Frequently asked questions and answers

What is Head Start?

What is the Head Start pathway? 

Head Start is a voluntary, streamlined process that allows councils that are ready to move faster to propose the creation of new unitary authorities, ahead of wider local government reform after the 2028 local elections. 

Why is the Government introducing Head Start? 

Consultation on the proposed Simplifying Local Government reforms showed strong support for simplifying local government, but some councils wanted more flexibility to move faster, particularly given the reform of the planning system. Head Start responds to this feedback by allowing locally-led reform for those ready to move early. 

Is Head Start compulsory?

No. Participation is voluntary. Councils that do not use Head Start will transition through a compulsory backstop process after the 2028 local elections.

What type of change does Head Start allow?

Head Start focuses primarily on structural reform. It allows councils to propose new unitary authorities that combine regional council functions and two or more territorial councils to simplify governance and reduce duplication. 

What makes a proposal eligible?

Proposing councils must represent either a majority of the directly affected councils or a majority of the population across the affected area. Directly affected councils include councils that are included in the proposal, rather than all councils in a region who may be indirectly affected. A poll of electors is not required, and not every council needs to agree. 

Can proposals cover only part of a region?

Yes. Proposals can cover part or all of a region, provided they meet the eligibility and assessment criteria. 

What happens to councils that aren’t included in a subregional proposal?

Subregional proposals will only be accepted where it makes sense for the whole region. In practice, this will mean ensuring that no councils are left behind. A Proposal will need to outline how it supports continued effective functioning of the remaining councils or a pathway for this to be resolved through the backstop. 

How are territorial authorities protected from cross-boundary (outside region) proposals?

Cross-boundary proposals are eligible and will be considered where there is a clear rationale. Support or lack of support for outline proposals among directly affected territorial authorities will be considered during the proposal assessment.

What happens if not all parties are in support? If the Head Start pathway is for councils that are ready, why does it allow proposals without all parties in agreement?

The need for unanimous council support or a high level of community support has been a barrier to local government reorganisation in the past. The Government accepts that some form of Crown intervention will be required to give effect to reorganisation through the Head Start pathway, e.g., removing the requirement for the unconditional support of all affected local authorities or a poll of electors. 

The Government are open to proposals that do not have the support of all directly affected territorial authorities. However, submitters must represent a council or population majority, i.e., comprising either a majority of the territorial authorities directly affected by the proposal, or together representing a majority of the population across directly affected districts.

Who makes the final decisions?

Cabinet decides which outline proposals proceed to the detailed design phase and makes final decisions on which proposals are implemented. 

What is the timeline?

The Government invited proposals in May 2026 and proposals are due by 9 August 2026. Cabinet will consider outline proposals in September 2026 and make final decisions in 2027 following detailed design, with approved changes in place before the 2028 local elections. The three-month timeline for Head Start proposals provides certainty to councils. 

What happens if councils do not use Head Start?

Councils not using Head Start will be subject to a compulsory backstop process after the 2028 local elections, with Regional councillors not being elected in 2028, instead being replaced by an interim governing body. Cabinet will confirm final arrangements for the backstop approach in 2027. 

What happens to regional councillors?

Regional councillors will remain in place until the 2028 local elections to support planning reform and provide stability during transition. There will be no elections for regional councillors in 2028. 

Will this reduce costs for ratepayers?

Simpler governance and reduced duplication are expected to put downward pressure on council costs over time. 

What are the benefits for communities?

Head Start will establish fewer layers of local government –meaning simpler, more aligned planning and decision making across regions; and more efficient service delivery.  

How many elected members will there be compared to present?

New governance arrangements and the number of elected members, including any community or local boards, will depend on submitters’ proposals.  

How is this voluntary, if the alternative is to have change imposed?

Head Start is voluntary. If councils choose not to use this pathway, or are not ready to, the Government has committed to mandatory reform from 2028 as part of the backstop process. 

What is the legality of the Head Start pathway and call for proposals ahead of legislation?

The Head Start pathway is a non-legislative process to determine potential applicants for amalgamation into unitary authorities. Bespoke legislation is intended to give effect to successful applicants’ proposals to form unitary authorities before the next local elections.  

What about the existing reorganisation process in Southland?

The current reorganisation process in Southland is led by the Local Government Commission. The Commissions role is set out in legislation and the Government’s Head Start pathway does not change its responsibilities. The Commission must therefore continue its current process unless there is a lawful basis to amend, pause or conclude the reorganisation investigation. It is a decision for councils in Southland whether to submit a Head Start proposal. If they do, the relationship with the current reorganisation process will be considered further. 

How will success of the Head Start pathway be measured?

What success looks like is up to the councils and their communities to decide. The Government has set clear parameters, including that proposals must establish one or a small number of unitary authorities in each region. However, councils have flexibility to determine what arrangements will work best for them within this model.

Head Start proposals – submissions and eligibility  

Who can submit a Head Start proposal?

Groupings of two or more territorial authorities can submit proposals, including existing unitary authorities (except Auckland). Regional councils cannot submit proposals, although they can support proposals. nor Individual territorial authorities cannot  act alone and submit a proposal. 

If only two councils chose to go together, could they only submit a proposal if their total population was 50% or greater of the region?

The threshold of a majority of the population or majority of directly affected territorial authorities applies to all Head Start proposals. Where the proposal is subregional (for example, covering just two districts), the threshold applies to the participating councils only, without needing to account for the wider region.

Can a region put in two proposals or more?

The Government expects only one proposal from a council grouping. The aim of the Head Start is to understand what council groupings think is best for the region. Neighbouring groups can work together on parts of the proposal, but each council should only support one proposal.

Can regional councils participate in outline proposal development?

Regional councils may participate in developing outline proposals and support them but cannot submit proposals themselves and do not count toward either majority when considering the directly affected councils.  

Will the public be consulted on proposals? Is there enough time?

Councils must determine their approach to engaging communities before the submitting outline proposals.  Ministers want mayors and councils to provide local leadership. There will be further opportunities to consult communities for Head Start applicants as part of the detailed design phase after proposals have been accepted by Cabinet in September 2026 before final decisions are made in May 2027.

Is this about two or more territorial authorities amalgamating (structural change) as opposed to an agreement to work together to deliver regional services (service level agreements)?

Yes, while outline proposals for new unitary authorities can be subregional, they should focus on structural change that reduces the number of local authorities within a region, rather than only service level agreements. Service level agreements can be included as part of a proposal for new unitary authorities where this makes sense to support the proposed structural change.

What is a cross-boundary proposal?

A cross-boundary proposal is a reorganisation proposal that includes councils from more than one existing region, meaning the proposed new unitary authority would span current regional boundaries

Cabinet will consider cross-boundary proposals if they demonstrate how regional services, particularly regional planning, transport, and catchment management would be delivered effectively, and the proposed arrangements would result in fewer local authorities overall.

Can proposals change boundaries?

Yes.  A cross-boundary grouping could include a territorial authority from a neighbouring region (changing regional boundaries) or split existing territorial authority boundaries within a region. Where boundary changes are proposed, proposals should highlight the impact of this change.

Can a single territorial authority be considered in Head Start proposal?

A single territorial authority cannot independently propose to become a unitary authority. However, this outcome can arise as part of a broader proposal involving amalgamation.

To enable this, the wider amalgamation proposal—covering two or more territorial authorities forming another unitary authority—must be clearly set out upfront. Within that broader regional or subregional proposal, a single territorial authority may be included as becoming a unitary authority in its own right.

Can a territorial authority withdraw its support for a Head Start outline proposal after it has been submitted?

Yes, a territorial authority can withdraw support for a Head Start proposal after it has been submitted. However, the intent is that proposals agreed to in principle by Cabinet in September 2026 will be implemented, subject to detailed design and the final policy decisions required to support enabling legislation. 

Head Start proposals – Assessment

Head Start proposals will be assessed against five criteria: deliverability, support for the new planning system, simplifies local governance, economies of scale and maintains local voice.

Supports the new planning system

How does Head Start relate to the new planning system? 

Head Start is designed to support delivery of the new planning system. It gives councils that are ready to move early the confidence to keep implementing the new planning system now, while shaping governance arrangements that better align over time with how the new planning system is designed to work. Delivering the new planning system remains core business for all councils, whichever pathway they choose. 

How does a unitary authority model help with delivering the new planning system?

Head Start supports delivery of the new planning system by progressively aligning governance with how the system is designed to work. 

If a council doesn’t opt in, what does that mean for planning system implementation? 

Councils that do not use the Head Start pathway will not face mandatory governance change before the 2028 local elections, giving them clear space to focus on delivering the first generation of plans under the new planning system. Structural reform for those councils would be addressed through the compulsory backstop process after 2028. 

Why keep regional councillors in place until 2028 – how does that support the new planning system?

Retaining regional councillors until the 2028 local elections is intended to provide capacity and stability during a period of substantial change, including supporting the transition to the new planning regime and the first generation of spatial and natural environment plans. There will be no elections for regional councillors in 2028. 

Why bring in Head Start now, while planning reform is underway?

Consultation feedback highlighted councils’ capacity constraints and the pressure of progressing reforms at the same time as other initiatives, notably the new planning system. Head Start responds to this feedback. It a voluntary, streamlined option for those ready to move early, while others have more time to focus on implementing the new planning system. 

How is the planning system going to be implemented the day after regional councils no longer exist?

Councils that do not progress through Head Start, like all councils, will continue to focus on delivering the new planning system, including development of the first generation of plans. 

This approach gives councils significantly more time than originally proposed to concentrate on planning system implementation before any mandatory governance changes take effect, while still providing long‑term certainty about where and when reform will occur. 

We will be working with local government during the period up to 2028 to develop the arrangements and ensure an effective transition. 

If a region splits in two, will each become a new region with its own spatial plan?

No. In the new planning system, more than 100 existing plans will be replaced by 17 regional combined plans that bring together spatial, land use, and natural environment plans in one place. Local government reforms are intended to support these changes, so no more than 17 spatial plans are expected.

Economies of scale

In terms of scale, what might the minimum population for a unitary authority be?

There is no minimum threshold. In many cases a single unitary authority per region would be feasible, but in some larger regions with more complex issues, two or at most three unitary authorities per region could be considered.

Maintains local voice

Are councils required to cover representation arrangements in an outline proposal?

Yes. However, councils are not required to fully cover or finalise representation details in an outline proposal, they must include enough high-level information to assess whether representation will be fair and effective.

How does this effect Māori representation in local decision-making?

Regional councillors, including those elected from Māori constituencies, will remain in place until 2028. For unitary authorities created through head start, councillors may still be elected from Māori wards as provided for under the Local Electoral Act 2001.  

Existing Māori ward arrangements would be considered on a case-by-case basis. Any relevant governance arrangements provided for in Treaty settlements will transfer to new unitary authorities with equivalent effect.   

What will happen with councils that have passed Māori wards and constituencies?

Regional councillors, including those elected in Māori constituencies, will remain in place until the 2028 local elections.

Existing Māori ward arrangements would be considered on a case-by-case basis. Any relevant governance arrangements provided for in Treaty settlements will transfer to new unitary authorities with equivalent effect.

Deliverability

What is expected to be in place by 2028? New governance structure, or new entity and staff transfer complete? Is a staged transition acceptable?

Approved Head Start amalgamations should ideally be fully implemented before the 2028 local elections, but the critical issue is that the new unitary authorities should be elected in the 2028 local elections, even if structural and staff transition is staged over time.

Treaty settlements

Mana whenua engagement and Treaty commitments – is the onus on councils, rather than the Crown to engage with iwi/Māori on Treaty commitments?

Councils play an important role in delivering Treaty settlement arrangements with iwi/Māori and the Crown is responsible for upholding Treaty settlements. As part of Simplifying Local Government, Treaty settlement arrangements will be given equivalent effect, which will require councils, the Crown, and post-settlement governance entities to work together to understand how these settlement arrangements can be provided for in a new unitary authority.  

Detailed design, Transition and implementation

What will happen to regional council-owned assets once regional councils are removed?

Regional councils may own or hold shares in a range of strategic assets. Outline proposals can address how these strategic assets will be dealt with, including what further work is required as part of the detailed design phase.

How should councils treat waters services CCOs and other arrangements? 

The Local Government (Water Services) Act 2025 provides mechanisms for councils to change how water services are delivered over time, including ownership and service arrangements. The Head Start pathway under Simplifying Local Government does not require councils to change their water service delivery models. However, where councils choose to consider changes as part of a Head Start proposal, the pathway provides flexibility to do so. 

What about councils that don’t participate in Head Start? What is their transition date? 

The details of the backstop process for Simplifying Local Government will be finalised in 2027, with the process itself starting after the 2028 local elections. There will be transitional arrangements for regional council governance—such as a board of mayors or other interim body—while changes are put in place.

When is the transition for Head Start councils? When does Head Start need to be implemented?

Transition and implementation would begin when enabling legislation for reorganisation is enacted in early 2028. The plan is for Head Start proposals to be implemented before or soon after the 2028 local elections. We are seeking feedback in outline proposals for when transition milestones can be delivered.

Can councils deviate from an outline proposal after it is submitted/accepted?

Any significant changes to a proposal would need to be considered in the context of the assessment criteria and the rationale for changes. The intent is to implement outline proposals agreed to in principle by Cabinet in September 2026, subject to detailed design and the final policy decisions made by Cabinet in 2027 required to support enabling legislation. 

What are the workforce impacts? What will happen to the existing workforce?

The Government recognises this is a significant consideration for councils and their proposals. Councils should note any anticipated workforce impacts in Head Start outline proposals, including what is to be worked through in the detailed design process. 

What legislation is required to give effect to Head Start approvals?

Legislative change will allow the amalgamation to proceed without requiring a poll or unconditional support of all affected local authorities. We expect Cabinet will make decisions about any bespoke provisions following on from approved proposals, alongside decisions about the backstop for reorganisation of all other regions, in May 2027. This will enable all necessary legislation to be introduced in early 2027 to be enacted in time for the 2028 local elections.

Regulatory relief and support

Will there be any regulatory relief for councils participating in Head Start?

Head Start proposals should specify what the barriers are to implementation, including where councils are seeking change to any current statutory obligations. It will be a decision for the Government whether regulatory relief should be provided to progress Head Start proposals. It is likely that any proposals to support regulatory relief will not progress until after the general election. The underlying work to support long-term planning of services will still be required and appropriate representation arrangements will be needed for new governance structures so the work will still be useful.

Do councils whose Head Start outline proposals are accepted still have to complete a Long Term Plan in 2027? 

Councils’ legislative obligations for long-term planning will remain in place until any reorganisation is implemented. Long-term planning for services that will still have to be provided is expected to support the change process either in the context of an agreed Head Start proposal or to prepare for the backstop.

Will regional councils and successful Head Start councils be exempted from representation review?

Current statutory obligations to undertake representation reviews continue to apply unless the legislation is changed. However, the timeline for representation review work allows some flexibility in the timing and scope of preparatory work done prior to the resolution required by 31 July 2027.

What support is the government offering towards the cost to councils of councils doing an outline proposal? Will there be any support for councils participating in the detailed design process?

There is no funding currently allocated to support councils submitting outline proposals or participating in the detailed design process. Councils can submit on any support that may be necessary to progress outline proposals. It is expected that councils have sufficient capability and capacity to undertake reorganisation, particularly as Head Start is a voluntary process.

Many councils have been actively considering potential amalgamation for several years and a number have already undertaken preliminary analysis in response to the original Simplifying Local Government proposal announced last year.

Have you engaged, communicated with the Audit Office about Head Start?

Yes. We are in discussion with the Audit Office and other agencies regarding the impacts of the Head Start pathway on statutory requirements for councils. However, councils’ statutory obligations remain in place.

Backstop questions

What is the backstop approach?

Regions and councils not progressing through the Head Start pathway will be subject to a compulsory backstop process. During the transition, an interim governing body will exercise regional council governance and there will be no elections for regional councillors in 2028. This interim governing body will also lead reorganisation planning for the region.

How will the backstop work?

Cabinet will confirm the precise model for the backstop in 2027. The final models of governance will be informed by lessons from the Head Start, feedback from consultation on the SLG proposal, and further advice from officials. Legislation to establish the backstop arrangements will be in place prior to the 2028 local elections.

Will current unitary authorities be part of the backstop process?

Final decisions about the backstop process are still to be made. Cabinet will confirm the precise model in May 2027.  

What is the timeframe for legislation?

Cabinet is expected to make final decisions on the details of the backstop process for the reorganisation of all other regions in May 2027. This will enable all necessary legislation to progress through the House in the second half of 2027 and to be enacted early in 2028, including bespoke provisions flowing from the approved Head Start proposals.

Outcome of the rapid review of regional council functions

What was the rapid review?

Between November 2025 and February 2026, a rapid review of regional council functions was undertaken as part of the simplifying local government programme to identify which functions could be centralised and to provide clearer guidance to regions on what they need to address in their regional reorganisation plans. 

What areas were considered for centralisation through the rapid review? 

The first stage of the rapid review identified several resource management and biosecurity functions for further consideration focused on rebalancing central and local government responsibilities. It was concluded that this was most appropriately addressed through existing work programmes.   

The second stage assessed specific functions including harbourmaster functions, public transport fare concessions, dam consenting, and support for land transfers. Centralising these functions would involve disproportionately high transition costs, and is unlikely to significantly improve regional or system outcomes.  

Which agencies participated in the rapid review? 

The assessments were undertaken using an agreed policy framework and criteria, delivered by the responsible agencies for each function, including the Department of Internal Affairs, Ministry of Transport, Department of Conservation, and Ministry of Business, Innovation and Employment.  

This work was informed by consultation with the Ministry for Regulation, Te Puni Kōkiri, Te Tari Whakatau, Treasury, Land Information New Zealand, the National Emergency Management Agency, Maritime NZ, and the New Zealand Transport Agency. Separate engagement was undertaken with the Parliamentary Commissioner for the Environment. 

What did the rapid review find?

The review found most significant opportunities for centralisation are already being progressed through existing government work programmes. The remaining functions are still best delivered at a regional and local scale, as further centralisation would be costly, disproportionate and unlikely to improve outcomes.  

What actions will be taken as a result of the rapid review?  

Transport was a key function identified that required further consideration.  

The assessment of Head Start proposals will consider improved service delivery in key areas such as transport. This is likely to mean that Head Start proposal will consider the appropriateness of local and regional transport functions being consolidated or not.  

What about compliance and enforcement functions in the new planning system? 

The RMA Expert Advisory Group recommended transferring compliance and enforcement to a national regulator. Policy work on this will progress after the Planning and Natural Environment Bills are enacted, with future engagement planned with local authorities and others.