Treaty of Waitangi duties relevant to adaptation to coastal hazards from sea-level rise Research Report for the Deep South National Science Challenge By Catherine Iorns* June 2019 * BA, LLB(Hons), Wgtn, LLM Yale; Reader in Law, Victoria University of Wellington. Treaty of Waitangi duties relevant to adaptation to coastal hazards from Title sea-level rise Author C J Iorns Magallanes (Catherine Iorns) Author Contact Details Catherine Iorns Victoria University of Wellington [email protected] Acknowledgements This research was funded by the Deep South National Science Challenge through a research contract with Victoria University of Wellington. Several research assistants have been funded through this research contract to work on different aspects of this report. Some assistants have been identified in specific sections as providing drafts of that section, while others worked across more than one section and are not specifically identified. No extra importance is implied by specific identification; all assistants have been invaluable and this report would not have been the same nor completed on time without them. In alphabetical order they are: Matthew Dicken, Melissa Harward, Rhianna Morar, Nicolaas Platje, Danica Soich, and Jesse Watts. Thanks are also due to those who helpfully reviewed the report: Prof Jacinta Ruru (University of Otago), Prof Huhana Smith (Massey University), A.Prof Sandy Morrison (University of Waikato; Deep South NSC), Shaun Awatere (Manaaki Whenua: Landcare Research, Deep South NSC) and Vanessa James (Victoria University of Wellington). However, none of these organisations is responsible for the information in this paper. Every effort has been made to ensure the soundness and accuracy of the opinions and information expressed in this report. While we consider statements in the report are correct, no liability is accepted for any incorrect statement or information. Recommended citation Iorns Magallanes, CJ, Treaty of Waitangi duties relevant to adaptation to coastal hazards from sea-level rise (Deep South National Science Challenge, Wellington, 2019). 190pp. © 2019 The author. Short extracts, not exceeding two paragraphs, may be quoted provided clear attribution is given. Deep South National Science Challenge www.deepsouthchallenge.co.nz DEEP SOUTH CHALLENGE: CHANGING WITH OUR CLIMATE TREATY OF WAITANGI DUTIES & SEA-LEVEL RISE ADAPTATION | 2 Contents SUMMARY .................................................................................................................................... 5 I. Introduction ....................................................................................................................... 19 II. Sea-level rise and coastal hazards .................................................................................... 23 1 The Problem of sea-level rise and maladaptive residential development .......................... 23 2 Possible climate adaptation responses ............................................................................... 24 3 Overview of the Resource Management Regime ................................................................ 24 4 Climate Adaptation and the RMA ........................................................................................ 26 5 New Zealand Coastal Policy Statement 2010 ...................................................................... 27 6 Non-binding guidance.......................................................................................................... 29 7 Proposals for additional guidance ....................................................................................... 31 8. Jurisdiction and boundary changes – mean high water springs ......................................... 32 9 Comment ............................................................................................................................. 33 III. Effects of Climate Change on Māori .............................................................................. 35 1. Māori Land .......................................................................................................................... 35 2. Coastal Communities .......................................................................................................... 37 IV. Te Tiriti o Waitangi and the Treaty principles ............................................................... 43 1. The Treaty principles .......................................................................................................... 43 2. Treaty Duties and Local Authorities ................................................................................... 49 3. Enforcement of Treaty duties ............................................................................................. 50 4. Climate claims in the Tribunal ............................................................................................ 51 Wai 898 ................................................................................................................................... 51 Wai 2607 ................................................................................................................................. 52 5. Treaty duties relevant to the handling of a disaster: The MV Rena ................................... 52 V. Treaty obligations relevant to climate adaptation........................................................... 65 1. Applying the Treaty Principles to climate adaptation..................................................... 65 2. Decision-making procedures: partnership and consultation .......................................... 71 VI. Local government and the protection of Māori interests ............................................ 74 1. Local Government Act 2002 .............................................................................................. 74 2. The protection of Māori interests in the Resource Management Act ............................... 76 3. RMA and Māori: Mana Whakahono a Rohe ....................................................................... 83 4. NZ Coastal Policy Statement and Treaty obligations ......................................................... 88 5. Department of Conservation Guidance Notes on the NZCPS ............................................ 93 VII. Upholding the Treaty in climate adaptation decision-making ................................... 105 DEEP SOUTH CHALLENGE: CHANGING WITH OUR CLIMATE TREATY OF WAITANGI DUTIES & SEA-LEVEL RISE ADAPTATION | 3 1. Ministry for the Environment 2017 Guidance for local government on climate adaptation .............................................................................................................................................. 105 2. Climate Change Adaptation Technical Working Group Report 2017 ............................... 118 VIII. Case Studies .............................................................................................................. 125 1. Case Study 1: Mōkau River ............................................................................................... 126 2. Case Study 2: Māori freehold land in Waitara .................................................................. 129 3. Case Study 3: Matatā and Māori ...................................................................................... 130 4. Case Study 4: The 'Clifton to Tangoio’ Coastal Hazards Strategy ..................................... 141 5. Case Study 5: Hemi v Waikato District Council (2010): .................................................... 147 Māori culture and climate adaptation in the Environment Court ........................................ 147 IX Conclusion .................................................................................................................... 161 APPENDICES .............................................................................................................................. 163 1. Manaaki Whenua: Landcare, Research Guidance on consultation with iwi .................... 163 2. Additional case study research on coastal adaptation by Māori ..................................... 169 3. Kaupapa Māori Expertise in the Environment Court ........................................................ 175 4. Further research work needed ......................................................................................... 177 BIBLIOGRAPHY .......................................................................................................................... 181 DEEP SOUTH CHALLENGE: CHANGING WITH OUR CLIMATE TREATY OF WAITANGI DUTIES & SEA-LEVEL RISE ADAPTATION | 4 Summary Introduction This paper addresses duties under Te Tiriti o Waitangi/the Treaty of Waitangi (the Treaty) for protection of particular Māori interests in the face of coastal hazards associated with sea-level rise.1 Under Te Tiriti o Waitangi, the Crown has a duty to actively protect Māori lands, estates, forests, fisheries and other taonga, and must enable Māori to protect these taonga.2 It is necessary to assess what Treaty duties may exist in relation to decisions to adopt measures to adapt in an attempt to prevent the risks of damage eventuating from coastal hazards associated with sea-level rise. Much of the climate adaptation measures that would be necessary to actively protect Māori coastal interests fall within local government authorities' jurisdictions; they are thus guided by the procedures and standards under the Local Government Act (LGA) and Resource Management Act (RMA),