CULTURAL VALUES REPORT: TAKAMATUA TO TAKAPŪNEKE

Transcription

1 CULTURAL VALUES REPORT: TAKAMATUA TO TAKAPŪNEKE Prepared by Dyanna Jolly Consulting At the request of Mahaanui Kurataiao Ltd For Christchurch City Council, City Plan Team July 2009

2 Cultural Values Report: Takamatua to Takapūneke (Akaroa) July 2009 Disclaimer: The information in this report is accurate to the best of the knowledge and understanding of the Consultant. While the Consultant has exercised all reasonable skill and care in the preparation of the report, the Consultant does not accept any liability, whether direct, indirect or consequential, arising out of the provision of information in this report. Cover image: Māori Place Names of Banks Peninsula [1894]. Map held by Christchurch City Library. File Reference D y a n n a J o l l y C o n s u l t i n g R D 2 G r e e n p a r k d y j o l l i h u g. c o. n z

3 Executive Summary Christchurch City Council is proposing a Variation to the Banks Peninsula Proposed District Plan (BPDP) to better recognise and protect the historic character and heritage and cultural values of Akaroa. The Variation is in response to concerns that Akaroa s unique historic area was not adequately recognised and protected in the Proposed District Plan. As part of information gathering for the Variation, City Council has commissioned this Cultural Values Report, to better understand Ngāi Tahu cultural heritage values associated with Akaroa and how to protect, provide for and/or enhance such values through the proposed Variation. Ngāi Tahu cultural heritage values and associations of six areas from Takamatua to Takapūneke are assessed for the purposes of this report (Takamatua, Silent File 027, Silent File 028, Akaroa Township, Takapūneke, and Akaroa Hillslopes). For each of the six areas, the existing values and associations are identified, followed by the risks to those values and associations, and the type and level of protection required. The assessment provides the information necessary to considering how Council can recognise and provide for Ngāi Tahu cultural heritage values through the proposed Variation to the District Plan. The findings of the report highlight the richness of Akaroa as a cultural landscape. Ngāi Tahu culture, history and identity is strongly embedded in this landscape, even where it is visibly dominated by the built environment. The findings of the report also indicate that the desire to retain the distinctive form and character of Akaroa is not inconsistent with providing for, protecting and/or enhancing Ngāi Tahu cultural heritage values. This is because Ngāi Tahu cultural heritage is a part of what makes the area unique. How can Council recognise and provide for Ngāi Tahu cultural heritage values through the proposed Variation to the District Plan? A number of key points are drawn from this Cultural Values Assessment: Any proposed Variation to the District Plan should address the protection of the historic character and heritage and cultural values of Akaroa as a whole, and not just the registered Akaroa Historic Area. The scale of cultural landscape is the most appropriate way to manage and protect Ngāi Tahu cultural heritage in Akaroa, rather than sites. The are a number of regulatory and non-regulatory methods that can be used to protect Ngāi Tahu cultural heritage values associated with Akaroa. District planning objectives, rules and design guidelines to protect the historic character and form of Akaroa (i.e. built environment) should should not limit the ability of tangata whenua to express their relationship to this important ancestral landscape. A k a r o a C V R J u l y

4 The Akaroa Historic Area and Takapūneke should both be recognised in the District Plan for their immense contribution to the historic character of Akaroa. There are numerous opportunities to recognise and provide for Ngāi Tahu cultural heritage and identity in Akaroa, while maintaining the towns unique historic heritage, particularly in public open space, along waterways and the coastal strip. Whilst the colonial heritage of Akaroa is largely displayed in the built environment, the cultural heritage of Ngāi Tahu is strongly connected to/embedded in the natural environment and undeveloped areas, and therefore particular attention should be afforded to avoiding inappropriate land use, subdivision and development in these areas. Christchurch City Council, Akaroa Civic Trust, Ngāi Tahu, Historic Places Trust, and the wider community need to work together to manage and protect the unique historic heritage of Akaroa. Cultural mapping work soon to be undertaken by Ōnuku Rūnanga and Te Rūnanga o Ngāi Tahu to map cultural and historical sites on the Toitū Te Whenua Geographical Information System (GIS) will provide an excellent source of information upon which to update planning maps and inventories. A k a r o a C V R J u l y

5 Table of Contents 1 Background 3 2 Purpose of this Cultural Values Report 3 3 Scope 5 4 Methods 5 5 Outcomes: Ngāi Tahu cultural heritage values Takamatua to Takapūneke 7 Area 1: Takamatua 9 Area 2: Silent file Area 3: Silent file Area 4: Akaroa township, Akaroa Historic Area (AHA) 17 Area 5: Takapūneke 20 Area 6: Akaroa Hill Slopes 22 6 Ngāi Tahu perspectives on proposed Variation to the BPDP 24 7 Conclusions 27 8 Reference list 28 9 Appendices 30 Appendix 1: Examples of methods for cultural heritage protection 30 Appendix 2: Place names referred to in Section 5 33 List of Maps Map 1: Project area - Takamatua to Takapūneke 4 Map 2: Six areas considered as part of this report 8 Map 3: Planning Map N36 H Te Whakatua Kaupapa (1990) 14 A k a r o a C V R 1 J u l y

6 A k a r o a C V R 2 J u l y

7 1 Background Christchurch City Council is proposing a Variation to the Banks Peninsula Proposed District Plan (BPDP) to better recognise the importance of, and adequately protect, Akaroa s unique historic area. The proposed variation is in response to concerns raised by the Akaroa Civic Trust that the Akaroa Historic Area (AHA) was not adequately recognised and protected in the District Plan. Key issues included recognition of the AHA in the District Plan, the boundaries of the Historic Area, the areas surrounding the Historic Area, and the Akaroa Building Design Guidelines. In 2008, Council began a consultation process to discuss the proposed Variation. The findings of the process established that any Variation to the District Plan should address the protection of the historic character and heritage and cultural values of Akaroa as a whole, and not just the registered Akaroa Historic Area. In response to the findings of the consultation process, Council has commissioned a series of reports to inform the proposed Variation, including a Ngāi Tahu cultural values assessment. This Cultural Values Report is prepared at the request of Mahaanui Kurataiao Ltd (MKT), behalf of Ōnuku Rūnanga, the Papatipu Rūnanga representing the hapū who hold manawhenua over the Akaroa area. 1 2 Purpose of this Cultural Values Report The objectives of the Cultural Values Report are: (a) (b) (c) To document sites and places of cultural significance in the Akaroa area, between and including Takamatua and Takapūneke (as per Map 1), and the specific values and relationships associated with those sites and places. To provide guidance to Council on how sites and places of cultural significance could be protected, provided for and/or enhanced through the Variation to the District Plan. To identify any additional outcomes sought by Ngāi Tahu with respect to the proposed Variation to the District Plan 1 The takiwā of Te Rūnanga o Ōnuku centers on Ōnuku and the hills and coasts of Akaroa to the adjoining takiwā of Te Rūnanga o Koukourarata and Wairewa Rūnanga (Te Rūnanga o Ngāi Tahu Act 1996). A k a r o a C V R 3 J u l y

8 CHRISTCHURCH - AKAROA Map 1: Project area - Takamatua to Takapūneke 2 Takamatua Bay OLD COACH RUE LAVAUD RUE BALGUERIE Akaroa Harbour BEACH RUE JOLIE Settlement Area Akaroa Historic Area Archaeological Site (100m Buffer) Ngai Tahu Silent File Land Parcels Road Boundary Meters Corporate Support Ngai Tahu cultural values assessment Akaroa to Takamatua WorkSpace: A.gws Layout: A4 Scale: 1:25,000 Date: 11/Sep/ Map provided by Christchurch City Council A k a r o a C V R 4 J u l y

9 3 Scope As per the contract brief, this Cultural Values Report describes Ngāi Tahu cultural heritage values associated with the area from Takamatua to Takapūneke, including the Akaroa township, on the eastern side of Akaroa Harbour. The focus of the report is to assess how sites and places that are part of Ngāi Tahu cultural heritage can be protected through a proposed Variation to protect the distinctive historic heritage of Akaroa. Given the purpose of the report (providing information for a District Plan Variation), the scope of the assessment is limited to land based sites and places, and therefore does not include values associated with the Akaroa coast, harbour and waterways. However, use of the information in this report should acknowledge the immense significance of Akaroa Harbour and the coastal environment with regards to Ngai Tahu history, culture and identity. It is important to note that the information provided in this report is applicable to the area from Takamatua to Takapūneke only, and not to the full extent of the area for which Ōnuku Rūnanga has kaitiaki responsibility. The report is guided by requirements of Resource Management Act (RMA) 1991 relating to Māori cultural heritage, specifically: Section 6 (e) the relationship of Māori and their culture and traditions with their ancestral lands, water, sites, wāhi tapu and other taonga is also a matter of national importance, and has implications for the sustainable management of historic heritage. Section 6 (f) the protection of historic heritage from inappropriate subdivision, use and development as a matter of national importance. Historic heritage, as defined by the Act, includes historic sites, archaeological sites, sites of significance to Māori (including wāhi tapu), and surroundings associated with those natural and physical resources that contribute to an understanding and appreciation of New Zealand s history and cultures. 4 Methods The methodology for this cultural values assessment is set out below: Review of background information pertaining to the proposed Variation and consultation undertaken for the purposes of the variation. Review of the provisions of the Ngāi Tahu Claims Settlement Act 1998 and any other statute, regulations, iwi planning documents, NZAA site records, historical information and/or other documents that are deemed relevant to this assessment. A k a r o a C V R 5 J u l y

10 Review of planning and management tools for significant sites / cultural heritage relevant to district planning (Appendix 1). Examples of regulatory and non-regulatory methods were used in discussions about the type and level of protection required for specific sites/places visited during the hīkoi to Akaroa (see below). Hīkoi to Akaroa with members of Ōnuku Rūnanga and MKT to discuss cultural values, sites and relationships with the area. For each of the areas visited on the hīkoi, the following questions were discussed: (1) What values interests and associations are attributed to this place/site/area? (2) What is the risk to site/area (types of risk and level)? (3) What type and level of protection is required for this site/ area/ place? Review of draft report by Ōnuku Rūnanga and MKT, and peer review by Takerei Norton (Toitū Te Whenua, Te Rūnanga o Ngāi Tahu). Revision of draft report to reflect review outcomes, and preparation of final report. Endorsement of final report by Ōnuku Rūnanga, as an accurate expression of the values for the Akaroa area within the context of report objectives and purpose. 3 Photo: Dyanna Jolly (report writer), Peter Clayton (Ōnuku Rūnanga) and George Tikao (Ōnuku Rūnanga), Takamatua Bay. 3 A letter of endorsement is provided with this report. A k a r o a C V R 6 J u l y

11 5 Outcomes: Ngāi Tahu cultural heritage values Takamatua to Takapūneke The purpose of this Cultural Values Report is to identify sites and places of cultural significance and to provide guidance to Christchurch City Council on how such sites and places could be protected, provided for and/or enhanced through a proposed Variation to the District Plan addressing the protection of Akaroa s distinctive historic character and heritage values. Six areas from Takamatua to Takapūneke provide a framework to assess significant sites and places in the Akaroa region (Map 2): 4 Area 1: Takamatua Area 2: Silent file 027 (Takamatua) 5 Area 3: Silent file 028 (Otahuahua - Children's Bay) Area 4: Akaroa Township, Akaroa Historic Area Area 5: Takapūneke Area 6: Akaroa Hill Slopes For each of the six areas, information is provided on existing Ngāi Tahu cultural heritage values and associations, risks to those values and associations, and the type and level of protection Ngāi Tahu is seeking. As described previous, the scope of the assessment is limited to land based cultural heritage values, notwithstanding the immense importance of Akaroa Harbour and the coastal environment generally to the relationship of Ngāi Tahu to the Akaroa region. Following the place-specific assessment of cultural heritage values, Section 6 addresses the question of how Council can recognise and provide for these Ngāi Tahu cultural heritage values through the proposed Variation to the District Plan. A map of place names referred to in this section is provided as Appendix 2. 4 The six areas were determined based on a need to discuss cultural values in relation to district plan mechanisms. 5 Te Whakatau Kaupapa identifies the silent file areas as 027 and 028 on planning maps (page 5-78F) A k a r o a C V R 7 J u l y

12 Map 2: Six areas considered as part of this report 6 Takamatua Bay!"#$%&'%($)$*$+,$% CHRISTCHURCH - AKAROA!"#$%-'%./0#1+%2/0#%3-4!"#$%5'%./0#1+%2/0#%3-6 OLD COACH RUE LAVAUD Akaroa Harbour RUE JOLIE RUE BALGUERIE BEACH!"#$%7'%!)$"8$%+891:;/<!"#$%?'%!)$"8$%@/00:08<#:!"#$%='%($)$<>1#)# Settlement Area Akaroa Historic Area Archaeological Site (100m Buffer) Ngai Tahu Silent File Land Parcels Road Boundary Meters Corporate Support Ngai Tahu cultural values assessment Akaroa to Takamatua WorkSpace: A.gws Layout: A4 Scale: 1:25,000 Date: 11/Sep/ Base map provided by Christchurch City Council A k a r o a C V R 8 J u l y

13 Area 1: Takamatua Boundaries Area 1 includes Takamatua Bay, the Takamatua Settlement Area and the Takamatua headland. Two silent file areas associated in and adjacent to this area are addressed separately (see Area 2 and Area 3 below). Values and associations Takamatua Bay was one of many bays in the Akaroa Harbour used by tūpuna as temporary campsites or small living areas (similar to nohoanga). The bay takes its name from the stream flowing into it - O Takamatua,or Rest after a journey. 7 Takamatua was the last bay of any size before travelers went over the hill to Akaroa. Māoris from the pas at Wairewa or Taumutu would camp here, feed, and rest themselves, so that they could make a good showing when, much refreshed, they marched over the last hill early next morning. 8 Ogilvie (1998:9) lists Takamatua as one of a series of well documented Moa Hunter Māori, or Archaic period sites on Banks Peninsula, alongside Purau, Panau, Okains Bay, and Tumbledown Bay. NZAA site N36/93 is located on the southern edge of Takamatua Bay, on the north facing headland. The site is recorded as a midden / ovens site; discovered and destroyed by roadworks in Trotter (1973) describes the site as a small living area, with the main area most likely outside of the area disturbed by the roadworks. For Ōnuku Rūnanga, the NZAA site is an indicator site, representative of the use of Takamatua Bay as a small kāinga and/or campsite. The site is in close proximity to Orukuwai, a place known for deep water for diving. 9 Other significant sites or features in this area include: Otipua, or Takamatua Hill. Defined as the hill of the tapua or demon 10 Te Pari Koau, on the southwestern point of Takamatua Bay Te Paua Mataotao, a place on the south facing headland (near Red Point) 7 Ogilvie 1998:162; Anderson 1927:213. Also written as Otangamatua (Māori place names of Banks Peninsula Map 1894), using the ng rather than the k. 8 Vangioni 1951:2 9 Ibid. 10 Ogilvie 1998:10 A k a r o a C V R 9 J u l y

14 The Takamatua Headland and Ōtipua (Takamatua Hill) are of particular importance in terms of cultural landscape values, given the low level of development and high degree of naturalness, and relationship to Silent Files 027 and 028. Takamatua Bay is part of Te Tai Mahaanui - the Banks Peninsula Coastal Marine Area, recognised as a Statutory Acknowledgment in the Ngāi Tahu Claims Settlement Act 1998 (Schedule 101). Risks Impacts of development on cultural landscape values associated with the Takamatua Headland and Ōtipua (Takamatua Hill), and the relationship to Silent Files 027 and 028. Residential expansion (subdivision and land use) on undeveloped areas including Takamatua headland, Ōtipua and the surrounding ridges. Coastal development on the Takamatua headland. Impacts on unknown archaeological sites associated with the existing NZAA site. While risk to the known archaeological site is considered low (i.e. the site is covered by a parking lot), Ōnuku Rūnanga considers the site an indicator site. Therefore, any development that may excavate existing slopes or shoreline of the southern part of Takamatua Bay has a risk of destroying or damaging archaeological sites. Specific concerns include road widening, building dwellings on surrounding slops and erecting coastal structures. Although the roadway and other European ground modifications make it impossible to tell exactly how large the site was, it is likely that the prehistoric occupational deposit covered an area of at least 100 square metres, possibly several times that amount. 11 Protection Recognise and provide for cultural landscape values vis a vis controlling the nature and extent of development that occurs on the headland and in the rural zone. The rules, objectives and policies guiding expansion of existing residential areas at Takamatua must be such that the built environment does not dominate the natural elements and cultural elements of the landscape. NZAA site N36/93 remains culturally significant as a locality of land use and occupancy, despite being destroyed. The site should be treated as a single known site within a larger network of land use and occupancy. Any development of area adjacent to the site must be 11 Trotter 1973:76-77 A k a r o a C V R 10 J u l y

15 considered and monitored in terms of potential effects on additional sites (e.g. road widening and development on slopes highlighted). Activities in the coastal environment or adjacent to waterways in the Takamatua area should be discretionary or restricted discretionary activities, with the impacts of individual proposals on sites and values identified by tangata whenua as being significant to be a matter for assessment and consideration (through consultation with tangata whenua), and discretion exercised accordingly. While archaeological sites that have been destroyed or damaged by development and are not easily recognisable, this does not diminish the historical or cultural importance of the location. - Hikoi participants, Takamatua. Area 2: Silent file 027 Boundaries Silent file 027 is located in Takamatua Bay. There is a discrepancy between the location and size of the Silent File as per City Council planning maps 12 and those found in Te Whakatau Kaupapa (1990). 13 While both maps show the Silent File at Takamatua Bay, Te Whakatau Kaupapa depicts a larger area that also extends into the coastal waters (see Map 3). Values and Associations Silent file areas are about the nature of the values and associations with the site and the need to protect locations, as opposed to a measure of significance alone. Te Whakau Kaupapa (1990: ) defines a silent file as:...an attempt to identify the general location of wāhi tapu (sacred places) or other special sites without disclosing their precise location. 12 As provided by Council for the purposes of this cultural values assessment. 13 Te Whakatau Kaupapa is the Iwi Management Plan relevant to the Canterbury and Banks Peninsula region. A k a r o a C V R 11 J u l y

16 Information on the specific values associated with the Silent File cannot be provided in this Cultural Values Report. Silent File 027 is embedded within the larger Takamatua Akaroa cultural landscape. Risks Discrepancy between the location and size of the Silent File as per City Council and Te Whakatau Kaupapa (1990) planning maps. The limited extent of Council knowledge of specific values associated with Silent File areas constraining the ability of Council to respond and protect such sites. Residential expansion and general development of undeveloped land poses a risk to values associated with the Silent File area. Land use and subdivision activities involving ground disturbance (earthworks), and activities involving water use or that may contaminate water (coastal, stream, spring), including stormwater disposal, are matters of importance to tangata whenua in Silent File 027. Lack of awareness and/or understanding among landowners and developers with regards to the role and meaning of silent file areas. Protection Address discrepancies between Council planning maps and Te Whakatua Kaupapa (1990) Maps with respect to the size and location of Silent File 027. Maintain current Banks Peninsula District Plan provision that activities in Silent File areas are restricted discretionary activities, with the impacts of individual proposals on sites and values identified by tangata whenua as being significant to be a matter for assessment and consideration (through consultation with tangata whenua), and discretion exercised accordingly. For any proposal for land use or subdivision in this area, the Silent File designation means that: (a) (b) There must be a high level of engagement [see below] with Ōnuku Rūnanga to assess whether the location, type and scale of proposed activities may adversely effect the values associated with the Silent File area Ōnuku Rūnanga shall have have a high level of influence over decisions to grant or decline consents. Only manawhenua to determine whether a development will adversely affect the silent file values. A k a r o a C V R 12 J u l y

17 (c) Ōnuku Rūnanga should not be required to justify the nature and extent of cultural effects, or why an activity may be inconsistent with values in a Silent File area. Manawhenua must be able to say no without revealing the location or status of a site. High level of engagement (as per (a) above) means provisions for some or all of the following: (a) (b) (c) (d) (e) (f) Early consultation with Rūnanga as an information requirement for resource consent applications Cultural Impact Assessment (CIA) to fully and effectively assess cultural risk Archaeological assessment Affected party status Accidental Discovery Protocol (ADP) as condition of resource consent On-site cultural monitoring of ground disturbance / earthworks Restrict development that involves extensive modification of the landscape, extensive earthworks, or that may result in the modification or contamination of surface water resources, or the contamination of ground or coastal waters. Revisit the requirements for Silent File 027 once the Toitū Te Whenua (Environmental Management Unit for Te Rūnanga o Ngāi Tahu) / Ōnuku Runanga Cultural Mapping Project is complete for the Akaroa area. The tribal GIS mapping project will revisit sites of significance and where necessary provide a better basis of information upon which to inform planning maps and provide guidance to council to recognise and provide for areas of importance in the Akaroa region. A silent file designation does not preclude development. However, careful consideration must be given to the location and type of development and thus potential effects on the specific values that the silent file designation is protecting. - Hikoi participants, Akaroa. A k a r o a C V R 13 J u l y

18 Map 3: Planning Map N36 H Te Whakatua Kaupapa (1990) Area 3: Silent file 028 Boundaries Silent File 028 is located Otahuahua /Children s Bay, incorporating both the land and coastal waters, and incorporating some of the Akaroa Settlement Area. There is a discrepancy between the location and size of the Silent File as per City Council planning maps and those found in Te Whakatau Kaupapa (1990) (see Map 3). Values and Associations Silent file areas are about the nature of the values and associations with the site and the need to protect locations, as opposed to a measure of significance alone. Te Whakau Kaupapa (1990: ) defines a silent file as:...an attempt to identify the general location of wāhi tapu (sacred places) or other special sites without disclosing their precise location. A k a r o a C V R 14 J u l y

19 Information on the specific values associated with the Silent File cannot be provided in this Cultural Values Report. Children s Bay is known to Ngāi Tahu as Otahuahua. The small creek running into the bay is documented as Te Kao, and Te Paua Mataotao as a place on coast near Red Point (Vangioni 1951:3). High likelihood that a kāinga existed at Otahuahua. Ōnuku Rūnanga representatives identified numerous indicators that there would have been a settlement at Otahuahua / Children's Bay. Silent File 027 is embedded within the larger Takamatua Akaroa cultural landscape. Otahuahua / Children s Bay is part of Te Tai Mahaanui - the Banks Peninsula Coastal Marine Area, recognised as a Statutory Acknowledgment in the Ngāi Tahu Claims Settlement Act 1998 (Schedule 101). Risks Discrepancy between the location and size of the Silent File as per City Council and Te Whakatau Kaupapa (1990) planning maps. The limited extent of Council knowledge of specific values associated with Silent File areas constraining the ability of Council to respond and protect such sites. Residential expansion and general development of undeveloped land pose risks to values associated with the Silent File area. Land use and subdivision activities involving ground disturbance (earthworks), and activities involving water use or that may contaminate water (coastal, stream, spring), including stormwater disposal, are matters of importance to tangata whenua in Silent File 028. Lack of awareness and/or understanding among landowners and developers with regards to the role and meaning of silent file areas. If these areas and our relationship to them were not protected by a Silent File, the landscape would look very different today. - Hikoi participants, Otahuahua. A k a r o a C V R 15 J u l y

20 Protection Address discrepancies between Council planning maps and Te Whakatua Kaupapa (1990) maps with respect to the size and location of Silent File 028. Maintain current Banks Peninsula District Plan provision that activities in Silent File areas are restricted discretionary activities, with the impacts of individual proposals on sites and values identified by tangata whenua as being significant to be a matter for assessment and consideration (through consultation with tangata whenua), and discretion exercised accordingly. For any proposal for land use or subdivision in this area, the Silent File designation means that: (a) (b) (c) There must be a high level of engagement [see below] with Ōnuku Rūnanga to assess whether the location, type and scale of proposed activities may adversely effect the values associated with the Silent File area Ōnuku Rūnanga shall have have a high level of influence over decisions to grant or decline consents. Only manawhenua to determine whether a development will adversely affect the silent file values. Ōnuku Rūnanga should not be required to justify the nature and extent of cultural effects, or why an activity may be inconsistent with values in a Silent File area. Manawhenua must be able to say no without revealing the location or status of a site. High level of engagement (as per (a) above) means provisions for some or all of the following: (a) (b) (c) (d) (e) (f) Early consultation with Rūnanga as an information requirement for resource consent applications Cultural Impact Assessment (CIA) to fully and effectively assess cultural risk Archaeological assessment Affected party status Accidental Discovery Protocol (ADP) as condition of resource consent On-site cultural monitoring of ground disturbance / earthworks Restrict development that involves extensive modification of the landscape, extensive earthworks, or that may result in the modification or contamination of surface water resources, or the contamination of ground or coastal waters. Revisit the requirements for Silent File 028 once the Toitū Te Whenua (Environmental Management Unit for Te Rūnanga o Ngāi Tahu) / Ōnuku Runanga Cultural Mapping Project is complete for the Akaroa area. The tribal GIS mapping project will revisit sites of significance and where necessary provide a better basis of information upon which to inform planning maps and provide guidance to council to recognise and provide for areas of importance in the Akaroa region. A k a r o a C V R 16 J u l y

21 Area 4: Akaroa township, Akaroa Historic Area (AHA) Boundaries Area 4 applies to the Akaroa township, from Otahuahua (Children's Bay) south to Takapūneke, and includes the Akaroa Historic Area (AHA). The AHA was registered by the New Zealand Historic Places Trust (NZHPT) in February 1999 in recognition of the unique history of Akaroa and collection of historic buildings. Values and Associations Situated behind the best - sheltered bay in the harbour (Paka Ariki), with plentiful timber and fresh water, Akaroa was the choicest site for European settlement. For centuries before it had been one of a range of harbour locations occupied by Māori communities, though probably not as well populated as settlements further down the shoreline at Takapūneke and Ōnuku, or across the harbour at Tikao Bay and Wainui. 14 Akaroa was one of many Māori settlements in the Harbour. Akaroa Harbour is of great significance as a mahinga kai - its waters traditionally provided the primary sustenance for the people of Ōnuku. 15 While the distinctive character of Akaroa is largely based on colonial heritage values, Akaroa remains a highly significant cultural landscape. The coast along the Akaroa township is extremely important to the relationship between Ngāi Tahu and Akaroa. Te Tai Mahaanui (the Banks Peninsula Coastal Marine Area) is recognised as a Statutory Acknowledgment in the Ngāi Tahu Claims Settlement Act The sandy beach along the town is often identified as kaitangata, a name Ōnuku Rūnanga representatives attribute as a reflection of the importance of the Akaroa area for food resources. Waterways running through the township are an important part of Ngāi Tahu cultural heritage. Most of the streams now bear European names. Oinaka Now known as Grehan Stream. O-i-naka is after a Ngāti Mamoe chief slain by a Ngāi Tahu chief Tuta-kaka-hikura while crossing the creek Ogilvie Crengle 2000; Tikao Vangioni 1951; Anderson 1927 A k a r o a C V R 17 J u l y

22 Wai - iti Or Te Wai-iti. Now known as Balguerie Stream. Runs down near Balguerie Street. 17 Waipirau Or Te Waipirau. Now known as Walnut stream. 18 Pakaiariki Small stream running down Aylmers Valley. 19 Also identified as Hine Pakarariki. One source lists Kaitangata the name for what is now known as Aylmer s Stream. 20 Parihoro and Pa Whaiti are two additional place names associated with the coast between the Akaroa township and Takapūneke. 21 The results of the struggles, alliances and marriages arising out of these migrations were the eventual emergence of a stable, organised and united series of hapū located at permanent or semi-permanent settlements along the coast, with a intricate network of mahinga kai (food gathering) rights and networks that relied to a large extent on coastal resources. 22 Risks Planning provisions that may limit the ability of Ngāi Tahu to express their relationship with Akaroa as a cultural landscape. Expansion of Akaroa Historic Area, and potential effects of the relationship of Ngāi Tahu with the Akaroa landscape. Building design guidelines and potential limits on the the ability of Ngāi Tahu to express their relationship with Akaroa as a cultural landscape. Residential expansion / subdivision and risk to archaeological, natural and other cultural values. Coastal development and effects on Ngāi Tahu cultural heritage values (coastal strip currently described as mono-cultural ). 17 Anderson Burgess Anderson 1927; Map - Māori Place Names of Banks Peninsula Tremewan, in Burgess Vangioni NTCSA 1998:Schedule 101 A k a r o a C V R 18 J u l y

23 Akaroa s French connection is a strong and valid point of difference compared to colonial settlement in most of the rest of New Zealand. However, in focusing predominantly on the French aspects of Akaroa s past there is the potential to distort an understanding of what is historic Akaroa. Its history is interesting not only because of the French attempts to colonise New Zealand, but because of others settling Akaroa at that time creating an interesting blend of colonial and Māori population (Burgess 2005:1-2) Protection Recognise the Akaroa township as part of a wider cultural landscape, particularly in terms of the cultural and historical associations to surrounding areas such as Takamatua, Takapūneke and Ōnuku. The Akaroa Historic Area should be better recognised and protected in the BPDP. The Akaroa Historic Area should reflect a unique and shared history (Māori and European). Future development in Akaroa must recognise and provide for the distinctive historic character of the town, including Ngāi Tahu cultural heritage and identity. Assessments of effects of land use and subdivision activities on distinctive character and form of Akaroa should include considerations of effects on Ngāi Tahu associations to the area, including the potential for unrecorded Māori archaeological sites. District planning processes should encourage opportunities to recognise Ngāi Tahu culture, history and identity in Akaroa, particularly in public open space (e.g. artwork) and the use of Ngāi Tahu names on natural features such as waterways. It is particularly important that the coastal strip of the Akaroa township enable the expression of Ngāi Tahu culture and identity. Activities in the coastal environment or adjacent to waterways should be discretionary or restricted discretionary activities, with the impacts of individual proposals on sites and values identified by tangata whenua as being significant to be a matter for assessment and consideration (through consultation with tangata whenua), and discretion exercised accordingly. Council and MKT should review those activities in the built environment that require resource consent, to better define the nature and extent of consultation required for land use and subdivision activities in the Akaroa township. While Rūnanga involvement is necessary for those activities that may adversely affect cultural values (e.g. use of coastal space, new A k a r o a C V R 19 J u l y

24 subdivisions, earthworks in or adjacent to waterways), many activities (e.g. building a deck) should not require consultation if appropriate site management protocols are in place. Area 5: Takapūneke Boundaries Area 5 includes the bay known as Takapūneke, or Red House Bay, extending from Tahu Na Torea / Greens Point to the Akaroa sewerage works. Values and Associations Takapūneke was the kāinga of the Ngāi Tahu upoko ariki (paramount chief) Te Maiharanui, and a place of immense significance in the story of Te Tiriti / Treaty of Waitangi. In 1830, Te Rauparaha captured Te Maiharanui with the aid of Captain Stewart of the British ship Brig Elizabeth, and then destroyed the kāinga at Takapūneke. British intervention following the incident ultimately culminated in the signing of Te Tiriti o Waitangi seven years later. It has been argued that that story of the route to British sovereignty can be told at Takapūneke, Green s Point and Onuku in a more complete way than at Waitangi. 23 Takapūneke is a tapu site for Ōnuku Rūnanga, one of the most significant wāhi tapu, wāhi taonga sites in the history of Ngāi Tahu. 24 Registered as a Wāhi Tapu Area by the Historic Places Trust in 2002 (in response to an application from Ōnuku Rūnanga). Takapūneke is the first registered wāhi tapu area on the mainland South Island (Leonard 2005). One known archaeological site exists at Takapūneke. NZAA site N37/11 is identified as platform terraces and coastal midden. The midden was destroyed by earthworks, and the terraces largely covered by vegetation. Takapūneke is identified in the Banks Peninsula Landscape Study as one of a group of outstanding cultural heritage landscapes on the Peninsula with the highest rating using ICOMOS (International Council on Monument and Sites) standards Wilson Ōnuku Rūnanga, in Leonard 2005:3 25 Witter 2007:3 A k a r o a C V R 20 J u l y

25 Risks Ensuring that management of Takapūneke as a Historic Reserve is culturally appropriate given the history of the area (i.e. wāhi tapu) Risk to unknown archaeological values very high Setting appropriate boundaries on the reserve Effects of adjacent land use activities on Takapūneke Defining the nature and extent of permitted activities in the reserve Photo: Takapūneke Protection Review BPDP schedules and planning maps to ensure lists are updated and inclusive of Takapūneke as a historical reserve, and wāhi tapu area as per the Historic Places Act Wāhi tapu area and Historic Reserve designations provide good protection for this site. To appropriately provide for Ngāi Tahu cultural heritage, planning and management of the site as a historic reserve should include: A k a r o a C V R 21 J u l y

26 (a) (b) (c) (d) Involvement of Ōnuku in all management plans for the reserve (i.e. site management, conservation plan) whether through appointed iwi representatives on committee or otherwise. Recognition of Takapūneke as a cultural landscape, not a site (e.g. the presence of one NZAA site does not reflect true significance of site) No earthworks undertaken without agreement of Ōnuku Rūnanga, and any earthworks that does occur (e.g. associated with treeplanting) to be supervised by a cultural monitor from the Rūnanga. Appropriate rules in district plan to protect values of Takapūneke Discuss need for an updated archaeological assessment of Takapūneke (work collaboratively with Historic Places Trust). Establishment of a buffer around Takapūneke Historic Reserve to prevent land use and land intensification that may adversely affect the values of the reserve. A boundary adjustment is required to the residential zone, as the zone currently includes Takapūneke (see Map 1). Area 6: Akaroa Hill Slopes Boundaries Area 6 is the Akaroa Hill Slopes Zone, identified in the BPDP as the hill slopes which embrace the township of Akaroa. 26 Values and Associations The rim of hills and peaks that look down upon Akaroa s waters evoke many important histories 27 As recognised in the BPDP, the Akaroa hill slopes are important in defining the landscape character of Akaroa township and its surroundings. The relationship between natural landscape and cultural values is important in this area. 26 BPDP: Tikao, George. Interview by Helen Brown. Ōnuku Rūnanga Administration Office, 127 Armagh Street, Christchurch. Minidisc recording, 14 July [taken from City Libraries A k a r o a C V R 22 J u l y

27 Prominent ridges and spurs are significant cultural features within this landscape, marking travel routes to eastern bays and important viewpoints. Regeneration of native bush on the Akaroa hill slopes is important to restoring this landscape and the cultural associations to it. Importance of this area as source for many waterways flowing from the hills to the sea. Risks Increasing development pressure raises significant issues associated with the protection of cultural heritage from inappropriate subdivision, use or development. Ngāi Tahu cultural heritage connected to natural landscape features such as hills, slopes, ridges, spurs and native bush. Sedimentation from development and adverse effects on streams and coastal waters that are part of Ngāi Tahu cultural heritage. Protection Recognise and provide for the importance of the Akaroa hill slopes as part of the cultural heritage of Ngāi Tahu in the BPDP. Controlling development, protecting and enhancing native vegetation and the maintenance of open space are important to protecting Ngāi Tahu cultural heritage values in this zone. The design guidelines, rules, objectives and policies guiding land use and subdivision in the Akaroa Hill Slopes Area must be such that the built environment does not dominate the natural elements and cultural elements of the landscape. A high level of engagement with tangata whenua is required for proposed land use and subdivision activities in the Akaroa Hills Slopes zone. High level of engagement means provisions for some or all of the following: (a) (b) (c) (d) (e) (f) Early consultation with Rūnanga as an information requirement for resource consent applications Cultural Impact Assessment (CIA) to fully and effectively assess cultural risk Archaeological assessment Affected party status Accidental Discovery Protocol (ADP) as condition of resource consent On-site cultural monitoring of ground disturbance / earthworks A k a r o a C V R 23 J u l y

28 6 Ngāi Tahu perspectives on proposed Variation to the BPDP Section 5 identifies Ngāi Tahu cultural heritage values and associations in six areas of the Akaroa region, and provides a place-specific assessment of the risks to, and protection requirements for those values within district planning processes. How can Council recognise and provide for these Ngāi Tahu cultural heritage values through the proposed Variation to the District Plan? The findings of the cultural values assessment in Section 5 highlight several key points that Council should have particular regard to in preparing for the proposed Variation: Landscapes, not sites (1) The scale of cultural landscape is the most appropriate way to manage and protect Ngāi Tahu cultural heritage in Akaroa, rather than sites. The area from Takamatua to Takapūneke is a cultural landscape of immense importance to Ngāi Tahu culture and identity. A cultural landscape, for the purposes of this report, is a geographical area that includes a series of related and connected cultural, heritage and natural resources associated with the culture, identity and history of Ngāi Tahu. Cultural landscapes are integral to a sense of place and identity, and are testament to relationships with the land over time. 28 Planning for cultural landscapes enables the recognition of the interrelated nature of heritage places and sites. This in turn ensures that the associations between seemingly modest places or highly modified sites (e.g. destroyed archaeological site) are provided for appropriately. 29 Protecting the unique historic character of Akaroa (2) A Variation to the District Plan should address protection of the historic character and heritage and cultural values of Akaroa as a whole, and not just the AHA. (3) The desire to retain the distinctive form and character of Akaroa is not inconsistent with providing for, protecting and/or enhancing Ngāi Tahu cultural heritage values. Ngāi Tahu cultural heritage is a part of what makes Akaroa unique and distinctive. The history of Akaroa is very much a shared history; a reflection of the interactions between Māori and European. 28 An excellent description of planning for the cultural landscape is found is Sims and Thompson-Fawcett Quality Planning: Guidance on Historic Heritage A k a r o a C V R 24 J u l y

29 (4) Ngāi Tahu supports the improved recognition and protection of the Akaroa Historic Area in the District Plan. The AHA makes an immense contribution to unique historical character of Akaroa and should be protected as such. (5) Ngāi Tahu supports the improved recognition and protection of the Takapūneke in the District Plan. While the more tangible values of a built environment may be absent from Takapūneke, the wāhi tapu area makes an immense contribution to the unique and nationally significant historical character of Akaroa. If City Council is seeking to protect the distinctive historic character of Akaroa, both the AHA and Takapūneke should be specifically recognised and protected in the District Plan. (6) District planning objectives, rules and design guidelines to protect the historic character and heritage of Akaroa should not limit the ability of tangata whenua to express their relationship to this important ancestral landscape. There are numerous opportunities to recognise and provide for Ngāi Tahu cultural heritage and identity in Akaroa, while maintaining the towns unique historic heritage, particularly in public open space, along waterways and the coastal strip. For example, the naming of places is a mechanism that strongly associates Ngāi Tahu with ancestral places and landscapes. Where appropriate, Ngāi Tahu names can be used alongside European names in the District Plan and other places where formal recognition to names is provided. (7) It is particularly important to enable the expression of Ngāi Tahu culture and identity in the coastal strip. The Akaroa Harbour and coastal environment are of immense cultural, historical and spiritual significance to Ngāi Tahu. Te Tai Mahaanui - the Banks Peninsula Coastal Marine Area, recognised as a Statutory Acknowledgment in the Ngāi Tahu Claims Settlement Act 1998 (Schedule 101). Planning provisions controlling land use (8) Protecting the areas surrounding Akaroa from inappropriate land use and development is critical to protecting, providing for and/or enhancing Ngāi Tahu cultural heritage values. Whilst the colonial heritage of Akaroa is largely displayed in the built environment, the cultural heritage of Ngāi Tahu is strongly connected to/embedded in the natural environment and undeveloped areas, and therefore particular attention should be afforded to avoiding inappropriate land use, subdivision and development in these areas. The RMA definition of historic heritage includes the surroundings associated with those natural and physical resources that contribute to an understanding and appreciation of New Zealand s history and cultures. Further, the protection of outstanding natural features and landscapes from A k a r o a C V R 25 J u l y

30 inappropriate subdivision, use and development is a matter of national importance, and the courts have used this as a mechanism to consider cultural landscapes of historical importance. 30 (9) Require resource consent applications to contain a good standard of information on the effects of proposals on Ngāi Tahu values associated with Akaroa. Assessments of effects of land use and subdivision activities on distinctive character and form of Akaroa should include considerations of effects on Ngāi Tahu cultural heritage values. (10) Include the use of Cultural Impact Assessments as a method to improve assessment of effects on cultural heritage values associated with Akaroa. A CIA is a report documenting cultural values, interests and associations with an area, and the potential impacts of a proposed activity on these. CIAs are a tool to facilitate meaningful and effective participation of Māori in impact assessment. Ngāi Tahu values associated with Akaroa can be described as embedded values. Interviews conducted by Stephenson with Akaroa residents about significant sites indicated that Māori refer predominately to embedded values - the human narratives carried in landscapes with which Ngāi Tahu have long associations - while non Māori residents focused on shapes and buildings (in Leonard 2005). Inventories and planning maps (11) The Variation should include a review of BPDP heritage schedules and planning maps to: (a) (b) (c) ensure the location of silent files is consistent with Te Whakatau Kaupapa (1990) planning maps and Te Rūnanga o Ngāi Tahu tribal GIS maps. ensure schedules and maps are updated and inclusive of all historic places, historic areas, wāhi tapu and wāhi tapu areas registered under the Historic Places Act 1993 (for example, Takapūneke as a Wāhi Tapu Area) determine whether there is a need to list places and areas of significance to Māori, in addition to heritage schedules and planning maps (12) The use of existing NZAA sites in district planning processes to identify risk to cultural heritage should consider such sites as indicator sites only. Known archaeological sites in the Akaroa region do not reflect the true nature and extent of Ngāi Tahu historical land use and occupancy. 30 NZHPT 2004:3 A k a r o a C V R 26 J u l y

31 (13) Outcomes of the forthcoming Cultural Mapping Project can assist with managing Ngāi Tahu cultural heritage in district planning processes. Since 2006 Toitū Te Whenua (Environmental Management Unit for Te Rūnanga o Ngāi Tahu) has been mapping cultural and historical sites on the Toitū Te Whenua Geographical Information System (GIS). Cultural mapping work with Ōnuku Rūnanga in the next year will revisit sites of significance in the Akaroa area, and provide a better basis of information upon which to inform planning maps and provide guidance to council. Cultural mapping may also provide the basis of heritage alert layers on planning maps, to identify areas of sensitivity or interest to Ngāi Tahu. The Variation can refer specifically to the tribal GIS and include provisions to refer to such maps. Working together to achieve good outcomes (14) Christchurch City Council, Akaroa Civic Trust, Ngāi Tahu, Historic Places Trust, and the wider community need to work together to manage and protect the unique historic heritage of the Akaroa township and wider cultural landscape. 7 Conclusions This Cultural Values Report provides a comprehensive assessment of land based sites and places of Ngāi Tahu cultural heritage significance from Takamatua to Takapūneke, and the specific values and relationships associated with those sites and places. Based on a place specific assessment of cultural heritage values, the report provides guidance to Council on how to protect, provide for and/or enhance Ngāi Tahu cultural heritage values through a proposed Variation to the Banks Peninsula District Plan. The findings of the report indicate that the desire to retain the distinctive form and colonial character of Akaroa s built environment (as the impetus for the Variation) is not inconsistent with providing for, protecting and/or enhancing Ngāi Tahu cultural heritage values. This is because Ngāi Tahu cultural heritage is a part of what makes the area unique. Ngāi Tahu history, culture and identity is strongly embedded in the Akaroa landscape, even where it is visibly dominated by the built environment. There a range of methods and protection mechanisms that can be incorporated into the proposed Variation to recognise and provide for Ngāi Tahu cultural heritage values in Akaroa. A k a r o a C V R 27 J u l y