4. Suggested examples of regional and district policy responses

• Objective R1.1 – To recognise and provide for the sustainable, secure and efficient transmission of electricity within and throughout the region by safeguarding the operational, maintenance and upgrading requirements of existing transmission infrastructure and by facilitating the long-term planning, development and use of transmission infrastructure on a consistent basis within the region.

If a regional policy statement contains specific provisions for identifying and managing regionally significant infrastructure, then the transmission network within the region should be a key element of such provisions, provided the national benefits of the transmission network are not confused with other regionally significant infrastructure (ie, other infrastructure without a comparable level of national benefits).

OBJECTIVE UNDER SECTION ON URBAN GROWTH (GENERALLY OR SPECIFIC TO AN AREA)

Appropriate references to transmission corridors should be incorporated in any provisions within a regional policy statement relating to the management of urban growth/form. An appropriate objective could be as follows:

• Objective R1.2 – To ensure that land use, urban growth and other forms of land development avoid adverse effects on the operation, maintenance, upgrading and long-term development of electricity transmission corridors.

Such an objective could more broadly refer to regionally significant infrastructure, where that term would include the transmission network. This objective would also apply to land uses controlled by regional plans (eg, earthworks).

The term ‘corridor’ recognises that the most appropriate method to manage the long-term use and development of the transmission network is by identifying an appropriate linear area of land within which transmission lines and other assets are located. The term refers to an identified area of land and airspace surrounding transmission lines (including areas designated for transmission lines) in which activities that pose a potential risk to the safe and efficient use of the line itself, to the safety of the persons undertaking such activities, and to public safety are controlled to avoid such effects.

• Objective R1.3 – To minimise adverse effects from transmission activities on urban amenity and avoid adverse effects on town centres, outstanding natural landscapes, areas of high natural character and high recreation value or amenity, and existing sensitive uses while recognising the technical and operational requirements and constraints of the transmission network, and the need to promote a consistent and ‘whole-of-line’ approach.

Policies for achieving the objective(s) for energy and/or regionally significant infrastructure should address a number of requirements under the NPSET, to manage both the effects of transmission activities and the effects of third parties on the transmission network. Such policies should also address the enabling of short-term regular operational and minor upgrading activities for the transmission network, as well as the long-term planning and development requirements of the transmission network within the region.

The purpose of such policies is not only to guide decision-making at a regional level (eg, for regional consents and permits), but, just as importantly, to ensure a consistent and coordinated response to the management of electricity transmission within the region among the constituent territorial authorities.  In managing the effects of transmission activities, a regional policy statement could include the following policies:

• Policy R2.1 – In managing the effects of existing transmission activities, territorial authorities shall take into account the benefits of the transmission infrastructure and the constraints imposed by the technical and operational requirements of the transmission network, and shall apply a consistent and coordinated approach to the provision for the operation, maintenance and upgrades to a transmission corridor that traverses local authority boundaries.
• Policy R2.2 – When new transmission lines or major upgrades to existing transmission infrastructure within the region are proposed, including proposals that may extend beyond the region, local authorities shall assess the affected transmission corridor in its entirety, having regard to the benefits of the work and the extent to which adverse effects have been avoided, remedied or mitigated within or beyond the region, including reducing adverse effects.
• Policy R2.3 – When considering resource consent applications or proposed notices of requirement from Transpower in respect of the national grid, including transmission corridors, territorial authorities within and across regional boundaries shall work together in a consistent and coordinated manner and shall focus on the potential effects of the establishment, operation and maintenance of the facility over time, as well as the detailed design of the project.
• Policy R2.4 – In managing areas of urban amenity, town centres, outstanding natural landscapes, areas of high natural character and high recreational value or amenity and sensitive activities, territorial authorities shall take into account the development, operation and maintenance of transmission infrastructure in these areas.

In terms of the adverse effects of third parties, policies could include the following:

• PolicyR2.5 – To avoid, remedy or mitigate reverse sensitivity effects on the region’s electricity transmission network, territorial authorities shall apply consistent policies to manage the location, design or form of potentially sensitive activities or development in close proximity to the transmission network in such a way that it does not adversely affect the continued safe and efficient operation and development of the network.
• PolicyR2.6 – Local authorities within the region shall identify and protect (existing) transmission corridors by ensuring that development within these corridors does not generate adverse effects on the national grid, including constraining its operation, maintenance and upgrading, generating reverse sensitivity effects and/or effects on public safety, and reducing visual amenity.
• Policy R2.7 – To ensure that potential risks to safety from the operation of the transmission network are minimised as far as practicable, and to provide for the efficient operation and maintenance of transmission lines, territorial authorities shall apply an appropriate and consistent separation distance between the transmission infrastructure and activities that involve or have the potential to involve the congregation of people or involve structures or other obstacles that could interfere with the safe and efficient operation of the transmission network.
• Policy R2.8 – In planning for changes in land use, including urban development and intensification, territorial authorities shall seek to achieve a pattern, form and design of land use that does not adversely affect the efficient operation, use and upgrading of transmission corridors (including corridors defined by designations) by accommodating growth and development in such a way that it:
  • does not adversely affect the secure supply of electricity
  • does not give rise to potential adverse health and safety effects
  • does not compromise physical access to the transmission network for the purposes of inspection, maintenance and upgrading
  • does not compromise the range of potential options for upgrading or redeveloping transmission assets within the transmission corridor.

This latter policy could be relevant to urban growth policies within a regional policy statement (see following ‘Methods’ section).

• Policy R2.9 – In planning for changes in land use, including urban development and intensification, territorial authorities shall seek to ensure that the rate, location and form of development is integrated with the provision and location of transmission corridors [or ‘strategic infrastructure’], and, in doing so, shall consult with Transpower when developing structure plans, urban growth strategies, plan changes and reviews.
• Policy R2.10 – In facilitating the long-term planning of the development, operation and maintenance of transmission infrastructure, territorial authorities shall recognise the dynamic nature of transmission corridors by addressing and controlling, to the extent necessary, the broad effects likely to be generated, together with the detailed design.

METHODS

The following methods would be ways to implement the above policies:

• Method R3.1 – District plans shall include objectives, policies and methods (including rules) to recognise transmission corridors within their district, to identify transmission lines on planning maps, and to provide controls on subdivision and land use as necessary to ensure that the operation, maintenance, upgrading and development of transmission infrastructure is not compromised as a result of the adverse effects of incompatible land uses (including structures).
• Method R3.2 – Transpower shall be notified when resource consent applications may have adverse effects on the operation, maintenance and minor upgrading of existing transmission assets.
• Method R3.3 – In consultation with Transpower, growth and development strategies, including structure plans and comprehensive development plans, shall identify transmission corridors within the subject area (including designations), and shall contain provisions designed to recognise the benefits of, and protect the long-term operation, maintenance and development of, such corridors.
• Method R3.4 – Local authorities shall consult with Transpower about proposed development works, subdivision, land uses, discharges or other activities with the potential to adversely affect transmission corridors (including designations).
• Method R3.5 – The location of transmission corridors (including designations for future corridors) shall be included in councils’ property information systems (including GIS).
• Method R3.6 – District plans shall recognise the presence of existing transmission infrastructure in areas of outstanding natural landscapes, areas of high natural character and areas of high recreation value and amenity.

USE OF MAPS WITHIN A REGIONAL POLICY STATEMENT
The location of any high-voltage transmission lines (including substations) should be shown on any map(s) within a regional policy statement where its presence would be a relevant matter.

Most district plans contain specific objectives and policies for network utilities, which include the electricity transmission network. Some of these plans also cover broader energy matters in conjunction with their provisions for network utilities. In future, district plans could adopt the regional approach of providing for electricity transmission under a broader ‘significant infrastructure’ policy framework.

The recommended responses have been written independently of these different approaches, focusing on providing a direct response to the directions under the NPSET. Some territorial authorities may seek to provide an integrated approach to managing the effects of all network utilities/significant infrastructure within their districts, and accordingly seek to develop policies that address electricity transmission within broader provisions. If this integrated approach is taken, it will be essential that the key elements required to respond to the NPSET are not lost.

DISTRICT PLAN OBJECTIVE(S)

OBJECTIVE
General overall objectives could be:

• Objective D1.1 – To provide for the sustainable, secure and efficient use and development of the electricity transmission network within the district/city while seeking to avoid, remedy or mitigate adverse effects on the environment to the extent practicable, and while recognising the technical and operational requirements and constraints of the network.
• Objective D1.2 – To recognise the importance of the national grid to the district’s, region’s and nation’s social and economic well-being.

DISTRICT PLAN POLICIES

POLICIES

To recognise and provide for the benefits of electricity transmission within each district/city, a number of policies may be required to address the key relevant policies of the NPSET. Such policies could include the following:

• Policy D2.1 – The reverse sensitivity effects generated by subdivision and land development within electricity transmission corridors shall be managed in order to avoid, remedy or mitigate the adverse effects on both the safe, secure and efficient use and development of the transmission network and the safety and amenity values of the community.

Note: Any explanation attached to this policy should define ‘corridor management’ as setting minimum buffer distances from the transmission line and other assets to manage activities both in the immediate proximity of and adjacent to the line.

• Policy D2.2 – The continued operation and/or redevelopment of existing transmission infrastructure, and provision for new transmission infrastructure, shall be enabled by:
  • permitting the operation, maintenance, upgrading and development of existing transmission corridors, where such works can be carried out without significantly changing the adverse effects associated with the existing corridor
  • avoiding, remedying or mitigating adverse effects to the extent practicable, having regard to the benefits of the works, together with technical and operational requirements and constraints.

Note: This is a generic policy, and could be used on a more refined basis for policies on specific rural and urban zones, such as by specifically addressing policies 7 and 8. In other words, it is trying to promote a broadly constructive approach (to ‘identify opportunities’) in avoiding adverse effects.

• Policy D2.3 – Existing and future transmission corridors shall be recognised and provided for when identifying and managing areas of new urban development (including urban intensification, peri-urban/rural−residential development) to ensure the safe and efficient use and development of the transmission network.
• Policy D2.4 – The long-term planning of the development, operation and maintenance of transmission infrastructure within the district/city shall be facilitated by the provision of flexibility in the use of designations or land-use controls.

In addition, there could be policy support for methods relating to the management of development and activities within the transmission corridor that have significant potential to adversely affect the safety and operational requirements of the grid (ie, buildings, structures, earthworks and vegetation). The supporting publication, Further Guidance on Risks of Development near High-voltage Transmission Lines,provides more information on the risks of development and activities on the transmission network.

• Policy D2.5 – Buildings, structures and vegetation within close proximity to existing transmission corridors shall be controlled to avoid, remedy or mitigate any adverse effects on the safe and efficient development, operation and maintenance of transmission infrastructure.
• Policy D2.6 – Locating buildings, structures, earthworks and tall vegetation under, or within immediate proximity to, a transmission line shall be generally avoided.

PROVISIONS FOR OUTSTANDING LANDSCAPES AND AREAS OF HIGH LANDSCAPE, RECREATION AND AMENITY VALUES

In developing policies for a district’s outstanding landscapes and natural features, as well as areas of high landscape amenity, some recognition and provision for transmission lines should be made, particularly where such areas are already traversed by transmission lines or have a reasonably foreseeable potential to be traversed. It may be appropriate for a district plan to specifically address provision for transmission lines in these areas, if particularly relevant, or at least be explicit about the values that make these areas significant.

• Policy D2.7 – Existing transmission lines within outstanding natural landscapes, and within areas of high natural character, high recreation value and amenity, shall be recognised.
• Policy D2.8 – New transmission infrastructure shall only traverse [defined areas] where the infrastructure is subject to a significant functional constraint, or where there is no feasible practicable alternative route and/or when significant adverse effects are outweighed by the overall benefits of the proposal.

METHODS

The following methods would be ways to implement the above policies.

• Method D3.1 – Transpower shall be consulted when applying policies relating to the transmission network within the district/city, including the development of structure plans, development strategies and plan changes and reviews, and about proposed development works, subdivision or land uses with the potential to adversely affect transmission assets (including designations).
• Method D3.2 – Designations for the transmission network that provide for the long-term planning for the development, operation and maintenance of transmission infrastructure within the identified corridor shall be used, and flexibility shall be provided through the use of outline plans and management plan conditions.
• Method D3.3 – Rules shall be developed to provide for the operation, maintenance and upgrading and development of the transmission network outside the requirements of the National Environmental Standards on Transmission Activities.
• Method D3.4 – Rules shall be developed to control buildings, structures, earthworks and vegetation within a determined buffer corridor either side of the centreline of transmission lines.
• Method D3.5 – Growth and development strategies, including structure plans and comprehensive development plans to identify transmission corridors within the subject area (including designations), shall be required, which shall contain provisions designed to recognise and protect the long-term operation, maintenance, and development of such corridors.
• Method D3.6 – Information shall be provided on the location of transmission corridors (including designations for future corridors) on the planning maps and within the council’s property information systems (including GIS).

Note: In providing rules relating to the national grid, the most effective approach is to provide separate ‘district-wide’ rules for the transmission network rather than zone-based rules, because the latter approach leads to differing standards and conditions for transmission lines that traverse different zones. A district-wide approach promotes the use of consistent standards within a district plan.

PLANNING MAPS
These should show the location of all high-voltage transmission lines (including substations).