Response: Retreat from coasts and rivers
What do we choose to save and what do we chose to sacrifice?
Lessons from the recent past
One of the world’s most expensive natural disasters was the 2010-2011 Canterbury earthquake sequence. Of the many things learned during and following the disaster, three takeaway messages directly relevant to our response to the climate crisis stood out.
1. Forwarned
The potential for major earthquakes and liquefaction in the region was publicly documented geological science, with warnings embedded in local council reports. Yet few people knew of or believed the risks existed because scientific knowledge is often not communicated well, can be disputed by vested interests such as property developers, or clouded by history underpinned by engineering hubris: the flawed assumptions that Christchurch had been there for over 150 years and its building codes were designed to withstand predicted loads of a 500-year seismic event.
The first quake of 7.1 magnitude struck September 2010. It caused cosmetic and structural damage to multiple buildings and created an impressive 29.5Km long ground rupture. Although two people died, the general feeling was that due to stringent building codes, we had weathered a once-in-a-lifetime very large magnitude event.
2. Displacement
The 6.1 magnitude quake that followed in February 2011 killed 183 people. Buildings were hit with ground motions that “considerably exceeded even 2500-year design motions.” Entire suburbs were lost and land irreparably damaged. It was traumatic—socially, economically, psychologically, spiritually, physically. For many, the quakes felt like a betrayal of the home where they had lived in and loved, and so they left with no intention of every returning.
Yet many didn’t want to leave. When forced to evacuate because their homes were unlivable or critical infrastructure had been destroyed, they wanted to rebuild, preferably in the same location.
This is not unique to Canterbury. It’s a global phenomenon. Here in Aotearo, regardless of whether people identified as Māori, Pākehā, Pacifica or Asian, the reasons for this desire to rebuild can best be described as tūrangawaewae—a sense of place, of familiarity, of whakapapa, whānui and community.
The initial trauma was compounded when the Government declared that some places—the Red Zones—were so damaged that inhabitants could never return. The people and communities that once lived here became refugees or were internally displaced. Those that evacuated to surrounding areas placed enormous pressure on their host communities that were themselves struggling with their own temporary damages and losses. The impact on small host communities hit by a deluge of unprepared and largely unprovisioned evacuees has never fully been recognised nor considered in terms of future disasters.
3. No end in sight
When a fire or hurricane strikes, people experience an immediate trauma, sometimes followed by post-traumatic shock. They may choose to leave or rebuild.
But the earthquakes were not a single vent. Aftershocks kept coming, and no one could say when they would end. Or even if they would end. Decisions to rebuild were delayed or abandoned. Trauma was compounded. Four years later many people were stilling battling for insurance, still living in temporary accommodation. Others had settled into new homes, many to the north of the city and towns like Kaikōura. And then the 7.8 magnitude Kaikōura earthquake stuck.
It seemed unfair, inconceivable. But this was the reality. The science was and still is clear: another major earthquake, particularly from the Alpine Fault could hit anytime. And it could be magnitude 8 or higher. This is referred to by planners as an ‘AF8’ scenario.
Applying lessons to the future
The power of tūrangawaewae, our sense of place, is once again under threat. This time from climate change. The evidence is uncompromising. We have been forewarned. Displacement is inevitable, and there is no end in sight as the climate will continue to change for generations to come. Both the science and events already unfolding make that clear.
Sea levels are rising and the pace is accelerating. Because warming will continue, storms will be more powerful and floods will become more frequent and stronger. Infrastructure built from rates and taxes collected over generations is being eaten by waves, drowned by rivers reclaiming their stolen braidplains, or overwhelmed by so much rainwater that they simply cannot drain it an ocean too high or a river too swollen. Ultimately, many places will become uninhabitable because the cost of defending them is beyond our financial capability, even though it’s technologically feasible. (The Dutch have been doing this for centuries, so they’ve had the time and money to prepare).
Displacement is inevitable. And there is no end in sight as the climate will continue to change and sea levels will continue to climb for generations. That’s what the science tells us. And that’s the reality already unfolding.
“Past emissions have already changed our climate and will continue to do so in years to come. How much more change and how fast change will happen depend on every country’s contribution to reduce global emissions.” – Vicky Robertson, Secretary for the Environment, National Adaptation Plan 2022
Options:
1. How do we choose to retreat from hazard zones?
(a) Managed (proactive): Consult with communities and undertake hazard and risk analyses based on current knowledge. Examples how to do this are included in: ‘Using current legislative settings for managing the transition to a dynamic adaptive planning regime in New Zealand‘ (National Science Challenge) and ‘Community engagement on climate change adaptation: case studies‘ (Local Government NZ). Using an adaptive management approach, choose to defend what we can afford to based on a cost-benefit analysis now and in the next few decades, and retreat from what we can’t. Agree on staged retreats triggered by certain events rather than time scales, as this will allow for new science, information, and observed events such as the sudden collapse of ice sheets raising sea levels faster than currently forecast, or change in ocean currents driving more powerful storms. Decline consents to construct non-portable structures in at risk locations.
Rebuild critical natural infrastructure during the retreat, as this will act as a buffer against rising sea levels and floods, buying more time to migrate infrastructure and building in safer locations.
(b) Chaotic (reactive): ignore the problem and let the ocean, rivers, and storms force retreats on an ad hoc basis.
2. Who pays?
(a) Managed: consult with communities to agree how costs will be shared equitably. A controlled retreat is far less costly, as decisions can be made early to retire and dismantle at-risk aging infrastructure and rebuild it in less vulnerable locations. Council/government purchase of at-risk land assisted migration using lessons learned from the Christchurch earthquakes. Money should not be wasted on new developments in risky areas.
(b) Chaotic: pay following each event. The cost will include lives lost due to loss of critical built infrastructure, the economic and social cost of caring for internally displaced people, lost productivity, and the concurrent impacts on host communities that may be simultaneously grappling with lost services and critical infrastructure. As rising sea levels and storms/floods will be ongoing, this approach ultimately risks economic and social collapse as costs across all sectors become unsustainable as climate change escalates.
A special issue on Managed Retreat in the journal Science ‘Out of Harm’s Way‘ is freely available online as this is a global problem, and research and lessons learned elsewhere are applicable here.
Aotearoa: Environmental Defence Society
In June 2022, the Environmental Defence Society (EDS) commenced a project titled Aotearoa New Zealand’s Climate Adaptation Act: Building a Durable Future to develop recommendations for the content of a new Climate Adaptation Act. This was in response to the government’s expressed intention to develop new law to address the complex and distinctive issues associated with managed retreat such as funding, compensation, land acquisition, liability and insurance.
- Principles and Funding for Managed Retreat (2023)
- Funding Managed Retreat: Policy issues and Options (2023)
- Current Legislative and Policy Framework for Managed Relocation (2023)
- Options and models for Managed Relocation (2023)
- Design Recommendations For A Climate Adaptation Act (2024)
See also:
Other key references are listed below.
Environment Canterbury manages 59 river and drainage rating districts (i.e. areas where ratepayers contribute to the cost of flood protection). This map shows each rating district around rivers. Areas outside these zones are not protected from floods.
Under the Canterbury Water Management Strategy, the catchment of each waterway—their wetlands, groundwater, springs, lakes and rivers that flow down to estuaries—is considered together. Managing catchments in this integrated way means problems can be considered based on each catchment’s unique attributes. These maps will help you identify which catchment zone you are in. Note that while there is overlap, these zone are not the same as river-ratings districts.