Tongariro National Park
Country
New Zealand
Inscribed in
1993
Criteria
(vi)
(vii)
(viii)
The conservation outlook for this site has been assessed as "good" in the latest assessment cycle. Explore the Conservation Outlook Assessment for the site below. You have the option to access the summary, or the detailed assessment.
In 1993 Tongariro became the first property to be inscribed on the World Heritage List under the revised criteria describing cultural landscapes. The mountains at the heart of the park have cultural and religious significance for the Maori people and symbolize the spiritual links between this community and its environment. The park has active and extinct volcanoes, a diverse range of ecosystems and some spectacular landscapes.
© UNESCO
Summary
2025 Conservation Outlook
Finalised on
11 أكتوبر 2025
Good
Current state and trend of VALUES
Low Concern
Overall THREATS
Overall PROTECTION and MANAGEMENT
Full assessment
Description of values
Volcanic mountain landscape of exceptional natural beauty
Criterion
(vii)
The active volcanic peaks of Ruapehu, Tongariro and Ngāuruhoe, surmounting an upland volcanic plateau at the centre of the North Island, form one of the most distinctive and attractive natural landscapes in New Zealand. Mount Ruapehu’s ice-bound crater lake, and the comprehensive range of landforms created by both past and present interactions of the volcanic material with the surrounding glaciers and lake waters, are considered superlative natural phenomena (DOC, 2006a; 2012).
The most frequently active composite volcano complex in the world
Criterion
(viii)
Located at the south-western terminus of the Pacific “Ring of Fire”, the volcanic complex is the most spectacular example of andesitic mountain-building in the south-west Pacific. Volcanic activity is the result of subduction of the oceanic Pacific Plate beneath the Indo- Australian Plate and the volcanoes have a geological history dating back one million years. The active Tongariro, Ngāuruhoe and Ruapehu volcanoes consist of recent cones, craters, explosion pits, lava flows, lakes and hot springs. Mount Ruapehu has a continually steaming crater lake surrounded by permanent ice fields from which, over the last 150 years, there have been at least 40 steam and ash eruptions and lahars (destructive fluid mixtures of volcanic debris and water). Tongariro also contains extensive tephra deposits from the world’s most powerful volcanic eruption of the last 5000 years, the Taupo ‘super-volcano’, whose large caldera is now filled by nearby Lake Taupo. During the last ice age Ruapehu and Tongariro carried glaciers which carved valleys and deposited moraines, but today only a remnant ice field remains on Ruapehu (DOC 2006a; 2012).
Significant diversity of plant habitats
The vegetation follows a distinct altitudinal gradient, beginning with tall, mature lowland podocarp-hardwood rainforest and transitioning upward through a broad zone of montane beech forests, shrubland, tussock land, alpine flushes, and alpine gravel fields. This diverse range of habitats is shaped by variations in altitude and aspect, periodic volcanic eruptions, the depth and composition of ejected tephra, and climatic influences. Mountain Beech (Nothofagus solandri var. cliffortioides), also classified as Fuscospora cliffortioides under a revised taxonomy, is the dominant tree species in the montane zone of the WHS. These forests, typically found between 800 and 1,500 meters in elevation, form dense stands well adapted to the volcanic soils and harsh climatic conditions of the region (DOC, n.d.).
Significant diversity of vertebrate fauna
The WHS supports a rich vertebrate fauna, with over 56 recorded species (DOC, 2006; 2012), including the threatened Kupe skink. The Southern Ruapehu area also hosts a significant population of short-tailed bats and a monitored population of the iconic brown kiwi (DOC, n.d.).
Māori Cultural Significance
The site is important for respecting the spiritual connections to Tongariro, Ruapehu, and Ngāuruhoe, particularly the role of Iwi in relation to kaitiakitanga (guardianship).
The site holds profound cultural and spiritual significance for Māori, especially Ngāti Tūwharetoa and Ngāti Rangi, the primary Iwi (tribes) associated with the park. The mountains—Tongariro, Ngāuruhoe, and Ruapehu—are considered tapu (sacred) and are regarded as living ancestors. Many Māori view the peaks as the heads of their ancestors, and the land is deeply woven into their identity and whakapapa (genealogy).
The site holds profound cultural and spiritual significance for Māori, especially Ngāti Tūwharetoa and Ngāti Rangi, the primary Iwi (tribes) associated with the park. The mountains—Tongariro, Ngāuruhoe, and Ruapehu—are considered tapu (sacred) and are regarded as living ancestors. Many Māori view the peaks as the heads of their ancestors, and the land is deeply woven into their identity and whakapapa (genealogy).
Assessment information
The property continues to face a range of environmental and human induced pressures. These affect both the site's biodiversity and its deep cultural significance to Māori. Animal pests such as stoats, rats, possums, feral cats, red deer, goats and pigs threaten native wildlife including whio and kiwi. These species are potentially a major cause of biodiversity decline. Heather (Calluna vulgaris), lodgepole pine (Pinus contorta), and broom alter native plant communities and are difficult to eradicate once established. Rising temperatures and altered precipitation patterns are already affecting alpine ecosystems, including seasonal snowfall and species distribution. Increased storm frequency and drought conditions threaten both ecological and infrastructure resilience. Visitor impact is another concern. Popular areas such as the Tongariro Alpine Crossing experience heavy foot traffic, leading to track degradation, wildlife disturbance, and increased waste. Concerns over visitor behaviour at sacred sites have led to new codesigned interpretive signage and educational campaigns. Existing infrastructure (e.g., ski areas, roads, transmission lines) is regulated, but has cumulative impacts on sensitive ecosystems. Any new development proposals are subject to environmental impact assessments, works approvals and iwi consultation.
Recreation & Tourism Areas
(Ski area development)
Inside site
, Localised(<5%)
Commercial ski areas occupy some 10% of Mt Ruapehu and 3% of the World Heritage site. There are two major commercially operated ski areas requiring intensive management during winter and to a lesser extent in summer. Key issues are the physical impacts on soils and snow packs; public safety regarding weather, avalanche, volcanic eruption and lahar events; access and transport; facilities development and demand for expansion of ski areas.
Professional staff are employed and there is an excellent working relationship with operators (DOC, 2006a). A number of specific management steps have been formulated and introduced by Ngati Hikairo and the Department of Conservation (DOC) to manage visitor numbers and minimize cultural and environmental impacts on the Tongariro Alpine Crossing. In October 2023, the DOC implemented a booking system for the Tongariro Alpine Crossing. This will gather information on its usage patterns and manage the increasing number of visitors. Visitors are advised not to climb to the summits of the mountains in the World Heritage site, as they are sacred to local iwi (Māori tribes). These advisory notifications aim to respect cultural values and minimize environmental impacts on these significant sites. These measures reflect collaborative efforts between DOC and local iwi to protect the Tongariro Alpine Crossing's unique environment and cultural heritage while ensuring a safe and enjoyable experience for visitors (Department of Conservation, 2024a).
Professional staff are employed and there is an excellent working relationship with operators (DOC, 2006a). A number of specific management steps have been formulated and introduced by Ngati Hikairo and the Department of Conservation (DOC) to manage visitor numbers and minimize cultural and environmental impacts on the Tongariro Alpine Crossing. In October 2023, the DOC implemented a booking system for the Tongariro Alpine Crossing. This will gather information on its usage patterns and manage the increasing number of visitors. Visitors are advised not to climb to the summits of the mountains in the World Heritage site, as they are sacred to local iwi (Māori tribes). These advisory notifications aim to respect cultural values and minimize environmental impacts on these significant sites. These measures reflect collaborative efforts between DOC and local iwi to protect the Tongariro Alpine Crossing's unique environment and cultural heritage while ensuring a safe and enjoyable experience for visitors (Department of Conservation, 2024a).
Invasive Non-Native/ Alien Species
(Invasive alien plants and animals)
Invasive/problematic species
Calluna vulgaris
Cytisus scoparius
Pinus contorta
Rattus sp.
Felis catus
Sus scrofa
Mustela erminea
Trichosurus vulpecula
Cervus elaphus
Lepus europaeus
Oryctolagus cuniculus
Capra hircus
Inside site
, Widespread(15-50%)
Outside site
Introduced heather, Scotch broom, and lodgepole pine (Pinus contorta) are widespread and threaten native plant communities and the animals depending on them. These plants also modify soil properties potentially impacting soil biota (Effah et al., 2020 a,b). The Emerald Lakes on Mt Tongariro were infested with Juncus bulbosus, an invasive weed, affecting their ecological balance and visual appeal. Since 2019, DOC has implemented control measures, leading to the successful eradication of the weed by 2024 (Waikato Herald, 2024). The lakes were rechecked in March 2025. Small patches of young Juncus were found beside the lake, with some dead plants within the lake itself. This was controlled and rechecked in Apr 2025. There was an 80% kill of the plants found in March (IUCN Consultation, 2025).
A biocontrol agent (the heather beetle - Lochmaea suturalis) against heather was introduced in 1996 with some success, while lodgepole pines and Scotch broom are manually removed or treated with herbicide in localised patches (Buddenhagen, 2000; DOC web page). Eradication is no longer feasible, making invasive plants a latent threat to the property. Currently DOC, iwi (Māori tribes), and conservation groups continue targeted control efforts to prevent wilding pines from taking over alpine and tussock ecosystems in line with the national strategy for wilding conifer management (National Wilding Conifer Control Programme, 2014). These efforts are crucial to preserving the unique biodiversity of the World Heritage site. Is it worth noting that there are several ‘new species’ (not new – but newly infesting the WHS) of invasive plants starting to make inroads that have not been studied and are of increasing concern, including Himalayan honeysuckle, Chilean flame weed, convolvulus. It is possible that these will become more than just forest margin problems as the climate warms, as well Viper’s Bugloss was recently detected inside the WHS (Scoria Flat).
There remains a need to further understand the full extent of the potential harm of introduced plant species, other than heather, which may be able to spread due to warming temperatures. Adding to these concerns, the interaction between invasive species and existing ecosystems remains poorly understood. Their ability to outcompete native vegetation, alter soil composition, and impact local biodiversity could have long-term consequences.
Introduced browsing and predatory mammals, especially rats, cats, mustelids, opossums, pigs and deer, have a severe impact on plants and on native bird populations in particular. Intensive pest control programs exist for mammals and sport hunting of deer and pigs is permitted under license (DOC, 2006a; 2012). In May 2024 a thermal aerial survey was undertaken and no goats were detected (Department of Conservation, 2024b). A further thermal survey was conducted within the National Park in March 2025, concentrating on the western side of the Park to ensure that there had been no dispersal into the Park from neighbouring conservation land. No goats were detected, however several deer were detected throughout (IUCN Consultation, 2025).
Some aerial control of goats was conducted within the Erua Conservation Area. The DOC goat control programme is targeted at conservation reserves west of the national WHS, specifically in the Erua and Tongariro Conservation Areas. The goal is to prevent goat dispersal into the WHS by maintaining low to zero densities in these areas—a status that has been successfully upheld for over a decade. If goats are sighted within the WHS, DOC implement reactive control measures immediately. In the past 10–12 years, only two such cases have been recorded (Department of Conservation, 2024b) reflecting the programme’s effectiveness in limiting goat presence within the property.
There is also the Wild Animal Management (WAM) team, a national led team that co-ordinates current and new control work for tahr, deer and goats. The Tongariro National Park is covered as one of nine Wild Animal Management Units, that covers the entirety of the National Park, surrounding conversations land and private land, for the control of goats. This vision was to expand the area of control, not just on conservation land. This will require partnerships with iwi and hapu, regional councils, Nga Whenua Rāhui, private landowners and district councils. This has yet to be implemented although a five year Operational Plan for this work has been written and reviewed by the WAM team. Due to difficulties with funding, work on the wider aspects of this Management Unit has yet to be implemented, however significant funds were used for the aerial thermal assisted camera survey in 2024 and the follow up survey was funded from the WAM funds (IUCN Consultation, 2025).
A biocontrol agent (the heather beetle - Lochmaea suturalis) against heather was introduced in 1996 with some success, while lodgepole pines and Scotch broom are manually removed or treated with herbicide in localised patches (Buddenhagen, 2000; DOC web page). Eradication is no longer feasible, making invasive plants a latent threat to the property. Currently DOC, iwi (Māori tribes), and conservation groups continue targeted control efforts to prevent wilding pines from taking over alpine and tussock ecosystems in line with the national strategy for wilding conifer management (National Wilding Conifer Control Programme, 2014). These efforts are crucial to preserving the unique biodiversity of the World Heritage site. Is it worth noting that there are several ‘new species’ (not new – but newly infesting the WHS) of invasive plants starting to make inroads that have not been studied and are of increasing concern, including Himalayan honeysuckle, Chilean flame weed, convolvulus. It is possible that these will become more than just forest margin problems as the climate warms, as well Viper’s Bugloss was recently detected inside the WHS (Scoria Flat).
There remains a need to further understand the full extent of the potential harm of introduced plant species, other than heather, which may be able to spread due to warming temperatures. Adding to these concerns, the interaction between invasive species and existing ecosystems remains poorly understood. Their ability to outcompete native vegetation, alter soil composition, and impact local biodiversity could have long-term consequences.
Introduced browsing and predatory mammals, especially rats, cats, mustelids, opossums, pigs and deer, have a severe impact on plants and on native bird populations in particular. Intensive pest control programs exist for mammals and sport hunting of deer and pigs is permitted under license (DOC, 2006a; 2012). In May 2024 a thermal aerial survey was undertaken and no goats were detected (Department of Conservation, 2024b). A further thermal survey was conducted within the National Park in March 2025, concentrating on the western side of the Park to ensure that there had been no dispersal into the Park from neighbouring conservation land. No goats were detected, however several deer were detected throughout (IUCN Consultation, 2025).
Some aerial control of goats was conducted within the Erua Conservation Area. The DOC goat control programme is targeted at conservation reserves west of the national WHS, specifically in the Erua and Tongariro Conservation Areas. The goal is to prevent goat dispersal into the WHS by maintaining low to zero densities in these areas—a status that has been successfully upheld for over a decade. If goats are sighted within the WHS, DOC implement reactive control measures immediately. In the past 10–12 years, only two such cases have been recorded (Department of Conservation, 2024b) reflecting the programme’s effectiveness in limiting goat presence within the property.
There is also the Wild Animal Management (WAM) team, a national led team that co-ordinates current and new control work for tahr, deer and goats. The Tongariro National Park is covered as one of nine Wild Animal Management Units, that covers the entirety of the National Park, surrounding conversations land and private land, for the control of goats. This vision was to expand the area of control, not just on conservation land. This will require partnerships with iwi and hapu, regional councils, Nga Whenua Rāhui, private landowners and district councils. This has yet to be implemented although a five year Operational Plan for this work has been written and reviewed by the WAM team. Due to difficulties with funding, work on the wider aspects of this Management Unit has yet to be implemented, however significant funds were used for the aerial thermal assisted camera survey in 2024 and the follow up survey was funded from the WAM funds (IUCN Consultation, 2025).
Recreational Activities
(Impacts of increasing numbers of visitors)
Inside site
, Localised(<5%)
Historically, the World Heritage site has been a popular destination for outdoor recreation, with a high demand for tourist facilities and infrastructure development over many decades. Prior to Covid, at peak times, some sites experienced severe overcrowding at car parks, huts and tracks (trails), and some tracks reached social carrying capacity. Control measures included encouraging alternative activities in the region, channelling growth to sustainable areas and limiting development at affected sites. Managing the increase in tourist use and demand was recognized as a major management problem (DOC, 2006a). COVID-19 imposed travel restrictions reducing global tourism, dampening its adverse impacts on natural parks and other conservation areas (Gossling, Scott and Hall, 2020). Currently the Tongariro Alpine Crossing attracts more than 130,000 walkers per year and the consequences on park values were noted in a report of the Parliamentary Commissioner for the Environment (2019).The Whakapapa and Turoa Amenity Areas within the World Heritage site provide essential visitor facilities, including accommodation, ski fields, and recreational infrastructure. While enhancing the visitor experience, they also pose significant risks to the site's natural and cultural values. Effective mitigation requires strong management practices that balance access with conservation. This starts with clear provisions in licenses and concession documents and regular updates to statutory management plans: WHS Management Plan and Regional Conservation Management Strategy.
Some supporters of the Department’s work, including the Tongariro Taupō Conservation Board, have expressed concerns over these documents being severely outdated, compelling DOC and the public to operate without current guidance. This is a challenge not just for the WHS, but for other sites across Aotearoa.
Given recent WHS challenges, an updated statutory planning framework is urgently required and planning is now underway to make the required changes (Koolen-Bourke et al., 2023).
Some supporters of the Department’s work, including the Tongariro Taupō Conservation Board, have expressed concerns over these documents being severely outdated, compelling DOC and the public to operate without current guidance. This is a challenge not just for the WHS, but for other sites across Aotearoa.
Given recent WHS challenges, an updated statutory planning framework is urgently required and planning is now underway to make the required changes (Koolen-Bourke et al., 2023).
Identity/social cohesion/ changes in local population and community that result in negative impact
(Poor maintenance of Whakapapa Village)
Inside site
, Localised(<5%)
Whakapapa Village serves as the primary gateway to the site, offering essential visitor services, storytelling, and infrastructure to manage tourism impacts in a centralized location. It plays a critical role in balancing conservation with visitor needs by providing accommodation, water, sewage, refuse management, parking, and transport services.
Despite Whakapapa Village’s designation as an "Amenity Area"—intended to balance visitor services with conservation— some accommodation facilities and staff housing is poorly maintained, undermining the village’s core purpose. However, recently investment has been made in housing stock owned by DOC, and plans to update all underground water infrastructure (and above-ground curb and channelling) is progressing well. This follows on from a project initiated in 2022 to rehabilitate approximately 4 km of wastewater pipes in Whakapapa Village. The scope of this project included relining and replacing pipes, removing redundant assets, and installing additional manholes. These measures were necessary due to issues such as cracked, broken, and misaligned pipes, as well as root intrusion (National Park Community Board, 2022).
A golf course previously managed by Chateau Tongariro is gradually reverting to a natural state. The current leadership understands well-maintained infrastructure supports tourism, recreation, livelihoods, and heritage preservation and a structured maintenance plan, backed by strong policies, legal enforcement, user-pays funding, and community involvement, is essential for effective site management and currently being investigated. Significant funding is being invested in the maintenance of the Whakapapa Holiday Park over the coming years.
Despite Whakapapa Village’s designation as an "Amenity Area"—intended to balance visitor services with conservation— some accommodation facilities and staff housing is poorly maintained, undermining the village’s core purpose. However, recently investment has been made in housing stock owned by DOC, and plans to update all underground water infrastructure (and above-ground curb and channelling) is progressing well. This follows on from a project initiated in 2022 to rehabilitate approximately 4 km of wastewater pipes in Whakapapa Village. The scope of this project included relining and replacing pipes, removing redundant assets, and installing additional manholes. These measures were necessary due to issues such as cracked, broken, and misaligned pipes, as well as root intrusion (National Park Community Board, 2022).
A golf course previously managed by Chateau Tongariro is gradually reverting to a natural state. The current leadership understands well-maintained infrastructure supports tourism, recreation, livelihoods, and heritage preservation and a structured maintenance plan, backed by strong policies, legal enforcement, user-pays funding, and community involvement, is essential for effective site management and currently being investigated. Significant funding is being invested in the maintenance of the Whakapapa Holiday Park over the coming years.
Changes in traditional ways of life and knowledge systems that result in negative impact
(Indigenous knowledge systems)
Inside site
, Throughout(>50%)
Outside site
The traditional ways of life and knowledge systems associated with the World Heritage site have been shaped by various external influences. Ensuring their preservation and integration into modern conservation practices is fundamental to respecting cultural heritage and enhancing site resilience. The integration of Māori knowledge with Western science has been particularly beneficial in volcanic risk management, reducing social vulnerability and strengthening community resilience. Such collaborations demonstrate the value of traditional ecological knowledge in conservation and disaster response. However, translating oral traditions and indigenous geographies into formal governmental and legal frameworks remains complex. The implementation of the UNESCO World Heritage Convention has, in some cases, disrupted traditional land use and management. While specific impacts within the site remain underexplored, global examples highlight the need for governance models that safeguard Indigenous rights and autonomy. New Zealand is moving through a period of cultural and social change. This has been developing and evolving over a number of decades. This change process is being led by Māori and Government. The change process is as a result of significant grievances and claims within the context of the 1840 Treaty of Waitangi where the Crown and the people of the land (Tangata Whenua / Māori) reached agreement on governance and resource sharing and management. Since that time (1840) there have been numerous breaches of the treaty that are now being acknowledged and progressed to being resolved. The Governance and management of Tongariro National Park is within this process
Water-borne & other effluent Pollution
(Whakapapa Village wastewater )
Inside site
, Localised(<5%)
Whakapapa Village, located within the property, faces critical wastewater and sewerage challenges that could threaten environmental integrity, public health, and cultural values. Key issues include non-compliant wastewater discharges, aging infrastructure, groundwater and stormwater infiltration. These have compromised system efficiency, leading to hydraulic overloads and potential failures. Regular inspection, proactive maintenance, and system upgrades are essential to ensure long-term functionality. Over three years, DOC spent $1.2 million on wastewater resource consents but recovered only $100,000, highlighting an unsustainable financial model. Due to this, a comprehensive wastewater management strategy is being developed. There is small scale storage of diesel and sewage together with a reticulated sewage scheme. These are closely monitored (DOC 2006a). The reticulated sewage system is currently being upgraded to ensure more effective treatment (MWRC, 2017). Pre-covid, increasing pressures from growing visitor numbers combined with aging infrastructure meant there were some challenges maintaining a high quality outcome for wastewater. DOC is investing to ensure solutions and upgrades for the future, including a full rebuild of underground infrastructure and an analysis of future visitor demand given the temporary closure of Chateau Tongariro and the impact of climate change on Whakapapa Ski field’s winter season (IUCN Consultation, 2020).
Changes in Temperature Regimes, Changes in Precipitation & Hydrological Regime
(Severe weather events)
Inside site
, Throughout(>50%)
Outside site
The property has seen discernible warming trends over the last 5-10 decades. Data indicates positive temperature trends, reflecting a gradual increase in mean annual temperatures (Chappell, 2013). Precipitation patterns in the property have exhibited variability, with some indications of increased heavy rainfall events. Projections suggest that the western regions of the property may experience a rise in heavy rainfall occurrences (Chappell, 2013). Glaciers on Mount Ruapehu have been subject to on-going studies concerning climatic influences. Research indicates that both winter precipitation and temperature are crucial factors affecting the mass balance of these glaciers (Chappell, 2013). In summary, over the past half-century, the property has experienced warming temperatures, variable precipitation patterns, and hydrological changes, reflecting broader climatic trends observed across New Zealand.
Over the past century, the WHS has experienced several significant weather events that have impacted its environment and accessibility e.g. winter and snow storms in 2011 and 2013, which led to strong winds, heavy snowfall and high waves; Cyclone Ita in 2014 and Cyclone Gita in 2018 which caused high winds and heavy rainfall impacting the property. While these events had nationwide impacts, specific effects on the property may not always be documented. Localized weather events, such as heavy snowfall, volcanic activity, or severe storms, have, however, had a significant influence on the natural environment of the WHS over the years. With the intensity and frequency of such events to increase, further information on the potential impacts on the property's OUV are needed to develop effective mitigation measures.
Climate change and associated impacts present two major threats to WH Values including (i) increasing temperatures, and (ii) the invasion of heather (Calluna vulgaris). A team from Victora University - School of Biological Sciences worked with Ngāti Rangi and the Department of Conservation to determine how climate change will affect the ecology and plants living in the WHS and how they can be protected. The team concluded that: (i) regardless of the degree of warming, all models predict increasing infestation of heather, with negative consequences for most ecological sequences and (ii) New Zealand has the ability to use this knowledge to make real progress in countering climate change provided resources are available to undertake field research and develop remedial programmes (Victoria University of Wellington, n.d.).
Over the past century, the WHS has experienced several significant weather events that have impacted its environment and accessibility e.g. winter and snow storms in 2011 and 2013, which led to strong winds, heavy snowfall and high waves; Cyclone Ita in 2014 and Cyclone Gita in 2018 which caused high winds and heavy rainfall impacting the property. While these events had nationwide impacts, specific effects on the property may not always be documented. Localized weather events, such as heavy snowfall, volcanic activity, or severe storms, have, however, had a significant influence on the natural environment of the WHS over the years. With the intensity and frequency of such events to increase, further information on the potential impacts on the property's OUV are needed to develop effective mitigation measures.
Climate change and associated impacts present two major threats to WH Values including (i) increasing temperatures, and (ii) the invasion of heather (Calluna vulgaris). A team from Victora University - School of Biological Sciences worked with Ngāti Rangi and the Department of Conservation to determine how climate change will affect the ecology and plants living in the WHS and how they can be protected. The team concluded that: (i) regardless of the degree of warming, all models predict increasing infestation of heather, with negative consequences for most ecological sequences and (ii) New Zealand has the ability to use this knowledge to make real progress in countering climate change provided resources are available to undertake field research and develop remedial programmes (Victoria University of Wellington, n.d.).
Involvement of stakeholders and rightsholders, including indigenous peoples and local communities, in decision-making processes
In recent years, the governance and management arrangements of the World Heritage site have been under active review to enhance the involvement of iwi in decision-making processes. Key developments include:
1. Resumption of Treaty Negotiations (2023): In September 2023, Treaty negotiations between the Crown and Ngāti Tūwharetoa resumed, focusing on cultural redress related to WHS (Harawira, 2023). These discussions aim to address past grievances and explore frameworks for co-governance and co-management of the WHS, reflecting a commitment to honouring the original partnership envisioned by Ngāti Tūwharetoa leaders.
2. Waitangi Tribunal Findings (2013): The Waitangi Tribunal's 2013 report highlighted that the Crown had not always honoured its obligations to protect and preserve the mountains within WHS (Waitangi Tribunal, 2013). The Tribunal found that the role of Ngāti Tūwharetoa in the WHS's governance had been "diluted" over time, leading to recommendations for establishing a co-management framework between the Crown and ngā iwi o te kāhui maunga. These actions indicate a progressive shift towards more inclusive governance structures that recognize and incorporate the rights, knowledge, and aspirations of iwi associated with WHS.
3. Partial Reviews of the Management Plan: The Management Plan, originally instituted in 2006, underwent partial reviews in 2011 and 2018 to adapt to changing circumstances and incorporate increased knowledge. These reviews addressed issues such as mountain biking concessions, transport concession limits for the Tongariro Alpine Crossing, and the development of shared cycling and walking tracks, reflecting ongoing efforts to balance conservation with recreational use. Nevertheless, the statutory conservation management planning processes under both the Conservation Act and National Parks Act do not provide clear mechanisms for the involvement of whānau, hapū and iwi as Treaty partners in the planning process to ensure that planning documents are created in partnership. Rather, the focus remains on engagement, but there is a push to change this is principle.
Overall, New Zealand is in a period of significant social, economic and cultural change with the progression of Treaty of Waitangi Claims. Good progress has been made, and the parties are committed to progressing these to good outcomes. A mixture of procedural and institutional reform will be required to establish a process where iwi have clear role in the development of core management planning documents. That role must be more than one of consultation and must be distinct from that provided to other persons and stakeholders (Koolen-Bourke et al. 2023).
The Treaty settlement for Tongariro National Park will begin soon, and as such, there will be a change in the governance and management of Tongariro National Park at some point in the future. When the time is right the Tongariro National Park Management Plan will need to be reviewed within the new governance and management context. In the meantime the current park management plan is a good framework for the protection of the values of this site and its integrity is critical for the good management of the site.
1. Resumption of Treaty Negotiations (2023): In September 2023, Treaty negotiations between the Crown and Ngāti Tūwharetoa resumed, focusing on cultural redress related to WHS (Harawira, 2023). These discussions aim to address past grievances and explore frameworks for co-governance and co-management of the WHS, reflecting a commitment to honouring the original partnership envisioned by Ngāti Tūwharetoa leaders.
2. Waitangi Tribunal Findings (2013): The Waitangi Tribunal's 2013 report highlighted that the Crown had not always honoured its obligations to protect and preserve the mountains within WHS (Waitangi Tribunal, 2013). The Tribunal found that the role of Ngāti Tūwharetoa in the WHS's governance had been "diluted" over time, leading to recommendations for establishing a co-management framework between the Crown and ngā iwi o te kāhui maunga. These actions indicate a progressive shift towards more inclusive governance structures that recognize and incorporate the rights, knowledge, and aspirations of iwi associated with WHS.
3. Partial Reviews of the Management Plan: The Management Plan, originally instituted in 2006, underwent partial reviews in 2011 and 2018 to adapt to changing circumstances and incorporate increased knowledge. These reviews addressed issues such as mountain biking concessions, transport concession limits for the Tongariro Alpine Crossing, and the development of shared cycling and walking tracks, reflecting ongoing efforts to balance conservation with recreational use. Nevertheless, the statutory conservation management planning processes under both the Conservation Act and National Parks Act do not provide clear mechanisms for the involvement of whānau, hapū and iwi as Treaty partners in the planning process to ensure that planning documents are created in partnership. Rather, the focus remains on engagement, but there is a push to change this is principle.
Overall, New Zealand is in a period of significant social, economic and cultural change with the progression of Treaty of Waitangi Claims. Good progress has been made, and the parties are committed to progressing these to good outcomes. A mixture of procedural and institutional reform will be required to establish a process where iwi have clear role in the development of core management planning documents. That role must be more than one of consultation and must be distinct from that provided to other persons and stakeholders (Koolen-Bourke et al. 2023).
The Treaty settlement for Tongariro National Park will begin soon, and as such, there will be a change in the governance and management of Tongariro National Park at some point in the future. When the time is right the Tongariro National Park Management Plan will need to be reviewed within the new governance and management context. In the meantime the current park management plan is a good framework for the protection of the values of this site and its integrity is critical for the good management of the site.
Legal framework
Conservation Management Strategies (CMS) are key planning documents under the Conservation Act 1987 that guide the management of public conservation land, including WH sites. Their role in World Heritage management includes: implementing UNESCO World Heritage Obligations, long-Term Strategic Planning, integrating Mātauranga Māori in conservation, visitor and tourism management, biodiversity and threat management, monitoring and reporting. The National Park Act provides the legal basis for the establishment and management of national WHS in New Zealand. The Treaty of Waitangi (Te Tiriti o Waitangi) from 1840 & Treaty Settlements recognizes Māori rights and interests in the WHS. The Ngāti Tūwharetoa Treaty settlement (Ministry of Justice, 2018) reaffirmed iwi ownership of the WHS’s sacred mountains. The Conservation Act 1987 governs the Department of Conservation (DOC), which manages the WHS and mandates DOC to give effect to the principles of the Treaty of Waitangi. A statutory plan under the National Park Act sets management policies and guidelines and integrates co-governance with Iwi and conservation priorities. The Resource Management Act 1991 (RMA) (to be replaced by new legislation) regulates land use, environmental protection, and Iwi participation in decision-making. Local government and iwi collaborate on resource consents affecting the WHS. Lastly, the Historic Places Act 1993 / Heritage New Zealand Pouhere Taonga Act 2014 protects Māori cultural sites and historic places within the WHS (Ministry of Justice, 2014). The Crown Minerals Act 1991 and the Fast-track Approvals Act 2024 have effect within some components of the World Heritage Area. Where activities under this legislation are proposed within the World Heritage area, effects on the OUV are a consideration.
Governance arrangements
The WHS has a number of unique governance and management aspects reflecting the site’s significance both as a WHS and as a place of cultural importance for the Māori people.
The governance of WHS is influenced by the Management Plan, which outlines how the WHS is managed and developed. This plan ensures that the WHS is managed in accordance with the purposes of the National Park Act 1980, focusing on conservation and public enjoyment while preserving the cultural and spiritual values associated with the land. Te Kahui o Tongariro is a governance body that includes representatives from the Ngāti Tūwharetoa iwi and the Department of Conservation (DOC). Ngāti Tūwharetoa, as the iwi with ancestral ties to the land, plays a significant role in decision-making processes and cultural heritage protection within the WHS. The body works to integrate Māori cultural values into the WHS's management.
The Department of Conservation (DOC) is responsible for the overall management of the WHS, including maintaining its natural features, providing visitor services, and ensuring the ecological integrity of the WHS is preserved. DOC works closely with local iwi, stakeholders, and the public to manage the WHS.
The National Parks Act 1980 provides the legislative framework for national park management in New Zealand National Parks, including the WHS. The Act requires the establishment of a Board, which collaborate on decisions related to the WHS's development and conservation.
Overall, the governance model for WHS promotes a collaborative approach between Māori and government entities. This model helps to ensure that the WHS is managed with both ecological sustainability and cultural integrity in mind. The WHS is sacred to iwi. As such, there are specific cultural protocols in place that influence governance and management decisions. These include restrictions on certain activities, consultation before developments, and ensuring that traditional Māori knowledge is integrated into WHS management practices. This structure allows for the recognition and inclusion of Māori rights, interests, and knowledge, alongside the broader goals of conservation and recreation.
The governance of WHS is influenced by the Management Plan, which outlines how the WHS is managed and developed. This plan ensures that the WHS is managed in accordance with the purposes of the National Park Act 1980, focusing on conservation and public enjoyment while preserving the cultural and spiritual values associated with the land. Te Kahui o Tongariro is a governance body that includes representatives from the Ngāti Tūwharetoa iwi and the Department of Conservation (DOC). Ngāti Tūwharetoa, as the iwi with ancestral ties to the land, plays a significant role in decision-making processes and cultural heritage protection within the WHS. The body works to integrate Māori cultural values into the WHS's management.
The Department of Conservation (DOC) is responsible for the overall management of the WHS, including maintaining its natural features, providing visitor services, and ensuring the ecological integrity of the WHS is preserved. DOC works closely with local iwi, stakeholders, and the public to manage the WHS.
The National Parks Act 1980 provides the legislative framework for national park management in New Zealand National Parks, including the WHS. The Act requires the establishment of a Board, which collaborate on decisions related to the WHS's development and conservation.
Overall, the governance model for WHS promotes a collaborative approach between Māori and government entities. This model helps to ensure that the WHS is managed with both ecological sustainability and cultural integrity in mind. The WHS is sacred to iwi. As such, there are specific cultural protocols in place that influence governance and management decisions. These include restrictions on certain activities, consultation before developments, and ensuring that traditional Māori knowledge is integrated into WHS management practices. This structure allows for the recognition and inclusion of Māori rights, interests, and knowledge, alongside the broader goals of conservation and recreation.
Integration into local, regional and national planning systems (including sea/landscape connectivity)
There is direct integration of the governance of the WHS into local, regional, and national planning systems. This integration ensures that the WHS's management aligns with broader development, biodiversity conservation and environmental objectives at various levels of governance.
At the local level the local government in the region (such as the Taupō District Council) has a role in coordinating planning efforts for land use and development around the WHS. This includes zoning, infrastructure development, and public services. Local planning systems must align with the policies of the national WHS, ensuring developments around the WHS do not negatively affect its ecological or cultural values. Local planning also incorporates engagement with nearby communities, including Ngāti Tūwharetoa, ensuring that local cultural and community values are integrated into decision-making processes. The iwi has a say in local land-use planning, especially if it involves areas adjacent to or influencing the WHS.
At the regional level the Bay of Plenty Regional Council and Horizons Regional Council are responsible for regional planning in areas that affect WHS, such as natural resource management, water quality, and biodiversity. Regional plans must comply with national policies, including those related to conservation, climate change adaptation, and sustainable land management. The WHS unique conservation status and its interconnection with the wider landscape mean that regional plans often include specific provisions for areas surrounding the WHS. These could involve buffer zones or initiatives aimed at protecting the WHS's biodiversity, such as limiting development or monitoring environmental health.
At the national level the WHS is governed by several policies, including the National Parks Act 1980 and the Resource Management Act (RMA) 1991. The RMA governs how New Zealand’s natural and physical resources are managed and ensures that national WHSs, such as Tongariro, are preserved for future generations. The WHS's management plans align with national policies that prioritize conservation, heritage protection, and the enhancement of public enjoyment while minimizing the impacts of human activity.
The governance of WHS is also part of New Zealand’s broader conservation strategy, which includes a network of national WHS, reserves, and protected areas. National planning systems such as the New Zealand Biodiversity Strategy and New Zealand Conservation Authority guide the overarching goals for conservation and sustainable tourism at the national level. On the national level, the governance arrangements reflect the principles of the Treaty of Waitangi, ensuring Māori participation in decision-making processes. The national WHS’s governance structure integrates Māori cultural and spiritual values, which are crucial for both legal and planning systems.
As mentioned above earlier, the collaborative governance of WHS includes iwi representation, which helps ensure the WHS’s management is aligned with Māori values and that it is integrated into broader national and regional planning frameworks. This approach allows for cross-agency coordination between local authorities, regional councils, the Department of Conservation (DOC), and iwi to effectively manage the WHS. The WHS is also involved in broader national planning initiatives, such as climate change adaptation strategies and biodiversity protection plans, through the Department of Conservation's efforts to integrate its management into national and regional frameworks.
In summary, the governance of WHS is directly integrated into local, regional, and national planning systems, with a strong emphasis on collaborative governance, conservation, and Māori cultural values. The WHS management intersects with various levels of planning.
At the local level the local government in the region (such as the Taupō District Council) has a role in coordinating planning efforts for land use and development around the WHS. This includes zoning, infrastructure development, and public services. Local planning systems must align with the policies of the national WHS, ensuring developments around the WHS do not negatively affect its ecological or cultural values. Local planning also incorporates engagement with nearby communities, including Ngāti Tūwharetoa, ensuring that local cultural and community values are integrated into decision-making processes. The iwi has a say in local land-use planning, especially if it involves areas adjacent to or influencing the WHS.
At the regional level the Bay of Plenty Regional Council and Horizons Regional Council are responsible for regional planning in areas that affect WHS, such as natural resource management, water quality, and biodiversity. Regional plans must comply with national policies, including those related to conservation, climate change adaptation, and sustainable land management. The WHS unique conservation status and its interconnection with the wider landscape mean that regional plans often include specific provisions for areas surrounding the WHS. These could involve buffer zones or initiatives aimed at protecting the WHS's biodiversity, such as limiting development or monitoring environmental health.
At the national level the WHS is governed by several policies, including the National Parks Act 1980 and the Resource Management Act (RMA) 1991. The RMA governs how New Zealand’s natural and physical resources are managed and ensures that national WHSs, such as Tongariro, are preserved for future generations. The WHS's management plans align with national policies that prioritize conservation, heritage protection, and the enhancement of public enjoyment while minimizing the impacts of human activity.
The governance of WHS is also part of New Zealand’s broader conservation strategy, which includes a network of national WHS, reserves, and protected areas. National planning systems such as the New Zealand Biodiversity Strategy and New Zealand Conservation Authority guide the overarching goals for conservation and sustainable tourism at the national level. On the national level, the governance arrangements reflect the principles of the Treaty of Waitangi, ensuring Māori participation in decision-making processes. The national WHS’s governance structure integrates Māori cultural and spiritual values, which are crucial for both legal and planning systems.
As mentioned above earlier, the collaborative governance of WHS includes iwi representation, which helps ensure the WHS’s management is aligned with Māori values and that it is integrated into broader national and regional planning frameworks. This approach allows for cross-agency coordination between local authorities, regional councils, the Department of Conservation (DOC), and iwi to effectively manage the WHS. The WHS is also involved in broader national planning initiatives, such as climate change adaptation strategies and biodiversity protection plans, through the Department of Conservation's efforts to integrate its management into national and regional frameworks.
In summary, the governance of WHS is directly integrated into local, regional, and national planning systems, with a strong emphasis on collaborative governance, conservation, and Māori cultural values. The WHS management intersects with various levels of planning.
Boundaries
The current boundaries of the WHS are generally adequate in terms of representing the site’s OUV, in that they capture the iconic volcanic landforms and the fundamental cultural features that underpin the natural and cultural World Heritage status. However, several emerging issues suggest that boundary adequacy should be revisited within an adaptive and forward-looking management framework such as a review of the management plan.
Ecologically, the WHS is increasingly challenged by climate change, habitat fragmentation, and pressures from adjacent land uses. The existing boundaries do not fully accommodate ecological connectivity or resilience, particularly for species migration and ecosystem shifts. Another important consideration is that the area’s significance to iwi extends beyond current WHS limits, suggesting that there is need for more inclusive recognition of cultural landscapes.
Furthermore, volcanic hazards, including lahar and pyroclastic flows, can originate or extend beyond existing boundaries, raising possible implications for public / visitor safety within the land use planning spectrum.
To enhance long-term integrity, there could be significant value in considering the introduction of buffer zones, ecological corridors, and a more culturally informed delineation of WHS coverage. These ideas would support ecological function, cultural recognition, and evolving governance arrangements, particularly in the context of treaty settlements along with evolving co-management concepts.
In light of these factors, a review of the current boundaries could be considered as part of an integrated and adaptive management strategy that aligns with both the World Heritage obligations and the aspirations of mana whenua.
Ecologically, the WHS is increasingly challenged by climate change, habitat fragmentation, and pressures from adjacent land uses. The existing boundaries do not fully accommodate ecological connectivity or resilience, particularly for species migration and ecosystem shifts. Another important consideration is that the area’s significance to iwi extends beyond current WHS limits, suggesting that there is need for more inclusive recognition of cultural landscapes.
Furthermore, volcanic hazards, including lahar and pyroclastic flows, can originate or extend beyond existing boundaries, raising possible implications for public / visitor safety within the land use planning spectrum.
To enhance long-term integrity, there could be significant value in considering the introduction of buffer zones, ecological corridors, and a more culturally informed delineation of WHS coverage. These ideas would support ecological function, cultural recognition, and evolving governance arrangements, particularly in the context of treaty settlements along with evolving co-management concepts.
In light of these factors, a review of the current boundaries could be considered as part of an integrated and adaptive management strategy that aligns with both the World Heritage obligations and the aspirations of mana whenua.
Overlapping international designations
N/A
Implementation of World Heritage Committee decisions and recommendations
N/A no recent Committee decisions.
Climate action
DOC is responding to climate change through a combination of environmental assessments, scientific research, and long-term monitoring. Environmental Impact Assessment: DOC’s assessments for the Tongariro Alpine Crossing recognize that climate change is accelerating natural erosion and increasing maintenance challenges for high-use tracks. Weather-related damage is already significant and expected to worsen (DOC, 2024a). Adaptive Visitor Management: DOC uses weather alert systems, visitor counters, and booking data to adaptively manage visitor flows, especially during increasingly frequent hazardous weather events—54 alerts were issued in just one recent summer season. Scientific Research on Ecosystem Impact: Collaborative studies with Victoria University of Wellington and Ngāti Rangi show that climate change is amplifying the spread of invasive species (e.g., heather), which threatens native plant communities. By 2070, suitable habitat for many native species could be drastically reduced. Biodiversity and Ecosystem Monitoring: DOC maintains long-term biodiversity monitoring programs to track ecosystem health, including changes driven by climate variables. These include regular assessments of vegetation plots and native wildlife populations.
Overall, the framework is the Department of Conservation climate change adaptation action plan 2020-2025 (Department of Conservation, 2020), which draws on international best practices to establish a long-term strategy for climate change research, monitoring and action across all of DOC’s functions. This will guide DOC’s internal strategic planning, prioritisation and operations to allow its four intermediate objectives and nine stretch goals to be met in the face of climate change and will also help to ensure that DOC is connected to and can inform national climate change efforts, such as the National Adaptation Plan (NAP) under the Climate Change Response (Zero Carbon) Amendment Act 2019.
Overall, the framework is the Department of Conservation climate change adaptation action plan 2020-2025 (Department of Conservation, 2020), which draws on international best practices to establish a long-term strategy for climate change research, monitoring and action across all of DOC’s functions. This will guide DOC’s internal strategic planning, prioritisation and operations to allow its four intermediate objectives and nine stretch goals to be met in the face of climate change and will also help to ensure that DOC is connected to and can inform national climate change efforts, such as the National Adaptation Plan (NAP) under the Climate Change Response (Zero Carbon) Amendment Act 2019.
Management plan and overall management system
The Tongariro-Taupō CMS (Conservation management Strategy) dates to 2002 and the Tongariro NPMP (National Park Management Plan) to 2006. The annual reports of the Tongariro-Taupō Conservation Board express ongoing concerns at the inadequacy of the now 20 year old CMS, noting that the kinds of challenges and issues faced today “are very different in kind and were unforeseen when the first generation of CMSs were developed”. The Board explains that the documents do not sufficiently drive the level of Department monitoring, maintenance and resourcing needed. It also notes that it has become practically impossible for the Board to set and meet the objectives in its own annual work plan, since “trying to monitor the changes against an outdated strategy is time consuming, confusing and lacks a consistent approach – by both the Board and the Department." This highlights the problem, that without a recent and relevant CMS, the region lacks clear and effective standards to deal with these pressures and to resolve the competing interests that exist, including the expectations for management that iwi hold for place (Koolen-Bourke et al., 2023).
Law enforcement
One of the more persistent operational challenges for DOC stems from its Standard Operating Procedures (SOPs), which, while essential for safety and consistency, can place constraints on staffing and logistics—particularly in remote areas where enforcement is most needed. Others, like the National Compliance Strategy and Operational Planning for Animal Pest Operations, influence how and where compliance and control activities are prioritized—often depending on cost recovery or staff capacity. The transition toward community led stewardship and co-governance with iwi could improve compliance outcomes by fostering shared responsibility and culturally grounded conservation practices.
Sustainable finance
While DOC’s funding model incorporates diverse sources, its sustainability is constrained by political variability, project specific funding, and overreliance on tourism income. A shift toward more stable, multiyear baseline funding, paired with community partnerships and co-governance, could help address systemic shortfalls and build long-term capacity. Strengthening the financial independence of DOC would also help shield conservation priorities from the effects of changing political tides. Following a 6.5% budget cut in 2024, DOC announced that it will have 124 fewer positions overall (DOC, 2024z) across New Zealand.
Staff capacity, training and development
DOC faces a persistent challenge in balancing field based conservation delivery with administrative demands. While its core mandate emphasizes resource management, staff are often drawn into procedural and reporting tasks that limit their time in the field. DOC provides strong training in areas such as health and safety, biosecurity, and cultural engagement. Due to the nature of being a government agency, there has traditionally been limited strategic workforce planning to support long-term field deployment, leadership development, or staff retention in isolated regions. This imbalance has led to what some observers describe as a “stretched middle,” where staff must simultaneously manage compliance and operational delivery with insufficient support. Strengthening place based capacity, streamlining internal processes, and investing in community led conservation partnerships would significantly enhance DOC’s effectiveness on the ground (Department of Conservation, 2024c).
Education and interpretation programmes
When compared to previous education and interpretation programs that promoted conservation awareness and cultural appreciation the number of site-based programs run directly by DOC has progressively diminished. However, a significant contributor to the education initiatives is Project Tongariro, which collaborates with DOC and other partners to deliver impactful programs.
Key Education and Interpretation Programs include:
1. Investigating Alpine Environments Resource: This DOC developed resource introduces secondary students to New Zealand's alpine environments, focusing on ecology, geology, and sustainability. It includes practical field activities in Tongariro National Park, encouraging students to engage in conservation actions. Project Tongariro supports this initiative by facilitating field trips and providing local expertise.
2. Waimarino Environmental Education Project: Initiated by Project Tongariro, this project aims to integrate environmental education into schools within the Waimarino region, fostering connections between students and their natural surroundings. The project works closely with local schools and iwi to incorporate te ao Māori perspectives into the curriculum.
3. Kids Greening Taupō: An environmental education program that engages students in hands on conservation projects, enhancing biodiversity in the Taupō area. Project Tongariro leads this initiative, partnering with local schools, DOC, and community groups to provide experiential learning opportunities.
4. Tongariro National Park Visitor Centre Programs: The Tongariro National Park Visitor Centre, managed by DOC, offers educational displays, guided walks, and interpretation programs that highlight the park's natural and cultural heritage. Project Tongariro collaborates with DOC to enhance these programs, contributing to the development of interpretive materials and volunteer guides.
These programs exemplify the collaborative efforts within the WHS to provide education and interpretation initiatives, fostering a deeper understanding and stewardship of World Heritage (DOC, n.d.)
Key Education and Interpretation Programs include:
1. Investigating Alpine Environments Resource: This DOC developed resource introduces secondary students to New Zealand's alpine environments, focusing on ecology, geology, and sustainability. It includes practical field activities in Tongariro National Park, encouraging students to engage in conservation actions. Project Tongariro supports this initiative by facilitating field trips and providing local expertise.
2. Waimarino Environmental Education Project: Initiated by Project Tongariro, this project aims to integrate environmental education into schools within the Waimarino region, fostering connections between students and their natural surroundings. The project works closely with local schools and iwi to incorporate te ao Māori perspectives into the curriculum.
3. Kids Greening Taupō: An environmental education program that engages students in hands on conservation projects, enhancing biodiversity in the Taupō area. Project Tongariro leads this initiative, partnering with local schools, DOC, and community groups to provide experiential learning opportunities.
4. Tongariro National Park Visitor Centre Programs: The Tongariro National Park Visitor Centre, managed by DOC, offers educational displays, guided walks, and interpretation programs that highlight the park's natural and cultural heritage. Project Tongariro collaborates with DOC to enhance these programs, contributing to the development of interpretive materials and volunteer guides.
These programs exemplify the collaborative efforts within the WHS to provide education and interpretation initiatives, fostering a deeper understanding and stewardship of World Heritage (DOC, n.d.)
Tourism and visitation management
Conducting a SWOT analysis for tourism and visitation management in Tongariro National Park provides insights into the park's current situation and future prospects.
Strengths:
• Unique Natural and Cultural Heritage: As New Zealand's oldest national park and a UNESCO Dual World Heritage Site, Tongariro boasts significant natural beauty and cultural importance, attracting hundreds of thousands of visitors annually.
• Diverse Recreational Activities: The park offers a variety of activities, including hiking, skiing, and mountain biking, catering to a broad range of tourists.
• Established Management Framework: The Department of Conservation (DOC) employs comprehensive strategies to preserve the park's values while accommodating visitors.
Weaknesses:
• Environmental Pressures from Tourism: High visitor numbers, especially on popular tracks like the Tongariro Alpine Crossing, lead to issues such as congestion, waste management challenges, and environmental degradation.
• Invasive Species: The spread of invasive flora and fauna threatens the park's native ecosystems, necessitating ongoing management efforts.
• Infrastructure Limitations: Existing facilities may struggle to cope with peak visitor periods, impacting the quality of the visitor experience and the environment
• Opportunities:
• Sustainable Tourism Initiatives: Implementing measures like the Tongariro Alpine Crossing booking system can help manage visitor flow, enhance safety, and protect cultural and environmental values.
• Community and Iwi Engagement: Collaborating with local communities and iwi can enrich the cultural experience for visitors and ensure that tourism development aligns with local values and aspirations.
• Ecotourism Development: Promoting ecofriendly tourism practices can attract environmentally conscious travellers and support conservation efforts.
Threats:
• Overtourism: Unchecked growth in visitor numbers can exacerbate environmental degradation, strain infrastructure, and diminish the quality of the visitor experience
• Natural Hazards: The park's volcanic nature poses inherent risks, and increased visitation heightens the potential impact of natural events.
• Climate Change: Altered weather patterns and increased frequency of extreme events could affect the park's ecosystems and accessibility.
Addressing these factors through strategic planning and collaborative management is essential to ensure the long-term sustainability of tourism.
Strengths:
• Unique Natural and Cultural Heritage: As New Zealand's oldest national park and a UNESCO Dual World Heritage Site, Tongariro boasts significant natural beauty and cultural importance, attracting hundreds of thousands of visitors annually.
• Diverse Recreational Activities: The park offers a variety of activities, including hiking, skiing, and mountain biking, catering to a broad range of tourists.
• Established Management Framework: The Department of Conservation (DOC) employs comprehensive strategies to preserve the park's values while accommodating visitors.
Weaknesses:
• Environmental Pressures from Tourism: High visitor numbers, especially on popular tracks like the Tongariro Alpine Crossing, lead to issues such as congestion, waste management challenges, and environmental degradation.
• Invasive Species: The spread of invasive flora and fauna threatens the park's native ecosystems, necessitating ongoing management efforts.
• Infrastructure Limitations: Existing facilities may struggle to cope with peak visitor periods, impacting the quality of the visitor experience and the environment
• Opportunities:
• Sustainable Tourism Initiatives: Implementing measures like the Tongariro Alpine Crossing booking system can help manage visitor flow, enhance safety, and protect cultural and environmental values.
• Community and Iwi Engagement: Collaborating with local communities and iwi can enrich the cultural experience for visitors and ensure that tourism development aligns with local values and aspirations.
• Ecotourism Development: Promoting ecofriendly tourism practices can attract environmentally conscious travellers and support conservation efforts.
Threats:
• Overtourism: Unchecked growth in visitor numbers can exacerbate environmental degradation, strain infrastructure, and diminish the quality of the visitor experience
• Natural Hazards: The park's volcanic nature poses inherent risks, and increased visitation heightens the potential impact of natural events.
• Climate Change: Altered weather patterns and increased frequency of extreme events could affect the park's ecosystems and accessibility.
Addressing these factors through strategic planning and collaborative management is essential to ensure the long-term sustainability of tourism.
Sustainable use
Sustainable use in in the WHS is managed with conservation remaining the top priority. Any opportunities for use or development must be carefully balanced to ensure they do not compromise the sites ecological integrity or its biodiversity values.
Monitoring
DOC has some shortcomings in spatial data management for recording and monitoring conservation work. Access to the spatial databases is restricted and has some access limitations, while taking time to be supplied. However, the geospatial databases and monitoring programs run by the Department of Conservation across this site are to a high standard.
The data from surveys, aerial operations and previous year data inform the ungulate programme, wilding conifer, weed led programmes and site led and aerial weed programmes. This informs districts of the management needed in following years. A new 5 year planning approach will be implemented in the near future (IUCN Consultation, 2025).
Aerial pest operations and ungulate programmes are managed nationally by specific teams.
It is also important to note that there is little support for the system to be informed by mātauranga Māori. Further, the monitoring and reporting system is not configured to collect and monitor values important to tangata whenua to support and enable whānau, hapū and iwi decision-making (Koolen-Bourke et al. 2023).
The data from surveys, aerial operations and previous year data inform the ungulate programme, wilding conifer, weed led programmes and site led and aerial weed programmes. This informs districts of the management needed in following years. A new 5 year planning approach will be implemented in the near future (IUCN Consultation, 2025).
Aerial pest operations and ungulate programmes are managed nationally by specific teams.
It is also important to note that there is little support for the system to be informed by mātauranga Māori. Further, the monitoring and reporting system is not configured to collect and monitor values important to tangata whenua to support and enable whānau, hapū and iwi decision-making (Koolen-Bourke et al. 2023).
Research
The DOC manages research activities in the WHS through a formal approval process. While specific details of currently approved research projects are not publicly listed (these are held in an internal permissions database, which will be updated in the near future), researchers interested in conducting studies within the WHS must obtain the necessary permissions from DOC. This process ensures that all research aligns with the WHS conservation objectives and management plans. For comprehensive guidelines and application procedures, researchers should refer to the Tongariro National Management Plan.
Effectiveness of management system and governance in addressing threats outside the site
The SWOT analysis assesses the effectiveness of the management system and governance in addressing threats outside the WHS.
A key strength is the strong DOC governance due to experienced management by the Department of Conservation, which ensures robust internal park protection. Additionally, the co-governance with Iwi strengthens cultural values and decision making. Another strength is that strategic planning tools through National Park and regional policy frameworks incorporate provisions for mitigating external threats.
However, some weaknesses include the limited control outside boundaries as the DOC has no direct authority over some adjacent land use or regional infrastructure development, and the fragmented responsibility. External threats like water pollution or invasive species require multiagency action, often lacking full coordination. Insufficient data and monitoring is another issue as tracking the impacts of external threats (e.g. climate change, tourism growth) remains a challenge.
Cross boundary collaboration by partnering with regional councils, landowners, and communities can strengthen landscape level conservation. Integrated catchment management to address water and ecosystem health beyond park borders through holistic, upstream downstream planning is another opportunity to improve management.
Furthermore, there is potential for improved national and regional alignment to protect World Heritage values from external threats, which are climate change, agriculture and land use pressures and tourism infrastructure growth.
A key strength is the strong DOC governance due to experienced management by the Department of Conservation, which ensures robust internal park protection. Additionally, the co-governance with Iwi strengthens cultural values and decision making. Another strength is that strategic planning tools through National Park and regional policy frameworks incorporate provisions for mitigating external threats.
However, some weaknesses include the limited control outside boundaries as the DOC has no direct authority over some adjacent land use or regional infrastructure development, and the fragmented responsibility. External threats like water pollution or invasive species require multiagency action, often lacking full coordination. Insufficient data and monitoring is another issue as tracking the impacts of external threats (e.g. climate change, tourism growth) remains a challenge.
Cross boundary collaboration by partnering with regional councils, landowners, and communities can strengthen landscape level conservation. Integrated catchment management to address water and ecosystem health beyond park borders through holistic, upstream downstream planning is another opportunity to improve management.
Furthermore, there is potential for improved national and regional alignment to protect World Heritage values from external threats, which are climate change, agriculture and land use pressures and tourism infrastructure growth.
Effectiveness of management system and governance in addressing threats inside the site
Dual World Heritage status helps to ensures cultural and natural values are prioritized leading to developing Iwi engagement and co-governance. Furthermore, visitor management initiatives are active in high use areas.
However, visitor numbers are causing congestion and erosion, invasive species require ongoing control, limited infrastructure exists in some zones, and managing both natural and cultural values simultaneously can be complex.
Expanding visitor control strategies (e.g. booking systems, alternative routes) is underway along with an increase in funding and staffing for on ground management, improved education on cultural values for visitors and an integration of climate adaptation into park planning. Updating key management planning documents like the CMS and NPMP offer opportunities to integrated these aspects accordingly. Significant change is on the horizon from both the outcomes of Treaty Settlement processes, changes to legislation and statutory planning frameworks that are currently being progressed by Government and the possible changes to site-level governance and management that are likely, to be put in place. These developments will take time.
However, visitor numbers are causing congestion and erosion, invasive species require ongoing control, limited infrastructure exists in some zones, and managing both natural and cultural values simultaneously can be complex.
Expanding visitor control strategies (e.g. booking systems, alternative routes) is underway along with an increase in funding and staffing for on ground management, improved education on cultural values for visitors and an integration of climate adaptation into park planning. Updating key management planning documents like the CMS and NPMP offer opportunities to integrated these aspects accordingly. Significant change is on the horizon from both the outcomes of Treaty Settlement processes, changes to legislation and statutory planning frameworks that are currently being progressed by Government and the possible changes to site-level governance and management that are likely, to be put in place. These developments will take time.
A notable aspect of the current management is the active involvement of hapū and iwi. Their traditional knowledge and cultural values are integral to decision-making processes, ensuring that conservation strategies honour the spiritual significance of the property. This collaboration has enhanced awareness and understanding of Māori cultural values, enriching the site's management and visitor experience. While challenges persist due to enforcement issues and limited resources, the concerted efforts of the DOC, local communities, Project Tongariro and volunteers have led to significant progress in preserving properties natural and cultural heritage. Nevertheless, opportunities exist to further strengthen management and protection, particularly by expanding visitor control strategies (e.g. booking systems, alternative routes), increasing funding and staffing for on ground management, improving education on cultural values for visitors and integrating climate adaptation into park planning. Most critically, the key management planning documents like the CMS and NPMP urgently need to be updated. Overall, New Zealand is in a period of significant social, economic and cultural change with the progression of Treaty of Waitangi Claims. Good progress has been made, and the parties are committed to progressing these to good outcomes. There will be a change in the governance and management of Tongariro National Park at some point in time into the future. When the time is right the Tongariro National Park Management Plan will need to be reviewed with new governance and management context. In the meantime the current park management plan is a good framework for the protection of the values of this site and its integrity is critical for the sites good management.
Good practice examples
The Tongariro NP has a formal twinning (sisterhood) relationship with the Jeju Volcanic Island and Lava Tubes World Heritage property in Korea, guided by a memorandum of understanding.
Volcanic mountain landscape of exceptional natural beauty
Good
Trend
Stable
The scenic and aesthetic values are essentially intact throughout the World Heritage site. Apart from ski areas and other limited recreation facilities and services infrastructure, the site is free from excessive or inappropriate human development, however increasing visitation means more demand for additional facilities (DOC, 2006a; IUCN Consultation, 2017). Existing infrastructure (e.g., ski fields, roads, transmission lines) is regulated, but has cumulative impacts on sensitive ecosystems (DOC, 2022). Any new development proposals are subject to environmental impact assessments and iwi consultation. Popular areas such as the Tongariro Alpine Crossing experience heavy foot traffic, leading to track degradation, wildlife disturbance, and increased waste (DOC, 2024). Concerns over visitor behaviour at sacred sites have led to new codesigned interpretive signage and educational campaigns (Ngāti Tūwharetoa & DOC, 2023).
The most frequently active composite volcano complex in the world
Good
Trend
Stable
The geological values and attributes of the World Heritage site, though highly dynamic, often destructive and in a constant state of flux, are essentially operating under natural laws and processes. Human intervention is limited to providing for safety and security of people to reduce the high level of hazard from volcanic eruption and associated destructive events (DOC, 2006a).
Assessment of the current state and trend of World Heritage values
Stable
The outstanding universal value and attributes of the World Heritage site can currently be assessed as in a good and stable state. There is, however, growing concern from some Indigenous groups that commercial developments and infrastructure to cater for the increased visitor demand in the property are inconsistent with World Heritage values. The scenic and aesthetic values remain essentially intact throughout the World Heritage site. The outstanding geological features are protected and operate under natural processes, apart from some limited management intervention to reduce the hazards to people. Tongariro National Park dual World Heritage Area does not have a Statement of Outstanding Universal Value (SOUV) currently in place. This is both a gap and an opportunity as this may initiate the conversation around the values that need protection. This may be work for the new governance and management system post Treaty Settlement.
Assessment of the current state and trend of other important biodiversity values
Low Concern
Deteriorating
The property continues to face a range of environmental and human induced pressures. These affect both the sites biodiversity and its deep cultural significance to Māori. Invasive species are one of the main causes of human-induced rapid environmental change leading to biodiversity decline (Sih, Ferrari and Harris, 2011; DOC, 2024). The invasive animal and plant pests in the Tongariro National Park can no longer be eradicated and continue to spread, being a latent threat. Invasive plants in particular, affect the native biota and other ecosystem properties; some of these impacts may be irreversible. Although adequate monitoring and various control measures are in place e.g. maintaining yearly control for wilding conifers; goat control, Juncus, broom control, protection of river systems for whio, ferret control for kiwi, and aerial pest control for areas where short-tailed bats, whio and kiwi are prevalent. Control efforts including trapping, biological control (e.g. heather beetle), and herbicide application are ongoing and supported through DOC's integrated pest management strategy (DOC, 2024). Rising temperatures and altered precipitation patterns are already affecting alpine ecosystems, including seasonal snowfall and species distribution (NIWA, 2023). Increased storm frequency and drought conditions threaten both ecological and infrastructure resilience (MfE, 2022).
Assessment of the current state and trend of other important values
Low Concern
Improving
The WHS Settlement Act 1894 recognized Ngāti Tūwharetoa’s gift of the mountains, but only in recent years have iwi gained greater roles in co-management. Today, iwi representatives work alongside the Department of Conservation (DOC) to manage the WHS, ensuring that recreational activities, conservation efforts, and tourism respect Māori cultural values and environmental sustainability.
Additional information
Soil stabilisation,
Water provision (importance for water quantity and quality)
It is of fundamental importance in the protection and sustainable conservation of climatic, hydrological, soil and other ecological services and amenities.
History and tradition,
Sacred natural sites or landscapes
The World Heritage site recognizes and protects traditional beliefs and customs of the local indigenous peoples, which symbolize the intimate association of the people with the land. These associative cultural values were fundamental to the genesis of the site as a national park and as the first cultural landscape inscribed under the World Heritage Convention.
Outdoor recreation and tourism
Tongariro National Park is of great significance for outdoor recreation, especially skiing and hiking, and is among the most well-known and popular national tourist destinations. Recreational Opportunities & Activities
⦁ Tramping – Iconic multi-day hikes (e.g., Tongariro Northern Circuit, one of NZ’s Great Walks).
⦁ Skiing & Snowboarding – Whakapapa & Tūroa Ski Fields, balancing recreation with climate change impacts.
⦁ Cultural & Heritage Tourism – Integration of Māori values, with iwi-led guided experiences (e.g., Ngāti Hikairo, Ngāti Tūwharetoa connections).
⦁ Scenic & Geological Features – Key visitor attractions like Mt. Ngāuruhoe (Mt. Doom), Red Crater, Blue Lake, Taranaki Falls.
⦁ Wildlife & Nature Observation – Viewing rare species such as whio (blue duck) and kiwi.
⦁ Restricted Activities – Limits on mountaineering and off-track exploration to protect fragile ecosystems and tapu (sacred) sites.
⦁ Tramping – Iconic multi-day hikes (e.g., Tongariro Northern Circuit, one of NZ’s Great Walks).
⦁ Skiing & Snowboarding – Whakapapa & Tūroa Ski Fields, balancing recreation with climate change impacts.
⦁ Cultural & Heritage Tourism – Integration of Māori values, with iwi-led guided experiences (e.g., Ngāti Hikairo, Ngāti Tūwharetoa connections).
⦁ Scenic & Geological Features – Key visitor attractions like Mt. Ngāuruhoe (Mt. Doom), Red Crater, Blue Lake, Taranaki Falls.
⦁ Wildlife & Nature Observation – Viewing rare species such as whio (blue duck) and kiwi.
⦁ Restricted Activities – Limits on mountaineering and off-track exploration to protect fragile ecosystems and tapu (sacred) sites.
Importance for research
The site protects a natural volcanic complex of international scientific interest and global conservation significance.
The WHS contains a unique blend of cultural, ecological, and geological significance. The Tongariro National Park recognizes and protects beliefs and traditions symbolizing the intimate association of the local indigenous people with the land. It is a nationally and internationally significant tourist destination for outdoor recreation activities, and is significant in protection of the natural environment and the sustainable conservation of fundamentally important climatic, hydrological, soil and other ecological services.
| № | Organization | Brief description of Active Projects | Website |
|---|---|---|---|
| 1 | Project Tongariro | Rotopounamu - Pihanga has been identified as a representative site in terms of indigenous biodiversity and cultural values. Its geography and access lend it for a successful integrated pest management plan. The approach targets the entire ecosystem focusing on a multitude of threats, using different control techniques and community involvement. Pests controlled include possums, pigs, stoats, weasels, ferrets, rats and cats. This technique offers the current native populations of fauna and flora to regenerate and become self-sustaining. |
https://www.tongariro.org.nz/rotopounamu-restoration-project
|
| 2 | Manaaki Whenua Landcare Research | A biocontrol agent battling a problem Central North Island pest plant (ling) heather (Calluna vulgaris) is causing major dieback effects 23 years after it was first introduced to control the spread of this invasive environmental weed. Recent years have been very significant for this long-running project targeting the most widespread plant pest in WHS. |
https://www.landcareresearch.co.nz/discover-our-research/biodiversity-biosecurity/weed-biocontrol/projects-agents/biocontrol-agents/heather-beetle
|
References
| № | References |
|---|---|
| 1 |
Buddenhagen, C. E. (2000). Broom control monitoring at Tongariro National Park. Department of Conservation.
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| 2 |
Chappell, P.R. (2013). The climate and weather of Waikato. NIWA Science and Technology Series 61, 40 pp.
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| 3 |
Commissioner for the Environment (2019). Pristine, popular... imperilled? The environmental consequences of projected tourism growth. Parliamentary Commissioner for the Environment. Available at: https://pce.parliament.nz/publications/pristine-popular-imp…
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| 4 |
DOC (2024z). Statement on savings and efficiencies. NZ Department of Conservation / Te Papa Atawhai. https://www.doc.govt.nz/news/issues/statement-on-savings-an…
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| 5 |
DOC webpage (n.d). Tongariro National Park. Department of Conservation, Government of New Zealand. Available at: https://www.doc.govt.nz/parks-and-recreation/places-to-go/c…
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| 6 |
Department of Conservation (2018). Addendum to the Tongariro National Park Management Plan 2006-2016. As required by the Partial Review 2018. June 2018. [online]. Department of Conservation, Government of New Zealand. Available at: https://www.doc.govt.nz/globalassets/documents/about-doc/ro… [Accessed 19 August 2020].
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| 7 |
Department of Conservation (2020). Department of Conservation climate change adaptation action plan. Lead authors: Jenny Christie, Petra Pearce, Paul Phifer, Sam Parsons and Andrew Tait. New Zealand Government. Available at: https://www.doc.govt.nz/globalassets/documents/our-work/cli…
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| 8 |
Department of Conservation (DOC) (2006a). Tongariro National Park Management Plan 2006-2016. Department of Conservation, Government of New Zealand.
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| 9 |
Department of Conservation (DOC) (2006b). Tongariro National Park Management Plan Discussion Document. Department of Conservation, Government of New Zealand.
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| 10 |
Department of Conservation (DOC) (2012). Retrospective Statement of Outstanding Universal Value, Tongariro National Park, New Zealand.
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| 11 |
Department of Conservation (DOC). (n.d.). Tiered monitoring approach for conservation management. New Zealand Government. Available at: https://www.doc.govt.nz
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| 12 |
Department of Conservation. (2024a). Assessment of Environmental Effects for the Tongariro Alpine Crossing. Department of Conservation. Available at: https://www.doc.govt.nz/globalassets/documents/our-work/ton…
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| 13 |
Department of Conservation. (2024b). No goats detected in Tongariro National Park. Press Release. New Zealand: DOC. Available at: https://www.doc.govt.nz/news/media-releases/2024-media-rele…
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| 14 |
Department of Conservation. (2024c). DOC Workforce Insights and Strategic Direction. Department of Conservation, Government of New Zealand. IIA Release retrieved from doc.govt.nz.
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| 15 |
Effah, E., Barrett, D. P., Peterson, P. G., Potter, M. A., Holopainen, J. K., & Clavijo McCormick, A. (2020a). Effects of Two Invasive Weeds on Arthropod Community Structure on the Central Plateau of New Zealand. Plants, 9(7), 919.
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| 16 |
Effah, E., Barrett, D. P., Peterson, P. G., Potter, M. A., Holopainen, J. K., & McCormick, A. C. (2020b). Seasonal and environmental variation in volatile emissions of the New Zealand native plant Leptospermum scoparium in weed-invaded and non-invaded sites. Scientific reports, 10(1), 1-11.
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| 17 |
Harawira, W. (2023). Tongariro National Park Treaty talks restart but dark clouds loom. Regional | Ngāti Tūwharetoa. TE AO Maori News. Published 13 September 2023. Available at: https://www.teaonews.co.nz/2023/09/13/tongariro-national-pa…
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| 18 |
Koolen-Bourke, D., Peart, R., Wilde, B., and Turner, T. (2023). Independent external review of the Conservation Management Planning System. Environmental Defence Society. April 2024. Available at: https://eds.org.nz/wp-content/uploads/2023/06/EDS_Conservat…
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| 19 |
Manawatu Whanganui Regional Council (MWRC) (2017). Whakapapa Wastewater Treatment Plant. Horizons Regional Council. Available at: http://www.horizons.govt.nz/managing-natural-resources/cons…
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| 20 |
Ministry of Environment (2022). Aotearoa New Zealand’s first national adaptation plan. Wellington. Ministry for the Environment. Available at: https://environment.govt.nz/assets/publications/climate-cha…
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| 21 |
Ministry of Justice (2014). Heritage New Zealand Pouhere Taonga Act 2014 No 26. Version as at 24 December 2024. Available at: https://www.legislation.govt.nz/act/public/2014/0026/latest…
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| 22 |
Ministry of Justice (2018). Ngāti Tūwharetoa Claims Settlement Act 2018 No 55. Version as at 12 April 2022. Available at: https://www.legislation.govt.nz/act/public/2018/0055/latest…
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| 23 |
National Park Community Board (2022). Agenda and notes 5:30PM, Tuesday 9 August 2022 Owhango Hall, 2157 State Highway 4, Owhango. Available at: https://www.ruapehudc.govt.nz/repository/libraries/id:2dyph…
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| 24 |
National Wildling Conifer Control Programme (2014). A national strategy to manage wildlings. National Wildling Conifer Control Programme. Available at: https://www.wildingpines.nz/national-control-programme/nati…
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| 25 |
New Zealand Department of Conservation (2020). Volcanic risk in Tongariro National Park. Department of Conservation, Government of New Zealand. Available at: https://www.doc.govt.nz/parks-and-recreation/places-to-go/c…
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| 26 |
Sih, A., Ferrari, M. C., & Harris, D. J. (2011). Evolution and behavioural responses to human‐induced rapid environmental change. Evolutionary Applications, 4(2), 367-387.
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| 27 |
Victoria University of Wellington (n.d.). Current research. Te Kura Mātauranga Koiora School of Biological Sciences. Available at: https://www.wgtn.ac.nz/sbs/research/ecology-biodiversity-re…
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| 28 |
Waikato Herald (2024). Tongariro Alpine Crossing’s Emerald Lakes are weed-free again. Waikato Herald. Published online 18 April 2024. Available at: https://www.nzherald.co.nz/waikato-news/news/tongariro-alpi…
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| 29 |
Waitangi Tribunal (2013). t e K ā h u i Maunga The National Park District Inquiry Report. Wai 1130. Waitangi Tribunal Report 2013. Available at: https://forms.justice.govt.nz/search/Documents/WT/wt_DOC_72…
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