14 NATURAL HAZARDS Background Resource Management Issues

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1 14 NATURAL HAZARDS 14.1 Background The particular geology, hydrology and topography of the Hutt Valley make Upper Hutt vulnerable to a variety of natural hazards. Earthquakes and flooding are the most important natural hazards that threaten Upper Hutt s communities. Natural hazards cannot be prevented, but the effects they have on people and the environment can be mitigated managed. Flood protection measures, and land use planning and emergency management are two ways to minimise risks. Under the Resource Management Act 1991, it is the Council s function and responsibility is to manage the actual and potential effects of the use, development or protection of land. This includes the use of controls to avoid, remedy, or mitigate the effects of natural hazards. The District Plan takes a risk-based approach to planning for natural hazards. The principal function of the District Plan is to identify where risks from natural hazards are most significant and to manage subdivision and development within these areas Resource Management Issues The potential damage, disruption and threats to the safety of the community and property as a result of activities located on or near an area prone to seismic hazard. Within Upper Hutt, the Wellington Fault occupies the north-western margin of the Upper Hutt/Te Marua basins. The north west side of the valley is the eroded fault scarp of the Wellington Fault. In many parts of Upper Hutt the exact location of the active fault is unknown. The level of accuracy ranges from +/-5m within Totara Park, to more than +/-50m between the Silverstream Bridge and south of Totara Park. The variation in accuracy is due to the lack of surface evidence like active faulting and other surface obstructions. The adverse effects of earthquakes impact on both physical resources and people. Fault ruptures are the most obvious cause of damage but ground shaking is more widespread. The severity of the effect depends upon factors like distance from the fault, local topography, geological conditions and ground water conditions. Showing the active fault on the Planning Maps assists in identifying areas most likely to be affected by earthquakes. Upper Hutt District Plan 14/1

2 A major earthquake in Upper Hutt is likely to damage resources and injure people. Buildings and infrastructure that straddle the fault may be severely damaged. The severity of damage in other areas of Upper Hutt will vary depending on the location. Conditions such as soil structure, ground water, and local topography as well as geological conditions will either attenuate or amplify the earthquake. There are also areas that may be prone to liquefaction and seismically induced slope failure Inappropriate subdivision, development and activities located within floodplains Flood Hazard Areas that may result in damage to infrastructure and property and, obstruct the obstruction of flood flow paths and potentially threaten health and safety. Upper Hutt is dissected by several tributary rivers which flow into the main Hutt River. Subdivision and development within areas of flood risk can have a range of adverse effects, not only on the property concerned but also on other properties. In identified areas of significant flood risk, some form of control is necessary to limit the potential of further subdivision and development to worsen the risks. Controls on structures and buildings may be required to prevent obstruction to flood flows. Earthworks can alter the direction and intensity of floods by diverting floodwaters. The control of land use activities can reduce the future losses and cost of response of future flood events. Subdivision and development will generally be restricted through District Plan rules where subdivision and development include activities that significantly worsen flood hazard effects to buildings, structures and land off-site, including impacts on the flood protection system. Such activities may include constructing buildings and structures and undertaking significant earthworks. The effects of permitting more intensive subdivision (and subsequent development and infrastructure), allowing earthworks to be undertaken and allowing activities and buildings to be located in areas susceptible to natural hazards could be substantial with potential long lasting social and economic costs on the community. Controls on subdivision and development can reduce the potential adverse effects. The area of Upper Hutt most at risk is the Hutt River floodplain. Recognising this, the Wellington Regional Council has undertaken protection works, such as stopbanks and river bank stabilisation. These stopbanks run parallel to the developed urban area from Totara Park to Trentham Memorial Park. During a large flood the stopbanks may be breached, causing severe damage and disruption to the City. The stopbanks have a maximum design flood capacity so that it is possible in a significant flood event that they could be overtopped or a breach could occur causing significant damage and disruption to the City. Recognising this major environmental management issue facing residents of Upper Hutt the Hutt River Floodplain Management Plan Upper Hutt District Plan 14/2

3 2001 (HRFMP) was prepared by the Greater Wellington Regional Council with assistance from the Upper Hutt City and the Hutt City councils. The Hutt River Floodplain Management Plan 2001 recognises the importance and influence of the Hutt River in terms of flood risk and the river s amenity values. The HRFMP remains the Greater Wellington Regional Council s principal document for managing the Hutt River. In addition to the HRFMP, the Greater Wellington Regional Council undertakes other studies including the Mangaroa River Flood Hazard Assessment (MRFHA) which forms the basis for managing other rivers. Both these documents have informed the relevant District Plan provisions. In addition, the Heretaunga Flood Detention Embankment and outlet control structure (referred to as the Heretaunga Retention Dam) has been designed to reduce the frequency and severity of flooding in the downstream urban areas along the Heretaunga Drain. A line defining the predicted maximum extent of ponding behind the Heretaunga Dam has been identified on the Planning Maps. So that the ponding capacity of the Heretaunga Dam is not compromised, earthworks, buildings or structures should not be undertaken within the area encompassed by the Retention Line as shown on the Planning Maps. Subdivision in the rural areas is likely to increase the potential for development close to rivers and will require careful consideration. Certain upstream activities can increase the frequency and magnitude of flood events. For example, removal of vegetation can result in increased water run off, sedimentation and debris blockages, thus creating significant risks The need for on-going river management activities and development of flood protection works along the Hutt River. The Hutt River s water levels are subject to wide and sudden fluctuations. In order to avoid, remedy or mitigate the potential adverse effects of inundation and erosion, there is a need to manage activities on and near the Hutt River, and to provide for flood protection work as recognised by the Hutt River Floodplain Management Plan Upper Hutt District Plan 14/3

4 14.3 Objective The avoidance, remedying or mitigation of the adverse effects of inappropriate subdivision and development in areas at risk from natural hazards on the environment. The Council has the responsibility under the Act to protect all aspects of the environment, not just people and property, from the adverse effects of natural hazards. Amenity values of an area and its ecological systems should also be protected against natural hazards. Subdivision and development in areas at risk from natural hazards should be avoided, unless the adverse effects can be appropriately avoided, remedied or mitigated. It is acknowledged that it is not always feasible or practicable to avoid, remedy, or mitigate all potential effects of natural hazards at all times for all aspects of the environment. Development proposals will be required to demonstrate to Council that potential adverse effects of natural hazards, including residual risk, will be appropriately managed in accordance with Policy Some priority must be placed Council has placed priority on protecting human life and property, but preferably. Preferably this can be achieved in conjunction with achieving other goals, such as maintaining and enhancing amenity values. The goal in managing the effects of natural hazards within the City, therefore is the avoidance of avoiding, remedying or mitigation of the adverse effects of natural hazards on the environment as appropriate to the circumstances, with priority placed on community protection. inappropriate subdivision and development in areas at risk from natural hazards Policies To identify and mitigate the areas of the City that are potentially at risk from adverse effects of natural hazards, including specific identification of areas at high risk from natural hazards. that are a potentially significant threat within Upper Hutt. Adequate information is necessary to make informed decisions on developments that may be affected by natural hazards. The main objective relating to natural hazards is knowing where they can occur so that the effects can be avoided, or the appropriate risk management strategies can be put in place. Upper Hutt District Plan 14/4

5 The Council will co-ordinate the provision of information identifying these hazards and the areas at risk. This can be used by developers, the community and the Council to consider the potential risks when making decisions on developments and deciding on possible risk management mitigation measures where natural hazards are involved The Flood Hazard Area is shown on the Planning Maps, using information obtained from the Greater Wellington Regional Council with further details of the flood hazard shown on the Hazard Maps in Part 5. Four different types of flood hazard areas are identified on the maps in Part 5, based on the information known about the rivers and their corresponding flood hazards. These areas are; the River Corridor, Erosion Hazard Line, Overflow Path and Ponding Areas. These areas have varying levels of risk, with the River Corridor, Overflow Path and Erosion Hazard posing the highest risk to people, property and the environment. These levels of risk will inform District Plan performance standards and the areas with the highest risk will have the most restrictive standards In areas at risk from of known susceptibility to natural hazards, avoid subdivision and development and activities unless they are to be designed and located to avoid, remedy and mitigate, where practicable, so that the adverse effects of natural hazards, and the residual risk, on people, property and the environment are no more than minor, without using mitigation measures that will: adversely modify natural processes to a more than minor extent; or cause or exacerbate hazards in adjacent areas to a more than minor extent; or generally result in significant alteration of the natural character of the landscape; or have unaffordable establishment or maintenance costs to the community. This policy seeks to limit the adverse effects of natural hazards by avoiding inappropriate subdivision and development in areas at risk from natural hazards. In these areas subdivision and development will not be appropriate unless mitigation measures are implemented to ensure the risk to people, property and the environment is reduced to a no more than minor level, including residual risk. Any measures designed to avoid, remedy or mitigate risk must be appropriate to the level of risk posed. In addition, when determining the appropriateness of a proposed mitigation measure, the potential adverse effects on other properties must also be taken into consideration, as should any effects on an existing risk management protection system. This policy lessens the risk factor by restricting developments in hazard prone areas. These controls include appropriate separation distances from a river or fault or designing structures and site development to Upper Hutt District Plan 14/5

6 meet acceptable levels of safety. This also enables applicants to consider the potential risks when making decisions on developments. The effects of permitting more intensive subdivision (and subsequent development and infrastructure) could be substantial and controls on subdivision can reduce these. In areas at high risk from natural hazards, most forms of residential, industrial or commercial development would not be considered appropriate and should be avoided, unless it is shown that the effects, including residual risk, will be managed appropriately. Any proposals for subdivision and development occurring in areas at high risk from natural hazards will be required to meet a high threshold for appropriateness as reflected in the District Plan rules and permitted activity standards. Additionally, the Council will discourage activities such as emergency services, the storage of bulk hazardous substances, and key network facilities services critical for the ongoing function of utility services (e.g. electricity transformers, water and wastewater pumping facilities) siting in areas at high risk from natural hazards. These areas are generally unsuitable locations for these sorts of activities because they expose the community to potentially significant risks to health and safety, and ongoing community function. Section 106 of the Act also provides Council with the opportunity to decline subdivision consents where there is likely to be material damage to land and structures from erosion, subsidence, slippage or inundation from a river source. Provision must be made for safe access routes to and from a site. Adequate measures must be implemented to ensure that evacuation and emergency services can access a site without any unnecessary risk Methods District Plan provisions consisting of the following: 1. Control of the location, and design of subdivisions through standards for subdivision and building design to avoid or mitigate the risk from natural hazards. 2. Management of the location and use of buildings in close proximity to earthquake faults and areas susceptible to inundation and erosion. 3. Restriction Control of activities, buildings and structures within the river berms Flood Hazard Area of the Hutt River. Upper Hutt District Plan 14/6

7 4. Management of activities involving the removal of vegetation and earthworks located on unstable slopes. 5. Information on Planning Maps. These indicate the type and extent of the flooding and fault band hazards To maintain an up-to-date Hazard Register which will record areas and sites of known or potential hazards. The information will be used in the building consent process, as well as for land information memoranda, project information memoranda, and resource consent processes Information on liquefaction and slope failure hazards, which is held by the Council, will be supplied to persons applying for land information memoranda and project information memoranda The use of section 36 of the Building Act 1991 and compliance with the New Zealand Building Code in the Council s building consent process for the structural safety of buildings to withstand wind, inundation, earthquakes and unstable ground The continued civil defence emergency management role of the Council, and its staff, under the relevant legislation Anticipated environmental results and monitoring The following results are expected to be achieved by the objective, policies and methods in this Chapter. The means of monitoring whether this Plan achieves the anticipated results are also set out below. Anticipated environmental results The avoidance, remedying, or mitigation of adverse environmental effects of natural hazards on communities, including mitigation management measures in place in areas identified as being of high risk Prevention of development which increases the level of risk in areas identified as Monitoring indicators Effectiveness of conditions of consents and methods used in managing adverse effects Development in areas subject to natural hazards Reduction of downstream effects caused by flooding events Reduction of risk from flooding events Development in areas subject to natural hazards Data source Council complaints register Council resource consent records for compliance with conditions Council and Wellington Regional Council records Upper Hutt District Plan 14/7

8 being at high risk from natural hazards Communities informed about, and prepared for, the occurrence of natural hazards Consultation and community initiatives Various Upper Hutt District Plan 14/8