Royal Commission on Auckland's Governance: Waitakere Submission Part One

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Submission to theRoyal Commissionon Auckland Governance

WAITAKERE CITY COUNCIL

April 2008

PART ONE


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WAITAKERE CITY COUNCIL'S ECO-CITY APPROACH

Its sustainable approach is based in Agenda 21 and includes:

Taking a holistic approach to sustainable development, including recognising the

interconnections between people, the environment and the economy

Having a long term perspective particularly considering the impacts of our actions on

future generations

Taking a precautionary approach. It is better to heed on the careful side if we are not sureof the consequences of our actions

Encouraging community-led initiatives in the areas of economic and social development,

environmental protections, and community involvement in decision-making, and

Providing for partnerships both between and within different sectors of society andNations.

Agenda 21 recommends that, as the level of government closest to the community, local

authorities should develop their own local Agenda 21 action plan. In 1993,Waitakere becamethe first New Zealand City to adopt Agenda 21.


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WAITAKERECITY COUN CIL SUBMISSION TO THE ROYAL COMMISSION ON AUCKLAND GOVERNANCE 1

CONTENTS

PREAMBLE 3

GLOSSARY 5

1 EXECUTIVE SUMMARY 7

2 CONTEXT: THE IMPORTANCE OF SUSTAINABILITY 11

3 STRENGTHENING REGIONAL GOVERNANCE 15

4 STRENGTHENING LOCAL GOVERNANCE 37

5 STRENGTHENING THE RELATIONSHIP WITH CENTRAL GOVERNMENT 53

6 FUNDING 59

CONCLUSION 64

PART TWO APPENDICES - ATTACHED DOCUMENT


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2 WAITAKERECITY COUN CIL SUBMISSION TO THE ROYAL COMMISSION ON AUCKLAND GOVERNANCE

PREAMBLE


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PREAMBLE

We the Waitakere City Council submit this report to the Royal Commission on Auckland Governance under the terms approved

by Order in Council dated 30 October 2007.

Governance by definition, and the moral authority implied, must provide sound policies as well as fair and efficient methods of

essential functional delivery to the people it serves. Waitakere City Council has prepared this submission with a clear commitment

to portray what is best for the people of Waitakere City within the context of what is best for the region.

We acknowledge the contributions of our staff and the feedback received in consultation with our diverse communities. We in

Waitakere City celebrate and respect our people, our strong sense of local democracy, our commitment to the environment

and a sustainable future.

The following recommendations capture these values and the substance of our position.

MAYOR BOB HARVEY

DEPUTY MAYOR PENNY HULSE

COUNCILLOR BRENDA BRADY

COUNCILLOR JANET CLEWS

COUNCILLOR ROSS CLOW

COUNCILLOR LINDA COOPER

COUNCILLOR ASSID CORBAN

COUNCILLOR ROSS DALLOW

COUNCILLOR WARREN FLAUNTY

COUNCILLOR MICHAEL JOLLEY

COUNCILLOR JUDY LAWLEY

COUNCILLOR PAUL MITCHELL

COUNCILLOR VANESSA NEESON

NOTE: COUNCILLOR PETER CHAN IS NOT A SIGNATORY TO THIS REPORT AS HE IS CURRENTLY OVERSEAS.

COUNCILLOR DEREK BATTERSBY


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PREAMBLEGLOSSARY


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GLOSSARY

Auckland region and Regional refers to the greater Auckland region that is currently defined by the boundaries of the Auckland

Regional Council

Local refers to sub-regional localities with the Auckland region, currently defined by Territorial Authorities.

Government refers to the formal institutions of the state and decision-making within specific administrative and legal

frameworks.

Governance involves government plus other relevant and affected public, private and not-for-profit sector agencies to achieve

desired outcomes. A governance perspective encourages collaboration between the public, private and non-profit sectors to

achieve mutual goals.


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EXECUTIVE SUMMARY


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SECTIONONE

EXECUTIVESUMMARY

1. EXECUTIVE SUMMARY

STRENGTHENING AUCKLANDS GOVERNANCE

AND PERFORMANCE

The Royal Commission on Auckland Governance has provided Waitakere City Council with a timely opportunity to

review governance performance in the wider Auckland Region. Waitakere City Council has measured the present

situation against the 100-year timeframe and the sustainability test of the Commissions Terms of Reference. We find

that while there is much in the present record to be proud of, and many elements of governance are working well, there

is a compelling case for change. The Auckland region needs to strengthen its governance and investment to become

internationally renowned as a sustainable and competitive region.

WAITAKERE CITY A SUCCESS STORY

Waitakere City has evolved out of a combination of boroughs and residential dormitory suburbs and in population terms

it is the fifth largest Territorial Authority in New Zealand. It is larger than Wellington City with more than 186,000 people.

Waitakere City represents 14.1% of the population in the Auckland region and 4.6% of the national population.

Over the past nineteen years Waitakere has been transformed from an unsustainable urban edge city into an economically,

socially and administratively strong and sustainable city.

AGENDA FOR CHANGE

In this submission Waitakere City Council presents an Agenda for Change to Aucklands governance. The Auckland

region can be sustainable and resilient and be internationally competitive as well.


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EXECUTIVE SUMMARYContinued

For this to happen two spheres of strong local government are required. This means retaining and strengthening

Territorial Authorities and their relationships with their communities. Waitakere City Council proposes establishing a new

and strengthened Regional Entity that works closely with four cities, one of which will be Waitakere. The Waitakere

City Council recommends that there should be changes to the boundary of Waitakere to incorporate the Avondale

Ward of Auckland City and the Western Ward of Rodney District. This will strengthen the city-region by better reflecting

communities of interest, achieving sustainable development and cost-effective governance over time.

The strengthened new Regional Entity will have the key purposes of setting the long-term vision, agenda and priorities

for the Auckland region in a Regional Plan, and binding all the parties whether they are the Regional Entitys delivery

arms, central government and/or Territorial Authorities. It will have enhanced representation arrangements that reflect

both region-wide and local mandates.

Waitakere City Council proposes that half of the representatives on the Regional Entity will be elected (based on

Territorial Authority boundary areas) and half will be appointed by the regions Territorial Authorities (two representatives

from each of the cities), with sixteen voting representatives in total. The Regional Entity will follow a cabinet model of

decision-making and leadership through the exercise of collaborative, collective responsibility for decision-making.

This combination of regional and Territorial Authority representation will facilitate joint action through clarity of mandate,

representation, and clear allocation and alignment of functions based on the principle of subsidiarity (Maastricht Treaty

on European Union, 1991).

ONE VOICE AND COMBINED EFFORT

These changes form an arrow-head aimed at improving interaction between the region (as a whole) and central

government. As the Auckland region grows over the next few decades to be 50% or more of the nations population

and the New Zealand economy, regional leadership and engagement with central government will become crucial. It

is proposed that central government is represented on the Regional Entity by two (non-voting) members and that the

Regional Entity has the lead voice and coordinates responses to central government policy.

It is imperative that Ministers engage with regionally elected representatives on priorities for the Auckland region. There

are limited resources available and the combined effort and funding of both central and local government could be

much better targeted to achieve results for the Auckland region and for the nation. Therefore, a partnership agreement

setting out the expectations and agreements between the Auckland region and central government should be set out

in legislation.


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IMPROVED INFRASTRUCTURE

The allocation of functions between local, regional and central government requires much greater clarity. Key areas of concern

are transport, water catchment management, urban regeneration, skills development and economic development.

The Regional Entity will be strengthened by being allocated functions and responsibilities from:

central government, particularly the areas of transport and economic development

Territorial Authorities, particularly in the areas of strategy and planning for the three waters, wholesale delivery of water and

wastewater and the planning and associated funding for arterial roads.

Regional assets will be owned by the Regional Entity, and be governed by its regional policy committees. The transfer of

functions to the Regional Entity is also contingent on both Territorial Authorities and central government having representation

and influence on the Regional Entity.

Regional government institutions in the Auckland region do not have thefinancial capacity to manage the transformation essential

for the region to perform in a globally competitive manner, befitting its place in New Zealand. Changes are proposed to address

these issues, notably the investment in long-term return, intergenerational scale infrastructure and development projects.

A REFORM PACKAGE FOR THE 21ST CENTURY

This Agenda for Change is an integrated package of reforms, strengthening four cities to have equal representative weight

and establishing a new and stronger Regional Entity. It builds on notable collaborative region-wide planning processes and

community led initiatives and has the potential to better fit the region for the tasks for a 21st century city-region.

SECTIONONE

EXEC

UTIVESUMMARY

SECTION ONE EXECUTIVE SUMMARYContinued


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CONTEXTTHE IMPORTANCE OF SUSTAINABILITY Continued


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SECTION TWO CONTEXT Continued

SECTIONTWO

CONTEXT

2. CONTEXTTHE IMPORTANCE OF SUSTAINABILITY

1 United Nations Conference on Environment, The Rio Declaration on Environment and Development, (Rio de J aneiro,Brazil: United Nations, 1992)

2 Agenda 21 is the outcome of the United Nations Conference on Environment and Development 3-14 June 1992

2.1 BACKGROUND

PEOPLE AND PLACES

The Auckland region is faced with the prospect of repositioning itself in a highly competitive global economy and becoming a

sustainable city-region. This is made doubly challenging because not only must it draft an astute economic growth portfolio but

it must also continue to take issues of environmental sustainability and social cohesion seriously. These will be critical factors

in its long-term success. Whilst the Auckland city-region must compete on an international stage it must also discover its own

original and authentic voice and solutions. (see Appendix 2: Waitakere in the New Zealand and Global Context)

THE AUCKLAND SUSTAINABILITY FRAMEWORK

The Auckland Sustainability Framework (ASF) is a coherent set of vision, goals and shifts required for the improved sustainability

of the Auckland region. It has been developed in conjunction with central government and it has been mandated by all the

local authorities in Auckland (2007). The ASF is currently being used to identify priorities for the first version of the One Plan

for the Auckland region.

Waitakere City Council with its eco-city vision has been an advocate for the Auckland Sustainability Framework and strongly

submits that the Royal Commission builds on this platform and draws upon sustainability principles in developing its

recommendations.

PEOPLE AND SUSTAINABILITY

People are at the centre of concerns for sustainable development. They are entitled to a healthy and productive life in harmony

with nature1. Consequently regional and local governance must be about people, and most importantly about their welfare2.

Put simply people are our greatest resource. Like many metropolitan cities, Waitakeres population is diverse and will be

increasingly so in the future. The places where people live, work and play should reflect this diversity.

PRINCIPLES

Waitakere City Council submits that principled decision-making should be an imperative for the region and indeed

for this, the most important decision of the regions future: the governance of the Auckland region. In addition to the


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CONTEXTTHE IMPORTANCE OF SUSTAINABILITY Continued

principles in the Royal Commissions discussion document, the Council has also been guided by the principle of subsidiarity

(Maastricht Treaty on European Union, 1991) which establishes that wherever possible, decisions should be taken as closely

as possible to the citizens. Waitakere City Council has referred to this principle in developing this submission and examining

the options for improved functional delivery. Subsidiarity along with sustainability are, the Council believes, core principles that

need to be taken into account.

2.2 STRENGTHENED LOCAL GOVERNANCE:

WAITAKERE VISION OF SUSTAINABLE DEVELOPMENT

The people of Waitakere City have a strong connection to their city, their land, the Waitakere Ranges and coastal areas and

it is often said that west-Aucklanders are the most passionate of all of the regions residents. Waitakere has long been host to

communities of people who challenge the status quo. The West is Aucklands Struggle Country3. This concept has not been

well discussed until recent urban sociologists began to examine the many tribes of Auckland. The identity of West (and South)

Auckland is also thought to represent vibrancy and an escape from bourgeois conventions 4.

The physical beauty, wilderness and indeed wildness of Waitakere are difficult to ignore. Since its formation in 1989 Waitakere

City Council has maintained a consistent direction towards the sustainable development of its resources. It has established a

strong independent identity grounded in this approach to the community and to place-shaping.

PARTNERSHIPS APPROACH

In Waitakere City, collaborative action is based on a long tradition of deep community involvement, interagency collaboration

and Council facilitation. Leadership from within communities strengthens and supports active local democracy. Through these

processes, a number of lessons have been learnt, and a new language and processes of collaboration has been developed. This

is the Waitakere Way5. It is a central component of building resilience in this City, and as such it is central to any improvement

in sustainability.

3 Warwick Roger, cited in Aucklands Wild West in Almighty Auckland?. Ed Ian Carter et al (Palmerston North, Dunmore Press, 2004), 1494 I CARTER AND OTHERS (EDS),Aucklands Wild West: Almighty Auckland ( Palmerston North: Dunmore Press, 2004)5 David Craig, Building Better Contexts for Partnership and Sustainable Local Collaboration: A review of Core Issues, with Lessons from the Waitakere

WaySocial Policy Journal of New Zealand 23 (December 2004): 45-64.

2.3 AN AGENDA FOR CHANGE

Waitakere City Council welcomes the opportunity to contribute to change in recognition that there is a good deal of room for

improvement. Making improvements in governance begins by recognising the importance of understanding the metropolitan

region as a set of systems embedded within systems. Rapidly urbanising metropolitan areas such as the Auckland region call

for complex systems integration. This requires multiple parties to work together and use effective tools at the appropriate levels.

Stronger governance is required at both the regional and the local level to balance and deliver on these demands.

A key premise of the Councils submission is that planning for the regions future and managing the regions systems is a

regional scale activity. The region requires a new entity that focuses on the big picture regionally and globally, is empowered,

and has the right competencies.


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SECTION TWO CONTEXT Continued

SECTIONTWO

CONTEXT

Territorial Authorities have a critical part to play in local democracy, managing the everyday needs of the region, identifying local

desires and expression through place-shaping, whether this is through artistic or cultural events, local industry development

or conservation of local streams. The relationship with central government is more important than ever and there is a desire to

formalise, strengthen and enhance this relationship so that central and local governments combined effort makes much better

use of limited resources for the regions success.

Waitakere City Councils Agenda for Change is an integrated package which has four components:

STRENGTHENING REGIONAL GOVERNANCE: A NEW REGIONAL ENTITY

The Regional Entity has the purpose of setting the long-term vision, agenda and priorities for the Regional Plan and binding allthe parties whether they are the Regional Entitys delivery arms, central government and Territorial Authorities to implementing

the plan in a timely fashion. It has the following features:

It is a new Regional Entity that is representative of and accountable to both the wider region and Territorial Authorities

It will speak for the region and has the lead relationship with central government on regional matters

It will have regionally elected representatives (based on Territorial Authority boundary areas) and representatives appointed

by the regions Territorial Authorities to mandate decisions and action at both the regional and local levels

It will operate on the basis of collective responsibility meaning that once decisions are made by the Regional Entity, they

are binding on all parties

It will have policy committees, and use advisory boards and statutory fora to ensure appropriate expertise is available to the

policy committees.

COST EFFECTIVE CHANGE AT REGIONAL AND LOCAL SPHERES

This strengthened Regional Entity will have the ability to both streamline decision-making and investment in the region and to

bring local knowledge and opportunities to the process.

STRENGTHENING LOCAL GOVERNANCE: FOUR CITIES

The region will consist of four cities, one of which is Waitakere City. A four-cities model provides for sufficient scale to take

effective action in sustainable development, whilst allowing for local expression and identity.

Strengthened Territorial Authorities have the scale to achieve implementation of regionally agreed decisions. Waitakere City

Council proposes two changes to its boundaries to strengthen its abilities and its links to current communities of interest. This

proposal provides for greater equity of size and interests between Territorial Authorities.

STRENGTHENING CENTRAL GOVERNMENT RELATIONSHIP

In order for the Auckland region to achieve a step-up in performance, it requires a partnership agreement with central

government to be established in legislation and formal meetings with Ministers. It will have non-voting membership on the

new Regional Entity but a statutory forum will be established where central government can engage with the Regional Entity

and make commitments regarding the region.

Waitakere City Council presents to the Royal Commission an appraisal of what is required for the Auckland region

to move forward into the 21st century with confidence. Waitakere City Councils submission is an Agenda for

Change.


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STRENGTHENING REGIONAL GOVERNANCEContinuedSTRENGTHENING REGIONAL GOVERNANCE


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SECTION THREE STRENGTHENING REGIONAL GOVERNANCE Continued

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STRENGTHENINGREGIONALGOVERNANCE

3. STRENGTHENING REGIONAL GOVERNANCE

3.1 CONTEXT

Decision-making in the Auckland region currently comprises two spheres of government: the Auckland Regional Council

and the Territorial Authorities. The two spheres are not hierarchical. They are independent of each other and have their own

funding sources. They have the same overall purpose, with no clear demarcation of responsibilities (except with regard to

some resource management functions).

Consequently, current regional governance is a product of the Regional Council and the Territorial Authorities working both

cooperatively and independently through a wide variety of complex arrangements.

While there has been progress, many problems still exist with the current arrangements, including:

Fragmented prioritisation and planning for the region

Multiple voices claiming various mandates to speak for the region

Decision-making not binding the parties, leading to rounds of re-litigation

Insufficient funding available to achieve key regional projects

The current disconnects between Auckland Regional Transport Authority, Auckland Regional Holdings, and the ARC are

the result.

3.2 PROPOSAL: STRUCTURES

In order to overcome these problems, Waitakere City Council submits that a new Regional Entity be established.

The primary purpose of the Regional Entity will be to set the long-term vision, the agenda for sustainable development, and

the priorities for the region. It must do this in a manner that binds all parties, whether they are the providers of


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STRENGTHENING REGIONAL GOVERNANCEContinued

REGIONAL ENTITY

POLICY COMMITTEES

DELIVERY AGENCIES AND ADVISORY BODIES

services on behalf of the Regional Entity, central government or the Territorial Authorities. Implementation of the agenda

must be set in a timely fashion. The Regional Entity must also engage with and ensure the participation of stakeholders and

communities. This response addresses the challenges of horizontal collaboration at the regional level6.

The future governance of the Auckland region must build on the agreements already reached over the Auckland Sustainability

Framework and the One Plan. Clark (2006) states that often much can be achieved from driving more impact out of existing

arrangements through common agenda setting and commitments to them.7 The Regional Entity must be responsible through

statute for guiding the future development of these plans and their implementation at all levels within the region. Waitakere

City Council proposes a different body than that of the current Regional Council. Regional governance must be stronger at

both regional and local levels, and the Regional Entity more representative of, and accountable to, its constituents in the widerregion, and work well with Territorial Authorities, central government, and other stakeholders.

A stronger Regional Entity will have three tiers: the Regional Entity itself, a structure of policy committees and subcommittees,

and a delivery structure:

Figure 1: Three Tiers of Governance

The nextfigure illustrates that all parts of government come together as participants in the Regional Entity to decide policy, and

they each have a part in implementing it. For example the Regional Entity will set direction for economic development strategy

and a Territorial Authority may have a role in implementing it in a particular town centre.

Figure 2: Responsibilities

CENTRAL GOVERNMENT

DELIVERY

REGIONAL ENTITY

DELIVERY

TERRITORIAL

AUTHORITIES DELIVERY

POLICY

6 Organisation for Economic Co-operation and Development, Competitive Cities in the Global Ecomomy: Horizontal Syntheses Report (Paris:Organiasation for the Economic Co-operation and Development. 2006)

7 Greg Clarke, Strengthening Aucklands Regional Governance: A Commentary on the Draft Discussion Paper on the Governance of the AucklandRegion. (London: City Regions Case Studies, 2006), p.7


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3.3 PROPOSAL: REPRESENTATION

Waitakere City Council proposes that the Regional Entity have enhanced representation arrangements that reflect both region-

wide and local mandates. Half of the representatives will be elected from regional electorates (based on Territorial Authority

boundary areas) and half will be appointed by the regions Territorial Authorities.

The Regional Entity will follow a cabinet model of decision-making and leadership through the exercise of collaborative, collective

responsibility for decision-making. The regional and Territorial Authority representation will facilitate joint action through clarity

of mandate, representation, and clear allocation and alignment of functions (subsidiarity).

The Regional Entity must be established by statute with provisions setting out its purpose, character and key relationships. It

must have a chairman appointed by the members. Central government will be represented on the Regional Entity, with those

representatives having participatory, but non-voting roles.

A requirement must be established in statute for Regional Entity members and Government Ministers to meet at least three

times per year.

At the third tier level, a wide range of representation processes and mechanisms must be developed for the Regional Entity

to engage with communities, organisations, interest groups and individuals who have a stake in regional governance. These

participants will not have voting rights. In Waitakere Citys case, these groups include the Waitakere Pacific Board and Waitakere

Ethnic Board.

RATIONALE

Our proposal is to bring active local democracy into the decisions made for the region. The objective is for governance to be

strong regionally and strong in both its upward reach to central government and in its downward reach to more empowered

Territorial Authorities.

The cabinet-type model means the Regional Entity would operate with cabinet-like protocols. There would be collective

responsibility and collective accountability for decisions, based on the principle of representation and participation. This

means that emphasis is placed on the policy committees and their sub-committees as the engine rooms of investigation

and policy development.


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This model best unifies regional interests, intersects easily with central government, removes unnecessary functional

overlap between local and regional governance and can easily include representation from Maori, both Mana Whenua and

Taurahere. (see below)

The effective functioning of this model places high demands on the processes and integrity of information sharing between

policy committee members and their own Territorial Authority colleagues. However these demands will also mean that

unnecessary transaction costs incurred by the current arrangements can be avoided.

The quality of the relationship between the Regional Entity and central government is crucial to the success of the governancearrangements Waitakere City Council is recommending. Therefore in order to ensure strong relationships with central

government, one of the Regional Entitys key roles would be to meet at least three times per year with Cabinet Ministers in

a statutory forum established to make central/regional governance decisions.

3.4 PROPOSAL: STRENGTHENING MAORI REPRESENTATION

Waitakere City Council strongly submits that the Regional Entity adopt an approach to Maori representation based on the

proven experience in Waitakere with Te Taumata Runanga. Specifically, the Council proposes that the Regional Entity establish

a Regional Te Taumata Runanga based on Waitakeres Te Taumata Runanga model, representing all Maori in the region

including Mana Whenua and Taurahere.

In addition, each of the four Territorial Authorities in the region must have a Standing Committee or similar mechanism based

on the Waitakere Te Taumata Runanga model, representing all Maori in their area at the Territorial Authority level. This must

be established by amendments to appropriate legislation.

Waitakere City Council proposes that each of the four Territorial Authorities shall appoint two members of their Te Taumata

Runanga to the Regional Taumata giving the Regional Taumata eight members. The Regional Entity may, as it sees fit, appoint

members of the Regional Taumata to policy committees of the Regional Entity.

Waitakere City Council draws the Royal Commissions attention to its Resolution, passed unanimously, concerning Te Taumata

Runangas submission:

Agree that Te Taumata Runanga should present its own submission to the Royal Commission on Auckland Governance in

order that the views of Maori in Waitakere are represented, not withstanding that those views may differ from current Council

policy.


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RATIONALE

Section 81 of the Local Government Act 2002 requires Local Authorities to establish processes for the involvement of Maori

in their decision-making, such as by using Standing Committees like Te Taumata Runanga. The Regional Entity must meet

these obligations and it is proposed that Waitakeres Te Taumata Runanga is the most appropriate model.

The Council acknowledges the role that its Standing Committee, Te Taumata Runanga, plays in policy development as part

of the essential identity of Waitakere the City, the Council and the community.

Maori make a unique contribution to Auckland. Waitakere City Council believes it is in the long term interests of everyone in

the region that this contribution is acknowledged and built on through this reform of regional governance. As New Zealandmoves into a post-Treaty Settlement phase many Maori organisations will become powerful players in the economy and

it will be important for the Regional Entity to have the wherewithal in its structures and processes to engage appropriately

with them.

TE TAUMATA RUNANGA MODEL

Waitakeres Te Taumata Runanga model comprises seven elements:

Representatives drawn from Mana Whenua for the rohe of the Territorial Authority

The status of a Standing Committee with powers and responsibilities as detailed in the Councils Committees and Community

Boards Delegations Register

Representation from Council members elected at large by the general electorate

Members represent a wide range of groups and organisations covering the Interests of kaumatua, kuia, wahine, tane,

rangatahi in the rohe of the Territorial Authority

Representation from the Urban Maori Authority Te Whanau o Waipareira Trust and Te Roopu Kaumatua o Waipareira

All members have nominated alternates

Taumata size is set by the Council in consultation with the communities from which members are recruited and by which

they are mandated.


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3.5 PROPOSAL: STRENGTHENING REGIONAL LEADERSHIP

Waitakere City Council proposes that the Regional Entity elect a Chairman from the membership of the Regional Entity. This

means that either a directly elected member or member elected from a Territorial Authority would be eligible for the position.

The Regional Chairman would be the spokesperson for the regional position on agreed regional issues.

RATIONALE

The Regional Entity has a complex task to achieve excellent metropolitan governance. Much of it requires facilitating and

coordinating resources at least partly in the control of others. This is in sharp contrast to some international cities such as

London where a leader is needed to push through a narrower range of central government funded projects.

The leadership qualities for this position will more likely be found in a person elected from within who is likely tofind a higher

level of acceptance amongst constituent members, resulting in an empowered, experienced and capable regional leader.

This is the way New Zealand chooses its Prime Ministers.

This leadership proposal reduces the risk of a single issue candidate or simply a high profile person being elected to what

is a critical position for regional governance.


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3.6 PROPOSAL: NUMBER OF ELECTED MEMBERS

Waitakere City Council proposes that the number of elected representatives at the regional level be sixteen. There should be

two representatives from each of the four Territorial Authorities on the Regional Entity and an equal number of directly elected

regional councillors. All members are to be elected on the basis of local government boundaries.

RATIONALE

Currently, Auckland has the lowest level of representation per 10,000 residents of all New Zealand regional authorities (see

Table 1). The proposed arrangement goes a small way to addressing the workload of councillors at a regional level.

The Regional Entity has a much wider scope of responsibilities than a typical regional council. These roles will require the full

time attention of elected members, half of whom will also have some Territorial Authority elected member responsibilities.

Table 1: Number of elected representatives (councillors and mayors) per 10,000 residents for selectedregional authorities of New Zealand.

REGION Total number ofelected reps per 10,000residents

Population Local authorityelectedrepresentatives

Regional authority electedrepresentatives

Auckland 0.86 1,303,068 99 13

Canterbury 2.08 521,862 95 14

Wellington 2.38 448,914 94 13

Northland 2.76 148,437 33 8

Bay of Plenty 2.96 257,544 63 13

Waikato 3.35 382,779 116 12

Hawke's Bay 3.52 147,804 43 9

Otago 3.73 193,863 61 11

Manawatu-Wanganui 4.24 222,351 82 12

Taranaki 4.78 104,178 39 11

Southland 5.50 90,843 38 12

West Coast 12.11 31,371 31 7


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3.7 PROPOSAL: LENGTH OF ELECTORAL TERM

The electoral term of the Regional Entity and the Territorial Authorities must be four years.

RATIONALE

To step up to world-class city status, the region needs to deliver a number of long term, large scale and expensive projects.

Achieving this in a sustainable way is the Regional Entitys core mission. More stability and continuity in political representation

would be a significant factor in overall success.

3.8 PROPOSAL: FUNCTIONS OF REGIONAL ENTITY

The Regional Entity will be responsible for a wide range of functions. In deciding where different responsibilities should lie, the

principle of subsidiarity has been applied. The analysis concludes that while some functions will be transferred to the regional

level, Territorial Authorities will have subsidiary responsibility (at an operational level) for some of these same functions as they

relate to their own territories.

Waitakere City Council has also consistently applied a clear policy/provider split in allocating functions within and beyond the

Regional Entity to ensure that it attends to the big picture and does not get drawn into detailed operations.

The Regional Entitys roles must include:

1. Strategic planning and integrating the four well-beings in the form of a Regional Plan

2. The face the region presents to central government being the lead in ensuring a coherent single voice for the region

3. Strategic land use and infrastructure planning:

establishing the detailed implementation mechanisms of the quality compact urban form agreements alreadyestablished

preventing uncontrolled urban sprawl negotiating and managing binding metropolitan urban limits

4. Strategic intra-regional infrastructure transport, water, waste, IT, tertiary education, health, including integration spanning

from local to national levels

5. Regional economic development the face Auckland presents outward to the world marketing, tourism, major events and

industry sector facilitation; integrated long term metropolitan provision of strategically crucial services such as ports

6. Negotiating governance arrangements for regional amenities


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7. Maintaining working relationships with neighbouring regions over such functions as regional economic development,

biodiversity and bio-security

8. Coordination of social and cultural strategies which have regional implications

9. Addressing the regional interests of Maori, both Mana Whenua and Taurahere

10. Coordinating emergency management at the regional level

11. The Regional Entity should have a treasury management function in undertaking policy development.

Waitakere City Council proposes that the Regional Entity establish a number of policy committees tasked to produce and

coordinate strategy for these roles and functions. These policy committees would consult, research, develop and advise the

Regional Entity on strategy and priorities. The Regional Entity would prioritise directions and actions across all the strategies

to produce a Regional Plan that would be binding on local government parties.

Policy negotiated at the regional level e.g. water conservation and demand reduction, would be binding on Territorial Authorities

and other entities charged with delivery, once adopted by the Regional Entity.

The Regional Entity will be the owner of a number of infrastructure providers it needs to focus on the big picture and ensure

that they deliver in a timely and sustainable way.

The Regional Entity also needs to coordinate a new level of shared service planning across the region.

RATIONALE

While there is no single formula for entering the world-class stakes, some of the must haves are generally well understood.

These include fully functional infrastructure, a diverse and vibrant social setting, a sense of uniqueness and cultural

distinctiveness, and secure supply of essential resources e.g. power, broadband.

All of the regionally important functions are currently being handled by a wide range of agencies spanning different levels

of governance. But many of the current structures and processes extract high transaction costs and Territorial Authorities

present less than coherent messages about regional needs to central government.

There are also some new, challenging and rapidly changing areas which demand new levels of innovation and cooperation

if the region is to become a world class-city. These include for example:

Responses to climate change for example, standards for measuring carbon footprint

Information technology such as broadband options

Bio-security for example, pests and protecting biodiversity.


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In some cases these relationships are so essential to the success of metropolitan governance they should be secured in

legislation. The two most obvious instances of this are the Regional Entitys relationship with the Territorial Authorities and

with central government.

Within the metropolitan region, cooperation over shared services between Territorial Authorities has long been an aspiration

frustrated by inadequate governance. The Regional Entity has a role to facilitate the development of shared services. This

is addressed further in Section 4: Strengthening Local Governance.

STRENGTHENING THE RELATIONSHIP WITH CENTRAL GOVERNMENT

The Regional Entity must work effectively with central government and to do so, the relationship between regional and

central government needs to be formalised. Details of this proposal are in Section 5: Strengthened Realationship with Central

Government.

REGIONAL PLANNING

As steward of the Auckland Sustainability Framework, the Regional Entity should have responsibility for producing an integrated

Regional Plan covering the region and all its functional responsibilities. The Regional Plan would be binding on the local

government members and would be endorsed by central government. The Regional P lan would build on work underway withthe One Plan.

The Regional Entity must ensure each part of the Regional Plan:

Is shaped by the Auckland Sustainability Framework (addressing economic, social, environmental, cultural, infrastructural

and governance matters)

Takes into account relevant national policies

Identifies regional priorities and actions by thinking about all functions as being interconnected and working together.


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More specifically the principal parts of the Regional P lan should include:

REGIONAL PLAN STRATEGIC LAND USE AND INFRASTRUCTURE

This should begin with and build on agreements already achieved with urban form, namely the principles of poly-centricity,

compact design, and connectivity as expressed in the Auckland Sustainability Framework and the Regional Growth Strategy

Review currently underway. This is consistent with Gows proposal that we shift the focus from regulation to strategy-making

by multiple parties8.

The Regional P lan should also encompass all the Regional Entitys core functions including land use and all transport

modes.

There should be provision for mandating sub-regional arrangement such as structure plans and agreements like the North-

West Sector Agreements, and urban design processes that are relevant to place-based, community-engaged design and

development.

REGIONAL PLAN REGIONAL WELL-BEING

All the activities for which the Regional Entity is responsible have social, economic, cultural and environmental impacts. The

Regional Entity, as steward of the Auckland Sustainability Framework, has a responsibility to take these into account.

The Regional Plan should focus on integrated strategic planning at the highest level, commissioning the necessary researchand processes to ensure outcomes are well founded and binding.

For example, while there are critical spatial aspects of economic development that must be accommodated such as urban

regeneration, industrial land availability and urban connectivity, there are also less spatially grounded aspects. These include

such activities as branding, education and training and international trade arrangements.

The Regional Plan will also include identification of regional industry sector opportunities as recommended by the Regional

Business Land and Economy Group in their evaluation of the Regional Growth Strategy9, and these should be put forward for

further development. These sector opportunities or clusters are often drivers of industry specialisation, higher value export

strength innovation and they require particular spatial planning. (see Appendix 5: Case Study 8 Henderson Valley Studios).

8 Lindsay Gow, Curbing the Sprawl: Urban Growth Management in the United States: Lessons for New Zealand. (Wellington:

Ministry for the Environment, 2000)9 Auckland Regional Council, Growing Smarter: The Auckland Region in the 21st Century. A technical report for the Auckland

Regional Growth Forum (Auckland: Auckland Regional Council, 2007).


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3.9 PROPOSAL: STRENGTHENING REGIONAL BOUNDARIES

Waitakere City Council proposes that the status quo continue for the boundaries of the Regional Entity.

In considering regional boundary issues it must be noted that North Rodney and South Franklin are important parts of the

functional region and in order to manage the effects of urban systems and plan for growth, these must be retained within the

region.

Consideration should be given to strengthening links to the Thames-Coromandel District Council. A mechanism for inter-regionalgovernance issues should also be considered.

RATIONALE

Regional decision-making must reflect the interdependency and role of rural and urban areas in the regions sustainable

development. Rural areas of Auckland are important to the regions well-being, offering a contrast to urban lifestyles while

providing a thriving rural economy10.

Growth pressure is not just consigned to the rural towns but to the wider rural coastal and rural areas. This is putting pressure

on the traditional activities that have normally occurred in these areas. Therefore regional boundaries need to be examined

in this context and should encompass the principal elements of the systems over which the Regional Entity is expected to

exert control.

The Auckland region is a functioning economic unit. However Aucklands economic well-being is linked with economic activity

and planning for the top half of the North Island. Therefore, some aspects of economic development at the regional level

(for example long distance freight movements and ports), will need to be coordinated with regions to both the North and the

South in line with central government policy decisions.

10 Auckland Regional Growth Forum, Auckland Sustainability Framework: An Agenda for the Future. (Auckland: Auckland Regional Growth Forum, 2007)


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3.10 PROPOSAL: STRENGTHENING INFRASTRUCTURE

With network infrastructure, the scale of major improvements needed in transport, water, waste, information technology and

power will only be possible if more funds can be sourced from central and local government and this in turn will only occur if it

is clear that there are region-wide binding agreements in place on what is needed and that both partners have been engaged

in the decision-making process.

The following example of water illustrates the approach that Waitakere City Council proposes be used with other functions such

as transport, economic development and social development.

FUNCTIONAL ALLOCATION WATER

The type of arrangements envisaged in Figure 3 illustrate how the responsibilities for delivery of water services would be split

between the Regional Entity and Territorial Authorities.

Figure: 3

REGIONAL ENTITY

POLICY COMMITTEE

Water/Wastewater

WATERCARE

Bulk Provider

TERRITORIAL AUTHORITY

Retail Provider

3 Waters

Policy Framework


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PROPOSAL

The supply of potable water to the metropolitan urban area, and the collection, treatment and disposal of wastewater and the

management of stormwater are fundamental system-wide sustainability and resilience issues for the Auckland region. These

matters have been central concerns of local government in the region since its inception. For more than a century that concern

has found expression in a well-planned, well-engineered and well-funded water supply system and for half a century, wastewater

disposal systems. In this century, metropolitan water concerns should also engage central government and the community with

respect to policy, integration and funding.

Waitakere City Council proposes the development of a regional water policy framework for sound ecological and administrative

reasons. The anticipated increase in demand will put greater pressure on supply and disposal, and require sustainable

solutions.

Waitakere City Council proposes that the Watercare assets (bulk water and regional/wholesale assets) currently owned by

shareholding Territorial Authorities, and the wastewater treatment and disposal assets of North Shore City Council, be transferred

to the Regional Entity to be held in trust for the benefit of the Territorial Authorities and people of the region.

It is crucial that the assets should be protected (possibly as part of a founding charter) so that they cannot be sold or privatised

and they form part of the asset base that underpins loan financing for regional infrastructure projects. Waitakere City Council

submits that they are to be managed sustainably, including demand management, to strengthen the long term resilience of

the three waters.

It is proposed that policy responsibility for the three waters management should be separated from the provision of services.Responsibility for policy should rest with the Regional Entity Infrastructure Committee, and should be binding on all providers.

There should be a statutory requirement that the three waters policy must include:

Demand minimisation and management

Water conservation and water quality protection (supply and receiving waters)

Social equity

Efficiency

Ecosystem and human health

Local Government Act and Resource Management Act environmental standards.

Watercare Services Limited should be reorganised, with its provider/wholesaler/ delivery functions remaining intact. At the

Watercare level there should be complete operational integration, so that the present dual accounting/funding systems for water

supply and wastewater disposal are removed and simplified. The Auckland Metropolitan Drainage Act should be repealed and

any necessary provisions retained in new legislation.

Territorial Authorities providing the water supply, wastewater disposal, stormwater management and delivery functions must

give effect to the policies approved by the Regional Entity, and be accountable to them for the quality of service levels.

Funding for Watercare activity including future development loans should as far as possible be met from revenue. The new

entity must be able to levy development contributions which will require a change to the Local Government Act 2002.

Waitakere City wishes to retain the existing retail water supply and wastewater disposal system in its ownership, control and

management.


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RATIONALE

At this stage Waitakere City Council it is not convinced that financial savings, operational benefits or improved customer

service would flow to Waitakere consumers if full vertical (wholesale with retail) integration were instituted.

It is proposed that the transfer of the asset base of Watercare and North Shore City is made possible by the club or collegial

basis of representation on the Regional Entity. Territorial Authority representation on the Regional Entity is a condition of this

proposal. Currently the club arrangement of the Watercare Shareholders Group does not result in meaningful authority

resting with the present Territorial Authority owners.

The proposed arrangements would in contrast allow for the benefits of asset ownership to be more widely available, would

open the operation to more advantageous financing arrangements and allow three waters strategy and operational policy to

be developed transparently while requiring stringent performance measures regarding demand reduction, water conservation

and sustainable development of the system11. These sustainable water outcomes would be consistent with the Auckland

Sustainability Framework and international best practice for integrated water resources management. It would also facilitate

the long-term sequencing and planning of all infrastructure investment in the region.

The major cost of running the Auckland water industry is due to the capital investment required for new infrastructure, with

77% of costs attributed to capital.

Thus the opportunity for real savings lies in reducing the cost of capital projects and this could only be achieved by a

combination of the following:

Integrated land use planning at catchment level

J oint regional planning for bulk infrastructure and environmental outcomes

J oint regional demand management

Integrated water resources management planning at a catchment level.

A review of overseas best practice has shown that the most efficient way to manage water is to consider an integrated approach

at a catchment level, rather than the historical engineering approach which has been based on bigger infrastructure, which

is now becoming unaffordable.

A recently completed study on the possibility of vertical integration has been carried out for the Melbourne water industry,

which comprises a wholesale operator (Melbourne Water, which is similar to Watercare) and three local network operators.

The study concluded that operational savings could be achieved through vertical integration, but that the transition costs were

likely to erode the savings. The study recommended that the status quo remain.

The present systems are highly centralised, notably in theflow catchment to the Manukau wastewater treatment plant. In the

future a more distributed decentralised system may be more efficient and resilient. Options for a North-west sewage treatment

plant have been fully investigated and those options should be kept open. Similarly future sources of bulk water should be

sought north of metropolitan Auckland in order to build the system-wide resilience.

11 Audit Office, Report of the Controller and Auditor-General: Tumuaki o te Mana Arotake: Local Authority Governance SubsidiaryEntities (Wellington: Audit Office, 2001) p.10, Please refer to Principles for Good Governance for Subsidiary entities.


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It is important that policy on water is separated from the operation of a provider so that integrated regional growth strategies

can be implemented. For many years, the Auckland Regional Authority controlled the provision of services as a de facto

metropolitan urban limit. Today, extensions of service both lead and demand urban growth simply in order to meet the costs

of service.

Waitakere City Council is concerned that urban growth in South-West Rodney (Riverhead, Kumeu and Waimauku) will require

a solution involving costly wastewater and water reticulation and treatment. One merit of a strengthened Regional Entity is

to permit the discipline of avoiding costly and unsustainable infrastructure-led solutions that defeat the agreed objectives of

a contained, compact urban form and conservation outcomes.

URBAN DEVELOPMENT AUTHORITIES

It is proposed that the Regional Entity enter into partnership with central government in developing the concept of an Urban

Development Authority and agreeing on areas for priority development. (see Appendix 8: Urban Development Authorities).

RATIONALE

Transforming some parts of Auckland will require deliberate intervention in property markets and land development something

that has not happened in New Zealand for the past two decades.

Central government has recently led research into appropriate policy and enabling legislation to embark on urban transformation

projects and more specifi

cally the usefulness of Urban Development Authorities (UDAs) to undertake large scale projects.Central government will need to co-ordinate its own agency responses and funding priorities to coincide with this.

Compared with all Pacific Rim cities that Auckland competes with, Auckland alone does not have a strong, organised, co-

ordinated state intervention mechanism at the broad level of integrated urban development and redevelopment. Waitakere

City Council proposes that the government establishes and contributes development funds to such a UDA.

The Regional Entity will have a role in ensuring urban regeneration opportunities are identified under the auspices of the

Regional Plan.

Territorial Authority partnership is necessary if the UDA approach is used in large scale urban redevelopments. Strategic

planning, urban design and urban regeneration bring together many strands of place-shaping, environmental and social

responsibility and economic viability to create re-energised places. The knowledge and resources currently in the hands ofTerritorial Authorities provide a strong platform for place-shaping.

In November 2006 Cabinet Ministers considered proposals on how to manage urban change in New Zealand. There is

potential for strategic use of development projects to help expand the availability of affordable housing and catalyse economic

transformation in the Auckland region. It is proposed that new institutional arrangements and legislative change may be

required to help move beyond one-off projects, to a more comprehensive, integrated and transformational approach to urban

development12. (see Appendix 8: Urban Development Authorities)

12 R.N Gray, Towards an Urban Transformation Framework for New Zealand: A discussion paper prepared for the Ministry for the Environment(Wellington: Ministry for the Environment, 2006)


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3.11 PROPOSAL: FUNCTIONS TO BE TRANSFERRED

In line with the principle of subsidiarity and to improve efficiency and effectiveness Waitakere City Council proposes that certain

elements of existing functions be transferred amongst central, regional and local government. Additionally, this is necessary to

successfully deliver a split of policy and implementation between the Regional Entity and Territorial Authorities.

TRANSPORT

In relation to transport, the following is a preliminary list of transfers that will be needed:

From 2009, responsibility for all rail infrastructure, planning and priority setting in the region is transferred to the new regional

transport agency

From 2009, responsibility for state highway planning and priority setting is transferred to the new regional transport agency

and state providers are to give effect to the endorsed regional priorities

Responsibility for strategy, planning and priority setting for arterial routes is transferred to the Regional Entity along with

responsibility for allocating funding.

WATER

In relation to the three waters, water infrastructure and assets owned by Watercare Services Limited and three waters policy,

strategy and delivery of bulk water is transferred to the Regional Entity. Waitakere City Council submits that any funding previously

allocated by Auckland Regional Holdings to Territorial Authorities (e.g. Project Twin Streams) is retained.

It is proposed that retail water/wastewater assets and stormwater remain in Territorial Authority ownership and control.

CONSENTS

It is proposed that the development of Regional Plans arising from the Resource Management Act responsibilities would remain

a responsibility of the Regional Entity but their administration would be transferred to the Territorial Authorities who will provide

a one-stop-shop consents process.

RATIONALE

It is important that the Regional Entity focus on its key strategic roles and functions. Currently the Auckland Regional

Councils primary function is to manage the effects of activities of land, air and water which is a reactive approach to growth

management. The focus at the regional level should rather be on providing strategic direction, coordination and consistency

of standards. It is proposed that consenting operations of the current Auckland Regional Council under the Resource

Management Act be transferred to Territorial Authorities.

A concern has been expressed by developers that resource consents are required from both the Auckland Regional Council

and Territorial Authorities. This leads to uncoordinated and inconsistent decision-making.


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Because of the proposed new strategic roles for the regional entity, Waitakere City Council recommends that the Regional

Entity transfer some of its functions in administering regional rules and Regional Plans (such as the Air Land Water Plan) to

Territorial Authorities. The development of regional planning documents would remain a responsibility of the Regional Entity,

although its administration would be transferred to the Territorial Authorities to provide a one-stop-shop consents process.

A one-stop-shop for advice on consenting matters could offer applicants a greater level of certainty and be more efficient.

This transfer of responsibilities from the regional to local level entities would enable the Regional Entity to focus on its key

strategic roles and functions.

3.12 PROPOSAL: STRENGTHENING FUNDING

The full cost of growth in the Auckland region is not being met from rates and other revenues received, and this highlights

the important role that central government plays and can continue to play in infrastructure investment. Territorial Authorities

continue to face a funding gap due to growth and growing expectations around levels of service, which raises intergenerational

equity issues.

The Regional Entity should be empowered to negotiate with Territorial Authorities and central government for joint funding of

regional priorities and projects as agreed by the Regional Entity.

For instance, Waitakere City Council proposes that a new empowered multi-modal regional transport agency be established

with all the powers of Land Transport New Zealand forfinal approval of regional transport projects. This will require bulk funding

and multi-year funding from central government and include Crown representatives and/or representatives on the New Zealand

transport entity.


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3.13 PROPOSAL: ACCOUNTABILITY

The challenge of improving accountability at all levels in regional governance runs through every element of the Waitakere

City Council proposal. Ultimately the success of the Regional Entity in executing its responsibilities depends on people feeling

their elected members are accountable.

A weakness of the current regional arrangements is the low level of accountability to the citizens of the Auckland region. It is

our contention that regional councillors do not have sufficient incentives to engage with the communities that have elected

them. Decisions are often not fully understood nor fully informed by local communities.

The following summarise the main elements of Waitakere City Councils proposals to ensure the Regional Entity has improved

accountability:

Appointment of Territorial Authority representatives onto the new Regional Entity to ensure that local issues, as expressed

through Territorial Authority policies and community outcomes are more clearly articulated and understood at the regional

and national levels as appropriate

A range of community engagement and consultation tools to improve the responsiveness of the Auckland Sustainability

Framework, regional strategies and the overall Regional Plan

Co-option of community leaders and expert members to assist the Regional Entity to reflect different perspectives in setting

an agenda for the region

Use of a cabinet-type model of no-surprises participation and binding agreements which will demand a high level of information

sharing and cooperation

Provision in statute for a regional Te Taumata Runanga based on Waitakeres Te Taumata Runanga model for representing

all Maori on the Regional Entitys committees.

RATIONALE

People tend to relate to their communities of interest more strongly at the local level. As political processes and administrative

functions move away from the local to the regional level, it becomes more difficult to engage in a meaningful way.

The Auckland region is growing, both in size and in complexity, and relying on a three-yearly expression of the will of the

people to elect members to a single central authority is no longer sufficient to deliver a world-class city region.


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3.14 RECOMMENDATIONS: STRENGTHENING REGIONAL

GOVERNANCE

Establish a Regional Entity that is representative of the wider region and Territorial Authority interests and involves central

government and Maori. The Regional Entity is responsible for:

- setting the vision and direction for the Auckland region

- the lead relationship with central government

- taking a systems/ network approach in its integrated regional planning (bringing together both strategic land use planning,

infrastructure and the four well-beings)- negotiating and agreeing on regional priorities and funding allocations

- owning and directing provider agencies

The Regional Entity is the steward of the Auckland Sustainability Framework that will be mandated in statute and expressed

in the statement of purpose of the Regional Entity

Representation of the Regional Entity will be elected. Half of the representatives based on Territorial Authority boundary

areas, and half will be appointed by the regions Territorial Authorities to ensure a metropolitan region that is linked to and

empowered by its local communities

The chairman of the Regional Entity is appointed from within its members

The Regional Entity will establish policy committees to develop functional strategy and policies and provider agencies to

implement strategy and provide services

The Regional Entity will produce a Regional Plan, the purpose of which would be to take an integrated approach to developing

the region in a sustainable way. The Regional Plan:

- is shaped by the Auckland Sustainability Framework (address economic, social, environmental and cultural well-beings)

- is informed by relevant national policies

- sets out regional priorities and actions by thinking about all functions as being interconnected and working

synergistically

- includes land use, infrastructure and plans for the four well-beings

- identifies the responsibilities of the various parties

- highlights the ways local government will involve communities/stakeholders and engage in developing and implementing

the Regional Plan

The Regional Plans priorities are binding on Territorial Authorities and other entities in delivering agreed actions within clear

timeframes

The Regional Entity will establish fora, co-opt individuals with understanding of specialist areas to assist and participate in

developing the Regional P lan, the functional strategies and policies and in the provision of infrastructure and services

The Regional Entity will enter into partnership with central government in developing the concept of an Urban Development

Authority and agreeing on areas for priority development

The Resource Management Act regional planning function will remain a responsibility of the Regional Entity but their consenting

activity would be transferred to the Territorial Authorities which provide a one-stop-shop for consents


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The Royal Commission establish processes and fora for working with regional neighbours to the North and South on matters

of mutual interest and where functional catchments cross territorial boundaries

Note that Waitakere City Council unanimously resolved to Agree that Te Taumata Runanga should present its own submission

to the Royal Commission on Auckland Governance in order that the views of Maori in Waitakere are represented, not

withstanding that those views may differ from current Council policy.

There be a four Territorial Authorities Four Cities model for Aucklands governance that reflects and enhances:

- empowered local decision-making

- better community governance

- sustainability principles

- communities of interest- cohesive catchments

- principles of regional and sub-regional centres

Each Territorial Authority will appoint two members to a regional Te Taumata Runanga, and the Regional Entity can appoint

regional Te Taumata Runanga members to the policy committees

There are sixteen representatives on the Regional Entity eight elected (two per Territorial Authority boundary area) and

eight appointed from within Territorial Authorities (two per Territorial Authority)

A cabinet style model of collective participation and collective responsibility is adopted and ensures that decision-making

is binding on the Regional Entity and Territorial Authorities.

A new empowered multi-modal regional transport agency has all the powers of Land Transport New Zealand forfinal approval

of regional transport projects. This will require bulk funding and multi-year funding from central government and include Crown

representatives and/or representatives of the New Zealand transport entity.

From 2009, responsibility for all rail infrastructure, planning and priority setting in the region is transferred to the new regional

transport agency.

From 2009, responsibility for state highway planning and priority setting is transferred to the new regional transport agency

and state providers are to give effect to the endorsed regional priorities.

Responsibility for strategy, planning and priority setting for arterial routes is transferred to the Regional Entity along with

responsibility for allocating funding.

Regional regulation (consenting) of discharges to air, land and water is transferred to Territorial Authorities.

Water infrastructure and assets are owned by Watercare Services Limited and three waters policy, strategy and delivery of

bulk water will be transferred to the regional entity.

Retail water/wastewater assets and services and stormwater will remain in local Territorial Authority ownership and control

Any funding previously allocated by Auckland Regional Holdings to Territorial Authorities (e.g. Project Twin Streams) is

honoured.


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STRENGTHENING LOCAL GOVERNANCEContinued


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SECTION FOUR STRENGTHENING LOCAL GOVERNANCE Continued

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4. STRENGTHENING LOCAL GOVERNANCE

4.1 CONTEXT

People care about what is happening in their city, town centres and in their neighbourhoods. There is a continuing need for

governance at a local level, where it is best able to respond quickly to issues in locally appropriate ways. In this section Waitakere

City Council outlines proposals for strengthened local governance.

For good governance and ownership of regional issues by people, the region must be informed about what is happening at

the local level and what is important. Our proposal provides for both needs by retaining both Territorial Authority and regional

institutions and having them work together in a joint Regional Entity so that local views influence regional policy and timely

delivery occurs at both the regional and local levels.

Our proposal for strengthened local governance has the following elements:

Retaining the two spheres of governance: Territorial Authorities and a Regional Entity

Establishing four Territorial Authorities in the Auckland region to provide for sufficient scale to take effective action in the

sustainable development of the region whilst allowing for local expression and identity

Two changes to Waitakere City Councils boundaries. This will also provide for greater population equity between Territorial

Authorities in the Auckland region

As much as possible, intra-regional equity for population size of Territorial Authorities should be considered when reviewing

boundaries for the four new cities

Adoption of the wide range of tools available to encourage community participation through formalising partnerships with

diverse communities

Four yearly election cycles for Territorial Authorities consistent with what is proposed for the Regional Entity

In response to any changes to regional and local governance the number of elected Councillors should be reviewed to reflect

an optimal mix of population to elected members ratio

Priorities and action set out in the Regional P lan that relate to local places will be implemented through Councils Long Term

Council Community Plans

Adoption of a range of shared services arrangements to achieve efficiency and consistency of service

across Territorial Authorities.


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4.2 PROPOSAL: TWO SPHERES OF GOVERNANCE

We strongly submit that the region retains two spheres of governance: Territorial Authorities and a Regional Entity. The Regional

Entity has the role of setting direction for the region and the Territorial Authorities give effect to regional priorities through their

place-shaping in specific localities.

RATIONALE

Virtually all of the activities that Territorial Authorities are responsible for have their impact at a local level, and are best

understood by the people most directly involved. While it is appropriate to address the wider cross-cutting issues at regional

level, there is an equally important role for Territorial Authorities in community participation and implementing regional

goals in a specific locality. Territorial Authorities, that give effect to regional priorities through their place-shaping in specific

localities, must align their Long Term Council Community Plans and funding with agreed regional priorities as set out in the

Regional Plan.

There is an important role for local government in community and interest based representation and participation. Local

governance can best deal with the wicked issues13 that can impede social and cultural wellbeing, the achievement of social

cohesion, and building and maintaining strong communities. In discussing neighbourhood governance.

Local authority level governance is defined as the partnership arrangements within an area by which a local authority engages

the public and public, private, voluntary and community organisations in influencing, making and monitoring the execution and

impact of decisions within a local authority district, example, a local strategic partnership14.

13 Wicked problems have incomplete, contradictory, and changing requirements; and solutions to them are often difficult to recognize as such becauseof complex interdependencies.

14 Geoff White and others, Exemplars of Neighbourhood Governance (Wetherby, West Yorkshire: DCLG Publications, 2006)


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4.3 PROPOSAL: FOUR CITIES

Waitakere City Council proposes that there should be four Territorial Authorities in the Auckland region to provide for sufficient

scale to take effective action in the sustainable development and international competitiveness of the region. The four Territorial

Authorities would comprise Auckland, North Shore (including eastern Rodney), Manukau (including Papakura District) and

Waitakere (including the Western Ward of Rodney District and the area within the proposed new boundary between Waitakere

and Auckland).This four cities model for Aucklands governance should reflect and enhance:

Empowered local decision-making

Better community governance

Sustainability principles

Communities of interest

Principles of regional and sub-regional centres

Water and soil management catchments

Service catchments.

Waitakere is a unique and effective Territorial Authority that Waitakere City Council submits should be retained.

RATIONALE

A Super City model is rejected because it will create a large, cumbersome and unresponsive bureaucracy that could not

adequately respond to or represent the many and diverse communities of the Auckland region. Likewise, three cities models

which some have suggested would ignore the communities of Waitakere who are a discrete entity with a distinct character

and unique identity.

Three cities models are based on an outdated view of the region where State Highway One provided a north to south axis

for development and there was no connectivity to the west. The completion of the Western Ring Route (State Highways 16,

18 and 20) will provide a new economic corridor for the region which is a catalyst for business expansion and development.

Central government has already made a large investment in this infrastructure.

Over the past nineteen years Waitakere has practised sustainable development and led the region in this endeavour. It has

established a distinct culture of community partnership and innovation. This is known locally as the Waitakere way.

Waitakere City Council wants to build a 21st century city that is equipped to build the resilience of the western reaches of

the region. Sustainable development is every-day practice for Waitakere City and the new connectivity provided by the

completion of the Western Ring Route will underpin this.


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4.4 PROPOSAL: BOUNDARY CHANGES

To achieve effective implementation of regionally agreed strategies and priorities and strengthen its abilities and links to current

communities of interest, Waitakere proposes two changes to its boundaries. This will provide for greater population equity

between Territorial Authorities and consequently redress the current imbalance at the decision-making table. This will strengthen

the sustainable development and resilience agenda.

RATIONALE

As far as possible, Territorial Authorities population equivalence should be considered when reviewing boundaries for the four

new cities. However, this should not be an academic exercise. Changes to Territorial Authority boundaries should improve

equitable population size by taking into account the individual and combined issues of:

Population

Area of land

Economic contribution to the region

Urban/rural/productive land

Catchments of regional and sub-regional town centres and employment land

Communities of interest

Water catchments.


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4.5 PROPOSAL: EXTENSION OF WAITAKERES BOUNDARY

TO THE EAST

An extension eastward to include the entire Avondale Community Board area and the area up to Carrington, Mt Albert, Richardson

and Boundary Roads of Auckland City into Waitakere. This is shown i

Documents

Royal Commission on Auckland's Governance: Waitakere Submission Part One