Natural Character Assessment of the Coast Prepared for Marlborough District Council. Coastal Natural Character

Transcription

1 Natural Character Assessment of the Coast Coastal Natural Character September 2011

2 CONTENTS Background and Introduction... 1 Natural Character Evaluation... 1 Definition of Natural Character... 2 Marlborough s Coastal Environment... 5 Natural Character Values of the Coastal Environment... 5 Natural Character Assessment 6 Degree of Natural Character of Marlborough s Coastline 12 APPENDICES Appendix 1 Coastal Natural Character Maps BM C10003_13b_Natural_character_section_update_

3 Background and Introduction Marlborough District Council (MDC) engaged Boffa Miskell Ltd (BML) to review and update the natural character aspects of the Coastal Environment section of the 2009 Marlborough Landscape Study in response to the new requirements contained within the New Zealand Coastal Policy Statement (NZCPS) This Coastal Natural Character report is therefore a review and update of the first part of Section D of the 2009 study: Natural Character Evaluation and Coastal Natural Character of that study. The assessment methodology for assessing natural character has not materially changed since the 2009 study. This updated report utilises the base material prepared for the 2009 study, which appropriately assessed natural character using well-practiced and developed methodologies of the time. This updated study correlates the 2009 natural character study to the greater developed statutory guidance contained within the NZCPS 2010, where new factors, such as the natural darkness of the sky and wild and scenic values are included, as well as outlining the new concept of Outstanding Natural Character. Under the NZCPS 2010 (and as outlined further within this report), Policy 13: Preservation of natural character, greater emphasis now lies on mapping (or otherwise identifying) areas of high and Outstanding Natural Character (than did in the previous 1994 NZCPS to which the 2009 Landscape Study referenced). Policy 13.1 states: (1) To preserve the natural character of the coastal environment and to protect it from inappropriate subdivision, use, and development: (a) avoid adverse effects of activities on natural character in areas of the coastal environment with outstanding natural character; and (b) avoid significant adverse effects and avoid, remedy or mitigate other adverse effects of activities on natural character in all other areas of the coastal environment; including by: (c) assessing the natural character of the coastal environment of the region or district, by mapping or otherwise identifying at least areas of high natural character; and (d) ensuring that regional policy statements, and plans, identify areas where preserving natural character requires objectives, policies and rules, and include those provisions. Based on this, reconsideration of the indicators of natural character was assessed with particular emphasis on high and very high levels of natural character. Natural Character Evaluation As part of the evaluation stage of the Marlborough Landscape Study 2009, the study team was asked to look at natural character as it is stated under Section 6(a) of the RMA 1991 and as it was outlined within the current NZCPS at the time, which was dated Since a final draft of the Marlborough Landscape Study 2009 was issued to MDC in early 2010, a revised version of the NZCPS, dated November 2010 has been issued, which requires that high value parts of the coastal environment must now be protected from all adverse effects. It also states that all councils must give effect to these new provisions in their regional policy statements, regional plans and district plans. The methodology employed by the study team to determine the degree of natural character of Marlborough s coastal environment (including the coastal marine area), is outlined below. The evaluation of Marlborough s wetlands, lakes and rivers and their margins (i.e. the remaining obligations under Section 6a of the RMA) remain unchanged in the Landscape Study C10003_13a_Natural_Character_Update_Report_

4 It is important to note that, for practical purposes, this evaluation was conducted at a largely desk-top level. Therefore, it is only intended to provide the council with broad scale guidance with regards to the protection of those areas [expressing high degrees of natural character] from inappropriate subdivision, use, and development. Individual consent applications or plans changes that trigger natural character issues are likely to require more detailed, fine-grained natural character investigations. Exotic forestry at Fighting Bay, with Port Underwood immediately to the north Definition of Natural Character Natural character is not defined in the RMA or in the NZCPS. There are various working definitions of the concept which are broadly similar and have been used in a number of Environment Court cases. Many are variations of a working definition of natural character that was developed by a number of landscape architects and other resource management practitioners for the Ministry for the Environment (MfE). This definition has commonly been considered useful and workable. This definition, which is used to describe the natural character of all coastal and riverine/ wetland environments states: The degree or level of natural character within an area depends on: 1. The extent to which natural elements, patterns and processes occur; 2. The nature and extent of modifications to the ecosystems and landscape/seascape. The highest degree of natural character (greatest naturalness) occurs where there is least modification. The effect of different types of modification upon the natural character of an area varies with the context, and may be perceived differently by different parts of the community. Since the development of this definition, the NZCPS 2010 has come into effect which states (Policy 13) that natural character may include: (a) (b) natural elements, processes and patterns; biophysical, ecological, geological and geomorphological aspects; 2 C10003_13a_Natural_Character_Update_Report_

5 (c) (d) (e) (f) (g) (h) 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; experiential attributes, including the sounds and smell of the sea; and their context or setting. The Study Team have reviewed the current understanding of natural character in light of the changes to the NZCPS 2010 and taking into consideration the MfE definition, case law, and those definitions developed in the NZILA Best Practice Note 2010 [Best Practice Note 10.1: Landscape Assessment and Sustainable Management. 2010]. For the purposes of this assessment, the following key points have been drawn to guide the assessment process: An understanding of natural character may require the views of terrestrial and marine ecologists or other natural scientists, as well as the views of landscape planners; That natural character assessments are scale related, so that the coastal environment can be perceived as having different levels of natural character at different scales, because the level of detail that can be discerned and the dominant attributes that are displayed vary according to the scale at which they are considered. Similarly, a proposal can have different effects on natural character when the surrounding environment is considered at different scales. For the purposes of this assessment, the scale assessed is at the Regional level; That natural character occurs on a continuum and describes the expression of natural elements, patterns and processes in a landscape (or the naturalness ) where the degree of naturalness depends on; - The extent to which natural elements, patterns and processes occur; - The nature and extent of human (or cultural) modifications to the landscape, seascape and ecosystems; - That the highest degree of natural character (greatest naturalness) occurs where there is least modification; - That level s of natural character are fluid and can change over time. C10003_13a_Natural_Character_Update_Report_

6 Figure 1: Coastal Environment of Marlborough 4 C10003_13a_Natural_Character_Update_Report_

7 Marlborough s Coastal Environment The coastline of Marlborough is one of the longest in New Zealand. It can be divided into two very different types. The first type displays the fractured coastline of the Marlborough Sounds, where its slender peninsulas, islands and indented waterways provide an intricate and complex coastline, containing a diverse range of ecosystems, geology, climate and biota. The second type is the Eastern Coastline, extending from Rarangi in the north, to the Districts southern boundary on the Kaikoura coast. This second type includes the large lagoons and old stonefields of the Waiaru, and the white limestone cliffs and features further south. Marlborough s coastlines, like its landscapes, are diverse. A sheltered, indented bay in the Marlborough Sounds [left] and the White Cliffs on the East Coast [right] Natural Character Values of the Coastal Environment Some landscapes that fall within the coastal environment will have natural character values that may justify additional protection beyond that afforded to other rural and coastal landscapes. The study team will address three interconnecting issues: 1. the inland extent of the coastal environment; 2. the degree or level of natural character within that environment including its relationship with the adjacent marine area (under the RMA the seaward extent of the coastal environment is the 12 nautical mile limit from MHWS); and 3. the spatial extent of any specific preservation or protection sector necessary. The RMA 1991 does not define coastal environment. Policy 1 of the NZCPS 2010; Extent and Characteristics of the Coastal Environment, recognises that the extent and characteristics of the coastal environment will vary from location to location and identifies nine characteristics which may be included in the coastal environment In the context of this assessment, the Coastal Environment is defined as an environment in which the coast is a significant part or element and includes: a) The coastal marine area; b) Islands within the coastal marine area; c) Areas where coastal processes, influences or qualities are significant, including coastal lakes, lagoons, tidal estuaries, salt marshes, coastal wetlands, and the margins of these; (Study Team emphasis) d) Areas at risk from coastal hazards; e) Coastal vegetation and the habitat of indigenous coastal species including migratory birds; C10003_13a_Natural_Character_Update_Report_

8 f) Elements and features that contribute to the natural character, landscape, visual qualities or amenity values; g) Items of cultural and historic heritage in the coastal marine area or on the coast; h) Inter-related coastal marine and terrestrial systems, including the intertidal zone; and i) Physical resources and built facilities, including infrastructure, that have modified the coastal environment The seaward extent of the coastal environment extends 12 nautical miles from MHWS. The Marlborough coastline has a complex topography and will require specific assessment to determine the landward extent of the coastal environment. A rule of thumb is that it extends to the first ridgeline inland of the coast, although for flat areas, the characteristics are determined more by landscape character. Outstanding Natural Character Under RMA s6(a) it is necessary to determine the existing attributes and extent of natural character and assess how this will be affected by a specific proposal. This approach is also required under the NZCPS However, Policy 13 of the NZCPS also specifically requires that an evaluation is made as to whether the natural character in the existing coastal environment is outstanding or not (in order to determine whether Policy 13a or 13b is triggered): (a) avoid adverse effects of activities on natural character in areas of the coastal environment with outstanding natural character; and (b) avoid significant adverse effects and avoid, remedy or mitigate other adverse effects of activities on natural character in all other areas of the coastal environment; An area with outstanding natural character may be an area within the coastal environment that is considered to have very high levels of natural character. Natural Character Assessment The study team concluded that the entire Marlborough Sounds fall within the coastal environment, while the coastal environment along Marlborough s eastern coastline had to be mapped area by area. Coastal Environment of Lochmara Bay, Queen Charlotte Sound 6 C10003_13a_Natural_Character_Update_Report_

9 The Marlborough Sounds context is quite unlike any other landform in New Zealand, due to its extensive coastline and varied topography. As a result of this variably, the Sounds retain a diverse range of biophysical and ecological characteristics, all of which posses strong maritime influences. Due to this, it was considered difficult by the Study Team to conceive of a location within the Sounds where the coast is not one of the dominating factors. Consequently, it was agreed, that the entire Marlborough Sounds fall within the coastal environment. The inland southern extent of the Region has been mapped and is illustrated on the maps within Appendix 1. The Coastal Environment, as interpreted under RMA Section 6a and Policy 1 of the 2010 NZCPS essentially contains two zones: Zone A This zone includes the CMA and the Active coastal interface. The CMA includes the sea, rocks and part of the beach up to the mean high water spring (MHWS) mark and extends out to sea for twelve nautical miles. The Active Coastal interface is where the sea is the dominant element, and the primary influence on landform, vegetation, and perception. This often slender zone varies in width, but generally extends inland of the MHWS mark and comprises the inter-tidal area above MHWS, beaches, lagoons, rocky peninsulas and coastal cliffs. Zone B The Coastal Dominance Zone includes the land up to the first coastal ridge or escarpment (with the width varying generally between 100m to 500m from the back of the beach within flat to gently undulating environments, although will extend further inland where there the landscape become more complex, such as the Marlborough Sounds, where this zone may extend inland for several kilometres). This zone is where coastal processes are dominant or significant and may include inland cliffs, settled dune lands and coastal forests. Beyond the Coastal Environment, is a third zone, where the land is still influenced, but not dominated by coastal processes: Zone C Coastal Context Zone. This zone is where coastal processes beyond the Coastal Environment have an influencing presence on the landscape and would include back-dunes, largely developed coastal plains, estuarine land and generally extends some 1.5 to 2km inland (or where coastal influences have diminished). As noted, the coastal environment varies, due to landform, landuse and a number of other influencing factors. Representations of the range of coastal environments in Marlborough are illustrated on the following diagrams: 1. Coastal environment of Wharanui. This is located at the southernmost point of the Region, south of the Waima River; 2. Coastal environment of the East Coast. This diagram represents the coastal environment north-east of Ward, at the Limestone Ridge; 3. Coastal environment at the White Bluffs, immediately south of the Wairau Lagoons; 4. Coastal environment at the Wairau Lagoons; 5. Coastal environment at the stonefields of Rarangi; and 6. Coastal environment at Te Mahia, Kenepuru Sound C10003_13a_Natural_Character_Update_Report_

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11 The Coastal Environment close to the Waima River mouth As stated earlier, this updated report is concentrated on the assessment of the degree of natural character as described within the coastal environment. The study team has not addressed natural character beyond the boundaries of the coastal environment (Zone C) and has excluded urban areas such as towns from the assessment, as these areas exhibit decreased natural character, or very low levels of natural character and fall outside of Policy 13.1.c of the NZCPS 2010 where coastal processes, influences or qualities are significant. Aerial photographs, Google Earth and the Land Cover Data Base (LCBD) were the principal sources of information referred to for this study. Digital GIS information from MDC was also made available to the study team regarding the location of approved resource consents (e.g. wharfs, jetties etc.) as of May MDC also provided the study team with GIS information relating to the location of marine farms. Degree of Natural Character Matrix The degree or level of natural character is ranked on a five-point scale: Very High (lowest amount of modification), High, Moderate, Low and Very Low (greatest amount of modification). In accordance with the requirement outlined within Policy 13 of the 2010 NZCPS, at least areas of high and very high natural character have been mapped. Areas of Outstanding Natural Character have also been considered and where appropriate, these have been mapped. The overall natural character for each coastal sector was obtained by amalgamating the values assigned to each of the seven components assessed. The high and very high degrees of natural character of the coastal environment are illustrated on the adjacent maps and have been mapped according to the following criteria: Table 1: Coastal Environment Assessment Matrix Degree of Natural Character Waterscape Landform Vegetation/ Habitats Biophysical diversity Natural Systems & Processes Structures/ Settlement Perceptual/ experiential Very High High Moderate Low Very Low C10003_13a_Natural_Character_Update_Report_

12 The seven components of natural character consider different aspects of the natural patterns, process and elements of the coastal environment as well as the degree of modification present: Waterscape Includes the water surface and water body of the CMA and estuaries below MHWS. Considers the degree of modification such as changed water courses, earthworks, presence of built structures, (moorings, jetties, marine farms, and navigation structures) but excludes benthic ecology and underwater processes. Landform Physical modifications to natural landform above MHWS (other than built structures), such as road cuts, earthworks, reclamation works Vegetation/ Habitat Composition, distribution, and condition including proportion of indigenous/exotic species. Biophysical diversity Estuaries, wetlands and terrestrial areas. Expression/appearance of natural processes ranging from dominant to non-existent. Diversity of species and habitat are also important. Natural Systems & Processes Degree of activeness of tide and wind and terrestrial coastal formation processes. Structures and settlements Land based structures only to avoid duplication with waterscape component; includes buildings, infrastructure, such as pylons (transmission towers), turbines, masts, seawalls, jetties, marinas. Perceptual & experiential How natural is the coastal environment experience in seeing/feeling/ and perceiving. This includes aromas, aesthetics, auditory, sense of wildness, remoteness, isolation. Includes ephemeral human activity, such as recreation, commercial activities, fishing, marine farm activity, diving, vehicles, chainsaws, horses, people, dogs, boats and jet skis for example. Approach to Mapping While the study team agreed that the entire Marlborough Sounds were contained within the coastal environment (and therefore assessed on that basis), the degree of natural character for a sector of coast is graphically represented as a single coloured line. It was considered the most graphically-friendly way of illustrating the assessment findings. The degree of natural character of any land beyond would relate to the nearest coloured natural character line. Where differently coloured natural character lines occur, all would need to be considered. Again, only areas of High, Very High and Outstanding natural character are mapped. Specific areas would require more detailed investigations. The landward extent of the coastal environment has generally been mapped using the first ridgeline to the coast rule-of-thumb, and where coastal processes, influences or qualities are significant (NZCPS 2010). The Study Team discovered that due to the complexity and variability of Marlborough s Coastlines, this rule-ofthumb was not always sufficient, and other techniques, such as land cover, land use and other characteristics were assessed to determine the inland extent. The Seaward line extends to the 12 nautical mile limit. 10 C10003_13a_Natural_Character_Update_Report_

13 Identification of Areas with Outstanding Natural Character As stated earlier, Policy 13.1.a of the NZCPS 2010 states: (a) avoid adverse effects of activities on natural character in areas of the coastal environment with outstanding natural character; (Study Team emphasis) Policy 13.1.c of the NZCPS continues to state that: (c) assessing the natural character of the coastal environment of the region or district, by mapping or otherwise identifying at least areas of high natural character This updated natural character assessment has used five levels of natural character; including high and very high. It is important to note that the very high ranking does not equate to outstanding. The following definitions were established and agreed at a workshop of senior Boffa Miskell Landscape Architects in 2011: Outstanding is a comparative evaluative term meaning; to stand out, exceptional, pre-eminent, clearly superior to others in the same group or category. Outstanding Natural Character: The coastal environment may be outstanding where it has very high levels of natural character. It was determined at the Boffa Miskell workshop that outstanding natural character is separately assessed. An assessment to establish whether a coastal sector contains outstanding natural character is undertaken only when all or part of the coastal environment is initially assessed as containing very high levels of natural character. For a coastal sector retaining very high levels of natural character to be considered outstanding, it must exhibit a combination of indigenous elements, patterns and processes that are exceptional in their intactness, integrity and lack of built structures and other modifications compared to other areas in the Marlborough Sounds. For example, an assessment on the sectors integrity would include sufficient elements or groups of elements that express its outstanding value at a Regional scale, as well as being of suitable size to ensure that the sector contains complete representation of the indigenous features, elements and processes which convey its significance. It is recognised that no area is totally pristine; however, a coastal sector would meet the conditions of integrity if it includes a certain amount of natural variation with unmodified land and sea patterns, elements and processes whilst retaining a very high level of indigenousness. Based on this assessment, a number of areas within the Marlborough area are considered by the Study Team to exhibit Outstanding Natural Character. These areas are mapped within Appendix1 and outlined within the following tables. C10003_13a_Natural_Character_Update_Report_

14 Degree of Natural Character of Marlborough s Coastline As a sound assessment approach, the Marlborough Region was divided into areas, of varying size, and assessed for its degree of natural character using the criteria identified above. This assisted the Study Team manage the task of mapping the Region comprehensively, moving on from one area to the next in a logical way. The Study Team assessed the natural character of the Region at a scale of 1:50,000, which allowed for an appropriate level of detail to be considered for each area. Each area contained a combination of features that made it distinctive from other areas, and assisted in comparing one area to another. Typically the areas were small, i.e. catchment based for the sounds (i.e. Tennyson Inlet), or island based (i.e. D Urville) or land typing based (for the East Coast). Each area would not necessarily exhibit the same degree of natural character. Table 2 below outlines in summary form the results of the assessment, with the mapped areas contained within Appendix 1. Table 2: Natural Character Assessment of Marlborough Natural Character Very High High Description No physical modification to the waterscape; Predominantly indigenous vegetation (bush or tussock cover grassland); Dynamic processes largely or entirely intact; Will contain naturally uncommon or nationally threatened habitats or environments; Indigenous species dominate; Absence of, or occasional isolated structure (e.g. jetty) where it is completely subservient to the surrounding landscape; No apparent human activity; Coastal remoteness, wilderness/ isolation qualities. Infrequent but with some small scale waterscape modifications such as aquaculture, low density moorings, low level transient activity on water; Original vegetation not intact, but good quality examples of indigenous vegetation or habitats; Likely to contain a mosaic of land cover but primarily indigenous (e.g.: regenerating kanuka/ manuka, podocarp forests) Infrequent and/ or small scale structures such as occasional farm tracks, individual low-key campsites and huts and infrequent house sites; Dynamic processes generally intact, with some areas of human influence. Occasional vehicle/ boat, but infrequent. Natural Typical Areas of Marlborough* Outer small Islands within Cook Strait, including the Chetwode Islands; Majority of D Urville Island; Parts of Tennyson Inlet; North western coastline entrance to Queen Charlotte Sound, including Ship Cove (Meretoto); Wairau Lagoons. Undeveloped headlands and coves of Queen Charlotte Sound; South-eastern most coastline of the Marlborough Sounds; Majority of Forsyth Island; Southern parts of Pelorus Sound; Southern limestone coastline close to Ward. 12 C10003_13a_Natural_Character_Update_Report_

15 coastal sounds predominate. Retains a sense of remoteness. Moderate Partially modified coast with occasional/ individual marine farm, coastal tracks, and coastal exotic trees. Extensive, somewhat fragmented landscape with open pasture land for low-intensive grazing with limited fencing and/ or shelterbelts and limited human structures, including small farms and farm tracks; Occasional housing surrounded by mix of exotic but primarily indigenous bush with moderate wildlife values; Natural patterns still significant; Dynamic processes modified by increasing levels of physical, biological or chemical contamination. Port Ligar & parts of Waihinau Bay; Majority of Port Underwood; Remainder of Queen Charlotte Sound; Northern parts of Bay of Many Coves; Southern coastline of Tawhitinui Reach; Majority of Wairau and Awatere Valley coastlines. Low Occasional to frequent structures including jetties, slipways, boatsheds, small wharves, large number of marine farms; Modified dunes; Patterns resulting from human intervention dominate the area; Intensively farmed agricultural land/ large scale commercial or plantation forestry with obvious unnatural patterns; Occasional to frequent housing connected by main coastal road(s) surrounded by primarily modified land cover/ land use with low wildlife values. Lake Grassmere; Modified parts of Rarangi Stonefields; Crail Bay; Anakoha Bay; Parts of Admiralty Bay. Very Low Modified coast, industrial buildings on coast, structures associated with engineered coastal edge features such as major piers, walkways, coastal defence, marinas and ports. If vegetation evident, overwhelmingly exotic; Few natural processes apparent; Extensive modification, including urban areas, marinas, ports and harbours; Significant numbers of people. Picton waterfront; Shakespeare Bay; Waikawa marina; Havelock marina. *Note: These are only typical areas described. There are other areas which display similar levels of natural character. Those in the Very High and High categories have been mapped. C10003_13a_Natural_Character_Update_Report_

16 Areas containing Outstanding Natural Character Outstanding Natural Character Description Areas of Marlborough Display Outstanding Natural Character Containing a combination of indigenous elements, patterns and processes that are exceptional in their intactness, integrity and lack of built structures and other modifications compared to other areas in the Marlborough Sounds. Outer small Islands within Cook Strait, including the Chetwode Islands; Parts of Tennyson Inlet; Parts of Port Hardy and Greville Harbour, D Urville Island; North western coastline entrance to Queen Charlotte Sound, including Ship Cove (Meretoto); Wairau Lagoons. 14 C10003_13a_Natural_Character_Update_Report_

17 Appendix 1 Coastal Natural Character Maps BM C10003_13b_Natural_character_section_update_

18 0 A3 7.5km DRAFT Legend District Boundary Coastal Natural Character 2011 Value Outstanding Very High High Inland Extent

19 0 A3 7.5km DRAFT Legend District Boundary Coastal Natural Character 2011 Value Outstanding Very High High Inland Extent