Part 1 - Palmerston North City Council

good earth matters
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Manawatu‐Wanganui Regional
Council
Channel Realignment of the
Manawatu River at ANZAC Park Cliff
Resource Consent Application and Assessment of
Environmental Effects
March 2012
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Client:
Manawatu‐Wanganui Regional Council
Report Title: Channel Realignment of the Manawatu River at ANZAC Park Cliff
Resource Consent Application and Assessment of Environmental Effects
File Reference: 30016\2012.03.23 AEE ‐ FINAL.docx
Report Issue: Draft Date: March 2012
Consultation Draft Date: March 2012
Final Date: March 2012
268 Broadway Avenue | PO Box 1268 | Palmerston North 4440 | 06 353 7560 | goodearthmatters.com

APPLICATION FOR RESOURCE CONSENT
Section 88, Resource Management Act 1991
To:
Manawatu‐Wanganui Regional Council
Private Bag 11025
Manawatu Mail Centre
PALMERSTON NORTH 4442
The Manawatu‐Wanganui Regional Council hereby applies for the following type(s) of resource consent:
Land use consent:
Discharge permit:
To carry out works in the bed of the Manawatu River including the construction and maintenance of various
permanent flood protection and erosion control structures (rock lining, snub groyne, bed armouring) and a ford, the
realignment of the river channel, the movement of bed material (gravel) within the river bed, and the construction
of temporary structures (cofferdams) within the river and the permanent realignment of the lower part of the
Mangaotane Stream and the construction of a ford across the realigned part of the stream and associated
vegetation clearance.
For discharges of sediment associated with the above activities to the Manawatu River and Mangaotane Stream.
The names and addresses of the owner and occupier (other than the applicant) of land to which the application relates are as follows:
Palmerston North City Council, Private Bag 11034, Palmerston North
PMB Landco Limited, 420 Church Street, Palmerston North
R V Hargreaves, 136 Victoria Avenue, Palmerston North
The location of the proposed activity is as follows:
The Manawatu River, near the ANZAC Cliffs as shown in Figure 2.1 on the attached assessment of environmental effects.
The following additional resource consents are needed for the proposed activity and have been applied for:
Land use consent from the Palmerston North City Council to carry out the construction, use and maintenance of flood protection and erosion
control structures within the Residential Zone, Conservation and Amenity Zone and the Water Recreation Zone.
I attach, in accordance with the Fourth Schedule of the Resource Management Act 1991, an Assessment of the Environmental Effects in
the detail that corresponds with the scale and significance of the effects that the proposed activity may have on the environment:
Refer to the Assessment of Environmental Effects attached.
I attach any information required to be included in this application by the district plan, the regional plan, the Resource Management Act
1991, or any regulations made under that Act.
(Signature of applicant or person authorised to sign on behalf of applicant)
(Date)
Address for Service of Applicant:
The Manawatu‐Wanganui Regional Council
C/‐ Good Earth Matters Consulting Limited
PO Box 1268; Palmerston North 4440
Attention: Andrew Bashford
Telephone: 06 353 7560
Email:
andrew.bashford@goodearthmatters.com
30016/2012.03.23 RCA.doc

APPLICATION FOR RESOURCE CONSENT
Section 88, Resource Management Act 1991
To:
Palmerston North City Council
Private Bag 11034
PALMERSTON NORTH 4442
The Manawatu‐Wanganui Regional Council hereby applies for the following type(s) of resource consent:
Land use consent:
To carry out the construction, use and maintenance of flood protection and erosion control structures within the
Residential Zone, Conservation and Amenity Zone and the Water Recreation Zone.
The names and addresses of the owner and occupier (other than the applicant) of land to which the application relates are as follows:
Palmerston North City Council, Private Bag 11034, Palmerston North
PMB Landco Limited, 420 Church Street, Palmerston North
R V Hargreaves, 136 Victoria Avenue, Palmerston North
The location of the proposed activity is as follows:
The Manawatu River, near the ANZAC Cliffs as shown on Figure 2.1 in the attached assessment of environmental effects.
The following additional resource consents are needed for the proposed activity and have been applied for:
Land use consent from the Manawatu‐Wanganui Regional Council to carry out works in the bed of the Manawatu River including the
construction and maintenance of various permanent flood protection and erosion control structures (rock lining, snub groyne, bed
armouring) and a ford, the realignment of the river channel, the movement of bed material (gravel) within the river bed, and the
construction of temporary structures (cofferdams) within the river and the permanent realignment of the lower part of the Mangaotane
Stream and the construction of a ford across the realigned part of the stream and associated vegetation clearance.
Discharge permit from the Manawatu‐Wanganui Regional Council for discharges of sediment associated with the above activities to the
Manawatu River and Mangaotane Stream.
I attach, in accordance with the Fourth Schedule of the Resource management Act 1991, an Assessment of the Environmental Effects in
the detail that corresponds with the scale and significance of the effects that the proposed activity may have on the environment
Refer to the Assessment of Environmental Effects attached.
I attach any information required to be included in this application by the district plan, the regional plan, the Resource Management Act
1991, or any regulations made under that Act.
(Signature of applicant or person authorised to sign on behalf of applicant)
(Date)
Address for Service of Applicant:
The Manawatu‐Wanganui Regional Council
C/‐ Good Earth Matters Consulting Limited
PO Box 1268; Palmerston North 4440
Attention: Andrew Bashford
Telephone: 06 353 7560
Email:
andrew.bashford@goodearthmatters.com
30016/2012.03.23 RCA.doc

gemconsulting
TABLE OF CONTENTS
1 INTRODUCTION .......................................................................................................................................... 1
2 THE SITE ..................................................................................................................................................... 2
3 THE PROPOSED ACTIVITY ........................................................................................................................... 3
3.1 Reasons for the Proposed Works ...................................................................................................................... 4
3.2 Description of Activities ..................................................................................................................................... 4
3.3 Monitoring and Maintenance ............................................................................................................................ 7
4 ALTERNATIVES ........................................................................................................................................... 7
4.1 Management of Erosion at ANZAC Cliffs ........................................................................................................... 7
4.2 Construction and Access .................................................................................................................................... 8
5 REGULATORY FRAMEWORK ...................................................................................................................... 9
5.1 Manawatu‐Wanganui Regional Council ............................................................................................................. 9
5.1.1 Regional Plan for Beds of Rivers and Lakes ............................................................................................ 9
5.1.2 Proposed One Plan ............................................................................................................................... 10
5.1.3 Summary of Activity Status .................................................................................................................. 11
5.2 Palmerston North City Council ......................................................................................................................... 12
5.2.1 The Palmerston North City District Plan ............................................................................................... 12
5.2.2 Summary of Activity Status .................................................................................................................. 14
5.3 Statutory Process ............................................................................................................................................. 14
5.3.1 The Resource Management Act 1991 .................................................................................................. 14
5.3.2 National Environmental Standards ....................................................................................................... 14
5.4 Objectives and Policies .................................................................................................................................... 15
6 ACTUAL AND POTENTIAL EFFECTS OF THE ACTIVITY ............................................................................... 15
6.1 Construction Effects ......................................................................................................................................... 15
6.2 Effects of the Permanent Works ...................................................................................................................... 19
6.3 Conclusion on Actual and Potential Effects ..................................................................................................... 22
7 RELEVANT OBJECTIVES AND POLICIES ..................................................................................................... 23
7.1 National Policy Statements .............................................................................................................................. 23
7.2 Manawatu‐Wanganui Regional Council Planning Documents ........................................................................ 23
7.2.1 Operative Regional Policy Statement ................................................................................................... 23
7.2.2 Regional Plan for Beds of Rivers and Lakes .......................................................................................... 25
7.2.3 Proposed One Plan ............................................................................................................................... 29
7.3 Palmerston North City District Plan ................................................................................................................. 32
7.3.1 City View Objectives ............................................................................................................................. 32
7.3.2 Residential Zone Objectives and Policies ............................................................................................. 33
7.3.3 Conservation and Amenity Zone Objectives and Policies..................................................................... 34
7.3.4 Water Recreation Zone Objectives and Policies ................................................................................... 36
8 RESOURCE MANAGEMENT ACT ‐ PART II ................................................................................................ 37
8.1 Part 2 Conclusion ............................................................................................................................................. 38
9 CONSULTATION ....................................................................................................................................... 38
10 CONCLUSIONS .......................................................................................................................................... 39

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TABLE OF CONTENTS
Appendices
Appendix A
Appendix B
Appendix C
Appendix D
Appendix E
Appendix F
Appendix G
Appendix H
Appendix I
Location Plans and Surrounds ‐ Plans A to D
Engineering Drawings
Peer Review of Engineering Design
Aerial Photographs Showing Rates of Erosion at Anzac Cliff
Proposed Construction Methodology
Protocol for Accidental Discovery of Archaeological Sites
Agreement in Relation to the Teachers College River Monitoring Site
Approvals
Certificates of Title

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1 INTRODUCTION
The Manawatu‐Wanganui Regional Council (MWRC) is part way through a major works programme to
upgrade that part of the Lower Manawatu Scheme (LMS) that protects Palmerston North from flood waters
from the Manawatu River. The project is known as the 'City Reach Project' and it is designed to protect the
City from flood flows as high as 4500 cubic metres per second (cumecs).
The City Reach Project includes the construction of new stopbanks and raising the levels of existing
stopbanks between Napier Road and the Awapuni Landfill, and a number of heavy rock linings to ensure the
river does not erode and undermine the stopbanks. The project also includes the realignment of the
Manawatu River adjacent to the ANZAC Park Cliff, which is the particular subject of this resource consent
application.
Erosion in the ANZAC Park Cliff area has been an on‐going issue for a number of years. This issue was
recognised in the Palmerston North City District Plan and until recently the Plan included a 'Cliff Protection
Line' and rules making it a prohibited activity to construct buildings and dwellings near the cliff. The Cliff
Protection Line was based on the best knowledge at the time that it was incorporated into the Plan and was
intended to provide protection well into the future. However, in recent times, the rate of erosion has
accelerated and the cliff is retreating faster than anticipated. This increased rate of erosion will expose land
above the cliff to risk much sooner than expected and also presents increased risk to the LMS stopbanks
due to the river being directed towards them as the cliff retreats. Additionally the erosion of the cliff is
creating an unsafe environment for river users in this popular reach of the river due to the unstable ground
and continual slips.
In April 2006, the MWRC resolved to hold discussions with the Palmerston North City Council (PNCC) and
PMB Landco Limited (the affected landowner) in respect of options for funding works to mitigate the
erosion of the cliff. The LMS City Reach proposal was approved by the MWRC in December 2006 and the
2007/08 Annual Plan included $1.5 million to realign the river at ANZAC Park Cliff. Subsequent
investigations identified some engineering issues with the realignment proposal and highlighted a need to
consider other alternatives. The present proposal was developed and agreed with the various parties, and
adopted by the MWRC through the 2009/19 Long Term Council Community Plan.
The ANZAC Park Cliff project is a multifaceted project with involvement from the MWRC, the PNCC and
PMB Landco Ltd. The MWRC intends to realign the river to prevent it from causing further erosion in the
ANZAC Cliff area. The proposed works will provide long term benefits in minimising future erosion of the
opposite (city side) river bank. It will also minimise sediment release to the river and therefore improve
water quality, and will minimise the risks, associated with land slips to the public who use the river for
recreation.
The PNCC and PMB Landco Ltd involvement is due to the potential for development and use of the
residentially zoned land above the cliff. The PNCC notified proposed Plan Change 2 on 24 November 2010.
It sought to delete the Cliff Protection Line and prohibited activity rule and to control development on the
land through the provisions relating to the control of development on 'Undevelopable Land'. Proposed Plan
Change 2 was heard on 29 September 2011 and the decision was notified, and took effect, in November
2011. Plan Change 2 was proposed and approved in the expectation that the proposed river realignment
and stabilisation works would take place in the near future.
PMB Landco Ltd owns much of the land above the cliff. The company has already subdivided a portion of
the land and is keen to develop its remaining land in the area but is hampered in doing so by the increasing
threat of erosion of the cliff by the river and by the unstable cliff being within close proximity to the
development area, creating a potential safety hazard. PMB Landco Ltd intends to lower and batter the cliff
back to a gentler slope so that it is self‐supporting and stable. These works will take place after the MWRC
has carried out the realignment and is dependent on the MWRC works taking place. The works proposed
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by PMB Landco Ltd are addressed in separate resource consent applications that have been prepared by
Kevin O'Connor and Associates Ltd.
As described, the activities of the three organisations are interrelated and dependent on each other for the
project to proceed. The PNCC, having initiated and approved Plan Change 2, is relying on the MWRC and
PMB Landco Ltd to carry out the physical works to stabilise the cliff. PMB Landco Ltd has agreed to help
fund the realignment of the river but in doing so needs the certainty that the land will be able to be
developed so that it can expect some return on its investment. PMB Landco Ltd is also reliant on the
MWRC to carry out the river realignment so that it can then batter the cliff from the new river channel with
assurance that it will not be eroded away. The MWRC is, to some extent, reliant on PMB Landco Ltd to
carry out its proposed works to batter the cliff so that the erosion control and safety benefits of the river
realignment can be fully realised.
Once the project is completed, the Palmerston North community can expect a comprehensive and longterm
solution to the erosion issues at the ANZAC Park Cliff which will result in an environment where the
river water quality is improved through reduced sediment discharge, the river can be safely enjoyed and
where the threat to homes and flood protection infrastructure has been significantly reduced.
2 THE SITE
The ANZAC Park cliff is located on the true left bank of the Manawatu River opposite the Manawatu Golf
Course and just east of the Manawatu Observatory on Cliff Road. Views of the ANZAC Park cliff and the
river are most accessible from the Esplanade Walkway between the Fitzherbert Bridge and Albert Street. A
locality plan is shown in Figure 2.1 below and detailed plans of the site and its surrounds are attached to
this report as Appendix A.
Figure 2.1
Site Location
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Some 400 metres of the 55 metre high cliff face is actively eroding. An unnamed tributary (from the valley
between Cashmere and Waicola Drives) dissects the actively eroding part of the cliff into two parts; a
western cliff and an eastern cliff. The Mangaotane Stream (also known as Bryant's Creek) running from
Moonshine Valley joins the Manawatu River just upstream of the eastern cliff.
Much of the land directly above the western cliff is residentially zoned and lies between ANZAC Park and
Pari Reserve. The land is accessed from Vaucluse Heights. Some of this land has been subdivided with a
couple of dwellings already constructed at the Cashmere Drive end of Vaucluse Heights. The balance of
Vaucluse Heights, although formed, is in private ownership and does not have public access at this stage.
The land above the western cliff is being eroded and lost at an increasing rate. The cliff itself presents a
safety risk in the area, and while it has been fenced off in the past, the cliff is now slipping away beyond the
fence and constant repairs and adjustments to the fence are required.
ANZAC Park is located just west of the actively eroding cliff. This park is accessed from Cliff Road and
contains remnants of the 90 Mile Bush, a Tangata Whenua site (Te Motu o Poutoa pa), the Manawatu
Observatory and a car park. It is colloquially known as "Pork Chop Hill". The Te Motu o Poutoa pa is
recorded in the New Zealand Archaeological Association’s site recording scheme as Site T24/20. The cliff
below ANZAC Park still retains vegetative cover and is not actively eroding to the same extent as the subject
cliff.
The eastern cliff is mostly contained within the Pari Reserve however the top edge of the cliff has now
retreated beyond the reserve and is starting to erode the privately owned residential land that is located off
Waicola Drive. Further upstream of the eastern cliff the left bank of the river is lined with a strip of dense
vegetation (predominately willows and poplars with a mix of other exotic weed species interspersed
throughout) with farm land beyond.
At the site where the MWRC proposes to carry out the works the Manawatu River runs directly into the
base of the ANZAC Park cliff and is forced to make a sharp right hand turn. The flow of the river directly
into the cliff is undermining the base of the cliff and causing continual slips from higher up.
A large gravel beach has formed on the inside of the river bend and there is a grassy area between the
beach and the Esplanade Walkway. These attributes, along with the ready access to the City, make the area
popular for recreational activities, especially during summer.
3 THE PROPOSED ACTIVITY
The MWRC intends to realign the Manawatu River so that it is directed around the ANZAC Park cliff bend
without causing further erosion. This will take several stages to complete but when finished one will see
that the river takes a gentler curve and will be located near the position it was in 1992, being closer to the
right bank. A rock lining on the left bank will direct the river around this curve and a snub groyne will be
visible a short distance upstream of the rock lining. River gravel will be backfilled and compacted behind
the rock lining and the bed of the river will be armoured to protect it from scouring and erosion. The
unnamed tributary will be extended so that it flows through a gap in the upper portion of the rock lining
and the Mangaotane Stream will be realigned so that it joins the Manawatu River upstream of the snub
groyne.
Engineering drawings of the proposed works are attached to this report as Appendix B. Figure 1 shows an
overview of the site with the proposed layout of the rock lining, snub groyne, bed armouring and the
extension and re‐alignment of the small streams in the locality. It is noted that the aerial photograph used
in this figure was taken on 26 January 2011 when the river level was at least 1.7 metres above typical low
flow. Figures 2 and 3 show typical cross sections of the proposed river channel and rock lining, and Figures
4, 5 and 6 show details of other components of the proposal.
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The proposed works have been designed by the MWRC River Engineers. The design has been peer
reviewed by Gary Williams from G & E Williams Consultants Ltd. The peer review is attached to this report
as Appendix C.
It is intended to complete the works over one summer period (preferably the summer of 2012/13).
However it is recognised that this timeframe depends on weather conditions and river flows. If we have
another wet summer the works may need to be put off until more favourable conditions exist. It is also
possible that the works proposed by the applicant occur in one summer and the majority of the works
proposed by PMB Landco Ltd occur the following summer.
3.1 Reasons for the Proposed Works
There are a number of reasons for carrying out the works in the river at the ANZAC Park Cliffs. As noted,
the cliff has started to erode much faster than was anticipated, particularly since 2004, and it is estimated
that some 20,000m 3 of soil is now being eroded from the cliff each year. The rate of erosion can be easily
seen in the aerial photographs attached to this report as Appendix D. This erosion is a significant source of
sediment that is released to the Manawatu River each year, thereby contributing to the rivers already high
sediment loadings. Once the works are completed it is anticipated that the erosion and sedimentation from
the cliff will cease.
The retreating cliff is causing a change in the direction of the river flow to the extent that it will eventually
start to erode the opposite river bank, threatening the stopbank protecting the city. Major and costly
works will be required to protect the integrity of the stopbank to ensure that it continues to protect the city
from floods in the future.
If the cliff is left to erode it will eventually expose the existing residentially zoned land on top of the cliff to
significant risk. At some point works similar to those currently proposed will become necessary. As the cliff
erodes, increased costs can be expected due to the river channel alignment continuing to deteriorate
making it more difficult to rectify. Also if the cliff advances too far towards any residential development it
may not be possible to rectify without purchasing land and or dwellings to complete the works.
There is a significant risk to public safety. The site is a popular recreation site with people using the river for
swimming and kayaking. The cliff is extremely unstable and large slips can occur with little or no warning.
People pursuing recreational activities in that stretch of the river are exposed to a high level of risk. In
addition, risk is also present at the top of the cliff. As residential development continues in the vicinity
people are attracted to the open rural landscape around the top of the cliff. While the cliff has been
fenced, a recent visit to the site revealed that the cliff has now retreated beyond the fence and that it no
longer offers any protection to the public.
3.2 Description of Activities
To achieve the realignment of the river in a way that is physically possible, and to avoid or minimise effects
on the river, certain works will be required to occur in a certain order. The following describes the main
components of the works that will need to be undertaken to achieve the river realignment. A construction
methodology has been developed that describes the works, the sequencing of works and mitigation
methods in further detail. The methodology is attached to this report as Appendix E.
Access and Stockpile Areas
Approximately 30,000 tonnes of rock will be used in the construction of the rock lining, bed armouring and
snub groyne. A stockpile area (Stockpile Site 1) will need to be created on the grassed area between the
river and the Esplanade Walkway to accommodate up to 5,000 tonne of rock at any one time. This
immediate supply of rock is required so that there are no delays once construction of the lining is initiated
and also to smooth out any minor supply delays from the quarry should they arise.
Stockpile Site 1 will be accessed from an existing track leading from the end of Albert Street. Up to 300
tonnes of rock will be transported to the site each day, equating to 15 truck and trailer loads per day. It will
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take up to 150 working days (30 weeks) to deliver all of the required rock to the site. It is proposed to limit
truck movements 1 to the hours of:
Monday to Friday: 7:00am to 7:00pm
Saturday: 7:30am to 1:30pm.
A secondary stockpile area (Stockpile Site 2) is proposed to be developed on the left bank of the river and
will contain approximately 2000 tonnes of rock. This area will be accessed from a newly constructed ford
across the Manawatu River and access track from Stockpile Site 1. When the project is complete this
stockpile site will be disestablished and replanted.
A third small stockpile area (Stockpile Site 3) will be developed on land owned by the PNCC within the Pari
Reserve. This will be a permanent stockpile accommodating up to 300 tonnes of rock for future
maintenance of the rock lining if required.
River Crossing and Access Track
A ford will need to be constructed upstream of the proposed snub groyne to allow access to the left side of
the river. The ford will be constructed from river gravels and be 0.7 metres below the typical low flow level
of the river allowing for construction vehicles and machinery to pass. 300kg rock will be placed on the
upstream face to protect the ford from scour.
An access track will follow the existing beach from Stockpile Site 1 to the ford. The ford will access the
Hargreaves land where a short access track will be constructed along the river bank to proposed Stockpile
Site 2 and the rock lining site.
Diversion of the Mangaotane Stream
The Mangaotane Stream will be permanently diverted so that it enters the Manawatu River upstream of
the snub groyne. A crossing will be constructed where the stream crosses the access track to allow for its
passage to the river.
Vegetation Clearance
Clearance of vegetation will be required to allow for the access track, the new bed for the Mangaotane
Stream and the construction of Stockpile Site 2. The vegetation in this area predominately consists of
willow and poplar trees and other weedy species such as gorse and broom.
Temporary River Channel
A channel of at least 40 metres wide will be excavated through the gravel beach on the right bank of the
river to act as a temporary river channel whilst the rock lining is completed. The excavation will start from
the downstream end with the gravel from the excavation placed on the land between the current river
channel and the excavation for later use as fill behind the rock lining. 20 metre wide areas of gravel will be
left at each end of the channel to prevent water flow through the area while it is being excavated. These
buffers will be removed once the channel is completed to allow the river to flow through the new channel.
Snub Groyne
Groynes are structures that protrude from the river bank so as to modify channel alignment by shifting
higher velocity flows away from the bank.
A snub groyne will be constructed a short distance upstream of the rock lining to help direct the water
towards the temporary river channel. The snub groyne will remain in place permanently to help direct
water along the rock lining once it is completed. The groyne will protrude into the river by 16 metres (the
1 "Movements" refers to a single entry and single exit
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same as the upstream end of the rock lining) and will be constructed to a height that corresponds with the
annual return flood level.
Temporary Cofferdam
A cofferdam will be constructed from the snub groyne to the temporary river channel to divert the river
into the channel and thereby allowing construction of the rock lining to proceed in a flow free river bed. A
further cofferdam will be constructed at the downstream end of the works to prevent water back‐flowing
into the work area and to minimise sediment release form the works to the river.
Rock Lining
Rock linings generally provide protection against lateral erosion through the placement of rock directly
against the lower sections of the river bank.
In this instance the rock lining will be constructed away from the base of the cliff and will be reinforced by
the gravel previously stockpiled in the middle of the river by placing it behind the rock lining as the work
progresses. The lining will have a similar design to other rock linings already constructed within the City
Reach. It will be approximately 460 metres long. The rock lining will extend one metre below the level of
the river bed when the works are complete with the upper level of the lining at a height corresponding with
the annual return flood level. The lower part of the lining will be constructed with a median rock size of
750kg and be 1.7 metres thick. Above this, the lining will be constructed with a median rock size of 300kg
and will be 1.2 metres thick. The whole lining will have a 2:1 slope (26.6 degrees).
The rock lining will be constructed to allow the unnamed tributary to enter the Manawatu River with the
top part of the wall curving towards the stream as shown on Figure 1 (attached as Appendix B). The stream
will be channelled across the gravel backfill and through this ‘gap’ in the rock lining.
As mentioned, PMB Landco Ltd intends to re‐contour the western cliff. These works will see the cliff
battered back to a slope starting from a point that leaves a seven metre wide bench on the rock lining to
allow access for maintenance of the lining and for a possible future walkway connecting ANZAC Park to Pari
Reserve. The lower part of the re‐contoured cliff will be lined with quarry rock to protect the fine soils from
the cliff being eroded during floods that are higher than the annual return flood level.
Bed Armouring
Bed armouring layers consist of a few widely spaced larger rocks interspersed with smaller rocks. The larger
rocks reduce the flow velocity close to the river bed thereby minimising scouring. The bed armouring
concept has been successfully used in two locations within the City Reach; around the groynes at Fitzroy
Bend and at the downstream end of the Katene Street rock lining.
The new bed of the river will be armoured to prevent any scouring that may undermine the new rock lining.
This armouring layer will be 500mm thick and consist of 80% reject quarry rock and 20% rock with a 300kg
median weight.
Gravel Recovery (if required)
There is a risk that if a flood occurs during the construction period it could potentially wash stockpiled
gravels downstream. If this occurs, recovery of these gravels will likely be required to ensure enough gravel
is available to support the rock lining and complete the works.
Tied Tree Works
Once the rock lining is completed, the river bank upstream of the lining will be protected with tied tree
works. The purpose of this activity is to prevent lateral erosion of the river bank and maintain river
alignment, by providing relatively heavy vegetative protection, developing strong root systems, and
encouraging the deposition of sediment at the toe of the banks. The works will involve anchoring live trees
to the river bed and bank with wire ropes and anchors. Further tree planting will be carried out behind the
tie tree works during the winter following construction.
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3.3 Monitoring and Maintenance
Once the works are completed they will be maintained in perpetuity as a Lower Manawatu Scheme asset.
It will be necessary to monitor the rock lining and groyne on a regular basis, and particularly after any
floods, to ensure that any faults are noted and rectified as required.
The rock lining is designed to be ‘self‐healing’ so that if any rocks are displaced from the lining due to
undermining, the rocks higher up the lining can slip down to take their place and continue to provide
protection of the river bank. The lining can then be topped up from above after the event. For this reason,
vehicular access will be required along the top of the lining and from time to time it is likely that machinery
will be present to carry out repairs and to top up the lining as required.
It is proposed to leave approximately 300 tonnes of rock at Stockpile Site 3 for future maintenance of the
rock lining and groyne. This will reduce the need to transport rock across the Manawatu River. However, it
is likely that machinery will need to cross the river to carry out any maintenance required and as such, it is
proposed to leave the ford in place after the construction. While this structure will likely erode over time, it
is expected to be a simple exercise to bring it back up to useable/crossable state by topping it up with
gravel as or when required.
The ford will also be used to top up the Stockpile Site 3 if required in the future. This will involve the
stockpiling of the rock on the right bank first and then transporting it over the river. It is expected that this
would not occur more than once every five to ten years and would require 15 loads resulting in 30 river
crossings.
4 ALTERNATIVES
4.1 Management of Erosion at ANZAC Cliffs
Several alternatives to manage the erosion at the ANZAC Park cliff area have been considered over recent
years. These include the following:
Realign the river now
This is the option that has been decided upon and for which resource consent is now being sought. Within
this option three proposals have been considered.
The first option considered was to realign the river on a gentler curve by locating it hard against the right
bank. This would involve considerably more excavations and construction of a longer rock lining.
Investigations also proved that there would be issues with an artesian aquifer underneath the site. Also,
the financial cost of undertaking this option was prohibitive.
The second proposal was somewhat less ambitious, and consisted of a rock lining of some 560 metres long
in a similar position to that proposed now but extending upstream an additional 100 metres. Until recently
this was the preferred option. However, there are several reasons why this option has not been adopted.
Surveys of the gravel beach indicated that there would be insufficient gravel available for the back fill
required. Rising costs of transport require that as much material as possible is sourced from the site and
carting in gravel from elsewhere would exceed available budgets. The extra 100 metres of rock lining would
also add significantly to the amount of rock required to be transported to the site. The Regional Council has
been unable to gain access to the river, for construction, from the left bank, meaning that all rock for the
lining now has to be transported through residential areas of town and forwarded across the river. Again
this has added to the overall costs of the project and also causes some additional disturbance to residents
and the river. The Mangaotane Stream is also problematic with it currently joining the Manawatu River
behind the proposed rock lining thereby requiring it to be realigned so that it joins the river upstream of the
lining. The longer lining made this difficult to achieve.
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The third option is that for which consent is currently being sought. This is considered to be the most
appropriate as it achieves the level of protection required whilst minimising adverse effects on residents
and the river and is cost effective. This option has been fully described above in Section 3 of this report.
The proposed option will see an improvement to the water quality, due to less erosion and consequent
sediment discharge, of the Manawatu River and an improvement in the operation of the Lower Manawatu
Flood Protection Scheme. When combined with the works proposed by PMB Landco Ltd the full benefits
become more apparent with a significant improvement in public safety through the minimisation of slips
and reduction in the risk of serious falls from the cliff, a small increase in the available developable land
above the cliff and reduced risk to existing and future dwellings and sections above the cliff.
Realign the river or carry out remedial works in the future
This approach involves delaying any realignment works until a later date when the erosion becomes directly
problematic in that it starts to affect the flood protection assets currently protecting the city or causes
unacceptable erosion of the residential land above the cliff. While this option will save some short term
expenditure it will likely be a more expensive option in the long term. As the cliff retreats, the angle of the
river is becoming more acute making it harder to rectify. Also as more and more soil is eroded away it is no
longer available for use as fill to pack in behind the rock lining and less land will be available for
development above the cliff making the viability of completing the works less desirable.
Remedial works could be carried out to protect the city side riverbank in the future when the retreating cliff
directs the river flow in such a direction that it starts to erode the stopbank. This would involve the
construction of a rock lining, similar to that being proposed, except on the right hand bank. This option
would not bring the added benefits of providing a safe environment for river users and there would
continue to be a loss of residential land from the Vaucluse Heights area.
Do nothing
This approach would see the Manawatu River take its natural course. The river will continue to erode the
cliff at ANZAC Park and given the sharp right hand turn at the cliff it will eventually result in the river
attacking the right river bank near the Manawatu Golf Club's land. The cliff edge will continue to move
towards the existing dwellings and sections on Vaucluse Drive and Waicola Drive and will eventually cause
an unsafe living environment for those residents of the City. As outlined in Section 3.1 of this report the 'do
nothing' approach will only be viable for a limited timeframe before remedial works are required.
4.2 Construction and Access
Two main alternatives have been considered in the construction of the proposed works. Essentially, the
major point of difference has been the location of the access to the site. The initial construction
methodology had access to the site via Petersens Road and through two private land holdings. This would
have involved upgrading an existing access track through the private land to reach the river where a rock
stockpile area could be created. The methodology was similar to that proposed in all other respects with a
temporary river channel, snub groyne and coffer dam constructed first followed by the construction of the
rock lining, bed armouring and re‐contouring of the cliff.
Benefits of this option were that machinery would not need to cross the river, transportation costs would
be reduced, due to a shorter distance travelled, and there would be fewer disturbances to the city
residents, on the esplanade walkway and the grassy areas on the right river bank. However, the Council has
been unable to gain access through the private land to the site for the construction phase of the project
thus requiring an alternative access.
Potential options to access the site from Cliff Road and from Vaucluse Heights have been considered. Both
of these options would require an access road to be constructed from the top of the cliff to the river. Given
the instability, and consequent safety issues, associated with the cliff and the extra disturbance that any
access road would create these options have been considered to be unsuitable. Access to the site from
Albert Street, as proposed, is the only viable option available.
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5 REGULATORY FRAMEWORK
5.1 Manawatu-Wanganui Regional Council
Section 13 of the RMA restricts certain uses of the beds of lakes and rivers and states, inter alia, that no
person may use, erect or place any structure in, on or over the bed and that no person may excavate, drill,
tunnel or otherwise disturb the bed of any river unless the activity is allowed by a national environmental
standard, a rule in a regional plan as well as a rule in a proposed regional plan, or a resource consent. The
proposal involves the construction, use and maintenance of structures that will be erected or placed in and
on the bed of the Manawatu River and will involve the excavation and disturbance of the river bed and is
subject to the requirements of the MWRC's operative and proposed Regional Plans.
5.1.1 Regional Plan for Beds of Rivers and Lakes
On the face of it, it appears that Rule 22 of the Regional Plan for Beds of Rivers and Lakes (BRL Plan) would
apply to this application, given its heading of 'Structures and Activities for Flood Protection or Erosion
Control and the Mitigation of Flood Hazards'. The introduction to the Rule appears to anticipate the type of
activity proposed, but it then goes on to only provide for four categories of structures or works, each of
which are defined in size, length or some other limiting factor. These structures or works are deemed to be
permitted if they comply with certain conditions.
While some parts of the current proposal may meet the definitions and conditions under this rule, such as
the tree bank protection works, in general the bulk of the proposed works do not fit within the defined
structures or works and therefore Rule 22 has limited applicability to this proposal. Notwithstanding this,
Rule 22 does permit tree bank protection works provided certain standards are met. The proposed tied
tree works will be carried out so that compliance with the standards is met and it is considered that this
component of the works is a permitted activity.
The vegetation clearance required for the diversion of the Mangaotane Stream and for the establishment of
the access tracks and rock Stockpile Site 2 is provided for under Rule 19. This rule permits the removal of
vegetation from the bed of a river provided certain conditions are met. Most of these conditions relate to
water quality. The vegetation to be removed is situated on the river banks and not within the flowing river
itself. The removal of vegetation will be undertaken so as to comply with the conditions under Rule 19 and,
as such, is a permitted activity.
Rules 9 and 10 relate to diversions of water, associated bed disturbance and structures for diversion. Rule 9
provides for minor diversions and associated activities, including the excavation or disturbance of a river
bed, the damming or discharge of water, the discharge of sediment and the drainage or reclamation of the
old bed as permitted activities provided they meet certain performance conditions. This proposal does not
meet performance condition (i) in that the realigned channel will exceed 100 metres in length. It therefore
falls to be considered as a Discretionary Activity under Rule 10 of the BRL Plan.
Rule 10 provides for new diversions of water within or out of the bed and associated activities including:
The erection or placement of a structure in, on, under or over the bed of a river or lake;
The disturbance of a river or lake bed; and
The discharge of sediment.
It is noted that Rule 10 does not specifically include the 'excavation' of the river bed as an associated
activity, as Rule 9 does. It appears that this may be an oversight in the drafting of the Plan as the advisory
note in Rule 9 states that:
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"Any activity otherwise governed by, but does not comply with one or more of the performance
conditions of BRL Rule 9 is a Discretionary Activity in accordance with BRL Rule 10 and a resource
consent is required".
Given that 'excavation or disturbance of a river bed' is governed under Rule 9, it follows that it would be
addressed under Rule 10 if a performance condition was not met, as is the case with this proposal.
Furthermore, the introduction to Rules 16 and 17, which provide for the excavation of the bed that does
not remove material, states that excavation or other bed disturbance associated with structures associated
with damming or diverting are provided for under Rule 10, among others.
It is considered that Rule 10 of the BRL Plan is the appropriate rule to apply to the proposal giving it a
discretionary activity status.
5.1.2 Proposed One Plan
The proposed One Plan is a combined regional policy statement and regional plan. The decisions on
submissions to the proposed One Plan were publicly released on 24 August 2010 but many were
subsequently appealed. Appeals have not yet been heard and at this stage the plan is not operative and its
provisions cannot be afforded full weight.
Chapter 16 of the proposed One Plan provides for activities in the beds of rivers and lakes. Specifically, Rule
16‐13 provides for activities undertaken by or on behalf of the Regional Council in rivers with a 'Schedule AB
Value of Flood Control and Drainage', as a permitted activity. The Manawatu River has this 'Flood Control
and Drainage Value' assigned to it between the Coastal Marine Area boundary and the confluence with the
Pohangina River, therefore Rule 16‐13 is applicable to this proposal. Rule 16‐13 provides for the following
activities:
a. The erection, placement, or extension of any structure in, on, under or over the bed of a river pursuant
to s13(1) RMA
b. The excavation, drilling, tunnelling or other disturbance (including gravel extraction) of the bed of a
river pursuant to s13(1) RMA
c. Any damming or diversion of water pursuant to s14(2) RMA
d. Any discharge or deposition of plants, removed bed material, rock, shingle, earth, cleanfill material,
water or sediment into water or onto or into land pursuant to ss13(1), 15(1) or 15(2A) RMA
e. The damage, destruction, disturbance or removal of plants or parts of plants pursuant to s13(2) RMA.
These activities are considered to be Permitted Activities provided that the activity is undertaken in
accordance with the following listed sections of the Environmental Code of Practice for River Works
(MWRC, June 2010) and does not involve an activity prohibited under Rule 16‐1 or an activity regulated
under Rule 16‐4 (except that the activities may be carried out in specified Sites of Significance ‐ Aquatic and
Sites of Significance ‐ Cultural).
The Generic Standards in section 2.4.2 of Part One Generic Standards for Good Practice
The description of each Activity and the associated Standards for Good Practice in Part Two (for the
avoidance of doubt, excluding the discussion of the Resource Management Act and potential beneficial
and adverse effects)
Generic Special Standards and the Site Specific Special Standards in Part Three (for the avoidance of
doubt, excluding Scheme maps and Scheme dams and locations)
Part Seven Definition of Terms, insofar as those defined terms must not be used other than in relation
to interpreting the Environmental Code of Practice for River Works.
The proposed works, in particular the diversion of water, fail to comply with all of the Part Two standards of
the Environmental Code of Practice, particularly those specific to gravel management including channel
realignment and diversions. The proposed works will not meet Condition 5 relating to gravel movement on
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beaches which specifies that such movement shall be limited to strips not exceeding 3 metres in width. The
proposal involves excavating a channel, of at least 40 metres wide, through the gravel beach to act as a
temporary diversion and will also involve the movement of gravel from the beach in greater than 3 metre
wide strips.
The tied tree works and the removal of vegetation will be carried out in accordance with the standards
within the Environmental Code of Practice for River Works and are therefore considered to be permitted
activities.
The identified non‐compliances with the standards of the Environmental Code of Practice in relation to the
movement of gravel mean that the bulk of the proposal must be considered under other rules within the
One Plan.
Given the proximity of the subject site to Te Motu‐a‐Poutoa it is considered by the MWRC that the subject
site is a Site of Significance – Cultural and that Rule 16‐4 could therefore apply. This view was discussed in a
meeting with representatives from Tanenuiarangi Manawatu Incorporated (TMI) with no alternative view
being raised as to this status.
This rule provides for all of the proposed activities as a Discretionary Activity and states:
Except as prohibited by Rule 16‐1, any of the following activities pursuant to s13(1) RMA within:
…
(b)
Sites of Significance ‐ Aquatic and Sites of Significance ‐ Cultural
(i)
(ii)
and any ancillary:
(i)
(ii)
(iii)
The erection, placement or extension of any structure^ in, on, under or over the bed^,
except for lines, cables and ropeways that are suspended above the water^ and do not
require a support structure^ in, on, over or under the bed^ and except for those activities
regulated by Rule 16‐13
Any excavation, drilling, tunnelling or other disturbance of the bed^, except for
those activities regulated by Rules 16‐6 and 16‐13
damming or diversion of water^ pursuant to s14(2) RMA
discharge^ of water^ or sediment into water^ or onto or into land^ pursuant to ss15(1) or
15(2A) RMA
deposition of substances in or on the bed^ pursuant to s13(1).
It is noted that this Rule does not apply to those activities regulated by Rule 16‐13. Given that the proposal
cannot comply with Rule 16‐13 it could be considered that it is not regulated by the Rule and that Rule 16‐4
is the appropriate rule to apply thereby giving it a discretionary status. An alternative view could be that
the proposed activities are regulated by Rule 16‐13 and because they do not comply with the
Conditions/Standards/Terms under that rule the proposal is considered a discretionary activity under Rule
16‐20 being the default rule for all activities not otherwise complying with permitted, controlled or
restricted discretionary activity rules within Chapter 16 of the Plan.
In any case, the activity is considered to be a Discretionary Activity under the Proposed One Plan.
5.1.3 Summary of Activity Status
The proposal is considered to be a Discretionary Activity under both the Regional Plan for Beds of Lakes and
Rivers and the Proposed One Plan.
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5.2 Palmerston North City Council
Due to the erosion in the ANZAC Cliff area the river has moved beyond the river channel as defined in the
Palmerston North City District Plan (e.g. Water Recreation Zone and Flood Protection Zone) and now also
runs through parts of an unformed road, the Residential Zone and the Conservation and Amenity Zone as
defined in the Plan. Accordingly the proposed works will also take place within these zones, although they
will be within the current river bed. The location of the proposed works in relation to the Palmerston North
City zoning can be seen on Figure C contained within Appendix A attached to this report.
5.2.1 The Palmerston North City District Plan
The proposed works will take place within several zones as defined in the Palmerston North City District
Plan (the District Plan) as follows:
Water Recreation Zone
Flood Protection Zone
Conservation and Amenity Zone
Residential Zone
In addition to the above zones, the works will also take place within the boundaries of an unformed road.
Rule 24.3.1 of the Plan requires that all roads, whether constructed or not, shall be given an underlying
zoning of the adjoining property. Therefore the unformed road will assume the zoning of the adjacent
properties and in this instance will include all of the abovementioned zones.
Water Recreation Zone
The Water Recreation Zone has been established to cover the fresh water surface areas of the Manawatu
River, and other rivers, located within the Palmerston North City boundary and is focussed on permitting
recreational activities while controlling noise from such activities. The rules permit water related recreation
activities and associated activities and minor temporary military training activities with all other activities
deemed to be Discretionary Activities under Rule 15.6.6.1.
However, under the explanation in Section 15.6.1 Objectives and Policies, the following is stated:
Activities occurring on the riverbeds, or within the waterbody, are the responsibility of the Manawatu‐
Wanganui Regional Council and are not addressed in this District Plan. Activities which may disturb
riverbeds in any way require a consent from the Manawatu‐Wanganui Regional Council.
This statement provides a clear message that the District Plan does not address activities that take place in
or on a river bed or within a waterbody. It is considered that the proposed works are works that will take
place in and on the bed of the river as defined in the Act and are therefore a Regional Council matter and
not of concerns to the Territorial Authority.
Correspondence with the PNCC Senior Planner regarding this issue established that the PNCC considers that
a resource consent from it is required, especially in respect of the Conservation and Amenity Zone and the
Residential Zone.
It is considered that resource consent from the PNCC is not required for the works within the Water
Recreation Zone, however, if determined otherwise, sufficient information is provided within this
assessment of environmental effects to enable a full assessment of the activities to determine consent.
For the avoidance of any doubt a land use consent is sought, if required, under Rule 15.6.6.1 for the
construction, use and maintenance of the flood and erosion control structures and any associated
structures, as a Discretionary Activity.
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Flood Protection Zone
The Flood Protection Zone lies on land adjacent to the river and is generally defined by the river’s stopbanks
or maximum flood flows. Rule 22.8.1.1 states:
R 22.8.1.1 Permitted Activities
The following activities are Permitted Activities:
(i)
(ii)
(iii)
(iv)
Recreational activities.
Grazing and cropping, including horticulture.
Walkways, bridlepaths and cycleways.
Soil conservation and river control works carried out or supervised by the Manawatu‐Wanganui
Regional Council
The proposed works and any future maintenance fall within (iv) Soil Conservation and River Control Works
carried out or supervised by the MWRC, and are therefore deemed to be a Permitted Activity in this zone.
Conservation and Amenity Zone
The Conservation and Amenity Zone covers natural areas that have been identified as having high
environmental or amenity values. The allotments containing both ANZAC Park and Pari Reserve are zoned
Conservation and Amenity and small parts of the rock lining and gravel back fill will be located within the
zone.
In this zone the construction and development of flood protection works by the MWRC are provided for as
a Discretionary Activity under Rule 15.5.7.2. This rule states:
R 15.5.7.2 Construction, Development or Redevelopment of Flood Protection Works by the
Manawatu‐Wanganui Regional Council
The construction, development or redevelopment of Flood Protection Works or Structures by the
Manawatu‐Wanganui Regional Council shall be a Discretionary Activity (Unrestricted).
The structural maintenance of flood protection works is deemed to be a Controlled Activity in the
Conservation and Amenity Zone under Rule 15.5.5.1 that states:
R 15.5.5.1 Structural Maintenance of Flood Protection Works by the Manawatu‐Wanganui Regional
Council
Structural Maintenance of Flood Protection works or structures by the Manawatu‐Wanganui Regional
Council are Controlled Activities with regard to:
‐ Effects on Adjoining Residential Areas;
‐ Effects on Conservation, Heritage, Scientific, and/or Amenity Values;
‐ Effects of Disturbance on Land Form;
‐ Disturbance of Flora and Fauna.
Residential Zone
The Residential Zone provides for residential and certain non‐residential activities throughout the City. A
small portion of the proposed works will extend into the Residential Zone where it currently overlaps the
active river channel.
In the Residential Zone the construction and development of flood protection works by the MWRC are
provided for as a Restricted Discretionary Activity under Rule 10.8.3.3. The rule states:
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R 10.8.3.3 Construction, Development or Redevelopment of Flood Protection Works or Structures by
the Manawatu‐Wanganui Regional Council.
The construction, development or redevelopment of Flood Protection Works or Structures by the
Manawatu‐Wanganui Regional Council shall be a Discretionary Activity (Restricted) with regard to:
‐ Height
‐ Location
‐ Effects of such work on residential amenity
It is noted that Rule 10.8.1.9 provides for the structural maintenance of flood protection works or
structures by the MWRC as a Permitted Activity.
5.2.2 Summary of Activity Status
Resource consent is required to construct the flood protection structures as a Discretionary Activity under
Rule 15.5.7.2 (Conservation and Amenity Zone) and as a Restricted Discretionary Activity under Rule
10.8.3.3 (Residential Zone). If resource consent is required for the proposal within the Water Recreation
Zone then both the construction and future maintenance of the structures will be a Discretionary Activity
under Rule 15.6.6.1.
Resource consent is also required for future maintenance of the structures within the Conservation and
Amenity Zone as a Controlled Activity pursuant to Rule 15.5.5.1.
Overall it is considered appropriate that the consents required from PNCC be bundled and that the proposal
be assessed as a Discretionary Activity under the Palmerston North City District Plan.
5.3 Statutory Process
5.3.1 The Resource Management Act 1991
The activities, structures and associated sediment discharges of the proposed works are considered to be
discretionary activities under the relevant plans. Sections 104 and 104B of the Act apply to the activities for
which consents are being sought. Given that there is likely to be some discharge of sediment as the works
take place, the matters outlined in Section 105 of the Act also apply to the proposal. In this instance there
are no alternatives possible to the discharge of the sediment, given that the works can only take place in
the river. The best that can be achieved is that the discharge of sediment is managed to keep it to a
minimum. This is largely achieved through following the proposed methodology of works. The relevant
assessments under Section 104 are contained below in this report.
5.3.2 National Environmental Standards
Applications for discharge permits are required to be assessed against the Resource Management (National
Environmental Standards for Sources of Human Drinking Water) Regulations 2007. Regulations 7 and 8 of
the National Environmental Standard refer to instances when a Regional Council must not grant a water
permit or discharge permit. Regulation 6 limits their applicability to activities that have the potential to
affect registered drinking‐water supplies that provide more than 501 people with drinking water. In this
instance there are no registered drinking water supplies that source water from the Manawatu River
downstream of the activity. Therefore, the National Environmental Standard does not require further
consideration.
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5.4 Objectives and Policies
There are a number of objectives and policies that are relevant to these applications. These include the
relevant objectives and policies contained within the following documents:
National Policy Statement for freshwater management;
The Operative Regional Policy Statement;
The Regional Plan for the Beds of Rivers and Lakes;
The Proposed One Plan; and
The Palmerston North City District Plan
The relevant objectives and policies from these documents are assessed in Section 7 of this report below.
6 ACTUAL AND POTENTIAL EFFECTS OF THE ACTIVITY
The effects of the proposal can be split into two broad categories; the permanent effects of the completed
works and the shorter term effects that arise during the construction phase of the project. This assessment
addresses only the actual and potential effects of the proposed works carried out by the Regional Council.
The effects of the proposed works carried out by PMB Landco Ltd are addressed in the separate
applications lodged with the Palmerston North City Council and the Manawatu‐Wanganui Regional Council
for those works.
6.1 Construction Effects
It is acknowledged that adverse effects may potentially be generated during the construction phases of the
project. These effects will be of a relatively short duration and will affect only a short section of the river
and surrounding environment for one summer construction season. A construction methodology has been
formulated that will minimise the potential effects as much as is possible. This is attached to this report as
Appendix E.
In terms of avoiding potential effects three key principles have been utilised in the construction
methodology. These are to:
Carry out works in the dry or in non‐flowing river bed or water as much as possible
Minimise machinery in water
Provide silt retention facilities (silt fences and sediment ponds)
Effects on water quality
The main effect on water quality will be the potential discharge of sediment to the river during excavations
and construction of the various components of the project. The effects of sediment on waterways can
include the smothering of aquatic life, loss of spawning grounds, reduction in habitat quality, disruption of
upstream migrations, and reduced feeding and growth rates for aquatic life.
It is intended to keep such sediment discharges to a minimum by adherence to the proposed construction
methodology and the implementation of the silt mitigation measures contained therein.
As much of the works as possible will be completed from the right bank without disturbing the river. This
includes the placing of the 750kg rock for the lining between chainages 280 to 480 (refer to Site Layout plan
– Appendix B for chainages).
The river channel for the temporary diversion will be excavated through the beach starting 20 metres from
the downstream end and moving upstream to ensure that that flowing water is not running through the
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channel as it is excavated. Once the bulk of the channel is excavated the remaining downstream and
upstream portions will be removed allowing the river to flow through. This will likely see a ‘flushing flow’ of
water containing higher than normal loads of sediment from the disturbed gravels for a short time.
Accessing the site from the right bank will necessitate carting most of the rock across the river. A crossing
(ford) will be established upstream of the work site to allow for this. It is expected that sediment in the
river bed will be disturbed and released during the construction of the ford. Numerous trips across the
river by off‐road trucks will be required and while these crossings may cause disturbance of the gravels in
the ford, initially resulting in a small amount of sediment discharge, it is expected that this will soon settle
and any discharge will be minimal. It is noted that the trucks themselves will not introduce new
contaminants into the river environment.
The construction of the snub groyne and cofferdam will be constructed in the active river channel and there
is expected to be some sediment released from the river bed and gravels while this work takes place. Past
experience has shown that sediment discharges from this type of work is short term and any discoloration
is expected to dissipate within 200 to 300 metres of the site. The groyne and coffer dam will be wide
enough to allow heavy vehicle access from the central island created between the new river channel and
the old channel and will be used to transport gravels between the island and the work site.
A further cofferdam will be constructed downstream of the worksite to prevent the free flow of river water
from entering the site. The construction of the majority of the rock lining and the bed armouring will take
place in the dry 2 river bed contained within the cofferdams minimising the release of sediment into the
river.
The unnamed tributary that runs from the central valley between Waicola and Cashmere Drives will run
into the ‘dry’ area. This stream only flows during wet weather and only has a small volume of flow. As the
works progress past this stream, it will be channelled so that it can flow directly over the rock lining and to
the river. A cross section of the proposed stream channel is shown on Figure 5 of the engineering plans
attached as Appendix B. The Mangaotane Stream will be diverted so that it runs to the Manawatu River
upstream of the proposed works thereby avoiding any issue of inflow and associated outflow of sediment
laden water from the work area.
The lower portion of the rock lining will be constructed within the flowing river but will be done so from the
left bank and from the platform created from the previously completed works. Excavations of the river bed
to reach the founding depth of the rock lining will cause unavoidable sediment release to the river. Once
the lower portions of the wall are constructed it is expected that sediment release will be minimal. River
gravels will be carted from the central island over the upstream coffer dam and to the construction site
thereby requiring no river crossings during this phase of construction.
An additional potential cause of an adverse effect on water quality is the accidental release of oils or other
chemicals from machinery working in the riverbed. All machinery working in this environment is required
to be of good condition and properly maintained and is not to be parked or left unattended in or near the
river. The risk of this type of spill is considered to be extremely low.
All fuels and oils will be required to be stored well away from any surface water bodies and in bunded
facilities to avoid the likelihood of such contaminants entering water bodies.
Unclean machinery can also spread weed species into new terrestrial and aquatic environments. This has
been observed in the South Island with the rapid spread of Didymo throughout several water bodies. To
minimise such risk all machinery will be required to be cleaned prior to entering any water bodies on the
site to prevent the spread of pest species.
2 The term 'dry' is used here but is a loose term as the bed will still contain water but it will not be running into the river. It would be more of a pool of still water.
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The extent and nature of the disturbance to the river bed
The proposed works will disturb the bed of the river in the immediate location of the works. As described
in Section 3.2 above, it is intended to excavate a temporary river channel through the beach on the right
bank of the river and to eventually use this gravel to support the rock lining. The proposed works will
disturb the river bed for much of its width in places and for a length of some 550 metres in total.
Some of the proposed works will be permanent, e.g. the rock lining, the snub groyne, bed armouring and
re‐alignment of the River and Mangaotane Stream. Other components will be removed once works are
complete, e.g. cofferdams. It is expected that the beach on the right river bank will reform over time after
completion of the works however, it will not reform to the same extent that it is now due to the river being
closer to the right bank.
Effects on in‐stream habitats, spawning habitats and fish passage
The proposed method of construction will ensure that fish passage is maintained in the Manawatu River at
all times during the construction period. Fish passage will also be maintained for the Mangaotane Stream.
The unnamed tributary only flows during wet weather and it has a small waterfall of about two metres in
height as it joins the river. When the works are complete it is expected that it will continue to have a similar
fall into the river at low flow conditions.
Any habitats in the immediate area of the works will likely be destroyed, however it is expected that such
habitats would quickly reform in this area once the works are complete as has occurred near other rock
linings along the river. Downstream habitats could potentially be affected by sediment released from the
river bed during the works but it is expected that this will be limited to 200 to 300 metre downstream of the
site. Past experience has shown that sediment can be released from such works but that it is minimal and
does not stay in suspension for any great distance. Adherence to the construction methodology will
mitigate the severity of the effects on downstream habitats with the majority of the works taking place out
of the active river channel.
The ‘in river’ construction works are programmed to start in September 2012 and are expected to be
complete by April 2013 thus avoiding the spawning season of trout (May to September).
Effects on flood flows
The works will not restrict or affect flood flows of the river itself, however, the possibility of floods during
the construction phase presents challenges to the project. If a flood were to occur during the construction,
it is possible that stockpiled gravel could be lost downstream. To help mitigate this, the work is to proceed
quickly once commenced. Also, the shape of the stockpile, following the curvature of the river, and the
addition of larger rocks at the upstream end of the stockpile are expected to minimise any losses during a
flood event. Some gravel recovery may be required from downstream if losses are experienced.
Effects on water levels and passage of flows
The passage of flows will be maintained throughout the construction stages of the project. Once the river is
diverted through the temporary channel the works will proceed in the "dry" river bed with no effect on the
river flow. Water levels are not expected to alter as a result of the proposal. The river will still rise and fall
naturally in accordance with rainfall in its catchments.
It is intended to realign the Mangaotane Stream so that it joins the river just upstream of the snub groyne.
Once the initial re‐alignment is completed the only further effects on this stream will be from machinery
crossing it via a ford on the access track to the site. The rock lining will be designed to accommodate the
smaller unnamed tributary so that it will join the river in the approximate location and level that it does
now.
Effects on public access to the river and recreation
During construction, public access to the site, in particular the river, beach and rock stockpile area will need
to be restricted. Currently there are signs restricting access to the river in this location due to the existing
safety concerns in the area so effectively there will be little change from the current situation.
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Before any works start, Stockpile Site 1 and the surrounding area will be fenced off to prevent public access
to the site. Access will be maintained along the Esplanade Walkway between the river and golf course. It is
noted that part of the Esplanade Walkway is currently shared with the access track between Albert Street
and the proposed stockpile area. To address this, prior to any works commencing on the site a Health and
Safety plan will be developed for the works and site that will address the shared access arrangement and
seek to eliminate, isolate or minimise risks and hazards associated with this, as is required under the Health
and Safety in Employment Act.
Effects on spiritual and cultural values
The works are proposed to occur within the current active channel of the river and on land where the river
has flowed in the past. It is unlikely that any archaeological sites exist within the active river channel or past
channels as any such sites would most likely have been washed away by the river.
No archaeological sites are known to exist within the subject site itself, however given the location of the
nearby Te Motu o Poutoa pa site it is possible that archaeological sites or remains may be discovered at the
base of the cliff where debris has slipped from above. During the PNCC Plan Change 2 process a Protocol
for the Accidental Discovery of Archaeological Sites was developed for the works at the site. This protocol is
attached to this report as Appendix F and outlines the process to be followed in the event that an
archaeological site is discovered including the cessation of works. It is proposed to adhere to this protocol
should any site or remains be discovered at the work site.
It is noted that an archaeological site T24/22 is recorded with the New Zealand Archaeological Association
as being located near the Esplanade Walkway between the site and the Manawatu Golf Course. While not
within the subject site an authority from the New Zealand Historic Places Trust is being sought for the works
near the site separately to this application.
Traffic Effects
It is expected that up to 15 truck and trailer loads of rock per day will be delivered to the site. In addition,
transporters will deliver the necessary machinery to the site as required throughout the works and light
vehicles will visit the site on a daily basis with various personal such as machinery operators, engineers,
MWRC staff, and other such persons required to carry out or oversee the works.
Access to the site will be from Albert Street. Contracts for the rock supply or construction works have not
been let at this stage so there is some uncertainty as to where most of the traffic will come from. However,
if sourced from the Aokautere side of the river then heavy vehicles will travel across the Fitzherbert Bridge,
along Te Awe Awe Street and Albert Street to the site. If rock is sourced from the city side of the river then
it is likely that heavy vehicles will travel along Main and Albert Streets or alternatively from Fitzherbert
Avenue, Te Awe Awe Street and Albert Street to the site. It is anticipated that the roading network will
accommodate the expected level of traffic with no difficulty.
One of the benefits of sourcing as much material as possible for the proposed works from the river itself, is
that it minimises traffic movements and any associated short term effects that this causes.
Effects from Noise
Noise will primarily arise from machinery working, from trucks unloading rock and from vehicles travelling
to and from the site. Probably the most significant source of noise will be from the unloading of rock with
noise generated as the rock slides from the truck trays. As stated, there will be up to 15 truck and trailer
movements for unloading rock at the site per day. This noise will be mitigated by limiting the hours that
trucks can deliver rock to certain hours, as outlined below, by the distance between the stockpile area and
the nearest dwellings (approximately 500 metres) and by the mass of the existing stopbanks along the river
providing a physical barrier between the stockpile area and any dwellings.
Hours of truck movements: Monday to Friday: 7:00am to 7:00pm
Saturday:
7:30am to 1:30pm
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Other sources of noise will be from the operation of the various machinery required to carry out the works.
This is likely to consist of excavators, motor scrapers and off‐road trucks. Any machinery will be required to
be in good order and maintained and will have appropriate mufflers fitted. This noise source is not
expected to be any different to other working machinery in the area, e.g. excavators carrying out river
maintenance works or stopbank works as are currently taking place in the locality, and given the distances
between the site and the nearest dwellings it is expected to comply with the District Plan limits.
It is expected that working hours for the river works to be from 7:00am to 7:00pm 7 days a week and
including public holidays. This is required to maximise the low flow conditions over the summer period as
they are available. Without this flexibility it is possible that the works will not be completed within the one
summer resulting in further adverse effects associated with working in higher flow river conditions.
It is noted that the recent upgrades of the stopbanks adjacent to the subject area required more trucks per
day and had machinery working much closer to dwellings that the proposed works and that there has been
little concern regarding noise with no complaints or negative comments known to have been received.
Vehicles, especially trucks, entering and leaving the site may create some noise, primarily engine noise and
tailgates and decks rattling as they drive past. This is unlikely to be an issue on the formed roads as they are
sealed and in good condition. The District Plan allows for use of the roading network and also provides an
exemption to noise from vehicles being driven on roads (see Rule 6.2.6.2 Exclusions from Noise Control
Rules). The access track from the end of Albert Street to the stockpile area is not a road in terms of the
District Plan but it is sealed for most of its length. Noise will be mitigated by keeping the access track in
good condition. Trucks will be travelling at low speed along this track thereby keeping noise and
disturbance to a minimum.
Effects from Dust
The proposed works will generally be carried out in or near a water environment so any dust from the
works will be minimal. The access road to the site is largely sealed. If dusty conditions arise a water cart
will be employed as necessary to dampen down the problem areas.
Vegetation Clearance
Vegetation clearance will be required to allow for the access track on the left bank of the river, the realignment
of the Mangaotane Stream and for Stock Pile Sites 2 and 3. The existing vegetation consists of
willows, poplars and other weedy species and as such is not of high value, ecologically or otherwise. It is
proposed to redistribute soil over Stockpile Site 2 and to replant it with trees once the works are complete.
Stockpile Site 3 will be left with approximately 300 tonne of rock on it for future maintenance use. It is
proposed to top soil and grass all access tracks and it is expected that they will soon revegetate with more
substantial vegetation within a short time.
6.2 Effects of the Permanent Works
Effects on water quality
Once the works are completed there will be an improvement in water quality due to the cessation of
sediment discharges to the Manawatu River resulting from the erosion of the cliff. It is estimated that up to
20,000m 3 of sediment per year is currently entering the river from the cliff. Such erosion will cease with the
completion of the works and the stabilisation of the cliff.
The extent and nature of the disturbance to the river bed
The finished works will consist of the snub groyne, the rock lining bed armouring and the ford. The river will
have been permanently realigned so that it is located closer to the right bank of the river. The Mangaotane
Stream will enter the river slightly upstream of its current location, and the unnamed tributary will be
extended slightly to enter the river via a gap in the top part of the rock lining.
Once the works are complete there will be few further disturbances to the bed of the river. As stated the
rock lining is designed to be self‐healing so if it is undermined, rocks will slip into place filling the gap and
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preventing further erosion. These areas can then be topped up later from above with no further
disturbance to the river bed or active channel. The ford will be used for machinery to cross the river when
maintaining or repairing the rock lining and will be occasionally used to transport rock to Stockpile Site 3 if
and when required. It is expected that this may amount to 15 loads of rock every 10 years or so.
Effects on in‐stream habitats, spawning habitats and fish passage
It is unlikely that the finished works will result in any significant effects on in‐stream habitats, spawning
habitats or fish passage. Currently the cliff is actively eroding and slipping into the river resulting in a very
dynamic environment that is not suitable for supporting in‐stream or spawning habitats. The works will
result in a stable channel environment and the rock lining will also provide gaps and shelter between rocks
suitable for some fish species. It is noted that rock linings can result in the permanent preclusion of riparian
vegetation or bank shading, however in this instance there is no riparian vegetation or shading currently
provided in the area.
Fish passage will not be impeded by the finished works. The Manawatu River will flow against the new rock
lining and fish will be able to swim up or down river as usual. Fish passage will also be maintained along the
realigned portion of the Mangaotane Stream. The unnamed tributary will continue to have a small drop
into the Manawatu River as it currently does so no change is expected to fish passage along this stream.
Effects on channel, bank or bed stability
The intent of the works is to improve the channel, bank and bed stability to prevent further erosion of the
river bed and ANZAC Park Cliff in the immediate location. It is anticipated that there will only be positive
effects on channel, bank and river bed stability as a result of the proposed works.
Effects on flood flows
The finished works will not have an effect on the flood flows of the Manawatu River. The rock lining will
have a design height equal to that of the annual return flood level and any floods above this height will
simply flow over the top of the wall as they do for other similar rock linings. The first four metres of fill
placed on the rock lining by PMB Landco Ltd will be lined by reject quarry rock to protect the slope from any
further erosion during flood events.
The works are also being done to ensure the integrity of the existing City stopbanks and to ensure safe
conveyance of flood flows through the City Reach of the Lower Manawatu Flood Protection Scheme.
Effects on public access to the river and recreation
The potential for public access will be greatly enhanced by the proposed works. Currently there is no safe
public access along the left bank of the Manawatu River in this location and access to Pari Reserve is
difficult with the reserve being located within a steep sided valley. The Palmerston North City Council has
indicated a desire to see a public access route along this side of the river.
The design of the proposed works will see a seven metre wide bench on top of the rock lining between the
river and the toe of the re‐contoured cliff. This area will provide access for future inspections and
maintenance of the finished rock lining and groyne. Subject to PNCC funding and works, the bench will also
enable a safe public access link from ANZAC Park to Pari Reserve to be formed.
Whilst the river will be located closer to the right bank it is expected that the beach on the inside of the
corner will reform naturally over time providing good access to the river. Overall the finished works will
provide improved access to the river, its margins and the nearby reserves and will eliminate a real risk to
public safety.
Effects on natural character
Currently the river flows directly into the cliff and makes a dramatic turn to the right. This sharp change in
river flow combined with the active slipping of the cliff provides for a very active scene for viewers. There is
little human modification at the river's edge on the left bank of the river. Although not considered to be a
significant habitat, the Pari Reserve is vegetated but this is also being actively eroded by the river.
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This natural character of the area will change as a result of the proposed works. The river channel will be
located closer to the right bank of the river and the river will take a more constant and gentler curve around
the corner as it did previously. The rock lining and upstream groyne will be visible for much of the time, the
exception being in flood events that exceed the annual return period flood level. The works may also see
the introduction of a public access to the left bank of the river. Some people may also find that the
presence of people on the left hand side of the river detracts from the character of the area. It is not
expected that there will be any change to any habitats offered by the Pari Reserve, and it is likely that there
will be improvements in habitats offered by the river due to the stabilisation of the erosion from the cliff
above.
The realignment of the Mangaotane Stream is not likely to change the natural character of the area to any
great extent. Currently the stream runs through exotic scrub before joining the river at the subject site and
is extremely difficult to identify from the right bank of the Manawatu River. Once realigned, the stream will
continue to flow through similar vegetation as it does now and would still be difficult to identify.
The access track between the river crossing and subject site on the left bank would likely be visible and
could detract from the natural character that bank. It is intended to top soil and grass all access tracks to
help prevent erosion and it is expected that the track would quickly revegetate with light scrub similar to
that around it after its use has ceased.
Effects on infrastructure (MWRC monitoring station and Fitzherbert Bridge)
The MWRC has a river monitoring station near the former Teachers College. This station is of considerable
importance to the Regional Council as it is used to monitor levels and flow rates of the river and in turn this
information is used in and to assess various resource consents and to inform policy development. Any
changes to the accuracy of the recordings from this station are likely to have on‐going effects and could
possibly affect third parties through the monitoring of resource consent conditions. Changes in the
accuracy of recordings from the station can occur though changes in the river bed. Regular monitoring of
the river bed is carried out to detect natural bed changes and the flow rating is maintained accordingly.
The proposed works have potential to cause changes to the channel bed profile that could affect the flow
ratings from the recording station. The applicant has been in discussions with the Council’s Catchment
Information Department regarding this issue and has reached an agreement that is satisfactory to both
departments of the Council. A copy of the agreement is attached to this report as Appendix G.
The Fitzherbert Bridge crosses the Manawatu River approximately 1km downstream of the subject site. The
proposed works will not affect the bridge in any way.
Effects on existing flood protection infrastructure
One of the reasons for carrying out the proposed works is to provide long term protection for existing flood
protection infrastructure. If left to erode the cliff, the river will eventually change direction and start to
undermine the flood protection structures on the right bank of the river. The proposed works will prevent
that from happening. Overall there will only be beneficial effects on the flood protection infrastructure.
Effects on adjacent and residential properties
Due to the erosion in this area very little of the works will actually occur in the river bed as surveyed. In fact
most of the works will occur on land titles that are owned by the PNCC (Lot 13 DP 72989 and Cliff Road
reserve), PMB Landco Ltd (Lot 51 DP 382375) and the Hargreaves title (Section 219 Town of Fitzherbert).
Essentially, the surveyed river bed is the adjacent property on the city side of the subject site and PMB
Landco Ltd and the PNCC own most of the land adjacent to the site on the left bank. Some of the reasons
for the proposal are to protect land adjacent to the river from undue erosion and to protect flood
protection structures from being undermined in the future. It is considered that the proposal will have
significant benefits for the adjacent land.
There are some residential properties on Waicola Drive that are starting to erode. The works will protect
these properties by preventing the river from undermining the eastern cliff below these properties.
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However, it is probable that some erosion and slippage will still occur on this cliff until it reaches a more
stable slope.
The finished works are unlikely to cause any effects on the residential amenity of nearby properties. The
closest residential properties are those located above the cliff off Cashmere Drive, Vaucluse Heights and
Waicola Drive. The site at the base of the cliff is screened from view by the cliff itself. The properties at the
end of Albert Street are over 500 metres from the site. Given this distance the finished works are not likely
to be prominent and will also be screened from view by the river bank vegetation located between the site
and the dwellings.
6.3 Conclusion on Actual and Potential Effects
There are a number of actual and potential effects from this proposal, both positive and adverse. In terms
of the positive, the proposed works will offer opportunities for greater access to the river, in particular the
PNCC owned reserves on the left bank of the river. The works will also provide long term protection to the
City's existing stopbanks. When considered in conjunction with the works proposed by PMB Landco Ltd,
the proposal will also lessen risk to the public using that stretch of the river for recreation purposes and will
prevent further erosion of the ANZAC Cliff thereby protecting valuable residentially zoned land and
reducing a significant source of silt and sediment to the Manawatu River.
Adverse effects arise primarily through the construction phases of the works. Perhaps the most significant
matter is sediment release. While this is minimised through the techniques and work sequencing as
outlined within the construction methodology document it is inevitable that some sediment will be
released to the Manawatu River. As stated, this is expected to affect the river for approximately 200 to 300
metres downstream from the subject site.
Habitats within the work area are likely to be destroyed during construction. It is expected that once the
works are complete that this stretch of the river will once again provide good habitats as has been seen
along other rock linings within the river.
Effects on public access will be apparent while the works are being carried out. Public access will need to
be prevented to the river during the construction period due to health and safety reasons.
Although recognised as being within an area of significant cultural values (being near Te Motu o Poutoa) no
effects on these values have been specifically identified. A protocol for the Accidental Discovery of
Archaeological Sites has been developed between Tanenuiarangi Manawatu Incorporated and the PNCC.
The applicant is willing to adhere to the protocol.
Noise effects are not expected to be significant. There will only be 15 rock truck movements per day and
they are travelling on public roads and hours of work will be limited. The work site itself is some 500 metres
from the nearest dwellings and noise will be further mitigated by the existing stopbanks between the
worksite and dwellings.
The abovementioned adverse effects will only exist for a short duration, being one summer season. The
most significant longer term effect will be the visual effects from the permanent works. The works
proposed by the MWRC will result in the river being located closer to the right bank and the top of the rock
lining and groyne will be visible for most of the year on the left bank. It is expected that vegetation will
soon establish on the re‐grassed tracks minimising the visual effects of these.
It is considered that the effects on the immediate environment caused by the construction phase of the
project will be more than minor. Primarily this will be from the release of sediment to the Manawatu River
during the various works. While sediment release will be greatly mitigated by adherence to the
construction methodology and the installation of cofferdams, silt fences and sediment ponds it will not be
avoided entirely. Also the public's amenity will be affected during the construction phase with access being
prevented to this popular stretch of the river.
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It is considered that the permanent effects of the proposal on the environment will be minor. While the
rock lining and groyne will be visible they will be low‐lying. The beach will return to the inside corner of the
river and the river will be located as it was in the early nineties.
7 RELEVANT OBJECTIVES AND POLICIES
There are numerous objectives and policies under the various policy statements and plans that need to be
considered when assessing this proposal. The key objectives and policies are addressed below.
7.1 National Policy Statements
The National Policy Statement for Freshwater Management 2011 took effect from 1 July 2011 and includes
the following objectives [summarised] among others:
To safeguard the life supporting capacity, ecosystem processes and indigenous species of fresh water
(Objective A1 & B1),
The overall quality of freshwater within a region is maintained or improved (Objective A2),
To avoid over allocation of fresh water and phase out existing over allocation (Objective B2),
To improve and maximise efficient allocation and use of water (Objective B3),
To protect significant values of wetlands (Objective B4).
The policy statement and its objectives and policies must be considered in relation to these applications.
The first two objectives have some relevance to this proposal and it is considered that the proposal is not
inconsistent with either of them. Whilst there will be some short term disruption to habitats with the
subject site, the works will provide a more stable environment in the longer term that will be suitable for
the re‐establishment of any habitat lost.
Some discharge of sediment is inevitable from the disturbance of the river bed and gravels despite all
practicable measures. This will be a short term duration effect and would be far less than what the river
carries naturally in flood events. Again, in the longer term the works will prevent the erosion of the cliff
which is a significant source of sediment entering the river.
7.2 Manawatu-Wanganui Regional Council Planning Documents
7.2.1 Operative Regional Policy Statement
Objective 15 and Policies
Objective 15 seeks to preserve the natural character of rivers and their margins and protect their ecological,
cultural, intrinsic and amenity values from inappropriate subdivision, use and development.
The objective has four policies associated with it which, in addition to preserving the natural character of
rivers, outline matters to be considered when determining the natural character of a river and for
determining whether a proposed use or development is inappropriate. Policy 15.4 also requires the
Regional Council to consider whether the water body is regionally significant.
It is identified above that there are some elements of natural character present at the site. The left bank of
the river (below the cliff) has little sign of human modification and the vegetation of Pari Reserve and the
river bank (although predominately exotic weed species) does add to the character of the area. Above the
cliff, dwellings are visible and there are very obvious signs of human intervention. It is considered that
while there is a certain degree of natural character associated with the immediate rivers edge at the site,
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overall the natural character is eroded by the presence of exotic vegetation, dwellings and other human
modification above the cliff and a lack of significant habitats in the area.
Nonetheless, there will be a change in what natural character exists in the area with the introduction of the
rock lining directing the river flow as well as the introduction of walkways and vehicle access (for
maintenance and repairs only) along the left bank. The rock lining and the snub groyne structures will be
visible for much of the year and will be obvious built structures.
The question becomes one of whether the proposed works are an inappropriate use or development of the
site. Policy 15.2 outlines the following matters that are to be considered when determining whether a use
or development of a site is appropriate or inappropriate:
a. actual or potential effects on:
i. natural character; and
ii.
iii.
iv.
areas of significant indigenous vegetation or habitat of indigenous fauna; and
amenity or intrinsic values; and
cultural values; and
v. the life supporting capacity of ecosystems; and
vi.
vii.
the habitats of trout; and
frequency and magnitude of occurrence of natural hazards such as flooding and erosion;
and, where the activity may result in adverse effects, the degree to which it is required to:
b. mitigate the effects of natural hazards; or
c. provide for the development or maintenance of utilities and services to the public; or
d. provide for the social and economic well‐being of communities;
provided that, in all cases, adverse effects of any activity on these features and attributes can be
avoided, remedied or mitigated.
It is considered that the proposal is not an inappropriate use or development of the site as the proposal will
see improvements in many of these factors. The actual or potential effects on those matters defined under
(a) have been assessed in Sections 6.1 and 6.2 above where it is concluded that the short term effects
(during construction) are likely to be more than minor in the immediate area but less than minor overall
and in the long term. Additionally, the works will mitigate the effects of natural hazards by preventing the
river from undermining the cliff face and reducing the frequency of slips and rates of erosion. The works
proposed by PMB Landco Ltd will stabilise the western cliff face preventing further slips and erosion from
this area. The proposed works provide for the maintenance of services (flood protection) to the public and
provide for the social and economic well‐being of the Palmerston North community through the protection
of existing flood protection works and allowing residentially zoned land to be developed.
Objective 16 and Policies
This objective seeks to avoid, remedy or mitigate the adverse effects of structures or activities in the beds
of rivers. Policy 16.1 aims to avoid, remedy or mitigate the effects of structures on the following matters
once those structures are in place.
a. habitats of indigenous fauna; or
b. Maori cultural and spiritual values; or
c. amenity values; or
d. intrinsic values of ecosystems; or
e. habitats of trout
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Policy 16.2 requires that regard be had to the appropriate matters contained within Sections 6, 7 and 8 of
the Act, and in particular the effects of the following matters, when controlling the erection, maintenance
or removal of structures in the bed of a river.
a. outstanding natural features of rivers and lakes; and
b. significant habitats of indigenous flora and fauna; and
c. Maori cultural or spiritual values; and
d. amenity values or intrinsic values of rivers or lakes; and
e. habitats of trout.
The effects of the proposal during construction and the effects associated with the permanent structures
have been assessed in Sections 6.1 and 6.2 above. Part Two of the Act is addressed in Section 8 of this
report below.
Objective 18 and Policies
This objective aims to maintain and enhance public access to and along rivers and lakes. Policy 18.1
requires the promotion of public access to and along rivers unless certain restrictions are necessary. The
only restriction to consider, in this instance, is the safeguarding of ecological, cultural, intrinsic or
recreational attributes of rivers and lakes. As stated, it is considered that the ecological and cultural
matters will not be significantly affected by the proposal. Intrinsic attributes could be considered, by some
people, to be adversely affected. The right river bank is regularly visited by a number of people and the site
is highly visible from this vantage point. For some, the cliffs, the erosion and its effects are intrinsic to the
river and will be seen as a natural process. There will be changes to the cliffs and erosive processes as a
result of the proposed works and this could be seen to affect the intrinsic value of the area.
Overall it is considered that the positive aspects of the proposal outweigh the adverse effects on intrinsic
values and that this objective can be met in full, with safe public access being made available along the left
bank of the river.
Objective 24 and Policies
This objective seeks to avoid or mitigate the adverse effects of natural hazards upon human life,
infrastructure and property, and the natural environment. Policy 24.3 is of most relevance to this proposal
and aims to ensure hazard avoidance in areas of high risk to people and communities. Once complete the
proposed works will ensure that the existing erosion and its effects on public safety, property and the
natural environment are avoided.
7.2.2 Regional Plan for Beds of Rivers and Lakes
Objectives
Objective 1
This objective seeks to maintain and enhance the specified values of rivers identified in Policies 8.1 and 8.3
of the Regional Policy Statement (RPS) as outstanding and regionally significant natural features.
Policy 8.1 of the RPS outlines certain matters to be considered when identifying which natural features and
landscapes are outstanding and regionally significant. Policy 8.2 requires protection of regionally significant
natural features and landscapes from inappropriate subdivision, use and development and Policy 8.3
requires protection of specified values associated with the features identified within the policy.
The Manawatu River is a natural landscape feature that passes through Palmerston North. The ANZAC Park
Cliff is a geological feature that is dynamic, has visual prominence and provides a backdrop to views from
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the Esplanade Walkway between Fitzherbert Avenue and Albert Street. However, it is noted that these
views are very much localised to the immediate area. The area is not considered to be significant in
ecological terms in that it does not provide important habitat for rare or unique species nor is it an area of
indigenous flora. The site is of significance to tangata whenua being located just upstream of the historic
Te Motu o Poutoa pa site within ANZAC Park. The river offers important amenity values, in particular
recreational opportunities. However at the subject site these are compromised due to the current safety
issues. The site is not subject to any recognised national or regional protection instruments.
While the cliff is a distinctive natural feature, neither it nor this reach of the Manawatu River, is identified as
an outstanding or regionally significant natural feature in the PNCC District Plan, any Regional Plans or the
RPS. The applicant’s proposal will not adversely affect the visual prominence or other values identified
within Policy 8.1 in itself, however when considered in conjunction with the proposed works to re‐contour
the cliff there will be a change in the prominence and backdrop views offered by the cliff. It will, however,
remain as a recognisable river terrace or escarpment.
Objective 2
Objective 2 seeks to recognise and provide for the relationship of Maori, their culture and traditions with
their ancestral lands, water, sites, waahi tapu and other taonga in the beds of rivers and lakes. The site is
upstream of Te Motu o Poutoa, a site of significance to local Maori. The works that the MWRC are
proposing to undertake are within the active river bed and where the active river channel has been located
over the past 20 years or so. Therefore it is considered unlikely that any taonga, remains or archaeological
sites will be disturbed or discovered during the works. Nevertheless, a Protocol for the Accidental
Discovery of Archaeological Sites has been developed between the PNCC and Tanenuiarangi Manawatu
Incorporated for the proposed works, and the applicant has agreed to adhere to the protocol during the
works.
Objective 3
This objective seeks to enable the use and development of resources in, on, or under the beds of rivers
while ensuring that adverse effects on natural character, ecological, intrinsic, amenity or cultural values are
avoided, remedied or mitigated and that the existing life supporting capacity is maintained or enhanced.
The proposal will potentially see the Palmerston North community gaining more use and enjoyment out of
the river through enabling the provision of access along the left bank and through the removal of the risks
currently associated with the site. This will be especially so, with the location being very accessible and
close to the City. There will be some effect on the natural character of the area that is unavoidable. It will,
however, be mitigated to some extent with plantings proposed on the re‐contoured cliff.
The life supporting capacity of the river at the subject site is currently limited. The dynamic nature of the
cliff face and fine sediments of the cliff material do not allow for good habitat establishment. When the
works are complete it is expected that the life supporting capacity will be improved with less sediment
entering the river and a more stable environment being provided in the long term.
Objective 4
This objective seeks to recognise and provide for the physical resources in the beds of rivers and sustain
their potential to meet the reasonable foreseeable needs of future generations. The proposal recognises
not only the resources within the bed of the river but also the resources each side of the river. Use will be
made of the gravel resources in the river for the project. The gravel will be placed behind the rock lining to
provide support to it and as a foundation for the re‐contoured slope above. Ultimately, the gravel has not
been removed from the river bed but rather redistributed within it. If future generations considered that
better use could be made of that particular resource, it could potentially be recovered, albeit at some cost.
The proposal will enable recreational opportunities in this part of the river through the provision of a safe
environment and potential for access to the left bank to be developed. It also recognises the land resource
on each side of the river and will provide for its protection and use for future generations. The left bank will
be protected from further erosion so that the residentially zoned land above the cliff can be utilised and the
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existing stop banks on the right hand bank will be protected, thereby maintaining the City defences against
flood risk.
Policies
Policy 1
This policy establishes a framework for managing activities in the beds of rivers and lakes. This has been
achieved through the regional plan by the use of rules to regulate activities in accordance with their
anticipated effects. The appropriate consents have been applied for as outlined on the resource consent
application (Form 9) and in Section 5 of this report.
Policy 2
This policy outlines certain matters that are to be considered for resource consent applications for activities
in the beds of rivers and lakes. Most of these matters have already been addressed in this report, however,
where they have not been addressed above they are examined here.
Policies 2(a) and 2(b) are addressed in the effects assessment in Section 6 above.
Policy 2(c) requires the Council to have regard to the potential for the activity to:
breach any relevant water quality standards in any regional plan,
cause any of the effects described in Section 107 of the RMA 1991, or
breach any relevant conditions in any regional rule in any regional plan.
This policy makes for an onerous assessment. Relevant water quality standards exist in the Manawatu
Catchment Water Quality Regional Plan and the Proposed One Plan. The discharge of sediment from the
disturbed river bed is the only discharge of any significance that may occur from the proposal. This could
result in changes to horizontal visibility, however after reasonable mixing any sediment discharge is not
likely to cause any conspicuous change in the colour or visual clarity of the river.
Policy 2(d) requires the Council to have regard to the degree to which the activity provides for the
mitigation of the effects of flooding or erosion, or the development of essential utilities or services that
contribute to the well‐being of people and communities or the restoration or enhancement of natural
habitat. The intention of the proposed works is to halt the erosion of the ANZAC Park cliff. It will also
enable access to the left bank of the river to be developed if the PNCC wishes to do so. It will also provide a
safe environment that will contribute to the well‐being of the Palmerston North community. The proposal
does not restore natural habitat, however, in the long, term it will provide for a stable environment in the
area thereby possibly enhancing the existing habitat.
Policy 2(e) concerns the outcome of any consultation between the applicant and affected parties.
Discussions have been carried out between the MWRC and the PNCC, PMB Landco Ltd and TMI. Outcomes
of these discussions are addressed in Section 9 of this report.
Policy 2(f) requires the Council to have regard to the level of compliance with any relevant code of practice.
The most relevant code of practice is the Environmental Code of Practice for River Works (MWRC, June
2010). The proposal complies with most of the conditions within this code of practice except that the
gravel movement associated with the temporary diversion works exceeds the relevant standards of the
code.
The relevant matters under Policy 2(g) as they relate to the realignment of the river bed (diversion) are
addressed in Section 6 of this report. No gravel extraction is proposed as part of this application, although
gravel will be re‐distributed within the river bed. Up to 115,000m 3 of gravel will be required for the works,
far exceeding the annual limits on gravel extraction activities as defined in Schedule 2 which provide for a
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maximum of 60,000m 3 . The gravel for the project will be sourced from the beach located adjacent to the
site where it has been calculated that 200,000m 3 is available.
Policy 2(i) is not relevant to this proposal.
Policy 3
The Lower Manawatu River or ANZAC Park Cliffs are not identified in the Regional Policy Statement as an
outstanding or regionally significant feature.
Policy 4
This policy relates to the management of fluvial gravel extraction and is of limited relevance to the proposal
as no gravel extraction is proposed. However, it is recognised that the gravel will be moved and locked in
place by the works, and that it will no longer be available to natural movement processes. The policy aims
to ensure that gravel extraction does not exceed the natural rates of replenishment, except where the
extraction is necessary to decrease the risk of flooding or damage to essential structures. As stated above
the Lower Manawatu River the maximum volume available for extraction is set at 60,000m 3 per year.
Calculations show that the proposed works will require approximately 115,000m 3 of gravel to be placed
behind the rock lining to provide support.
It is intended to take this gravel from the adjacent beach where there is approximately 200,000m 3 available.
The beach was previously a well‐used gravel extraction area with abstraction ceasing with the granting of a
global resource consent to the MWRC. Since then aggradation of river gravels has been observed at the
beach and as such it is anticipated that the beach will reform overtime. In addition the works are required
to decrease the risk of damage to essential structures such as the existing City stopbanks.
Policy 5
This policy aims to provide for structures and activities to mitigate the adverse effects of flood hazard. One
of the reasons for the proposed works is to provide long term protection for the flood protection structures
currently protecting Palmerston North City from floods.
Policy 6
Policy 6 requires recognition and provision for the relationship of tangata whenua, their culture and
traditions with their ancestral lands, water, sites of waahi tapu and other taonga in the beds of rivers and
lakes.
Te Motu o Poutoa is a site of significance to Maori and is located just downstream of the subject site. It is
possible that taonga, artefacts, or remains are located in the general locality of the subject site. It is
considered unlikely that any such taonga, artefacts or remains will be discovered in the excavation sites due
to it being within the active bed of the river.
Rangitane, represented by Tanenuiarangi Manawatu Incorporated, have been involved in the preparation
of an accidental discovery protocol in relation to the works proposed by the MWRC and PMB Landco Ltd.
This will ensure that an appropriate and acceptable process is followed in the event that a discovery is
made during the works.
Policy 7
This policy allows the Regional Council to use financial contributions as a condition of resource consent for
mitigating or offsetting adverse effects arising as a consequence of an activity. Such financial contributions
can be used for maintaining, restoring or enhancing flood protection or erosion control works, and/or
maintaining or enhancing public access to and along the margins of rivers and lakes.
In this instance the proposal is to construct and maintain new flood protection and erosion control works.
As a consequence of the proposal an opportunity is available to the PNCC to use the top of the rock lining to
create a public access along the left bank of the river. Therefore it is considered unnecessary to impose
further financial contributions on the applicant.
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Policy 8
This policy encourages consultation prior to the lodgement of resource consent applications.
consultation that has occurred to date is described in Section 9 below.
The
Policy 9
Policy 9 requires the MWRC to provide one month’s notice to owners and occupiers of private land in urban
areas prior to undertaking flood protection works on their properties. In this instance the works will be
undertaken on some land that is privately owned, namely the Hargreaves and PMB Landco Ltd owned
properties. Both parties have been kept informed of the project and notice of the intent to begin works will
be provided in accordance with this policy.
Policy 10
This policy encourages the removal of unused or derelict structures from the river bed. There are no such
structures known to exist in the locality.
7.2.3 Proposed One Plan
Objectives
Objectives 6‐1 and 6‐4 from Chapter Six and Objective 16‐1 from Chapter 16 of the One Plan have relevance
to the proposal. Objective 16‐1 is effectively a placeholder that directs the Plan user back to the objectives
and policies of Chapter Six and to the values and management objectives in Schedule AB.
Objective 6‐1
This objective states that surface water bodies must be managed in a manner which has regard to the
Values in Schedule AB.
The subject site is within the Middle Manawatu River Management Zone. This zone has the following zone
wide and site specific values:
Zone wide values
- Life Supporting Capacity (Hill Mixed) ‐ Over the long term it is expected that the life supporting
capacity of the river will be enhanced due to the stabilisation of the environment and reduction of
sediment entering the river.
- Aesthetics ‐ The aesthetic values of the river will be altered as a result of the river. Structures will
be visible where they were not in the past, however, the works will also protect Pari Reserve and
the river edge from further erosion and protect the aesthetics of these.
- Contact Recreation ‐ the proposed works will provide for a safe area for contact recreation and
significantly reduce the risk of land slips into the river.
- Mauri ‐ The proposal will result in the relocation of the river back to the position, or near to, where
it ran in 1992. This is not expected to have any effect on the mauri of the river or its bed.
- Industrial Abstraction/Irrigation/Stock Water ‐ The proposed works will not affect the quality or
volumes of water available for these uses.
- Existing Infrastructure ‐ The works will not affect any existing infrastructure in the area.
- Capacity to Assimilate Pollution ‐ The capacity of the Manawatu River to assimilate pollution will
not be affected by the proposal.
Site specific values
- Site of Significance ‐ Aquatic ‐ This value relates to two tributaries located several kilometres
upstream of the subject site and is therefore not relevant to the proposal.
- Site of Significance ‐ Riparian ‐ This value relates to the gravels and sands required for dotterel
breeding. It is anticipated that given the time of year that the works will start and the constant
nature of the works during construction that it is unlikely that any dotterel will be disturbed by the
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works. In addition the beach is a popular public area visited by a number of people, some with
dogs, thereby keeping the site busy and not so suitable for nesting dotterel.
- Site of Significance ‐ Cultural ‐ This relates to specific sites along the River. The site is located just
upstream of Te Motu o Pouto, a site of significance to tangata whenua. Given its proximity to this
site the subject site has been considered to be a Site of Significance – Cultural. An accidental
discovery protocol has been developed in conjunction with Tanenuiarangi Manawatu Incorporated
that provides an acceptable process to be followed in the event of any discoveries of artefacts,
remains or taonga.
- Trout Fishery ‐ Category 3 ‐ The works will not detract from the ability of the river to sustain
healthy rainbow or brown trout.
- Flood Control and Drainage ‐ The purpose of the proposed works is to protect existing flood
protection infrastructure. If the works are not completed the integrity of the stopbanks protecting
the city will be compromised in the future.
Objective 6‐4
This objective seeks to ensure that the beds of rivers and lakes, and land adjacent to the bed reaches, with
the value of Flood Control and Drainage, are managed to enable future use and development, while having
regard to the other Schedule AB Values and Objectives 7‐2(b) and 7‐2(c).
Objectives 7‐2(b) and 7‐2(c) concern outstanding natural landscapes and features, of which the subject site
is not, and therefore are not relevant. The proposed works will enable the future use of the bed of the river
and adjacent land. Adjacent land on the left bank will be protected from erosion from the river thus
enabling its use for residential development.
Policies
Policy 6‐27
This policy requires that activities in, on, under or over the beds of rivers or lakes generally be managed in a
manner that has regard to the following matters:
(a)
(b)
(c)
(d)
(e)
(f)
(g)
(h)
has regard to the Schedule AB Values for the Water Management Subzone(s) in which the
activity takes place, in the manner described in Policies 6‐28, 6‐29 and 6‐30
avoids any significant reduction in the ability of a river and its bed to convey flood flows, or
significant impedance to the passage of floating debris
avoids, remedies or mitigates any significant adverse effects on the stability and function of
existing structures including flood and erosion control structures
avoids, remedies or mitigates any significant reduction in the habitat diversity, including the
morphological diversity, of the river or lake or its bed
manages effects on natural character and public access in accordance with the relevant policies
in Chapter 7. Natural character can include the natural style and dynamic processes of the river,
such as bed style and width and the quality and quantity of bed habitat
provides for the safe passage of fish both upstream and downstream
ensures that the existing nature and extent of navigation of the river or lake are not obstructed
ensures that access required for the operation, maintenance, and upgrade of infrastructure and
other physical resources of regional or national importance is not obstructed
(i) provides for continued public access in accordance with Policy 7‐9.
This proposal has had regard to the relevant Schedule AB values, will not reduce the ability of the river or its
bed to convey flood flows or will not cause significant reductions in habitat diversity. Access to existing
infrastructure and other physical resources will not be compromised by the proposed works. The proposed
activities will avoid or mitigate adverse effects on existing structures, will provide for the safe passage of
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fish, will ensure that the existing nature and extent of navigation of the river is not obstructed (in the long
term) and will provide for long term public access.
It is noted that there will be some effect on the natural character of the river and its form at the site. The
river will no longer flow directly in to the cliff but will be guided by the rock lining around a gentler curve
instead.
Policy 6‐28
This policy requires that activities on sites with a value of ‘Site of Significance – Cultural’ be managed in a
manner which avoids adverse effects on the value as far as reasonably practicable or otherwise remedies or
mitigates those effects
Whilst the site has been identified as a ‘Site of Significance – Cultural’, it is not expected that any artefacts,
remains or taonga will be discovered within the river bed itself. The works will take place in the current
active channel or in areas where the river has run within the past 20 years or so and any gravel to be
excavated has accumulated on the beach since that time. Nevertheless a accidental discovery protocol has
been developed to address any such discovery and to provide a clear procedure that can be followed in the
event that a discovery is made.
Policy 6‐29
Policy 6‐29 deals with activities in rivers and their beds with a Value of ‘Flood Control and Drainage’. It
requires activities to be managed in a manner which enables the level of flood hazard or erosion control
existing at the time the Plan was notified to be maintained or enhanced and that the other Schedule AB
values are maintained.
The proposed works will enhance the existing level of flood hazard and erosion control and, as described
above, will maintain most of the other values associated with the river. As stated, the aesthetics of the
river at the subject site will be altered. Aesthetics add to a persons enjoyment of an area and, while they
may be changed in the immediate locality, the proposed works provide an opportunity for the PNCC to
develop a public access along the length of the rock lining that could link ANZAC Park to Pari Reserve,
should it wish to do so. Such a link would open up an area that is currently inaccessible to the public
thereby potentially increasing overall enjoyment of the area.
Policy 6‐31
This policy states that activities that are essential or result in an environmental benefit must generally be
allowed. The proposed works have been designed to maintain and improve the stability of existing flood
protection structures that protect the City from the flood waters of the Manawatu River. The works, while
perhaps not essential at the present time, will soon become necessary as the cliff face erodes exposing the
dwellings above the cliff to unacceptable risk, and as the river starts to erode the right bank and
undermines the existing stopbanks. Completing the works now will prevent further unnecessary expense in
the future and enable a solution to the erosion issue while it is still affordable.
Policy 16‐1
This policy sets out matters that the consenting authority must consider when considering and deciding on
resource consent applications. With the exception of the movement of gravel within the river for the rock
lining and temporary channel the proposal is consistent with the Environmental Code of Practice for River
Works (MWRC, June 2010). The proposal seeks to avoid and mitigate any adverse effects on other lawful
activities in the river, however, it is acknowledged that access to that stretch of the river during the
construction stage will be necessarily limited for safety reasons. While the finished works are permanent,
the construction stage will be of a temporary nature.
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7.3 Palmerston North City District Plan
7.3.1 City View Objectives
The City View Objectives have been developed to reflect the different aspects of the City’s environment and
activities that occur within it. They are overall objectives to ensure that the City is managed in a sustainable
manner.
The Healthy Community
‐ To avoid, remedy or mitigate the adverse effects of natural hazards
The proposed works aim to avoid the adverse effects of a natural hazard. The works will prevent the river
from eroding the base of the cliff face thereby reducing the frequency of slips from the cliff. The works will
also preventing future undermining of the existing stopbanks on the right bank of the river. When both the
MWRC and PMB Landco Ltd projects are complete it is expected that no further land slips will occur from
the cliff.
The Working Community
‐ To provide the conditions to ensure the physical resources of the City are managed and
developed while avoiding, remedying, or mitigating adverse environmental effects.
The proposed works will provide the conditions required to enable the re‐contouring of the cliff face
thereby allowing for the residentially zoned land above the cliff (a physical resource of the City) to be
developed while avoiding the adverse environmental effects presented by the current situation.
The Leisure Community
‐ To encourage a broad range of leisure opportunities in the City
As mentioned above, the site is easily accessible from the City and as such is a popular recreational site. At
present use of the river is very limited due to the safety risks associated with the cliffs. This proposal,
combined with the proposal of PMB Landco Ltd will see this risk removed and enable full use of the river at
this locality. The works will also present an opportunity for the PNCC to provide public access ways and
linkages along the top of the rock lining between ANZAC Park and Pari Reserve.
The Heritage Community
‐ To identify and preserve the cultural heritage fabric of the City
The subject site is located near Te Motu o Poutoa, a site of significance to tangata whenua and part of the
cultural fabric of the City. Whilst it is expected that no discoveries will be made in the bed of the river, an
accidental discovery protocol has been developed that outlines an acceptable process to be followed
should a discovery be made.
‐ To preserve and enhance the natural heritage features of the City, including lake and river
margins, significant areas of indigenous vegetation and habitats and important natural features
and landscapes.
The proposed works will affect the existing river margins. Instead of the river flowing directly into the cliff it
will follow a gentler curve, being guided around the corner by the proposed snub groyne and rock lining.
The MWRC works will have little impact on the cliff, however, it will enable the re‐contouring of the cliff to
occur which will result in some change. The works will not affect any significant areas of indigenous
vegetation or habitats.
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The Attractive Community
‐ To maintain and enhance the visual appeal of the City.
Some people will view rock linings and groynes and intrusive structures with limited visual appeal.
However, in certain circumstances, they are necessary structures required to control the effects of the river
on the surrounding environments. In this instance the rock lining will prevent the undermining of the cliff
face and provide a solid foundation to the re‐contoured cliff face as proposed by PMB Landco Ltd. When
complete, the cliff face will still be a recognisable terrace rising from the river and will be enhanced through
landscape plantings.
‐ To manage the adverse effects of activities on the environment.
The actual and potential effects of the proposal are addressed in Section 6 above. A construction
methodology has been developed (attached as Appendix E) which will enable construction works within the
river to occur whilst minimising effects on that environment.
7.3.2 Residential Zone Objectives and Policies
The residential section of the District Plan contains a number of objectives and policies that are specific to
the residential area. It is considered that objectives 1, 2, 3 and 4 and their associated policies have some
relevance to the proposal along with the additional policies under Rule 10.8.3.3.
Objective 1 and Policies
This objective seeks to promote the efficient use of urban infrastructure and other physical resources.
Policy 1.4 requires the avoidance of development of areas subject to a natural hazard and to ensure that
development is guided to less hazardous areas. The intention of the proposal is to reduce and ultimately
avoid the effects of a natural hazard on residentially zoned land and existing flood protection infrastructure
on each side of the river. The works will ensure that the site is less hazardous, will enable the re‐contouring
of the cliff face thereby allowing for the development of the residential land above the cliff thus promoting
the efficient use of the City’s physical resources.
Objective 2 and Policies
Objective 2 seeks to recognise the range of activities which are complementary to and compatible with
residential development. The policies require that adverse effects of non‐residential activities on
residential activities are controlled and that the scale and character of non‐residential activities within the
zone are controlled.
In this instance only a small portion of the proposed works are within the residential zone and these are at
the base of the cliff. The MWRC works are not likely to be observed from future residential dwellings on
this land or from existing residential dwellings on the right river bank, the nearest of these being at the end
of Albert Street, some 500 metres away. The construction type effects on residential amenity are discussed
in Section 6.1 above.
Objective 3 and Policies
This objective seeks to secure and maintain a high standard of amenity within the Residential Zone. The
policies set standards on which the site specific rules of the plan are based. As mentioned above, the
subject site is located at the base of the cliff where it is on residentially zone land and will not be viewed
from any future properties on this land. It is located some 500 metres from the closest residential dwellings
on the right bank of the river. The finished works will not affect the amenity of any residential properties or
the residential zone.
Objective 4 and Policies
Objective 4 seeks to reinforce the predominant character of the residential zone. Policy 4.2 requires
avoidance of activities which do not maintain, or create adverse effects on, the overall amenity and
ambience of the residential environment. As stated above the finished works will not disturb or create
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effects on residential amenity or overall ambience of the residential environment. During the construction
phase, some disturbance may be noted by the City’s residents, especially those users of the Esplanade
Walkway between the Fitzherbert Bridge and Albert Street. This would predominately be from heavy
vehicles using the Albert Street entrance to the river reserve, from the machinery working in the river and
from the stock pile of rock on the river bank. These effects will be temporary with works expected to be
completed over one summer period.
Rule 10.8.3.3 Policies
This rule contains three additional policies that are to be considered as follows:
(a)
(b)
(c)
To avoid, remedy or mitigate the visual effects of flood protection works on residential
neighbourhoods.
To avoid, remedy or mitigate any adverse effects associated with the development and
construction of flood protection works on the surrounding residential area.
To recognise the positive effect of flood protection works.
Visual effects of the finished rock lining, snub groyne and bed armouring will be minimal. The bed
armouring will be below the river’s surface and not visible at all. The snub groyne and rock lining will be at
a height near to the annual return flood level and therefore will be partly visible most of the time. These
will look similar to the rock linings along the Dittmer Drive section of river. In this instance the proposed
works are located a considerable distance from residential properties, being approximately 500 metres
from the closest dwellings at the end of Albert Street and at the base of the cliff so not visible from future
dwellings along Vaucluse Drive.
Construction effects will be controlled by adherence to a construction methodology that has been
developed to mitigate possible effects on the river and surrounding areas.
The positive effects of flood protection works are reasonably obvious but are often not noted unless there
is a failure in the works. Without such works in place, much of Palmerston North would not be developed
as it is today and if it were developed would be subjected to flooding and damage on a regular basis. The
proposed works provide benefit by providing long term protection to other flood protection works along
the river and by enabling further development of residential land within the City.
7.3.3 Conservation and Amenity Zone Objectives and Policies
This section of the District Plan contains one objective and four general policies, specific policies under Rule
15.5.5.1 and specific policies under Rule 15.5.7.2 that must be considered.
Objective 1 and Policies
This objective seeks to recognise and protect the City’s conservation and amenity areas. Polices 1.1 and 1.2
require protection of those areas which have high scenic, scientific, conservation and amenity values and
the restriction of activities or development in the zone to that which is consistent with the natural or
undeveloped open space character of the Zone.
The proposed works will take place on parts of three lots of land that are zoned Recreation and Amenity.
These lots also contain ANZAC Park and Pari Reserve. Some of the works will take place within Pari Reserve
but will avoid ANZAC Park. The zoning, lots and reserves can be seen on the series of plans attached to this
report as Appendix A.
In general, the areas of the Conservation and Amenity Zone where the works are proposed are actively
eroding and retreating. The proposed works will protect these areas from further erosion thereby
protecting any scenic or amenity values that they offer. In the long term the PNCC wishes to develop a
public walkway along the left bank of the Manawatu River and this proposal provides an opportunity for the
PNCC to construct such a walkway along the top of the rock lining that will link ANZAC Park to Pari Reserve.
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The Mangaotane Stream will be realigned through part of Pari Reserve. The realigned route will see the
stream entering the reserve, as it does now, and taking a right hand turn before joining the river just
upstream of the snub groyne. Some vegetation will be cleared to enable this re‐alignment however it is
noted that the vegetation within this part of the reserve is predominately willows and poplars. The realignment
is unlikely to create any adverse effect on the reserve with the stream appearing to have
followed several differing routes to the river in the past and vegetation expected to quickly re‐establish.
Rule 15.5.5.1 Policies
This rule addresses ongoing maintenance of flood protection structures within the zone and contains six
specific policies as follows:
(a)
(b)
(c)
(d)
(e)
(f)
To avoid, remedy or mitigate any adverse effects associated with maintenance work on the
environment.
To ensure that any excavation of land is minimised and any adverse effects are remedied or
mitigated upon the completion of the works.
To ensure that any adverse effects associated with the use of land for the storage and/or
disposal of materials associated with the maintenance of flood protection works are remedied or
mitigated upon the completion of the work.
To assess the appropriateness and necessity for the removal or destruction of any tree associated
with any maintenance work.
To ensure that the removal or destruction of vegetation is remedied or mitigated, through the
restoration of the affected area and the re‐vegetation of the site.
To recognise the positive effects of flood protection works.
The rock lining and associated works will become assets of the Lower Manawatu Scheme. To ensure
operational effectiveness, maintenance will be undertaken if required, however this is not expected to
occur particularly often. As stated, the rock lining is designed to be ‘self‐healing’ with higher rocks slipping
into place should lower level rocks become displaced. In general any maintenance will consist of a truck
and excavator accessing the top of the rock lining to top up any depressions where rocks have slipped
down.
More significant maintenance would only be required if the lining or bed armouring is damaged during a
major flood event. This may necessitate the stockpiling of rock, further machinery being present, and
various excavations required to repair any damage.
Only a small portion of the rock lining is located within the Conservation and Amenity Zone. During any
maintenance, public access to the rock lining will need to be closed to ensure safety is maintained. Access
to the lining will be through the Hargreaves land and maintenance carried out from the top of the lining
itself, thereby minimising effects on the environment and avoiding disruptions to the City side of the river.
It is likely that a stockpile of rock will be kept near the lining for maintenance purposes. This will be located
on the land between the rock lining and the snub groyne and be well screened from view by the existing
vegetation. As an access track is to be maintained to the lining it is not expected that any further
vegetation would require removal to accommodate any maintenance works.
Rule 15.5.7.2 Policies
This rule contains six additional policies as follows:
(a)
(b)
To avoid, remedy or mitigate the visual effects of flood protection works on the amenity values
of the Conservation and Amenity Zone and adjoining residential areas.
To avoid, remedy or mitigate any adverse effects associated with the development and
construction of flood protection works on the scenic, scientific, heritage, and conservation and
amenity values of the Conservation and Amenity Zone.
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(c)
(d)
(e)
(f)
To avoid, remedy or mitigate any adverse effects of providing for the efficient and effective
functioning of flood protection works on the scenic, scientific, heritage, and conservation and
amenity values of the Conservation and Amenity Zone.
To avoid, remedy or mitigate any adverse effects of the development and construction of flood
protection works on the amenity values of adjoining residential areas.
To avoid, remedy or mitigate any adverse effects of flood protection works on public access to
the Manawatu River and any other waterbody.
To recognise the positive effects of flood protection works.
Pari Reserve and ANZAC Park are visible from the right bank of the river. ANZAC Park is primarily located
above the cliff but does extend down the cliff as well. Pari Reserve is located down to the river edge with
the river currently eroding into the reserve. The reserve also extends away from the river up the valley
between Cashmere and Waicola Drives and towards the east following the Mangaotane Stream for a short
distance. Whilst the proposed works will be visible, being located down at the river level they will not
substantially affect current views to the park and reserve. At present there is limited access to Pari Reserve
or the lower portions of ANZAC park. Therefore views from these locations will not be disturbed by the
works.
The proposed rock lining will not affect the scenic, scientific, heritage, and conservation and amenity values
of the Conservation and Amenity Zone. The portions of the zone where the works are to take place have
been eroded away and are now part of the active river channel. The works will, in effect, reinstate land
back to the Zone. The realignment of the Mangaotane Stream will see a small amount of vegetation
removed from Pari Reserve.
Public access will be limited to the beach and the grassy area on the right bank of the river during the
construction period. Access to the left bank is currently not available. Preventing access to the right bank is
unavoidable during the construction period due to potential safety issues. When the works are complete
people will be able to access the river bank and the river itself in safety and without risk of the cliff
collapsing on them. There will be potential for the PNCC to establish an access path along the top of the
rock lining along the left bank of the river thereby linking ANZAC Park to Pari Reserve. Overall it is
considered that access opportunities to the river will be greatly improved by the proposed works.
The effects on residential amenity and the positive effects of flood protection works are addressed earlier in
this report.
7.3.4 Water Recreation Zone Objectives and Policies
The Water Recreation Zone was developed so that the PNCC can fulfil its obligations under section 31(e) of
the Act in relation to the surface of water in rivers and lakes. It does not appear to apply to this proposal as
the proposed works are in or on the bed of the river, however the works will also be visible at the surface.
Objective and Policies
The objective of this zone is to manage the effects of activities on the surface of significant rivers, lakes and
streams located within Palmerston North. The policies aim to enable a wide range of recreation activities
and to avoid, remedy or mitigate adverse effects of noise generated by recreational activities occurring
within the zone. There is a specific policy under Rule 15.6.6.1 that also requires that noise and other
environmental disturbance on adjoining residential neighbourhoods be avoided, remedied or mitigated.
The main issue here appears to be noise and disturbance to residential neighbours. As stated above in this
report it is expected that the considerable distance between the site and residential neighbours will
mitigate potential sources of noise. Also all machinery will have mufflers installed and be in good condition.
The access road will be kept in good condition to minimise truck decks or trays from banging. In addition it
is expected that the existing stopbanks will offer mitigation to any nearby dwellings. Overall it is
anticipated that noise and environmental disturbance from the proposed works will be minimal.
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8 RESOURCE MANAGEMENT ACT - PART II
Section 6 of the Act requires that all persons exercising functions and powers under the Act shall recognise
and provide for the matters of national importance listed within the section. The following are considered
to be of relevance to the proposed activities:
(a)
(d)
(e)
the preservation of the natural character of the coastal environment (including the coastal
marine area), wetlands, and lakes and rivers and their margins, and the protection of them from
inappropriate subdivision, use, and development;
the maintenance and enhancement of public access to and along the coastal marine area, lakes
and rivers;
the relationship of Maori and their culture and traditions with their ancestral lands, water, sites,
waahi tapu and other taonga;
These matters have been discussed above in this report. It is considered that while there are elements of
natural character at the site this character is compromised by the poor quality of vegetation in the area and
by the urban activities above the cliff. It is also considered that, given the circumstances, the development
is not an inappropriate development for the site. The proposal will provide for the establishment of future
public access to the left bank of the river which would otherwise not be possible due to the nature of the
cliff. As discussed above, Te Motu o Poutoa is located just down steam of the subject site. An accidental
discovery protocol has been developed to address any discovery of archaeological material.
Section 7 requires all persons exercising functions and powers under the Act to have particular regard to
certain matters. The following are of relevance to this proposal:
(a)
(b)
(c)
(f)
(i)
Kaitiakitanga
the efficient use and development of natural and physical resources;
the maintenance and enhancement of amenity values;
maintenance and enhancement of the quality of the environment
the protection of the habitat of trout and salmon
The proposal represents the efficient use and development of natural and physical resources. The works
provide for the protection of the residential land resources above the cliff and the continued protection of
that land on the right bank of the river. This will allow for the land above the cliff to be further developed
adding to the housing stock of the city on land that is relatively central to the City. The proposal will
enhance amenity values through the provision of additional public access along the river where it could not
otherwise be safely provided. The environment will be maintained and possibly enhanced through the
protection of land from erosion. The habitat of trout in the river will not be affected by the proposed
works.
Section 8 requires those making decisions under the Act to take into account the principles of the Treaty of
Waitangi. These principles have been identified by the Court of Appeal (New Zealand Maori Council Case
54/87), which are:
1. The Essential Bargain – the exchange of kawanatanga (in Article 1) for the protection of tino
rangatiratanga (in Article 2)
2. The Principles of Tino Rangatiratanga and Kawanatanga – the guarantee to Iwi and Hapu of full
chieftainship or authority over their lands, resources, and taonga, and therefore the control and
management of tribal resources according to Maori cultural preferences, as balanced against the
Crown’s right to make laws and govern.
3. The Principles of Partnership and Good Faith – The shared obligation of both Treaty partners to meet
their respective commitments and to act reasonably and in good faith to one another.
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4. The Principles of Active Protection – the Crown’s obligation to actively protect the interests of Maori in
their land and resources.
The principles of the Treaty of Waitangi have been considered and addressed through the consultation and
the acceptance by the applicant to adhere to the Protocol for Accidental Discovery as prepared by TMI. The
applicant and iwi have acted reasonably and in good faith towards each other. The project will disturb the
river bed in the locality of a site that is important to Maori but will also prevent erosion that will eventually
threaten that same site.
8.1 Part 2 Conclusion
The purpose of the Act is to promote the sustainable management of natural and physical resources. This
proposal will see the use and development of natural and physical resources in a way that will allow for
people and the Palmerston North community to provide for their social, economic and cultural wellbeing
and for their health and safety. It will achieve this while sustaining the potential of natural and physical
resources for future generations, safeguarding the life supporting capacity of water and avoiding or
mitigating adverse effects on the environment.
In Section 6.3 of this report it is concluded that the effects on the immediate environment caused by the
construction phase of the project will be more than minor due to the destruction of habitat, unavoidable
sediment release and the effects on public amenity being significant. It is also concluded that the
permanent (long‐term) effects of the proposal on the environment will be minor.
Essentially, the construction site and immediate environment will be affected during the construction
period but once the works are completed the level of effect is considered to be minor and will
predominately relate to visual effects.
Overall, in weighing up the matters under Part 2 of the Act it is considered that the it is considered that the
purpose of the RMA will be achieved by granting of the consent applications.
9 CONSULTATION
The City Reach project is publicly well known and the local community has been kept informed over recent
years with updates provided in the various newsletters that accompany rates demands. Information in
relation to the project, including specific mention of the ANZAC Park cliff realignment was released by the
MWRC in March 2007 through a document entitled "Keeping Palmerston North Dry". This document
invited submissions on the project through the Council's Draft Annual Plan consultation processes at that
time.
Plan Change 2 was recently heard by the PNCC and included details of the proposed works by the MWRC
and PMB Landco Ltd. The Plan change was subject to the statutory consultation and notification processes
of the RMA and provided further information in respect of the project to the wider community.
The applicant has consulted with the following persons and organisations in relation to its proposed works
as part of this project.
Tanenuiarangi Manawatu Incorporated (TMI) ‐ Discussions have been held between TMI and the
MWRC in respect of the ANZAC Cliffs river realignment. In August 2010 an informal agreement was
reached between the two parties where they would take a collaborative approach to the initial
establishment and ongoing management of vegetation on the re‐contoured cliff face. Decisions around
the species selection will be undertaken by a group comprising representatives from TMI and the
MWRC. Agreement was reached that signage would be erected to explain the importance of Te Motu
o Poutoa to local iwi and the involvement of iwi in the ongoing management of the adjoining area.
A further meeting was held on 14 December 2011 between representatives of PNCC, MWRC, PMB
Landco Ltd and TMI. The discussions were general in nature and outlined the proposal and landscaping
for the PMB Landco Ltd works. TMI indicated their wish to be involved in the process and reinforced
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the significance of Te Motu o Poutoa and the area to local Maori. TMI expressed that they have been
aware of the project for a long time and had been involved with the PNCC in the development of the
Accidental Discovery Protocol during the Plan Change 2 process. It was indicated that no major
concerns with the project had been raised and that it was expected that the protocol would be adhered
to.
PNCC Parks and Reserves Department ‐ Several discussions and emails have been exchanged between
the applicant and staff from PNCC's Parks and Reserves Department regarding the project. Primarily
these have related to the provision of the seven metre wide bench on top of the rock lining and its
possible use for a walkway between ANZAC Park and Pari Reserve. No formal agreements have been
reached, or sought, on this. However, the applicant is comfortable for a walkway to be installed along
the top of the bench so long as it does not prevent machinery access for future maintenance or
otherwise affect the integrity of the structure for its intended purpose.
PNCC Roading ‐ Discussions have been undertaken with staff from the PNCC Roading Department in
respect of accessing the site from Petersens Road. This option has not been progressed due to access
issues.
Landowners ‐ The applicant has discussed the proposal with landowners including PMB Landco Ltd and
Robert Hargreaves. The project is being completed in conjunction with PMB Landco Ltd's proposal to
re‐contour the ANZAC Cliff and both applications are somewhat interrelated. Discussions with Robert
Hargreaves have been centred on access arraignments through his property to the subject site on the
left bank. Agreement has been secured that allows access through the non‐productive part of his land
near the river.
Other ‐ Discussions were also undertaken with other landowners in the immediate area in relation to
accessing the site from the left bank. Unfortunately agreements regarding access arrangements have
not yet been reached, hence the current application accessing the site from the City side of the river.
Discussions are continuing between the parties with a view reaching agreement to accessing the site
from the left bank.
Written approvals from affected persons or landowners that have been provided are attached to this report
as Appendix H.
10 CONCLUSIONS
The applicant is proposing to realign the Manawatu River adjacent to the ANZAC Park Cliff and to construct
a rock lining and other protection works as detailed in this application. These works are required to
stabilise the left bank of the river, prevent further erosion of the left bank, and prevent attack and
undermining of the right bank flood protection assets. The proposed works detailed in this application are
an integral part of the “City Reach” project designed to improve the level of flood protection for Palmerston
North City and as part of the overall Lower Manawatu Scheme upgrade project.
Resource consent is sought from the MWRC and PNCC in order to be able to undertake the proposed
works. This report has provided an Assessment of Environmental Effects in accordance with s88 and the
4th schedule of the Resource Management Act.
A detailed construction methodology has been developed by the applicant which describes how the works
will be undertaken so as to avoid, remedy or mitigate potential effects as far as practicable. This includes
staging of the works and temporary diversions of the Manawatu River to enable as much of the works as
possible to be undertaken in the dry or out of flowing water, thereby minimising potential sediment release
to the River. It also includes restrictions on vehicle movements and hours of work to minimise any
disturbance to the public and landowners in the area. A discovery protocol has been developed in
conjunction with Tanenuiarangi Manawatu Incorporated which outlines the process to be followed in the
event that an archaeological site is discovered. The proposed construction works are not considered to
have any other potential adverse effects, as discussed in this report.
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Once constructed, the proposed works may have some effect on the natural character of the area,
however, this character is compromised by the poor quality of vegetation in the area and by the urban
activities above the cliff. The proposed works are also essential for the safety of persons using the area and
to ensure the integrity of the flood protection assets in the vicinity.
Given that potential effects will be mitigated as far as practicable and the proposal is not inconsistent with
any of the relevant objectives or policies of any of the Operative or Proposed Regional Policy Statements,
Regional Plans or District Plans, it is considered that the purpose of the RMA will be achieved by granting of
the consent applications.
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Appendix A
LOCATION PLANS AND SURROUNDS - PLANS A TO D

FIGURE A: AERIAL PHOTOGRAPH OF SITE AND SURROUNDS
Legend:
Rock Lining Bed Armouring Streams
Gravel Backfill Snub Groyne Re-aligned stream
Note: All proposed structures are indicative only.
Not to scale

FIGURE B: LOCAL PARKS, RESERVES & WALKWAYS
Legend:
Reserves & Parks Rock Lining Bed Armouring Streams
Walkways Gravel Backfill Snub Groyne Re-aligned stream
Note: All proposed structures are indicative only.
Not to scale

FIGURE C: PNCC DISTRICT PLAN ZONES
Legend:
Residential Zone Water Recreation Zone Recreation Zone Rock Lining Snub Groyne
Flood Protection Zone Rural Zone Institutional Zone Gravel Backfill Streams
Conservation and Amenity Zone Unformed Road Bed Armouring Re-aligned stream
Note: All proposed structures are indicative only.
Not to scale

FIGURE D: LAND HOLDINGS WHERE WORKS ARE PROPOSED TO TAKE PLACE
Legend:
Surveyed river bed PNCC (Cliff Road - partially formed) Rock Lining Snub Groyne
PMB Landco Ltd (Lot 51 DP 382375) PNCC (ANZAC Park) (Pt Section 206 TN of Fitzherbert) Gravel back fill Streams
Hargraves (Pt Section 219 TN of Fitzherbert) PNCC (Pari Reserve) (Pt Lot 13 DP 72989 & Lot 3 DP 33102) Bed Armouring Re-aligned stream
Note: All proposed structures are indicative only.
Not to scale

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Appendix B
ENGINEERING DRAWINGS