mitigate or adapt - rmla · (1) the purpose of this act is to promote the sustainable management of...
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Mitigate or AdaptNavigating the Evolving Natural Hazards Regulatory Landscape
RMLA Roadshow 2016
Marje Russ, Tonkin + Taylor
Maurice Hoban, GHD
Photo: Sugar Loaf Wharf, Coromandel. Jan 4 2014, Stuart Crawley, WRC
Photo: Sugar Loaf Wharf, Coromandel. Jan 4 2014, Stuart Crawley, WRC
Tamaki Drive
King tide level at the Western edge, 2014 supplied by Waterfront Auckland
Photo: Supplied by PCE in 2015 for use
Photo: supplied by Christchurch City Council, seeking approval for use
Photo: Supplied by PCE in 2015
Photo: Supplied by PCE in 2015 for use
It is all about Risk and Risk Reduction
There are new and strong international drivers on risk reduction
Risk reduction is already part of our Civil Defence and Emergency Management framework
A risk-based approach is proposed to be explicitly reinforced in the RMA
We can already deliver risk-based approach and achieve risk reduction in the RMA and other regulatory frameworks
Agenda
International Context and Commitments
National Agencies and Stakeholders
National Legislative Context
Risk Concepts
What does it Mean for Us?
International Context and Commitments
International Context: Disaster Risk Reduction (DRR)
1999
• United Nations Office for Disaster Risk Reduction• Implement
International Strategy for Disaster Reduction
• Focal point in UN for disaster reduction
2005
• Hyogo Framework for Action 2005-2015
2015
• Sendai Framework for DRR 2015-2030
2015 – a big year for the UN
Sendai Framework
Addis Ababa Action Agenda on Financing
for Development
Sustainable Development
Goals
COP21 Accord on Climate
Change
Sendia Framework for DRR
Scope and purpose
• Applies to natural and man-made hazards, small-large scale, frequent/infrequent, sudden/slow onset.
• Guide multi-hazard management of disaster risk across all sectors
Expected outcome
• Substantial reduction of disaster risk and losses in lives, livelihoods, health, economic, physical, social, cultural and environmental assets
Goal
• Prevent new and reduce existing disaster risk through implementing integrated measures to prevent and reduce hazard exposure and vulnerability and increase preparedness and resilience
7 Sendai Targets
Reduce mortality
Reduce number of affected people
Reduce direct economic loss
Reduce damage to infrastructure
Increase number of countries with DRR strategies
Enhance international cooperation to developing countries
Increase early warning systems, information and assessments
4 Priorities for Action
Understanding disaster risk
Strengthening disaster risk governance to manage disaster risk
Investing in disaster risk reduction for resilience
Enhancing disaster preparedness for effective response and “Build Back Better”
National Agencies and Stakeholders
New Zealand Context –Government Agencies
Civil Defence and Emergency
Management
Ministry for the Environment
Ministry of Business,
Employment and Innovation
TreasuryCrown Research
Institutes
New Zealand Defence Force
Earthquake Commission
New Zealand Context – Other Players
NZ Insurance Council
Local Government
NZ
Insurers & reinsurers
Lifeline Utilities
Property Managers &
Owners
NGOs
Engineers, Scientists &
Planners
National Legislative Context
New Zealand Regulatory Framework
Civil Defence and Emergency
Management Act
Resource Management Act
Local Government Act
Building Act
Local Government Official
Information & Meetings Act
Earthquake Commission Act
Civil Defence and Emergency Management Act
Civil Defence and Emergency Management Act - Purpose
Improve sustainable management of hazards to contribute to social, economic, cultural and
environmental well-being, safety and property protection
Enable communities to achieve acceptable levels of risk by identifying and reducing risk
Planning and preparation for emergency response and recovery
Coordinate local authority and other agencies
Integrate local and national CDEM with national plan and strategy
Based on the 4 Rs
Identify and analyse long-term risk to human life and property. Take steps to eliminate risk, if practicable and if not reduce magnitude of impact or likelihood of occurrence
Reduction
Develop operational systems and capabilities, including self-help and response for the public and specific programmes for emergency services, lifeline utilities and other agencies
Readiness
Action taken in civil defence emergency to save lives and protect property and help communities to recover
Response
Coordinated efforts and processes for immediate, medium and long-term holistic regeneration of a community after a civil defence emergency
Recovery
CDEM – Key Current Change & Initiatives
Civil Defence Emergency Management Amendment Bill
• Mandate for roles and responsibilities for recovery
• Strengthen emergency planning and transition from response to recovery
• Create permanent authority for Crown funding of response and recovery
New Zealand Resilience Strategy
• Review of the National CDEM Strategy required to be completed in 2017
Resource Management Act
Resource Management Act -Purpose(1) The purpose of this Act is to promote the sustainable management of natural and physical resources.
(2) In this Act, sustainable management means managing the use, development, and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic, and cultural well-being and for their health and safety while—
(a) sustaining the potential of natural and physical resources (excluding minerals) to meet the reasonably foreseeable needs of future generations; and
(b) safeguarding the life-supporting capacity of air, water, soil, and ecosystems; and
(c) avoiding, remedying, or mitigating any adverse effects of activities on the environment.
Definition of Natural Hazards
Any atmospheric, earth or water related occurrence (including earthquake, tsunami, erosion, volcanic and geothermal activity, landslip, subsidence, sedimentation, wind, drought, fire or flooding) the action of which adversely affects or may adversely affect human life, property, or other aspects of the environment.
Meaning of EffectUnless the context otherwise requires, the term effect includes
(a) any positive or adverse effect and
(b) any temporary or permanent effect and
(c) any past, present or future effect and
(d) any cumulative effect which arises over time or in combination with other effects - regardless of the scale, intensity, duration or frequency of the effect and also includes
(e) and potential effect of high probability and
(f) any potential effect of low probability which has a high potential impact
Function for Regional & District Councils
• The control of the use of land for the purpose of …the avoidance or mitigation of natural hazards
Regional Councils
• The control of any actual or potential effects of the use, development, or protection of land, including for the purpose of….the avoidance or mitigation of natural hazards
District Councils
• Regional Councils allocate responsibilities through their Regional Policy Statements
• Potential for regional and district rulesLead
Assessments of Effects on the Environment
• An assessment of the activity’s effects on the environment must address the following matters….any risk to the neighbourhood, with wider community, or the environment through natural hazards
Schedule 4 Section 7
Special Role for Subdivision Controls
• Consent authority’s able to refuse or impose conditions on subdivision consents to avoid, remedy or mitigate some specific types of effects related to natural hazards
• Over-rides S 87A obligation to grant consent for controlled activities
• Called up in S 132 for reviews on consent conditions
Section 106
Special Role for Subdivision Controls
• Esplanade strips or reserves to mitigate natural hazards (S229)
• Conditions on bulk, location, foundations, floor level heights (S220)
• Provisions to protect land from subsidence, slippage, erosion or inundation (S220)
• Requirements for filling, compaction and earthworks (S220)
Practical tools
Proposed RMA Changes
• Add “the management of significant risks from natural hazards” to Matters on National ImportanceSection 6
• Extend ability to act under Section 106 to where the there is a significant risk from natural hazards
• Reference definition of natural hazardsSection 106
• Assessment of risk to be a combined assessment of likelihood and consequences in terms of material damage to land or structures, and considering likely subsequent use of the land
• Enable conditions on subdivision consents to imposed to protect land from all hazards within the scope of the definition of natural hazards
Section 220
RMA – Other Initiatives
• Project to develop a risk-based framework to address natural hazards under RMA
• Input to recommendations to Minister on a National Policy Statement
• Links to (or needs in) other parts of the regulatory and guidance framework
Risk-based Framework
• Updating guidance on climate change and natural hazards
• Developing guidance on managing liquefaction (jointly with MBIE)
• To update guidance on flood management
National Guidance
Local Government Act
Local Government Act -Infrastructure
Purpose
• Provide good quality infrastructure which includes “appropriate to present and anticipated future circumstances
Core Services
• Include “the avoidance or mitigation of natural hazards”
Principles
• Prudent stewardship, including by planning effectively for future management of assets
• Sustainable development approach
Infrastructure Strategy
• 30 year timeframe
• Provide for the resilience of infrastructure assets by identifying and managing risks related to natural hazards
Local Government Act – Long-Term Plan
Purpose
• Describe community outcomes
• Integrated decision making and coordinating resources
• Long term focus for decisions and activities
Content
• Outcomes cover stormwater drainage and flood protection and control works activities
• Include infrastructure strategy
Timeframe• At least 10 years
Building Act
• Must include information any special features of the land likely to be relevant to proposed building work
Project Information Memoranda
• Must refuse building consent where land is subject to natural hazards and building work could worsen the situation unless adequate protection/restoration provided
• Specific natural hazards listed
Section 71
• Required to grant consent if building work won’t worsen situation
• Must notify Land Registrar/Surveyor General, identifying natural hazard and attach PIM
Sections 72 & 73
• Entry on Certificate of TitleSection 74
Building Code
Gives effect to Building Act –provides specified levels of performance for buildings
Sets 50 year flood level consideration and minimum floor height
Building structural performance under seismic shaking refers to NZS 1170.5
NZS 1170.5 sets Serviceability Limit State (SLS) at 25 return period event and Ultimate Limit State (ULS) at 500 years for buildings
Local Government Official Information & Meetings Act
• Information on special features of characteristics of land
• Includes but is not limited to specific list of natural hazard effects
• Must be included if known to territorial authority and not apparent in the District Plan
• Includes any notices about the land
• May include other relevant information
Land Information Memoranda
Earthquake Commission Act
Provides for continuance of the Earthquake Commission (previously Earthquake and War Damages Commission
Provides scheme to insure residential property against natural disaster
Currently under review
Risk Concepts
Risk Management is Evolving
Being applied to more issues
Being used to address multiple issues – holistically
Dealing with complexity and uncertainty
Means to build resilience and sustainability
ISO 31000:2009 Risk Management –Principles and guidelines
Current international best practice
Strong focus on organisation context and objectives
Widespread use, including driving revised ISO standards for quality, environmental and H&S management systems
ISO 31000 Risk Definition
Effect of uncertainty on objectives• NOTES
• an effect is a deviation from the expected (positive and/or negative)
• risk is often characterised by reference to potential events and consequences, or a combination of these
• risk is often expressed in terms of a combination of the consequences of an event (including changes in circumstances) and the associated likelihood of occurrence
Uncertainty
The state, even partial, of deficiency of information
related to, understanding or knowledge of an event, its consequences or likelihood
(ISO 31000:2009)
Good Fit with RMA and Natural Hazards
Effect
• Key RMA concept
Uncertainty
• Hazard events
• Effects of events
• Focus attention on quality of information for decisions
Objectives
• RMA purpose
• Objectives & Policies in Policy Statements and Plans
ISO 31000 Framing Allows Flexibility in Approaches
Qualitative
• Narrative, descriptive, evaluative
• Risk Triangle
Semi-Quantitative - Quantitative
• Frequency/likelihood x Consequences
• Hazard + Exposure + Vulnerability
• Hazard + Exposure + Vulnerability + Capability
Risk Management is a Process
Establish the Context
Assess Risks
• identify
• analyse
• evaluate
Treat Risk
Monitor and ReviewCommunication
and Consultation
Key Process Issues for Natural Hazards
Context is King
• Understanding natural processes at appropriate scale
• Understanding relevant social, cultural and economic context
Identifying Risks
• All hazards, high and low frequency
Assessment and Evaluation
• Nature of approach will vary by hazard type and information quality and decisions to be made
Key Process Issues for Natural Hazards
Treatment
• 4Rs – Reduce, Readiness, Response, Recovery
Monitoring and Review
• Linked to RMA plan making and monitoring
Communication and Consultation
• Community and stakeholder engagement
What does it mean for us?
Resource Management Act
• Understand and use tools we already have
• Look for and be prepared for new focus on risk, national direction or guidance and flow-through to regional and district policies & plans
Civil Defence and Emergency Management Act
• Note strong drivers on risk reduction from Sendai
• Look out for or get involved in the Resilience Strategy
• Understand links between RMA and CDEM frameworks
Other Regulatory Tools and Provisions
• Understand them and join up the dots
Take Home Messages
There are new and strong international drivers on risk reduction
Risk reduction is already part of our Civil Defence and Emergency Management framework
A risk-based approach is proposed to be explicitly reinforced in the RMA
We can already deliver risk-based approach and achieve risk reduction in the RMA and other regulatory frameworks