Reynold Macpherson: Letter to Minister of Local Government 4 Feb 2025

Rotorua District Residents and Ratepayers

4 February 2025 

The Hon. Simon Watts

Minister of Local Government

Request for Ministerial Advice on Rotorua Lakes Council’s Co-Governance Initiatives

Good morning, Minister.

Welcome to your leadership of the Local Government portfolio. 

I write to seek your advice on Rotorua Lakes Council’s renewed efforts to establish co-governance through the Te Arawa Partnership Plan and to invite ministerial intervention to uphold the democratic rights of Rotorua’s residents and ratepayers.

As Chairman of the Rotorua District Residents and Ratepayers (RDRR) Association, I represent 3,500 followers and an additional 4,700 supporters. 

Background: Co-Governance Attempts and Democratic Challenges

From 2014 to 2022, Rotorua Lakes Council, under Mayor Steve Chadwick, pursued co-governance with Ngāti Whakaue o Te Arawa through a Local Bill. The proposed model of a three-seat Māori ward, a three-seat general ward and a four-seat ‘At Large’ ward (3M:3G:4AL) on a 10-seat council. It was widely opposed because it violated the principle of equal suffrage. 

Despite opposition from the Te Tatau o Te Arawa Board and the broader public, who preferred a proportional 7G:3M model, Council proceeded with the bill.

On April 8, 2022, the Local Government Commission (LGC) ruled in favour of a proportionate 6G:3M:1Rural model. However, Rotorua Lakes Council continued advancing its Local Bill in Parliament. 

On April 22, 2022, Attorney General Hon. David Parker deemed the Local Bill discriminatory against non-Māori, effectively halting its progress.

Policy Capture through Visioning

In 2014, Council adopted Rotorua 2030 – Tatau Tatau We Together, emphasizing community engagement and a new partnership model with Te Arawa. The RDRR highlighted concerns: (1) the vision omitted the Local Government Act 2002’s (LGA) purpose of ensuring democratic representation, and (2) it prioritized Te Arawa engagement without extending equivalent consideration to other community groups.

In 2015, Council formalized the Te Arawa Partnership Agreement, establishing the Te Tatau o Te Arawa Board (TTOTAB) with public funding. 

In 2020, TTOTAB introduced Te Arawa 2050, a strategic vision that did not recognize Rotorua’s multicultural composition, integrated economy, or the LGA’s democratic governance principles.

In September 2024, the Te Arawa Partnership Working Party Facilitator’s Report called for embedding Te Arawa 2050 principles into governance and proposed the establishment of a Te Arawa Vision Committee to formalize extended co-governance arrangements. Council subsequently endorsed this direction without authentic public consultation.

Rotorua’s Long-Term Plan 2024-2034: Implications for Governance

Under Mayor Tania Tapsell, after the thwarted Local Bill, expectations for inclusive democratic processes were high. However, the Long-Term Plan (LTP) adopted on November 1, 2024, entrenched the Te Arawa Partnership Plan as the primary governance framework, sidelining other interest groups. This contradicts the Coalition Government’s 2023 mandate to democratize local governance and focus on core services.

The LTP’s justification for co-governance rests on questionable claims, including:

• A misrepresentation of population demographics, equating ethnicity with citizenship.
• Unsubstantiated Treaty of Waitangi obligations.
• Misinterpretation of the Fenton Agreement.
• Cited legislative obligations that are under government review.

Moreover, past democratic consultation practices, such as biannual meetings with community groups, have been discontinued. The LTP explicitly privileges Te Arawa over other stakeholder groups, undermining equal representation.

The Te Arawa 2050 Vision Committee: A Structural Power Shift

A significant governance shift occurred in late 2024 with the establishment of the Te Arawa 2050 Vision Committee, a policy advisory subcommittee of Council. It comprises the mayor, all 10 councillors, and five TTOTAB members. Since nine of its 15 members whakapapa to Te Arawa, the committee effectively institutionalizes co-governance, prioritizing tribal interests over democratic decision-making.

Additionally, the mayor’s gift of leadership roles and remuneration incentivizes councillors to align with her policies, further consolidating power. The Te Arawa 2050 Vision Committee’s role blurs the distinction between policymaking (a function of elected representatives) and policy implementation (a responsibility of neutral public servants), undermining democratic governance. A deputy chief executive, Te Arawa Partnerships Manuhautū, coordinates advocacy from the TTOTA Board, multiple joint management boards, and dozens of hapu protocol meetings, which is at odds with public servants remaining apolitical.

Key Concerns and Call for Ministerial Intervention

Three fundamental issues require urgent attention:

1. Overreach of the Te Arawa 2050 Vision Committee:
• The committee wields disproportionate influence, overriding the rights of the 72 percent non-Māori electorate.
• It subverts the LGA’s democratic principles of equal suffrage and pluralistic majoritarianism.
2. Lack of Public Consultation:
• The committee was established without broad community engagement, violating the LGA’s requirements for transparent decision-making.
• Te Arawa 2050 is being positioned to replace Vision 2030 without a public mandate.
3. Bias Towards Co-Governance:
• The mayor and three Māori ward councillors appear to prioritize tribal interests over their duty to represent all constituents.
• The Te Arawa Vision 2050 Committee’s structure and council’s executive influence signal a shift towards governance that favours a single minority group and minoritarianism.

Given these concerns, I request your guidance on potential ministerial actions to restore democratic integrity in Rotorua’s governance structures. Given the flouting of the Attorney General’s ruling, urgent intervention is necessary to ensure compliance with the LGA and to uphold the democratic and human rights of all residents.

Thank you for your time and consideration. I look forward to your response.

Reynold Macpherson
Chairman
Rotorua District Residents and Ratepayers Association

Reynold Macpherson was a Rotorua Lakes councillor from 2019 to 2022 and chairman of Rotorua District Residents & Ratepayers from 2013 to 2025.