Wairarapa District Council - Final proposal for a combining South Wairarapa District Council, Carterton District Council and Masterton District ...
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Final proposal for a
Wairarapa
District Council
combining South Wairarapa District Council,
Carterton District Council and Masterton District Council
July 2017 www.lgc.govt.nz
1
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Mihi
E ngā hapū, ngā iwi, ngā uri whakaheke o te pūtiki We greet you again, the peoples, the descendants of
wharanui o Kahungunu me Rangitāne; tēnā āno te the flax knot of Kahungunu and Rangitāne, in the context
mihi atu kī a koutou, i runga i te kaupapa kei mua i a Te of the present matters before the Commission as we
Kōmihana, i a tātou kātoa: kia whai painga kī te rohe nei. together seek benefits for this district.
E mihi hūri noa kī a koutou o Ngāti Kahungunu ki Greetings also to all those involved in the Treaty
Wairarapa Tāmaki nui-ā-Rua; Rangitāne o Wairarapa; settlement process now before Parliament which touches
Rangitāne Tāmaki nui-ā-Rua; Rangitāne Tū Mai Rā. on our activities.
Kua whakarongo mātou Te Kōmihana ki ngā whakaaro The Local Government Commission has listened with
puta mai i tēnā marae, i tēnā hapū, i ngā tāngata atawhai i care to the submissions made by everyone, from large
Wairarapa me taitonga Tāmaki nui-ā-Rua. organisations to individuals. Our purpose of seeking
benefit for the peoples of Wairarapa and southern
Tū tonu mai te kaupapa: ānei o mātou kitenga; o mātou Tāmaki nui-ā-Rua remains.
meā whakamārama.
These are our findings and our explanations of
Nāku, nā our thinking.
Tā Wira Gardiner Sir Wira Gardiner
Tumuaki, Mana Kāwanatanga-a-Rohe Chair, Local Government Commission
1
Foreword
Tēnā koutou
We are pleased to release the Local Government Commission’s final proposal for a new Wairarapa
District Council.
The Commission has listened to local government Our view that one combined district council offers
leaders, councillors, iwi, business leaders, the rural considerable benefits to the Wairarapa community
sector, community leaders and residents from all walks is shared by many in the area. Independent research
of life throughout the Wairarapa. It has also considered shows that a majority of people in the Wairarapa support
independent expert evidence. We are confident that combining the three district councils.
combining the three existing small councils into one
medium-sized local authority will have many advantages Now that the Commission has released it, the final
for the Wairarapa in capturing opportunities now and proposal is in your hands. We encourage the community
meeting the challenges of the future. to exercise its right to ask for a Wairarapa-wide poll. This is
your chance to shape the future of your district and
Thank you to all the members of the Wairarapa your community.
community who have helped us get to this point. We feel
privileged to have heard strong and considered views Nā mātou, nā
from across the spectrum. It is obvious to us that many of
you care passionately about local governance.
Over the last two years, whether you made a submission
to the Commission, spoke at a hearing, attended one of
our many drop-in centres, information stands or public
meetings, took part in one of our telephone surveys, or
simply read our materials, we thank you. Your input has
been very useful for the Commission’s deliberations.
Sir Wira Gardiner Janie Annear Brendan Duffy
Chair Commissioner Commissioner
Local Government Local Government Local Government
Commission Commission Commission
2
Contents
Mihi 1
Foreword 2
Wairarapa District Council at a glance 4
The Proposal 5
Key features 6
Listening to the Wairarapa community 8
What happens next 9
Why change 10
What it means for you 12
Community boards 17
Better local government 19
Assessing the advantages and disadvantages 22
Transition to the new council 26
Legal description 27
Legal description of the proposal 28
Schedule A: Boundaries map 33
Schedule B: Iwi and hapū in the Wairarapa 34
Appendices 35
A
ppendix 1: Draft terms of reference for
Wairarapa community boards 36
Appendix 2: Reorganisation timeline 38
Appendix 3: Timeline for next steps 39
Appendix 4: Requirements for petition 40
Hot air balloons over Carterton farmland | Rob Suisted | www.naturespic.com 3
Wairarapa District
Council at a glance
Structure and representation
Map 1. Proposed structure and representation
Ward councillors
+
Community board members
Te Kauru
Masterton
Ward
Ward
Carterton
Ward
+
Greytown
Ward +
1
MAYOR
Maungaraki
Ward
+
+ Martinborough
Featherston Ward
Ward
4
The
Proposal
The Local Government Commission is
proposing a combined district council
for the Wairarapa.
This section summarises the key features of the
proposed new council.
Fishing at Castlepoint | Rob Suisted | www.naturespic.com
5
Key features
One council Community boards
The combined district council would be called the There would be five community boards, one for each of
Wairarapa District Council. It would replace the South Featherston, Greytown, Martinborough, Carterton and
Wairarapa District Council, Carterton District Council Masterton wards. The community boards would provide
and Masterton District Council. a leadership role in empowering their local communities
to determine local issues and advocating for their
Regional council would remain communities to council.
The Greater Wellington Regional Council (GWRC) would
continue to be the regional council for the Wairarapa. Council offices
There would be no changes to GWRC’s functions, Area offices would be retained in Martinborough,
boundaries, or representation. It would, however, be Carterton and Masterton for at least five years.
required to have a Wairarapa Committee (see below).
The address for service (principal public office) would be
Masterton. The Wairarapa District Council could choose
First election
to change the address for service.
The first election of the Wairarapa District Council,
including its community boards, would be in October
2018 at the earliest. The first-past-the-post electoral The community boards would provide a
system would be used. leadership role in empowering their local
communities to determine local issues and
advocating for their communities to council.
Wards
The Wairarapa District would be divided into seven
wards – Featherston, Greytown, Martinborough,
Carterton, Masterton, Maungaraki, and Te Kauru. Māori representation
The Wairarapa District Council would have a Māori
standing committee.
Mayor and councillors
The Wairarapa District Council would have a mayor The committee would provide advice on matters of
and 12 councillors. The mayor would be elected at large. interest to Māori, advice on resource consents, and
The councillors would be elected by wards as follows: monitor a memorandum of partnership between the
council and iwi.
Ward councillors The Māori standing committee would be retained until at
least the 2022 local government elections. Membership
Featherston Ward would comprise the mayor, other councillors appointed
Greytown Ward by the council, and representatives nominated by
Martinborough Ward Rangitāne ō Wairarapa and Ngāti Kahungunu ki Wairarapa.
Carterton Ward
Masterton Ward The Wairarapa District Council would also be required
Maungaraki Ward to consider additional measures for involving iwi, hapū,
Te Kauru Ward marae and Māori in council decision-making.
6Rural representation
The Wairarapa District Council would have a rural
standing committee.
The committee would provide advice on and
consider issues affecting the rural sector and rural
areas, including making recommendations on coastal
reserves management.
The rural standing committee would be retained
until at least the 2022 local government elections.
Membership would comprise the mayor, councillors from
the Te Kauru, Maungaraki, and Martinborough wards,
and representatives of rural/land based industries and
rural communities.
Wairarapa Committee of GWRC
The Greater Wellington Regional Council (GWRC) would
have a Wairarapa Committee.
The committee would help ensure Wairarapa community
views were taken into account in regional council
decision-making. The committee could consider
any issues relevant to the Wairarapa, including flood
protection, land management, biosecurity, biodiversity,
public transport, and natural resource management.
The Wairarapa Committee would be retained until at
least the 2022 local government elections. Membership
would comprise four members from GWRC (including
the Wairarapa constituency councillor), four members
nominated by the Wairarapa District Council, and one
member each appointed on the nomination of Rangitāne
ō Wairarapa and Ngāti Kahungunu ki Wairarapa.
Future changes to representation
The normal local authority representation review process
would allow the Wairarapa District Council to make
changes to representation arrangements at least every
six years. However, the Wairarapa District Council could For more details please see the legal description
make changes after three years in light of, for example, of the proposal on page 28.
significant changes in population.
7Listening to the
Wairarapa community
Reflecting Wairarapa communities’ views Changes we cannot make
The Commission has listened to a wide range of Some people asked for changes to the proposal
community views over the last two years. We have that are beyond the powers of the Commission.
given consideration to all the ideas and information We cannot make changes such as:
presented to us. As a result the final proposal includes
the following changes from the draft proposal: • c hanging the number of GWRC councillors
who represent the Wairarapa
• a requirement on the new council to consider
a more comprehensive approach to its • c ompelling councils to share more services
relationship with iwi, hapū and Māori as an alternative to the proposal
• c larifying recommended delegations in the draft • establishing Māori wards for the new council
community board terms of reference
• setting the budget for community boards
• m
inor changes to the terms of reference for
the Greater Wellington Regional Council • s etting up council committees that last beyond
(GWRC) Wairarapa Committee one term
• r educed powers/scope of work for the • p
ermanently ring-fencing debt and assets,
transition body or permanently capping rates
• e xplicit expectation for the transition body • r equiring permanent area offices at
to consult with interested parties and specific locations
the community on terms of reference for
• c ouncils appointing the implementation team
community boards, the Māori standing
(although the Commission will consult on this
committee, and the rural standing committee
as standard practice).
• iwi representation on the transition body
• u
nion/worker advisor on the implementation
team.
For further information on the results of the Here you can find a short overview of
Commission’s public engagement process see the the engagement, as well as two more
Wairarapa resources page at www.lgc.govt.nz detailed documents:
· Summary of submissions
· UMR Research report - Public perception of the
draft proposal
8What happens next?
It is now up to the people of the Wairarapa to decide whether or not this proposal goes ahead.
Final proposal
No poll requested A poll is requested
(No valid petition received) by petition
Poll is held
More than 50 per 50 per cent or
cent support more oppose
New Wairarapa District No new council
Council
See Appendices 3 and 4 on pages 39 and 40 for timeline for next steps and requirements for petition.
9Why change
A prosperous, secure future for the Wairarapa
This final proposal for a single Wairarapa District Council is a proposal, first and foremost, for the
Wairarapa. The Wairarapa is one economy, one job market, one sporting and arts community, and a
nationally recognised identity, notwithstanding the fact it is made up of many smaller communities,
each with passionately felt identities.
The Wairarapa as a whole is not well represented by its current council arrangements. Having local
government at a Wairarapa scale will create opportunities for the area that are missed or held back by
its current three-council arrangements.
This final proposal is also a proposal for the future. In five, 15, 30 or even 50 years, would the Wairarapa
community be better placed with three small district councils, or one medium-sized council, to meet
the many challenges the area will inevitably face?
Such challenges include The Commission’s considered view is that a single
combined council with all the advantage this implies –
scale, capacity, resilience, economic integration, expertise
• s upplying essential services including, for example, and combining local representation with a mandate to
safe fresh drinking water work in the best interests of the whole of the Wairarapa –
would be much better placed to meet such challenges.
• h
igher regulatory requirements and/or public
expectations about the quality of infrastructure and Advantages outweigh the disadvantages
the environment The Commission has set out the advantages and
disadvantages of the proposal on page 22. In its view,
• the replacement of ageing infrastructure
the advantages significantly outweigh the disadvantages.
• t he movement of populations and associated This is particularly so in:
infrastructure requirements
• governance and decision-making
• mitigating the effects of climate change
• t he provision of infrastructure, services and
• keeping abreast of technological innovation regulation
• preparing for, or recovering from, natural disaster • productivity gains across the Wairarapa economy
• c ompeting nationally and internationally for • simplified planning.
skilled labour
• d
eveloping and maintaining competitive advantage
This final proposal for a single Wairarapa
– whether in tourism, the wine industry, agriculture
District Council is a proposal, first and foremost,
or general business and industry.
for the Wairarapa.
10Local democracy • A
rts, sport, culture and community spirit
The Commission considers that it has proposed local The value of having a Wairarapa-wide approach to
government arrangements that would strengthen the fostering, funding, supporting and promoting the
efficiency and effectiveness of local government for all of events, clubs, organisations, venues and activities
the Wairarapa, while ensuring: that define and nurture a spirit and culture of
place – and removing duplication and simplifying
• local government supports the Wairarapa’s various the work of sporting and cultural organisations.
communities to flourish in their unique way with
community boards for Featherston, Greytown, • E
conomic advantage
Martinborough, Carterton and Masterston wards The economic advantages of a coherent Wairarapa-
wide economic strategy, and greater ability to
• iwi have a strong voice in local government through, influence the regional council and government
at a minimum, a Māori standing committee and a agencies such as the New Zealand Transport
memorandum of partnership Agency for the benefit of the Wairarapa economy.
• r ural people and interests have a formal channel to • B
etter customer service
advance their concerns to the new council through a The benefits of a local authority that has the scale
rural standing committee to avoid delays in customer service or hiring costly
consultants when essential staff are on leave or
• t here is greater Wairarapa influence on Greater when the workload is unusually heavy.
Wellington Regional Council, with four Wairarapa
District Council nominees as members of a formal Council cost savings
Wairarapa Committee of the regional council. The Commission considers that the effect on council
finances is a more minor, but still positive, consideration.
Real benefits Based on expert and council advice, the proposal
In considering the benefits for the Wairarapa community, projects net savings of approximately $10 million over the
the Commission is required to look at multiple factors. first 10 years compared with the existing councils’
The proposed changes have real, but hard-to-measure, operating budgets.
economic and social benefits. These include:
• L ess red tape For detailed analysis behind the council cost figures
The value to the community of a local government please go to the Wairarapa resources page at
structure that, through uniform regulations and www.lgc.govt.nz
simplified council decision-making processes,
makes it easier and more cost effective to do
business across the Wairarapa. Compelling case for change
The advantages of a combined Wairarapa
• Resilience District Council are many and varied. As the
The value of a Wairarapa-wide organisation that Wairarapa looks ahead in decades rather than
has the staffing and financial scale to prepare and years, it is the less easily quantified benefits
respond effectively and in a co-ordinated way to that make the case for change, as presented by
either physical or social upheaval or disruption, such this final proposal, compelling.
as a flood or earthquake.
11What it means for you
We are proposing a Wairarapa District Council, combining the existing South Wairarapa, Carterton,
and Masterton district councils.
This section sets out what changes residents and ratepayers in the Wairarapa would be likely to see
as a result of amalgamating the three existing district councils.
Elected members For example...
If you live (or pay rates) in the Featherston Ward you
First election would get the opportunity to vote for:
The first election of the Wairarapa District Council and
community boards would take place in October 2018 • one mayor for the whole of the Wairarapa
at the earliest. The first-past-the-post electoral system
would be used. • one councillor for the Featherston Ward
• four community board members for the
Mayor
Featherston Community Board.
You would vote for a mayor for Wairarapa District. A mayor
would be elected “at large”. This means that all residents
If you live (or pay rates) in the Maungaraki Ward you
and non-resident ratepayers in the new Wairarapa District
would get the opportunity to vote for:
would vote for the mayor.
• one mayor for the whole of the Wairarapa
Councillors
You would also elect councillors for your area (ward).
• one councillor for the Maungaraki Ward.
See page 33 for a map of the proposed wards, and the
number of councillors that would be elected for each
ward. There would be 12 councillors in total.
Māori representation
Community board
The proposal includes several ways for Rangitāne ō
If you live in Featherston, Greytown, Martinborough,
Wairarapa, Ngāti Kahungunu ki Wairarapa and Wairarapa
Carterton or Masterton wards, you also would elect
hapū to be involved in council decision-making, including
community board members. See page 4 for a map of the
a memorandum of partnership for how the council would
wards and the number of community board members
work with the two iwi.
that would be elected for each urban ward.
The Māori standing committee would provide advice
See pages 17 to18 for an explanation of what community
and recommendations to the new council. It would
boards would do.
also monitor the effectiveness of the memorandum
of partnership between the council and the two iwi.
Contributing to the naming of reserves and roads would
be one task for the committee.
The Commission expects community boards to maintain
and improve opportunities for local hapū and marae
to contribute to community board decision-making
processes.
The proposal requires the new council to consider other
additional measures for facilitating Māori involvement in
local government decision-making.
12Membership Wairarapa’s influence on the
The Māori standing committee would comprise:
regional council
• r epresentatives nominated by Rangitāne ō Wairarapa
and Ngāti Kahungunu ki Wairarapa GWRC remains the regional council
The Greater Wellington Regional Council (GWRC) would
• the mayor remain as the regional council for the Wairarapa. GWRC
would continue to be responsible for flood protection,
• other appointed councillors. land management (including erosion control), pest
management, biosecurity, biodiversity, public transport,
Term and natural resource management in the Wairarapa.
The Māori standing committee would be in place until
at least the 2022 local authority elections (the first term Your access to current GWRC-provided services would
of the new council). This is the maximum time the not change as a result of amalgamation.
Commission has the power to specify.
There would continue to be one councillor for the
Rural representation Wairarapa on GWRC (also called the Wairarapa
constituency councillor). Seats on the regional council
are determined on a population basis and the number
Rural standing committee
of Wairarapa GWRC councillors cannot be increased by
If you live in a rural area or work in a rural industry, you
the Commission.
have a special committee of the council to represent
your interests.
The purpose of the Wairarapa Committee
The rural standing committee would provide advice would be to help ensure Wairarapa community
and recommendations on rural and coastal issues to the views are taken into account by the regional
Wairarapa District Council. The rural standing committee council.
may also wish to work with the Wairarapa Committee of
the Greater Wellington Regional Council.
GWRC Wairarapa Committee
GWRC would be required to have a Wairarapa Committee.
Membership
This committee could consider any of the issues GWRC
The rural standing committee would comprise:
currently deals with in the Wairarapa (see above).
• c ouncillors from Maungaraki, Te Kauru and
Martinborough wards GWRC supports a Wairarapa Committee and
has already set up a pilot committee in advance of any
• the mayor decision made on amalgamation. More information is
available at www.gw.govt.nz/wairarapa-committee/
• C
ouncil-appointed representatives from rural
communities and rural/land-based industries
Term
The rural standing committee would be in place until
at least the 2022 local authority elections (the first term
of the new council). This is the maximum time the
Commission has the power to specify.
13Membership of the Wairarapa Committee Your rates
The Wairarapa Committee would have 10 members:
Current arrangements remain
• four from GWRC, including the Wairarapa
Current rating arrangements would remain in place
constituency councillor
until the new council considers the choices for using
• four nominated by Wairarapa District Council, different types of rates and charges across the whole new
at least three must be councillors, and at least Wairarapa District. After consultation with the community,
one must have knowledge of rural issues. if any changes are made, the Wairarapa District Council
would adopt a new rating policy.
• one nominated by Rangitāne ō Wairarapa
No more than five per cent change
• one nominated by Ngāti Kahungunu ki Wairarapa. If the council adopts a new rating system, your district
council rates would not go up (or down) any more than
Term of committee five per cent in any one year as a result of the change in
The Wairarapa Committee would have to stay in the rating system, at least until the end of June 2024. Your
place until at least the 2022 local authority elections rates could change by more than this five per cent in any
(the first term of the Wairarapa District Council). This one year for other reasons, such as changes to council
is the maximum time the Commission has the power services, rating valuations, or other normal financial
to specify. decisions. The new council may decide to continue the
rating cap after June 2024 (but the Commission is not
legally able to set it permanently in place).
Initial adjustments
If a new council does decide to adopt a new rating policy
then it is likely that some ratepayers could experience
an initial upward adjustment in rates. Others could
have an initial downward adjustment. However, these
adjustments (both ways) would have to be within the five
per cent rating cap.
Wastewater targeted rates would be
‘ring-fenced’
If the new council is formed, you would continue to
pay wastewater rates only for the scheme you are
connected to and not for other schemes, at least until
2024. In 2024, the new council would consider whether
to keep the ring-fencing in place. The Commission cannot
permanently ring-fence a council’s debt or assets.
Additional borrowing
If any of the three existing councils decide to commit
For a detailed analysis of the three councils’ to any additional borrowing before the new Wairarapa
rating systems, and their debt, assets and District Council is formed, the Commission would
liabilities see the Wairarapa resources page consider requiring additional ring-fencing for the area
at www.lgc.govt.nz concerned.
14Council offices Council services
Area offices Community facilities
The existing council offices in Masterton, Carterton and Your council parks, recreational facilities, libraries, and
Martinborough would be retained as area offices for other cultural and community facilities would continue
the Wairarapa District Council for at least five years after to be available under the proposal. Any future changes
amalgamation. At an area office you would be able to would be decided by Wairarapa District Council as part of
access core council services similar to those that you usual council decision-making.
currently have, such as:
Community board plan
• g
etting information about council activities Every three years the community board would develop
and services a community board plan covering the future of local
facilities and services in its area. You will be able to have
• booking council facilities your say by participating in this local planning exercise.
• a pplying for a building consent, resource consent, or
Council services
liquor licence
Council services such as rubbish collection and animal
• registering your dog control would continue to be provided. Your community
board would have input into the council’s decision-
• paying your rates making on levels of services provided. For Maungaraki
and Te Kauru ward residents, the rural standing committee
• making complaints. would have input into decisions affecting you on council
services.
The new Wairarapa District Council could consider
changes to the location of council offices but only
after this five-year period, and in consultation with
Infrastructure
the community. Infrastructure in the Wairarapa, such as your water supply,
stormwater, and sewerage systems, would be managed
Address for service on a Wairarapa-wide basis. For example your roads would
The address for service (principal public office) for be managed as one network – consistent with how they
Wairarapa District Council would be Masterton. are used (except for state highways which remain the
responsibility of New Zealand Transport Agency).
The address for service is not the same as a head office.
A head office is the council office where most staff work Longer term a larger Wairarapa District Council would be
and the elected members meet. The Commission is not better able to manage upgrades or new requirements
specifying the location for a head office for Wairarapa such as changes in central government standards.
District Council, or the location or numbers of staff at
each council office, or where council meetings would be
held. These would be decisions for the Wairarapa District
Council. There are many approaches that a new council
could take to staffing and functions located at particular
council offices.
15Your projects Staff expertise more widely available
The new council would be able to share the expertise of
One set of rules its staff across the whole of the Wairarapa, making sure
If you are planning a subdivision, a building project, you have access to the same quality of advice no matter
or a major commercial investment, there will be both where you live, work, or play in the area. This would also
immediate and longer-term benefits. The Wairarapa mean fewer delays if the staff member you are dealing
Combined District Plan would continue but be with is unavailable as there would be more staff back-up.
interpreted more consistently. The new council would
also work towards creating only one set of plans, policies,
rules, processes and fees across the Wairarapa.
One council to deal with
If you are a company, community or sporting group,
or other organisation that currently works with the three
district councils, you would have to deal with only one
council. Applying for funding and working with the
council should be easier and cheaper.
Greytown Featherston
Masterton
Martinborough Carterton Rob Suisted | www.naturespic.com
16Community boards
Community boards are fundamental to the success of a Wairarapa District Council.
Five community boards Relevant stakeholders, including local iwi, marae and
There would be five community boards with a mix of hapū, the three existing South Wairarapa community
elected community board members and ward councillors, boards and the South Wairarapa Māori Standing
as below. This is similar to the current arrangements Committee would be consulted on the final community
for the existing three South Wairarapa District Council board terms of reference.
community boards. Having ward councillors on the
community boards is intended to provide communication The following is based on the draft terms of reference:
between the community boards and the council, and
help better coordinate decision-making responsibilities. Community decision-making
The purpose of the community boards is to provide
leadership and empower local communities to make
Community board composition decisions on local issues. The Wairarapa District Council
Featherston would have responsibility for making decisions on
Wairarapa-wide services and strategic issues.
Greytown
Martinborough Community boards would be empowered by the council
Carterton to make most local decisions, with a couple of exceptions:
Masterton
• if it would be more equitable, effective or efficient for
Elected community board members Ward councillors the council to make the decision on a district-wide
basis
Draft terms of reference • w
here the benefits of integrating decision-making
Each community board would be responsible and with other areas would outweigh the benefits of
accountable to its local community for a wide range of more local decision-making.
local services and functions. See Appendix 1 on page 36
for a draft terms of reference.
Infrastructure – such as drinking water, waste water
These are the draft terms of reference the Commission treatment provision, and roading – would always
recommends to the transition board. They should be used be managed on a district-wide basis by the council.
as a starting point when the transition board develops Regulatory functions would also be managed at a
a final community boards terms of reference, which will district-wide level in order to ensure consistency and
become legally binding on the new council. accountability.
These draft terms of reference are an indication of
the minimum responsibilities, duties and powers the
Commission expects the community boards to have.
They are not an exhaustive list. The transition board or
the council could add in additional responsibilities, duties
or powers.
17Community planning Funding
As well as making local decisions, community boards The Wairarapa District Council would provide sufficient
would be advocates and representatives for their resources for the community boards to fulfil their role. This
communities and take the lead on community-level would include appointing a senior manager or managers
planning. whose responsibilities include supporting the boards.
Every three years, each community board would prepare a Each year, as part of the council’s annual plan process,
community board plan. Community board plans would: each community board would prepare a submission
to the council on proposed expenditure within its
• s et out priorities and preferences for local activities community.
and levels of service
• implement district-wide plans and strategies
• e nsure all initiatives are within the funding allocated
by the council.
Examples of council and community board responsibilties
Council responsibilities Community board responsibilities
Budget Long-term plan Request funding to spend in the community
Annual plan board area
Setting rates Spend allocated funding
Financial management Allocate community-based grants
Regulation District Plan No regulatory powers
Resource consent applications Can make submissions to council on local issues
Building consents e.g. sale and supply of alcohol
Bylaws
Roading Planning Recommendations to council on road names, local
Funding road signage, traffic control, speed restrictions
Asset management Determining priorities for footpath location and
maintenance
Parks & reserves Reserve Management Plans Recommendations on Reserve Management Plans
Use and development of local parks and reserves
Facilities, urban reserves,
urban amenities, town main
District-wide strategies and policies Use and development of local facilities, urban
streets Use and development of facilities, reserves, urban amenities and town main streets
reserves and amenities of district-wide Names for local reserves, structures and
significance commemorative places
Consultation Iwi and Māori Hapū and marae
District-wide organisations Local community organisations
District-wide initiatives Local special interest groups
18Better local government
In this section we set out how the proposal would promote the purpose of local government and
facilitate economic performance in the Wairarapa.
The purpose of local government is: A single Wairarapa District Council would be able to make
decisions and act on behalf of the Wairarapa as a whole
• To enable democratic local decision-making and and to represent and promote the area’s interests with
action by, and on behalf of, communities central government and the wide range of national and
regional bodies that councils interact with on behalf of
• T o meet the current and future needs of their communities.
communities for good-quality local infrastructure,
local public services and performance of regulatory The Commission also recognises that there are important
functions in a way that is most cost-effective for communities of interest at the level of towns and localities
households and businesses. Good quality means at smaller scales than the proposed combined district,
being efficient, effective and appropriate to current and indeed smaller than the current three districts. The
and anticipated future needs1. proposal therefore establishes community boards for each
of the five major townships and their surrounds, providing
Democratic local a means for decisions on more local matters to be made
at a more local level.
decision-making
The proposal includes a ward structure to ensure that all
The proposal for a single Wairarapa District Council parts of the new district are guaranteed representation at
reflects that in many important ways the Wairarapa is a the council table.
single community of interest. It is a distinct geographical
area, with strong economic and social connections The proposal includes a requirement for the new council
across the three current districts, five main townships and to have a Māori standing committee and consider other
surrounding rural localities. additional ways to facilitate Māori, iwi, hapū and marae
involvement in council decision-making.
The Commission has determined that the Wairarapa as a
whole is the most appropriate scale for local democratic In addition, the proposal establishes a rural standing
decision-making and action in relation to the roles and committee. This committee would facilitate rural
responsibilities undertaken by district councils. community input into council decisions.
Under current arrangements there is no local government
body mandated to make decisions, take action, or speak
on behalf of the Wairarapa community as a whole. Each
of the three existing district councils has a mandate only
to act and speak on behalf of its own district. Making
decisions and taking action in a coordinated manner
across the whole of the Wairarapa has required a variety
of complex ad hoc multi-council arrangements. It can be
cumbersome and time-consuming to get the agreement
of the three existing councils to enable a joint contract to
be let, for example.
1 | Section 10 of the Local Government Act 2002.
19Effective and efficient local A combined council would have better capacity to
adapt to changing legal requirements affecting
government infrastructure; such as freshwater quality standards
impacting on wastewater infrastructure, or roading/bridge
The commission has determined that a single Wairarapa
maintenance standards.
District Council would be better placed to deliver
efficient and effective local government infrastructure It would also be better equipped to respond effectively
services and regulation now and into the future. It would to unexpected events such as extreme weather events,
have economies of scale that the three separate councils which will be more frequent with increasing climate
do not have – but still be only a middle-sized council by change. The new council would have better:
New Zealand standards.
• financial resilience
Staffing
There would be scope for more specialist staff in key • staff resilience, such as back-ups for key positions
areas and training of existing staff to take up these
specialist roles. Having more specialist staff would mean • physical resilience, by having three area offices.
less reliance on consultants and better management
The larger scale of council operations would also create
of contracts when the council does have to employ
the scope, over time, for efficiencies to be gained at the
consultants. The combined staffing pool would make it
operational level from standardising equipment, work
easier for the council to recruit and retain skilled staff into
practices and programmes, and the potential for more
the future, by providing more attractive career paths.
efficient bundling of works contracts. Maintenance and
The new council would have more staff than any one of upgrades of roading, for example, could be planned
the individual councils does now. Having a larger pool across the whole of the Wairarapa, which would be more
of people to call on to cover for staff away sick or on efficient. Local roads would be managed as a single
leave would improve council productivity and customer network, consistently with how roads are used.
service. Response times for building consents or resource
consents, for example, should not be affected by staff The Commission has determined that a single
being away. Wairarapa District Council would be better
placed to deliver efficient and effective local
Being part of a larger organisation could also improve an government infrastructure services and
individual’s job satisfaction because staff can take leave regulation now and into the future.
without letting council customers down or returning to
an overflowing inbox.
Public services
Infrastructure investment and management The combined resources of the existing three councils
Providing infrastructure, such as drinking water, sewage would be available to enable the new council to continue
treatment, drainage, waste facilities and roading, is one of to support the excellent range of community services
district councils’ most important services. The new council and facilities currently provided and to respond to
organisation would combine the financial and staffing changing community expectations over time.
resources of the three existing councils and so would
be better able to provide its citizens with good-quality There would be scope to rationalise the administration of
infrastructure into the future. services and facilities, with the potential to provide a more
diverse range of services and facilities in the future.
20Sporting and cultural organisations with a whole-of-
Wairarapa focus, and other stakeholders such as external The Wairarapa is a single economy and
funders, would need to deal with only one council rather job market.
than three.
Regulatory functions Having a single council with a mandate to speak for the
In terms of regulatory activities, as in other areas, there whole of the Wairarapa provides the opportunity for
are advantages in the greater scale of a single combined more effective input into Wellington regional economic
council organisation in terms of the council’s ability to development strategies.
train, attract and retain the necessary specialist staff.
It also would remove the incentive for the Wairarapa
Over time, a single Wairarapa council would be able to councils to compete with each other, lifting councillors’
provide a more consistent approach to local regulations, decision-making mandate to match the geographical
with more standard rules and more consistent scope of the Wairarapa.
interpretation and administration of those rules. This
would have benefits for businesses and others who are
Reduced compliance costs
Having more standardised local government rules and
expected to comply with those regulations.
regulations would simplify compliance for businesses and
others active in the economy across the current districts.
Facilitating economic While there is one combined district plan, it is interpreted
performance by three different councils, inevitably leading to
inconsistencies. Consistency and certainty should reduce
As well as the cost savings, efficiencies, and productivity compliance costs for businesses.
improvements mentioned above, the proposal would also
facilitate economic performance in the Wairarapa. Simplified planning
Having a single council would simplify local government
Coherent economic strategy for the Wairarapa planning and decision-making processes. There would
The Wairarapa is a single economy and job market. be only one set of plans required under the Local
The business community’s view is that the continued lack Government Act, and the need to resource only one
of commitment from the existing councils to a coherent process to develop and consult on each. It would reduce
Wairarapa-wide economic strategy is a significant the time Wairarapa-wide community and business groups
limitation of the status quo. A single district council is need to devote to making submissions to council on
seen as the best opportunity to provide Wairarapa-wide these plans.
strategies across key economic drivers.
21Assessing the advantages and
disadvantages
In this section we present an assessment of the advantages and disadvantages of the proposal for
Wairarapa residents and ratepayers to consider.
ADVANTAGES DISADVANTAGES
A single district council
There would be a mandate for the mayor and councillors to There would be reduced Wairarapa representation on those
make decisions for the Wairarapa as a whole, and a platform regional committees and forums that have membership on
for more effective advocacy for the Wairarapa nationally a per-council basis (e.g. the Regional Transport Committee).
and regionally.
Some staff with important technical skills or local
A medium-sized council organisation would have greater knowledge might seek employment elsewhere rather than
economies of scale in its operations than the current small face a period of uncertainty during the transition to the
councils, especially in Carterton and South Wairarapa. new council.
Increased council scale would provide scope for specialist
staff, reducing the need for, and cost of, consultants.
A larger council would likely be more attractive as an
employer with larger teams supporting more diverse
experience and career development opportunities.
The new council would have greater financial resilience and
be in a better position to cope with unexpected changes
and big challenges.
Representation
Community boards would provide additional local There would be fewer councillors than at present, which
representation in the wards containing the five main towns could mean councillors are less visible and less accessible.
in the Wairarapa.
The ward structure based on existing council boundaries
The rural standing committee would provide for dedicated may generate tension between ward and district-wide
rural representation and be an avenue to promote rural priorities.
perspectives to the council.
With fewer councillors overall, rural areas may have fewer
Local government relationships with particular interest elected representatives than under current arrangements.
groups, such as the Wairarapa Youth Council, may be
assisted by having to deal with only one council in the The geographic size of the Maungaraki and Martinborough
Wairarapa. wards may make face-to-face contact with councillors more
difficult than currently.
Provision for a Wairarapa Committee of the Greater
Wellington Regional Council would provide a pathway for
formalised Wairarapa input into regional council decision-
making affecting the Wairarapa, and an opportunity to reset
the relationship with the regional council.
22ADVANTAGES DISADVANTAGES
Council and community board decision-making
The single council would be simpler for Wairarapa-wide There is a risk that communities may feel disempowered
groups and businesses to engage with. and engage less with democratic decision-making as
community board members would have fewer powers than
There would no longer be the need for multi-council councillors.
committees, task groups and working parties to deal with
cross-boundary issues in the Wairarapa, which would speed There is a risk that a council focus on whole-of-Wairarapa
up and simplify decision-making. decision-making would be at the expense of a focus on
more local issues.
Including community boards with specific delegations
in the proposal would allow for decisions on very local Community boards would require council financial support
matters to be made closest to the people impacted by to be effective.
those decisions.
The staff time to support community boards would be
The staff time required to support political decision-making significant.
within the Wairarapa would be reduced, as decisions would
be made once by a single council rather than separately by The community board structure may cause tension
three councils. between the council and boards, particularly if there are
differences in board effectiveness.
Having a single council would remove the parochialism
that is inherent in the three-council model when dealing
with Wairarapa-wide decisions.
Community boards would provide a ‘training ground’ for
future councillors.
Facilitating Māori participation
The Māori standing committee would provide a forum Current provisions for Māori input into decision-making
to ensure the council facilitates Māori, iwi and hapū through appointed voting members of council committees
involvement in council decision-making. (Masterton) are left to the new council to consider.
It would be easier for iwi to provide comment on relevant There would be fewer councillors than at present, which
issues and would reduce the burden of having to form an could mean councillors are less accessible to hapū and
effective relationship with three councils. marae.
Community boards would have to facilitate hapū and
marae involvement in their work.
23ADVANTAGES DISADVANTAGES
Provision of infrastructure, services and regulation
A single combined pool of asset management staff would There is a risk that services and facilities may become
provide an opportunity for improved asset management centralised on the major centres of population, with smaller
practices and planning. communities feeling disadvantaged.
The council would be able to manage local roading as a
single network – consistent with how the network is used.
There would be the opportunity for more flexible and larger
work packages/contracts, the standardisation of equipment
and rationalisation of water and wastewater sampling
programmes.
Infrastructure and service resilience would improve with
greater resources being available to address service
interruptions.
Increased scale would provide the opportunity over time
to provide a more diverse portfolio of community facilities
across the Wairarapa.
There would be a single set of regulatory requirements and
processes (e.g. for building consents, resource consents and
liquor licences).
Increased council scale means Wairarapa local government
would be better able to respond to current and future
changes in regulatory requirements.
Council finances
Modest council financial savings are expected from The transition costs are expected to slightly outweigh
establishing a single council. These are estimated at about the cost savings from merging the councils for the first
$31 million over 10 years. After estimated transition costs two years.
of $21 million, this would result in net savings of about
$10 million. There are risks that transition costs could be higher
than estimated, or that financial savings could be lower
than estimated.
24ADVANTAGES DISADVANTAGES
Productivity gains
A single set of planning and policy processes for the The transition period could impact negatively on the
Wairarapa rather than each council running separate productivity of the existing councils in the short term.
decision-making processes in parallel would be more
effective and beneficial for the Wairarapa community. The new council may take time to bed in and there could
be a loss of council productivity while it does.
It would be easier for tourism, sport and culture groups that
have a whole-of-Wairarapa focus to work or partner with a
single council than with three.
One larger council would result in more effective responses
to changes in regulation affecting local authorities (for
instance, financial reporting and health and safety).
Having a single building consent authority rather than three
would reduce building consent authority compliance costs
(for instance relating to accreditation).
There would be more consistent administration of the
Wairarapa Combined District Plan.
More standard regulatory rules across the Wairarapa would
simplify compliance for businesses and others operating
across the Wairarapa.
Simplified planning
There would be a reduction in Local Government Act plans There would be five community board plans, rather than
(annual and long-term plans etc.) from three sets to one set. the current three.
There would be common plans for regulatory matters such
as sale of alcohol, noise control and animal control.
It would be easier for a single council to develop
strategies for the Wairarapa as a whole, as these would no
longer require multi-council collaboration through joint
committees, task forces etc.
It would be easier for people with interests across more
than one of the current districts to participate in the council
planning processes.
Area offices
There would continue to be area offices in Martinborough, The extent of services provided at each area office would be
Carterton, and Masterton for the first five years of the new decided by the new council and may change over time.
council providing some initial stability.
25Transition to the new council
If the final proposal proceeds (see page 40 for details about a potential poll), a transition process to the
new Wairarapa District Council would begin. The formal transition period would end with the election
of the new council.
The Commission is required by law to appoint a transition The transition body would make few decisions about
board and an implementation team for the transition. A staffing – most would be made by the interim chief
key role of the transition board would be to appoint an executive once the new council is operational. The interim
interim chief executive as soon as possible. The board, the chief executive would need to make some decisions
team and the interim chief executive (when appointed) before this to enable the council to function effectively
would make up the Wairarapa Transition Body. from its first day.
During the transition period the existing councils and The transition board of nine voting members would
their chief executives would continue to be responsible comprise an independent chair, two elected members
for carrying out the day-to-day operations of the existing from each of the three existing councils, and one
councils until their disestablishment. representative from each iwi. All transition board
members would be required to execute their duties in the
best interests of the new Wairarapa District Council.
WAIRARAPA TRANSITION BODY The interim chief executive’s job would be to provide
leadership for staff and management of systems and
resources for the new council in transition and in its
Wairarapa Interim
Implementation early years.
Transition Chief
Board Executive Team
The implementation team would consist of a small team
of staff from existing councils, and an iwi advisor and a
union/worker advisor. The implementation team would
give effect to decisions of, and provide technical and
The transition body would operational advice to the Commission and transition
board initially, and then to the interim chief executive.
• p
rovide advice to the Commission as necessary
during the transition The costs of the operation of the transition body would
be apportioned between the three existing councils.
• r ecommend to the Commission the final community
board terms of reference/delegations For detailed analysis of the estimated transition
costs please go to the Wairarapa resources page
• r ecommend for adoption by the new council terms
at www.lgc.govt.nz
of reference for the Māori standing committee and
the rural standing committee.
The Wairarapa Transition Body would have to consult with
interested parties and the community on each of these.
26Legal Description Wind turbines at White Rock, Martinborough | Rob Suisted | www.naturespic.com
Legal description of
the proposal
Constitution Representation
1. There will be a Wairarapa District comprising the area 10. Wairarapa District will be divided into seven wards.
of the existing South Wairarapa District, Carterton They are:
District and Masterton District, and a new local
authority called Wairarapa District Council. 10.1. Featherston Ward
2. The constitution of the Wairarapa District Council will 10.2. Greytown Ward
require the dissolution of the following local authorities:
10.3. Martinborough Ward
2.1. South Wairarapa District Council
10.4. Carterton Ward
2.2. Carterton District Council
10.5. Masterton Ward
2.3. Masterton District Council.
10.6. Maungaraki Ward
3. Wairarapa District Council will come into existence no
earlier than 1 November 2018. 10.7. Te Kauru Ward.
4. The boundaries of the Wairarapa District shall be 11. A
map of the proposed wards is shown in Schedule A.
boundaries of the existing Masterton, Carterton and
12. Wairarapa District Council will comprise a mayor and
South Wairarapa districts as shown on the map in
12 councillors.
Schedule A.
13. The mayor will be elected at large and the councillors
Status from wards, as follows:
5. Wairarapa District Council will be a territorial authority. 13.1. one councillor elected by Featherston Ward
13.2. one councillor elected by Greytown Ward
First election
13.3. one councillor elected by Martinborough Ward
6. T he first election of Wairarapa District Council will be
held no earlier than 13 October 2018. 13.4. two councillors elected by Carterton Ward
7. T he first election of Wairarapa District Council will be 13.5. five councillors elected by Masterton Ward
held using the first-past-the-post electoral system.
13.6. one councillor elected by Maungaraki Ward
Area offices and address for service
13.7. one councillor elected by Te Kauru Ward.
8. W
airarapa District Council must retain area offices in
Martinborough, Carterton and Masterton for at least
five years from the date of its establishment.
9. T he address for service (principal public office) of
Wairarapa District Council will be located in Masterton.
The council may change the address for service
(principal public office) in the future.
28Community boards Māori standing committee
14. The following community boards will be established: 19. Wairarapa District Council must constitute and
maintain, until at least the 2022 local government
14.1. Featherston elections, a Māori standing committee.
14.2. Greytown 20. The membership of the Māori standing committee
shall comprise:
14.3. Martinborough
20.1. the mayor
14.4. Carterton
20.2. other councillors appointed by the council
14.5. Masterton.
20.3. representatives nominated by Rangitāne ō
15. T he boundaries of the community boards will be the Wairarapa and Ngāti Kahungunu ki Wairarapa.
same as for the corresponding five wards.
21. The role of the committee will be to:
16. E ach community board will have the membership set
out below: 21.1. p
rovide advice to the council on matters of
interest to Māori
16.1. F eatherston – four elected community board
members plus one ward councillor 21.2. provide advice on resource consents
16.2. G
reytown – four elected community board 21.3. m
onitor a memorandum of partnership between
members plus one ward councillor the council and iwi.
16.3. M
artinborough – four elected community board 22. The committee will be an advisory body. This does
members plus one ward councillor not prevent the council making delegations to the
committee in the future.
16.4. C
arterton – four elected community board
members plus two ward councillors 23. Details of membership and terms of reference will be
developed as part of the transition process, in
16.5. M
asterton – five elected community board consultation with Rangitāne ō Wairarapa and Ngāti
members plus two ward councillors. Kahungunu ki Wairarapa, and the Wairarapa
community.
17. The role of each community board will be to carry
out the statutory and delegated responsibilities of a 24. The Wairarapa District Council must consider
community board. additional measures to facilitate participation by
Wairarapa iwi, hapū, marae and Māori in council
18. A
terms of reference for the boards will be developed
decision-making processes.
further as part of the transition process, in consultation
with the existing councils and community boards and
the Wairarapa community.
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