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Environmental Justice in an Intercultural Frame
Empowering Local Communities
for Sustainability
Presentation prepared for the European RCE Meeting
(Vannes, France, 28-30 August 2018)
Professor Martin O’CONNOR President of the Association ePLANETe Blue
RCE Paris Seine (FRANCE
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WinterSnorkellingatMotitiIsland
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Environmental Justice in an Intercultural Frame
Empowering Local Communities for Sustainability
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Anongoingcollaborativelearningprogramme,engaging:
• L’AssociationePLANETeBlue(partoftheRCEParisSeine);• WaikatoUniversity(RCEWaikato),inliaisonwiththeMRMT
(MotitiRoheMoanaTrust)
Thisprojectengages,atalocalterritorialscale,withseveralfacetsofthejusticeandsustainabilitypurposesoftheNewZealandResource
ManagementAct(RMA)andrelatedlegislation.
Itisintendedtoprovideteachingresourcesofusefulness(1)intheNZcontextand(2)internationally,includingforteachinginFrance.
Situating Motiti Island
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MotitiIslandisasmallisland10kmsoffshorefromthecityofTaurangaintheBayofPlentyinAotearoa(NewZealand).• IthasbeeninhabitedformanygenerationsbyMaori.Present-day
inhabitantscantraceheritagetoearlysettlementsontheislandaswellasmainlandcommunities.
• Currenteconomicactivitiesontheislandincludeagricultureaswellastourismandfishing.Theislandisinamajorcommercialfishingzoneandisalsopopularforrecreationalfishing,divingandothercoastalactivities.
• Motitiwasrecentlyafocusofattentionduetothefounderingofacommercialcargoshipwhich,untilcostlyremedialactionsweretaken,threatenedsurroundingseabed,reefandcoastalareaswithseriouschemicalpollution.
Severalrecentandongoingcourtcasesaddressintertwinedquestionsofecologicalsustainability,environmentaljustice,statusoflocalMaoripeople(theMotititangatawhenua)inhistoricalandculturalcontext,empowermentforlocaldevelopment,andparticipationinterritorialgovernance.
Environmental Justice in an Intercultural Frame
Examples of ongoing Motiti legal battles
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Thetwocasesmostdirectlyinformingthispresentationare:
• EnvironmentCourt(TheNewZealandResourceManagementAct1991):MotitiRoheMoanaTrustvBayofPlentyRegionalCouncil[2017-2018].NZEnvC67
• WaitangiTribunal(TheTreatyofWaitangiAct1975):TeMoutereoMotitiInquiry-MRMT(MotitiRoheMoanaTrust)seekingredressfromTheCrown[ongoing].WAI2521
NOTE:SeveralotherrecentandongoingMotiticourtcasesarecloselyinterlinked.Inthispresentationwereferalsotoanational-scalecase:• WAI2358—InthematteroftheTreatyofWaitangiAct1975andinthematterof
theNationalFreshwaterandGeothermalResourcesInquiry.
MRMT versus BoPRC [Case NZ EnvC 67, 2017-2018]
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TheMRMTsoughtadditionalplanningcontrolswithintheBayofPlentyRegionalCouncil’sproposedEnvironmentPlantoavoidadverseeffectsontheoutstandingandhighvaluesoftheMotitiNaturalEnvironmentManagementArea(MNEMA).TheCourtconcludedinfavouroftheMRMT,rulingthatchangestotheRegionalCoastalPlanwouldbeappropriate.Theseinclude:• Prohibitionofanydamage,destruction,removaloffloraand
faunawithinthreedistinctareasoftheMNEMA(surroundingtheAstrolabeandOkaparuReefsandBrewisShoal;SchoonerRocksandMotunauIsland);
• ImpositionoffurthercontrolswithinthebalanceoftheMNEMA,inrelationtofishingmethodsthatmaydamagethebenthicenvironmentorwheretheyimpactparticularlyonseabirdsorothermarinemammals.
MotitiIsland–ValueOverlays
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MRMT versus the Crown [WaitangiTribunal—CaseWai2521]
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TheMRMTContention:FailuretoRecogniseandEngagewithNgāHapūoTeMoutereoMotiti
§102.TheisolationandgeographicalseparationofMotitihaveresultedinNgāHapūoTeMoutereoMotitiforgingtheirowndistinctislandidentityandculture.
§103.TheCrownhasneverproperlyunderstoodthemanamotuhakeandidentityofNgāHapūoTeMoutereoMotiti,andhasconsistentlyfailedtorecogniseNgāHapūoTeMoutereoMotitiastangatawhenuaofMotitiIsland/tangatamoanaoftheMotitiRoheMoana,ortoengagewiththemasaTreatypartner.
§105.TheuniquenessandisolationofMotitiIslandimposesontheCrownadutytoengagedirectlywiththetangatawhenuaoftheislandinactivelyprotectingtheirinterests.
SECONDAMENDEDSTATEMENTOFCLAIM(14November2017)
WAI2521-NgāHapūoTeMoutereoMotitiClaimTribunalStatementofIssues(9/3/18)
1.WhoarethetāngatawhenuaofMotitiIsland?(a)Accordingtohistoryandwhakapapa,whoarethetāngatawhenuaassociatedwithMotitiIsland;and(b)whocontinuestoholdthatstatusonMotitiisland?2.DidthesettlementoftheNgātiAwahistoricalclaims,intheNgātiAwaClaimsSettlementAct2005,settleMotitiIslandclaimsbasedonwhakapapafromTeHapū?3.HowhastheCrownengagedwiththetāngatawhenuaofMotitiIsland?4.Throughits“kinshipreview”,hastheCrownadequatelyorproperlyinformeditselfoftheinterestsofthetāngatawhenuaofMotitiIsland?5.IftheCrownhasfailedtorecognise,orhasnotadequatelyorproperlyinformeditselfof,theinterestsofthetāngatawhenuaofMotitiIsland,whatprejudicehasbeencausedtotheclaimantsasaresult?6.Subjectto§§1-5,shouldtheTribunalmakerecommendations,andifso,inwhatform,on[…]HowtheCrownshouldengagewiththetāngatawhenua…[?]
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Methodology-BuildingtheProblem
DimensionofStructure
WHO? Thedifferent“actors”orstakeholdersandtheirroles/status
WHAT? Theobjectsofevaluationattention
WHY? Framingtheperformancegoalsandchallenges
HOW? Thetypeofindicatorsorother“signals”mobilised
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Whoaretheparties?(CaseWai2521)
Theprotagonists,inthecontextofthehearingonstatus/injusticeundertheTreatyofWaitangi,are:
q TheMRMT(MohitiRoheMoanaTrust)claimingtorepresentlegitimateMOTITITANGATAWHENUA
q TheCROWN(anabstractlegalentity,whosedutyistoassuregovernanceforthe1840TreatyofWaitangiparties),expressedasNZGovernmentandruleoflaw.
q NgãtiAwa/TePatuwai(tribalgroupings/affiliationsbasedonneighbouringmainlandNZ)
q ….andperhapsotherinterestedpartieshavingstanding….
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What’stheproblem?(CaseWai2521)
Thedimensionsofjustice/injustice,tobeaddressed:TheconditionsoftheMotititangatawhenua,whicharetobeappraisedfortheirqualitiesinrespectfororviolationofToWobligations,areconsideredalongsixsystemicaxes,ordimensionsofWEALTH/IMPOVERISHMENT.Theseare:Á SUBSISTENCE(individual/grouphealth,comfortandsecurity)Á ECONOMICDISTRIBUTION(stocksandflowsregulatedinmoneyvalues)Á ECOLOGICALDISTRIBUTION(environmentalassets&services)Á RECOGNITION(statuswithinsocietal/culturalforms&groups)Á PARTICIPATION(agencyingovernanceandadministration)Á CREATION(contributiontoothers’opportunitiesandwealth)
Thesesixdimensionsoverlap;butarerelativelycompleteinthesensethattheygiveaccesstothedifferentmaterial&existentialdimensionsofbeingandcapacity(ordeprivation).
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6 Dimensions of Capability & Deprivation A Generic Typology with Application to Justice/Sustainability
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WhatBasisforJudging?(CaseWai2521)
Onwhatbasisshouldrespectfor,orviolationofToWvalueobligations,beaddressedandadjudged?
(A)ExamplesofGenericFrameworksandConcepts….Á Respectoftheruleoflaw(asunderstoodinprevailinglegaltraditions);Á SustainabilityQuality/PerformanceMultipleBottomLines(QPMBLs)Á TheSocialDimensionofDeprivation(e.g.,Max-Neef,Sen,Eurostat…);Á ‘LivingStandards’Frameworks(e.g.,CurrentWellbeing&4Capitals);Á Materialexploitation(cf.,the4CheapsofJasonMoore(nature,work,energy,food;
sometimesenlargedtoinclude‘care’asacategoryofservice);Á Respect/exclusion(cf.,UNDeclarationontheRightsofIndigenousPeople);Á PertinentWesterntheories/principlesofJustice&Responsibility(e.g.,Rawls,Jonas)
Theseframesofrightnessandwrongnessoverlap.Anyonecouldbeadoptedasapreferredreferencesystem.But,inthecontextofToWnegotiationsnooneframingwillprovideanadequatepicture.Essentialinsightsaregainedfromcomparison(orconfrontation)ofthestatusgiventodifferentArgumentsundereachframework,accordingtowitnessesandintheeyesofeachoftheprotagonists.29/08/2018 EuropeanRCEMeeting2018–VannesFRANCE 14
(B)RIGHTNESSCONSIDERATIONSSPECIFICTOAOTEAROA/NEWZEALAND
Á TheTreatyofWaitangi(ToW,signedin1840);Á Respectoftheruleoflaw(asunderstoodinlegal
traditionscarriedbytheCrown);Á UpholdingManamaori/Tikanga(aslinkedwithtaonga,
tinorangatiratanga,kaitiakitanga,etc.,undertheToW;andwithcontemporaryreferencese.g.,RurukuWhakatupua-TeManaoTeAwawhichupholdsthemanaoftheWhanganuiRiver(WhRCSettlementAct2017);
Á SustainabilityQPMBLsasframedintheNZRMA(ResourceManagementAct1990).
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How?(CaseWai2521)
Thesignalsmobilizedfortheissuesappraisalarediscursive“ARGUMENTS”,obtainedthroughdiscourseanalysis&synthesisofevidencepresentedbyWAI2521partiestotheWaitangiTribunal.
Á ArgumentsaremobilisedwithintheKerBabelDELIBERATIONMATRIXframework,by/foreachprotagonist[WHO],relativetodefineddimensionsofevaluationattention[WHAT],withreferencetothevariousjustificationframeworks[WHY].
Á Thisframework(WHOxWHATxWHY)givesvisibilitytopointsofoverlap,andalsotodisagreementsandtheirreasons.TheArgumentsarecataloguedandclassifiedinaKerBabelIndicatorKiosk(KIK)andtheASSOCIATEDKERBABELREPRESENTATIONRACK(KRR).Thesecataloguingsystemsarerelationaldatabasesthatcanbemaintainedandrenewedthroughtime(forMotiti),andthatcouldpotentiallyalsobeextendedacrossotheranalogouscases.
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The KerBabel Deliberation Matrix : A Structure for Assessment of (In)justice
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X-axis — WHO ? The Protagonists or Stakeholders
Y-axis — W
HAT ?
Dim
ensions of Wealth
Z-axis — WHY ? Frameworks for Judgement
REFLEXION/DISCUSSION
SUSTAININGWHAT?WhatxWho(&by/forWhom)xWhy
Considerationsthatcanbeidentifiedin/fromtheNewZealandResource
ManagementAct(1990)
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TheNewZealandResourceManagementAct(1991)Part2—PurposeandPrinciples
• RMAs5Purpose
• RMAs6Mattersofnationalimportance
• RMAs7Othermatters
• RMAs8TreatyofWaitangiSource:Theprimarylegislationis:
TheResourceManagementAct:AnActtorestateandreformthelawrelatingtotheuseofland,air,andwater,1991
No.69,22July1991.Wellington,NewZealandHouseofRepresentatives.
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TheNZRMA(1991)-s5Purpose
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1.ThepurposeofthisActistopromotethesustainablemanagementofnaturalandphysicalresources.
2.InthisAct,sustainablemanagementmeansmanagingtheuse,development,andprotectionofnaturalandphysicalresourcesinaway,oratarate,whichenablespeopleandcommunitiestoprovidefortheirsocial,economic,andculturalwellbeingandfortheirhealthandsafetywhile:
(a)Sustainingthepotentialofnaturalandphysicalresources(excludingminerals)tomeetthereasonablyforeseeableneedsoffuturegenerations;and
(b)Safeguardingthelife-supportingcapacityofair,water,soil,andecosystems;and
(c)Avoiding,remedying,ormitigatinganyadverseeffectsofactivitiesontheenvironment.
TheNZRMAs6-Mattersofnationalimportance
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InachievingthepurposeofthisAct,allpersonsexercisingfunctionsandpowersunderit,inrelationtomanagingtheuse,development,andprotectionofnaturalandphysicalresources,shallrecogniseandprovideforthefollowingmattersofnationalimportance:(a) The preservation of the natural character of the coastal environment (including the coastal marine area), wetlands, and lakes and rivers and their margins, and the protection of them from inappropriate subdivision, use, and development: (b) The protection of outstanding natural features and landscapes from inappropriate subdivision, use, and development: (c) The protection of areas of significant indigenous vegetation and significant habitats of indigenous fauna: (d) The maintenance and enhancement of public access to and along the coastal marine area, lakes, and rivers: (e) The relationship of Maori and their culture and traditions with their ancestral lands, water, sites, waahi tapu, and other taonga. [(f) the protection of historic heritage from inappropriate subdivision, use, and development.] — added 2003 [(g) the protection of protected [formerly ‘recognised’] customary activities.] — added 2004; amended 2011.
TheNZRMA-s7Othermatters
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InachievingthepurposeofthisAct,allpersonsexercisingfunctionsandpowersunderit,inrelationtomanagingtheuse,development,andprotectionofnaturalandphysicalresources,shallhaveparticularregardto—(a)Kaitiakitanga:[(aa)Theethicofstewardship:]—inserted1997
(b)Theefficientuseanddevelopmentofnaturalandphysicalresources:[(ba)Theefficiencyoftheenduseofenergy]—added2004(c)Themaintenanceandenhancementofamenityvalues:(d)Intrinsicvaluesofecosystems:(e)Repealed[supplantedin2003by§6(f),andlateralso§6(g)atahigherstatus].
(f)Maintenanceandenhancementofthequalityoftheenvironment:(g)Anyfinitecharacteristicsofnaturalandphysicalresources:(h)Theprotectionofthehabitatoftroutandsalmon:[(i)theeffectsofclimatechange:]—added2004
[(j)thebenefitstobederivedfromtheuseanddevelopmentofrenewableenergy.]—added2004
TheNZRMA-s8TreatyofWaitangi
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InachievingthepurposeofthisAct,allpersonsexercisingfunctionsandpowersunderit,inrelationtomanagingtheuse,development,andprotectionofnaturalandphysicalresources,shalltakeintoaccounttheprinciplesoftheTreatyofWaitangi(TeTiritioWaitangi).
NOTE:TheTreatycontainsthreesections,sometimesdescribedasthekawanatanga(governance)article,
therangatiratanga(Maorichieftainship)article,andthetikanga(customarypractices)article.
See:https://www.waikato.ac.nz/pod/modules/tiriti/treatymao.html#maori
Example:WhatmightWaterGovernanceentail?
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Q1.DoestheCrownacceptthefindingthatwaterbodiesweretaongaforMaorioverwhichhapuoriwiexercisedtetinorangatiratangaandcustomaryrightsin1840?
WAI2358—InthematteroftheTreatyofWaitangiAct1975andinthematteroftheNationalFreshwaterandGeothermalResourcesInquiry.PresidingOfficer:ChiefJudgeIsaac.Extractfromthe
MemorandumofCounselfortheNewZealandMaoriCouncilsettingoutcross-examinationquestionsfortheCrownontheTribunal’sStageIfindings.Dated:22August2018.
WhatdoesWaterGovernanceEntail?-SUBSTANCE
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Q2.DoestheCrownacceptthefindingthatMaorihadbothaphysicalandametaphysicalrelationshipwithwaterundertikanga?
Q3.DoestheCrownacceptthefindingthatMaorirightsinrespectofwaterincludedauthorityandcontroloveraccesstotheresourceanduseoftheresource?
Q4.DoestheCrownacceptthefindingthatMaoriauthorityinrespectofwaterwassourcedintikangaandcarriedwithitkaitiakiobligationstocareforandprotectthewater?
Q7.DoestheCrownacceptthefindingthatwaterwasvitalforthesustenanceofthelifeandhealthoftheperson,bothinbodyandspirit?Q8.DoestheCrownacceptthefindingthatwaterbodieshadtheirownmauri(lifeforce),whichwassotiedtothatofthepeoplethatifitsickenedtheydidtoo?Q9.DoestheCrownacceptthefindingthatforMaoriwaterbodiesareindivisibleregimes,encompassingbanks,bed,water,fish,aquaticplantsandspiritualplants(taniwha),andwithnoelementbeingseverable?[…/…]
WhatdoesWaterGovernanceEntail?-PROCEDURE
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Q5.DoestheCrownacceptthefindingthatsometimesauthorityandusewassharedbetweenhapu,butwasalwaysexclusivetospecifickingroups?
Q6.DoestheCrownacceptthefindingthataccesstowaterresourcesanduseforoutsidersrequiredpermissionandoftenpaymentofatraditionalkind?
Q10.DoestheCrownacceptthefindingthat‘full-blown’ownershipofpropertyintheEnglishsensewastheclosestlegalequivalentforMaoricultomaryrightsinrespectoffreshwaterin1840?
Q11.DoestheCrownacceptthefindingthattetinorangatiratangawasalsomorethanownership,andencompassedtheauthorityofhaputoarrangeandmanagetheiraffairsinpartnershipwiththeCrown?
Q12.DoestheCrownacceptthefindingthatMaorididnotseethesharingoftheirwaterbodiesasarelinquishmentoftinorangatiratangabutratheranexerciseoftinorangatiratanga?
Q13.DoestheCrownacceptthefindingthatwhilethremightbeageneralexpectationofaccessandusefornon-commercialpurposes,accesswouldbeonMaoritermsuntilsuchtimeasMaorichosetomakeaTreaty-compliantalienation,andMaoricouldsayno?
Q12.DoestheCrownacceptthefindingthatithasadutytoactivelyprotectMaoridevelopmentrightsinwaterbodiestothefullestextentreasonablypracticable?
Building Knowledge Partnerships around Environmental Justice Conflicts
• ThedocumentationofissuesandargumentswillprovidevaluableclarityandvisibilityfortheMotitiIslandtangatawhenuaintheireffortstosustainlivelihood,cultureandecosystemviability.
• OverandabovetheinsightsobtainedspecificallyfortheWAI2521case,theMotitistudywillactasapilotordemonstrationstudyforthedocumentationandanalysisofenvironmentaljusticeorothersituationsofcontroversy.
• Wecanalso,forexample,makethelinktoworkcarriedoutintherecentECfundedEJOLTproject(seehttp://www.ejolt.org/andhttp://www.envjustice.org/),andongoingintheframeworkoftheEJAtlas(seehttps://ejatlas.org/).
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BuildingKnowledgePartnershipsforSustainability–Tools&Terrains
• Collaborativetoolsprovidedbytheplatform‘ePLANETe’allowSTAKEHOLDERS(includingexpertsanddecision-makers)tobuildandshareperspectivesonsituationsofcontroversy.
• Goingbeyonddocumentation,weareexploringwaysthatstakeholderscanexploitcollaborativeITtoproposeandappraiseACTIONSthat—intheirviews—mightorshouldbecomponentsinempowering,environmentaljustice&sustainabilityscenarios.
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ePLANETe – Knowledge Partnership Tools
That’sallfornow!29/08/2018 EuropeanRCEMeeting2018–VannesFRANCE 29
MartinO’CONNORScientificDirector—RCEParisSeineEmail:[email protected]
AssociationePLANETeBlueDampierre-en-Yvelines,France.
SeabirdFeedingFrenzy–FishoffMotitiIsland
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Kiamaukitemauri(holdfasttothelife-force)
Thank You