Introduction
What is monitoring?
Monitoring is about checking that we are achieving what we want to achieve and having information available from which to make sound resource management decisions. Monitoring can tell us about key pressures on the environment, the condition or state of the environment, and about responses or environmental results we are achieving, or need to work towards (as in the pressure-state-response framework.) The design of a monitoring system focuses attention on questions such as: how much information is enough, when is it needed and for what purposes?
Some local authorities have made significant progress towards meeting their RMA monitoring requirements. However, many have not. In the report Managing Change in Paradise (2001) the Parliamentary Commissioner for the Environment noted:
'Monitoring systems are poorly developed by and large so the information available to test effectiveness is simply not available. Without more effective collection and interpretation of monitoring data, we will find it very hard to know if we are heading in the right direction.'
Monitoring is an ongoing and systematic process; not a person, position, product or end in itself. Monitoring assists decision-making by closing the loop in the 'plan – do – monitor – report - review' cycle and informing decision makers of the consequences of actions and changes in the environment. It provides practitioners with checks to ensure things are on track. Monitoring involves:
In reality, some of these components may occur in a more iterative manner. The key thing is to think of monitoring as a process that assists decision-making.
Plan monitoring diagram
Text description of image:
The chart shows the plan monitoring cycle. The first stem is the creation of a plan. The second step is its introduction. The third step is monitoring the implementation of the plan. The fourth step is to review the data gathered from monitoring the plan implementation. Decisions made through the review step feed into the next iteration of the plan cycle.
People have expectations about what monitoring is and is not and what it will deliver. Millions of dollars have been spent on developing resource management policy and planning documents so it is important to check how well they are working and to assess whether environmental outcomes are being achieved.
Why bother - the benefits of monitoring
Although the law requires monitoring, it is more than a statutory requirement. Monitoring is common sense because it tells us if we are on track. The primary benefit of environmental monitoring is to check that your policy statement, plan, or condition on a resource consent has resulted in the environmental outcome you expected. It provides information to understand the current state of the environment and assess whether things are getting better or worse. Monitoring provides a number of real benefits for both the council and the community – monitoring:
What monitoring is required?
Resource Management Act – 2003 Amendment For the purposes of sustainable management of natural and physical resources |
Local Government Act 2002 For the purposes of sustainable development |
|---|---|
| Reviewing | |
All RPS, regional and district plans reviewed 10 yearly.
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Long Term Council Community Plans reviewed every 10 years. Monitoring:
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| Monitoring | |
|
• state what measures will be used to assess progress towards the achievement of community outcomes • state how the local authority will monitor progress towards achieving community outcomes - at least every 3 yrs
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| Reporting | |
| Required every 5 yrs in relation to policy and plan efficiency and effectiveness | Required every 3 yrs in relation to progress towards achieving community outcomes |
Section 35 of the RMA specifies the duty to gather information, monitor and keep records (in relation to the functions in the table above) and to take appropriate action when monitoring indicates this is necessary.
Sections 62(1)(j), 67(1)(i) and 75(1)(i), as amended in 2003, require that a regional policy statement, regional plan and district plan (respectively) must state …the procedures used to monitor the efficiency and effectiveness of the policies, (rules) or methods contained in the policy statement or plan.
Section 79 of the RMA requires all regional policy statements, and all regional and district plans, to be reviewed not later than 10 years after becoming operative.
The LGA 2002 requires local authorities to produce a Long Term Council Community Plan (LTCCP) that outlines community outcomes and provides a basis for accountability from the local authority to the community. An LTCCP must cover a period of 10 consecutive financial years. In the LTCCP councils are required to define: 'measurable community outcomes and priorities'; and, 'the council's role in furthering these outcomes.' The LTCCP must state how the local authority will monitor and report on the community's progress towards achieving the community outcomes, not less than once every 3 years. To demonstrate that key LTCCP outcomes have been effectively achieved councils will have to monitor and report on the outcomes in a similar way to the monitoring requirements of the RMA. This suggests the need for co-ordinated, integrated and focused planning and monitoring.
Porirua City Council is currently preparing its first Long Term Council Community Plan, which builds on their Strategic Plan developed in 2000. Porirua City Council has recently produced a Strategic Monitoring Report (PDF 188KB) that monitors the achievement of outcomes defined in their Strategic Plan. This monitoring report paves the way for the monitoring of LTCCP outcomes.
Integrated monitoring needed
Integrated monitoring makes the best use of existing information and information gathering systems. An important first step in integrating monitoring is to identify connections, possibly through preparation of a monitoring strategy. Because there are connections between the various roles and responsibilities of councils, information from one area of council activity will often also be relevant for monitoring other areas of council activity and policy - and to the activities of other agencies (refer to integrated monitoring and reporting diagram below).
Intergrated monitoring and reporting diagram
Text description of figure:
The diagram shows the span of integrated monitoring and reporting by local bodies. Local and regional policy directions, along with national and international directions, influence strategic policy, which takes into account environmental, social, economic and cultural factors. The strategic policy is implemented via regulatory and non-regulatory mechanisms, including regional and district plans, annual plans, and long term council community plans. The implementation of policy is then monitored and reviewed via a coordinated monitoring strategy, which covers the spectrum of environmental, social, economic and cultural indicators. The monitoring conducted feeds into management statistics, annual reports, the implementation of community services, and the perception of the state of the environment.
There are links between baseline monitoring and the monitoring of impacts and systems. Integration of the monitoring of processes (such as resource consents), outputs, outcomes and impacts is also important and is addressed in the guidance notes.
There are also links between state of the environment, policy and plan, resource consent, compliance and complaint monitoring. Integration is also needed between RMA policy implementation and strategic policy outcomes: such as environmental, social/community, economic and cultural outcomes. This makes the link to the requirements under the LGA 2002 significant and important. Through a coordinated approach to monitoring, information systems can be set up or amended so the right information is collected at the right time. This also helps ensure that consistent and useful information is provided for decision making to meet a number of legislative requirements.
Partnerships between agencies have proved a valuable way of making progress with monitoring. When groups work collaboratively the sharing of data, information and ideas can occur.
Relevant Publications
Integrated Monitoring: A Manual for Practitioners (PDF 484 KB)
Published by Environment Waikato - June 1999
The Manual provides guidance and useful tools for undertaking cost effective monitoring, including the development of indicators, by co-ordinating and integrating monitoring efforts.
Monitoring and Local Government: Local Authorities Upskilling Project Workshop Manual No. 5 (PDF 89 KB)
Published by Ministry for the Environment - January 1996
Aims to develop understanding of monitoring to better the reponse to statutory requirements, with discussion of non-statutory monitoring opportunities.
Creating our Future: Sustainable Development for New Zealand (PDF 405KB)
Published by Parliamentary Commissioner for the Environment - May 2003
This background paper is a 'Summary of views expressed by participants during the investigation (2001 - 2002)'.
Illuminated or Blinded by Science? A Discussion Paper on the Role of Science in Environmental Policy and Decision-Making
Published by Parliamentary Commissioner for the Environment - July 2003
The purpose of this discussion paper is to explore ways in which environmental policy and decision-making can be effectively supported by science and research to achieve effective environmental management and good outcomes. It lays out the many elements of science, policy and decision-making processes and poses some questions.
'Environmental Monitoring Under the Resource Management Act' Kerry Grundy, Ian McAlley and Stefan Naude, Whangarei District Council, Northland, New Zealand, Published in Australian Planner, Volume 38, Number 3/4, 2001.
'Monitoring and Evaluation in Municipal Planning: Practice and Prospects'
Mark Seasons, published in Journal of the American Planning Association, Vol 69, No. 4 Fall 2003 pp 430-440
