2 Background to the National Policy Statement on Electricity Transmission
2.1 Reasons for the NPSET
The NPSET seeks to ensure that, in providing for the transmission of electricity within a region or district and in managing the effects of the transmission network on the environment, the operational and long-term development requirements of the network are appropriately considered and its status as a linear cross-boundary network is fully recognised.
The main reason for introducing the NPSET is to resolve the inconsistencies and problems resulting from the highly variable provision for transmission activities in first-generation RMA plans and policy statements. Despite the fact that the national grid is largely the same from one end of the country to the other, all district plans deal with the national grid differently, and there are considerable variations in policy frameworks.
It is therefore necessary to promote a more standardised and consistent approach throughout New Zealand, while recognising that local authorities need to respond to their differing environmental circumstances. Although the NPSET does not require that a common approach be adopted in all aspects, particularly in terms of responding to the various local or regional environmental contexts, best practice would be to promote consistency and standardisation where possible.
Regional and territorial local authorities need to respond proactively to this NPSET before 10 April 2012. It is not just a matter of repeating or paraphrasing the policies contained within the NPSET: the focus should be on providing meaningful implementation at the regional and district level.
As with other policy instruments under the RMA (such as the New Zealand Coastal Policy Statement), there are some inherent tensions between various policies and also some competing requirements. Some of the key areas of tension are cross-referenced in this guidance. Regional or district-level policies may be able to address a number of these tensions, but competing requirements can often only be addressed on a case-by-case basis by decision-makers in relation to specific resource consent applications or notices of requirement.
2.2 Relevance to decision-making on consents and designations
Although this guidance focuses on the policy responses required by regional councils and territorial authorities under Part 5 of the RMA, decision-makers are also required to apply the NPSET more broadly, as stated in the preamble to the NPSET:
The national policy statement is to be applied by decision-makers under the Act. The objective and policies are intended to guide decision-makers in drafting plan rules, in making decisions on the notification of the resource consents and in the determination of resource consent applications, and in considering notices of requirement for designations for transmission activities.
For the last two circumstances:
- when considering an application for a resource consent, the consent authority must have regard to any relevant provisions of a national policy statement (section 104[1][b][iii] of the RMA)
- when considering a notice of requirement, a territorial authority must have particular regard to any relevant provisions of a national policy statement, in accordance with section 171(1)(a)(i) of the RMA.
Therefore, this guidance should assist with the implementation of the NPSET when considering resource consents and designations.
2.3 Terminology
The NPSET uses a range of terms and phrases in relation to the facilities owned and operated by Transpower. However, many terms have not been defined in the NPSET. The interpretation of these terms in this guidance is not necessarily the only way these terms can be defined.
For the purpose of clarity and consistency, in this guidance the relevant terms are used as follows.
- Transmission network refers to the national grid in its entirety.
- Transmission infrastructure refers to high-voltage transmission lines, substations and any other associated facilities and equipment.
- Transmission activities refers to those activities undertaken by Transpower in operating, maintaining, upgrading and developing the transmission network.
- Transmission corridor refers to the area of land on either side of a transmission line within which reverse sensitivity issues may arise.
- Transmission corridor management refers to the corridor management approach, a management method commonly applied (explicitly or not) to roads and railway lines. The purpose of a transmission corridor is to ensure that only activities compatible with the safe and efficient operation and development of high-voltage transmission lines occur within the immediate vicinity of the transmission network.
- Upgrades − the NPSET refers to ‘upgrades’ of transmission infrastructure. Upgrades to existing infrastructure are a means of meeting increased capacity needs on the network and can delay or forego the need for investment in a new transmission line. Increased capacity may be provided for on any particular existing line through:
- tower extensions and related measures to allow increases in carrying capacity, while maintaining minimum safe clearance distances between conductors and the ground (see Section 3, Policy 5)
- adding circuits
- adding sub-conductors or re-conductoring.
The NPSET uses various descriptive terms when referring to upgrading, including minor upgrades, major upgrades and substantial upgrades. These terms are not defined in the NPSET, nor are they used or defined within the electricity sector. It is not clear, for example, whether these terms should be applied to the potential environmental effects, the capacity change afforded by the upgrade, or the extent/cost of the physical work undertaken; there is no direct correlation between these three aspects. However, within the RMA context of the NPSET, the most appropriate focus for defining levels of upgrading should be potential environmental effects.
