Everyone values freshwater and the role it plays in our lives.
While we have that in common, our different backgrounds mean we may value freshwater for different reasons. Horizons needs to identify those values so we know how to provide for the environmental, cultural, social and economic well-being of everyone in our region. Knowing those values will help us to identify key freshwater areas to protect and restore. It's also a key component of central government’s Essential Freshwater Package.
Please find below the draft regional values for the revised One Plan. For each of the draft values, we have also included information on the reason for its selection along with which proposed waterbodies the value is to be considered relevant. Some work around proposed waterbodies is still under development.
Some values apply across the whole region and others to specific areas. Where a value applies to a specific location, we have mapped those values on an interactive tool.
If you have any feedback, share your thoughts here.
In addition to the values outlined below, Council must also recognise and provide for Tupua te Kawa (s13 Te Awa Tupua (Whanganui River Claims Settlement) Act 2017), and Ngā Toka Tupua o Te Waiū-o-Te-Ika (s108 Ngāti Rangi Claims Settlement Act 2019).
NPS-FM compulsory values
The Government has identified four compulsory values, which we must include in the One Plan
Ecosystem health
As set out in NPS-FM Appendix 1A:
This refers to the extent to which an FMU or part of an FMU supports an ecosystem appropriate to the type of water body (for example, river, lake, wetland, or aquifer).
There are 5 biophysical components that contribute to freshwater ecosystem health, and it is necessary that all of them are managed.
They are:
- Water quality – the physical and chemical measures of the water, such as temperature, dissolved oxygen, pH, suspended sediment, nutrients and toxicants
- Water quantity – the extent and variability in the level or flow of water
- Habitat – the physical form, structure, and extent of the water body, its bed, banks and margins; its riparian vegetation; and its connections to the floodplain and to groundwater
- Aquatic life – the abundance and diversity of biota including microbes, invertebrates, plants, fish and birds
- Ecological processes – the interactions among biota and their physical and chemical environment such as primary production, decomposition, nutrient cycling and trophic connectivity.
In a healthy freshwater ecosystem, all 5 biophysical components are suitable to sustain the indigenous aquatic life expected in the absence of human disturbance or alteration (before providing for other values).
This is an Appendix 1A value that must apply to every FMU. This value is analogous to the existing life-supporting capacity value in Schedule B.
This has been identified as a Māori freshwater value by Ngāti Kauwhata, Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
The life-supporting capacity value applies to every natural waterbody in the region, with eight river system categories based on the underlying topography and geology. We have retained this for the ecosystem health value.
In addition, we have created new ecosystem health categories for groundwater, wetlands and lakes. [work still in progress]
Human contact
As set out in NPS-FM Appendix 1A:
This refers to the extent to which an FMU or part of an FMU supports people being able to connect with the water through a range of activities such as swimming, waka, boating, fishing, mahinga kai, and water skiing, in a range of different flows or levels.
Matters to take into account include pathogens, water clarity, deposited sediment, plant growth (from macrophytes to periphyton to phytoplankton), cyanobacteria, other toxicants, and litter.
This is an Appendix 1A value that must apply to every FMU, and Contact Recreation is a current Schedule B value.
This has been identified as a Māori freshwater value by Ngāti Tūpoho, Rangitāne o Manawatū, Ngāti Kauwhata, Muaūpoko, Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
Contact recreation applies to all natural water bodies and their beds in SCHED2. We propose this is retained for the human contact value.
Threatened species
As set out in NPS-FM Appendix 1A:
This refers to the extent to which an FMU or part of an FMU that supports a population of
threatened species has the critical habitats and conditions necessary to support the presence, abundance, survival, and recovery of the threatened species.
All the components of ecosystem health must be managed, as well as (if appropriate) specialised habitat or conditions needed for only part of the life cycle of the threatened species.
This is an Appendix 1A value that must apply to every FMU. This value is somewhat analogous to the exiting sites of significance – aquatic and sites of significance - riparian values in Schedule B.
[under development]
Mahinga kai
As set out in NPS-FM Appendix 1A:
Mahinga kai – kai is safe to harvest and eat.
Mahinga kai generally refers to freshwater species that have traditionally been used as food, tools, or other resources. It also refers to the places those species are found and to the act of catching or harvesting them.
Mahinga kai provide food for the people of the rohe and these sites give an indication of the overall health of the water. For this value, kai would be safe to harvest and eat.
Transfer of knowledge is able to occur about the preparation, storage and cooking of kai. In FMUs or parts of FMUs that are used for providing mahinga kai, the desired species are plentiful enough for long-term harvest and the range of desired species is present across all life stages.
Mahinga kai – Kei te ora te mauri (the mauri of the place is intact).
In FMUs or parts of FMUs that are valued for providing mahinga kai, customary resources are available for use, customary practices are able to be exercised to the extent desired, and tikanga and preferred methods are able to be practised.
This is an Appendix 1A value that must apply to every FMU.
This has been identified as a Māori freshwater value by Ngāti Tūpoho, Rangitāne o Manawatū, Ngāti Kauwhata, Muaūpoko, Ngāti Maniapoto, Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
To be developed with mana whenua. In the interim, we propose applying this value to all natural water bodies.
NPS-FM other values
The Government has also identified nine other values which Horizons must consider. After our community and stakeholder engagement, we believe all of these values are relevant to the Manawatū-Whanganui Region.
Natural form and character
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU has particular natural qualities that people value. Natural qualities may include exceptional, natural, or iconic aesthetic features.
Matters contributing to the natural form and character of an FMU are its biological, visual and physical characteristics that are valued by the community, including:
a) its biophysical, ecological, geological, geomorphological and morphological aspects
b) the natural movement of water and sediment including hydrological and fluvial processes
c) the natural location of a water body and course of a river
d) the relative dominance of indigenous flora and fauna
e) the presence of culturally significant species
f) the colour of the water
g) the clarity of the water.
This is an Appendix 1B value which Council must consider. While many of our waterbodies have been modified, they generally retain some degree of naturalness, which is valued by our region’s communities. This value is somewhat analogous to the existing aesthetics value in Schedule B.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti, Ngai te Ohuake, Ngāti Kauwhata and Ngāti Maniapoto.
All natural waterbodies.
Drinking water supply
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU can meet people’s drinking water needs. Water quality and quantity is sufficient for water to be taken and used for drinking water supply.
Matters affecting the suitability of water for drinking include:
a) physical, chemical, and microbiological contamination (for example, bacteria and cyanotoxins, viruses, protozoa and other pathogens)
b) any other contaminants identified in drinking water standards issued under the Health Act 1956 or any other legislation
c) the effects of contamination on drinking water treatment processes and the safety of drinking water, and its aesthetic value (that is, appearance, taste, and smell).
This is an Appendix 1B value which Council must consider, and Water Supply is a current Schedule B value. Water supply is one of the 11 management purposes set out in the RMA Schedule 3, and is essential to the health needs people.
This has been identified as a Māori freshwater value by Ngāti Tūpoho, Rangitāne o Manawatū, Ngāti Kauwhata, Muaūpoko, Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
All currently identified Source Protection Zones as mapped by Pattle Delmore Partners Ltd1. Where source protections zones are not mapped, value is unmapped and applies to water take catchments above a registered drinking water supply, as defined by the National Environmental Standard for Sources of Human Drinking Water (NES-DW).
We note that the proposed amendments to the NES-DW may change these zones slightly.
1 Love (2019a, 2019b). Love and Jasper (2020). Thomas (2019). Thomas and Grant (2019a, 2019b, 2019c). Thomas and Love (2019).
Wai tapu
As set out in NPS-FM Appendix 1B:
Wai tapu represent the places in an FMU or part of an FMU where rituals and ceremonies are performed, or where there is special significance to tangata whenua.
Rituals and ceremonies include, but are not limited to, tohi (baptism), karakia (prayer), waerea (protective incantation), whakatapu (placing of rāhui), whakanoa (removal of rāhui), and tuku iho (gifting of knowledge and resources to future generations).
In providing for this value, the wai tapu are free from human and animal waste, contaminants and excess sediment, with valued features and unique properties of the wai protected.
Other matters that may be important are that there is no artificial mixing of the wai tapu and identified taonga in the wai are protected.
This is an Appendix 1B value which Council must consider. Wai tapu has been identified as a Māori freshwater value by:
- Ngāti Tūpoho – Wairua, Hinengaro (teaching and learning)
- Rangitīkei-Turakina iwi – Rāhui, He wairua tō te awa
- Rangitāne o Manwatū – Wāhi tapu, Wai ora, Taunaha
- Muaūpoko – Wāhi tapu, Wai ora
- Ngāti Maniapoto – Waahi tapu
- Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake – Wai tapu
To be developed with mana whenua.
Transport and tauranga waka
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU is navigable for identified means of transport.
Transport and tauranga waka generally refers to places to launch waka and water craft, and appropriate places for waka to land (tauranga waka).
This is an Appendix 1B value which Council must consider. Our region has a number of waterbodies highly valued for recreational transport.
Tauranga waka has been identified as a Māori freshwater value by Ngāti Tūpoho, Rāngitikei-Turakina iwi, Rangitāne o Manawatū and Muaūpoko.
All water bodies assessed as having ‘intermediate’ or better recreation value by Egarr and Egarr (1981):
- Whanganui River: Whakapapa confluence to sea.
- Manganui o te Ao. Includes Makatotoe, Mangaturuturu and Orautoha streams. See E&E 46.3.4 for details.
- Retaruke River: Kaitieke Stream confluence to Whanganui River confluence
- Whangaehu River: Tangiwai Bridge to sea
- Mangawhero River: Raukawa Falls to Whangaehu confluence
- Rangitīkei River: Mangamaire Stream confluence to sea
- Moawhango River: Moawhango to confluence with Rangitīkei River
- Kawhatau River: see E&E 49.5.3 for details.
- Mangatainoka River. Unclear as flow is variable but Niraha to Manawatū confluence a likely option.
- Manawatū River: Woodville to Palmerston North
- Oroua River: from Kimbolton to confluence with Manawatū River
- Mangaore Stream : from the Mangahao to confluence
We are still giving thought to where lakes fit in this value, and whether driving around a lake on water-skis counts as transport.
The tauranga waka component of this value is being developed with mana whenua.
Fishing
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU supports fisheries of species allowed to be caught and eaten.
For FMUs or parts of FMUs valued for fishing, the numbers of fish are sufficient and suitable for human consumption. In some areas, fish abundance and diversity provide a range in species and size of fish, and algal growth, water clarity and safety are satisfactory for fishers.
Attributes will need to be specific to fish species such as salmon, trout, tuna, lamprey, or whitebait.
This is an Appendix 1B value which Council must consider, and Whitebait Migration, Trout Fishery and Trout Spawning are current Schedule B values.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
This value will be made up of three components.The current whitebait migration value. This value is framed around whitebait fishing; it is not a map of all whitebait migration pathways, only those location where whitebaiting occurred.
While Horizons does not manage the whitebait fishery (this is the responsibility of the Department of Conservation), the NPS-FM fishing value is that the FMU supports the fishery, i.e. while Horizons doesn’t manage the fishery itself, it does manage the ecosystem/FMU to support the fishery where it is so valued.
Therefore, it is appropriate to make the current whitebait migration value a component of the fishing value;
- The current trout spawning value; and
- The current trout fishing value.
Hydro-electric power generation
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU is suitable for hydro-electric power generation.
Water quality and quantity and the physical qualities of the FMU or part of the FMU, including hydraulic gradient and flow rate, can provide for hydro-electric power generation.
This is an Appendix 1B value which Council must consider. In addition, the Tongariro Scheme is named in clause 3.31 of the NPS-FM, and Council must have regard to the importance of the Scheme’s:
a) Contribution to meeting New Zealand’s greenhouse gas emission targets; and
b) Contribution to maintain the security of New Zealand’s electricity supply; and
c) Generation capacity, storage and operational flexibility.
The value is proposed to apply to the sites of all hydroelectric schemes identified in Schedule C.
Animal drinking water
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU meets the needs of farmed animals.
Water quality and quantity meets the needs of farmed animals, including whether it is palatable and safe.
This is an Appendix 1B value which Council must consider, and Stockwater is a current Schedule B value. Access to safe water for stock drinking is a basic requirement of any form of livestock farming, and the Stockwater value recognises the economic and animal welfare values of the water to the livestock farming industry.
The Stockwater value applied to all waterbodies, including artificial waterbodies, but excluding natural inland wetlands. It is proposed this be retained for the animal drinking water value.
Irrigation, cultivation and production of food and beverages
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU meets irrigation needs for any purpose.
Water quality and quantity is suitable for irrigation needs, including supporting the cultivation of food crops, the production of food from farmed animals, non-food crops such as fibre and timber, pasture, sports fields and recreational areas. Attributes will need to be specific to irrigation and food production requirements.
This is an Appendix 1B value which Council must consider, and irrigation is an existing Schedule B value.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
The current irrigation value applies to all natural waterbodies, except natural inland wetlands and except those identified as natural state, and those identified a zero allocation WMZ or WMS in Schedule C. We propose retaining this.
Commercial and industrial use
As set out in NPS-FM Appendix 1B:
The FMU or part of the FMU provides economic opportunities for people, businesses and industries.
Water quality and quantity can provide for commercial and industrial activities. Attributes will need to be specific to commercial or industrial requirements.
This is an Appendix 1B value which Council must consider, and Industrial Abstraction is an existing Schedule B value.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
The current Industrial Abstraction applies to all natural waterbodies, except those identified as natural state, and those identified a zero allocation WMZ or WMS in Schedule C. We propose retaining this.
Regional values
Horizons can also identify any other freshwater values. We are proposing the following additional values. Some of these values are already identified in the operative One Plan.
Natural state
The FMU or part of the FMU is maintained in its natural state.
There are 6 components of natural state. They are:
- The five biophysical components that contribute to freshwater ecosystem health, as described in the ecosystem health value.
- The natural form and character of the water body, as described in the natural form and character value.
In a natural state water body, all 6 components are maintained in their natural state.
Natural state is a current One Plan value, and was taken from Schedule 3 of the RMA. It seeks to recognise and protect the waterbodies currently in, or close to their natural state.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
This value currently applies to all sections of rivers that have sources in and flow in the Public Conservation Estate, with the exception of those where damming or diversion have significantly affected the natural state of the water.
Wāhi taonga/Taonga species
This refers to the extent to which an FMU or part of an FMU supports a population of taonga species and its habitat.
This has been identified as a Māori freshwater value by Rangitāne o Manawatū and Muaūpoko.
Taonga species or habitats to be identified by mana whenua. Work ongoing.
Domestic fruit and vegetable supply
The FMU or part of the FMU meets the needs of domestic fruit and vegetable suppliers2.
Water quality and quantity is suitable for irrigation and post-harvest washing of fruit and vegetable crops.
2 Domestic fruit and vegetable supply means crops grown for human consumption under the Commodity Levies (Vegetables and Fruit) Order 2019.
Domestic food supply is a current One Plan value, included by the Environment Court following mediation between Horizons Regional Council and Horticulture New Zealand.
It has been renamed to clarify its purpose and recognise that mahinga kai has traditionally made a significant contribution to domestic food supply. The definition of domestic food supply has also been renamed to domestic fruit and vegetable supply.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
We propose retaining the extent as mapped in Schedule B with one change: removing the value from where the natural state value applies (i.e. the Public Conservation Estate).
The current definition of domestic food supply references a now repealed Order in Council, we propose updating this definition to refer to the Commodity Levies (Vegetables and Fruit) Order 2019, this is the current version of Order in Council.
Spiritual association
This refers to the extent to which an FMU or part of an FMU supports people being able to form and maintain spiritual and emotional connections with the water and water bodies.
This value was identified through community engagement in 2021, and through hui with tangata whenua in 2021.
All natural waterbodies.
Whakapapa
Rangitīkei-Turakina: Our mountains, rivers and tributaries are our tīpuna (ancestors). Therefore, our role is to protect and respect them as taonga (treasure) through the provision of kaitiakitanga (guardianship) to ensure their survival.
In providing for this value, tangata whenua are afforded opportunities to reconnect with their tīpuna.
This has been identified as a Māori freshwater value by:
- Ngāti Maniapoto – Tribal creation and genealogical histories
- Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake - Whakapapa
All natural waterbodies within the Rangitīkei –Turakina FMU and the Ngāti Maniapoto rohe.
Gathering of building resources
Placeholder pending future development.
This Māori freshwater value has been identified by Ngāti Tūpoho
All natural waterbodies within the Ngāti Tūpoho rohe.
Pā/Papakāinga
Placeholder pending future development. Need clarity from relevant iwi about what they are trying to protect/provide for.
This has been identified as a Māori freshwater value by:
- Ngāti Tūpoho - positioning of pā
- Ngāti Maniapoto - papakāinga
- Rangitāne o Manawatū – pā sites
- Muaūpoko – pā sites
Need clarity from relevant iwi about what they are trying to protect/provide for.
Amenity
This refers to recreational use of streams, rivers and lakes and their margins for a number of activities such as walking, swimming, fishing, hunting, or passive use (eg. simply looking at the river from a bridge). It encompasses considerations relating to easy and safe public access to and along, and visual aspect of, the waterbody and its margins.
This is a current Schedule B value. It recognises the importance of recreational use of the rivers and their margins, by complementing a number of other recreational and cultural values. We propose this value be retained, subject to the changes in coverage below.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
We propose retaining the extent as mapped in Schedule B.
In addition, we have included waterbodies where they overlap with the public walking and cycling pathways as provided by Horowhenua District Council and Palmerston North City Council.
We have also included relevant pathways from the New Zealand Cycling Network provided by Waka Kotahi NZ Transport Agency.
Flood control and drainage
This refers to the extent to which the risks to human safety and well-being associated with
flooding and erosion are managed sustainably.
The integrity of flood and river bank erosion protection structures and drainage structures is not compromised, and flood control and drainage infrastructure can provide for human safety and well-being.
The flood and erosion control schemes protect communities and their assets from flood and erosion damage, and allow business, industry and agricultural production to continue during flood events; and protect assets, infrastructure and productive farmland from flood and erosion damage.
The value of drainage schemes lies with their contribution to the regional economy, particularly by maintaining productive farmland.
By recognising this value, Council gives a clear indication that the adverse effects of any activity on existing flood and erosion control structures will need to be avoided, remedied or mitigated.
This is a current SCHED2 value, and we recommend that it be retained, subject to the changes in coverage below.
This has been identified as a Māori freshwater value by Ngā Wairiki Ngāti Apa, Ngāti Whitikaupeaka, Ngāti Tamakōpiri, Ngāti Hauiti and Ngai te Ohuake.
All waterbodies that the value currently applies to are proposed to keep this value.
Additional reaches are proposed where new flood control and drainage activities have been established since the One Plan was notified and made operative. To be developed.
Waterfowl
The FMU or part of the FMU supports populations of waterfowl species allowed to be caught and eaten.
For FMUs or parts of FMUs valued for hunting waterfowl, the numbers of waterfowl are sufficient and suitable for human consumption.
This value was identified by a number of water-fowlers and Fish and Game through community engagement.
All natural waterbodies.
