(Section 22 of the RPS)

(Note – coastal water quality is addressed in section 17)

Northland's lengthy coastline (3025km) is rich in both cultural and natural heritage features, and is an important source of food and minerals. It was extensively settled by early Maori and is dotted with archaeological sites. The shellfish and fish stocks support many local communities as well as major oyster farming and fishing industries.

Around one third of the region's population live in coastal settlements and the proportion is growing. The settlements serve as a focus for a range of water based recreational activities and tourism. There are ports and associated industrial developments at Marsden Point, Portland, Whangarei and Opua.

Northland's coastal margins have been substantially modified over the years. Coastal forest is now confined to a few islands and places on the mainland such as Bream Head. Native dune field vegetation is also relatively rare, and in most areas introduced species are dominant.

Riparian vegetation and coastal wetlands are an integral part of the natural character of the coast and contribute significantly to both its ecological and amenity values. The open beach areas and associated dunelands are also important wildlife habitats.

‘Mean High Water Springs' marks the boundary between the coastal marine area and terrestrial land. The NRC has responsibility for managing natural and physical resources, and development, in the coastal marine area. The NRC and district councils share the responsibility on terrestrial land. In reality this boundary is artificial as there are many resources and activities that either span mean high water springs or have a direct impact on resources and activities on the other side of the boundary. Both levels of authorities recognise the need for integrated management of the wider coastal environment, and for an associated planning framework to be established in the RPS.

Anticipated Outcomes

· The maintenance and enhancement of the natural character of the coastal environment.

· Enhanced access to and use of traditional fisheries and other resources by Tangata Whenua.

· Greater protection of sites of significance to Tangata Whenua and those features which contribute to the natural character of the coastal environment.

· Appropriate and environmentally sensitive use of the coastal marine area by water related activities.

· Improved public access to foreshore areas and enjoyment of the wider coastal environment.

· Increase in formally reserved areas.

Policy Mix

The objectives for the coastal management section are:

· the preservation of the natural character of the coastal environment;

· the prevention of damage to and loss of traditional fisheries habitat and Tangata Whenua resources;

· the maintenance and enhancement of public use, enjoyment and access to the coastal environment; and

· the minimisation of conflicts between uses.

The policy approach for the preservation of natural character (Policy 22.4 (a)) is a mix of regulatory and non-regulatory methods, but is primarily aimed at controlling development activities through the Regional Coastal Plan (RCP) and district plans. The protection of traditional fisheries and other resources (Policy 22.4 (b)) is pursued through management planning activities with iwi.

The allocation of space (Policy 22.4 (c)) is managed though the RCP from an operational needs perspective. Public access to and along the coast (Policy 22.4 (d)) is approached through the creation of reserves, esplanade areas and public access strips, and restrictions on public access where necessary for environmental or public health and safety reasons.

The coastal management section contains 28 individual methods of implementation that flow from the policy direction discussed above.

What's the current state?

Natural Character

The greatest loss of natural character has occurred along the east coast of the Northland region. Northland's west coast is considerably less developed with only a few small settlements along its length but does have large tracts of pasture and exotic forestry. Coastal subdivision developments have altered the natural character of many beaches in the region. Where coastal erosion has threatened subdivisions and development, the coastline has been armoured with hard materials, significantly degrading its natural character.

Increased communication and co-ordination with the Department of Conservation, district councils and other agencies is a high priority, particularly with regard to the preservation of the natural character of the coastal environment. There is as yet no agreed definition for the terms ‘coastal environment' and ‘natural character' – this makes consistent implementation difficult. Better definition of the ‘coastal environment' would be particularly useful as the RPS and New Zealand Coastal Policy Statement provisions often apply to the coastal environment.

The NRC has successfully worked with coastal communities to establish over 20 Coast Care groups operating around the region. The aim of this programme is to enable communities to better understand coastal processes and initiate protection, restoration and enhancement of dune ecosystems through the establishment and resourcing of community-based Coast Care groups. During the winter of 2008, these groups planted approximately 13,000 Spinifex, and 6,000 Pingao plants to help restore dune habitats in their local environments.

There is increasing demand by users of the coast for improved water quality. This has lead to increased pressure to improve sewage disposal facilities and stormwater runoff.

Results from estuarine monitoring indicate that the biological communities (plants and animals) have been adversely affected by human inputs into these systems. At several sites, nutrient and metal contaminant levels were found to be elevated and evidence was found to suggest that sedimentation has had an impact on community health.

The knowledge and public perception about mangroves has changed considerably since the RPS was first drafted. Put simply, there has been a move from a protectionist philosophy to one based on management. It was also recognised that the RCP did not adequately provide for the protection of high conservation areas within Whangarei harbour due to a lack of information at the time of preparing the RCP. Plan changes have been undertaken to address these two areas. Both plan changes are essentially completed and are only waiting on final signature from the Minister of Conservation.

The NRC has been actively promoting the exclusion of stock from the CMA and riparian management area through the RCP. Access to and use of the CMA by stock became a prohibited activity on 1 July 2009. To date, the NRC has focused on education and working with landowners and has not yet prosecuted anyone under this rule. It will be important to monitor the instances of stock in coastal marine area along with the proportion of the coastal marine that is not accessible (through such means as fencing) to determine if this approach is being effective

Traditional Fisheries

In Northland there are currently two formally recognised traditional fisheries management initiatives in place. There is a Taiapure in the Waikare Inlet (Bay of Islands) and a temporary closure of the Kaipara Harbour for taking scallops. It is understood that there are a small number of proposals for additional Taiapure and Matiatai areas. However to date these proposals have not been formally discussed with NRC.

Public use, access and enjoyment of the CMA

Public access to the coastal marine area is given considerable attention by district councils when considering subdivision applications. Generally there are requirements for esplanade reserves to be vested in ‘public' ownership where a subdivision borders the coastal marine area. The exception is Kaipara, where esplanade reserves are generally only required in identified priority areas. Though no analysis has been undertaken, the approval of subdivisions has inherently increased the opportunities for access to the CMA.

The Far North District Council is preparing an "Open Space and Coastal Access Strategy", which will be a long-term plan (10 years +) setting out what the aims and priorities are for reserves and other open spaces. This will include an overview of where, when and how reserves and other open spaces, including access to the coastline, will be provided by the council. WDC has prepared a coastal management strategy which includes references to public use, access and enjoyment of the CMA. Kaipara has yet to prepare a separate strategy but is developing policy and guidance through its revised district plan.

Northland's east coast continues to be one of New Zealand's most popular coastal playgrounds. Most of the visitors to Northland come from Auckland. The increase in people (including vessels) visiting Northland's coast does not come without its problems, including greater risk of transferring unwanted marine pests and greater demand on Northland's infrastructure, particularly during holiday periods.

Minimising conflicts between users

Currently there are approximately 3000 moorings in Northland and as a group they are the largest single permanent occupier of the coastal marine area. The RCP has recently introduced provisions that seek to concentrate moorings into roughly 40 identified ‘mooring areas' and discourage a proliferation of moorings along the coast.

Aquaculture (marine farming) currently occupies about 700 hectares of water space in Northland dominated by oyster farms, although only 363 hectares has been developed (structures in place but not operational) and approximately 313ha is currently in productive operative (space figures are based on 2007 monitoring data).

There is considerable demand for more space and to diversify into other farming methodologies and species such as sea cage farming of kingfish. A plan change to the RCP is currently with the Environment Court which is seeking to provide better guidance on the areas where aquaculture is not appropriate which therefore by default provides guidance on the areas that may be more suitable to for aquaculture. The plan change will also provide guidance on the range of factors that need to be considered when developing and considering a proposal to establish aquaculture.

The management of vehicles on beaches continues to be a major issue for certain beaches in Northland, especially over the summer peak. It is an issue of interest to both the NRC and district councils, though currently district councils appear to have the best ‘tools' to be able to deal with the issue. The district councils are all approaching the management of vehicles on beaches differently.

What has worked well in this section?

The policies of the RPS are reflected well within the RCP for Northland. The management of the coastal marine area and the coastal environment (landward area with a coastal influence) has had significant attention through both regional and district planning. Significant knowledge and experience has been gained in regard to the management issues and effective management approaches.

Development of the Coastal Management Strategy by the Whangarei District Council is a good example of implementation of this section. The Coastal Management Strategy identified the need to develop structure plans for seven costal communities in the district, all of which are now complete. Plan changes are now in progress to implement the structure plans in the priority communities.

What has not worked in this section?

The linkage between the coastal marine area and coastal land management is an area where we have learnt a lot and have recognised that it requires more effective management. Areas of the coast continue to be compromised through inappropriate development and inadequate control of environmental effects, particularly in regard to stormwater, sewage disposal, public access, landscape values, and natural hazards. There are increasing examples of private encroachment into public reserves and access ways through patios and swimming pools etc. There is a need to ensure public access is pro-actively addressed to ensure private access is not assumed and the public are not inappropriately blocked from access to the coast.

There is a lack of information on existing public access to and along the coast. This would be a very valuable resource. The management of air space, including line of sight (view corridors) is not considered. The NRC has not undertaken any active encouragement or promotion of the formal protection of areas and sites, including those traditionally used by Tangata Whenua.

General comments on this section:

The section has been implemented well through the development of the Regional Coastal Plan, district plans and non-statutory documents such as coastal management strategies. However the level of knowledge and understanding of the coastal environment has significantly increased and areas such as coastal landscapes and significant habitats are not considered to be well managed currently.

This section should include provision for the social and economic wellbeing of communities while providing for coastal management. People in Northland want to live on or near the coast. This needs to be recognised as a particularly relevant issue for Northland.

Is this section Efficient and Effective?

There is ongoing discussion and significant areas of improvement to be made in regard to the integrated management of the coastal environment – particularly in relation to the line of mean high water springs and the landward coastal environment. There is an existing commitment to integrated management but it is also an area for significant improvement, particularly in regard to the effects of coastal subdivisions and the inevitable risks to use and development as a result of being in such a naturally active and mobile environment.

In practice, there has been a large reliance on advocacy and voluntary methods, especially in regard to the protection of natural character. It is strongly felt that public access to the coast is not being effectively created or managed.

The RPS does not effectively define the coastal environment or natural character for Northland and is lacking specific provisions for coastal landscapes, cultural landscapes and historic heritage and historic landscapes within the coastal environment.

Emerging Issues for this section?

The ‘coastal environment' is not defined. It would make it easier to implement provisions that apply specifically to the coastal environment if it were defined.

Though diminishing natural character is not a new issue, it is a significant one. An element of natural character is natural landscapes. Landscape assessments were carried out to varying levels of detail in the three districts in the early to mid nineties. This information is now at least 15 years old.

There is significant cost (to district councils generally) associated with maintaining access ways and concern has been expressed that resources should be directed towards focusing on good access ways rather than just ensuring every possible access is gained.

The public are increasingly demanding better management of vehicle access to and along the coast. An impediment has been the lack of clarity of agency responsibility.

Integrated catchment management is gaining momentum, both amongst local communities and the science fraternity, as the desired method to manage natural resources. (In a nutshell, integrated catchment management is about considering the impacts of management decisions on all aspects of the environment within a catchment). An example is the Integrated Kaipara Harbour Management Group.

Directly associated with gaining momentum towards integrated catchment management is the increasing acknowledgement that a large proportion of what goes on in the coast is impacted by activities further up the catchment (e.g. sedimentation).

Communities continue to be increasingly aware and interested in being involved in managing environmental issues. This has been reflected by the growing number of environmental groups, their requests for assistance from councils and an increasing demand from these groups to be involved in planning and making decisions about the coastal environment.

Cross boundary issues, such as the management of the Kaipara Harbour and the boundary between the Auckland Regional Council and the NRC needs to be addressed. The management regime surrounding the use of vehicles on beaches is a highly topical issue at the moment. Specifically, whether there should be one set of rules for all of Northland or whether there needs to be different rules/restrictions in each district. This issue highlights the need to be aware of the likelihood of activities that are banned in Auckland coming into Northland – the ban in Auckland can have the effect of simply transferring the issue into Northland.

Managing the adverse effects of cumulative impacts is a continuing issue. It will continue to be difficult given the effects based philosophy of the RMA.

Central government has signalled a strong interest in promoting the aquaculture industry. Amendments to the RMA are expected to come into force in late 2010, which should make it easier to apply for aquaculture space.

There is increasing recognition being given to the importance of Northland's coast for the local economy. Many industries are based around Northland's coast (e.g. ports, marine services, tourism, and aquaculture). It is one of Northlands most significant economic assets.

Managing the coastal environment carries considerable financial costs. There are many users that derive private benefit from the coast, often financial, which have adverse effects on the environment and pay nothing for it. For example, those with resource consents for structures in the coastal marine area do not pay any ‘lease' or ‘rental' for the space they occupy. The RMA provides regional councils the ability to charge for occupation of the coastal marine area. The NRC has not elected to adopt a charging regime, principally because the law is uncertain as to how the charging regime should be designed, although it supports the concept in principle. If however the law were to change, or if there were significant appetite from the NRC (e.g. to subsidise the ever increasing costs of managing the coast) then this is likely to become a significant issue for the Northland community.

Lastly, the review of the New Zealand Coastal Policy Statement is expected to play a significant role of informing the 2nd Generation RPS. It is anticipated that the final NZPCS will be released in the first half of 2010. It is likely to direct regional councils to include a range of provisions within their respective policy statements.

Conclusions

The existing RPS has done a reasonable job of helping to direct the management of Northland's coast. However since it was written, new issues have emerged or other existing issues have increased in prominence. The priority issues for which the RPS could/should provide more direction are:

· defining the ‘coastal environment'.

· setting out the degree to which the NRC will work with and share decision making with community groups and Maori (applies not only to coastal management, but all natural and physical resources).

· the degree to which integrated catchment management will be supported by local authorities in Northland.

· better recognising the economic asset that is Northland's coast.