Environmental Justice in an Intercultural Frame · Environmental Justice in an Intercultural Frame...

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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

29/08/2018 EuropeanRCEMeeting2018–VannesFRANCE 1

WinterSnorkellingatMotitiIsland

Empowering Local Communities for Sustainability

Anongoingcollaborativelearningprogramme,engaging:

•  L’AssociationePLANETeBlue(partoftheRCEParisSeine);•  WaikatoUniversity(RCEWaikato),inliaisonwiththeMRMT

(MotitiRoheMoanaTrust)

Thisprojectengages,atalocalterritorialscale,withseveralfacetsofthejusticeandsustainabilitypurposesoftheNewZealandResource

ManagementAct(RMA)andrelatedlegislation.

Itisintendedtoprovideteachingresourcesofusefulness(1)intheNZcontextand(2)internationally,includingforteachinginFrance.

Situating Motiti Island

MotitiIslandisasmallisland10kmsoffshorefromthecityofTaurangaintheBayofPlentyinAotearoa(NewZealand).•  IthasbeeninhabitedformanygenerationsbyMaori.Present-day

inhabitantscantraceheritagetoearlysettlementsontheislandaswellasmainlandcommunities.

•  Currenteconomicactivitiesontheislandincludeagricultureaswellastourismandfishing.Theislandisinamajorcommercialfishingzoneandisalsopopularforrecreationalfishing,divingandothercoastalactivities.

•  Motitiwasrecentlyafocusofattentionduetothefounderingofacommercialcargoshipwhich,untilcostlyremedialactionsweretaken,threatenedsurroundingseabed,reefandcoastalareaswithseriouschemicalpollution.

Severalrecentandongoingcourtcasesaddressintertwinedquestionsofecologicalsustainability,environmentaljustice,statusoflocalMaoripeople(theMotititangatawhenua)inhistoricalandculturalcontext,empowermentforlocaldevelopment,andparticipationinterritorialgovernance.

Examples of ongoing Motiti legal battles

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]

TheMRMTsoughtadditionalplanningcontrolswithintheBayofPlentyRegionalCouncil’sproposedEnvironmentPlantoavoidadverseeffectsontheoutstandingandhighvaluesoftheMotitiNaturalEnvironmentManagementArea(MNEMA).TheCourtconcludedinfavouroftheMRMT,rulingthatchangestotheRegionalCoastalPlanwouldbeappropriate.Theseinclude:•  Prohibitionofanydamage,destruction,removaloffloraand

faunawithinthreedistinctareasoftheMNEMA(surroundingtheAstrolabeandOkaparuReefsandBrewisShoal;SchoonerRocksandMotunauIsland);

•  ImpositionoffurthercontrolswithinthebalanceoftheMNEMA,inrelationtofishingmethodsthatmaydamagethebenthicenvironmentorwheretheyimpactparticularlyonseabirdsorothermarinemammals.

MotitiIsland–ValueOverlays

MRMT versus the Crown [WaitangiTribunal—CaseWai2521]

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…[?]

Methodology-BuildingtheProblem

DimensionofStructure

WHO? Thedifferent“actors”orstakeholdersandtheirroles/status

WHAT? Theobjectsofevaluationattention

WHY? Framingtheperformancegoalsandchallenges

HOW? Thetypeofindicatorsorother“signals”mobilised

Whoaretheparties?(CaseWai2521)

Theprotagonists,inthecontextofthehearingonstatus/injusticeundertheTreatyofWaitangi,are:

q  TheMRMT(MohitiRoheMoanaTrust)claimingtorepresentlegitimateMOTITITANGATAWHENUA

q  TheCROWN(anabstractlegalentity,whosedutyistoassuregovernanceforthe1840TreatyofWaitangiparties),expressedasNZGovernmentandruleoflaw.

q  NgãtiAwa/TePatuwai(tribalgroupings/affiliationsbasedonneighbouringmainlandNZ)

q  ….andperhapsotherinterestedpartieshavingstanding….

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).

6 Dimensions of Capability & Deprivation A Generic Typology with Application to Justice/Sustainability

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).

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.

The KerBabel Deliberation Matrix : A Structure for Assessment of (In)justice

X-axis — WHO ? The Protagonists or Stakeholders

Y-axis — W

ensions of Wealth

Z-axis — WHY ? Frameworks for Judgement

REFLEXION/DISCUSSION

SUSTAININGWHAT?WhatxWho(&by/forWhom)xWhy

Considerationsthatcanbeidentifiedin/fromtheNewZealandResource

ManagementAct(1990)

TheNewZealandResourceManagementAct(1991)Part2—PurposeandPrinciples

•  RMAs5Purpose

•  RMAs6Mattersofnationalimportance

•  RMAs7Othermatters

•  RMAs8TreatyofWaitangiSource:Theprimarylegislationis:

TheResourceManagementAct:AnActtorestateandreformthelawrelatingtotheuseofland,air,andwater,1991

No.69,22July1991.Wellington,NewZealandHouseofRepresentatives.

TheNZRMA(1991)-s5Purpose

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

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

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

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?

Q1.DoestheCrownacceptthefindingthatwaterbodiesweretaongaforMaorioverwhichhapuoriwiexercisedtetinorangatiratangaandcustomaryrightsin1840?

WAI2358—InthematteroftheTreatyofWaitangiAct1975andinthematteroftheNationalFreshwaterandGeothermalResourcesInquiry.PresidingOfficer:ChiefJudgeIsaac.Extractfromthe

MemorandumofCounselfortheNewZealandMaoriCouncilsettingoutcross-examinationquestionsfortheCrownontheTribunal’sStageIfindings.Dated:22August2018.

WhatdoesWaterGovernanceEntail?-SUBSTANCE

Q2.DoestheCrownacceptthefindingthatMaorihadbothaphysicalandametaphysicalrelationshipwithwaterundertikanga?

Q3.DoestheCrownacceptthefindingthatMaorirightsinrespectofwaterincludedauthorityandcontroloveraccesstotheresourceanduseoftheresource?

Q4.DoestheCrownacceptthefindingthatMaoriauthorityinrespectofwaterwassourcedintikangaandcarriedwithitkaitiakiobligationstocareforandprotectthewater?

Q7.DoestheCrownacceptthefindingthatwaterwasvitalforthesustenanceofthelifeandhealthoftheperson,bothinbodyandspirit?Q8.DoestheCrownacceptthefindingthatwaterbodieshadtheirownmauri(lifeforce),whichwassotiedtothatofthepeoplethatifitsickenedtheydidtoo?Q9.DoestheCrownacceptthefindingthatforMaoriwaterbodiesareindivisibleregimes,encompassingbanks,bed,water,fish,aquaticplantsandspiritualplants(taniwha),andwithnoelementbeingseverable?[…/…]

WhatdoesWaterGovernanceEntail?-PROCEDURE

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/).

BuildingKnowledgePartnershipsforSustainability–Tools&Terrains

•  Collaborativetoolsprovidedbytheplatform‘ePLANETe’allowSTAKEHOLDERS(includingexpertsanddecision-makers)tobuildandshareperspectivesonsituationsofcontroversy.

•  Goingbeyonddocumentation,weareexploringwaysthatstakeholderscanexploitcollaborativeITtoproposeandappraiseACTIONSthat—intheirviews—mightorshouldbecomponentsinempowering,environmentaljustice&sustainabilityscenarios.

ePLANETe – Knowledge Partnership Tools

That’sallfornow!29/08/2018 EuropeanRCEMeeting2018–VannesFRANCE 29

MartinO’CONNORScientificDirector—RCEParisSeineEmail:Tesseract.REEDS@gmail.com

AssociationePLANETeBlueDampierre-en-Yvelines,France.

SeabirdFeedingFrenzy–FishoffMotitiIsland

Kiamaukitemauri(holdfasttothelife-force)

Thank You

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