IN THE ENVIRONMENT COURT CHRISTCHURCH REGISTRY ENV-2018-CHC- IN THE MATTER of the Resource Management Act 1991 AND IN THE MATTER of appeals under Clause 14(1) of the First Schedule of the Act in relation to the Proposed Southland Water and Land Plan BETWEEN Horticulture New Zealand Appellant AND Southland Regional Council Respondent NOTICE OF APPEAL ON THE PROPOSED SOUTHLAND WATER AND LAND PLAN To: The Registrar Environment Court Christchurch 1. Horticulture New Zealand (“HortNZ”) appeals part of the decisions of the Southland Regional Council on the Southland Water and Land Plan. 2. HortNZ made a submission and further submissions on the Southland Water and Land Plan (submission number 390 and further submission number 390). 3. HortNZ is not a trade competitor for the purposes of section 308D of the Resource Management Act 1991. 4. HortNZ received notice of the decisions on 4 April 2018. 5. The decisions were made by the Southland Regional Council Council. 6. Decisions appealed against: (a) Policy 39A (b) Rule 14 - Fertiliser (c) Rule 25 - Cultivation on sloping ground (d) Definition cultivation (e) Definition natural wetland (f) Definition wetland 7. The reasons for the appeals and relief sought are detailed in the table below. 8. General relief sought: (a) That consequential amendments be made as a result of the relief sought from the specific appeal points above. 9. The following documents are attached to this notice: (a) a copy of HortNZ’s submission and further submissions 1 (b) a copy of the relevant parts of the decision (c) a list of names and addresses of persons to be served with a copy of this notice Rachel McClung Acting Manager, Environmental Policy Advisor – South Island Horticulture New Zealand 16 May 2018 Address for service of the Appellant: Horticulture New Zealand PO Box 10232, Wellington 6143 Phone: 04 470 5664 Fax: 04 471 2861 Email: [email protected] Contact person: Rachel McClung 2 Decisions of Southland Regional Council on the Proposed Southland Water and Land Plan which are appealed by HortNZ: Appeal Provision or Scope Reason Relief sought Point Decision 1. Policy 39A HortNZ made a The HortNZ submission stated that providing Move Policy 39A Integrated Integrated submission (390.18) for integrated management in the development Management from ‘Consideration of Management on Policy 39A of the Plan was supported. However Policy Resource Consent Applications’ to seeking that the 39A lists integrated management as a follow Policy 47 under ‘Freshwater policy be deleted. consideration for resource consent Management Unit Process Policies’ applications. This is considered to be inappropriate consideration of integrated management as it requires consideration of factors beyond the individual consent application and will unreasonably burden applicants. Integrated management is appropriate at a plan level which is implemented through methods in the Plan.This should not be a consideration in individual resource consent applications without a substantial information being publicly available on catchment dynamics, identified resource management issues, identified catchment specific outcomes and appropriate identified catchment limits. The decision states that the amendments sought by HortNZ would unjustifiably weaken the plan and reduce its effectiveness in achieving its objectives and for giving effect to the superior instruments. The decision amends Policy 39A to include consideration of the cumulative effects of land 3 Appeal Provision or Scope Reason Relief sought Point Decision use and discharge activities within whole catchments, including through the Freshwater Management Unit (FMU) process. The changes made to the policy make it more aligned with the Freshwater Management Unit Process than resource consent applications. Section 30 a) of the RMA lists the establishment, implementation and review of objectives, policies and methods to achieve integrated management of natural and physical resources of the region as a function of the regional council. Providing for integrated management should be intrinsic within the planning framework, against which a consent application can be considered. The amendments to Policy 39A in the decision including the Freshwater Management Unit process align with the direction in provided to the FMU process to facilitate the collective management of nutrient losses and also the interactions between freshwater, land and associated ecosystems. Therefore, rather than delete Policy 39A as sought in the HortNZ submission it is sought that the policy is moved into the policy section relating to the Freshwater Management Unit 4 Appeal Provision or Scope Reason Relief sought Point Decision process. This would ensure that integrated management is considered as part of the FMU processes, including establishment and implementation of appropriate objectives, polices and methods to achieve integrated management within the FMU’s without placing an unreasonable burden on resource consent applicants. 2. Rule 14 HortNZ made a HortNZ sought a number of changes to Rule Amend Rule 14 a) iv) as follows: Discharge of submission (390.28) 14 so that it was more effects based rather Where any lake, river (excluding fertiliser seeking that Rule 14 than setting arbitrary setback distances as a ephemeral rivers) artificial water be amended. single mechanism to manage risks. The course, modified water course, or changes sought were based on best natural wetland: management practice as set out in the Code of Practice for Nutrient Management (Fertiliser 1) As per decisions Association 2013). 2) Does not have riparian planting from which stock is HortNZ also sought that the default rule be a excluded, fertiliser is not restricted discretionary rule, rather than non- discharged directly into or complying. within 3 metres of the bed or The decision amends Rule 14, but not in the which 3 metres of a natural manner sought by HortNZ, as the amendments wetland. would not be more effects based and Amend Rule 14 b) to Restricted reasonably practicable options for achieving Discretionary activity and include the objectives of the pSWLP. matters of discretion: Some of the amendments to the rule assist in The standards in Rule 14 that cannot better providing for discharge of fertiliser. be met. 5 Appeal Provision or Scope Reason Relief sought Point Decision However HortNZ is concerned that: i) Rule 14 a) iv) relates to ‘wetlands’ rather than natural wetlands, which are more precisely defined in the Plan. ii) Rule 14 b) requires a non- complying activity if the permitted activity standards are not met. HortNZ has appealed the definitions of both natural wetland and ‘wetland’ and seeks clarity as to how the definitions will be applied through the rules in the Plan. Rule 14 is one such example. The definition of natural wetland provides greater clarity for plan users as to where discharge of fertiliser would be excluded in terms of Rule 14 a) iv) 2). In addition, a default non-complying activity rule would indicate that such an activity is not anticipated in the Plan. HortNZ considers applying a non-complying blanket provision is a significant step from the permitted activity rule. If there are specific areas in Southland where a non-complying activity rule for discharge of fertiliser is necessary then a more targeted approach should be included in the Plan, rather than application of the broad ‘catch-all’ provision in Rule 14 b). It is noted that the default rules for Rule 20 6 Appeal Provision or Scope Reason Relief sought Point Decision Farming are either restricted discretionary or discretionary and the default for Rule 25 Cultivation is restricted discretionary. There appears little justification for the discharge of fertiliser rule to be more stringent than the default rules for Rule 20 or Rule 25. The s42A Report states that ‘the ultimate purpose of the rule is to ensure fertiliser does not enter waterways.’ It is not considered necessary to have a non-complying activity rule to achieve that outcome where the permitted activity standards are not met as effects can be managed through conditions. 3. Rule 25 HortNZ made a HortNZ sought to ensure that cultivation Amend Rule 25 b) as follows: Cultivation on submission (390.30) activities are undertaken according to best The use of land for cultivation and sloping seeking that Rule 14 practice to minimise the risk of sediment associated sediment control ground be amended. discharges to water and set out a range of mechanism, that does not meet the amendments sought to the provisions in Rule HortNZ also made setback distances of Rule 25(a)(ii), is 25. further submissions a permitted activity provided the relating to Rule 25 The decision makes amendments to Rule 25, following conditions are met: opposing in part but not specifically as sought by HortNZ. (i) cultivation does not take place submissions 190.14, It is noted that submission 390.30a) is within the bed of a lake, river, 265.88, 279.71, and accepted in part but there is no reference to (excluding ephemeral rivers 752.118. the remaining part of the submission in the where cultivation is permitted decisions table, so it is unclear why parts of the under Rule 20aa)), artificial HortNZ submission are not accepted. water course, modified watercourse, or natural wetland, It is noted that there is no specific reference to and a distance of 3 metres from 7 Appeal Provision or Scope Reason Relief sought Point Decision the HortNZ submission in either the s42A the outer edge of the bed; and Report or the decision report. It is recognised that the concern of HortNZ is a more discreet EITHER cultivation activity than that for intensive winter (ii) cultivation does not take place grazing or on sloped areas. However it is an more than once in any 5 year activity that should be provided for within the period; and Southland Region. (iii) cultivation is for the purpose of HortNZ considers that Rule 25 a) is a more renewing or establishing efficient provision but consider that Rule 25 b) pasture and is not undertaken does not give adequate consideration to where to establish a crop used for provisions in clause a) are not able to be met.