Executive Summary
The Government established the Sustainable Water Programme of Action in 2003 as part of the wider Sustainable Development Programme of Action, to ensure that the country's freshwater resources are managed wisely to provide for the present and future environmental, cultural, social and economic wellbeing of New Zealand.
A discussion document was released in December 2004, outlining the key issues with water management and a proposed package of actions. In February and March 2005, 17 hui with Māori were held around the country to discuss the issues and actions contained in the discussion document Freshwater for a sustainable future: issues and options. This report summarises the initial comments made on the document received at hui, as well as new issues and actions raised.
There was widespread expectation that the appropriate role for Māori in water management is one of partnership with the Crown rather than a stakeholder relationship. This would include Māori concepts and values, such as restoring the mauri of waterways and recognition of the role of kaitiaki, as a central part of the water management framework. There was consensus among Māori that freshwater is a taonga in terms of the Treaty of Waitangi, and that current water management systems or the Sustainable Water Programme of Action did not address the Treaty relationship. Some participants were of the view that Treaty, ownership and relationship issues must be addressed before any major changes to water management can be considered.
There was general agreement with the issues identified in the discussion document, however some were seen as higher priority than others. The level of support for each of the 13 actions was dependent on their future shape and form. Feedback on these issues and actions has been divided into four key areas: increasing Māori participation; providing education, raising awareness and collaborating; addressing environmental performance; and market mechanisms and other new tools.
Increasing Māori participation
Issue 6: Māori participation in water management could be improved
Action 10: Enhance Māori participation
Participants at most hui stated that simply enhancing Māori participation is not enough - Māori want a role in decision-making. In particular, the capacity and capability of iwi and hapū to engage with councils was raised as many organisations lack the structures and resources to engage as they would wish. Participants provided many suggestions to effectively enhance Māori participation.
Action 4: Increase central government participation in regional planning
Participants thought that central government should provide funds for development of iwi management plans and that these plans should be included more in regional planning.
Action 5: Increase central government's support for local government
There was support for central government providing more training to councillors so that they can understand environmental issues, and issues for Māori.
Education, awareness raising and collaboration
Action 12: Raise awareness of freshwater problems and pressures, and promote solutions
There was widespread support for public education to be provided by central or local government to raise public awareness of water issues and promote water conservation.
Action 13: Collaboration between central and local government, scientists and key stakeholders on pilot projects to demonstrate and test new water management initiatives
Increased collaboration between central and local government, scientists and key stakeholders on pilot projects to address specific regional issues was supported. Working together was seen as particularly useful for joint management, co-management, and integrated catchment management of freshwater.
Environmental performance
Issue 1: National and regional strategic planning for water management could be improved
Action 1: Develop national policy statements
Action 2: Develop national environmental standards
A need was identified for central and local government to work together more closely. It was suggested that the Ministry for the Environment measure how well councils' environmental management is working. Participants supported development of national direction for freshwater management which could be in the form of a national policy statement and/or national environmental standard(s). Both actions were seen as necessary to promote consistency of freshwater management by councils; however, national environmental standards were more widely supported than national policy statements as they were seen as more enforceable. Māori want a role in determining these standards. Hui participants do not want these two actions to remove decision-making at a local level and want standards to reflect what local people want.
Issue 2: Nationally important values need to be better addressed
Action 3: Address nationally important values
The cultural importance of freshwater to Māori, and the need for all waterbodies to be of high quality, was constantly emphasised at hui. Many participants opposed the identification of water bodies of national importance because identification does not reflect the localised iwi/hapū-specific nature of Māori interests in freshwater. However, support was shown for addressing nationally important values where iwi saw this as a way to protect important local values.
Issue 7: A lack of effective action in the management of diffuse discharges of contaminants on water quality, in some catchments
Action 8: Develop market mechanisms to manage diffuse discharges
Concern was expressed about the pollution of water bodies and water quality issues due to diffuse and non-diffuse discharges. Participants supported more action in managing the riparian margin, especially in rural areas, and use of the 'polluter pays' principle. Participants had reservations about the use of a 'cap' on discharges as this may encourage people to pollute up to a cap rather than reduce discharges.
Action 11: Enable regional councils to allocate water to priority uses
There was support for allocation models to be stronger, and that they should first ensure the natural environment for the survival of aquatic species.
Issue 3: Setting environmental bottom lines and allocation limits is costly and contentious
Issue 4: Water is over-allocated in some catchments, is not consistently allocated to its highest value use over time, and can be wasted
Participants expressed concerns about variable council performance in water allocation, efficient water use practices, over allocation, and the 'first in, first served' approach of allocating water.
Action 9: Set requirements for regional freshwater plans to address key issues and challenges
Management of mixing water and maintaining the mauri of water is a key challenge for future planning. Participants expressed strong desire to see wider use of mātauranga Māori (traditional knowledge) with Pākehā monitoring principles, and increased valuing of the environmental indicators used by Māori.
Issue 8: Development of water infrastructure is not keeping pace with demand
Participants expressed support for this issue where there is a growing population and inadequate infrastructure for drinking water and management of sewage. Participants saw a need for efficient use of grey water, water recycling and use of roof tanks for rain water storage.
Issue 5: Tension between investment certainty and planning flexibility
Participants expressed concerns about the duration of consents granted, without applicants needing to justify their need for the water.
Market mechanisms and other new tools
Action 6: Develop special mechanisms for regional councils
Action 7: Enhance the transfer of allocated water between users
Participants had many concerns around the possible introduction of the auctioning or tendering of water rights. Almost all of those who discussed the use of market mechanisms were opposed to the creation of stronger property rights in water. Participants recognised that freshwater should be valued more highly, and that encouraging trading and charging for water use would lead to this.
