Simplifying Local Government

What is Simplifying Local Government?

The Government is proposing changes to how local government is structured, under its “Simplifying Local Government” work programme. Its aim is to simplify how councils are structured and governed and reduce the number of councils in New Zealand. 

This would likely include councils working more closely together or combining. This could affect how decisions are made, how services are delivered, and how local communities are represented. 

The Government has made it clear that if councils don’t put forward their own proposals through the ‘Head Start’ pathway it announced in May 2026, change will be imposed on us. This would involve a standardised, compulsory reorganisation ‘Backstop’ process after 2028.

Councils that wish to be part of the Head Start pathway have until 9 August 2026 to submit a high-level ‘outline’ proposal. While the proposal must be submitted by then, it will still need Government approval, and councils will then have until March 2027 to further refine any proposal into a full plan, which would take effect after the 2028 local elections. 

The opportunity in front of us

Our Council’s preference is to help lead and design this change by submitting a Head Start outline proposal by 9 August, rather than have central government determine change for us further down the track. 

We’ve been exploring options with neighbouring councils to consider how local government functions and services could be reorganised and what potential council structures are worth exploring further. We’re keeping an open mind about what’s possible, while making sure any proposal meets the Government’s criteria (set out below).

While timeframes are very tight, we want to share what we know so far, outline the options we’re considering, and understand what’s important to you. Your feedback will help guide us as we consider any changes and whether to submit a proposal.

Importantly, Tauranga City Council services continue as normal in the meantime. This is about future structure, not immediate service changes. 

What is the Head Start pathway?

The Head Start pathway is a streamlined process for councils that are ready to develop and progress reorganisation proposals, with the aim of creating unitary authorities within a region. For councils that are not progressing through the Head Start pathway, a compulsory Backstop process will occur after the 2028 local elections. At the 2028 local elections, regional councillors will be replaced with an interim body (for example, a board of mayors, Crown commissioners, or a combination of both). The precise model will be developed by the Government next year.  

The Government has said it will implement bespoke legislation, like in Auckland, for the Head Start programme, giving more options for councils. The Backstop process will be more standardised with less choice and flexibility in how change is enacted. 

Who can submit an outline proposal?

Any two or more territorial and/or unitary authorities including cross-boundary groupings, may submit if they represent a majority of either the:

• directly affected territorial authorities, or
• population across directly affected areas.

Proposals cannot be submitted by minority groupings, individual territorial authorities or unitary authorities, regional councils, individuals or other organisations.

What is a unitary authority? 

A unitary authority is a single council that combines the roles of a city, district and regional council in one organisation. 

In New Zealand, examples include Auckland Council, Gisborne District Council, Tasman District Council, Nelson City Council and Marlborough District Council.

How will the Government assess outline proposals?

Five criteria will be used to assess the proposals:

• Deliverability: Proposals are realistic and demonstrate how new arrangements can be implemented in a timely manner.
• Supports the new planning system: Shows clear support for implementing the new planning system – including progress on spatial and natural environment plan development – and avoids or minimises disruption to that work.
• Simplifies local governance: Proposes more efficient regional governance arrangements, consolidating decision-making and improving alignment between a region’s councils.
• Economies of scale: Supports regional strategic planning and effective delivery of key regional functions (such as transport and catchment management), and demonstrates responsible and affordable asset management, infrastructure investment, and service delivery.
• Maintains local voice: Demonstrates fair and effective representation for communities of interest and how decisions will be made at the local level, balancing urban and rural interests.

What are some examples of what future local authorities could look like in the future? 

Please note the three possible models outlined below are examples only and not an exhaustive list.

Resources

• Simplifying Local Government Community Survey Report (2.5mb pdf)
• Mayor's column in Bay of Plenty Business News
• Mayor Mahé Drysdale speech at Priority One business event (122kb pdf)
• Mayor Mahé Drysdale on the future of local government
• Visit Simplifying Local Government
• Head Start pathway Simplifying Local Government

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