Komiti Ratonga Rangatōpū me te Rautaki
Policy, Finance and Strategy Committee
Meeting to be held in the Council Chambers, 2nd Floor, 30
Lower Hutt on
Tuesday 16 November 2021 commencing at 2.00pm
SUPPLEMENTARY ORDER PAPER
5. RECOMMENDATIONS TO COUNCIL | Te Kaunihera o Te Awa Kairangi – 16 December 2021
b) Kaupapa Here Tapanga Naming Policy 2022 - 2027 (21/1720)
Report No. PFSC2021/5/258 by the Head of Strategy and Planning 2
“That the recommendations contained in the report be discussed.”
19 October 2021
Report no: PFSC2021/5/258
Kaupapa Here Tapanga Naming Policy 2022 - 2027
Purpose of Report
1. The purpose of the report is to seek Council’s adoption of the Kaupapa Here Tapanga – Naming Policy 2022-2027 (the proposed Policy).
That the Committee recommends that Council:
(1) receives and notes the report;
(2) adopts the proposed Kaupapa Here Tapanga - Naming Policy 2022-2027 attached as Appendix 1 to the report;
(3) notes that community boards will use the process and criteria to assess proposals to name or rename roads, local parks, reserves, or sports grounds in the community board area with confidence; and
(4) notes that officers will establish a proactive Naming Register to strengthen the existing reserved names list already maintained by Council.
For the reasons that the current Naming Policy is not working as intended and several issues have arisen since its adoption. In particular, the current policy does not promote the partnership between Mana Whenua and Council. Also, the complicated nature of the criteria for assessing names and the existing decision-making framework have led to inconsistent decision making.
1. Sections 319(1) (j), 319A and 319B of the Local Government Act 1974 apply to the naming of roads. Decisions on the naming or renaming of open spaces must comply with the decision-making obligations set out in Part 6 of the Local Government Act 2002. Open spaces classified under the Reserves Act 1977 must be named or renamed by resolution of Council and in accordance with the Reserves Act 1977.
2. Within the legislative frameworks Council has a wide scope in approaching the naming of roads and spaces in the city.
3. The current policy covers the naming of all areas owned or managed by Hutt City Council and describes Council’s approach in all cases where official naming or renaming of an area is proposed. It is a mixture of Council policy and operational policy/process.
4. While only agreed in 2018, the current policy was reviewed in response to several issues raised since its adoption. These include:
a) that the policy does not promote the partnership between Mana Whenua and Council;
b) issues relating to the appropriate road type for a single sided street (houses on one side only);
c) issues in relation to where Te Reo Māori street names have been approved and a lack of priority for Te Reo names;
d) questions about whether or not Council has applied the correct street type designation, such as Te Ara, rather than an English language street type;
e) concern that the routes through which individuals are able to propose names and get decisions on naming/renaming eg developers submitting names for roads in their developments, are leading to inconsistent decisions; and
f) the complicated nature of the criteria for assessing names and the decision-making framework.
5. In addition, during a Council meeting in December 2020, Council accepted a petition from Wainuiomata students, which is attached as Appendix 2 to the report. The petition identifies two desired changes to the approach to naming roads and public spaces in the city:
a) by 2025, 50 percent of street names in the city should be in Te Reo Māori; and
b) to replace colonial street names with the names of Māori leaders. The street names identified are: Wakefield, Elizabeth, Victoria, High, and Hastings.
Discussion - Review
6. The review has:
a) explored practice from recently adopted naming policies of other local authorities, particularly those in the Wellington region.
b) engaged with Mana Whenua, on the issues with the current approach and comment on the proposed policy at hui in July, August, and September 2021. These discussions have included identifying mechanisms within the policy for engagement on naming/renaming.
7. The current policy does not actively reflect Council’s relationship with Mana Whenua and the cultural significance of place to our community. Instead, it takes a neutral stance and refers to recognising people who have made important contributions to the city and identifies six situations where naming of an area may be considered. These situations are:
a) the desire to recognise a local person who has made a significant contribution to the whole city or to their local area of the city; or a person who does not live locally but who nevertheless either made a significant contribution to the whole city or is a national figure; or
b) the desire to recognise a significant event that has affected the city or a specific area of the city; or
c) the naming of a local area that is important to local people; or
d) the giving of the keys to the city; or
e) new subdivisions including private roads, right-of-ways, and lanes; or
f) new suburbs or localities in the city.
8. The current policy includes 33 criteria for assessing proposals. These criteria are a mixture of policy and process conditions. This creates a complex assessment and decision-making framework to be overseen by Council officers and Community Board members.
9. Implementation of the current policy has not provided satisfactory or consistent results that deliver on Council’s partnership with Mana Whenua or the wider community.
10. The issues that have arisen with the naming of streets in new subdivisions and significant places have largely been due to the ambiguous nature of the assessment criteria and the difficulties this has caused Council officers and Community Boards when providing recommendations or making decisions.
11. The proposed Policy:
a) reflects the importance of Council’s relationship and Memoranda of Partnership with Mana Whenua;
b) prioritises the use of Te Reo Māori names;
c) ensures that the process of determining appropriate names takes account of the views of Mana Whenua, interested parties, and communities;
d) ensures that names are appropriate, and provides ease of identification for Council, public and key services (such as emergency, postal, and courier services);
e) ensures that names reflect the city’s unique identity, culture, and environment, and help tell stories about its history, geography, and heritage; and
f) applies a consistent and transparent best practice approach for accurate and efficient administration and communication.
12. The proposed Policy identifies that Council’s partnership with Mana Whenua is the key relationship when considering naming and renaming. It acknowledges the 2003 Waitangi Tribunal determination that Māori groups with ahi kā rights within Te Upoko o Te Ika rohe - Te Āti Awa, Ngāti Tama, Ngāti Mutunga, Taranaki, Ngāti Ruanui, and Ngāti Toa.
13. There is a clear process and simplified set of assessment criteria. The first step in the naming/renaming process is engagement with Mana Whenua, with further engagement on selecting the appropriate name for a road or open space. There are six prioritised assessment criteria for selecting a suitable name. Proposals made to Council or made by community boards will need to be supported by an assessment of the naming options against the criteria.
14. The priority order and criteria for the naming or renaming is shown in Table 1 below. Any proposed name must meet one or more of the criteria indicated. Dual names (Te Reo/English) are supported.
Table 1: Criteria
· An appropriate Te Reo Māori name
· Where an appropriate name is already in common use.
· Telling a story about the history of the feature, by acknowledging people and ensuring that women and under-represented groups are acknowledged. Te Reo names are encouraged where appropriate.
· Where a specific theme is associated with a location and is appropriate for new names.
· Reflects the local landscape, topographical features, or flora/fauna. The preference is for appropriate Te Reo names to used.
· Aligns with adjacent street/suburb/open space names, eg naming a new reserve the same as a nearby road.
15. The proposed Policy and process directly respond to issues raised with the current policy and, through implementation, will enable Council to respond to points made in relation to Te Reo names and the renaming of roads identified by petitioners in Wainuiomata.
Clear process and decision-making
16. The proposed Policy sets out a clear process and framework for assessing naming options and making decisions. Engagement with Mana Whenua underpins this process. The process will be applied to whoever identifies the need for a name or opportunity to rename a road, subdivision, or open space.
17. Community boards will need to use the process and criteria to assess proposals to name or rename roads, local parks, reserves, or sports grounds in the community board area. This may mean Council will need to revise the current terms of reference for community boards in relation to naming. This could include for example, making community board recommendations on names subject to final approval by Council’s Infrastructure and Regulatory Committee.
18. Under the proposed Policy a proactive naming register will be established to strengthen the existing reserved names list already maintained by Council. This involves Mana Whenua proposing names that can be applied to areas within the city. These names will then be used when Council officers and community boards are assessing naming options. Such an approach, combined with the revised prioritisation criteria, simplifies the policy and associated procedures.
Prioritising Te Reo Māori names
19. The proposed Policy and process prioritises Te Reo Māori names and establishes a list of names for future use. Giving preference to Te Reo names means the proportion of Te Reo Māori names will increase over time. Using the policy criteria, it is also possible to work with Mana Whenua to target the renaming of some roads in the city to increase the proportion of Te Reo names.
20. The Wainuiomata petition requested that 50 percent of street names in Te Awa Kairangi ki Tai Lower Hutt be in Te Reo Māori by 2025. There are approximately 1030 street names in Te Awa Kairangi ki Tai Lower Hutt. To give effect to the petitioner’s request and add to the 220 existing Te Reo names, approximately 300 street names would need to be changed in the next three years. The scale of such a change and the potential for disruption for the community and service providers means the negative impacts of such a change are likely to outweigh the benefits.
Replacing colonial street names
21. The second proposal in the Wainuiomata petition is to replace colonial street names with the names of Māori leaders. The street names identified are: Wakefield, Elizabeth, Victoria, High, and Hastings. Officers are not proposing to do this. In relation to the Wainuiomata proposal, once the proposed Policy is adopted by Council on 16 December 2021, its implementation could include using the criteria to assess the options for replacing the street names with the names of Māori leaders on a case by case basis.
22. While changing a road name can be disruptive and may create confusion for emergency and other services there are circumstances where a change should be considered. In the case of the colonial street names identified there is good reason that changes should be considered on the grounds of cultural sensitivity and demonstrated community support. Any proposed change will require engagement as identified in the proposed Policy.
Further work to implement the Policy
23. A process for confirming the correct spelling of Te Reo Māori names will be agreed in consultation with Mana Whenua. This will include a Te Reo translator ensuring the spelling and use of macrons is correct.
24. Mana Whenua are working together to form a naming group for Taranaki Whānui ki Te Upoko to Ika to develop a new process for proposing names. A separate mechanism will be developed with Ngāti Toa Rangatira.
25. Other work will focus on ensuring that:
a) Mana Whenua are notified in a timely manner – work has begun with the Council’s resource consents team to investigate flagging subdivision consent applications;
b) Mana Whenua presents their agreed names prior to further action being taken; and
c) consistency in applying the policy criteria.
Climate Change Impact and Considerations
26. Climate change impacts are not relevant to consideration of this matter.
27. Mana Whenua were fully engaged in the development
of the proposed Policy and continue to be involved in the development of
operational guidance. They will play a key role in the implementation of
Kaupapa Here Tapanga.
28. Following Council’s adoption of the proposed Policy, officers will engage with key stakeholders and community groups on the new Policy and process.
29. The most relevant legislation includes the Local Government Act 2002, Local Government (Rating) Act 2002 and the Rating Valuations Act 1998.
30. There will be some operational costs in updating street names as well as consequential costs to residents where street names require updating, correcting, or replacing. Funding for this work will be from within the existing Long Term Plan budget.
Appendix 1: Kaupapa Here Tapanga Naming Policy
Appendix 2: Petition From Six Year 13 Students from Wainuiomata High School
Author: Wendy Moore
Head of Strategy and Planning
Author: Matiu Jennings
Kaitatari Tumuaki Maori
Approved By: Matt Boggs