Evidence-based Assessment of Natural Character RMLA Waikato Branch 07 Sept 2016 Michael Steven Landscape Architect/Landscape Planner Pohara, Golden Bay 1
The key issue. The adequacy of landscape & natural character assessment post-nz King Salmon 2
Background issues Natural character (s6(a)) and outstanding natural features and landscapes (s6(b)) matters remain a highly contentious area of planning Legacy of >15 years of landscape assessment practice in context of RMA: No agreed definition of landscape, feature, what constitutes outstandingness No agreed definition of natural character Opaque methods of assessments Obscure language / imprecise terminology 3
Background issues NZCPS (2010) - Policies 13 & 15 13.1(a) Preservation of natural character avoid adverse effects of activities on natural character in areas of the coastal environment with outstanding natural character 15(a) Natural features and natural landscapes avoid adverse effects of activities on outstanding natural features and outstanding natural landscapes in the coastal environment NZKS Supreme Court decision - avoid means avoid 4
Implications for professional practice Significant developments may stand or fall on landscape and natural character evidence The bar for landscape assessment methods has risen above and beyond the potential for present approaches to satisfy Issues are as important for protection and preservation as for development. 5
Objective A professional assessment methodology that meets the tests of validity and reliability. The adoption by the landscape profession of a valid and reliable method will: eliminate confusion over terminology and definitions make assessment process transparent and comprehensible to all parties remove individual bias in assessments of natural character, leading to greater consistency place natural character assessments on the same level of professional credibility as assessments undertaken by other disciplines 6
NZCPS Policy 13.2 Recognise that natural character is not the same as natural features and landscapes or amenity values and may include matters such as: (a) natural elements, processes and patterns; (b) biophysical, ecological, geological and geomorphological aspects; (c) natural landforms such as headlands, peninsulas, cliffs, dunes, wetlands, reefs, freshwater springs and surf breaks; (d) the natural movement of water and sediment; (e) the natural darkness of the night sky; (f) places or areas that are wild or scenic; (g) a range of natural character from pristine to modified; and (h) experiential attributes, including the sounds and smell of the sea; and their context or setting. 7
Understanding the concepts The statement; natural character is not the same as natural features and landscapes or amenity values should force critical consideration of the concepts. The fact of the difference is stated, but not explained - little thought given to factors that make it different. 8
Understanding the concepts Key concepts of natural character and landscape are becoming increasingly confused. Spatial contexts differ: Policy 13 - Coastal environment Policy 15 - Landscapes, Seascapes Policy 15 - Features Terminology: Natural character, naturalness, landscape naturalness, indigenous nature, perceived naturalness 9
Understanding the concepts Assessment matters substantially the same: Recognise that natural character is not the same as natural features and landscapes or amenity values and may include matters such as: (a) (b) (c) (d) (e) (f) (g) (h) natural elements, processes and patterns; biophysical, ecological, geological and geomorphological aspects; natural landforms such as headlands, peninsulas, cliffs, dunes, wetlands, reefs, freshwater springs and surf breaks; the natural movement of water and sediment; the natural darkness of the night sky; places or areas that are wild or scenic; a range of natural character from pristine to modified; and experiential attributes, including the sounds and smell of the sea; and their context or setting. 10
A definition of natural character A fundamental issue is the absence of a clear, unambiguous definition of natural character - an awareness of what it is, and what it is not: Natural character is the expression of natural elements, natural patterns and natural processes in the landscape or coastal environment, rated according to the degree of modification through human agency. 11
Natural character values? Natural character is a condition, or state of the coastal environment A characteristic by which the coastal environment can be described RMA and NZCPS establish the value of natural character, so purpose of assessment is not to attribute value Assessment is concerned with identifying how much, or how little of that characteristic is exhibited 12
A scale of natural character Diminishing natural influence Diminishing cultural influence VERY HIGH HIGH HIGH MODERATE MODERATE- MODERATE- LOW LOW VERY LOW 7-range scale of natural character for the assessment of the degree of natural character exhibited by a landscape or the coastal environment. The shaded part of the scale is the range within which natural processes become dominant over cultural processes, and represents the range within which a feature or landscape may be regarded as natural enough for s6(b) purposes. Landscape assessed as being within the Moderate range of the scale will generally display natural and cultural influences in equal measure. From Moderate-Low to Very Low, there is an increasing dominance of cultural elements, patterns and processes over natural influences. 13
Outstanding natural character (NZCPS 13) NZCPS 13(1)(a) applies OUTSTANDING NATURAL CHARACTER NZCPS 13(1)(b) applies VERY HIGH HIGH MODERATE-HIGH MODERATE MODERATE-LOW LOW VERY LOW One approach to ONC assessment: Outstanding Natural Character may be understood as natural character considered as being at the extreme end of the Very High range of the scale, i.e. natural character approaching pristine levels. It is generally accepted that pristine natural character, in the narrowest sense of the term, no longer exists, as all environments in NZ are to a degree, influenced by human agency. 14
Evaluating assessments Tests / criteria can be applied to evaluating assessments: Professional tests: validity, reliability. From perspective of the community: plausibility, credibility Transparency 15
Rapid appraisal of natural character To meet tests of validity and reliability, some standardisation is required through application of a common, structured tool Minimise variability through reference to a common set of objectively verifiable factors Common frame of reference minimises individual bias Reliability is also increased between sites, and between assessors Rapid appraisal approach provides a common frame of reference 16
ASPECTS OF TERRESTRIAL NATURAL CHARACTER NATURAL ELEMENT ASPECTS INDICATORS OF HUMAN AGENCY, DISTURBANCE, INTERVENTION Expression of natural elements, pattern & processes dominant Expression of cultural elements, patterns & processes dominant NZCPS POLICY 13(2) MATTERS Nil - Very Low Low Moderate-Low Moderate Moderate-High High Very High 1 Landform / Geomorphology Extent of excavation; mining, quarrying, cut and fill, roads, tracks, building platforms, terracing or other physical modifications to landforms or geomorphological features 2 Human induced environmental pollution, disturbance, perturbation, degradation Extent of infrastructure development for tourism, residential & industrial purposes, inc structures, impervious sealed surfaces Presence of artefacts, changes the result of human-induced environmental disasters, e.g., wildfires, debris fields, wreckage, ruins, waste, pollution, toxicity 13(2)(c) 13(2)(c) 13(2)(c) 3 Hydrology Channelisation of rivers, streams, culverts, embankments, liners, groynes, impoundment, wetlands drained or reclaimed 13(2)(c) 4 Vegetation Vegetation structure modified through logging, grazing, browsing Changes to natural vegetation composition through introduced or wilding plants Removal of natural vegetation communities for pasture development, cropping 5 Inter-tidal Structures in inter-tidal zone, e.g., breakwaters, sea walls, groynes, piers, wharves, slipways, ramps, marinas 13(2)(d) 6 Darkness of night sky Degree of light pollution from non-natural light sources 13(2)(e) 7 Remoteness Proximity of development associated with recreational, residential or commercial activities, e.g., formal access such as tracks, trails, roads, car parks, ramps, wharves, jetties for boats TERRESTRIAL PROCESS ASPECTS 8 Erosion Evidence of accelerated erosion, slipping, slumping, the result of land management practices, interventions 9 Plant colonisation & succession Presence of exotic weeds, invasive species, scald, bare earth; aquatic weeds, algal blooms 10 Deposition & Sedimentation Evidence of silt and sediment build up, dune depletion the result of land management practices, sand mining 13(2)(f) DRAFT ML Steven 11 Materials, organisms & nutrient flows Presence of unnatural barriers to organism or nutrient flows, removal of litter & fallen trees, harvesting, burning 12 Infiltration Evidence of impeded drainage, surface hardening, compaction, ponding 13 Management inputs that modify natural processes Evidence of mowing, fertilizing, irrigation, biomass removal through harvesting, browsing, grazing 14 Water extraction, diversion, impoundment TERRESTRIAL PATTERN ASPECTS 15 Vegetation patterns - patches, mosaics & connectivity Evidence of water take from rivers, dams, diversions; water impoundment, damming, weirs Evidence of vegetation clearance, fragmentation, disconnection, geometric patterns 16 Hydrological patterns Evidence of modified river flow patterns for irrigation take, e.g. changes to braided river patterns, intermittent flow 17 Erosional / depositional patterns Interruptions to tidal flows, sediment transfer, excavation of dunes, accelerated erosion 18 Drainage patterns Changes to watercourses, straightening, canalisation, artificial waterbodies, dams, lakes etc. 13(2)(d) 13(2)(c), 13(2)(c), 13(2)(c), 13(2)(d), 13(2)(c), 13(2)(d) ASSESSED LEVEL OF NATURAL CHARACTER VERY HIGH HIGH MODERATE-HIGH MODERATE MODERATE-LOW LOW VERY LOW 17