In the Environment Court of New Zealand Wellington Registry I Te Kooti Taiao O Aotearoa Te Whanganui-a-Tara Rohe ENV-2019-WLG- Under the Resource Management Act 1991 (the Act) In the matter of an appeal under clause 14(1) of the First Schedule to the Act Between Transpower New Zealand Limited Appellant And Wellington Regional Council Respondent Notice of appeal by Transpower New Zealand Limited Dated 17 September 2019 89 The Terrace P +64 4 472 7877 PO Box 10246 F +64 4 472 2291 Wellington 6143 DX SP26517 Solicitor: N McIndoe E [email protected] 7897549 To The Registrar Environment Court Wellington 1 Transpower New Zealand Limited (‘Transpower’) appeals against the decisions of the Wellington Regional Council (the ‘Respondent’) on the proposed Natural Resources Plan for the Wellington Region (the ‘Proposed Plan’). Transpower owns and operates the National Grid, and its assets across the Wellington Region include 12 substations, 25 transmission lines, three submarine cables, four high voltage direct current links, five overhead fibre cables, and seven communications sites. 2 Transpower made a submission and further submission on the Proposed Plan. 3 Transpower is not a trade competitor for the purposes of section 308D of the Resource Management Act 1991 (‘RMA’). 4 Transpower received notice of the decisions on 31 July 2019. 5 The decisions were made by the Respondent. Provisions being appealed 6 The part of the decision that Transpower is appealing is the Respondent’s decisions on the Proposed Plan that relate to regionally significant infrastructure, and in particular the operation, maintenance, upgrading and development of the National Grid. 7 In particular, Transpower appeals the Respondent’s decisions on the following provisions of the Proposed Plan: a Objective 12; b Objective 13; c Objective 31; d Policy 12; e The decision not to insert a new Policy 13A; f Policy 24; g Policy 25; 7897549 1 h Policy 132; i Rule R67; j Rule R68; k Rule R104; l Rule R107; m Rule R108; n Rule R127; o Rule R140; p Rule R153; q Rule R155; r The decision not to insert a new Rule R156A; s Rule R164; t The definition of ‘Operational Requirement’; and u Rule 160 General reasons for the appeal 8 The reasons for this appeal are that, in the absence of the relief sought, the Respondent’s decisions: a will not promote the sustainable management of resources, and will not achieve the purpose of the RMA; b are contrary to Part 2 and other provisions of the RMA; c will not meet the reasonably foreseeable needs of future generations; d will not promote the efficient use and development of natural and physical resources; e will not achieve integrated management of the effects of the use, development or protection of land and associated natural and physical resources; 7897549 2 f will not give effect to the National Policy Statement on Electricity Transmission (‘NPSET’); g will duplicate or conflict with the Resource Management (National Environmental Standards for Electricity Transmission Activities) Regulations 2009 (‘NESETA’); h will not give effect to the Regional Policy Statement (2013) for the Wellington Region (‘RPS’); and i do not represent the most appropriate way of exercising the Respondent’s functions, having regard to the efficiency and effectiveness of other reasonably practicable options, and are therefore not appropriate in terms of section 32 and other provisions of the Act. 9 In addition, the decisions of the Respondent do not give full effect to the NPSET as required by section 67(3)(a) of the Act, particularly: a The Objective of the NPSET with regard to facilitating the operation, maintenance and upgrade of the National Grid and the establishment of new transmission resources in order to meet the needs of present and future generations, while managing the adverse environmental effects of the network and managing the adverse effects of other activities on the network; b Policy 1, with regard to recognising and providing for the national, regional, and local benefits of sustainable, secure, and efficient electricity transmission; c Policy 2, with regard to recognising and providing for the effective operation, maintenance, upgrading and development of the National Grid; d Policy 3, which requires decision-makers to consider the constraints imposed on achieving measures to avoid, remedy or mitigate effects of the National Grid by the technical and operational requirements of the network; e Policy 4, which requires decision-makers to have regard to the extent to which adverse effects of new transmission infrastructure or major upgrades have been avoided, remedied or mitigated by the route, site and method selection; f Policy 5, which requires decision-makers to enable the reasonable operational, maintenance and minor upgrade requirements of established electricity transmission assets; 7897549 3 g Policy 8, which provides that in rural environments the planning and development of the National Grid should ‘seek to avoid’ (rather than simply ‘avoid’) adverse effects on outstanding natural landscapes, areas of high natural character and areas of high recreation value and amenity, as well as existing sensitive activities; h Policy 10, which requires decision-makers to manage third party activities ‘to the extent reasonably possible’, in order to ensure that the operation, maintenance, upgrading, and development of the electricity transmission network is not compromised; and i Policy 14, with regard to including objectives, policies and methods to facilitate long-term planning for investment in transmission infrastructure and its integration with land uses. Reasons for appeal of particular provisions 10 Without limiting the generality of the above, Transpower’s particular reasons for appealing the identified provisions are set out below. Hearing Stream 1: Overall policy framework, Beneficial Use and Development, areas with significant mana whenua values 11 Objective 12 (relating to the benefits of electricity transmission) does not give effect to the NPSET as it only requires decision-makers to ‘recognise’ the benefits of electricity transmission. By comparison, Policy 1 of the NPSET requires, in achieving the purpose of the RMA, that decision-makers both recognise, and provide for the benefits of electricity transmission. 12 Objective 13 (relating to the protection of regionally significant infrastructure) does not give effect to Policy 10 of the NPSET. Objective 13 seeks to protect regionally significant infrastructure within the Coastal Marine Area (‘CMA’) and river/lake beds. However, Policy 10 of the NPSET is not confined to the CMA, and beds of lakes and rivers, rather it applies to all areas in New Zealand. Accordingly, Objective 13 needs to be widened to apply to all areas (including land), so that activities, such as earthworks regulated by the Proposed Plan, do not compromise the National Grid. This amendment is also required in order to give effect to Policy 39 of the RPS. 13 Policy 12 (relating to benefits of regionally significant infrastructure) does not fully give effect to the NPSET: 7897549 4 a for the same reasons as in paragraph 11 of this appeal (i.e. the Policy should both recognise and provide for benefits of the National Grid); b for the same reasons as in paragraph 12 of this appeal (i.e. the Policy should apply to all locations within the Region); and c because the policy fails to reference ‘technical requirements’ (in addition to functional and operational requirements), the words ‘functional need and operational requirements’ are inconsistent with Policy 3 of the NPSET. Policy 3 of the NPSET requires decision-makers to consider the ‘technical and operational requirements’ of the National Grid. The Proposed Plan does not define ‘Operational Requirement’ to include technical requirements. 14 New Policy 13A: Transpower seeks new Policy 13A to specifically recognise the management of environmental effects of new National Grid infrastructure, in order to meet the requirements of the NPSET. Policies 12 and 13 of the Proposed Plan do not go far enough to implement the requirements of the NPSET. The new Policy 13A is intended to recognise that when considering environmental effects of new (or major upgrades of) National Grid infrastructure, regard must be had to: a the extent to which adverse effects on the values of protected resources have been avoided, remedied or mitigated by the route, site and method selection (required by Policy 4 of the NPSET); b the constraints imposed by technical and operational requirements of the National Grid (required by Policy 3 of the NPSET); and c the obligation to ’seek to avoid’ (rather than simply ‘avoid’) adverse effects on outstanding natural landscapes, areas of high natural character and other identified locations in rural environments (required by Policy 8 of the NPSET). Hearing Stream 3: Water Allocations and Natural Form and Function 15 Policy 241 (relating to natural character): Transpower seeks that Policy 24 is amended to recognise that: a the obligation in Policy 8 of the NPSET that Transpower ’seek to avoid’ (rather than simply ‘avoid’) adverse effects on outstanding natural 1 Policy 24 now incorporates part of Policy 25, which has now been deleted in the Decisions Version. 7897549 5 landscapes, areas of high natural character and other identified locations in rural environments; b Policy 3 of the NPSET requires decision-makers, when considering measures to avoid, remedy or mitigate adverse environmental effects of transmission activities, to consider the constraints imposed by the technical and operational requirements of the National Grid. Hearing Stream Four: Water Quality and Stormwater 16 Rules R67 and R68 (relating to discharges). Transpower is concerned that it is not sufficiently clear what activities in relation to the operation, maintenance, upgrading or development of the National Grid would be caught by non- complying activity rule R67, and that the broad application of non-complying activity status (under that rule) to such activities within any identified sites of significance would fail to give effect to the NPSET.