Evaluating district plans in Auckland, New Zealand: Do they deliver their intended outcomes

Abstract

The implementation of district plans prepared under the Resource Management Act 1991 has widely been regarded as problematic. District plans developed under the RMA are constructed and implemented using a conformance-based rational plan-making and implementation model. This model is based on a number of underlying assumptions, including clear district plan purpose; providing a means for achieving its policy outcome; and that it can distinguish success from failure. This thesis investigates the relationship between policy intent and outcomes in practice. Using the topic of landscape and ecological protection and enhancement, it examines 24 case study sites in three of Auckland's urban councils, to evaluate the influence these district plans have had on the development process. A three-phased research design was developed which employed several quantitative and qualitative assessment techniques. The first phase sought to evaluate the level of influence the three council's district plans had on the development process. The second phase evaluated each of the three district plan's means (district plan methods) to see if they would provide a method for achieving its policy intention through the application (resource consent) process. The final phase involved interviewing 18 district plan-makers involved in the construction of the three district plans evaluated. The first phase found a disconnection was present between the policy intention expressed in each of the three district plans and outcomes in 22 of the 24 case study sites. All three district plans were found to be complex; providing weak, ill-defined and conflicting policy direction; failing to prioritise their urban planning issues; and were poorly drafted. The second phase found that all three district plans, apart from two of the examples, failed to provide a means (district plan method) for achieving its policy intention in practice, contrary to a key tenant of conformance-based urban planning. In some cases the district plan's methods were in direct conflict with its policy intentions. The interviews revealed that the majority of the district plan-makers did not have an understanding of the rational district plan making model, its assumptions or its limitations. In addition, little, if any, post plan (ex post facto) evaluation was undertaken, as it appeared not to be valued. Finally, some of the district plan-makers did not have a real understanding of the practical implications of their policy approaches. These results raised serious concerns about the ability of New Zealand's district plans to influence and direct the development process.