2017: Wellington Region reorganisation

Jump to the final development of the Wellington Region reorganisation application

Earlier history of reorganisation application process

On 22 May 2013, the Local Government Commission received a reorganisation application from Masterton, Carterton and South Wairarapa district councils. The application was for the union of the three Wairarapa districts and the constitution of a unitary authority for the united area.

At a meeting on 13 June 2013, the Commission decided the “affected area” for the application was the Wellington Region and that it had sufficient information to accept and assess the application. The Commission also decided to defer the required public notification of the application pending expected receipt of a further reorganisation application relating to the “affected area”.

On 21 June 2013, the Commission received a reorganisation application from the Greater Wellington Regional Council (GWRC). The application was for the constitution of a unitary authority covering the entire area of the existing Wellington Region, including the Wairarapa, but with the exception of the small area of Tararua District currently in the region which would be transferred to Manawatu-Wanganui Region. In addition to constitution of a governing body for the new council, the application was also for the establishment of eight local boards for the area.

At a meeting on 4 July 2013, the Commission agreed that the applications and publicly available information of both the GWRC and the three Wairarapa councils met the requirements of Schedule 3 of the Local Government Act 2002. The Commission therefore agreed to assess the applications, publicly notify them and invite alternative applications. 

Schedule 3 of the Local Government Act 2002 (NZ Legislation website)

The Commission also decided the affected area is the Wellington Region, including the three Wairarapa districts, and the area of Tararua District proposed to be transferred to Manawatū-Whanganui Region.

Decision document: Greater Wellington Regional Council application for reorganisation - 8 July 2013 (PDF, 45 KB)

Decision document: Wairarapa Councils application for reorganisation (PDF, 63 KB)

The Commission then went through the following required processes:

• publicly notifying the applications and calling for alternative applications
• assessing all of the alternative applications, the original applications, the status quo and an option developed by the Commission against the statutory criteria for “reasonably practicable options”
• identifying its “preferred option” against further statutory criteria which was a unitary authority for the affected area
• releasing a draft proposal based on its preferred option
• consulting on its draft proposal including receiving submissions and holding hearings, and also continuing to consult other statutory parties
• analysing the feedback received and deciding whether to proceed to a final proposal.

Formal closure of the Wellington Region reorganisation application process

The applications for local government reorganisation from the Greater Wellington Regional Council and the Wairarapa district councils in mid-2013 led to a draft proposal from the Local Government Commission for a region-wide unitary authority. In June 2015, the Commission decided not to proceed with this proposal due to lack of public support.

Strengthening the Wellington Region process

Instead of proceeding with the draft proposal, because about 40 per cent of submissions suggested alternatives to the status quo, the Commission decided to work with councils and the community to achieve some consensus on the challenges the region faced, and to collaborate in identifying possible options to address the challenges.

The Commission then met with the Wellington Region Mayoral Forum, chief executives and councils to look for opportunities to strengthen the region. Together the parties agreed to progress work in five main areas:

1. 1. Land transport
   2. Regional spatial planning
   3. Wairarapa governance (with the three Wairarapa district councils and the regional council).
   4. Water services
   5. Regional economic development

Land transport - Strengthening the Wellington Region process

The Commission has been working with Wellington councils (through the Wellington Regional Mayoral Forum) and the New Zealand Transport Agency (NZTA) to jointly look at transport in the region. 

Wellington Regional Transport: Options for Change (March 2016)

The following initial report was prepared by Castalia Strategic Advisors to start the consideration of transport options.

Report: Options for change for Wellington regional transport - Castalia Limited - March 2016 (PDF, 1.1 MB)

Wellington Transport workshops (June - July 2016)

A series of workshops was held around the region, with invited groups that have an interest in transport, during June and July 2016. 

Notes: Wellington transport workshop - 13 June 2016 (PDF, 85 KB)

Notes: Wairarapa transport workshop - 23 June 2016 (PDF, 98 KB)

Notes: Lower Hutt transport workshop - 4 July 2016 (PDF, 83 KB)

Notes: Kapiti transport workshop - 4 July 2016 (PDF, 109 KB)

Progress update – July 2016

Work on transport is still at too early a stage for the Commission to make decisions on possible future arrangements. We will continue to work with councils, including finalising the Indicative Business Case on a targeted set of five options for transport. The Commission will then set out the process and timeframe for identifying a preferred option, including public consultation.

Progress Update – December 2016

The Local Government Commission has continued working with Wellington councils and the New Zealand Transport Agency to explore whether the region’s transport system is governed and delivered in the best way to meet future challenges.

The Commission has produced a summary document of the now finalised Martin Jenkins  Indicative Business Case report, which  tests a range of options to improve the current system. The summary document and full report can be read at:

Report: Indicative business case summary - Wellington transport's future (PDF, 2.9 MB)

Report: Wellington transport indicative business case - Martin Jenkins (PDF, 2.3 MB)

Report: Treatment of council debt and assets in a reorganisation of the Wairarapa district councils - McGredy Winder - December 2016 (PDF, 1.1 MB)

The Commission and councils are now considering the next steps for this work. If there is support for change from councils, we will commission a further detailed business case and carry out public consultation.

Regional spatial planning - Strengthening the Wellington Region process

Spatial planning was one of the areas of focus that the Commission and the Wellington Mayoral Forum agreed should be investigated after the reorganisation process was restarted in June 2015.

Spatial planning was broadened out to consider integrated planning in a second report. Drawing on feedback from key stakeholders in the region and from research on comparable examples elsewhere, the second report provides a high level overview of some of the key issues facing metropolitan Wellington, and examines whether there is value in applying a more purposeful, integrated planning approach to these issues. It also identifies three framework options for integrated planning within the Wellington context, and outlines a number of challenges and opportunities involved in addressing these issues in a more integrated way.

Spatial planning opportunities and options for metropolitan Wellington (May 2016)

This report provides a high level overview of the advantages and disadvantages that a spatial plan could have for the Wellington region, and the challenges and opportunities for developing one. It also identifies and examines a range of options for preparing and implementing a Wellington metropolitan spatial plan.

Report: Spatial planning opportunities and options for metropolitan Wellington - Boffa Miskell - May 2016 (PDF, 1.2 MB)

Progress update – July 2016

Councils’ had a full range of views on the value of spatial planning in metropolitan Wellington (that is the predominantly urban area west of the Rimutaka Range).

Integrated planning for metropolitan Wellington – September 2017

Report: Integrated planning for metropolitan Wellington - Boffa Miskell - September 2017 (PDF, 2.2 MB)

Regional economic development - Strengthening the Wellington Region process

Progress update – July 2016

The Commission asked MartinJenkins to examine the economic development arrangements in the Wellington region, with a view to understanding whether there was value in considering opportunities for improvement.

Report: Local Government Economic Development Arrangements in the Wellington Region - Martin Jenkins -July 2016 (PDF, 954 KB)

The Commission supports the consultants’ recommendation that more time is required for the current economic development arrangements to bed in before any review is considered. This is primarily because the Wellington Regional Economic Development Agency has only recently been established. We consider that the councils are best placed to determine the timing and implementation of any review, although we suggest that a review take place by late 2017, if the issues raised in the consultants’ report have not been resolved by then. 

Wairarapa governance - Strengthening the Wellington Region process

The Commission conducted a ‘What do you want for the Wairarapa?’ engagement programme from 6 June to 8 July 2016 and collated feedback from the programme.

Report: Wairarapa rating assessment - PJ & Associates - December 2016 (PDF, 937 KB)

Report: Communities of interest in Wellington Region - February 2016 (PDF, 649 KB)

Report: Assessment of Wairarapa local government options - Morrison Low - June 2016 (PDF, 2.1 MB)

Presentation: Assessment of Wairarapa local government options - Morrison Low - June 2016 (PDF, 754 KB)

Report: Potential options for local government reform in the Wairarapa - June 2016 (PDF, 443 KB)

Water services - Strengthening the Wellington Region process 

Progress update – July 2016

The Commission asked Mott MacDonald to undertake a scoping study on the three waters in Wellington. The aim was to provide advice on whether there are grounds for a detailed review of the current three waters arrangements, given that Wellington Water was only relatively recently established.

Report: Analysis of Three Waters in the Wellington Region - June 2016 (PDF, 1.3 MB)

The Commission agrees with the consultants’ report that Wellington Water has delivered good gains in water services and more time is needed for the model to mature before considering any major changes. The Commission has provided the report to the councils in the Wellington region, and to Wellington Water, asking them to consider the report’s recommendations for improving water services in the region and to take appropriate action. The Commission will be monitoring the councils’ response to the water report and remains open to considering changes to water services.

Public Engagement - Strengthening the Wellington Region process

Public meetings 16, 17 and 23 February 2016

Public meetings were held in Masterton on 16 February 2016, Carterton on 17 February and Martinborough on 23 February. Participants were asked what are the best ways for the Commission to consult with the community, and what are the important issues to consider when looking at local government reform in the Wairarapa. Participants also had an opportunity to provide initial feedback on each of six potential options, including the status quo:

Feedback: Summary of public meeting discussion and feeback on potential reorganisation options - February 2016 (PDF, 281 KB)

Resources from the February 2016 public meetings

The Local Government Commission gave a short presentation at each of the three public meetings in the Wairarapa in February 2016. Here is the latest version that we presented at the South Wairarapa meeting:

Presentation: Public meeting - What is important to the Wairarapa (PDF, 1.2 MB)

Six potential options for local government reform in the Wairarapa were discussed at the public meetings in February 2016:

Posters: six potential options for local government reform in Wairarapa (PDF, 89 KB)

At a workshop in December 2015 councillors came up with a range of potential options and discussed the benefits, costs, and risks they identified to date:

Summary: Councillors' views on the potential benefits, costs, and risks of the potential options (PDF, 128 KB)

What do you want for the Wairarapa - engagement programme

What do you want for the Wairarapa was the Local Government Commission’s engagement programme to discuss options for future council organisation in the Wairarapa. This took place from 6 June to 8 July 2016.

Engagement document: What do you want for the Wairarapa? (PDF, 335 KB)

Progress update – July 2016

The Commission’s public engagement shows that the community’s preference is for a single combined Wairarapa District Council.

A summary of the public engagement in the Wairarapa can be read here:

Summary document: Community feedback on Wairarapa Local Government Arrangements - July 2016 (PDF, 614 KB)

You can also read a report on the UMR telephone survey in the Wairarapa. The purpose of the survey was to gauge public opinion on the options for changes to local government arrangements in the Wairarapa:

Report: Wairarapa telephone survey - UMR - July 2016 (PDF, 809 KB)

Progress update - Strengthening the Wellington Region

Media release: Strengthening the Wellington region - a progress update (29 July 2016)

Report: Progess update - Strengthening the Wellington Region - July 2016 (PDF, 836 KB)

Draft proposal – March 2017

In March 2017 the Local Government Commission proposed a combined district council for the Wairarapa to be called the Wairarapa District Council. This would replace the existing Masterton District Council, the Carterton District Council, and the South Wairarapa District Council.

Public notice: Draft proposal for Wairarapa District Council - Call for public submissions (15 March 2017)

Media release: Draft proposal for Wairarapa District Council - Call for submissions (15 March 2017)

Draft proposal: Combined Wairarapa District Council (PDF, 1.3 MB)

Pamphlet: Draft proposal for a combined Wairarapa District Council (PDF, 656 KB)

Report: Update to combined Wairarapa District Council costs - Morrison Low - February 2017 (PDF, 725 KB)

Summary of the key features of the draft proposal

• The Wairarapa District Council would be a territorial authority.
• The Wairarapa would remain part of the Wellington region. Greater Wellington Regional Council (GWRC) would continue to be the regional council for the Wairarapa. GWRC would continue to carry out its current roles and responsibilities.
• There would be a new Wairarapa Committee of the GWRC to strengthen Wairarapa input into regional council issues affecting the district.
• The Wairarapa District Council would have a mayor and 12 councillors. The mayor would be elected by voters from across the combined district. The councillors would be elected by voters of each of seven wards.
• There would be five community boards centred on each Wairarapa town. There would be a total of 21 elected community board members.
• There would also be a Māori Standing Committee and a Rural Standing Committee.
• The first elections could be held in October 2018 at the earliest. The new council could come into existence on 1 November 2018 at the earliest.
• The Wairarapa District Council would retain area offices in Masterton, Carterton and Martinborough for at least five years.
• It is proposed that the principal public office (the address for service) would be in Masterton. The principal public office can be changed in the future by the new council.
• The Commission proposes that the current rating arrangements remain in place until 30 June 2024.
• Any rates changes due to the proposed amalgamation would be capped at five per cent up or down per year. (This cap would not apply to rates changes as a result of normal council activities, such as changes to services or revised rating valuations.)
• Wastewater rates would be ring-fenced so people only pay for the wastewater scheme they are currently part of.
  
  

The Wairarapa District Council would replace the existing South Wairarapa, Carterton, and Masterton district councils. The existing local government arrangements would remain in the rest of the Wellington Region.

Draft proposal consultation stage - March to June 2017

Form: Feedback submissions on the draft proposal for a new Wairarapa District Council (PDF, 60 KB)

Hearings

Hearings took place on the following dates at the listed venues. A detailed schedule including submitters and their allocated times was posted prior to each hearing day.

Public information days

Public information days were held in the Wairarapa on Friday 31 March – Sunday 2 April, and Friday 7 April – Sunday 9 April. Local Government Commission staff were available to answer questions. Locations and times below:

Submissions received in response to draft proposal

Submissions on the draft proposal closed Wednesday, 3 May 2017. The Commission issued a final proposal for a new Wairarapa District Council on 19 July 2017. Based on the feedback received, the Commission proposed a new combined district council for the Wairarapa.

Decision document: Deliberating the Wellington reorganisation draft proposal - 15 March 2017 (PDF, 551 KB)

Summary: Submissions in response to the draft proposal for a Wairarapa District Council - July 2017 (PDF, 773 KB)

Report: Results of engagement on the draft proposal for Wairarapa District Council - July 2017 (PDF, 359 KB)

Report: Public perception of the draft proposal for a Wairarapa District Council - June 2017 - UMR (PDF, 257 KB)

Decision document: Deliberating the Wellington reorganisation draft proposal - 19 July 2017 (PDF, 379 KB)

Final proposal – July 2017

Following the receipt of submissions and the holding of hearings, the Local Government Commission issued a final proposal for a Wairarapa District Council in July 2017. This would have replaced the existing Masterton District Council, the Carterton District Council, and the South Wairarapa District Council. 

Public notice: Final proposal for Wairarapa District Council (19 July 2017)

Media release: Fate of final proposal in Wairarapa's hands (19 July 2017)

Final proposal: Combined Wairarapa District Council - July 2017 (PDF, 1.3 MB)

Summary of key features of the final proposal

• The Wairarapa District Council would be a territorial authority.
• Greater Wellington Regional Council (GWRC) would continue to be the regional council for the Wairarapa. GWRC would continue to carry out its current roles and responsibilities.
• There would be a new Wairarapa Committee of the GWRC to strengthen Wairarapa input into regional council issues affecting the district.
• The Wairarapa District Council would have a mayor and 12 councillors. The mayor would be elected by voters from across the combined district. The councillors would be elected by voters of each of seven wards.
• There would be five community boards centred on each Wairarapa town. There would be a total of 21 elected community board members.
• There would also be a Māori standing committee and a rural standing committee.
• The first elections would be held in October 2018 at the earliest. The new council would come into existence on 1 November 2018 at the earliest.
• The Wairarapa District Council would retain area offices in Masterton, Carterton and Martinborough for at least five years.
• It is proposed that the address for service (the principal public office) would be in Masterton.
• The Commission proposes that the current rating arrangements remain in place until 30 June 2024.
• Any rates changes due to the proposed amalgamation would be capped at five per cent up or down per year. (This cap would not apply to rates changes as a result of normal council activities, such as changes to services or revised rating valuations.)
• Wastewater rates would be ring-fenced so people only pay for the wastewater scheme they are currently part of.

Conclusion of the formal Wairarapa reorganisation process

A three-week postal ballot held during November and December 2017 asked whether people supported or opposed the proposal. The majority of votes opposed the proposal.

The result is binding and brings to an end the Local Government Commission’s process. South Wairarapa, Carterton and Masterton district councils will continue to represent the local government interests of the residents and ratepayers of their respective districts. Further information on the conduct of the poll should be addressed to: Warwick Lampp Electoral Officer – Wairarapa Reorganisation Poll PO Box 3138, Christchurch 8140 iro@electionz.com 0800 666 046

As a result, the formal Wairarapa reorganisation process was then concluded.

Guidelines: Organising a petition seeking a poll on a final reorganisation proposal (PDF, 369 KB)

Guidelines: Advertising after issue of a final reorganisation proposal (PDF, 374 KB)

Form: A petition for a poll on the final proposal can now be organised (DOCX, 247 KB)

Working with Wellington councils: Recommendations

Following the formal closure of the region-wide and Wairarapa reorganisation processes, the Local Government Commission prepared a report ‘Strengthening the Wellington Region’ in December 2017 with recommendations to Wellington’s councils to take joint action on the urban area’s transport and planning challenges.

These recommendations followed on from work carried out by the Commission and councils in 2016 on whether there were alternatives to amalgamating the region’s councils that would provide some of the same benefits.

Media release: Fresh approach needed to strengthen the Wellington region (18 December 2017)

Report to council: Recommendations on strengthening the Wellington region (PDF, 448 KB)