Horizons receives decision on Plan Change 2

The decision, released by the Environment Court on 10 June 2026, follows the interim decision which was released 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 final decision responds to those appeals.
 
Horizons group manager strategy, regulation and science Dr Elizabeth Daly says it is great news to have the decision from the court.
 
“This decision provides a consenting pathway for existing intensive farming activities. This gives more certainty for those famers, Horizons and other affected parties,” says Dr Daly.
 
“Council will be taking steps to make the plan operative once the appeal period ends. Appeals can only be made to the High Court on points of law.
 
“Since the release of the interim decision, we have been working with other parties involved in the appeal process to address issues raise by the court in its interim decision. Staff across Horizons have also been preparing as much as possible ahead of the full decision.
 
“We will amend the provisions in accordance with the court’s directions, with a view to preparing for the plan change to be made operative, and are looking forward to working with farmers and growers across the region to implement the plan.
 
“Communication about the decision and implementation including the need to apply for consent and the timeframes for doing so will be made available.
 
“In the meantime, there is good information on our website which people can access to learn more about Plan Change 2. This section of the website will be updated in due course.”
 
For more information about Plan Change 2, see https://www.horizons.govt.nz/publications-feedback/one-plan-reviews-changes/plan-change-2. A link to that webpage is also available via the front page of the Horizons website.
 
Background
 
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. 

Image: The confluence of the Tiraumea and Manawatū rivers in Tararua District.