Rural Development Strategy Network Utilities: Issues and Options

Transcription

1 Rural Development Strategy Network Utilities: Issues and Options Prepared by Carine Andries, Policy Planner

2 Table of contents 1 Introduction Policy Framework National Level Policy District Level Policy Iwi Management Plans Overview of current network utilities Council provided services Private network utilities Current Issues Protection of network utilities Resilience/ Vulnerability New technology The impact of network utilities on the environment Best Practice Options for Whangarei District Whangarei District Growth Strategy Sustainable Futures 30/ District Plan Implementation Rural Development Strategy Implementation References Appendix 1 Legislation Relevant to Network Utilities Appendix 2 Network Utility Operators having Designations in the District Plan Table of figures Figure 1 - The Hikurangi Wastewater System... 6 Figure 2 - Waipu Wastewater System... 7 Figure 3 - Waiotira... 7 Figure 4 - The Vector Gas Network in the Whangarei District... 8 Figure 5 - The New Zealand Refining Company Oil Pipeline... 9 Figure 6 - Telecom CDMA Mobile Coverage Figure 7- Telecom XT Mobile Coverage Figure 8 - Vodafone 2G and 2.5G Mobile Coverage Figure 9 - Vodafone 3G Mobile Broadband Coverage Figure 10 - Vodafone 3G Mobile Broadband Extended Coverage Figure 11-2Degrees Mobile Coverage Figure 12 - Coverage of the Kordia Network in the Whangarei District Figure 13 - Coverage of the Northpower Fibre Optic Network in the Whangarei District Figure 14 - Coverage of the Telecom Fibre Optic Network in the Whangarei District Figure 15 - Coverage of the Telecom Wholesale ASDL2+ Network in the Whangarei District Figure 16 - Coverage of the TelstraClear Network in the Whangarei District Figure 17 - Coverage of the Vodafone Network in the Whangarei District Figure 18 - Powerlines in the Whangarei District /27203 March

3 1 Introduction Network utilities comprise those, usually linear, physical resources that ensure the smooth running of a modern day society, such as electricity lines, telecommunication lines, water supply, sewer and stormwater pipelines, roads, rail and oil and gas pipelines. Much reliance is placed on this infrastructure for the vast majority of everyday activities. It is therefore important that new development does not compromise the proper working of these resources. This said, the presence of network utilities on land parcels often translates into restrictions on land use in the immediate vicinity of the resource, presenting consequences for affected landowners. This report briefly outlines where the majority of the District s network utility resources are located, and provides an overview of the main issues that arise in relation to these networks. Quite a number of these resources are not provided for in the rural areas of our District. These mainly relate to services usually provided by Council, such as water, wastewater and stormwater. The roading network, although vital for our rural economic, social and cultural fabric, will not be addressed here, as this is attended to in a separate report titled transportation. 2 Policy Framework 2.1 National Level Policy Given the broad spectrum of resources covered under the banner of network utilities there is a wide variety of legislation, regulations, codes of practice, standards and so on, at a national level, that can be brought to bear on this topic. A brief overview of relevant legislation is provided in appendix 1. For local authorities, the Local Government Act and the Resource Management Act constitute the key pieces of legislation. The Local Government Act The Local Government Act 2002 (LGA or the Act) provides a broad mandate for local authorities to involve themselves in economic, social, environmental and cultural issues. In section 3, the purpose of the Act is explained, including that it provides for local authorities to play a broad role in promoting the social, economic, environmental, and cultural well-being of their communities, taking a sustainable development approach. In addition, section 11A stipulates that In performing its role, a local authority must have particular regard to the contribution that the following core services make to its communities: a b c d e network infrastructure public transport services solid waste collection and disposal the avoidance or mitigation of natural hazards libraries, museums, reserves, recreational facilities, and other community infrastructure. The LGA introduces mandatory long term strategic planning in the form of Long Term Plans (LTPs). This kind of strategic planning enables local authorities to develop and realise visions of a sustainable future. Resource Management Act Section 5 of the Resource Management Act (RMA or the Act) clarifies the purpose of the Act as being: to promote the sustainable management of natural and physical resources ; with sustainable management meaning: 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 b c Sustaining the potential of natural and physical resources (excluding minerals) to meet the reasonably foreseeable needs of future generations Safeguarding the life-supporting capacity of air, water, soil, and ecosystems Avoiding, remedying, or mitigating any adverse effects of activities on the environment. Part 8 of the Act, furthermore, provides for land to be designated by an approved authority for network utility purposes. To accomplish its purpose, the RMA establishes a hierarchy of policy documents from national instruments, such as national policy statements and environmental standards, to regional policy statements, and regional 11/27203 March

4 and district plans. This 'hierarchy' and requirement to ensure consistency between plans, exists to promote sustainable management and ensure integrated management of natural and physical resources at a national, regional and local level. The majority of these plans provide direction about what kind of activities may be undertaken in certain environments depending on the related effects, thereby impacting upon land use activities in rural areas. In relation to network utilities, these documents often try and balance the effects network utilities may have upon the surrounding area with the effects that certain land use activities may create upon the physical resources of network utilities. Regional Level Policy The Northland Regional Council has few responsibilities in terms of network utility operations. NRC has recently adopted a regional transport strategy, and the operative Regional Policy Statement does deal with energy and transport issues. These matters are, however, already being addressed in the separate Rural Development Strategy Energy and Transport background reports. The information will not be repeated here. Managing the effects on and of network utility resources is mainly handled at district level. 2.2 District Level Policy Long Term Plan (LTP) As mentioned above, the LTP allows councils to create a vision, and plan for their activities in a more strategic fashion. To this end, the recently adopted Growth Strategy: Sustainable Futures 30/50, with its preferred consolidated growth pattern, will be able to inform the LTP in relation to the locations where network utilities are required to be expanded. In this way, (financial) resources can be assigned more strategically in order to achieve maximum benefit for the community. Whangarei District Plan Chapter 23 of the Whangarei District Plan outlines the specific objectives and policies relating to network utilities. Subsequent rules, relating to both subdivision and land use, are applied within different environments, including the Countryside and Coastal Countryside Environments. However, these rules may require a review, especially in light of the emerging new telecommunications technology. Chapter 85 is dedicated to designations, as per Part 8 of the RMA. This section lists all requiring authorities for which the District Plan has designations within its resource area maps, and outlines the properties to which these designations apply. Rolling Review of Operative District Plan Under the RMA, Council is required to monitor the effectiveness of the District Plan and complete a review of all District Plan provisions within any 10 year time period. Monitoring of the Whangarei District Plan has identified areas of inconsistency and ineffectiveness. In addition, new issues have emerged since the District Plan was first devised. To complete this review of the District Plan, Council has resolved to undertake a rolling review, re-assessing the plan chapter-by-chapter, over the next three years. The rolling review will examine whether the current objectives, policies and methods in the plan are consistent with legislation, and are working the way the community needs and wants them to. Plan changes will be instigated where required, as dictated by the outcomes of the review. This way, the District Plan will become a live document. The rolling review programme will also incorporate the priorities set out in Council s various business plans, asset management plans, the Long Term Council Community Plan (LTCCP) and the Whangarei District Growth Strategy: Sustainable Futures 30/50. It will recognise the role different areas will play in the District s future, given the forecast population changes and estimated economic growth over the next 10 years. 2.3 Iwi Management Plans Ngati Hine iwi Environmental Management Plan 2008 This plan addresses many resource management issues. Those directly relevant to network utilities are reproduced below: Utilities, amenities & infrastructure: Innovative means of providing for development infrastructure should be encouraged, for example the farming of algae for bio-fuels on sewerage treatment ponds, effluent disposal to indigenous commercial forestry plantations, low-impact micro-sewerage systems, etc 11/27203 March

5 Overall, the plan highlights the importance to the iwi of all natural resources such as indigenous vegetation, fauna, water bodies and so on, which may potentially be impacted by the construction of network utilities. Patuharakeke Te Iwi Trust Board (Inc.) Environmental Plan This environmental plan appears to express a more holistic approach to resource management while stressing the importance of relationship building between the iwi, the local council, other agencies and private developers. There is no mention of specific issues within the plan. As such, network utilities do not feature as a separate topic. However, given the importance placed on the integrity of the natural environment and on the sustainable use of its resources, it is thought that large structures associated with network utility operations, such as cell towers, power pylons, roads and so on, may have an impact on sites of significance for Maori. Conversely, the non-provision of networked services may also present issues, especially where discharges of effluent are concerned. On-site systems have the potential to contaminate streams, rivers and groundwater if not properly designed and/or installed. Depending on the utility, different issues may arise, which will need to be taken into account when formulating relevant policy. Te Iwi o Ngatiwai Iwi Environmental Policy Document Even though this policy document addresses many specific issues, network utilities, as such, are not covered. However, the importance of protecting water bodies, including wetlands, from sewage and stormwater contamination is stressed. The Plan does not support the clearing of native vegetation and fauna habitat without comprehensive ecological assessments, whether the clearance is for network utilities or other development purposes. The plan also highlights the importance of sites of significance which may be affected by large structures. 11/27203 March

6 3 Overview of current network utilities 3.1 Council provided services This section outlines which settlements have reticulated council services, and the type of services provided. Hikurangi This rural settlement is currently reticulated with water and wastewater services. Stormwater reticulation is sufficient to cater for a 1 in 5 year event, but some flooding occurs for more extreme events. Figure 1 outlines the approximate location of the wastewater network system. Figure 1 - The Hikurangi Wastewater System Maungakaramea Water supply is the only service currently reticulated in this settlement. Some Council stormwater assets exist, but there is no network for either stormwater or wastewater. 11/27203 March

7 Maungatapere Similarly to Maungakaramea, this settlement enjoys a reticulated water supply, but no wastewater or stormwater reticulation. Waipu Waipu has reticulated water, wastewater and stormwater services. Figure 2 outlines the wastewater network. Figure 2 - Waipu Wastewater System Waiotira This rural settlement has a small wastewater pipeline and a primary treatment plant as per figure 2 below. Figure 3 - Waiotira 3.2 Private network utilities Wherever possible, this section attempts to show the approximate location of the various network utilities. 11/27203 March

8 3.2.1 Reticulated Gas Figure 4 outlines the Vector Gas network. Relevant designations can be found in Chapter 85 of the District Plan. Figure 4 - The Vector Gas Network in the Whangarei District Oil pipelines Figure 5 outlines the New Zealand Refining Company oil pipeline, which extends all the way to Wiri, Auckland. Relevant designations for the Whangarei District can be found in Chapter 85 of the District Plan. 11/27203 March

9 Figure 5 - The New Zealand Refining Company Oil Pipeline Telecommunications Telecommunication services such as internet and mobile phone networks are available through a number of providers. Their various networks and coverage are outlined below. Relevant designations can be found in Chapter 85 of the District Plan. Interestingly, in the Whangarei District a larger proportion (56%) of rural households have access to the internet in comparison with urban households where access is available to about 46% (WDC, 2010). 11/27203 March

10 Mobile phone networks The various mobile phone network provided by Telecom, Vodafone and 2Degrees are depicted below. Figure 6 - Telecom CDMA Mobile Coverage Source: Telecom New Zealand, 2007 Figure 7- Telecom XT Mobile Coverage Source: Telecom New Zealand, /27203 March

11 Figure 8 - Vodafone 2G and 2.5G Mobile Coverage Source: Vodafone, 2010 Figure 9 - Vodafone 3G Mobile Broadband Coverage Source: Vodafone, /27203 March

12 Figure 10 - Vodafone 3G Mobile Broadband Extended Coverage Source: Vodafone, 2010 Figure 11-2Degrees Mobile Coverage Source: 2Degrees, /27203 March

13 Internet Networks Internet can be provided in a variety of ways. Broadband has been around for quite a number of years, and is being superseded by fibre optic networks which provide reliability and larger bandwidth at low cost. Internet can also be provided wireless, via satellite, which can be useful in more remote locations such as our rural areas. Locally, Ubergroup has an extensive wireless network providing fast broadband services around Northland. The various existing networks are depicted below. Figure 12 - Coverage of the Kordia Network in the Whangarei District Source: Ministry of Economic Development, /27203 March

14 Figure 13 - Coverage of the Northpower Fibre Optic Network in the Whangarei District Source: Ministry of Economic Development, 2010 Figure 14 - Coverage of the Telecom Fibre Optic Network in the Whangarei District Source: Ministry of Economic Development, /27203 March

15 Figure 15 - Coverage of the Telecom Wholesale ASDL2+ Network in the Whangarei District Source: Ministry of Economic Development, 2010 Figure 16 - Coverage of the TelstraClear Network in the Whangarei District Source: Ministry of Economic Development, /27203 March

16 Figure 17 - Coverage of the Vodafone Network in the Whangarei District Electricity Source: Ministry of Economic Development, 2010 Power lines and substations are also present around the District. Relevant designations can be found in Chapter 85 of the District Plan. The lines that form part of the national grid are also shown on the District Plan planning maps. Plan Change 117 which is currently before Council may lead to Northpower s critical infrastructure also being incorporated onto the various planning maps. Figure 18 below shows the powerlines of the national grid, as well as Northpower s critical electricity lines. 11/27203 March

17 Figure 18 - Powerlines in the Whangarei District (note: this information is to be used for planning purposes only) 4 Current Issues 4.1 Protection of network utilities The protection of network utilities is often quite difficult to achieve. Particularly in the rural areas where structures associated with farming activities usually do not require building or resource consent, it is possible for the construction of such structures to compromise network utilities in several ways, such as by locating too close to the network, by carrying out earthworks that may damage lines, and so on. The planting of trees can also impact networks by interfering with electricity lines when they grow too tall or by damaging lines or pipes when root system develops. Consultation with Northpower, for instance, has revealed that current District Plan provisions are not sufficient to protect electricity assets from reverse sensitivity issues. 4.2 Resilience/ Vulnerability Being reliant on centralised systems does increase vulnerability by making communities less resilient. For instance, a large event, whether climatic or otherwise, may cause damage to networks, leaving many people 11/27203 March

18 affected. For instance, there may not be any power, clean water or wastewater disposal services, as witnessed during the recent Christchurch earthquake event. 4.3 New technology Innovations in technology are providing more and more opportunities for wireless operations. Provisions in the District Plan do not yet reflect these new systems. 4.4 The impact of network utilities on the environment As well as land use activities being able to impact on network utilities; network utilities are also able to impact upon the surrounding environment, and upon landowners whose properties may accommodate these resources. 5 Best Practice The Quality Planning website does not provide any guidance on addressing network utility operations in the District Plan. The only related topic covered on the website is about managing the effects of radio frequency transmitters. The issues of focus are visual amenity, health effects, noise and cultural values. 6 Options for Whangarei District 6.1 Whangarei District Growth Strategy Sustainable Futures 30/50 The consolidated approach to development outlined by the Whangarei District Growth Strategy will facilitate a more strategic way of providing for reticulated services. It will allow for more forward planning which will assist in avoiding reverse sensitivity issues, at least where Council provided services are concerned. 6.2 District Plan Implementation A review of the District Plan provisions should be undertaken to ensure outdated policies and rules are amended to provide for newer technologies. Issues of reverse sensitivity may also need to be addressed. 6.3 Rural Development Strategy Implementation Other methods that may assist in the smooth and orderly provision of network utilities: Establish a working group with representatives from the various network utility operators, including Council to discuss future growth and strategic planning in the different sectors so that potential issues can be identified early on. Facilitate the creation of community groups to discuss how issues of vulnerability and resilience can best be addressed. 11/27203 March

19 7 References Whangarei District Council. (2010). Sustainable Futures 30/50: Telecommunication in the Whangarei District. 11/27203 March

20 8 Appendices Appendix 1 Legislation Relevant to Network Utilities Electricity Act 1991 Electricity (Hazards from trees) Regulations 2003 Electricity (Safety) Regulations 2010 NZECP 34:2001 Telecommunications Act 2001 Resource Management Act 1991 National Policy Statement for Electricity Transmission National Policy Statement for Renewable Energy Generation Resource Management (National Environmental Standards for Electricity Transmission Activities) Regulations 2009 Resource Management (National Environmental Standards for Telecommunication Facilities) Regulations 2008 Utilities Access Act 2010 The National Code of Practice for Utilities Access to the Transport Corridors 2008 Civil Defence Emergency Management Act /27203 March

21 Appendix 2 Network Utility Operators having Designations in the District Plan Requiring Authority Broadcast Communications Limited Meteorological Service of New Zealand Northpower Limited Radio New Zealand Limited The Radio Network - Limited Telecom New Zealand Limited Transpower New Zealand Limited Transit New Zealand New Zealand Railways Corporation Whangarei District Council The New Zealand Refining Company Limited Vector Gas Limited Abbreviation Used in DP DBCL DMET DNP DRNZ DTRN DT DTP DTNZ DNZRC DW DREF DVG 11/27203 March