Horizons acknowledges interim decision on Plan Change 2

Horizons Regional Council acknowledges the interim decision on Plan Change 2 to the One Plan, released by the Environment Court on 9 December 2025.

Plan Change 2 was introduced to improve how the One Plan manages existing intensive farming activities in target water management sub-zones. It was subsequently appealed to the Environment Court by several parties. The interim decision responds to those appeals
 
Horizons group manager strategy, regulation and science Dr Lizzie Daly says the court requires further input from parties involved before making a final decision.
 
“The interim decision sets out the court’s findings on a range of matters, including supporting the Council’s provision for alternative consenting pathway to Table 14.2 (specified reduction pathways), and directs further work on discrete issues,” says Dr Daly.
 
“Parties involved in the appeal process, including Horizons, have been directed to work together in responding to some matters raised by the court by late-February 2026.”
 
Over the coming weeks, Horizons staff will consider the decision and address the court’s directions in preparation for discussions with the parties early in 2026
 
"Although the interim decision provides a good steer on the future consenting framework, the policies and rules are still not operative until the final decision," says Dr Daly. 
 
"In the meantime, Horizons will continue to prepare for implementation, provide updates where it can, and will also keep under review any wider resource management reform proposals."
 
People can find more information about Plan Change 2, the process to this point, and the Environment Court’s interim decision online at horizons.govt.nz, with a ‘Plan Change 2’ section available via the website’s homepage.
 
Background information
 
The One Plan contains provisions to manage nutrient leaching to water by intensive farming land uses. However, the provisions did not work as intended in practice as a result of two external factors which arose once the One Plan became operative:
 

• There were ongoing changes in the Overseer model which meant farm systems that could have met the cumulative nitrogen leaching maximums using the Overseer version that was used to originally develop the maximums could no longer do so when modelling was done with an updated Overseer model. This was the case even if nothing has changed in the farm’s practice in real terms.
• Changes in case law required the provisions to be applied in a way that may not have been anticipated when the One Plan was prepared. Directive policies to achieve or not exceed the cumulative nitrogen leaching maximums made it very difficult to grant consent in circumstances where the limits were not met, even though the rules are written to provide for this to be considered.

 
This resulted in very few existing intensive farm land uses being able to meet cumulative nitrogen leaching maximums.
 
Plan Change 2 proposed key changes: 
 

• Update nitrogen leaching limits outlined in Table 14.2 using improved Overseer modelling data.
• Create a clearer and more practical process for farmers to get resource consents if they couldn’t meet the table within targeted water management sub-zones.
• Emphasise the use of good farming practices. 

 
These changes aimed to ensure better regulation and help achieve water quality goals.
 
Plan Change 2 was publicly notified in April 2021. Four appeals were made to the Environment Court, and several parties joined or withdrew from the legal process.