Wai 2750, #6.2.2 Housing Policy and Services Kaupapa Inquiry (Wai 2750) Pre-Casebook Research Discussion Paper Keir Wotherspoon and Suzanne Woodley July 2020 Waitangi Tribunal Unit Authorship Keir Wotherspoon is responsible for the design and authorship of this discussion paper apart from Chapter 3: Housing on Māori Land, which was authored by Suzanne Woodley. Both authors are responsible for the recommendations made in the final chapters. This discussion paper has been prepared by the authors for the Chief Historian Cathy Marr at the direction of Judge Coxhead. It has been reviewed by the Chief Historian. Dr Keir Wotherspoon is a research historian with a long-standing association with the Ministry of Justice. He began his career as an intern in the former Department for Courts in the 1990s, working on the pilot programme for restorative justice in the courts system. Keir graduated with First Class Honours in History from Victoria University of Wellington. In the 2000s, he worked on several district inquiries as a contractor in the report writing and research sections of the Waitangi Tribunal Unit. Between 2008 and 2019, he worked internationally at universities in Australia and the United Kingdom, most recently lecturing and supervising at Master’s level at the Centre for Interdisciplinary Methodologies at the University of Warwick. He has a PhD in History from the University of Melbourne. He currently holds the position of Senior Researcher Analyst/Kaitātari Rangahau Matua in the Research Services Team of the Waitangi Tribunal Unit. Suzanne Woodley is a Principal Researcher Analyst/Kaitātari Rangahau Aporei in the Research Services Team of the Waitangi Tribunal Unit and has held this position since 2017. She holds a Bachelor of Arts from Canterbury University and a Bachelor of Arts with Honours in History from Victoria University of Wellington. In the 1990s, Suzanne worked for the Waitangi Tribunal Unit where she wrote a number of research reports including the first general report on Native Townships for the Tribunal’s Rangahaua Whanui National Themes series. Between 1997 and 2004 she worked at The National Archives in London as project manager and senior archivist. In 2005, Suzanne returned to treaty research, most recently authoring research reports for the Taihape Rangitikei ki Rangipo and Porirua ki Manawatū inquiries. Acknowledgements Keir and Suzanne would like to offer their grateful thanks to Researcher Analysts/ Kaitātari Rangahau Brittany Whiley, Max Nichol and David Lewis for their assistance on the pre-casebook research discussion paper. Thanks also to Senior Facilitator/Kaituitui Uiuinga Matua Hinetaapora Moko-Mead for her assistance and support. 2 Table of Contents Introduction ................................................................................................................................................. 6 Commencing the Housing Policy and Services Kaupapa Inquiry (Wai 2750) .............................. 6 Further Evidential Information for the Inquiry................................................................................. 9 Crown Statistics Programme .............................................................................................................. 10 Methodology for the Pre-Casebook Research Discussion Paper ................................................. 12 Chapter 1: Māori Home Ownership ...................................................................................................... 16 1.1 Introduction .................................................................................................................................... 16 1.2 Range of Claims Relating to Māori Home Ownership ............................................................ 16 1.3 Key Sources .................................................................................................................................... 22 1.4 Historical Context .......................................................................................................................... 24 1.5 Recent Legislative Changes and Policy Developments from 2018 ........................................ 29 1.6 Recent Housing Disparities for Māori ........................................................................................ 32 1.7 Access to Home Ownership ........................................................................................................ 34 1.8 Security of Tenure and Affordability .......................................................................................... 38 1.9 Conclusion ...................................................................................................................................... 45 Appendix: Measures of Affordability ................................................................................................ 47 Chapter 2: Māori Renting and Special Housing Needs ....................................................................... 50 2.1 Introduction .................................................................................................................................... 50 2.2 Range of Claims Relating to Māori Renting and Special Housing Needs ............................. 50 2.3 Key Sources .................................................................................................................................... 59 2.4 Historical Context .......................................................................................................................... 60 3 1840s – 1935 ..................................................................................................................................... 61 1935 – 1945 ....................................................................................................................................... 63 1945 to 1960s .................................................................................................................................... 64 1970s -1992 ....................................................................................................................................... 68 1993 to 2017 ..................................................................................................................................... 71 2.5 The Rental and Special Housing Sector System Since 2017 .................................................... 74 2.6 Housing Disparities for Māori ..................................................................................................... 76 2.7 Access to Housing Services .......................................................................................................... 79 2.8 Security of Rental Tenure for Māori ........................................................................................... 88 2.9 Rental Affordability and Severe Housing Deprivation for Māori .......................................... 95 2.10 Conclusion .................................................................................................................................... 99 Access to Data and archives? ....................................................................................................... 100 Chapter 3: Housing on Māori Land ..................................................................................................... 102 3.1 Introduction .................................................................................................................................. 102 3.2 The Claims .................................................................................................................................... 103 3.3 Key Sources .................................................................................................................................. 104 3.4 Historical Context – A Brief Overview .................................................................................... 106 Late Nineteenth and Early Twentieth century .......................................................................... 106 Lending Schemes, 1985 to 2008 .................................................................................................. 109 Partitioning and Zoning ................................................................................................................ 110 3.5 The Current System – a Brief Overview .................................................................................. 111 3.6 Evidential Coverage ..................................................................................................................... 115 4 3.6.1 Finance and the ability to borrow ...................................................................................... 116 3.6.2 Local Government planning regulations including zoning ............................................ 133 3.6.3 Rates ....................................................................................................................................... 137 3.6.4 Infrastructure ........................................................................................................................ 140 3.6.5 Security of Tenure ................................................................................................................ 143 3.7 Conclusion .................................................................................................................................... 149 Chapter 4: Proposals and Recommendations ....................................................................................