Conclusion
There was a widespread expectation expressed at these hui that the appropriate role for Māori in water management is one akin to partnership with the Crown rather than a stakeholder relationship. Māori would like to see their 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 they have both customary and Treaty interests in freshwater, that freshwater should be considered a taonga in terms of the Treaty, and that neither current water management systems, nor the Sustainable Water Programme of Action took proper account of the Treaty relationship. A wide range of views were, however, expressed on underlying freshwater ownership issues. Many participants were of the view that Treaty, ownership and relationship issues must be addressed before any major changes to water management can be considered.
Key comments on the eight issues and 13 actions
Māori participation
Issue 6: Māori participation in water management could be improved
Action 10: Enhance Māori participation
Action 5: Increase central government's support for local government
At most hui we heard 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. Key issues included:
- a lack of resources and technical ability that prevent some iwi from participating in council processes, including that they cannot make submissions
- the need for greater encouragement, and uptake, of Māori science and monitoring
- councils not fully including Māori values.
Key suggestions for enhancing Māori participation included:
- facilitate a better relationship between central government, local government and iwi
- provide assistance and education for Māori to manage resources
- resource iwi/hapū to participate in policy, planning and consent processes
- ensure a shared role with local authorities at governance level, at management level, and in regulation and compliance
- make greater use of Māori commissioners
- build capacity for Māori in freshwater science
- facilitate an annual national hui on water issues to discuss the role of iwi and hapū in water management, and working with local government.
Action 4: Increase central government participation in regional planning
Associated closely with this action is the feeling that central government should provide funds for development of iwi management plans and that these plans be included more in regional planning.
Action 5: Increase central government's support for local government
There was support for central government to provide more training to councillors to 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
There was support for increased collaboration between central and local government, scientists and key stakeholders on pilot projects. The value of this action was seen as demonstrating and testing new water management initiatives where those initiatives are responding to specific regional issues. Participants saw working together as particularly useful in terms of joint management, co-management, and integrated catchment management of freshwater.
Environmental performance
Action 1: Develop national policy statements
Action 2: Develop national environmental standards
There was support for clear national direction to be developed on water 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 by councils in their management of freshwater, although there was wider support for national environmental standards largely because they were seen as more enforceable than national policy statements. 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 they want standards to reflect what local people want.
Issue 1: National and regional strategic planning for water management could be improved
Hui participants identified a need for central and local government to work together more closely to sustainably manage freshwater. It was suggested that the Ministry for the Environment expand its monitoring of the implementation of regional plans and resource consents, to measure how well councils' environmental management is working.
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 water bodies to be of high quality, was constantly emphasised at hui. The localised iwi/hapū-specific nature of Māori interest in freshwater was reflected by many participants opposing the identification of water bodies of national importance proposed in Action 3. 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
There was strong concern expressed about the pollution of water bodies and the issue of water quality, whether due to diffuse or non-diffuse discharges. There was much discussion of links with farming practices and that more action in managing the riparian margin was needed. This was linked to support for stronger use of the 'polluter pays' principle. However, reservations were expressed that use of a 'cap' on discharges may encourage people to pollute up to cap rather then strive to reduce discharges.
Action 11: Enable regional councils to allocate water to priority uses
In general, we heard that allocation models needed to be more strongly enforced and allocation limits imposed, and that any allocation model 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
Concerns about variable council performance on the allocation of water and its efficient use were deeply held. This included that the setting of minimum flows and bottom lines were not achieving sustainable levels of abstraction. This was linked to the 'first in, first served' approach to allocation and that consent applicants could apply for more water than they needed and that councils allocated more water than is available.
Action 9: Set requirements for regional freshwater plans to address key issues and challenges
Incorporation of the management of mixing water and maintaining the mauri of water is a key challenge for future planning. Associated with this is a desire to see wider recognition of traditional mātauranga Māori (knowledge), its complementary relationship with Pākehā monitoring principles, and increased recognition of the value of environmental indicators used by Māori.
Issue 8: Development of water infrastructure is not keeping pace with demand
There was support for this issue where there is a growing population and inadequate infrastructure for drinking water and management of sewage. Participants also repeatedly commented on the need for efficient use of grey water, water recycling and use of roof tanks for storage. Riparian management was also frequently discussed with some gains noted in fencing of wetland areas to protect them from stock intrusion.
Issue 5: Tension between investment certainty and planning flexibility
Issue 5 was not discussed in any depth although the Christchurch hui expressed concern that consents are granted for 35 years, 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. The reasons for opposition included that these tools could favour the rich through the 'stockpiling' of water for profit. As well, doubt was expressed as to whether tradable rights lead to better water management.
There was, however, recognition that there needs to be greater valuing of the water resource, and that encouraging trading and charging for water use would lead to this. It was also recognised that creating alternative tools could provide for a more integrated approach to catchment management.
