PUCM Papers

Planning Under Co-operative Mandates (PUCM) was a research programme focusing on the New Zealand Government's goal of sustainable development through local government.

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  • Publication
    A report to iwi on the kaupapa Māori environmental outcomes and indicators kete
    (Technical Report, IGCI, The University of Waikato, 2009-06-30) Jefferies, Richard; Kennedy, Nathan
    Tangata whenua in Aotearoa have been largely excluded from participation in local government planning since colonisation, but tikanga and Māori values have for the past two decades been acknowledged in resource management and local government legislation, especially the Resource Management Act, 1991 (RMA) and Local Government Act, 2002 (LGA). For example, the RMA has provisions in over 30 sections for councils to give effect to Māori interests. In practice, however, there is widespread concern that despite these provisions, Māori are largely excluded from local government resource management processes and their values subordinated to those of the wider community, particularly western scientific values. This report describes research that resulted in a kaupapa Māori outcomes and indicators framework, and associated methods, that can be used by iwi to assess the quality of statutory plans and the environmental performance of councils in their rohe.
  • Publication
    Viewing the world through a wider lens: Māori and council planning documents
    (Technical Report, IGCI, The University of Waikato, 2008-07-30) Kennedy, Nathan
    My effort to convey an iwi perspective on environmental resource management - what we call kaitiakitanga – should highlight for new planners about to enter the profession that the environmental perspectives of hapū and iwi (which are provided for in the RMA), are currently not well covered in either mainstream local government planning or education.
  • Publication
    Environmental performance outcomes and indicators for indigenous peoples: Review of literature
    (Technical Report, IGCI, The University of Waikato, 2009-07-31) Kennedy, Nathan; Jefferies, Richard
    The literature review in this report was the starting point for developing a Māori research strand (2003-2009) within the Planning Under Co-operative Mandates (PUCM) research programme (1995-2009). An early task of the PUCM Māori team was to review the international literature on environmental outcomes and indicators for indigenous peoples. This was in order to gain an understanding of what had been written on the subject and to become familiar with approaches taken by others that might provide lessons for the development of our proposed kaupapa Māori outcomes and indicators framework and methodology, which was aimed at local government performance in Aotearoa/New Zealand. This current report is not intended to provide an exhaustive catalogue of writings on environmental performance outcomes and indicators for indigenous peoples, including Māori. Rather, some of the more obvious and important writings are noted as a ready reference for others interested in this topic. Before detailing the approach we took in carrying out the review, the key terms, outcomes and indicators, are defined.
  • Publication
    Kaupapa Māori framework and literature review of key prinicples
    (Technical Report, IGCI, The University of Waikato, 2009-06-30) Kennedy, Nathan; Jefferies, Richard
    The literature review in this report was the starting point for the development of a Māori research strand within the Planning Under Co-operative Mandates (PUCM) research programme. The original purpose of this report Kaupapa Māori Framework and Literature Review of Key Principles was to establish definitions of environmentally significant concepts of kaupapa and tikanga Māori. In addition, the review sought to identify and briefly describe significant variations between understandings of the key concepts without attempting to reconcile these. As the purpose of the review in 2005 was to inform the development of a kaupapa Māori methodology for the identification and development of Māori environmental outcomes and indicators, we paid particular regard to Māori perceptions of the environment and the relevance of each concept in environmental terms.
  • Publication
    Māori provisions in plans: Mana whenua, mauri of water, and wahi tapu
    (Technical Report, IGCI, The University of Waikato, 2008-07-31) Kennedy, Nathan; Jefferies, Richard
    The intention of this document is to allow those using Ngā Mahi: Kaupapa Māori Outcomes an Indicators Kete (Jefferies and Kennedy, 2009, PUCM Māori Report 2) to view a range of examples of Māori provisions within statutory planning documents against plans being evaluated. The extracts in this Report 3 on Māori Provisions in Plans relate to the three tikanga in the Ngā Mahi report: Mana Whenua, Mauri (relating to water), and Wähi Tapu. It is intended that as we develop new kete (containing worksheets and user guides) and thereby expand Ngā Mahi, this current report will be revised to include plan provisions relating to additional tikanga.
  • Publication
    Ngā mahi: Kaupapa Māori outcomes and indicators kete
    (Technical Report, IGCI, The University of Waikato, 2009-06-30) Jefferies, Richard; Kennedy, Nathan
    As part of the Planning Under Cooperative Mandates research (PUCM) we developed a kaupapa Māori outcomes and indicators framework. This framework reflects tikanga Māori and Māori values. It also considers issues (including environmental issues) according to those tikanga that particular issues invoke. For example, tikanga brought into play in relation to council treatment and disposal of sewerage include tapu (sacred), and might also impact on the mauri (life-force) of water if treated effluent were to enter waterways. The intention of our research has been to clarify and define key Māori environmental concepts so that stakeholders (including council staff) will have a terms of reference against which they can compare desired environmental outcomes from different perspectives and be better placed to integrate Māori environmental outcomes into planning processes. The end-point is this Nga Mahi kete report containing tikanga-based worksheets and the guidelines for using them.
  • Publication
    Māori outcome evaluation: A kaupapa Māori, outcomes and indictors, framework and methodology
    (Technical Report, IGCI, The University of Waikato, 2009-06-30) Jefferies, Richard; Kennedy, Nathan
    Territorial local authorities (i.e. regional and district councils) are by law required to provide for Māori values and interests, and to undertake plan evaluation and environmental monitoring, to ensure that the provisions they have in place for these purposes are effective. Councils have not, however, had methods available that would enable them to meet these statutory obligations. This gap is filled by the framework and methods that we have developed and trialled over the past 5 years. The development and use of our Kaupapa Māori Environmental Outcomes and Indicators Framework and Methodology is the focus of this report.
  • Publication
    Evaluating the outcomes of plans: theory, practice, and methodology
    (Journal Article, Pion Ltd, 2010) Laurian, Lucie; Crawford, Janet; Day, Maxine; Kouwenhoven, Peter; Mason, Greg; Ericksen, Neil; Beattie, Lee
    Despite calls for performance-oriented and evidence-based planning, the outcomes of land use and environmental plans are rarely monitored or assessed ex post facto (that is, post implementation). As a result, planners cannot know whether or why plans achieve their goals, or learn from the results of past interventions to improve planning practice. This evaluation gap is caused by a lack of methodology to evaluate the outcomes of plans and the difficulty of attributing changes to planning activities. We address this gap by proposing and testing a plan-outcome evaluation (POE) methodology. We demonstrate its broad applicability and usefulness in the context of local plans in New Zealand. The POE methodology will be useful to practitioners and academics seeking to assess the outcomes of plans in countries with western planning traditions.
  • Publication
    The legend of the RMA: A trilogy
    (Conference Contribution, The International Global Change Institute (IGCI), University of Waikato., 2003-09) Ericksen, Neil
    In this presentation the author paints the conflict of people versus nature in light of the RMA, and go on to look at the repercussions of this through not only the plans that were prepared under this controversial legislation, but also their implementation and resulting environmental outcomes. The author highlights some strategies for lifting the expectations of environmental outcomes achieved under the RMA through improving the quality of planning and governance under this legislation.
  • Publication
    Planning and governance under the LGA: Lessons from the RMA experience.
    (Technical Report, The International Global Change Institute (IGCI), University of Waikato., 2004-06-01) Borrie, Nancy; Memon, Ali; Ericksen, Neil; Crawford, Janet
    The purpose of this report is to identify ways in which experiences gained from the RMA as a devolved and co-operative planning mandate can enable local and central government and other stakeholders to more effectively implement the LGA. The report is based on findings from the FRST-funded research programme on Planning under Co-operative Mandates (PUCM). We argue in this report that the experiences gained from the RMA can inform effective implementation of the LGA in three important respects: Preparation and implementation of LTCCPs; The community consultation process for formulating community outcomes; and Māori participation in planning and governance.
  • Publication
    Planning paradise with the Cheshire Cat: Governance problems under the RMA
    (Conference Contribution, 2003-05-23) Ericksen, Neil
    Much has been made of compliance costs to business and the need to process consents hastily in relation to the Resource Management Act in New Zealand. This obsession with compliance misses the fundamental problem of implementing the RMA — shortcomings in governance. This address will shed some light on this pervasive problem, first by characterizing RMA within the theoretical range of national mandates, then dealing in turn with governance issues at each level in the intergovernmental hierarchy of partnerships established by RMA and LGA. It concludes with brief mention of long term council community planning, because it too is at risk if governance is not improved.
  • Publication
    PUCM 2 Survey Results 2001-2002
    (Technical Report, International Global Change Institute, University of Waikato, 2002-06) Day, Maxine; Backhurst, Michael
    This Report contains the results from a survey of resource management consultants and resource consent applicants carried out during 2001-2002 to gain factual and attitudinal information about the plan implementation processes of respective councils. It drew on the experiences of 277 applicants and consultants representing a diversity of stakeholders, and provided a valuable check on the quality of processes and procedures of councils with respect to plan implementation and compliance.
  • Publication
    Resource management, plan quality and governance: A report to Government
    (Technical Report, International Global Change Institute, University of Waikato, 2001) Ericksen, Neil; Crawford, Janet; Berke, Philip; Dixon, Jennifer
    This Report contains the main findings from FRST-funded research into planning under the Resource Management Act. It includes five sets of interrelated recommendations. These recommendations identify many actions that are essential if Government is serious about achieving its goal of environmental sustainability. Implementation of the recommendations will require a significant increase in expenditure at all levels of the planning hierarchy, but especially central government.
  • Publication
    Plan effectiveness monitoring: Built heritage, Wellington City District Plan
    (Commissioned Report for External Body, International Global Change Institute, University of Waikato, 2005-02) Mason, Greg; McEwan, Ann
    The goal of this project has been to assess the effectiveness of the built heritage provisions in the Wellington City District Plan. To this end, sixty nine buildings were chosen from the Plan’s Heritage List: Buildings (a sample size of around 14%), which include: 55 buildings that have had at least one resource consent granted under the District Plan. A total of 80 consents were assessed for these buildings as part of this project; 14 buildings that have had no resource consents granted. Each building was visited and an evaluation was undertaken regarding the effects of consented activities on heritage values. The effects of permitted activities (i.e. repair and maintenance) were assessed for the buildings that have no consent history. The evaluation relates only to the effects that could be viewed from the street.
  • Publication
    Managing change in North Shore’s Residential 3 Built Heritage zone: An evaluation of resource consent outcomes
    (Commissioned Report for External Body, International Global Change Institute, University of Waikato, 2005-12) Mason, Greg; McEwan, Ann
    The goal of the study presented in this report has been to determine the extent to which resource consent outcomes in North Shore City’s Residential 3 Built Heritage zone comply with the District Plan. To this end, a sample of 250 properties was selected representing a sample size of 6.5%. The records for each of these properties was checked to identify those that have had a consent granted for additions and alterations to buildings, new and relocated buildings, and the demolition or removal of houses in the Residential 3 zone. This revealed that 100 properties in the sample (or 40%) have been granted a total of 126 resource consents for one or more of these activities. Each of the 100 properties was visited and the outcomes of the consents were compared against the District Plan assessment criteria.
  • Publication
    Community outcome processes as a forum for community governance
    (Technical Report, International Global Change Institute, University of Waikato, 2008-01) Leonard, Lorraine; Memon, Ali
    Research for this report is part of a project on evaluating the quality of planning and governance under the Local Government Act 2002 (LGA). This is the first of two complementary reports aiming to develop and test a methodology for evaluating the LGA community outcomes processes and the related monitoring and reporting frameworks and apply it to selected councils. This report focuses on interrogation of community outcome processes facilitated by local authorities as a forum for community governance. Out of this study we have developed a generic framework for deliberative engagement.
  • Publication
    District plan implementation under the RMA: Confessions of a resource consent
    (Technical Report, 2003-04-15) Day, Maxine; Backhurst, Michael; Ericksen, Neil; Crawford, Janet; Chapman, Sarah; Berke, Philip; Laurian, Lucie; Dixon, Jennifer; Jefferies, Richard; Warren, Tricia; Barfoot, Cushla; Mason, Greg; Bennett, Matthew; Gibson, Claire
    This report focuses on results from Phase 2 of PUCM - the quality of plan implementation in six district councils selected for their range of plan quality and capacity to plan. Only those results considered to be important for assisting the six councils (and others) to improve implementation of their plans are included in this report. The findings and recommendations, both specific and general, ought to be instructive for other councils, thereby helping to improve their plans and implementation processes. Since hapu/iwi interests formed a key component of the research, the outcomes will help enhance their case for better consideration of their interests when dealing with local government. As well, many of the findings and recommendations relate to matters of governance and capacity building that require Government action, which until done will make it difficult for councils to achieve quality plans and implementation processes.
  • Publication
    PUCM Practice Development Programme (PDP): February 2005
    (Technical Report, The International Global Change Institute (IGCI), University of Waikato, 2005-02) PUCM: Planning Under Co-operative Mandates
    The purpose of this report is to identify a Practice Development Programme (PDP) for the presentation of relevant innovative practices and tools arising out of the first two Phases of PUCM (Planning Under Co-operative Mandates). During Phase 3 of the research (2004-2006) the PDP will be extended as new findings come to hand.
  • Publication
    Evaluation of iwi and hapū participation in the resource consents processes of six district councils
    (Working Paper, International Global Change Institute, University of Waikato, 2004-03) Backhurst, Michael; Day, Maxine; Warren, Tricia; Ericksen, Neil; Crawford, Janet; Jefferies, Richard; Bennett, Matthew; Berke, Philip; Chapman, Sarah; Laurian, Lucie
    This working paper analyses the processes adopted by councils for involving hapū/iwi in plan implementation, including the resource consents process. Three topic issues were investigated to assess plan implementation — urban amenity, storm water, and issues of importance to iwi. Questions were asked about the capacity of hapū/iwi to engage in the resource consent process, which resource issues were of concern to them, their relationship with council and consent applicants, and their perception of the consent process. Most resources listed in the questionnaire were of concern to hapū/iwi, with water quality, wāhi tapu and heritage the most commonly cited. In conclusion, we found a general dissatisfaction on the part of hapū/iwi with councils’ performance with respect to both Treaty relationships and consent processing under the RMA. A further contributing factor to the poor relationships found between hapū/iwi and councils, was the lack of clarity over the role of hapū and iwi in resource management. In several districts, diverging responses from hapū/iwi and councils to questions about level of understanding and commitment suggests there is a need for more effective communication. These problems are compounded by the generally low capacity of hapū/iwi to participate in resource consent processes. These findings suggest that there is much to be done to improve relationships and behaviour of these key stakeholder groups in the plan implementation process if key provisions in the RMA related to hapū/iwi interests are to be fulfilled. The differences shown in reciprocal perceptions have serious implications for establishing a sound working partnership between councils and hapū/iwi in their areas. Making clear these discrepancies is a first step towards taking the measures needed for building a better partnership. Further, the capacity of hapū/iwi to participate could be better utilised if there was greater integration between regional and district councils on issues of significance and processes for iwi involvement.
  • Publication
    Reflections on relationship-building between tangata whenua and local government: Notes from research and practice
    (Working Paper, International Global Change Institute, University of Waikato, 2003-06) Neill, Beth
    In this paper, the author takes a reflective look at two areas: the preliminary discussions and fieldwork they undertook to set up a collaborative doctoral research project exploring relationship-building between tangata whenua and local government (regional and district councils); and their practice as a community psychologist within local government, advising on social research and community participation in a number of environmental management projects.
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