'Swallowing a dead rat': Chch council backs local government reform process despite concerns

Christchurch City councillors have unanimously backed participation in the Government’s Head Start local government reform programme, despite several describing the process as disappointing, flawed and akin to having “a gun to your head”.

The decision clears the way for a vote tomorrow over which of four governance models will be submitted to Wellington, ranging from a Christchurch-only unitary authority to a single council covering all of Canterbury.

The council’s preferred option will form the basis of Christchurch’s proposal to the Government and could influence the future shape of local government across the region.

Mayor Phil Mauger and all 16 councillors voted today to join the Head Start programme, allowing Christchurch to develop and submit its own proposal for local government reform.

Christchurch City mayor Phil Mauger. Photo / RNZ, Nathan Mckinnon

Councillors were told that declining to participate would leave Canterbury subject to the Government’s “backstop” reform process, under which future local government arrangements would instead be developed by central government.

The issue dominated discussion at today’s council meeting, with elected members weighing reforms that could significantly alter how services, infrastructure and environmental management are delivered.

A final decision is expected on Wednesday when councillors select their preferred proposal for the next stage of the Government’s reform process.

What is the Head Start programme?

The Government’s Head Start programme is a voluntary fast-track process allowing councils to propose new local government structures ahead of wider nationwide reforms planned from 2028.

It was introduced to give councils the opportunity to develop locally led governance arrangements rather than wait for reforms to be imposed through a Government-led process.

Councils that participate can develop and submit their own reorganisation proposals, including new unitary authorities that combine district and regional council functions, for Cabinet consideration.

Christchurch is the biggest city in the South Island. Photo/Getty Images

If approved, successful proposals would move into a detailed design phase before any changes are implemented.

Without a Head Start proposal, Canterbury would instead be considered through the Government’s “backstop” reform process, under which future local government arrangements would be developed by central government.

During this afternoon’s debate, councillors discussed the benefits of participating in the process, including the opportunity to shape Canterbury’s future governance arrangements, alongside concerns about the pace of reform and whether enough information was available to make an informed decision.

Mauger said while Head Start was not “a slam dunk of an idea”, he would support it to give his council “a little bit more control”.

“Going into a backstop, we’ll be in limbo. We don’t want to sit on our hands. We don’t want to be treading water. We need to be at the table … I will be supporting us going to the Head Start bit," he said.

Councillor Tim Scandrett said the Head Start programme was “incredibly disappointing”.

“It’s kind of like a gun to your head,” he said.

“You either jump in or it gets done to you. So I will be voting to take part in it. Just because there just seems to be a little more control and we need part of that.

“It is incredibly disappointing the whole process, but I do want to thank staff and everyone for the hard work that has been done and the frustration that we all feel.”

Councillor Tim Scandrett. Photo / Supplied

Councillor Mark Peters was “keen to be part of the process” but was not impressed with Head Start so far.

“This feels like swallowing a dead rat,” he said.

“But… trying to have some control over our destiny going forward, I think, is wise. Our city deserves to have that leadership. I want to see us as a council be visionary in our deliberations over the coming day or so and try and move Christchurch forward for the next generation rather than looking backwards and try and hold on to what we’ve currently got.”

Councillor Melanie Coker said she “did not agree” with the Head Start process.

“But there’s no way in hell I think we should sit here and take the backstop,’ she said.

“We need to ensure that we take the lead and hopefully involve our communities very closely in the next phase. But I guess the ball will be in central government’s court around that.

“Our very existence as local government is under central government legislation so I guess the final outcome is their call.”

What are the options for Christchurch and Canterbury?

Councillors are weighing four options for local government reorganisation.

Option A would create a Christchurch-only unitary authority, Option B would establish a Greater Christchurch metropolitan unitary authority covering Christchurch and the metropolitan areas of Selwyn and Waimakariri, Option C would extend that model to include Hurunui, while Option D proposes a single unitary authority for the whole of Canterbury.

Option A reflects the current council area. Photo / Supplied

All four options involve some form of unitary authority, which combines the functions of a district or city council and a regional council into a single organisation.

Each model would replace the current two-tier local government structure to varying degrees, combining some or all territorial and regional council functions under a unitary authority.

Mauger today told his council that he supported Option B.

Supporters of reform say a unitary authority model would improve coordination by bringing decisions on housing, transport, infrastructure, water and environmental management under fewer organisations and enabling more joined-up planning as Greater Christchurch continues to grow beyond existing council boundaries.

Option B. Photo / Supplied

Having opted into the Government’s voluntary Head Start pathway, councillors must now choose a preferred model to submit by August 9.

If accepted by Cabinet, the region would move into a detailed design phase before legislation is introduced ahead of the 2028 local body elections.

What does the community want?

Today’s decision follows months of public consultation on how local government in Christchurch and Canterbury should be organised in the future.

An online “pulse” survey attracted 5628 responses and found residents generally supported an approach that would enable sustainable long-term growth across Christchurch and the wider region.

An earlier consultation in June, which drew more than 7300 responses, identified improved planning and infrastructure coordination, reliable essential services, affordability and managing growth pressures as key priorities for any future governance model.

While many respondents supported stronger regional coordination, the consultation also highlighted concerns about maintaining local representation and ensuring communities continued to have a strong voice in decision-making under any new governance arrangements.

Christchurch, Canterbury. Photo / Supplied

Ashburton District councillors are also expected to consider their next steps this week, with an extraordinary meeting on Wednesday set to determine whether they will put forward their own proposal under the reform programme.

Options under consideration there include a standalone Ashburton District unitary council, joining a South Canterbury unitary council alongside Timaru, Mackenzie, Waimate and Waitaki, or becoming part of a Mid-North Canterbury provincial unitary council.

What happens next?

Cabinet is expected to decide by September which proposals will progress to the next stage, with successful regions moving into a detailed design phase between October 2026 and March 2027.

During that process, councils, mana whenua and the Government would work through how any new governance arrangements would operate in practice, including representation, responsibilities and the transfer of functions.

Final Cabinet decisions are expected in May 2027, with legislation to implement any reforms planned before the October 2028 local body elections.

The Government has said local government reform will proceed regardless of whether councils participate in the voluntary Head Start process.

Regions that do not put forward a proposal, or whose proposals are not accepted, are expected to move through a separate Government-led “backstop” process from 2028.

Anna Leask is a senior journalist who covers Christchurch issues and national crime and justice. She joined the Herald in 2008 and has worked as a journalist for more than 20 years with a particular focus on family and gender-based violence, child abuse, sexual violence and homicides. She writes, hosts and produces the award-winning podcast A Moment In Crime, released monthly on nzherald.co.nz.