State of the environment monitoring
Abstract
State of the environment (SOE) monitoring and reporting can provide early warning of environmental problems and illustrate where environmental management has been effective. It allows councils and communities to access information on the state or condition of the environment and key environmental pressures, and to assess possible and actual responses. See the framework model for core national environmental indicators. State of the environment monitoring informs decision-making by helping determine the need for further action, and by indicating broadly where policies and actions can be improved or may need review.
Section 35(2)(a) of the Resource Management Act requires local authorities to monitor the state of the whole or any part of the environment to the extent that is appropriate to enable the local authority to effectively carry out its functions under the Resource Management Act.
An integrated approach to monitoring under both the Local Government Act 2002 (LGA) and the Resource Management Act is important and is discussed further in this guidance material.
Guidance note
Purpose of state of the environment monitoring and reporting
Why monitor and report on the state of the environment?
Part II of the Resource Management Act requires councils to promote the sustainable management of natural and physical resources. State of the environment monitoring and reporting can help determine whether these requirements are being met. State of the environment monitoring helps with policy development and informs decision-makers of the consequences of actions and changes in the environment. It involves setting targets, monitoring, analysing and interpreting data, then reporting findings, and continuing this process over time. This is similar to the ‘plan – do – monitor – review’ cycle described in the Getting started guidance note.
Monitoring the state of the environment cycle figure
Text description of figure:
The diagram shows the cycle of steps involved in monitoring the state of the environment. The first step is to report on the state of the environment. This feeds the development of action plans and the setting of targets. The plans are implemented and monitored. Analysis and interpretation of the data gathered through monitoring, and review of the implementation of action plans, feeds into the next report, bringing the cycle full circle.
The purpose of state of the environment reports is to:
- compile and assess information regularly on the condition of the environment, the key pressures on it, and what has been and can be done to address pressures (the responses)
- provide information to answer basic questions, including:
- what is happening in the environment?
- why is it happening?
- where are the gaps in our knowledge?
- what are we doing about it (can we do something to make a difference)?
- has what we have done made a difference to the type or rate of environmental change?
- how do we compare (over time and space and with others)?
- help councils report on how well they are achieving their stated goals (information and input into policy and plan monitoring)
- educate people about their local environment and inspire community action. This may require links to education strategies
- provide some accountability in terms of expenditure
- develop data into useful information for decision-making
- provide information for other reporting and review.
Some important tips to remember:
- develop criteria to prioritise monitoring activities and make monitoring cost-effective eg, prioritisation table. Be focused and monitor the most important things first. This will involve establishing priorities with your key audiences
- ensure there is quality, robust data to show key trends – have a long-term perspective, a strategic approach and establish clear protocols and systems for gathering the information
- be clear about data quality and reliability and be mindful of the context within which data is collected and in which it will be used eg, what does it mean?
- do not monitor for the sake of monitoring
- integrate different types of monitoring
- new issues will emerge so be flexible
- monitor and report on key indicators
- review indicators to allow for improving performance
- ensure feedback is provided to the council (to inform policy development) and community (for environmental education)
- obtain senior management and political support and ongoing resourcing.
Scope of SOE monitoring and reporting
- Determine what drives the monitoring and reporting and what the information will be used for:
- Resource Management Act functions or broader?
- strategic planning and Long Term Council Community Plans?
- regional policy statement?
- district or regional plan?
- higher-level policy documents to report against?
- Provide information on what is happening in the environment, the key pressures and trends and include a section on responses eg, Pressure, State, Response.
- If relevant link to other information, monitoring and reporting undertaken by other agencies (eg, Statistics NZ, health agencies, other councils, Ministry for the Environment, Department of Conservation, etc).
- Collaborative reporting by local authorities within a region may work well – councils should make similar conclusions about the environment in the same area – and can be cost-effective. Develop processes for ongoing reporting, eg, regional monitoring forums.
- Ensure reporting focuses on outcomes (not just process and outputs) and links to plan implementation and effectiveness monitoring
- Consider having issue based reports for key emerging issues and link these to plans and policies
- Review resource management plans and resource consents based on the results.
Know your audience
In most cases there are several target audiences for state of the environment reports. Possible audiences may include council, staff, iwi, the general public, industry and business, environmental groups, professional associations, consultants and schools.
- Ensure your reporting meets the needs of your audience eg, if it is a councillor audience focus on what will be most useful and interesting to them and ensure that the format suits their needs.
- You may consider having a range of different reporting formats for different audiences (refer to guidance later in this note on formats).
- Include your environmental education staff in reporting as state of the environment reports can be useful education tools and environmental education staff may be able to help you.
Develop a monitoring strategy and an integrated approach
- Develop a monitoring strategy/framework to identify where state of the environment monitoring and reporting fit.
- Ensure long term financial planning/allocation for the state of the environment programme.
- Coordinate and ensure support within council.
- Ensure co-operation and coordination between agencies (eg, district and regional councils and the Ministry for the Environment).
- Rationalise where possible, eg, water quality monitoring is needed both by district and regional councils (both a health and ecology issue).
- Make the most of the data you already collect and supplementary information from different agencies. Combine useful information from existing databases.
- Aim to recognise cause and effect relationships where possible – what has changed, and how does this relate to the plan?
- Have a good project management process.
Who to involve
- Have the senior management and politicians on board (corporate commitment is important) for ongoing resourcing and action.
- Link state of the environment to issues that are relevant to council functions.
- Show how state of the environment information is useful.
- Demonstrate the benefits of being a data provider and manager.
- Have an integrated team from throughout council – include planners, scientists, managers, compliance and resource consent staff, IT and data management people, communications and education staff, as appropriate.
- Consider using a neutral editor.
- Consider having a data review process as quality of data is critical, particularly scientific data.
- Consider community viewpoints on key issues and whether to incorporate stakeholder/public perceptions ie, satisfaction surveys.
- Establish links between the monitoring programmes of other agencies and encourage partnership and integration (for example, with regional councils, territorial local authorities, Ministry for the Environment, Department of Conservation, Statistics NZ). Where appropriate develop partnership agreements and memorandums of understanding such as the Environment Southland partnership agreement.
- Work with other councils on monitoring methodologies for similar issues, eg, amenity issues.
SOE reporting formats
Written reports have been used extensively for state of the environment reporting in New Zealand and overseas (although systematic and ongoing reporting involves more than the production of written reports). Recent approaches to reporting have included interactive, multimedia formats eg, web based reporting by Environment Waikato and Matamata-Piako District Council.
It is important to determine who the audience or audiences is/are for reporting and how best to communicate with them.
Some suggestions for reporting formats
- Reflect the audience’s needs and the report’s purpose in its style and format and consider using a variety of formats for different purposes.
- Keep things simple.
- Use relevant real life examples to bring issues alive.
- Communicate visually (and attractively) where possible – people like colour, maps, pictures, graphs and diagrams.
- Write for a non-technical audience, especially if preparing a hardcopy comprehensive written report.
- Think about different ways of presenting information. Ideally have a series of reporting formats and products, for instance:
- three- to five-yearly comprehensive written report
- summary reports
- annual update report
- report cards
- issues-based reports
- resource user reports
- web reporting (to provide greater use of links and to reach a wide audience)
- pamphlets, flyers and newsletters.
Best practice examples
The following examples of council state of the environment monitoring and reporting include information on the key themes or topics covered and indicators developed.
If you would like to view council state of the environment reports electronically, see the environmental monitoring report links.
Other monitoring and reporting examples compiled by councils and various other agencies may also be of relevance for Resource Management Act state of the environment monitoring and reporting eg, monitoring strategies and other monitoring examples.
The following examples illustrate best practice in particular aspects of state of the environment monitoring, as described in the guidance note.
State of the Environment Monitoring: Environment Waikato (PDF 115 KB)
Published by Environment Waikato - June 2000
This template provides information on the State of the Environment report titled 'Waikato State of the Environment Report.'
State of the Environment Monitoring: Manukau City Council (PDF 63 KB)
Published by Manukau City Council - June 1999
This template provides information on Manukau City Council's State of the Environment Report 1999.
State of the Environment Monitoring: Rotorua District Council (PDF 62 KB)
Published by Rotorua District Council - June 2002
This template provides information on the State of the Environment Report titled 'Tracking Together' (2002) available at www.rdc.govt.nz/about+our+council/publications/soe+report.asp
State of the Environment Monitoring: Taranaki Regional Council (PDF 69 KB)
Published by Taranaki Regional Council - June 2003
This template provides information on the State of the Environment Report titled 'Taranaki - Our Place Our Future: Report on the State of the Environment of the Taranaki Region 2003'.
State of the Environment Monitoring: Tasman District Council (PDF 70 KB)
Published by Tasman District Council - June 2000
This template provides information on the Tasman District Council State of the Environment Report 2000. A summary of this report is available at www.tdc.govt.nz.
State of the Environment Monitoring: Waikato District Council (PDF 66 KB)
Published by Waikato District Council - June 2000
This template provides information on the report titled 'Our Place - A Profile' (2000). This report is not available from the website.
State of the Environment: Environment Bay of Plenty (PDF 23 KB)
Published by Environment Bay of Plenty - 2004
This template provides information on the State of the Environment report titled 'Bay Trends - Report on the State of Plenty Environment 2001'. This report is available from www.envbop.govt.nz
State of the Environment (SOE) Report Template - Horizons.mw (PDF 16 KB)
Published by Horizons.mw - 1999
This template provides information on the State of the Environment report titled ‘Measures of a Changing Landscape - State of the Environment Report Manawatu-Wanganui Region 1999’. To be read in conjunction with the Monitoring and Reporting One-Stop-Shop guidance note on the Quality Planning website.
State of the Environment Monitoring: Nelson City Council (PDF 92 KB)
Published by Nelson City Council - June 2003
This template provides information on five State of the Environment reports for Nelson.
State of the Environment Tauranga 2004 'Our City - Our Environment: Tatou taone - tatou taiao’ (PDF 14 KB)
Published by Tauranga City Council - 2004
This template provides information on the State of the Environment report titled ‘Our City - Our Environment: Tatou taone - tatou taiao’ (2004). To be read in conjunction with the Monitoring and Reporting One-Stop-Shop guidance note on the Quality Planning website.
RMA provisions
Section 35 of the Resource Management Act specifies the duty to gather information, monitor and keep records. In particular section 35(2)(a) requires every local authority to monitor ‘the state of the whole or any part of the environment of its region or district to the extent that is appropriate to enable the local authority to effectively carry out its functions under this Act...’
Although there is a requirement to gather information and keep records, there is no legal requirement to produce a written state of the environment report.
Under section 35(2A) local authorities are required to prepare a report at least every five years on the results of their monitoring under section 35(2)(b) for policy and plan efficiency and effectiveness. This may be in the form of an integrated policy/plan and state of the environment report.
Section 35(3) requires every local authority to keep reasonably available at its principal office, information which is relevant to the administration of policy statements and plans, the monitoring of resource consents, and current issues relating to the environment in the area, to enable the public:
- to be better informed of their duties and of the functions, powers and duties of the local authority
- to participate effectively under the Act.
The Local Government Act 2002
The Local Government Act (LGA) also requires monitoring. Under the Local Government Act, local authorities must prepare Long Term Council Community Plans (LTCCPs). LTCCPs must state how the local authority will monitor and report on the community’s progress towards achieving the community outcomes (including environmental outcomes) not less that once every three years.
Case law
No major case law exists on state of the environment reporting (despite many cases mentioning monitoring).
Related guidance notes
The following guidance notes are related:
Relevant publications
Environment New Zealand 2007
Published by Ministry for the Environment - December 2007.
Environment New Zealand 2007 takes the pulse of the physical well-being of New Zealand’s land, water, air, plants and animals, as well as measuring the impact of transport, energy, waste, and our consumption on the environment. It uses national environmental indicators to present information on key aspects of the New Zealand environment and track how these have changed over time. Where possible, the report shows changes since 1997 when the first state of the environment report - The State of New Zealand’s Environment - was produced.
The State of New Zealand's Environment
Published by Ministry for the Environment - 1997
A report to the nation on the state of NZ's natural environment. Provides contextual information for understanding the interaction between NZ society and the natural environment.
Public perceptions of New Zealand’s environment
Published by Lincoln University.
Biennial surveys have been carried out by Lincoln University (2000, 2002, 2004, 2006) on New Zealand residents´ views about the state of the New Zealand environment. Each biennial survey uses the Pressure-State-Response framework to assess resources such as air quality, native plants and animals, native forest and bush, soils, beaches and coastal waters, marine fisheries, marine reserves, freshwaters, national parks, wetlands, urban environments, and the natural environment compared to other developed nations.
Review of previously conducted surveys on the public’s understanding of environmental issues (PDF 257KB)
Published by the Sustainable Management Fund – January 2001.
This is a report prepared for the Sustainable Management Fund and assesses the public’s understanding of environmental issues.
Core Environmental Indicators for Reporting on the State of the Environment
Published by Australia New Zealand Environmental Conservation Council – January 2000.
This report presents a core set of environmental indicators for reporting on the state of the environment. Ministers in the Australia New Zealand Environment and Conservation Council endorsed these indicators in December 1999. The indicators cover: the atmosphere, biodiversity, the land, inland waters, estuaries and the sea, and human settlements. Indicators for cultural heritage are under development.
Selected City and District Council State of the Environment Monitoring and Indicators (PDF 302 KB)
Published by Ministry for the Environment – August 1998.
The purpose of this study was to complete a case study on selected Territorial Local Authority (TLA) state of the environment monitoring and links to the EPI, identify key environmental issues at the TLA level and to recommend priority areas. The study has highlighted the lack of monitoring strategies within some TLAs and the lack of a clear methodology and integration of all forms of monitoring within the TLAs.
Monitoring the State of the Environment: Regional Perspective (PDF 1 MB)
Published by New Zealand Planning Institute - January 1997
Discusses section 35 of the RMA, which requires that local authorities must implement soundly based methods to monitor their resource management responsibilities.
State of the Environment Monitoring (PDF 1 MB)
Published by New Zealand Planning Institute - January 1997
This paper is a discussion on developing an SER monitoring programme for territorial authorities.
State of Environment Reporting: Benefits to NZ Authorities (PDF 2 MB)
Published by New Zealand Planning Institute - February 1996
The paper outlines the approach to section 35 of the RMA taken by Marlborough District Council, discusses the benefits of its approach and highlights some of the key lessons learnt.
One Council's Experience with SER (PDF 226 KB)
Published by New Zealand Planning Institute - December 1995
Describes Palmerston North City Council's production of a State of the Environment Report. This article details why they produced a SER, how they produced it and some of the problems encountered.
RMA Survey of Local Authorities
Published by the Ministry for the Environment.
Every two years, the Ministry for the Environment carries out a survey of resource management processes in local authorities.
Various publications to do with development of indicators are also available.
Relevant websites
Current challenges in practice
- Define the audience and report to them
Know your audience and use information and formats appropriate to their needs and level of understanding. There has been a tendency to produce very comprehensive (thick) state of the environment reports, filled with facts and figures. These reports have their place (as a stock take of available information and to establish ‘benchmarks’) but are largely starting to be replaced by more interactive, audience focused outputs, such as issues based reports, and web based reporting, which can be updated more easily. - Ensure good project management and process
Active project management of state of the environment monitoring and reporting is important and a challenge in practice. This includes budgets, staff time, risk assessment, good communications planning, etc. It is often underestimated how long good monitoring and reporting can take and who needs to be involved and yet these things can be planned for with good project management. - Determining cause and effect, attribution and analysis of information
How can the causes of environmental change be ascribed to either management efforts, community input, or just natural processes? It is challenging to assign causal links to environmental outcomes for many reasons, including: - environmental management is complex;
- there is often a long time lag between an environmental intervention and a result;
- many other factors affect behavioural change and environmental outcomes.
- A challenge for practitioners is the shortfall of good environmental monitoring and evaluation analysis to provide a basis for determining such links.
- Integrate and co-operate with other relevant agencies
Most agree this is a good idea but in practice it takes time and is challenging. Different organisations have slightly different monitoring and reporting needs so there may be some tensions between the results each agency wants to achieve. Collaborative approaches take a lot of time and energy but can produce very good results and are usually worth the effort. - How to fill gaps in knowledge and performance
Sometimes monitoring will reveal poor environmental results which indicate policies and plans are not working as well as expected. This is a challenge for management. The quality and integrity of data and information reported is important.
