Stormwater drainage (iv) Sewage disposal (v) Disposal of rubbish and other waste materials, e.g. oil.
(f) The impact of the proposal on historical and cultural values and concerns, including:
(i) effects on historic buildings, objects or areas, or archaeological sites;
( (ii) effects on traditional, spiritual and ancestral links between tangata whenua and any land or water areas or features;
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(iii) effects on fishing or food gathering traditionally carried out by the Maori people.
(g) The degree of modification of the physical and natural environment, including:
(i) the degree of modification of physical features of the coastline, e.g. cliffs, promontories, tidal mudflats, mangrove areas, inlets, estuaries, rivers and creeks;
(ii) impact on visual quality, and the degree of harmony of the development with natural landscape forms;
(iii) impacts on water quality;
(iv) impacts on coastal hydraulics and the stability of the coastline;
(v) impacts on coastal and marine ecology (e.g. botanical and biological values; birds, insects, fish, shellfish and other marine life and their habitats). (
21 .6 CROSS-REFERENCES (a) Part 6 - Subdivision and Development Policy 6.2.10.2 relates to the provision of esplanade reserves upon subdivision.
(b) Part 10 - Industrial Objective 10.2.8 and associated policies relating to water-related industry.
(c) Part 12 - Rural and Future Development Zones Ordinance 12.4.3 contains provisions relating to marina complexes. Ordinance 12.3.1.2.1 (c) contains provisions relating to the processing of the products of marine farms, and quarrying in the Rural 1 zone.
(d) Part 13 - Reserves Policies 13.2.5.5 and 13.2.5.6 and Ordinance 13.4.1 relate to recreational structures and boatsheds on reserves, and on foreshores on the Hauraki Gulf coastline adjacent to reserves.
(el Part 14 - Special Zones includes Part 14.2 Boat Harbour Zone, covering Half Moon Bay and Pine Harbour Marinas.
(fl Part 15 - Yards Ordinance 15.3.3 relates to coastal protection yards. Requirements for the landscaping of coastal protection yards are contained within the ordinance of the zone in which the yard is located.
NOTE: The Coastal Management Plan for the City's Hauraki Gulf coastline addresses matters such as mooring facilities, fishing, shellfish gathering and marine farming for this coastline.
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