What is happening?
Councils in the Wellington region are considering whether to submit a proposal to Central Government to outline changes to local government arrangements under the Government's voluntary Head Start pathway. Head Start allows councils to work together to develop and submit their own proposal, rather than waiting for the Government's proposed Backstop process, which could begin after the 2028 local elections. The Government will assess the Head Start proposals once they have been submitted and in late September, Cabinet will decide how to proceed.
Source:Head Start pathway: Simplifying Local Government (PDF, 818KB)
What has Upper Hutt City Council decided?
Upper Hutt City Council has resolved not to be part of the Wellington region’s Head Start proposal for local government reform.
At its meeting on Wednesday 5 August, Councillors considered the Head Start proposal alongside supporting high-level financial analysis and community feedback before voting for Upper Hutt not to be included in the regional proposal.
Why has Upper Hutt City Council decided not to join other Wellington councils in the Head Start process?
Throughout this process, our focus has been on the likely costs and benefits for the Upper Hutt community, and on protecting effective local representation and decision-making. The financial modelling has reinforced our concerns that the benefits for Upper Hutt may not outweigh the costs of amalgamation.
While the proposal includes community councils, at this high-level stage it is hard to see in the proposal how local voice will be retained. Councillors were concerned it would not provide the same level of local representation, influence and accountability that our residents have today.
Councillors were not satisfied there was enough evidence that the current proposal would protect our financial position, relatively low rates or deliver better value for Upper Hutt ratepayers
What does this mean for Upper Hutt now?
The final outcome of a Wellington proposal remains unclear.
Upper Hutt has asked the Councils who approve the proposal for it to not to be included in the Head Start proposal that is expected to be put forward to the Government.
Any proposal under Head Start must be submitted by 9 August and will be considered by Cabinet against clear criteria, including deliverability by the 2028 local elections, support for the new planning system, simplified governance, economies of scale, and fair and effective local representation.
Upper Hutt’s preference is to not participate in Head Start but continue to engage constructively as the Government's reform programme progresses. Council is hopeful that backstop will be a collaborative process with appropriate community involvement.
Has a decision been made as to who will be accepted into the Head Start pathway?
No decisions have been made. The Government will now consider the proposal. If approved, councils move to a detailed design phase, with final decisions made by Cabinet by mid-2027. Approved proposals will go into a detailed design phase, with final Cabinet decisions on final proposals to follow in May 2027.
Council reorganisations resulting from this process are expected to be implemented before the 2028 local government elections.
What is the Head Start pathway?
Head Start is the Government's voluntary process that allows councils to choose whether to participate and work together to develop outline proposals for structural change, such as amalgamating into larger or unitary authorities that combine regional and territorial functions.
What is the Backstop process?
The Backstop process is the Government's proposed mandatory approach to local government reform. If councils choose not to submit a proposal through the voluntary Head Start process, Central Government has signalled it intends to impose reforms through the Backstop process instead.
What is the difference between Head Start and Backstop?
Head Start is a voluntary process that allows councils to work together to develop their own proposal for local government reform. Backstop is the Government's proposed mandatory process, which could begin after the 2028 local elections if councils choose not to put forward a Head Start proposal.
Why are the Wellington councils proposing change?
The proposal has been developed in response to changing government expectations and the need to ensure local government is sustainable and able to deliver services efficiently into the future. The Wellington region operates as a multi-layered system of communities of interest, with connections and identities that exist and regional, sub-regional and neighbourhood scales. These communities of interest do not align neatly with existing council boundaries or regional systems.
What does the proposal involve?
The proposal presented for councils’ consideration recommends replacing the current councils in the Wellington region with a single Unitary Governing Body and Community Councils. An Elected Mayor would lead the Unitary Governing Body. They would be supported by Unitary Councillors (elected from wards, including Māori wards) and Community Council Chairs (elected at large from the community council area).
What does the Unitary Governing Body do?
The Unitary Governing Body would be responsible for setting strategic direction, making region-wide investment decisions, establishing minimum service levels, and delivering services at the scale that best serves communities.
What would this mean for Upper Hutt?
If the proposal is approved, Upper Hutt City Council would no longer exist. Instead, a Community Council representing Hutt Valley would put in place.
What does a Community Council do?
They would have clearly defined decision-making responsibilities and developed funding to support local priorities, local service delivery and community outcomes. They would also play a key role in catchment-based governance and planning, with delegated responsibilities for matters such as spatial planning, environmental management, freshwater and flood protection consistent with the new planning system.
Will this happen immediately?
No. The proposal must first go through the Government’s assessment process and if accepted, it would enter a detailed design phase.
Will residents have an opportunity to have their say?
If Central Government decides the proposal can proceed, there will be opportunity for a formal public consultation process included in the detail design phase where residents can make submissions.
What happens next?
Central Government will assess whether any proposal submitted meets the Head Start policy requirements including five assessment criteria
1. Supports the new planning system
- Demonstrates how the proposal will help implement the Government's new planning system.
- Minimises disruption to spatial planning, natural environment plans, infrastructure planning, freshwater management and related regional functions.
2. Simplifies local governance
- Creates more efficient governance arrangements.
- Consolidates decision-making and improves alignment between councils in a region.
- Reduces duplication and complexity
3. Economies of scale
- Supports more effective regional strategic planning and delivery of key services.
- Demonstrates responsible and affordable asset management, infrastructure investment and service delivery.
- Shows benefits from combining functions, expertise and resources.
4. Maintains local voice
- Shows how communities of interest will continue to be fairly and effectively represented.
- Explains how local-level decisions will be made and how urban and rural interests will be balanced.
- Ensures local identity and local priorities remain visible within any new structure.
5. Deliverability
- Demonstrates that the proposal is realistic and can be implemented within the required timeframe.
- Provides confidence that governance, financial, operational and transition arrangements can be worked through successfully
Where can I find more information?
More information, including the proposal and updates on the process, is available at:
Will Upper Hutt lose its identity?
The proposal includes Community Councils to represent communities and advocate for local priorities. Whether the proposal proceeds, and what final arrangements look like, will be considered through the detail design phase and will include public consultation before a final structure is approved by Government.
Will my rates increase?
It is too early to say what the impact on individual rates would be. Extensive further planning including detailed financial analysis would be needed before any changes are made.
Does the proposal guarantee lower rates?
No. The proposal does not guarantee lower rates. It indicates there may be long-term financial benefits, but these depend on future decisions and more detailed analysis.