Parliamentary Commissioner for the Environment - Te Kaitiaki Taiao a Te Whare Pāremata

Whose water is it? The sustainability of urban water systems on the Kapiti coast

Report summary

Low rainfall, very high per capita usage and a heavy reliance on a single source of supply, the Waikanae River, have created a water crisis on the Kapiti Coast. Simple engineering solutions, such as tapping into new and more remote sources of supply, are no longer appropriate - the solutions must meet the public health needs of growing communities, support commercial development and provide for the ecological health of the environment.

• Commissioner's preface
• Executive summary
• Findings & recommendations

 

Findings & recommendations

Ecological sustainability

Environmental Limits

An essential component of sustainability for communities revolves around 'trying to live within their means' in an environmental sense. Water consumption needs to be managed to ensure it allows long-term maintenance of the ecological health of the catchments it is being taken from.

Catchment based solutions are preferable wherever possible. Water from the Waikanae River catchment should be used for purposes within that catchment and water from the Otaki River catchment should be used for purposes within that catchment. In reality, of course, this may not always be possible, for example, in cases of extreme drought or raw water contamination or where catchments are very small.

Water consumption on the Kapiti Coast continues to be comparatively high and this is particularly affecting the Waikanae River. To alleviate this effect, KCDC must further reduce water consumption. KCDC will need to develop a more comprehensive demand management programme.

Catchment Management Planning

It is generally recognised that the health of the catchment from which raw water is directly taken impacts on the quality and quantity of that water and therefore on the costs associated with water treatment and supply. Good environmental health in the catchment also has a myriad of other benefits for environmental sustainability.

WRC and KCDC need to collaborate, include tangata whenua as kaitiaki for their respective rohe, and involve the community as stakeholders. The IMP for the Otaki River and catchment provides clear guidance as to how Ngati Raukawa wish to carry out this role. Te Ati Awa have also clearly expressed their concerns and aims for the Waikanae River.

Rehabilitation of Lower Reaches of the Otaki and Waikanae Rivers

The lower reaches of the Otaki and Waikanae Rivers have been significantly modified over time by flood protection works. Rehabilitation of the lower reaches of the Otaki and Waikanae Rivers is very important not only for the ecosystems themselves but also for tangata whenua and the communities living around the rivers.

Research

Better information is needed on groundwater and surface water resources on the Kapiti Coast. Greater understanding of local ecosystems, natural water cycles, and ecosystem services is required. KCDC and WRC should jointly develop and fund a programme of research into the water resource on the Kapiti Coast. Of particular concern is the current proliferation of shallow ground water bores and the potential for adverse cumulative environmental effects on the groundwater resource.

Social and cultural sustainability

Relationship between Tangata Whenua and KCDC

A key theme of the consultation undertaken for this investigation was dissatisfaction and frustration with the capacity of tangata whenua to access KCDC's decision-making processes.

Various initiatives aimed at establishing a working relationship between KCDC and tangata whenua, such as the 1994 Memorandum of Partnership and a Māori advisory committee, unfortunately do not seem to have led in practice to an effective and meaningful partnership. Clearly this is a challenge for all the parties involved.

KCDC's Relationship with the Kapiti Community

Most of the groups consulted expressed very similar concerns to tangata whenua in terms of gaining access to KCDC's decision-making process. KCDC is encouraged to develop ways of facilitating early consultation and input with the Kapiti community on the strategic infrastructure issues facing the district.

Community Concerns about Water Management

As the Beyond Ageing Pipes report identifies, one of the biggest challenges on Kapiti Coast and New Zealand-wide will be reaching consensus between stakeholders on environmental, social and economic goals for urban water systems. There is a range of community and political tensions surrounding how water services are currently managed on the Kapiti Coast. These tensions include ownership of water services, management and pricing and charging for water.

The development of a comprehensive demand management programme that includes universal metering and flow-based charging is critical. However, the introduction of flow-based charging will be a sensitive political and community issue.

Economic sustainability

Valuing, Pricing and Charging for Water Services

There are problems with the continuing use of property rates for the payment of water services, particularly for water supply and wastewater services. With charges based on property rates, there is no economic incentive for consumers to reduce their water consumption through efficiency measures. Where meters and flow based charges have been introduced, both in New Zealand and overseas, there has been a significant change in behaviour and a decrease in demand on a per capita basis.

KCDC has made provision for the installation of universal water meters in the LTFS commencing from 2008/9. However, it is suggested that given the on-going difficulties with matching supply to demand, installation of universal water meters should be brought forward and started in the next financial year.

Continuity of Water Supply

The Kapiti Coast does face the risk of losing continuity of water supply for the Waikanae, Paraparaumu and Raumati communities, particularly post 2003, if supplementary sources of supply are not brought on stream. Loss of supply would have a range of economic effects in addition to the obvious public health concerns.

Increasing alternative water supplies is not the only way to manage the risk. It would be prudent for KCDC to develop a forward risk management strategy to assist residents to cope with reduced or disrupted supplies.

Water supply for Otaki

The water supply for Otaki Township is likely to become a significant issue in the future both in terms of water quality and quantity if Otaki keeps growing as a desirable horticultural and residential area. This could involve significant expenditure, some of which has been budgeted for in the LTFS in approximately 20006/07. Under the current ward-funding scheme, the burden of repayment would fall on the Otaki community. These issues will need to be incorporated into the long-term planning for water services on the Kapiti Coast.

Urban Growth Strategy

The Urban Growth Strategy is not broad enough. The focus is on the Kapiti district when in fact it needs to take into account integral connections with Wellington and the Horowhenua through to Palmerston North. The Auckland Regional Growth Strategy shows the sort of approach that is likely to be more effective.

The environmental effects of the Growth Management Strategy should be reviewed and integrated with the 50-year water strategy and with integrated catchment management planning. It needs to be more clearly established that growth can be accommodated without significant environmental effects. This may lead to changes to the District Plan and the Code of Urban Subdivision

Integration

The traditional approach to the management of urban water systems is outdated. A more integrated, life-cycle approach is required.

Water Services Strategic Plan

It is noted that KCDC is committed to the preparation of a 50-year water strategy. From the PCE's point of view, this is a very important decision and one that offers considerable opportunities for moving towards the management of more sustainable urban water systems on the Kapiti Coast.

The preparation of a water services strategic plan will provide opportunity for integration between this strategy and related council functions, plans and policies such as the Urban Growth Strategy. It will also provide an opportunity for partnership between the WRC and KCDC which both have roles to play in the management of urban water systems on the Kapiti Coast.

Recommendations

To the Kapiti Coast District Council:

1. To develop and implement a long-term water services strategic plan in consultation with tangata whenua, the Kapiti community and other stakeholders such as the Wellington Regional Council and the Regional Public Health Service.

To the Wellington Regional Council and Kapiti Coast District Council:

2. To investigate the opportunities for improving integrated water catchment management planning in both the Otaki and Waikanae Rivers and catchments.