Non-RMA techniques and tools for managing natural hazards
Long Term Council Community Plans
The Local Government Act 2002 requires local authorities to prepare Long Term Council Community Plans (LTCCPs) to describe the activities and strategic direction of the local authority over a 10-year period. LTCCPs can include descriptions of local authority activities in relation to functions of regional councils and territorial authorities including the management of natural hazards. LTCCPs can also outline desired community outcomes in respect of natural hazards that can in turn inform other plans and strategies such as RPSs, regional plans and district plans. Environment Canterbury 's LTCCP includes a specific section on natural hazards. An LTCCP is quite broad in what it can contain. It can contain maps and general information that can be used to help educate the community about local hazards. The special consultative procedures under the Local Government Act 2002 allow local authorities to identify activities and funding for the management of natural hazards. The Ministry for the Environment and the Department of Internal Affairs provide information on the community consultation processes under the Local Government Act.
Asset and infrastructure management plans
Asset and infrastructure management plans deal with the procedures and works required to meet functional requirements of assets and infrastructure. They are generally prepared by local authorities (under the Local Government Act 2002) and network utility providers and specify levels of service and performance measures for infrastructure. Asset management plans for stormwater systems can directly address flooding by setting specific levels of service for stormwater infrastructure and specifying performance measures to assess the success of these activities. Asset management plans can also serve as mechanisms for setting aside funds for future hazard mitigation.
The Auckland City Council Stormwater Asset Management Plan 2006/07 addresses flooding risks.
In some areas, climate change will lead to more frequent high intensity rainfall requiring specific responses such as higher capacity stormwater systems. See climate change resources on:
- preparing for climate change:
- climate change effects and impacts assessment:
- coastal hazards and climate change:
Building Act 2004
The Building Act 2004 prescribes the legal requirements for all buildings in New Zealand.
Section 37 of the Act allows local authorities to delay building work until a resource consent is gained. This provision can be used where development is taking place on hazard-prone land and plan rules require a resource consent.
Sections 71 to 74 of the Act relate to building consent limitations and restrictions for the construction of buildings on land subject to natural hazards.
Sections 71-74 of the Building Act 2004
Section 71: requires a building consent authority (such as the council) to refuse to grant a building consent for construction of a building, or for major alterations to a building if the land on which the building work is to be carried out is subject or is likely to be subject to one or more natural hazards, or the building work is likely to accelerate, worsen, or result in a natural hazard on that land or any other property. However, s71 provides an exception that allows the building consent to be granted if adequate provision has been made to protect the land or building work, or to restore any damage to the land or other property as a result of the building work.
Section.72: building consent authorities must grant building consent for building work on land subject to natural hazards if the building work will not accelerate, worsen, or result in a natural hazard, and it is reasonable to grant a waiver or modification of the building code in respect of the natural hazard concerned.
Section 73: provides for the insertion of a notification condition (on the title for the property) within any consent granted under s72. These conditions can relate to structural requirements for flood, wind, fire, earthquake and volcanic hazards.
Section 74: provides that where a building consent has been granted for land subject to a natural hazard, that the building consent authority must notify the Surveyor-General, the Registrar of the Maori Land Court or the Registrar-General of Land. The District Land Registrar will then include an entry on the certificate of title to the land (ie, a covenant) that building consent has been issued in respect of building on land which is subject to erosion, avulsion, alluvation, falling debris, subsidence, inundation or slippage.
The Building Code is a regulation that accompanies the Building Act 2004, and outlines the performance expectations for buildings. One method of demonstrating compliance with the Building Code is the AS/NZ 1170 Structural Design Actions standard. The standard includes loading requirements for soil, wind, earthquake, ice, and snow. The standard does not include loading requirements for land movement, volcanic activity or tsunami.
The AS/NZ 1170 and the New Zealand Building Code is currently under review by the Department of Building and Housing.
The Building Act 2004 also covers dam construction and dam safety management for large dams. This was introduced to ensure that dams are well built, that larger dams are regularly monitored, and that the potential risks to people and property are minimised. See more information on the Building Act 2004 and dam safety.
Hazard registers
A hazard register is a collection of resources that identify man-made and/or natural hazards on properties in a district and region. Some examples of hazards are flooding risk, land instability, fire risk, active faults and coastal erosion. These hazards should be recorded to ensure that people can make best use of their properties and avoid potential issues of health and safety to both people and property in the future.
Ideally, hazard registers are stored on a Geographical Information System (GIS) system, with a system in place for updating, validating, and storing the hazard information. Information for hazard registers can be obtained from a number of sources.
An important aspect of a hazard register is ensuring that hazard information from regional and district councils is included, and that the information stored is linked into other council functions, such as the provision of information in LIMs and PIMs.. This means information must be in compatible formats. A hazard register should include a disclaimer outlining the limitations of any information recorded.
The Auckland Local Authority Hazard Liaison Group has produced guidelines on hazard information management which detail sources of hazard information, and methods for information capture, quality assurance, storage and maintenance. The Hauraki District Council District Plan includes objectives, policies and methods directed at improving the Register of Hazards for the district.
Research and investigation
Hazard research and investigation increases the current state of knowledge of natural hazards. Central and local government, Crown research organisations, academic institutions and private companies are all engaged in natural hazard research and investigation. Research can:
- contribute to a better understanding of the impact of natural hazards on New Zealanders
- increase public awareness about natural hazards and their effects
- improve understanding about ways of managing natural hazard risk.
- It is important that new information obtained through research and investigation is included and collated in the hazards register as it becomes available.
Non-statutory plans and guidelines
Structure plans (see QP Guidance Note on Structure Planning) and growth strategies can provide for the integrated management an area. As part of the development of these mechanisms, areas susceptible to natural hazards can be identified and avoided before the expectation for development occurs. The Oratia Structure Plan developed by the Waitakere City Council is an example of a structure plan exercise that incorporated consideration of natural hazards (including flooding and unstable land). Most structure plans are implemented, to a large extent, by provisions in district plans.
Coastal management strategies provide the policy basis and direction for management in coastal areas. Because such strategies are non-statutory, they are able to provide direction for a wide range of council and community functions within coastal areas, including natural hazards, and for community engagement. The New Plymouth Coastal Strategy has includes specific consideration of coastal hazards.
Design guidelines can provide guidance on how to develop and design for particular natural hazards. For example, low impact design approaches can encourage recognition and development within hazard limitations for a site. The Auckland Regional Council has produced a Low Impact Design Manual for the Auckland Region.
Specific hazard strategies, mitigation and contingency plans
Specific hazard plans can be used to set out actions for a specific hazard. They are often more CDEM/operationally focussed than land use planning focussed. Specific hazard plans include risk mitigation plans, contingency plans and management plans.
Acquiring or purchasing land and the relocation of development
The acquisition, purchasing or relocation of a development due to a natural hazard risk is still very much a reactionary rather than a proactive approach in New Zealand, and is often used as a last-minute solution to a problem..
Ideally, a strategy should be in place before an event occurs, and should cover all three options if an area is at high risk from a hazardous event. Otherwise, a post-event discussion should be held to decide whether to reinstate an area (with mitigation measures), or relocate. Any decision will need to consider social, environmental and economic factors, and a full risk assessment should be completed on any new site.
S.229(a)(v) of the RMA anticipates that esplanade reserves and esplanade strips can be used for the mitigation of natural hazards. The acquiring of land adjacent to waterways can be used as a means of creating 'no-build ' buffer areas against flooding, inundation and erosion.
Community awareness, education and engagement
Community awareness, education and engagement are important factors to consider when managing risk from natural hazards. Research has shown that good general community development strategies will enhance a community 's resilience to natural disasters, by creating a more empowered and capable community.
Education can also enhance community understanding of processes related to resource management planning (for example, if educated, people may understand that they need to check for hazards on LIMs when purchasing a house). Information needs to be presented using terms and concepts that people can understand.
The Long Term Council Community Plan (LTCCP), and its associated consultation process, can collect and display information about community understanding of hazards, and requirements for future plans regarding hazard management.
Managing residual risk needs to be addressed through community engagement and development programmes as RMA planning alone cannot solve such issues.
