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Alternative Reorganisation Application

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Alternative Reorganisation Application DIRECT ACCESS, DIRECT ACCOUNTABILITY ALTERNATIVE REORGANISATION APPLICATION Response to the Local Government Commission’s request for alternative applications to the Local Government Reorganisation Application for the Wellington Region Applicant: Wellington City Council 101 Wakefield Street WELLINGTON 6140 Representative of the Applicant: Kevin Lavery Chief Executive Wellington City Council c/- Wellington City Council 101 Wakefield Street WELLINGTON 6140 June 2013 Contents 3 Introduction 3 Direct access, direct accountability 4 Executive summary 4 Proposal summary 4 Drivers of change 6 Arguments for a single-tier model 10 The proposed structure 10 Direct access, direct accountability 10 A single tier of decision-making 14 Local influence and the role of community boards 15 Māori representation 15 Council committees 16 Advisory bodies 16 Resourced councillors 16 Asset management 17 The Wairarapa 18 Assessing the single-tier model 18 The Commission’s criteria 21 Principles of good governance 23 Addressing limitations 25 Examples of successful single-tier councils 26 Community support 30 Assessing other options 30 A single council with two-tiers of decision making 33 Multiple unitary authorities 36 Conclusion ALTERNATIVE REORGANISATION APPLICATION 3 Introduction Direct access, direct accountability delivery organisation. It is built from the ground up, and represents fresh thinking. It is based In May 2013, the Local Government not on the structures of the past but on the Commission received an application from the challenges Wellington is likely to meet in future, Masterton, Carterton and South Wairarapa and the expectations and aspirations of the district councils for the establishment of a single region’s communities. Wairarapa unitary authority.1 It aims to link residents with local decision- In June 2013, the Greater Wellington makers, without barriers or distance between Regional Council lodged a local government them. It prioritises local voice and local reorganisation application with the Commission democracy in a flexible and responsive way that for the establishment of a region-wide Super- aims to genuinely address community needs. City style council with two tiers of governance. It will deliver more effective leadership, more This meant there were now two applications efficient and effective services, greater resilience, affecting the current Wellington region. and the ability to meet future challenges head- The Commission subsequently sought on. Of the options available, it most effectively responses from affected local authorities in the achieves the purposes of local government as rest of the Wellington region. This is Wellington set out in the Local Government Act 2002. We City Council’s (WCC’s) response. It supports look forward to the Commission’s consideration. the Wairarapa proposal, and sets out its own proposal for a single unitary authority for the Wellington metropolitan region. This is a complementary approach to the Wairarapa’s This application has also been developed proposal because both reside within the current in anticipation that residents throughout Wellington region boundary. the Wellington region will be invited Wellington has a once-in-a-generation to take part in a binding referendum opportunity to examine its local government on whether reorganisation should be structures – to ask whether local government undertaken or not. can do better for the people of Wellington. Can we help the region to reach its potential? Can we develop a model that meets residents’ expectations, not only now, but well into the future? In considering these questions, it is essential that we learn from others, and develop solutions that are forward-looking. Our proposal is for a simple, accessible democratic governance arrangement, 1 South Wairarapa, Carterton and Masterton District Councils submitted a reorganisation application to the local government commission on 17 underpinned by a high-quality customer service May 2013 4 ALTERNATIVE REORGANISATION APPLICATION Executive summary Proposal summary Drivers of change This proposal is for a single council for the whole A new focus on efficiency and effectiveness Wellington metropolitan area, with strengthened in local government law relationships between councilors and local The 2012 amendments to the Local areas, enhanced checks and balances to Government Act 2002 focus local government strengthen transparency and accountability, on the provision of good-quality local and more flexible and effective approaches to infrastructure and public services in a cost- representation of local interests. effective manner. The Act defines “good-quality” Specifically, the proposal includes: as meaning efficient, effective, and appropriate to present and future circumstances. These • Replacement of the five existing Wellington changes require a sharper focus on the delivery metropolitan councils and the Wellington of core local government services that are value Regional Council with a single unitary for money – all of which are potentially delivered Council made up of a Mayor and 29 by changes to local government structures. councillors elected from small local single- member wards. The 2012 amendments also made changes to the Act’s local government reorganisation • Establishment of semi-autonomous provisions, with the overarching purpose of commissioners to provide independent improving efficiency and effectiveness. Under the oversight of Council activities (including amended Act, any person who can demonstrate administrative matters and management of community support can apply to the Local the environment). Government Commission asking it to investigate • Strengthened support for councillors so changes to local government structures. they can more effectively represent their local communities. • Flexible and effective approaches to local representation, which may include community boards and other mechanisms depending on community preferences. This option proposes changes to decision- making structures; it will enable improvements to the services that are delivered; the ways in which residents engage with their council based on what they need and where they need it. ALTERNATIVE REORGANISATION APPLICATION 5 Establishment of a single Auckland Council Communities considering local government reorganisation The establishment of a single Auckland Council in 2009 has caused other parts of New Zealand Throughout New Zealand, a number of reviews to reconsider their local government structures. are under way with respect to local government The single Auckland Council was established structures. through amalgamation of seven territorial In Wellington, this discussion has been authorities and a regional council into a single underway for some time. Since 2009, various unitary authority. It is responsible for the delivery reviews have been undertaken to identify of services to 1.4 million people, its budget whether there is a better way of doing things reaches in to the billions of dollars, and it is including a Mayoral Forum work programme. In responsible for some of the most significant 2010, the region’s local authorities began work decision-making at the local government level on a range of shared services approaches. New Zealand has ever seen. Since that time, discussion has continued Policy has changed among Wellington communities and community leaders about whether current local government In March 2012, the Government released Better structures were impeding progress towards Local Government (BLG) – its sister policy to long-term objectives. The various reviews and the Better Public Services framework. A two- other initiatives have demonstrated that, without year programme of reform with 10 action points structural change, progress can be fraught with sets out new expectations about how local difficulty because of sub-regional viewpoints. government will work. BLG requires greater emphasis on value for Wellington’s communities are interested in money, greater financial transparency and change accountability, and a more regional focus. Residents in Wellington city and throughout the As part of the programme, taskforces were Wellington region have been asked to give their established on local government efficiency and views about whether change is necessary and infrastructure provision, also with an emphasis what kind of change might be the catalyst for on efficiency and effectiveness. our region to perform better. More than half of Wellington city residents believe that change should be made (WCC Survey) and more than half of submitters from the Wellington region believe that change should be made (Working Party Consultation). 6 ALTERNATIVE REORGANISATION APPLICATION Arguments for a single-tier model they have elected them from their community. Councillors will be the representatives of the The single-tier approach proposed in this people who live in their ward, and they will application: provide a local voice at the decision-making table. • is the option that can most effectively Being able to influence decision-makers directly achieve the purposes of local government as is already part of our culture. When we write to set out in the Local Government Act 2002 the Prime Minister, we get a reply; when we ask • is the option that most effectively meets the a question of our leaders, we get an answer. Commission’s criteria for consideration of Each of Wellington’s local authorities already local government reorganisation offers direct access to decision-makers at a local level. • complies with principles
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