Horizons regulatory manager Greg Bevin said the 92 dairy farms which had not lodged a consent application were "engaged in the wider process", which included working with the consultants on applications.
"Our focus is still on achieving a good quality outcome for all parties involved rather than focusing on the numbers," Mr Bevin said.
No enforcement action has been taken by Horizons, but Mr Bevin said if people refused to engage in the process it would be considered.
Meanwhile, 80 of the 94 consents granted have been issued as restricted discretionary consents, which mean farms are allowed to leach more nitrogen than permitted under the One Plan rules.
Restricted consents are allowed under the plan, but only as exceptions and only if farms meet the One Plan limits within four years.
The Chronicle revealed last year that some farms had been given consent to leach nitrogen at more than three times the target set in the council's plan.
Horizons has said the method of calculating nitrogen leaching has changed since the One Plan was adopted, and more farms than originally estimated would struggle to meet targets.