NORTH OTAGO - THE ELECTORS .AND THE ELECT

.A Study of Local Government

PETER T. F.AID

Thesis submitted in pa,rtial fulfilment of

the requirements for the Degree of Ji!Iaster

of Arts in Politica.l Science at the Uni­

versity of Canterbury, Christchurch, New

Zealand, .April 1967.

PREFACE

A study of this kind, using intensive interviewing, would

have been an impossible una_ertaking without the complete co-

operation of the local government personnel involved.

exception those interviewed displayed a wil;Lingness and

Without

enthusiasm to assist, which made my task so much easier and so

much more enjoyable.

I uould th01.0 efore like to aclmowledge rn.y sincere appreciation

to the following people for their assistance. The Mayor of

Oamaru, Er W.R. Laney, the members of the Oai-naru Borough Council,

end the Town Clerk and his e,dministrative staff. The Chairman

of the Wai taki County Council and Waitaki :Clectric Power Board,

Mr D.E. Neave, and the mei;1bors of these two local authorities.

The Chairman, i,;r H.C. Jeffery, end members of the Waitaki Hospital

I

Board. The Chairman, 1.lr A.1;. Malcolm, and members of the Oamaru

Harbour Board.

The second aspect of the study involved the mailing out of

q_uestionnaires to a random sample of the borough and county

populations, The resulting high response was most encouraging

and helped in no uncertain vrey to mako the study more complete.

So to the 500 - my gra1ceful tr. anks.

The typing of this thesi.3 has been the responsibility of

Miss Paulette Wiggs. To her a note of app['eciation for her

excellent handling of' the a_ra,ft material, and her preparation

of the final copy.

But without the encouragement and able:: assistance of Dr.

Austin Hitchell the study might never have materialized into

a full scale thesis. His supervision, his critical reading

of the chapters in draft form, and his frequent inspirations,

demanci, and receive, ny sincere thanks.

P.T.F.

PRE]'l:..CE

Il'PrRODUCTION

CHl\.PT.t::R ONE

CONTENfS

Drc.r..1atis Personao - The Elect

CHJ\.PTbR TviO Political o..nd Co::munity Be,ckg:rounu.

CHJ\.PTJ~R THREE Co:JDunity Proninenoo to Loce.1 Election

CHAPTEl( FOUR The 1 iachinery

CHAPTER FIYE Sacrifice or Satisfaction

CH£1.PTER SIX

i

1

23

52

75

1o6

Public Perforurnce c.nt:. Private Attitudes 117

CHJ\.PTER SEVEN Interaction

CHAP.rER EIGHT The Future

CONCLUSION

BIBLIOGRAPHY

146

166

197

INTRODUC1rION

Drains and dust-bins are not exciting things unless the

one gets blocked up or the other remains unemptied, For this

ree,son it is often argued ths.t local governnent is uninteresting,

and therefore the ordinary citizen cannot be e.?(pected to get

excited about it. Researchers into local governnent have hardly

helped this inage as their preoccupation v1ith the functions and

po,7ers of local authorities have tended to present local govern-

nent as a dull, colourless affair, Yet ver'-J little is lmovm

about the background of the raen and wor,1en responsible for the

ad,~inistration of local government, and even less is understood

e,bout the part played. by local politics in the environnent of a

town or a rural 001:n::mnity. This is perhaps the most inportant

element in the \7hole system of local governr.1ent and one which

is deserving of a 1:mch better fate than the scant disregard it

has received in the past. Local politics does have character;

and this study is an atteapt to capture it.

No claims are r.mde that the local governr:ient of North Otago

is in any way typical of local govornnent in other New Zealand

comaunities, for indeed no single area could possibly be dos-

cribod as 11 typical11 v It vrn,s chosen for the practical reason

the,t the locality nas vrell kno,m to the author and because it

seened of convenient size for a pilot study of this nature.

Oamaru, the largest to,m of the region, is spoken of

ii

proudly as the oldest municipality in New Zealand and the

largest borough in the South Island, It is situated on the

East Coast on the r;1ain rail and road routes, seventy-three miles

frou Dune a.in . Resting conto:c1tedly on a southern tongue-like

e:x:tention of the Waitaki River plain.1 in the shelter of a low

range of hills, Oar:.iaru I s gronth has been sto&>ody if not spectacular.

Between 1956 and 1961 the borough grew by 2.26% per yoar, col:lparing

favourKJ.bly with its noe,r neighbours of Tirnaru, rJith a growth rate

of 1 .36%, and Dunedin, with an increase of 1 .13%, It clso he,s

ono of the lowest rates of natureJ. increase in the country,

and a high ratio of persons over 55 to those under 20. As it

now enter its soconcl century as a borough its population is

13,600, livinc in en arec., of 2,840 acres. "With its smnll

artificic,l harbour, largo railwe,y yards, ample wool, grain wd

sm0,ll seed stores and numerous offices, shops £!.nd small factories,

Oar:1.aru is tho regionol contr0 for Hhe,t is generally cc,lled tho

North Otago a.istrict, •••.•• .An r.nclysis of some officid stc,tistics

sho,IS that, in terns of numbers euployed, comnorce is tho lor,cling

ocononic function of O2.naruo Tho hoadqur.rters of nost firns

ongr.,ged in coBnerciel c,ctivitios in North Otr.,go are concentrated

in the tovm. n1

North Otr..go is tho lend nhich looks to Or.r.1r,ru us its

1 J. V. Mccul2.y 11 Tho Ommru Tribut£,ry Region 11 ~ Now Zoe.lond Geographer Vol. 10, No. 2.

iii

regional cr.,pitnl, Its tricngulf.'.,r she,po is bounded on the north

by the Wnitaki River, by tho sen to the oast, end to the south and

,rnst by a nountc,in chain extending fron the Southern .Alps to the

see, nt Shag Point, thirty Diles south of Oru1aru. Ylithin this

e,roo, of 2,400 sq_unro niles he,s dovelopod 11 a connunity with n,

strong corpore,to fooling fostorod by tho redity of its natural

bounda.ries, 112 rather divided fron its parent province. In

recent years its e,verage Mnucl population increase of 6,43% has

been exceeded in the South Island by only one other county.

Ho'V/evor, nuch of this increase ,ms brought about by the conr:.10nce­

r:10nt of. construction work on the Bennore hydro-electric project,

which brought M ihflux of nore the,n 3,000 persons to Otonatnta.

54% of the population incronse between 1956 - 1961 ce.n bo attri­

buted to this factor so thd at present its populr..tion stends

at 13,800, The ;,·;astern corner of the region, above the snall

town of Kuroi7 is distinct in its nature and developnent because

of its broad interior veiloys, its rether berron appearance, ~d

its agricultural onphasis on lr,rge shoop stations, Below Kurov,

extensive pastoral f11rning on tho foothills graduclly gives ,my

to nore closely sottlod rolling dOimlMds. The only flr..t lnnd

is thc,t of tho \fai told river plain onc1 tho ne,rron extension upon

which Oauaru is situo.,ted.

2K. C, HcDoncld, White Stone Country. P, 12.

iv

The essentie,lly interlockirtg pnttern of the a.evelo)?nent of

the town and country has also been further by the growth of local

governuent, po..rticularly tho establishnent of tho various aa. hoc

authorities. Ov.ne,ru 's Borough Council first bognn '\c1ith nine

nen in 1866, ,;hile tho ne\1ly constitutoa. \:Tdtaki County Council,

held its first neeting with nine ria.ing nenbers eleven ye111,rs

later in Jenuary of 1877, The inportance of the Harbour to

Oanaru's early developnont is highlighted by the fact that en

officicl Harbour Board ,ms constituted in 1874, although it vras

not until 1878 that the equal representation of urban and rurnl

nenbers was introduced. In August 1923, the Wai taki Electric

Power Board, again with equal representation 1JU1d the inclusion

of one member representing the Borough of Hampden, commenced

operations. Prior to 1925 the Oanaru Hospital ,1as controlled

by trustees elected by the subscribers but government legislation

at this time saw the introduction of a further ad hoc authority,

the Waitaki Hospital Board. The general regional boundaries

of North Otago ,rnre accepted as the area of adrl.inistration for

the County Council. The Hospital Board does follow this same

arrangement, but the Po~er Board has extended its authority to also

include the HDkat2-ranea Valley, which is part of the Waimate

County. The rating area of the Harbour Board extends into this

sane valley, as well as including the Glenavy-Horven district

V

south of the \Taihao River; also part of the Waimate County.

However, its southern boundary does not extend as far south as

that of the Waitt:w.d County.

This study is a sociological one based principally on inter­

views involving the total r.1embership of the five North Otago

local boa_ies. Unfortunately three of the 1:1er.1bers d.id not take

part in the study, as one Borough Councillor and one County

Councillor, for reasons of their ovm, -rrere unwilling to be

interviewed. There is also an overlapping of membership as

four members are on two local bodies and one is on three.

However, where it was possible, a second interview was arranged

to cover the more specific questions pertaining to the second or

third locei body. This then makes the total number of people

involved in the study, thirty-nine men and one woman.

The survey itself took the form of a. series of interviews, each

taking between three and four hours, carried out under a bond of

secrecy. A schedule of about ninety questions involving pre-

dominently open ended questions and a lesser number which 1:ierely

required agreement with one of a given list of alternatives.

The open ended variety - "Vlhen did you first become interested in

politics?"; 111.:-Jhat kind of development would you like to see in

the area?" - all provided encouragement for the member to talk

about himself, with prompting where necessary, and it was here

where the valuable material was discovered. .All of them were

willing to talk freely, al though a nunber did adr'.1i t that they

vi

Ylere forced to think about things which they had never considered

before.

Unless a large research teroJ is available the only practical

method for trying to establish public attitudes is by a mailed

questionnaire. This rather laborious process was adopted for

the second aspect of the study as a three page questionnaire was

prepared. This included such things as the araount of discussion

of local politics in the hone, the taking of problems to the local

bodies, the qualities required for a local body r,1et1ber, the quality

of the local bodies, as well as the nornal items of personal

information, such as age, occupation, education and couununity

interests. These were posted, conplete with a covering letter

and return envelope, to 350 people in the tovm and 300 in the

country, whose nai-;1.es had been selected by a random sanpling method

frou the local body rolls. Sor;ie replacenents had to be raade for

those VJho had received questionnaires but ,,ere no longei~ on the

roll. Also two reminders, one including a second copy of the

questionnaire, were sent to those who had not replied within one

week. Of the 350 questionnaires nailed to the toym sronple, 251

vrnre returned coupleted and nineteen other incomplete or

unanswered, giving a percentage return of Tl% or 72% which

were usable. From the country sanple 204 or 68% returned the

questionnaire completed, twenty-one unanswered or incoraplete, and

vii

seven too late to be included in the analysis, all v1hich totalled

a 78% return.

It is from these t~o separate, but inter-related, sources of

ma:terial, then that the following study has principally been

woven, What is important is that a detailed collective portrait

of the local governuent nembers can be painted and then displayed

against the tapestry of the wider corm.unity. In this ,my the

distinctive attitudes and features of both the electors and the

elect in the rural and urban comaunities can be made to a:-ppear

more vivid.

CH.APT:t!;R 01\IB

- DRAlViA'l'IS PGRSONlill - TIIB. ELECT -

"Political iJ.achinery does not act of itself •. , .•• it has to be uorked by nen, ana_ even ordinary nen. It needs not their siL1ple acquiescence, but their active participation; and nust be adjusted to the capacities and qualities of' such nen as are

available."

John Stuart tiill.

The feeling a1;10ng New Zealanders that a; governing elite :· 4

,, ' ~ . ' should not exist is often 11ewed as sufficient evidenc@.for

believing that it does not. This often receives stronger

expression at a local govermJ.ent level, but here too the

managenent of public affairs 1:mst by necessity be in the hands

of a minority of influential persons. The ritualistic facade

which perpetuates the reluctru1ce to acknoTTledge the existence

of this elite continues to shadon the local political arena

so that very little is known about the background of trose

nen responsible for the aduinistration of local goverm:ient.

So as to shed light on the scene behind the facade it is pro­

posed to first investige.te the age, occupation, education and

place of upbringing of the elected menbers to see uhat

distinctive features euerge.

- 2 -

Tho 2.vorc,gu r,go of' tho uo .bors of tho f'iv0 loccl boo.ios

unciur stuCy Yi2,s 58, 3 yoc,rs, nhich a.oos support tho co:i1tontion

th, t osso:;.1ti8,lly tho po iplo responsible for loce,l govornuont

c,dninistrc,tion aro i,.1 lc,to ~iido.lo 2c60, 'rho youngest uonbor

n, s 31 • 2 yoc.:cs of a6o c.nc.. tho olc.ost 7 li-, 7, nith the. ronnindor

o.istributoct prc.doni .Li1tly towc.rc7.s tho ale.or one. o:-:: the. scc,lo

I'or, o,s tho tr.1)lll bolorr indicct0s, the distribution cu1 c.t no

';)oint bo so.ic. to corr-os1Ymcl. closuly to thot of' tho oloctorc.to.

TABL:G I .-. .._,,__.,...___,,_,...__,_ ........

'j;ho Lgo Distribut:'..o:;.1 of tho Loco,l Govorni;1011:c }fouburs

Conp2.rec. with tho Adult Populr,tion of Horth Oto,go

i'.-ga Grol:!pi1.1gs

All l'Ioubors

Adult Popul;:,tion

--~--.. ---.------------- ----- -------·------·--- -----· ------=-.,•..--------=---~•--2-1 - 29 18, 7~c (24-75)

3 _j . 33 7. 5) . (3) 22,3f ( 294-7)

l; 0 - 4-9 15, O}c• ( 6) 19 ,6>. (2600)

50 - 59 50,0;' (20) 16. 5~:, ( 2187)

60 - 59 20, 0/ (3) 11 • 91 ( 1577)

Ovor 70 7. 5;:, (3) 11. 0/ ( 11+54-) ..._, ______ ....,_...__ __ . - .... __,-.. ...,_.__----.-----~ 100, O;,. (40) 100. CY/ (13,24-0)

The oxtrono ovor-ro~_:iroscmte,tivenoss of tho 50 -· 59 8,go group is

tho nost significant dissiuilarity, 2.l though tho fc1llouing

docennic.l groujJ, tho sixtios is ,,lsc over roprosontoa. to the

- 3 -

cxto·rc o:E being nc,c,rly o.oublo tLct of t~10 sc1,1c cloct•Jrcto

grou;:i

uitl1 -~::w 231 o:..." th0 oluctors, 1Jll.t in noving ctoun fro;;1 tho

c.gu of fifty tho oor:ccl-tion of iL .. ;-1burs c.gos to tho popul;:,,-

tio~1 101.;cOiJJS progrussivoly ncgc.tiv0, S,'.) the.t tl10 :popuL.'.tion

tot2ls 601 • c.na_ tb.0 loc2 .. l boc.y ;1cu.bo:cs o.. noro 22;:0,

rctir() to 11 5 8.i.1C1. tho oo:;tonti:m is uoll supj?ort-Jd by tho

TABLE 2 _._._..__ ____ ,.._

'1'~10 Ago Distribution of' tho Rurcl cnc1 Urbo,n Local

G-ovornuont Loubcrs Co,·c1p2 .. rcc1 ,:ith tho HurLl end U:rb2 .. n

Ao_ult Populc.tions

l-1.UitLL Ulffi.P,1'i .Ago Lioc:!bors Populc.­

tion Houbo:rs Po::;iu.lc-

iT.&.. Z:GALl,i.i1) Actul t Popul a­

t ion Groupings tion

21 - 29 22, 1.0 ( 1 3 3 9) 1 5 . 0/' ( 1136 ) 22. 0'.,-, ( 331+960)

30 - 39 100 5, ( 2) 2G.5;.(1577) l SC(-1) l-o 1 ° 18,1'.(1370) 20,9>,(316550)

l+O - l~9 10, 5, (2) 30. 7> (-1237) 19,1>:(4) 18, O;, ( 1363) 19, Bi.( 298780;

50 - 59 63. 2, ( 12) 15 • )ju ( 912) zO O 8) JUo i' \, 16.8;,(1275) 16. 7~ (252750)

60 - 69 1 o, s;;~-( 2) 8,8> (527) 28. 6; ( 6) 13 0 9i ( 1 050; 11 • 3;·,( '170580)

0vc,:r 70 5, 3~:( 1 ) 6 °3i (371+) 9. 6; ( 2) 8,2>.(1375) 9.3~,(141195) ~---""'•-·- .... .-. ..... - "' ........ __ ..... ,_...___ ______ ~• ~T--------~---- -·-· ,..,_ _____ ~_

~ ...... -•-----•--- -------'l'01'At,

2 .. dul t lJO?ul2.tion figun,s. Yihilo 21~: of tho Ho',; Zoo.lend D.dult

- 4 -

p.JpuL tion is uvor tho 2 .. g0 o:i sixty; tho si1dlr·l' grou:p in tho

0en2.ru populc,.tion accounts for one-third of tho J?opulc.tion.

L1 co1;1p2.rison °:ith tho Non. Zo2.la:,,1c)_ populc.tion the 2.go of tl10

urbc.n L,oab2rs o_oos s,_,ou oxcossivo, yot in torus of 0cr.12.ru I s

popul2.tion it is loss so. '.l'he rurcJ. populc.tio~1, ts night bo

oxpoctcc, 9 hc1s 2, hoo,vior voightin,; torrc.rds tho younger ago

grou;9s, then doos oi ther the urbm populc:cicil or tho No\,

Zcrlnnd popul~tion. This, 2nci thu fact ·chc.t the 50 - 59 group

he,s io. :coprosontc.tion four tiuos thr.t vrhich 1,;r,Julo. bo oquitP,blo

for its ago group, is r0p:Ji1sib1o for the undor fifty rurd

c.dul ts . oin:; 1:101"0 seriously unc'_or r~.prosontod tl12,,1 tho oquiv2,­

lont groujJ in the tcvm.

In vio'l!ing tho vc.riuus locc,l boc.ios incdvic;_ually, 2.s is

dono in T2,blo 3, H is soon tho.t tho 2,vor2,go ago of tho Borough

Council was 53) nhich is rE,,thor lo,mr thc,n the, ovorr,11 r.vorago

As on0-qu2.rtor of its no:1borship is ovor sixty, r,nd

one-third c.r0 unc1or fii't:y, it sugsosts th2.t tho c_)uncil is uoro

ropr0scmt2.tivo them 211y of the; othor boclios, 1rho Hospital

Boz.rd hc.s tho highost r.vorago 2,go ct 62. 8 yoo.rs, r.nc_ uhilo tuo-·

thirc.s of its : . .10,-1borshi)) is ovor sixty, Jnly ono is urn:1.Gr fifty

yor,rs of ag0. Tho Cou:1ty Gou 1cil m10_ tho Hr.1~l)our Bo2r0. both

d:i.spL'y n ;dghor tha~L zwerc.gu porcontago betwuon 50 - 59,

inciicr.tivo o:::' their high rurd couposition.

·;rith en r.vor2.go 2.go 0£' 56.8, is thorofurc the soc:mc1 11youngost 11

- 5 -

T.A:BLE 3

The Age Distribution of the Local Govornnent

TEenbers

.Age O,B.C. W.P.B. O.H.B . W.H.B. rr.c.c. 1 All nembers Groupings

21 - 29

30 - 39 1 1 1 7,5% (3)

40 - 49 3 3 0 0 15,o% (6)

50 - 59 5 3 5 2 5 50.0% (20)

60 - 69 2 2 4 2 1 20.0'fo (8)

Over 70 1 1 3 1 7,5% (3)

TOTALS 12 9 10 8 7 100. o% (40)

Average Age 53.0 56.8 57.2 68.2 61. 7 58.3

body, an6. also presents a distribution of age which is reasonably

representative.

1 These abbreviations will be used throughout the study. They refer to; 0,B.C., Oaaaru Borough Council; W.P,B., Waitaki Electric Power Board; 0 .H.B., Oanaru Harbour Board; Vf,H.B., ~faitaki Hospital Board; lJ.C.C., VTaitaki County Council.

2rt will be noticed that there is sone discrepancy betneen the total of the "All menbers" coluu and. that of all authorities added horizontally. This is beca,use the Oa1:1aru Borough Council has a representative on each of the three ad hoc bodies. Simi12,rly one 1:laitaki County Councillor is also on the Waitaki Electric Power Boe.rd and the Waitaki Hospital Board, and a se­cond Yfaiteld County Councillor is a Eier.iber of the Waitaki Electric Pov1er Boara.. This overlap uill occur in subsequent tables.

2

It hc,s o:fton b0vil concluc1-uc1 t:12.t tho c.d hoc boc:.ios c:ctr2ct

olcior rotir-.;a_ ,,011 \.'h,) coul(i pff'cni to ,~:Lvo sc; 1.~ loce,l c~;munity

so:cvico, but t:10 ii~;ti.ros )rvcoctii11!, corte,inly C.J rut support

t~1is conclu.sio;1 c,s t·-.:: o · the 2.cl h·:::,c bo6.ics hr;vu o.v..;rc-.g_:0 egos

r(' {)~L ~)0, 'l'ho urbc.n g::.,vorn'.:lrs

yrulco,~:.o :m dl locrl bod.Ls thore soo,1s littL, Sl1.)J)ort :for

concludin;; thrt tho:;:--o r.rc. too rn·,n~r Donbors ·.Jwso 2,go should

disqu1:,lify tllG,t fr r1 locc•.l govor:cuolYG sorvic0.

L j)cirum1frl criticis:.1. lovollod Lt 1002,l boc.~ios is thc-,t

t~wy c.ro Yl'Jt occupr.cionc.lly roprosuntctivo" 'I'hcr::; e.ru too

no.ny fr.r,~1ors en tho l-k:r1)our BoG.rd, thcr. c.ro ,GO'.l fou businoss-

,w:1 on tho B(:roug;.-1 Colncil, c.rs ty::;iicc.l oxprossi.::ms of tllis

cttitu.d.c,

tost tl1c. V0,lic-.it:7 o:. th0so criticis:1s, 2.~1d thus the.; question

is J)osod;

Aa :i.2T ,oo.ic.to

2.;9pc,rontly c.ocs not co~1Si0.cr thc-:l:; th;,:; sizo c,,. 02:.1t\ru. c•.ncc tho

'l'his thca forces rolic11co UJ?OTI :i:'igu:cu s c-:.r,1pilod fr::iu tho ,:~c..ilod

~ 7 -

quost:Lr,mc.iros i cs tho. ros;?Onc;onts 11Gro 2,s>:od to str.to thoir

-)CCU).ji.tio:.:.s, or if t}h)Y woro rotirod t:1uir ;Jast occtqc.tion,

listud.. J".:'urtJ1cr tn:,diti,:i;.1r,l "i_Jroblv,s of occupctionc.l 211r-lysis

1'lUst o.lsr:.i bo c,J;?rociduc: r,s it ct t:L ;c,s !?rove cl difficult to

clnssi:i:~y su,.io of tho oocu:1Jo.tioi:1s, anct thcrof-ro thcro is c,

cork.in dogroo :):f c.rbitr2.rinoss 0,bout so:-10 cf the clnssificc-.tioi1s.

ov0r ruproso;:1tsd e.s noc.rly GO;c of the rur2J. nonbors belong ·b

As thu ·12nu2,)_ °''orkorn le.ck r:,1 0quit2 .. l•J rcrprosontc,-

ticn it is only the. ot}1or t·,.rc, ro ·,cini;.1g clnssus \ihich do hc,vo

In turninf, to

tho urb2:1 fi6urcs it is 11.::iticor;,l"' thf':c 52): of tho urbc.n

roproso,.1.te.tiv0s bolonr~ to the p1·cfossionr,l or G.d:,1iiistr2.tiv0

clr,ssc,s,

coLLmnity tc, ,10ro c >ilSciously vion 1002,l ;;ovor11,·!1..mt c.s 2.,

busi"nssli!c:. J.10c0ssity 2,s po;,-or t0;-1ds to n.2,turt.lly gnwitc.to

tonr,rd.s tl1is group. •r11\j fo.ct the:i.; 76~c of tho Christchurch

no;·1bors c.ro in tho sa.uo t,m clo.ssos servos to strongtlwn this

o,rgunont ., 3 A furtl10r sne.11 toi;rn tono.2,., cy is thu f ll,ct the.t

tho lclrnuc,l 1nrk01's e,ro r02.sonrcbly roprosont2,ti vu, which

- G -

'f~10 Oocu::;>G-tions o:: tho I;.urcl 211cl Urbr.~1 Locc,l

0ocupc.tion

Profossione:,l; 'l'ochniccl

A.0-1.1i . .1.ist:c2..tivu 1

Exocutivo 2.nc'!. . . 1 ... • c11ngur1.t_._

Cloricc,l e,nd. Sdos

j)·2.rt10rs 2,:na_ Rolo,tod

L2.~1Uf,l ··.,::,,rkors

Otl:..:rs

llUlLLL

5 0 3; ( 1 ;

10.5/ (2)

3 3, ( .. \ ' I' :) )

78,91, (15) 56.0jc (135)

5.2\. (1) 1s.2~ (37)

1 00. 0~. ( 19) 1 00. O;. ( 206)

ffi:IBAN

38.1;. (8)

Populf.tion

8.8;., (22)

11. 6;, ( 29)

. ( 6c. \ 26. /+;: 0)

34,0;. (85)

4, 01:: ( 1 0)

1 00. O;~ ( 21 ) 1 00, 0~ ( 250)

contrc,sts s}i2.rply 11ith tho situ, .ti. ~1 iil Christoi1Urch rrhor0 tho

r~u,3,,·,t,·,d by ·u·--,ly 1,S· o:" th. -~,.•·11)· .·,rss 1+ -...,.t._ ,._., _,.__ '-ti v •- __ ,__, ~~-" -,,___ V 0 '.11l10 picture tho:1 is oiio

of uuch closor ro1n·oso~ctC';tivu:1oss in tho rurel 2,Tocs, c.11ct 2,n

urbc,;1 co;J;_mnity sh::,,;d:.;.:,: cJ·rnio.orc·;lo sL,ilcrity, botwoen tho

i+'"b' '1 l 1C.

511his i:1cluc:L:;s ono Y!Oilc.;·~ nc.,,:bor r:h.~iso husbc,,.18. is ,_, bc,rristo:i:' 2.11c-;, s~•licitor,

- 9 -

nenbers and tho popul2,tio11, but rritb o., gro17ing enphasis on o,

governing oli to growing out of tho adninistro,tivo, oxocutivo, 8.nd

. ne,nagori2,l cl2,ssos.

If this p2,rticular group :,1ow soons doninant in 0m.w,ru I s

local politics it soorJs nocossary to ask whether this is a

rocent devolopnont. Tho 0anaru Borough Council offers tho

only real p,:.isaibility for a study of this kind., although it iims

found that no rocords Here available of tho occu:p2,tions of the

Borough Councillors of the past. Theroforo tho natorio,l

necessary for Table 5 vrc,s g2,thered fron inquiries put to so1-;ie

of tho older Borough Council identities. Tho arbitrariness of

tho categories, tho inpossibility of carrying tho study back

before 1900, and the soallness of tho s@.np1e nakes it difficult

to produce any 1:1ore than postulE\tions, yet it does soe;:1 tho.,t the

11pe,tricians 11 of tho 0an2-ru society, tho l[l,rge business proprie­

tors, se,w their gradual decline o,s e, local politic11l force in

the lc.to 1890's and ee,rly 1900 1 s, at a tine ,ahich also witnessed

their econo• ic decline These nere the original 11 tom1 fathers'',

non of sone ,vee1 th and prestige, v,ho wore expected to be e,ctive

in the local politics nerely because of thoir elevated social

position. Their ne.ntel graa_ually ,ms e,ccepted by the towns

snall business proprietors, perhaps in o..n attenpt to g2,in social

stctus which they 12,cked, so that by tho 1920 1 s all but three

- 10 -

TABLE_2

A Conparison of the Occupations of the Meobers of

the 0Dnaru Borough Council Since 1 900

Occu- 1900 1905 1910 1915 1920 1925 1930 1935 1940 1945 1950 1955 1960 1965 pation

Professional Technical 1 1 3 3 1 2 1 1 1 3 4 2

Large Busi-ness Pro-priotors 3 1 1 1 1

Snall Busi-ness Pro-prietors 6 9 8 7 10 10 9 7 7 4 5 7

J\fa.nggers/ Directors 1 1 2 2 2

Conpru1y Sec-retaries/ Accountants 1 1 1 1 1 1 1 1

Clerice:,l or Sales 1 1

Skilled Tradesnen 1 1 1 1 2 2 2 2 3

Others 2 1 1

of the governors were in this category. Sono nar:1os of local

proninence fee.ture aL1ong these "entrepeneurs 11 but all the snI:1e they

were El.en providing services to the conrnmity - the coBJ. nercha.nt,

the grocer, the bookseller, the tailor, the land agent. A slow

1 1

5 3

1 1

4 4

1

2 3

- 11 -

thinning of their r8Jlks on the Borough Council is evident fron

the table so thc',t at the prese:c1t tine only three bolong to this

group. It is likely also that this decline parallels the ch8Jlging

pattern of 0anaru 1 s connercial activities, as increasingly in the

last ten years a steady influx of outside business interests has

continued to replace foruer fanily businesses of long local

standing, In a rather fal toring and uncertain nanner the replace-

Llents for the "entrepeneurs" have been the adninistrative group

of i:J.o,nagers, conpany secretaries and accountants, nainly during

the past ten years, The profession:;iJ_, technical class ilisple.ys

a pattern of local governuent particip1:1tion 11hich is rather

irregular, reaching conparative peaks in 191 0 and 1950. An

interesting feature is that apart frorJ one Dan in 1905 the first

year when salary or VJage earners began to appee,r anong the Borough

Council ranks vms 1935, as previou_s to this e,11 were self eIJ.ployed,

In the 194-0 1 s e,nd 1950 1 s the nunbor of salary and nage earners

rose as high as four, aria_ now in the 1960 1 s nine are in this

sane category, De spite the problouatical aspects of this

interpretation of a patrican decline, an entrepeneur rise and

fall, and a Bore recent unsteady increase in an adninistrative

elite it n-ould seen that in the future this newly developing

group vrill increase in size as the other groups decline, How-

ever, this is conditional on a progressive 0auaru Yihich would

- 12 ...

engender a changing attitude towe.rds local gov0rrc1ent; - an

attitude indicating a greater appreciation of the business and

adninistrative needs of Oex1aru, and hence the need for coupetent,

qualified adr.1inistro,tors.

Table 6 shovrn a nore detailed. ru1DJ.ysis of the vc:1,rious present,

or if retired past, occupations of tho local governors, The

nur:iber of differing occupations is significant, yet of principle

interest is the fact that tvw-thirds are included in the three

categories of farners, nanagers and directors, and accountants and

cor,1pany secretaries; serving to reinforce the douination which

these groups have over North Otago 's local governuent, The

Borough Council and the Hospital Board both show a ,-;ide variety

of occu::_Jations which ooBpares favourable ,-,ith the County Councils

6 and Harbour Boards sparsity of occupational type. Twelve local

body positions are held by retired nen, two thirds of then being

urban governors. This does not seen to be unduly high and does

not provide uuch annunition for those who night consider that a

large nur-1ber of retired i:1en is indicative or" a loyrering of the

quality of local governnent. As was shown previously, in

regards to age, the local bodies have no unreasonable excess of

older, retired non. Furthernore it woula. seei.1 that with retired

6The large nw::iber of farners on the Harbour Board is principally beco,use the Harbour Board rating area does not correspond with the County bound.aries, 1md therefore as nell as the non-:1al four urban and four rural net1bers two further rural uen represent the Harbour Board area, which extends north into the VJainate County.

- 13 -

TABLE 6

The Occupations of tlio Local Govornnent Me:~1bers

LOCAL BODY Occupation O.B.C. \! .P ,:;_,. O.H.B. \:.H.B. \l. C. C. 1rOTAL

Farmers 3 7* 1 6 16

Managers/ Directors 1 2* 2~~ 2>i• 1 ~~ 6

Accountants/ Conpany Sec-retaries 4 1 4

General Engineers 1 ,;, 2'~ 2

Carpenters 2,:, 1 >i< 2

Builders 1 1 2

Professional Engineers 1 1

Secondary Teacher 1 1

Bookseller and Stationer 1 ~~ 1

Land Agent 1 1

Cor:mercial Traveller 1 1

Electrician 1 >i< 1

Radiographer 1 1

Housewife 1 1

TOTAL 12 9 10 8 7 40

* Indicates a retired nenber.

- 14 -

nembers on all local boa_ies, except the County Council, living in

Om-:iaru, it would enable theu to cope with any council or board

business which deuands ii:u:iediate attention.

Educational qualifications do not appear to be a consideration

of any inportance in the election of local governnent Der:1bers,

V\Then the respondents of tho nailed quostionnaire were asked to

state their preference for seven listed qualities 11 a good standard

of education" received a nere 6 .39~ of the total support fron the

urban population ana_ 8. C},}S fron tho rural replies. Ho"\vover, it

would appear that the voters are a little inconsistent in this

attitude for when a person with high educD,tional qualifications

is willing to stand_ they are quick to offer hin support, 7

It is a reasonable ass.unption that those Hith a higher

educational background nill nornally take a greater interest in

cor:u:mnity affairs, and therefore a greater interest in standing

for local goverm1ent. This does seeEl to be the case in North

Otago. The following table again uses nateria,l fror.1 the

71n the 1965 election a candid.ate for the Borough Council, who had lived in Oanaru for less. than three years, belonged to only one organisation in the tovm, but who had a University degree was duly elected. In the field of fifteen he was the third highest vote getter. He hinself connented:- ·

"I 'n certainly very cynical about the voters, I finished third top when I vms lmovm to very few people in Oamaru. I'n sure ny barber got a lot of votes for ne by Berely passing ny 11ar1e around. I think that people were only too glad to be given a nano that they could support oven although they knew nothing about no whatsoever, 11

- 15 -

TABLE 7

The Educational Background of the Rural and Urban

Members Coupared v-rith that of their Respective Populations

Age at the Conpletion RURAL URBAN of 1!'on1al Education Me;:ibers Population I.foubers Population

Under 14 21.0% (4) 32.0% (65) 23.8% (5) 28.o% (70)

Under 15 21 . 01/o ( 4) 29.5% (58) 9.5~1a (2) 24.8% (62)

Under 16 15.8% (3) 21,5% (44) 23.8% (5) 19,6% (49)

Under 17 26.3% (5) 11. o% ( 22) 14,3% (3) 14,4% (36)

Under 18 10.5% (2) 4-W~ (8) 4,8% (1) 2. Cf5/o (5)

19 and Over 5,3% (6) 3. ofo (6) 23,8% (5) 9.6% (24)

Not Stated 2, Cff; (5)

TOTAL 100. 6%( 19; 100. 0%( 203) 100. &Jo( 21) 100, <Jfo( 251 )

mailed questionnaires on the educational background of the popula­

tion, and not unexpectedly, shovrn that the urban population ha,s a

higher standard of education, as 26% continued their schooling

past the age of sixteen, whereas only 18% of the rural citizens

had done the sruae. Further, 1 O;~ in the town have received

University, or higher education, co1:.1pared with the country I s

3%, A cor1parison of the rural and urban elected mei:.1bers

reveals that ar;iong both groups 42% have continued their education

past the age of sixteen, al though the urban neubers have a much

- 16 ...

greater mmber (23.8%) who have received higher education.

Both groups corapare favourably vlith their respective populations,

particularly the rural governors who rank 24% ahead of their

citizenry in continuing their education past the age of sixteen.

But while the conbined representatives do seer.1 to have

received a slightly higher education than their constituents

it is hardly high enough to conclude that the standard is very

gooa_, It appears likely that vlith the aclninistration of local

body affairs becoming increasingly teclmical and conplicated

the denand for nen with higher educational backgrounds will

rise. Inevitability L1ight partly talrn care of this in tine,

as the inproved educational opportunities should be instrunental

in gradually inproving the academic background of the nen and

woman who move into local adninistration in future decades.

Remeri1bering that nearly 50% of the nenbers are 50 - 59 it

should be pointed out that many of them had their education

suddenly curtailed because of the depression in the 1930's.

Thus, it is feasible to consider that the standara.s of educa,tion

might have been sonewhat higher had these nen not been

affected by the depression.

In considering the individual local bodies, as is done in

Table 8, it is noticeable that three bodies, the Borough Council,

the Hospital Board, end the County Council have one-quarter

- 17 -

TABLE 8

The Educational Ba,ckground of the Local Governncnt

Menbers

Age of Conpletion of ForTial Eauca­

tion" 0,B.C, \i.P,B. O.H.B. H.ILB. W.C.C. TOTAL

Primary On]y 3 1 1 2 2 22.5% (9)

Secondary 10 15 2 2 3 1 1 15,o% (6)

Secondary ,co 16 2 1 4- 1 20.o% (8) I I

i Secondary ,to 17 1 4- 2 1 3 20,0% (8)

I 18 7,5% (3) Secondary /to 1 1 1

u . ·t1 n1vers1~ or Trainin , College 3 1 2 15oo% (6)

TOTAL i

10 8 1 oo.o%(40) I 12 9 7 I I i

of thei) neuberships with only prinary education, yet this is I i

balance1 in the case of the first tvm by the fact that they have a

furtherone-q_uarter of their r:ienbers with university or training

colleg~education. The local bocly with no n(;lnber having re-

raained~t school past the age of seventeen is the Harbour Board

I fouor closely by the Power Board, who do, however, have one

I

- 18 -

university ea_ucated r:1er:iber. 8

Finally, of those who went to a Secondary School 681~ went to

public schools of vrhich 4-7% ( 18) attended 1J1ai taki Boys' High

School, Oanaru, and a further 107~ (4-) Otago Boys' High School,

Dunedin. A further 1 (Jl/o nentioned that they had attended a.istrict

high schools or technical schools, while only two nen attended

private schools. As regards higher education, which six had

received, two graduated frora the University of Canterbury with

Bachelor or' Engineering degrees, tvw from the University of Ota.go

with a. Bachelor of Arts degree, and a Bachelor of Science degree

respectively, one he,d attena_ed pa.rt tiue for study in accountancy

while the sixth ha.a_ graduated fron the Dunedin Teachers Training

College.

Realising that nearly 5crfo of the local body E1enbers, who

attended a. secondary school, were pupils at one of the local high

schools the fr.mediate inference is that there has been a lack

of geographical uobility. This is indeed true of the rural

representatives as is evident fron Table 9, but hardly the case

for the tovm nenbers, as only 24-~~ of theu were brought up in

8conparing these figures with the Christchurch survey tv10

things a.re noticeable. Firstly, both groups of local bodies have the sane percentage (5790) of their r,1enbers nho left school before they were seventeen. Secondly of the Christchurch local body personnel 34-% have had University or Training College education, whereas in North Otago it drops to 15%,

- 19 -

TABLE 9

The Places of Birth and Upbringing of the Local

Governnent Menbers

Brought up in - RURAL URBAN

Oanaru 23.8% (5)

North Otago 63.2% (12) 14.4% (3)

Dunedin ana_ Environs 10.5% (2) 42.8% (9)

Rest of South Island 10.5% (2) 9.5% (2)

North Island 5.3% ( 1 ) 9.5% (2)

Overseas 10.5% (2)

TOTAL 1 00. CY/a ( 1 9) 100. o%(21)

Oamaru. This conpares with the 63% of the rural governors who

have continued living in the saJ::i.o area in which they were brought

up. The relative mobility of the two adult populations,rrere

gauged from. naterial taken fron the nailed q_uestionnaires and

showed that 29% of Oanaru' s adult population was brought up in

the town which is therefore only slightly higher than that of the

urban nembers. Ar,10ng the county popule,tion Li£% indicated that

they had lived all of their lives in the Waitaki County. The

1 ?5/o difference between nembers ana. corn:iunity does suggest tha,t

some iraportance is placed on the length of residence in tho rural

- 20 -

community, such that if a candidato is "a native son" he is

likely to receive stronger support. Table 9 also indicates

that 41% of the urban representatives were brought up in

Dunedin or its environs before noving to 0ar.1aru, which is rather

striking, pa,rticularly in the light of a recent geographical

survey of the to-rm. 9 This shovred that 12% of the present

population have E1oved frm:1 Dunedin, and another 5% fron coastal

0tago, stressing that people brough up outside the to,m have

moved into local governnent positions with r:iore Hillingness than

the native born 0ane,ruvians. It is al so likely the,t the

mild spirit of conpetitiveness, which has entered 0anaru's

local governnent, arrived with these nen to weaken the rural

com..r:iunity attitude present in 0auaru, because of the strong rural

influences of the past.

Both the local governors and the questionnaire respondents

who had moved into the area were asked to give the date of their

arrival, the results of which appear in Table 1 0. Because of the

smallness of the sanple the rural figures lose a lot of signific­

ance, although it does indicate that the percentage of both neubers

9rn May 1965, the University of 0tago Geography Departuent carried out a survey of 0arJaru to deternine the extent and cause of 0ar,1aru I s recent rapid growth. The survey covered 720 house-holds or 2342 persons. Souo of the highlights were as follows:-36% of the present population had never lived outside the borough; 22;1/~ noved fron elsewhere to reside locally before 1950 a11d another 41;1/o since 1950; 12% of the present population of 0anaru cari1e fro1a Dunedin, 2% fror:i Invercargill, 2% frou Tinaru and 3% fron Christchurch.

- 21 -

TABLE 10

The Decade of Arrival in Oamaru or North Otago

of the Local Governnent Members Born Outside

the .Area, Conpared with Sinilar Eenbers of the

Adult Population

RURAL URBAN Decade Ivienbers Population i'/Ienbers Population

1900 - 1910 1.o% (2) 6.3% (1) 0.4% (1)

1.911 - 1920 9.0% (2) 2.5% (5) 6,3% (1) 3.2% (8)

1921. - 1930 4, 5% ( 1) 6. o%( 12) 12,5% (2) 5.2%{13) ' '

1931 ..:. 1940 4,5% ( 1 ) 6.5%(13) 25,o% (4) 8. 7%(22),

1941 - 1950 9. oc;b (2) 8. 51S( 17) 31.1% (5) 1f1(~7) '< I '

1951 - 1960 20.6%(42) 12.5% (2) , 26 /7%(6 7)

1961• - 1966 4. 5~; ( 1) 7, o%( 14) 6,3% (1) 15, Cf/o(35)

TOTAL 100. CJ% ( 7) 100. o%( 1 05) 1 00. 0%( 16) 1 00. ayo( 1 73)

and population who noved into the Waitaki County before 1940 is

very sirailar, The uassive rural population increase in the 1950 1 s

is a result of the Hydro Electric Po,rnr developr:ient on the Vfaitaki

River and the establish11ent of the to,mship of Otenatata in the

late 1950 1 s. The greatest influx of urban governors occurred

between 1930 and 1950 as 56% of the ueE1bers CaL1e to Oanaru at

this tiue, coL1pared with 2C/fo of the population, Of the adult

- 22 -

population 42% have arrived since 1950 but the figure is only

187S for the oq_uivalent poriod for the urban governors. The

picture then is one in nhich the rural gov0rnors are nore

likely to be nen brought up in the area, while the largest

group of urban representatives are men who formerly livea_ in

Dunedin, or its environs, but car,10 to live in Oenaru between

1930 and 1950.

POLITICAL AND COi,ll.JJHITY BACKC'rROUND

"Politics is perhaps the only profession for which no preparation is thought necessary"

R.L, Stevenson

A detailed analysis of the a,ge, occupational, and educational

background of the local governors however hardly provides much

insight into the more intangible connections linking these few

citizens who diSJ?le,y willingness to serve their local community.

An importent aspect, which must be investigated, is to try to

discover what motivations were behind their decisions to enter the

local political arena, with all Hs accompanying hours of work, ill

considered criticisms, and lack of tangible rewards, Was it their

family background, their 0~111 interest in nationa,l politics, their

past community service, their community al truism, or were many of

them 1 as one member put it, "bluffed and coerced into stancting"?

It is proposed to examine each of these possiblf;l reasons for

standing, in the light of the comments from the present local

members, to see if any one in particular seems to provide a vital

boost into local govermnent prominence.

It is generally agreed that the preadul t political environ­

ment of an individual plays an imJJortant part in the establishment

- 24 -

of his or her political ideals, and hence, later political

behaviour. Thus it seems reasonable to assume that if a

family took a greater interest in nrtional or local politics,

then it v1ould manifest a greater concern. in the individual

ancl thereby possibly arousing a willingness to stand for commun-

ity government. Table I shows the analysis of answers to the

question; "How interested would you say your fa,ther was in

politics?"

TABLE I

F'ather' s Interest in

Politics

Rate of Interest O.B.C. Vi.P.B. O.H.B. W.H.B. 1ii.C.C. TOTAL

Very Interested 3 2 2 1 20.0% (8)

Moderately Interested 3 5 6 4 40.w; (16)

Slightly Interested 6 2 4 25, 0% ( 10)

Not Interested 2 2 2 1 12.5% (5)

Unable to Recall 1 3. 57'~ ( 1)

TOTAL 12 9 10 8 7 100, 0% (40)

Although the 20% ranked in the very interested category does not

indicate that politics nas of great interest to many of them,

the fact that 12% only were 11 not interested", compared with the

- 25 -

25% in the same grouping in the Christchurch study, suggests

that a large number of their fathers were at least not

1 apolitical 1 • 60% of the rural members rated their father I s

political interest as "moderately" or "very" which compares

favourably with the urban members 45%. However, this is

quickly spoilt as a further one-quarter of the rural members felt

that their father's were not interestea. at all in politics, and

thus it is not feasible to conclude that the rural members

fathers, the majority of whom are farmers, took a greater

interest in politics.

The amount of political discussion in the house is likely

to depend on the degree of interest shovvn by the father, but

Table 2 can hardly be said to reflect the same results as above.

In fact it goes even further in negating the hypothesis of early

family politicalization as 6afo concluded that they "rarely" or

"never" discussed politics in their homes. Again the rural

governors were slightly higher in the top two categories but

also nearly 7ofo felt the,t "rarely" or "never11 was m1 appropriate

description of their fauilies political discussion, compared

with the urban 54%. In considering both Tables together no

particular local body appears to be significant, al though the

Borough Council could be said to have a slightly higher

record of father's political interest and home discussion,

.. , ''"''•

- 26 -

TABLE 2

The Amount of Discussion of Politics in the

Home of the Local Government 1fombers ·when

They Vere Growing Up

.Amount of O.B.C. W.P.B • 0,H.B, W.H.B. w.c,c. TOT.AL Discussion

Frequently 1 1 1 1 1 1 o. CJ% (4)

Fairly Often 2 2 1 1 o.0% (4-)

Occasionally 2 2 2 2 20.Cf/o (8)

Rarely 6 4 2 3 4 42.5% (17)

Never 1 2 3 1 2 17.5% (7)

TOT.AL 12 9 10 8 7 1 oo.o% (40)

"Did your father support any particular party?", was a

question asked of the members. Table 3 shows, by local body,

hoy; they answered. 1Nhen asked what party it was some dis-

crepancies occurred, either for reasons of age, or because of the

variety qf ~ p·ol;Lf&~al'iparties ')ii6tive during the early 1900 's; , ' I ' -)~<\\:•,''.\,, \::~ .. ~

Therefore 'bet:M'Ern "->tl\e straight party labels, Liberal, Reform,

National or Labour, other replies included "Liberal, le,ter

National"; "the party equivalent to the present National Party";

and "the Liberals, later Reform/United~ later National 11• If

two basic divisions are accepted, i,e, the Labour Party and the

- 27 -

T.lIBL:\!L-1.

Father I s Support for a Political Party

O.B.C. W,P.B. O,H.B, W.1-LB. w.c.c. TOTJ'.L

Yes 7 7 7 7 6 75.Cf/o (30)

No 5 2 3 1 22.5%. (9)

Don't know 1 2,5% ( 1 )

TOTAL 12 9 10 8 7 100. 0% (40)

predecessors of the present National Party, then all but three

gave their support to the "party of the right". Of those whose

father did not support a party seven out of the nine were urban

representatives, while the other two rural menbers were foreign

born, which does ina.icate the typical high support fror;1 the

farming community for the party of the right.

When the present member's political preferences were investi­

gated, as shovm in Table 4, it was found to be surprisingly

siri1ilar to that of their fathers, as 76% did not r:1erely state a

preference but were subscribing members in either the Na,tional

or Labour Party, in the same proportion as that of their fathers.

However, 2Wo have changed from their parent preference, 11%

changing from no earlier preference to present party membership

- 28 -

and 9% now expressing no party affiliations. 1

TABLE 4-

Political Party :iViembership Preferences of the

Local Government Members

Yes, National

Yes, Labour

No

TOT.AL

0,B,C,

4-

2

6

12

W.P,B, O.H.B. W.H.B. W,C,C.

7

1

1

9

8

2

10

1

1

8

6

1

7

TOTAL

68.3% (28)

7,3% (3)

24-, 4-% ( 1 0)

100.CY/~(4-1)

\Then those who have joined a political party ,.-;ere asked what

induced them to do so the majority considered that their preference

had been dictated by their family background. This is indicated

in the following comments:-

"Wnatever you have been brought up to is what you believe now. This is particularly so when you are a farmer and your past has always been directed along these lines. 11

"I feel that I supported the National Party originally because my parents supported it. However I don't believe that people should be too spoonfed. 11

1 It is considered that 7Cf;~ of the voters adopt the party preferences of their parents. As 81% of the local body members express a similar preference it is indicative of a greater degree of politice,l stal)ility, principally induced by the lack of social and political mobility of the rural population.

2one member subscribes to both parties,

- 29 -

"Just an inheritance from my family, although I do definitely feel that the National Party policy is the better one, 11

"I subscribe to the National Party but I -vvauld vote otherwise if I regarded that there rms a i1eed for a protest vote, Like many others I followed my father's footsteps I suppose, But really I don't agree with the nationalization of industry, 11

Other members had more ideological reasons for joining.

"It v1as a genuine interest in the National Party. I was an admirer of Sid Holland, Also I have a strong belief in private enterprise, the right of the individual, and I've always been opposed to the strict Socialism of the Labour Party" 11

"I joined the National Party because I approved and believed in the policies they were expounding and I have ah1ays felt it my place to give what support and held I could."

Others were unable to be at all specific and often the ansHer

was of the variety, "You have to belong to some party so I

just joined". Also many governors were emphatic that they

were "subscribing members only" as if to suggest that being an

active party worker would be detrimental to their loce,l govern-

ment responsibilities. Notably too, the reasons for a party

preference were in the main a negative appraisal of the

opposition party, and thus the normal attitude was, "I've

always been anti-Socialist", or "I've alvrays opposed the social­

ist policies of the Labour Party", rather than a positive reason

for party support.

Despite the similarity of the political party affiliations

of the members and their fathers the minir:ial effect of the home

- 30 -

environment on political interest is further emphasized in Table

5, which indice,tes the various influences leading to the develop­

ment of the ueHber I s political interest,

TABLE .2,

Development of the Political Interest of Local

Govermi1ent Members

O.B,C,

Early Home Back-­ground and father's interest 2

Through schooling and University 4

vThen starting work or assuming busi­ness or home responsibilities

When first voting

During or after the Second World War 1

The Depression 1

Activity in other organisations 2

Others -Desire for

development General welfare Specific issue

Never ree,lly interested

Not specific

1

1

W.P.B, O.H,B. W.H,B. W,C.C,

1

1

2

1

2

1

1

1

1

4

1

1

1

1

1

1

2

1

1

1

1

2

1

1

2

1

TOT.AL

7. 5% (3)

15,Ctfo (6)

22.5% (9)

5,o% (2)

10.oJs (4)

10.o% (4)

10.0% (4)

7,5% (3)

10.o%(4)

2,5% (1)

TOTAL 12 9 10 8 7 1 00. o%( 4.0)

- 31 -

Only three considered that their early hone background was

instrumental in establishing this; 11hile a further group of

nine, or 23%, felt thct their interest really only began upon

starting work, or at a time ·when they assumed business or home

responsibilities. The following comments are representative

of this attitude:-

"Whei1 I took on farming it ,w,s natural that anything which would affect it politically interested me."

"My interest developed slowly over the last tuelve years, but primarily when I began to assume responsibilities for then I really came up against politics and I came across the glaring anomalies in parliament" 11

Another important source of political socialization is education

and this v,ras mentioned by 15% of those interviewed, although the

comments were generally very vague"

"I became interested while at secondary school."

"Even when at school I enjoyed learning about Oamaru and its development, 11

Four members mentioned that their activity in other organizations

such as "Jaycees" and Trade Unions, had stimulated their

interest, while the trau11atic experiences of the depression

and the Second World 1'far were mentioned by eight members or

20%, It v,as noticeable from the interviei,vs that so mra,ny

mentioned how the depression had either cut short their

education or had made it diff'icult to find a satisfactory job,

- 32 -

yet it does not seem to h1we prompted many to take an interest

in politics. The vagueness and uncertainty ofrna.ny of the

c01llii1ents, and the fact that 1 Go/~ felt that they were never real1y

interested in politics, prompt,c; the conclusion that to the

majority of the members national politics have never been

accepted v1ith an abiding enthusiasm, Only one member has stood

for selection as a parliBJuentary candidate. Also ten farmers

have held various posts on the local branch committee of the

National Party, five urban men are, or have been, on the

National Party Executive, and another has been chairman of the

Labour Represente,tion Committee, Yet it would seera that for

many, particularly the fanaers, it is an act of community

responsibility rather than a determined effort or desire to

maintain a political party.

To draw the discussion closer to the local political scene

an inquiry was put to the governors to see whether they v.rere

first interested in national or local politics, and if this had

subsequently changed. As Table 6 shovrn 32% indicated that they

were only interested in local politics, of whom ten stated

that their interest had always only been in local affairs, and

a further three felt that they had originally followed national

politics but now it was entirely local. One member commented:-

"I 1ve never really been interested in national politics, It I s still this way as I like to

- 33 -

assess things on tho spot and on their merit. Nationally politics is much too distant."

TABLE 6

The Local Government i:Iembers Interest in National

and Local Politics

Local Only

National Only

Local originally now National as well

National origin­ally now Local as well

National origin­ally now only Local

Not interested

Equal

O.B.C. W.P.B. O.H.B, W.H.B. W.C.C,

3

1

6

1

1

1

2

2

2

1

1

1

1

4

1

2

1

2

2

1

2

1

3

3

1

TOTAL

25 • CP/o ( 1 0 )

12.5% (5)

7.5% (3)

35,o% (14)

7-5% (3)

10.o% (4)

2.51; (1)

TOTAL 12 9 10 8 7 1 00. afo ( 40 )

.Another expressed a similar attitude:-

"I believe to be interested means you need to be active and for this reason I've never bee-n inter-ested in national politics. Things were really stagnating here locally, and as I felt I could help, and coulct be active, I a_ecided to talrn an interest."

It does seem a little disconcerting to also find that 1 a-J;

- 34 -·

express no interest in politics, either national or local, and

that a further 12% are only interested in national politics.

One member did however give a well reasoned answer for his

interest ip national politics and lack of interest in local

affairs.

"National politics was my first interest and I 1m still not interested in local politics. My interest now is one developed simply from my work and its problems and environs,"

Another said:-

"National politics have alvrays been more important and now the fact that so much of our politics is controlled from Wellington only strengthens this."

Two other men ,~,ere of the opinion that "politics" should not

be part of local government as to them the word "politics"

carried the stigma of political parties, and therefo~e could

only be used in reference to national politics, To them it

was national politics but local government. However 42% did

express an interest in both local and national politics, -vrith

varying degrees of conll:li tment to one or the other,

the comments were similar to the following remark~-

Generally

"I nas at first interested only in local politics as this was what seemed to affect me directly, but now I've become more interested in both."

.Another governor's comment expressed a desire to be active

nationally,

- 35 =

"National politics were at first my interest, but I soon developed a lively interest in local politics. Now it's definitely both as I'm very active in local bodies, although I would appre­ciate the opportunity to be sore active nationally."

With only 75% of the governors acknowledging an interest

in local government it was not surprising to find that when they

were all asked nhat had helped develop their interest in local

government, 3<:Jjo remarked that they vrere never particularly

interested before standing or were unable to recall what had

initially established their interest.

this attitude deserve quotation.

Some expressions of

"I've never been interested in local politics at all. I savr a need to have an outside interest other than my farm. I vras ap;_'.)roached by a group of men who were interested in finding candidates to fill county positions on local bodies anc.. I was persuaded to stand,"

"I've never talcen an interest, but I was asked to stand for the Povrnr Board as a man had retired,"

"When I was approached to stana. I wasn't interested at all but I decided very reluctantly to stand, mainly because I've always felt that everybody should do their little bit; for local government."

It is noteworthy that 3CYfa of the elected representatives felt

that their interest developed from either a desire for

improvement in local government regulationsJ personnel~ or

policies, or through an interest in the development and

administration of the area, Some oI' the answers in the later

category however were extremely vague, and all too often

- 36 -

TABLE 7

The Development of the Local Government Members

Interest in Local Government

Motivation 0,B,C. W,P.B, O.H.B. W,H.B. i!LC,C. TOT.AL

Desire for Improve-ment in Regula-

12.5% (5) tions or Policies 2 1 1 1 2

Interested in Development and good. ad.minis-tration 3 2 1 1 17.5% (7)

Interest through Occupation 1 4 1 15,ofo ( 6)

Interest through connections with Local Government personnel or operations 1 1 2 7.5% (3)

Interest through activity in other organisa-tions 2 1 1 1 o.o% (4)

Others 2 1 7,5% (3)

Not interested before stending for Local Body 1 3 3 3 17,5% (7)

Unable to Recall 1 1 2 1 12,5% (5)

TOT.AL 12 9 10 8 7 1 oo. o% (4-0)

appeared to be a desperate atterapt to say something rather than

admit disinterest. The fact that they had come across many

- 37 -

by-laws which were irritating and needed reconsideration vms

mentioned by two members, one of whom commented:-

"The thing that made me go into local government was in noticing the discrepancies and irregularities in the by-laws concerning buildings and I was determined to see that others didJ.1 1 t fall into the same trap."

A frequent complaint that is voiced is that there are often

aging, inactive conservat:\.ves occupying local government positions,

yet few people are prepared to go to the trouble to ~nprove the

situation by standing themselves. Some of the local governors

did mention that this had stimulated their interest. One

rural member commented:-

"Prior to becoming a councillor I was concerned with the past inefficiency of the council and the dis­tinct lack of progres~ shown by the officials. Our local member was elderly and much too inclined to live in the horse and buggy days. 11

Another said:-

11The end of 191.iJ+ saw the development of my interest in local government. There was a stagnation policy in operation at the time and I was interested in removing it. As it turned out I was among a group of practical idealists who lost our places on the council bec~use we attempted to upset the old conservatives."

A further 15% mentioned that their occupation or business

2The removal of this group of "practical idealists" was vir­tually an intellectual purge. The four men involved were a medical practitioner, a barrister and solicitor, a professional engineer and a secondary school teacher, and they were replaced by a Post Office employee, a builder, a general engineer and a small business proprietor.

- 38 -

interests as being instrumental for their local government

participation. This was more significant to farmers, but

two professional engineers did consider that their knov,ledge

and background might be useful to a board or council,

them commented:-

One of

"There seemed to me to be a shortage of people interested enough to take part in local government, I felt I could impart some of my engineering skill to one of the local bodies. However, perhaps experience was my main incentive as you can't change things in this town very quickly."

Again no clear pattern seems to emerge and all that really seems

significant is that one-quarter of the members stated that they

were not interested in local politics before standing, yet even

the long list of motivational factors did not hide the fact

that most of them only developed their local political interest

at the time they were approached, or when they personally

desired, to stand for a local body. This is further indicated

by the fact that the date many of them gave to L1ark the beginning

of their interest corresponded noticeably v,ith the year they first

stood for local office.

The responsibilities of the three ad hoc authorities, the

Povrer Board, Hospital Board, and Harbour Board are much more

specific than those of the two territorial bodies and therefore

their activities are less well understood. For many their

lmowledge begins and ends with the vague notion that they are

- 39 -

somehow responsible for providing povrer, for running the

hospital, and for -keeping the port opera ting. It was therefore

of little surprise to find that 4Cf/o or eleven members, have

never taken any particular interest in their boards activities,

before stan".ing. This included half the Harbour Board member-

ship, half the Hospital Board, and one-third of the Power Board.

Of those who had taken some interest, three from the Power Board,

felt it had developed while they were serving on other local

bodies, and six further men, two from each local body, con­

sidered that their occupational background had been responsible

for their interest.

This same question was carried a stage further by asking

the members of the ad hoc authorities if they had had any special

experience v1hich might be useful to their particular board.

75% said that they had had no such experience, which includes

the complete Harbour Board membership, even although two made use

of the port facilities in the course of their business. While

one-third of the Power Board mentioned that they had some back­

ground knowledge of Board activities, the answers ranged from

that of an electrical engineer to another member who merely said:

"I have some electrical lrno"11ledge in my background". The

Hospital Board had the greatest percentage of members with back­

ground experience. The radiographer employed by the Hospital

- 40 -

and a former tutor sister had considerable experience of

value to the Board. Two others had had connections with the

Hospital through their associations with the St. John's Ambulance •

.Although of course background knowledge is very useful the

local bodies would seem to require as a pre-requisite some

administrative lmowledge, and it is therefore difficult to be

critic al of the f 8.ct that only 25% had had any special experience

of value. 3

With so many members expressing disinterest in national or

local politics it is hardly being facetious to inquire, 11Why

then did you stand?" Of the one-third who replied that they had

no real desire or were approached to fill a vacancy, it is

noticeable that this does not include one me111ber of the Oamaru

Borough Council. This could be indicative of the higher status

derived from Council membership, and therefore attracts "men

of purpose", as there is a noticeable zealousness evident v,hich

is generally attributable to urban men seeking a local govern­

ment position, in an atmosphere of mild competitiveness. The

3rt is of interest to note that in the last election for the town members of the Harbour Board two men did stand, a fisher1:1an and a Hharf stevedore, on the basis of their lmoVTled.ge and experience of the Harbour and its problems, but neither was successful. On the other hand. a local businessman, also standing for the first time, "topped the poll", seemingly gaining support on the basis of his business and administra­tive ability.

- 4-1 -

TABLE 8

Reasons Why the Local Government :Members Stood for

Office

Reasons O.B.C. W.P.B. O.H.B. W.H.B. W.C,C, TOT.AL

A Civic duty or service

To oppose or improve the administration

Because of oc0u­pational back­ground

3

1

To gain an understanding of Local Governiaent 1

Others

No real desire or approached to fill a vacancy

TOT.AL

3

12

2

1

1

2

3

9

5

1

4-

10

3

2

3

8

2

5

7

32.5% (13)

7.5% (3)

7.5% (3)

7.5% (3)

30,(}/o (12)

1 00. 0% ( 4-0)

County Council has the largest percentage of its members in the

11 110 real desire" category, ·which is poss,ibly caused by the riding ',

system of election. Becuuse of this, and the traditional rural ,,

spirit of community, there is a reluctance to oppose the sitting

member, and even when he retires a replacement is normally found

- 42 -

without an election. 4- As one County Councillor said:-

"I never had any intention of being on the Council and I had to be forced by a group to put for\7ard my nomination. It rrnsn 't my idea at all to stand because the councillor we had was a good friend of mine and I didn't want to stand against him."

Another commented:-

"I had often been approached folloning my activities on the Power Board. It v7as asked to stand following our member's retirement. This was the only reason I agreed as I would not have stood against him."

Other reasons for their reluctance varied, but generally it was

either because they did not feel their ability i7aS high enough,

or they did not lmorr ·what the work involved, or that they had

only finally wealrnned after people had continually been approach-

ing them about standing.

comments:-

This is illustrated by the following

"I didn't want to as I had had so much to do with the ]'ederated Farmers and I felt I needed a good rest. But it was r,10, or no one."

"I didn't really want to, but I got tired of people pressing me. I felt a need in my category for representation, but not necessar­ily me."

"I didn't want to get on tho board but once on I realised that my fears were unjustified., and it wasn't nearly as difficult as I had imagined."

If any particular reason was to be anticipated in ansner to

½he last County election for a riding member was 1959,

- 43 -

the question, "Vfuy did you stand?" it would most certainly be,

"because it I s a civic duty". Although it 11as felt at times the

answer was given because it is part of the accepted ethic and was

readily available to quote as a reply, it must be accepted that

nearly one-third of the members see themselves motivated by their

community altruism. Although an equal number of rural and

urban members gave this reason, it was evident that the urban

men placed greater emphasis on it as a definite moral obligation,

whereas those from the country vie11ed it as a vague community

responsibility which some one, not necessarily them, had to

carry out. This difference is shovm in the following quotations:-

"I was .. ~repared to give service to my community. Service is the rent we pay for our existence on earth and this ..ras foremost in my mind." (.An urban member)

"I have alvvays felt that everybody has an obligation to give something to their community, and al though I was a little reluctant originally, as I thought it was a job for a younger man, I decided to stand," (.An urban member)

"I had no reasons in particular, just to go and act on behalf of the people in my district." (A rural member)

"I d.idn 't really want to, but I was asked to stand for the riding and I thought I might be able to do something for the area and people. '' (A rural member)

The political act on the community stage occasionally resolves

into an understandable liberal-conservative clash, principally

- 44 -

on the Borough Council, and it was little wonder that three

Borough Councillors saw their political entrance in these terms,

as is clear from the following comr:rents:-

"When I was approached by tl1e Mayor of the time he said he wanted men around him who would work for the town, There was a great need for younger blood to stop all the imUlgling that was going on. We vrere definitely getting to the stage where the tovm vras debt free and I considered that vrn really needed a periou. of standfast as ,m vrnre r:ioving far too quickly. 11

"At the time I was most interested in politics on a national scale" Ho,rnver, I soon san that the Borough Council vras controlled by a group of in­active, old conservatives, and I was detennined to shake them up. "

"I could see that there were a large number of men stuck c;., the council, TTho didn't really knov; much about anything. They just remained, doing abso­lutely nothing,"

In recent years the County Council and Harbour Board have passed

through periods of administrative wranglings and inefficiencies,

but vdth changes of personnel the situation has been much

improved, Only three Elembers in both bodies considered that

tbese wranglings had been instrumental in them standing.

one member of the Harbour Board:-

"At the time of my first election too many people were at logger heads with each other and the finances were in a very bad position. There was a need for new members so I decided to see if I could help""

Said

A third reason mentioned Has that four ri1enbers felt that their

background might be useful to their particular board or council.

- 1+5 -

"I thought I could be useful, particularly as a liasion between the medical staff and the board. My postgraduate work had stress:ed the need to consider the importance of this relationship. 11

Finally, three members had a desire to understand the workings

of their respective board or council. Said one:-

"We always felt it wasn't right to criticize from without until you have full knowledge of the workings 0£' the local body within. There­fore I offered my services so as to gain this first hand information. 11

Clearly, many of these reasons suggest that the decision

to stand for office is seldom the climax of a long term ambition,

for in the main these are similar expressions to those offered

as the beginnings of their interest in local government. While

the urban members are more likely to have given earlier consider­

ations to standing none of the representatives could be said to

be political activists with a pulsating drive for advancement,

for their political background and enthusiasm seems little

different from that of the re st of the corJnmni ty. It therefore

seems that the majority of those who were personally motivated,

and not collectively pushed, see their efforts in terms of their

community altruism. For indeed if they are not political

activists they most certainly are community activists. This

applies equaJ.ly to those who see their interest in terms of

al truism, as well as those who expressed no apparent interest

in local government before standing. Whether they realise it

- 46 -

or not they provide the hub of community activities in a

communal situation which has a more favourable social base for

the rc1aintenance of effective democratic leadership than in a

larger, highly urbanized, community grouping. This is particu-

larly true in the rural cornnunity for the more intimate and

personal relationships found among the rural citizens make

interaction more meaningful and e-'lcourages members orn the

community to participate more directly and completely in the

various community activities. Further it is evident that

the homogeneity of the rural population, the low social and

geographical mobility, and minimal social differentiation

results. in a co-operative, rather than a competitive ethic,

which becomes more prevalent as urban areas increase in size.

Thus greater emphasis is placed upon an ability to get along

with the group, and the personal qualities of affability and

sociability, are more prominent in a rural setting.

In order to test this statistically informe,tion was drawn

from two sources. Firstly, the meiilbers were asked what

activities they were involved actively in before their election

to a local government position. All but four5 were active

5These four were all men with considerable local body experience and during this time they had varied their interests from sporting or school organizations to service or cor,m1uni ty organizations.

- 47 -

in the sarue organizations at the time of interview, although

sor.i.e had changed from a "participating interest" to an "ad.minis-

trative interest". Generally, the governors all maintained their

former interests al though it did seem the,t they seldom seemed to

increase their i:1ei;1berships in organizations during their local

government work. 6 The second source of information was the

mailed questionnaires as respondents were asked to tick any of a

given list of organizations in which they had membership. The

traditional cautions need to be made however as whereas the pop­

ulation was asked to state just membership for the members it

was active meBbership. Further the members had the opportunity

to indice,te Fhether they were in more than one of a particular

type of organization, but this opportunity was denied to the

questionnaire respondents. Finally, it must be remembered

that those most likely to reply to a mailed question are the

active and the interest, and therefore this might cause a slight

bias.

The anticipated higher rate of participation of the rural

population, is well established from Tables 9( a) and 5(b). For

besides the expected high membership in farmer organizations

they are also more active than their urban counterparts in

6.An important exception is Oamaru's present Mayor ,;,ho is

Patron, President or Vice-Presictent of fifty-two Oar11aru organizations.

- 48 -

TABLE 9(a)

The Rural and Urban Local Government Members Coi:1munity

Activities, Compared with that of the Rural and Urban Population

Activi- RURAL URBAN TOTAL ties NeBbers Population Members Population Members Population

Church Groups 36.4% (8) 37 .6%(76) 5o% ( 12) 39. l+;b( 99) 43.4%(20) 38.6%(175)

School Groups 72.8%( 16) 25.7%(52) 25% ( 6) 16 .3%(41) 47.8%(22) 20.5% (93)

Sporting Groups 40.9% (9) 41+,07o(89) 63% (15) 34.3%( 86) 52.1%(24) 38.6%( 175)

Womens Organi-zations 13. ~/o(23) 8.3% (2) 17.1%(43) 4.3% (2) 15,2% (69)

Lodges 13.6% (3) 25.7%(52) 29.1% (7) 20.3%(51) 21. 7%( 10) 22.7%(103)

Patriotic Organi-zations 31.8% (7) 9,9%(20) 37,5% (9) 6. 4%( 16) 34,8%( 16) 7.9% (36)

Service Groups 31.8% (7) 13 .8%(28) 75% (18) 15. 1%(38) 54.5%(25) 14,6% (66)

Cultural Organi-zations 4.6% ( 1) 10.9~(22) 45,8%(11) 15, 1%(38) 26.1%(12) 13.2% (60)

Trade Unions 1 o. 4%(21) 8.3% (2) 12. o%(30) 4.3% (2) 11.3% (51)

Men's Or-ganiza-tions 18.7%(38) 12.5% (3) 13 ,5%(34) 6 ,5% (3) 13. 756 (62)

Farmer Groups 95.57;(21) 46,5%(94) h-, 2% ( 1) 1+7 .~s(22)

Political Parties 81 .8%(18) 32.z,7;(65) 70.8%(17) 11.6%(29) 76.1%(35) 20.8% (94)

Business Organi- 11.8%(21+) 25% (6) 7. 2%( 18) 13,0% (6) 9-3% (1+2) zation

- 49 -

TABLE 9(1U

The Number of Community Activities Per Rural and Urban

Local Government Member;, Compared with that of the Rural

and Urban Population

Number of RURAL TOT.AL Activities Hembers Population i.Iembers Population Hembers Population

0 8.97~ (18) 16.3% (41) 13.0% (59)

1 12. 4% (25) 22.3% (56) 17. 9% ( 81)

2 13.6% (3) 21 ,3% (43) 20.89~ (5) 26.7~~ (67) 17.1{£ (8) 24.3%(110)

3 27.2% (6) 22.8% (46) 8.3% (2) 15.2% (38) 17-~~ (8) 18.5% (84)

4 31.8% (7) 15,8;& (32) 8.3% (2) 11.·1% (28) 19.6% (9) 13.2% (60)

5 9,2Jt (2) 6.~s (13) 33.3% (8) 4,8% (12) 21.7%(10) 5.5% (25)

6 4.6% ( 1) 7.97s (16) 12,5% (3) 2.4% (6) 8.6% (4) 4.9% (22)

7 9.2% (2) 2.5;:; (5) 12. 57° (3) 0,8% (2) 10.9% (5) 1.6% (7)

8 1 • 51i (3) 0.41/J ( 1 ) 0.9% (4)

9 4.6% (1) o.5fla ( 1 ) 2.2;:: (1) 0.276(1)

10 ~-- 2% ( 1 ) 2.2% ( 1 )

Average Number 4, 1' 3.0 4, 7'., 2. 1. 4.4 2,5'. ·

political parties, men's groups, patriotic organizations, lodges,

sporting groups and school groups. This appears more striking

when it is appreciated that rurally the average number of

organizational memberships is three, while in the urban community

it drops to two. Further 35% of the rural population are

involved in four or more organizations, compared with the 2a{o

for the urbe,n population with the same number.

- 50 -

But of greater importance is a comparison between the rural

and urban members, and their respective populations, regarding

membership in the various types of organizations, It is

noticeable that the elected rural representatives have a percen­

tage which is three times that of the population on school

groups and patriotic organizations; two and a half times as

high for service groups and political parties, and twice as high

for farmers groups. Further, the average number of organizations

per member is slightly over four, which is an increase of

one over that of the population, and while 35% of the rural

community have membership in four or more organizations, 6o% of the membe::s are in this same category,

The urban figures are even more striking, as here the

percentage of the members involved in a particular activity is

higher than that of the population in all but three activities.

The governors have a membership in political parties and patriotic

organizations which is six times higher than that of the urban

population. Also they are five times higher on service groups,

three and a half times higher on businesa organizations, and

they have a percentage membership in cultural groups thre~ times

that of their constituents, This notable difference is also

reflected in the average number of organizations as the members

4. 7, compares favourable with the 2.1 organizations per person

= 51 -

in the Oamaru adult population. Finally 7CJJo of the urban

governors are involved in more than three organizations.

Noticeably the urban governors have a slightly higher

number of activities per member than do their rural counterparts,

which coulo. be accounted for by the fact that in an urban

community, with a lower r<l,te of general organizational partici­

pation, the "organization men 11 are called upon to a greater

extent to provide community leadership. On the other hand the

rural members, in an atmosphere express,ing a greater sense of

community, probably find a larger number of people willing to

take on positions of responsibility, and thus their burden is

slightly less.

Evidence is certainly here in abundance to show that these

various organizations are providing a training ground for

future local body members. For within the nwnerous committees

a future local notable is being nurtured into a position of

community prominence so that once the initial nervousness of

this new situation has passed further community activity

is not far away. Once a man has indicated a degree of willing-

ness and competence in community organizations of any kind, he

readily becomes a nanie which can be pushed, prodded, or

flattered into further activity, pos::l'ibly culminating in his

entrance into the local political arena,

CHAPTER THREE

COMMUNITY PROMINENCE TO LOCAL ELECTION -

"Where to elect there is but one, 'Tis Robson's choice - take that or none."

Thomas Ward.

While it is people with considerable community activity

who are likely to participate in local government it would

still seem necessary, in many cases, for other individuals

or groups to make the initial approach to these people so as to

draw them towards local government positions. They are active

in the community, they are possibly willing to stand; all that

is required is someone to persuade them that they have something

def'inite to of'fer to local government. In populous areas

political parties or citizens associations constitute the re­

cruiting machinery, acting as a funnel through which the organ-

ization men can be directed towards local vacancies. For

some it is a gradual process as of'ten a prerequisite of some

years service to the organization is required before actual

candidacy is obtained. For others it is a swift clean movement

from community organizer to local body governor as some parties

- 53 -·

or associations exist principally to find candidates for local

body elections. 1

In Orunaru and North Otago neither political party nor

citizens association play any part in the triennial search for

new candidates. 2 In lieu of political parties drawing in and

channelling potential candidates, the responsibility falls

generally to the incumbents to make a personal approach to a

\

citizen whom they think ha.s a suitable background and may be

interested in standing. This is much more applicable to the

rural vacancies where the desire to merely fill the positionj

13/5ths of the Citizens Association members in Christchurch indicated that they joined the association at the sametime as they first stooa. as a local body candidate"

2Tvvo members did mention that the Labour Party had offered them support for an election, although in the case of one the support was offered in the form of a vague tacit agreement and it never appeared to be common lmowledge. The second member vrn,s most adamant in his refusal of support and in his attitudes towards parties in local govermnent.

"There's no a,3-vantage nhatsoever in having political parties active in local governmen-c. Youre working entirely for the tovm and if a man is supported by a party he's trying to serve two masters, I will always vote the way I think and I dislike the idea of having my hands tied. I was offered the strongest support of the Labour Party, but I completely refused."

- 54 -

rather than provide competition for it, seens paramount; -

again a product of the rural community desire for co-operation,

A number of the present rural members said that they had been

approached by the County Council, while two or three more

recent members mentioned that a group of three prominen-1:;

community leaders had cam a.ssed them as prospective candidates,

These approaches were attempts to fill rural vacancies on all

local bodies so that the County Council was concerned not

merely with completing its ovm ranks but in obtaining men for

other positions as well. The personal approach did not seem

to be mentioned so prominently by the Borough Councillors, but

this could be expected as the competitive element reaches its

local pinnacle here and potential rivaJ.s to incumbents are not

likely to be offered too much encouragement.

An inquiry w2,s put to the governors asking if it was

difficult to get people to stand for their local body and if so,

why, The entire complement of Borough Councillors stressed

that it was indeed a.ifficult, although some prefixed their

answer with the words, "suitable people". The reasons for the

difficulty were all of a similar neture. Sotie felt that it

was due to the pressure of business, a lack of available time,

or a reluctBnce to take on responsibilities, while others

stressed just general apathy or the likelihood of clashes with

- 55 -

the Mayor. The following comments from some of the councillors

illustrate all of these attitudes.

"It is most difficult to induce men to offer their services; particularly those vrith a busines&. back-ground. I think the,t the pace of living and the keenness; of business. means that they have to devote more to their activities. Sometin1es I've found that personal factors enter into it, particularly in their opposition to the ffayor. 11

"It's very difficult because people are reluctant, claiming that they haven't got the time or that it may affect their business, Also the public are very apathetic about local government. They don't seem to understand that you can get a lot out of it if you're prepared to put a lot into it. 11

"People of the required status aren't naturally the ones who promote themselves, and the citizens don't realise that to get these people they must make a persona: effort, either individually or as a group, to have that person accept nomination. 11

"They seem reluctant to take on any responsibilities and also because they think they have something else better to do. If you could get the twelve best men in the torm it would be much, much better, although it would possibly be a more conservative group. At present the Borough Council is nothing more than a status place for those vrho haven 1t the ability to get status anyvrhere else, 11 3

3The poignancy of this last con111ent may seem an injustice to the present council, yet it could be interpreted as a striking home truth, J .i·:I. Lee in his book "Social Lee,ders and Public Persons" ( Oxford 1963) traced the evolution of a particular British county government from one composed of leaders who already had high social status, who sat on the council as a public duty, to one coraposed of public persons, who in the absence of a clearly defined social hierachy, achieved their social status by membership of the council. This has possible local parallels in the changes, already noted, frora the "patricans" to the "entrepeneurs 11

, or in the respective social positions of the rural and urban members.

- 56 -

When the Power Board members were asked the same q_uestions

the replies showed that three members did not consider it was

difficult, while a further rural governor suggested that

it was not difficult to find candidates from the town, although

it was for the country.

"No, I wouldn't say we haven't had any sign of efficiency otherwise a string

One member conu,rented:-

it was difficult. Sometimes new candidates. This is a and consumer satisfaction for of candidates would be standing. 11

Of those who thought it was difficult to find candidates for

the board one member suggested that it was the technicality

which kept people away.

"The Power Board is one which is highly technical and people don't rrant to stand because of this • .Also some v;ho are approached say they are just too busy or have no real interest. 11

Two of the Harbour Board felt that it was only difficult in the

countr-y-, whereas the remainder thought it was difficult every-

where to find people with a willingness to stand. The apathy

and complacency of the people vrnre blamed for the dif:ficul ty.

"It's probably caused by a complacency and a general apathy, But not too many people take ru1 interest in the affairs of the Harbour Board, although there are businessmen in the tovm who could vrnll afford to tal{e more interest."

The lack of board autonomy, Mel the holding of meetings during

the day, were two rather different explanations for the

difficulty in finding candidates for the Hospital Board.

- 57 -

However, 5a;i of the board considered that there was no real

problem in this respect. As one member said:-

"It hasn't been too hard in the past to get people to stand. We approached men and women who we think would be good board members and they are normally quite happy to stand."

Finally all the County Councillors were adamant in their replies

that they too find it a problem to obtain replacements on their

council. The same reasons for this were mentioned, such as

apathy and a reluctance to take on responsibilities, but a

rather different reason also made an appearance; a financial

one.

"Yes it is difficult. Why? Because there I s no financial gain. It's a thankless job and you 're always open to criticism. It's not a young man's job as a person really needs considerable time before he joins a county council."

Another riember said:-

"It's getting more difficult to get them to stand for anything. It I s becoming far too general that the only thing th2,t causes an election is if some­one appears to be rather useless or if one person retires. But more often than not there never needs to be an election, as one man is just found as a replacement."

The difficulty in finding suitable candidates appears universal,

although it vmula_ seem to be a greater problem for the two

councils than for the three ad hoc authorities. The important

factor here may be simply that the responsibilities and the brick

bats are greater for the two councils, ancl hence there is a,

- 58 -

reluctance to stand, However, it should be remembered that

twenty-three candidates for tHelve positions on the Borough

Council was not uncom1on in the late 1940 1 s so perhaps this

difficulty is a more recent trend, and attributable to a

totally different malaise, 4 It was also mentioned by sor;ie

members of' the ad hoc authorities, principally rural members,

that they found it easier to obtain urban representatives than

rural ones. The reason for this is difficult to establish,

although it is noted that 50'% of the urban ad hoc members had

had previous local body experience, before standing for their

particular ad hoc body, Hhereas only 25% of the rural members

fitted this category. This does indicate the greater en-

thusiasm of these urban community activists, for once their

initial resistance to standing has been broken, they willingly

accept the opportunities for further local government responsi­

bilities,

In an effort to establish the extent of this general

reluctance, which the members consider inhi'bits people from

standing for local goven1ment office, the questionnaire respondents

were asked that if they Here approached would they be v,illing to

stand. As is shovm in Table I, 391: of the rural popula,tion and

4A Borough Council by-election in February 1967 to fill two vacancies sarr seven candidates noninated for the positions.

- 59 -

28% from the tovrD indicated that they would either stand or would

at least consider standing. Perhaps unfortunately, the number

TABLE I

The Rural and Urban Population's Willingness to

Stand fo1' a Local Government Position

RURAL URBAN

Yes 4-4% (9) 3.2% (8)

I would consider it 34.3~s (70) 24. 9% (62)

No 58. 0%( 118) 67.9%(169)

Don't lmow 3.3% (7) 4. CJ% ( 11)

'l.'OTAL 1 oo. o%(204) 1 oo. a%( 250)

of definite "yes' s 11 for both rural and urban groups is low, but allow­

ing for the normal human raodesties considerable encouragement can

be derived from the high percentage who at the very least have an

interest in standing. The country percentage is 10% higher than

that of the town, which rather contradicts those governors who

considered that it was easier in the town to find new members than

it was in the country, But more importantly it follows the

developing hypothesis that the pervading community ethic of the

rural population intuitively mal<:es them ri1ore receptive to the

need for people to tal<:e on local government responsibilities.

- 60 -

This is not appreciated to the same extent in the slightly more

impersonal, mildly conpetitive, small urban community.

If past assumptions are correct then these "potential

candidates" are more likely to also be community activists of the

type which differentiates the local body members fror1 the

population. As Tables 2(a) and 2(b) indicate this is definitely

the case, as those who would consider standing have a percentage

which is twice that of the population who are involved in more

TABLE 2(~

A Comparison of the Percentages Involved in More

Than Three Coc1munity Activities

The percentage of the population in more than three organizations

The percentage of those who vrould consider standing in more than three organizations

The percentage of the local Government members in more than three organizations

RURAL

3l.-,5% (70)

59. 2% ( 13)

URBAN

19.5% (4-9)

4-1.4% (29)

than three community activities. Rurally, the potential

candidates and the present mer:ibers are very similar in their

respective a1:1otmt of corru'.lunity activity as they have four

organizations a piece, compared with the overall populations

three. The local government members in the town are still

more actively involved in the community than are the potential

TABLE 2(b)

A Comparison of the Average Number of Community

Activities

RURAL URBAN

The average number of community activities per head of population 3.0 2 .1

The average number of community activities pe1~ head of those who would consider standing 4.0 3.0

The average number of community activities per Local Government member 4. 1 4. 7

candidates, although this latter group definitely has a much

higher rate of community participation than the average member

of the urban population.

It seems natural to assume that a willingness to stand will

be synonymous with a higher degree of interest. This as::.1umption

is well supported by Table 3, particularly in the tovm, as here

the "I would consider its" have a 15% higher ranking than their

respective population, compared with the rural 9%, The possible

TABLE 3

A Correlation of Willingness to Stand and

Interest in Politics Compared with the Population

Interest i.e. RURAL U1IB.AN Discussion of I would con- Adult Pop- I would .Adult Politics in the sider it 5 ulation consider Population

Home it

Frequently or fairly often 37,5% (30) 28. 59; (58) 4-1.4-% (29) 26.7% (67)

Occasionally 52,5% (42) 53 ,4-%( 109) 51,4-% (36) 55,8%(140)

Rarely or Never 10.0% (7) 18.1% (37) 7.2% (5) 17,5% (4-3)

'.l'O'.l.1AL 1 oo.CY}'; (79) 100,0%(204) 100.0% (70) 100.0%(250)

reason for this is once again that the more competitive attitudes

demano_ a closer attention to local political affairs, while _the

rural ethic prizes community service above political interest.

Noticeably, those who discussed politics occasionally ar0 relatively

similar in all categories, and thus the additional "frequently' s"

and "fairly oft ens 11 have been counterbalanced by a decrease of

about 10}0 in the categories of least interest.

It was postulated earlier that an administrative, nanagerial

elite wa.s gradually moving to control local government in Oamaru,

5The "I would consider its" also includes those who answered that they woula_ definitely stand if they vrere approached.

- 63 -

The occupations of those with a willingness to stand are shovm in Table

4- and this also suggests that this same occupational class expresses

a greater desire, in relation to its population percentage, to

6 enter local government, The other occupational groupings exclud-

ing the farmers, have percentages of those willing to stand which

are in close proportion to their occupational population, although

the "clerical and sales" do display a slight rise in enthusiasm.

The rather lower interest shovm by the fe,rmers is explained in

terms of age as many of them are retired] and therefore are not

likely to be very enthusiastic about standing. Rurally, however,

the farmers are the only group with a slightly higher percentage

of those who would consider becoming active in local government.

The manual workers group shovrn a slight lessening or interest

6But in spite of this higher inte:fest in standing the question­naires reveo,led some reluctance on the. part of some of the administrative, managerial class to entering local government at the present time, How general this feeling is~ is difficult to gauge but one of the comments deserves quotation:-

"! lmow of many businessmen who would make excellent councillors and have said that they would stand and be prepared to serve. However, they refuse to do so as long as the present set up stands. They would not be preps,red to be abused and dravm into constant arguments when any idea, proposed dia_ not confirm with tha,t of the present r,1ayor, It is generally agreed that every argument at council level resolves to a clash of personality."

- 64 -

TABLE 4

A Correlation of Willingness to Stand and Occupation

Compared with the Occupational Groupings of the Population

Occupation

Professional, Technical

Administrative, Executive and f/lanagerial

Farmers and Related

Clerical and Sales

RURAL I would con­sider it

3,8% (3)

8.7% (7)

69.5% (55)

3,8% (3)

Adult Pop­ulation

3°3% (5)

7,3% (15)

66. o~~( 135)

5,lJ%(11)

URBAN I would con­sider it

8. 6'f~ ( 6)

21.4-°/o ( 15)

7,2% (5)

30. 0% ( 21)

Adult Pop­ulation

8,8% (22)

11.6% (29)

15, 2% (38)

26. 4% ( 66)

Manual Workers 13,7% (11) 8,2% (37) 32.8% (23) 34, 00/o ( 85)

Others 4-, Ofo ( 1 0)

TOT.AL 100.0fo (79) 100. o%(206) 100.0% (70) 1 00. 0/6( 250)

although it should be remembered that this class includes workers

from Otematata to whom local government means virtually nothing, 7

7 Otematata is the village housing w·orkers on the Wai taki Hydro Electric Power Schemes and as one respondent commented:-

"Living in a Ministry of Works Village means that we don't have any contact with local government. Al1Y complaints we have are handled by the Ministry of ·works or if not them then the New Zealand Workers Union."

- 65 -

The remaining three classes have percentages of "I would consic1er

its" which indieate merely an average interest in standing for

local government.

The age distribution of the 11 1 would consider its" is shovm

in Table 5. On the rural side there is every indication that

the heavy weighting of the present members in the 50 - 59's is

1rABLE 5

A Correlation of Willingness to Stand. and Age

Compared with the Age Groupings of the Population

Age Group RIB:wi URB.AN I would con- Adult Pop- I would con- Adult Pbp-sider it ulation sider it ulation

21 - 29 7.6% (6) 22.~% (1339) 21. 4-% ( 15) 15. 0% ( 1136)

30 - 39 25. 4-?t ( 20) 26 • 4-% ( 1 5 77 ) 31.4-% (22) 18.1% (1370)

40 - 49 32, 9% (26) 20,7% (1237) 22.8% (16) 18.o% (1363)

50 - 59 16.4% (13) 15,3% ( 912) 14,2% (10) 16, 8;7o ( 1 275)

60 - 69 17,76/~ (14-) 8.8% (527) 5° 7°/o (4-) 13,9% (1050)

Over 70 6.3% (374-) 4.2% (3) 18.2% (1375)

TOTAL 100.0°/o (79) 100.0% (5966) 100.0'fb (70) 100.0% (7569)

not just a passing phenomenon as one-third of the 11 1 would

consider its" are at present between 40 - 49. It is noticeable

how low the fifties group is, in relation to its population per­

centage, as it is unusual that the present high membership in

this bracket d.id not positively affect their age peers into

- 66 -

being interested in standing. A slight rise in the sixties

suggests that these are men who have been motivated by the

thought that when one is retired is the time for local govern-

ment work. Of the rural population 68% is under the age of

fifty, and as 65% of the "I would consider its 11 are also under

fifty they are closely representative. Thus, as might be

expected, those between forty and seventy show the greatest

enthusiasm. The surprising feature of the urban figures is

that the three youngest age groups, from twent;sr to fifty, have a

higher percentage of 11 1 would consider its" than is representa-

tive of their populD.tion figures. Once over.the age of fifty

enthusiasm dvrindles at a faster rate than that of the rural

"I woula. consider its". A perennial criticism levelled at

local bodies is that there should be more younger people active

in local government. If this is the case also in Oamaru, then

some assurance may be gained from the comparative youthfulness

of those with a willingness to stand, as nearly one-third are

between the ages of thirty and forty.

Education is often regarded as an important criterie, for

political interest and activity, and thus it was anticipated

that those expressing some interest in standing for local

government vmuld have a higher educational backgrouna .•

Further support for this argument is derived from the fact

- 67 -

TABLE 6

A Correlation of Willingness. to Stand and Educational

Background, Compared vith the Educ2,tional Back.ground

of the Population

Age when fonnal education was completed

Under 14

15 - 16

17 - 18

Over 18

TOTAL

as

RURAL I would con- Adult Pop-sider it ulation

27.8% (22) 32.0~ (65)

49. 31b (39) 50. 2%( 102)

17, 7% (14) 14,8% (30)

r· 2d :J • io (4) 3,09~ (6)

1 oo. 0% (79) 1 oo. oc;;;( 203)

U1IBAN I would con- Adult Pop-sider it ulation

20.0% ( 14) 28.5% (70)

50,a}b (35) 45, 1%( 111)

19,5% (14) 16. 7% (4-1)

10.5% (7) 9. ?/a (24)

1 oo. CJfb (70) 1 oo. 0%( 246)

that/younger people hsNe shown that they are willing to consider

standing they should have benefited from the increasing educational

opportunities, The conclusion from Table 6 does shoy; that the

"I would. consider its" are better educated, in that a larger

percentage have remained at school after the age of sixteen,

but it is hardly a sufficient improvement to allov1 the considera­

tion that the educational standards of the local government

personnel of the future is likely to improve. The improvement

is slightly higher in the country, but in both areas the

present members have a higher standard of education than those

expressing an interest in standing.

- 68 -

To summarize then, it i;rould seem that even in spite of the

difficulties experienced by the present governors, there is a

reasonable number of citizens who would consider standing f'or a

local government position" Horrever, in making projections from

the figures presented, the picture suggested is one in which the

rural governors in the future nill remain very similar in age,

occupation, al?,d education, as those at present responsible for

rural representation in local government, The urban local

representation in the future could possibly be controlled by men

younger than the present members, rrith a business or a&ninistra­

tive background, which would provide ansners for two of the

local grumbles; - 11 we need younger men", "we need members with

a business background".

Having earlier discussed at length the difficulties

ex-_perienced by the present members in finding suitable candidates

it is now necessary to return to the governors themselves to

consider vrhether they had any a.ifficul ty in being selected, and

then elected, for their respective local body. The presumption

would suggest that as willing candidates are a scarce commodity,

and as so many were provoked, persuaded, or pushed, the chances

of any of them finding selection or election difficult is remote,

This vvas indeed the case, as .ali gained selection at their first

.. 69 ..

election. Two Borough Councillors who failed in their first

efforts came on in the follo,ring election, one Hospital Board

member missed election on his "first time out", but then

returned with avengance to top the poll in the next election,

ana. a member of the County Council tied with his opponent at

his first attempt, hut then lost the toss of a coin which

provided the final result, although he too came on soon after •

.Among the majority who had no difficulty, particula,rly

noticeable was the number who had been approached to stand.

11 I was approached by people and I felt flattered that they shouJ.a. ask me. J wa.<J even more thrilled when I vras elected, 11

"I was approached and I was initially reluctant, I don't like being in the limelight, although I don't mind working behind the scenes,"

"I dicln 't look for selection at all. approached by others. I considered privilege to be asked in this vmy, fight an election but I've never had another since 1959, 11

I was it a I had to to fight

Only two of the present members l,ad tried to gain membership

on other local bodies and had failed in the attempt, Both

are members of the present Borough Council., and both abortive

efforts were prior to them gaining m·embership on the council,

The entire contingent except one have been on their respective

boards since first elected, the exception being the present

Mayor who was defeated as a councillor in the 1950 election.

He remained out of local government until 1954 when a

- 70 -

by-election enabled him to stand again.

When asked if they had ever seriously campaigned for their

election most of the members greeted the question with rather a

wry smile as if to suggest the.t it was a ridiculous suggestion.

Campaigning, they seer,1 to consider, v1as rather a waste of time,

al though each candidate contesting an election did have his

photograph and a small statement of intended policy published

in each of the· local newspapers. One member who did do some

canvassing for support was indeed highly successful, finishing

'at the top of the poll' for the Harbour Boara_, but it is

doubtful whether his campaigning had any significant effect

upon the resulting election. He commented that he spent con­

siderable time talking to people, trying to gain their support

for the Harbour Board Loan as he felt that the Harbour

desperately needed the financial assistance, and so even this

was hardly a direct appeal for personal support.

It was indicated earlier that half of the urbaJ1 ad hoc

body members were, or had been, in other local bodies. The

Borough Council is best off in this respect as it has one of

its members on each of the ad hoc bodies at present. Vfuether

this is valuable for coordination is a moot point, but it does

at least provide a linkage vrhereby Borough Council policy can

be explained to the ad hoc bodies and if necessary their

- 71 -

policy to the Council, One other member of the Borough Council

,ms a member of the Hospital Boc,rd but his views on the amount

of Heal th Department control over the board's activities

resulted in him declining to stand a second time. Totally

then six members of the Borough Council are, have been, or

attempted to become, members of one of the three ad hoc

authorities, 8

The other territorial authority, the County

Council, has only two members who are on other local bodies.

The Chairman is also chairman of the Power Board and a member of

the Hospital Board, ,1hile a second member is also on the Power

Board. Besides the men already mentioned for being on the

Power Board, two other have been Bembers of the Borough Council

in the past and tno on the Hampden Borough Council, The

Hospital Board aJ so has a man who r1as prominent in Borough

Council affairs until he resigned to fight unsuccessfully for

the mayoralty. No other 1:1ember of the Harbour Board, apart

from the present Borough Councillor, has been on other local

bodies, e,l though one man is chairman of the Vfai t ald High

School Board, Thus it is clearly the urban members YTho have

been drawn into being active on more than one local body, either

before, after, or during, their service on the Borough Council

8 There are now seven in this position, resulting from the

February 1967 by-election.

- 72 -

vrhich tends to be the pivotal body, and the one where the member-

ship seems most desired. Again this stresses that the urban

governors are "organize,tional men" vrho are willingly dravm

towards new opportunities to use their organizations .,calents,

in the interest of the community, with an enthusiasm unequaled

by those representing the country.

The f:inal point to be considered is the length of service

which the governors have given to the community. Totally 391

years of service has been given by the present members of the five

local bodies, with 244 for the urban members, giving an average

of ten years per member and 147 for the rural members at an

average of six years eight months. 9 In looking closer at the

figures it is seen th.s,t while 27% of the rural members had given

over twelve years service, the number for the urban members

1 jumped to 37}o, Similarly ·whereas 45;{& of. those representing the

country had been active for less than five years, 37% of the town

governors have yet to reach five years service. Considering

the comparative you~hfulness of the Dorough Council at an

average age of fifty-three it was with some surprise to find

9rn establishing these figures those governors with present service to more than one body are ratea, aceording to the service given to each individual body. Those who have had previous experience on a body other than the one they are serving on at present have had these earlier years included with their present service.

- 73 -

that the Council has the highest average yee,rs of service at

ten year2 eight months,per councillor. Following closely

behind is the Hospital Board at ten years per mer:1ber, the

Harbour Board at nino years eight months, the Power Board at

nine years three months, and finally the County Council con­

siderably further back at an e,verage of six years per

councillor. Three members also de.serve special commendation.

The longest continuous service on any local body stands at

thirty-five years, and when this is added to this Borough

Councillor I s years on the Hospital Board his total years of

service to his community in local government work reaches thirty-

nine. This is only exceeded by one man, 8.t present che,irman

of two local bodies snd a member of a third, whose total

service at present ste,nc:'cs at forty-one years, To complete the

trio of men who who between them have given over one hundred

years of service is another clrn,irman whose work and enthusiasm

extends back tuenty-seven years,

With the infrequency of elections and the mere replacement

of a retiring member, principally in the cow1trJ, it woula. seem­

ingly indicate a certain rigidity in the system which is likely

to result in a lack of change of membership and therefore

longer serving members, But as the above comments sh0'\7 this

is certainly not the case as the tovm members had a higher

record of conununi ty government service. One interpreta,tion

- 74 -

could be tho.t the rural areas have been struck, just recently,

by frequent changes of personnel and it is therefore just e,

passing phase of brief membership. However, it is more

probable that the urban members, who are less, diffident about

standing, are more vrilling to stru1d. a,t an earlier age, and hence

10 longer memberships resulted. Thus even although there are

fewer people in the to,;m with a willingness to take on local

government responsibilities those who do are motivated by

gree,ter enthusie,sm so ths,t once they have entered the local

political arena they normally respond willingly to any further

opportunities for local government service to the community.

For the urban members it is en honour for the few; - to the

rural members a responsibility for the many.

10rt was noticeable that those who vrould cci;tsider stana.ing in the town were generally younc;er than the equivalent country group.

CH.APTER FOUR

- THE IllACHD"\fERY -

11Honest statesme,nship is the wise employment of individual meanness for the public good, 11

Abraham Lincoln.

In 1935 Harold. Laski wrote of English local government; "Ever

since the :Municipal Corporations Act of 1835, the committee has been

the pivot of the system of local government •..••• It is in the

committee of a council that policy is really made; it is in the

committee also that the supervision of its execution is really

effectedo 111

govermnent o

This is certainly the case also in New Zealand.' s local

Most local bodies find it necessary to predigest much

of their business in committees before presenting a recommendation

to the full council or board meeting. The system is generally

appreciated by the members involved in the study, and although

there were a few murmurings of discontent about the activities of

some committees~ there were no expressions of determined opposition

to the committee system itself.

Of the five local bodies the Hospital Board makes least use

of a committee system in its administration as it has only two

committees, the visiting committee, which all members are on in

rotation, and the finance corn.Di ttee having a ;nembership of four

1H.J. Laski: "The Committee System in Local Government" in A Century of IViunicipal Progress Laski? Jennings and Robson (eds) 1935.

-- 75 =

senior ffiG[lo ,rn spee.king in f8,vour of this e,rrangomont one

mrn,1ber scid:-

n:ct 's e, very effective vw,y because HO havo ovoxything ready for tho 6enerc,l meeting r;nd a small com,11itteo also helps to koop the board goinc; bot,;creon meetings 11

Dospito the p2,rticipe,tion of only 5(% of tho boc,rd. in tho

cormnittee 2,ctivitios ~\ll stressed thc,t they woro very interested

in uhE:.t they uoro required to do. 'rho so vrho nere mo roly on tho

visiting committee ino.icG,tea. hon necessary they fol t it ,ms to

visit tho verious institutions under tho boe,rd I s administr8,ti6n

to show the pc,tionts tho,t they hc.d m1 interest in their welfe,re"

Th0 appointments to tho corn.mittoos sre approved. e.t tho 01111ue-l

meeting but it is no:rmc,lly a form2.l iJrocoduro only as they tend

to renominate the se,me committee c,s previously. 'I'ho meetings

o:f the Finenco Committee e;re not held regul2.rly but it is normnlly

betore the monthly board meetin;;. Cr·iticisms of tho system ncffo

e,lJ. minor, Asked if they thouc;ht it necessary to inc:teE\Se the

control o:f the committee tho members exprossod tho vieu that

this wr:,,s h,,.rcUy nocoss2,ry although ono addeo.. thc;l; it w2s hardly

possible with tho Ho2,l th Depc1rtmont n,thor I crrnnping their style 1 •

One ;uembor thought that one }?robl01:1 ct prosont nc,s that they wore

not give,.1 prior notificc,tion of 11het 112,s to be disoussod by tho

:J'inanco Commi tteo, and anoth0r comm01rted.: ,.,

111 thiak the,t more major decisio~1s coulc_ ho rnaa,o by tho boc,rd rc,thor then tho fine,nce cornmittooo ]'urthor I would rec,lly lil:o to knoH exactly who.t tho p01:wrs of tho mi:;11s,.gor-socrotc1,rs· are, 11

- 76 -

'rl10 Powor Bo2,:ca. co;nmittoo system plays only 8, slightly

bigger pc,rt in th0 ov0r2,ll ach"ii:dstro;tioc1 th2,:1 the/c o'.L' tho

}IospitoJ.. BoarC: .. One m1c>1bor wont 2-s fer as to say th&,t

committoos in thG widor s0nso o.C tho torm didn't exist and that

the systo~ the~ vas used TTas not effective.

11 ·:chor" 2,re throe C:.ivisions but they have vory little in the 112,y of n1G0tings, I c.0;1 't thinl{ it's at all effective a,s tho ~:,iggest complaint is the 2mount oi' materiel which isn't really c.iscussed. bece,uso of tho prosonce o;:' tho pross., I noult like to seo much more com1--nitteo work without tho pross present 11

1l 1h0 throe cornmittcos, >irnmco, Transport o,na. J:-Iousi:.1g meet nhen

required, nonnevlly o,bout onco evor-J two months 'rho appoint-

monts to tho committees wo1~0 cLon0 by the che,irrno,n ,-rho movea.

th0,t tho s2x10 committees e,s previous continua, vrhich meant

tht:::d; tho now Tt10,nbors oftoi1 wer.J not given a committee c1,ssignmont,

One accepted tho situetion philosophically and said:-

11 I agroe with tho way it we s clone:" 'i'ho work is so technicol and involved thct it reciuiros a twelvo month perioc_ 1XJforo you can ro2olly got hold o::' it. 11

But a, seco116_ cornnentod :-•

11 I' ,, not on a11y committee which ro,ther m2,kos roe feel s,s if I '"1 oper8,ting in a void, 11

'rhe ShiJ)ping, inancc 2110. ·, orks Committees e..ro tho throe

responsiblo for tho dotailec7. study of' Hc.rbour Bo2..ro. business.

ii;ach o., tho ton members is placoci on at ler st 0110 committee,

eftor tl1G crw,irmo,,: h2 .. s prosontoc"i. his list o2 committee ple,cements

to th0 full board" Ho commented:-

- 77 -

1111y jJolicy is to c,rcsr u11 c, list of r:ho I think is bost qu81L.'i;:;d :l or tho v2rious com;,1ittcos thee tho mojJ_ on th0 bo2,rc\ ca;.1 1 t givo to who to place on tho committeos, 11

I r2-thor i'eol 0:1.ow:;h co· sic,oration

':Cho mornbors e,11 approve of this mothoc;. of seloction, e,greoing that

the ch8,i:cme.Yl c1:tn seo who is ~Jost qualif iod, end t?it·,t thoy DlTJ'IH'W

huve 1,:,n opportunity to criticise tho sGlections. 'rho chairmc.:n

is 2x1 ox of', icio ,.-:ombor of all committees; al thou6h there are

indopondont com;-Jitt00 ci12,irmon. Again meetings 2.ro hel<1 whon

requirea_, which is norml'..lly about onco a month" ~t'he commi ttoo

system itself is co1.1Sic..oroc3- sdisfacto:cy by the ::1£~jority of rnon1bors,.

As one said:-

11 It coulC:. be carrioo. to oxcoss but it toes help to speed up meetings 2.rn3. the work of tho bo0,rd. They shoulcL howovor romonber that they aro only putting for1·rn.rcl 1:n•opose.ls. 11

2:'our-fifths ot tho mombe:rshi:9 fol t that thoy 1:rnre vory i:1torestod

in the ·;iOrk o::. their comn1ittoes whilo tvrn others, both o:f \7hom

would. liko to boon tho works committoe, said that thoy nore

1moC:.erB,toly in.terostod' -. '\':·ion askod whnt committoo they con·•

si0.e1·eo_ to bo tho mos·c po,rorful, -. ·qrks h£s<'L five supportors,

1?inanco three ano. two fol t that no· J?crticular commi'i:;too vms

stronger. Hmrnvor no~1.o scv f:'cny need to incror so tho po,mr

of ::i.ny of the committoes

L1 turning to tho t'iro territorial boc.Lies it is notice2,ble

that th0 County Council usos its committees in mucl. tho sm;10

HE,y ss <lo tho throo 2d hoc cuthoritios 1 particularly c.s all but

- 78 -

tho li:..1c:"1co CommittoG, moot 0~1.ly whol,. roquirod, Bosio.cs

. iilmi.co tl.1c:;:•o is 2. throe r112cJJ. :orlrn C01:cmittoo, 2, Hyd2,tio.s

Comnittc.o) 2.,rn:l a i'Toxious ·, .. ood.s Comr-ii ttoo ros11onsiblo to tho

county, w:1iL, thoy h2,vo joint tc1orJ.b0rship nith tho Borough Council

on tho Airport Comnitt00 r,n6. tho Ci-:·il Dofonco ConMittoo. 'rho

ch2..irm211 of tho county is chai:n:c1rj_1 of all co·,mlittoes 9 while

selection of committoo ii1Gmbors is 1fonc in opon council by calling

for nominctions. Thr:J position en.cl prostise ot:' the Chni:cnw.n

e,11po[,rs to bo on a lovel ':tith thDt o/ a ch2.irmr,.n of 2.11 RC. hoc

body even 21 though ho is virtually tho 11first man o~: tho county".

His power on tho council is undoubtoo. ho1:mvor 9 as all tho

councillors strossoo. thr.t ho ,rc.s tho man with tho gror.tost poHor,

'rhG 1inancu Conmittoo nas agEdn spoken of [l,S boing the pivot of

the council activity but c:citicism irn.s lovullcd .::t tho ,·or\:s

Comr,1ittoe, because it ·coo o:-:·ten just c:;,gro::;d with tho 0~1gi:-~oor 1

f.:,l1Cc tho Noxious "\.feeds Cm;rr1ittoo bocf.,USG it a.icln 't oxorciso tho

powers it slrcad} he,0.. Another councillor c,lso suggested o,

change in tho system.

11 1 'vo cilirn,ys rocrnmi1ondod th::,.·;~ h2,lf o1' tho council s~,oulC. bo on the works rmd hnlf on tho finrmco. Also I' o. lib, to seo 2..n incto;_xmdont chnirman of works, 11

Of all tho loce,l bod.ios tho Borough Council mniws tho

gro2,test use of tho committee syston in its operations)

indic0,tivo o~ its consio.e:cr:.bly ,1iclor rosl,onsibilitios.

committoo 2,rrm1.{;ornc,::-1t i uhich originc/cod in Ounc,ru but is now

- 79

usocl. in ot:10r 1'forr Zoelcn,i contros, h.::,s two prii1ci1.)lo corn.mittoos -

i;;or>~s c.,.1a. fincnco, oac:1 consisting 0_1.' six. councillors who cro in

turn 02ch ros1)oi1siblo for r:11 indivictud portfolio" Thus tho

.i:inc.nco Co;11mittoo bosid.os I'inc,nco, covers 13y lf.lxrn, tho Town I-foll,

Librc,ry, Beths, Cometory nnd }:1ilk, anct tho ·.orks Co1m:1ittoo, 'tforks,

}1eservos, · rtor, To,m Pl:::,nnin.g, C~r,s 2,:nct Lighting end Abcttoirs

0110 inhoront fG[',r o · tho comui ttoo systo1a is the,t too 111011y

c.ecisio·,:,s -:To m2,fe by too snw,11 a group, but thG Borough Council

systow., <ioos go t.'o lo,}g :wy in c,tto: 1.ptinc to ro1swer this e.s ct

le2,st hc,lf tho membership is in touch ,dth Qt lee.st half tho

'rho : ~c,yor is Em ox officio monber of

e,11 co,nmittoos - nl though ell Councillo1ns ce,;,1 ~~ttond both ·'..orlcs

2.nd. ::J'im.nco Conmitt00 meetings - md thorofore ho is in c position

to vieT:7 th,:; c.6uiDistrE.tivo porf'ornf'.nco in c, ,1i6.or pc:·: spoctive

The me.jar io.oc.1s o/ tho syston end tho rolo tho ,~2,yor soos for

hin1solf within it 2.ru c,ptly oxprossoct in tho folloning comment:-

"Cur comnittoo systo••l doos uork very '<JolL 'l.1he DE.sic i<foc is th2t you shouJ.c. hcvo OJl.O ri10n ·who is devoting his t~no to tho dovolopmont of policy in this J?t.rticule.r sphoro ., L~ tho po.st t~1oro h2,s boon a nood to 011courago t;,om to think for t;.wm­sol vos, but 110,1 I o/to11 fin6. thee ny job is to put tho br2.kos on wh0:;_1 formerly I hc.d to kic~c thet1 r.long, This is 2, hoo,lth/ o..ovelop,aont ot course. In most of our dopc.rti:1onts .-rn lrn;vc c ho2,d who then hc,s f'~. cou, .cillor ho co.n appro1::.ch o.iroctly,, 'rhis ho.s uorked v0ry will in Oa:;,1cn!, \ti th o:1ly a fm minor o:x:co1-i-cions, 1:Ve hc;vo no portfolio vrhich ct soIJotii;10 O1n other h2,si:1. 't justifiocl. its inclusion L. th0 systum, Tho individual cou.-.,.cillor 1:1ust be roo,11y up to a.o.to uith his dopertm:mt, while the Ee,yor h2,s -/:;o ;Jo up with ovor-;thing, This ca;, at

- 80 ...

times cr.uso i'rictions, percicule,rly i/ I 'n £1-

j1.r,,1p ::\i1C, a hr.li' 2ohee,d. But be,sical:Ly thoro needs ·i.;o 1)0 c loy2,l ty e,nc I r,1ust sup)ort :w council 11

Appoin-Giilont to the ·;?ortfolios is rM.1,clo by th0 r1ic,yor nith

tho fi,12-,l E,cc0::?t2.nce by thu council boing nocosf,2,r,y, 1.I:h0

councilloY s co ho,vo r. riE,;l1t to r0fuse and e,lthough it sol6.on

occurs, two of tho ;?ros,;n-c cou:crnillors hc,vc turnocL dovm the

portfolios t}10y '::ere, origi::,oJ.ly offor,,,cL 'l'ho prosont member-

ship dl soon woll se/cis:::•icc1 with t:wir proseat portfolios

al though thrGe councillors clid montion othor fields, tonn

plcl'lnin,s sncc worl'.:s, which tool;: thoir interost. Thoro nc,s 2,lso

no enthusissm for incroe,sing tlw porrer o:;~ 2,ny of tho coumittoes;

e,s is ovicLont froiil tho folloui:n.g con11110nt s :-

1·Th0 council is responsible t:\S a r,"11010 e,na. things noulc, got out o:~' hn11cl if too :mch porior ,ms given to 0110 a.epr,rtnont" All decisions nust po,ss tho t0st of opon council" 11

n11hu only r1e,y to increase tho control lios in tho personc,lity of tho ch8-irncn fo:c it is only he who crn lJUSh his committee e,lon6 • 1i

A tbird. meEtbo:c suge;ostod an iLi})rovo:~10~1t to tho syston.

11 It's not necessary to increase their porror for it I s individui~l porsoi12,litios th,: t count, I cton I t t;.1ink tho sclwE10 is ;?e.:rticulo,rly off'iciout. ':'ith tho linitod o,::c:rn.sir..s!" with ·11l~icll :;-ou hc,ve to work four different conmittoos might bo bettor, ro,tl'wr tho:,1 just two."

Tho monthly rnootin<;s of the -.!arks DXH!. I·'in8-nco Cor;mittoes are

hold in tho 1,1021c prior to tho full council nootii1g in e, s01'10-

whD,t ii1fo1~~121 2,tr.1osphor0 but \,ith :::c:c1 o,nC',ronoss of tho n00d to bo

- 81 -

sonewhe.t busi~1osslilco i:1 their cLoliber2tio11s L ·choy aro going

to bo r:blo to covor 2.11 thee is roquirocL in ono sitti,.1g, Ono

rnonbor .i:olt t.-c,t 2JJOut :nino-to~1ths o.,.· thu businoss discussed

noroly roquire:cl Jehl, 0,~:i;)lic2,tion o::.' some ocrlier ·policy clocision

to tho specific qu0stion ancc thoroforo 0~1ly tho rouc,ining 0110-

tenth :rnqui:i.'oc1- cietfj_lod d.iscussion,

1.rhoro nc.s sone a.ivision over -:friich o:: tho co,:iuittoes coula.

i".io co'-1.siC.orod nost poForfuL :~'ivo re.toe, tho . •inr.nco Co@nitt0e

r,s th0 nost po•,1e:rful, four tho ' orks Committee, whilo tl1G other

throo fol t thr-.t no cor.wittoo ,ms c:,:iy mo:co pmrorful, s,~ic:'. one

councillor:-

11 ':('horo is no comnittoo ,1hich exerts c.~1y more power, Thu ,.:01·:cs is tllo most ir1.fluo tir1 although tho fin2..c1ce could bo th2 Host porrorful gs it doo,s co;1trol tho '.)Urse strings, 11

It is of course <J.if:ficult to ol1joctivoly assoss tho rolcti0ro

po-,.rc,r of tho vo.rious coi2:.1:2ittoes o Lut u1 ap::_)roximation Y,as

gil.in2;d by stuC::.ying tho Lli.nute:s of tho Borough Council from

1957 to 1965 1 c.110 totalling tho 11unb0r of rocomDond.ations from

00,cL cor.mittoo por yos.r·, 'i'his nocossit&tos o.ssuning thc.t oc.ch

comnittoo rocornr.10:.1c1c.tion is of c.p;_·iroxi:,1c.toly oquc,l vsluo end.

Tol)le Ono sho·,rn tho porcontE\t:;O of tho recon-

mo:adt.tions in er.ch yo2.r. Thero has boon 2. grrselu8.l increc,so

in tho numl)(Jr of roconrc:to:10_~.tio11s per yoe.,r fror:1 1957 to 1965,

r.lthough 1966 d.ro1)s suddm1ly to a lovol oquiv2,lont to 1960,

tho groc..tos·c incro2,so is noticod botwoo 195c; 2,;,10. 1960, when

- 82 -'.rlu,L;~ I ·=•--.-· ----

The Percento,ges of 'l'otd Coi;1r;1ittoe Rec omnendc:c ions

pre sei1tod by the given CoTJr:littcos bet\10011 1957 and 1966

-- ,._ =-.., .... ,_......., •--.--...... _ __,_, .. ...._ ·---"---=-~ ., --...-~--·-- ~ ----=--~ --~--... ------"--=-- ~ .. , ........ , ..... ~,....--... -...--· _____ ____,___._,._______ ----- _,_._._..,.... ~~ "-~---- ,,,....~ Cor:i:-'.lit--teo; 1957 1958 1959 1960 1961 -1962 1963 1964- 1905 1966 Avere,go

.... -......_,.._...,. __ -=-·--·..-.,~--------- ~---.. =---~...,,.-----·---------~· -- -....-..,......-=-.-=--""""'-~~__..-. .,. __

J,inance 2Lh0 17, 5 17. 9 18.6 18.3 21.0 17, 2 17, 2 16.6 21.7 19, O

',.orks 21.0 18. 6 18.6 2l:-. 8 22.8 22.0 22.3 23,0 24-,2 21,5 21.9

By kwrn 16, L:- 16, l1- 1 () () OQ CJ 13.7 15.3 16.3 18.6 14-, 5 17 .4- 15, 9 16,3

Reserves 7.7 1 o. 2 1 o. 3 7.9 9.0 8,3 9. 4- 11, 2 11 , 8 12. 9 1 o. 9

'l'ovm PlDJ:1.ning 8, L:- 9,·] 6.2 10,3 8.6 5.2 6.2 6.9 9.3 7,8 7,8

0tl10rs 22,5 28.2 28.2 26,7 26. O 26.2 26 .3 26.2 20.7 20.2 25. 1

Totc,l Conu,d-t-· tee Re•· COE1Elend.o,-tions: 726 762 74-9 ~?87 1026 103l1- 1139 1150 1179 986 974-

c, 33;: groy;th ii1 tho totrl nunbers of reco1:1Dendrtio:o.s occuroc1,

'l'his corros;?ono.s with the cornnencei•1en·c o/ tho Borough Council

develo1)men-t; progrc,;;mo follouing tho raising o: e. doveloprc10nt loan.

It is also note,;rorthy tho,t no p::-,rticulo,r comuittoe h2-s shom1 any

disproportionate increase over tho ten yoe.r porio6., which ind.icntes

thc,t the graduo,l develofJ~,1Gi1t over the pe,st ten yee,rs has "been

sharsc~ by c.11 the cor:J1:1ittees. Noticeably tho \lorks Corn1uittoe

dic1 sho,;,' c. 33, incronse iJ1 1960; - the st:ne yor.r of tho intro-

ductio11 of tho a.0velo1Ja011"c loan - mic.. continued. to n2.inte,in ft

- 83 -

.,., slightly highc:r thai 2,v0rngo perco;.1tnge for tho next five

yo2,rs.. '.I'his perioc~ elso corresponc~.s uith the clw.ir012,nship

of tho ',orks Cornnitteo by one )c)orticul0,r cou:1eil1or s.nd there

soL,e credit could be given for his uotivc.tion end leacLership,

About ~-0/ of the conmittee activity of the Council is 2.t

1Jresent c0:1tred 2h1ost equ<~,lly 2.round the J''inance E',nc3. 1.orks

Co;m,1ittoes \',ith s, further 2/i conceri1od with By-l2xrn and. Reserves,

Indeed this has been tho unchE'.nging pc-,ttor;.c_ since 1957 arnl it

is nost likely thc,t a study going back further into tho records

woul(i. reve2-l 2. siLulo,r p2,ttorn,

'j_'he ii2porte,,i1ce o:L 2, comnitteG decisiol1 is oeph1:1,sizod by tho

fe.ct ths,t in ton yea:rn, out of noarly 1 O, 000 recorm:aendations

a noro six rrero out voted i,.1 full council, ,7~dlo tuo others

were pe.ssed o:c1ly by the l.iayor I s c,,sting vote. Certainly

othor motions hc.ve been out-votNl by the council but those

hose e.11 been in the ce;cegory of 11 othor busines,'3';, ,:hicll hc.s

,,ot proviously c;oi10 bet ore a coui:litteo, Since 1957 nbout 1,500

itans he.ve appeared. 2.s gonere.l businoss 1 equive.lent to 15t of

the e.nount or· business c"..irectoc.t to the full coui1cil by coumittees,

This is D,lso tho )rinciplo source ot the 'persone,li ty cls,shes 1

2,110. Yir2-nglings highlighted by the• loce-,1 press 2,s these itens

of business hv,re ,:.ot he.cl the bonefi t o:i:' 2. a_ete,iled cor.1.mi ttee

he0.ring ·irhoro possible solutions can be COi,siderod e,;.10. clifferonces

of opinion corr:Jro;:1isoa.,

- 84. -

L. numbc,r of more spocializec1 coumittoos, Y:hich only ueot

when required., ero s,lso usocJ. ty the Borough Council ':L'ho A;irport

Cor.:i;,i ttee is share cl with the County Council, tho Borough 1J0ing

represent ea. by the lfr1,yor G,nd h,o senior councillors, '17hilo c,

siuilar c.rn:, ,gono:1t also oxists for tho Civil Do'.i:'enco Co:rn:iittoe,

A 'l'oY:D Planning G-1°oup i7hich inclucles sovor2,l boroughs in the

e,roc,) c,no. whicl1 jointly w,ploys 8, to':r.1 planner hiwo three re­

prosento.tivos from tho Oru1c,ru Dorough Council, 1~12.c"1.o up o/ tho

Lcyor, 0,116. tuo others; ,1orii1ally tho ChE>,irL12xi, ot '.Coi!n Planning

c,no. ·, rorl:s. :B'i112,lly, tl.w:co is eil ;~norgency Cmr:li ttoe, instiJcutcd

by the present :.2,yor> to d.eal 0:1ith business 1;hich cc:w:mot bo lo:t't

until ·t;h J r.10nthly COiJF:.i ttoe moeti:.1c. Its 1;1en,)8rship is again

anc. tho C:t2,in1m:._, oi tho c01amitt.,o una.or ,rhoso juriso.ictioi1 thG

problon fnlls. 'rhis 8,rrangGJ:wnt gives the appea:cance oc' the

beginnings o_,_ Em inner Ce,binet ~ nhicb ho,s been subject to some

cri ticis;_i fron other iil8i'J1)0rs o.c tho Council, 'l'ho so dofo:).din6

the, systu., orgui::1 that it is rof•,lly no8J~oning tho authority of

the :'.fr:-,yor for his orm. protection, but those uith conpldnts felt

tlwt souo ol th,J itous c:msid.orecL by the c01:1L1itt0e weren't

necoss1;,r:.,J.y ones roquirin6 e. quic}~ c.ocision. Ono councilJ.o:r

went o,s far e,s rof1.rni::1,r~ to ag:r,e0 to the cr,lling o:::·· tho :8,1erg0:1cy

Cotn11ittc0 ;_ oven d though tho issue WRS conc::;rne0. ui th his j1ort­

folio; ;::,,;1c:. other sozlior councillors had suggostocl the:c the

- 85 -

cornnittoo shoulc'.. bo c2,lloc:." This also suggosts the;c tho re is

roa.lly no cloc:x dofhlition givon s,s to who should ciocid.o whon

the services o:~ tho co,,uittee c,ro required, but it is prol)2,blo

th&,t if there is £\ny a_isagroer10nt the j,,Ii:cyor ,.rill ncJco tho

decision. Tho groY,th of the Energo.1cy Coi'lDitts:Jes por,ors beyond

1:1oroly tho co:1.sia_er2,tio;.1 of urgo;_1t busL1oss is o, possibility,

but it is ho,rdly lil:oly to occur in tho ner.r future, as the

council e,s 8, \!hole still joclously gu2,rc".s the respo;.1.sibility

of tho full couacil to tal~e tho c.ocisio~:.s on behalf o:f tho

citizenry 2,no. any a_ovelo)?r.wnt to,:·o,rc1s r, co,binct-liko arr1mgo;:wnt

110u.ld be soon e,s a sorious 8.istor,cion of' this rospo,1.sibility,

J3ecc,use the Ho,yor is o, norJ.bor of' all cm_.;_nittoos it sooi:,inz;ly

provides hir,, with increr,,s<,d control ovor tho ,;rnrJ.dne;s of th;:,

Counc:Ll 1rhe fact th2,t Oi.10 ,1l8,i1 is able to proviclo ovo:i: ell

direction e"s vcll o.s obtcdn a totr,l picture o:' tho co11mittee

opers,tions prwio..os e,;'- iuportc:.:1t contrclising 2,ffoct upon tho

systou a;10. possi~Jly r, rostrs.inine; ii1fluonco, Yet it is L,lso 2,

possible source of conflict. Further, the 11Imr Zo2.l11nd local

governrnm.t syste:1 ho.s e,lso d.evoloped along tho lines of h2.vi;_1g

a 11 strong r.12,yo:c2,l ty 1;, simil2,r in typo to tho Anorican Prosio_ontal

systoL,, A ,W,i1. uho is oloctod npart froa the co1.mcil as tho

chief mr.,gistr2,te a,.o. firs-t citizor> of a co:Jrmnity, a men wl10

he,s gre.ntoo, to l1L1, by the stN1cting oro.ors co"1siderable prococLuroJ.

control over 2, J3orough Council, Esso:c•.tially thore is D, for.i' o:C

11 mt\yor21 L1.[m2,1' i.10t shareo. by 2,11 ordine.ry councillor, Ythich o,t

- 86 -

lee,st :Lulius gree:cor 1:1eyor2,l pouor i;.1 th:, cm1r.mnity,

'l:o :c,c c. to this al:ro2.c,y co:~1plox picture tho str0~1gth of tho

conuittoo systG"'·, resulting iron. tllo fact thct nost of ·l;}:10

corJ1:dtt00 :rocou.r.10nc'..2,ti-.Jns c,:co pr..ssoc,. vithou-'c quostion, could

concoivcbly c_uvelop into c,. si tu2,tion ·,·1hcr0 nost of tho po\,er

a:..10. initintive rests rrith tho cor.L.,itteos o L.1 this tspo of

sitw),tion tho iudividuc,l councillors tena. to think of thon­

selves first end foronost 8,S chc-,irr,1ru1 of A or B cor:1nitto0 and

attend council neotings alnost 8..S d.olog2.tc:::;s frou their rospoct-

ivo conni tto0s ._ 'l'his ;12,kos it cl.if:C'icult for tho 1\1cyor to

:,12.J.i.1ta:rn 2.. position of d.ouinnnco nithout conti:mcl political

A siti..w.tion of this vorioty o..oos occur on tho

Borough Council 0.t tho ti;io o.::· tho prosentat~_on ot estimates

whon tho xiayor roguires 1:t 6.oto,i:1_od dofonco o:f all fir'-,~1cic,l

rog_uosts fron the vcrious co,;,:'l1ittee chairtw::., J.l..:,.1y suggostod

cut backs e,TG o,ccoptoa. r,Hh groat c1ifficulty as the tonciancy

It w2,s aJ.so i'el t the:'c oftc.1 coLmi ttoe cll.airno~1 uoro soDotimos

not :.:'ir,·_ e,1.ough ,n.th their de1)2,rt,,10nts 1102.ring the enii of tho

u~1c~orspo11t thuir yearly allocation until a suda.011 rush of

last ninuto spona_ii1g fT:1E:lly resulted. in ovor spending. 'l'he

suo.c:Lon rush W8,S o.uo to the dosir0 to avoio. any cut b2.cks on the

estinatos for tl18 cori1ing year" 'rhis it wcs sugsostcd., could

l)o sto:;)_:;.ioc_ if tho chairuan 2,ppliod a little less pc,roci11lisn

- 87 -

&nd. t\ little moro firnrnoss"

·;iith th2 ostine,tos t:·lis thirc7. possil)lo source of co;1flict

soldon occurs in tho Occ10,ru Borout;h Council's c.dHi,;istration,

Firstly tho comnittoo syston itsolI', boc2,uso of tho e.mount of

to gathor c. co;.1uana.ing stre11gth E1,s a co;:i1-;dttoe cllc,irnan,

Soconcc tho prevailing ethos conti;:,uos to be ono firuly

boliovicv; in tho neod for 9,ll-counci1 d.ecis:10ns,

But r,lthough the other ins)cituticno,i 2-rrax1ge,,1ents, such as

;:; constitnt:co;.1.e.lly strong nayor, r,n6. e, co unittoo systo-:-. whore the

uayor p12,ys r. o.onin2,:..1t rolo Dl\7 :1r:.turo.lly load to a cle,sh

bet·u0011 tho Mo.yo:,: a.11c, corn1eillors on tho Borough Council, the

crux o:C tho situc,tion is that so much depcmcts upon, tho 31orson-

r,lity 1 _ te,x:_1orario:c1t ~ e,nd CE\:?e,city o~: the inc.i via.uel rrho ho,ppens

to 1jo olsctod to the uayornl ty, 'l'his :::'act is uell e,pprociatocL

by the cotElCillors, E,l though soco lic1k it with tho conclusion

tho.t he, is only e,s strong as tho councillors e,110°.; hii~l to be,

SOjlO o.c' t}1Gir cor2'1011ts o.osorvo c1uotction,

"Unc.or the ~!unici1J8.l Corporo:cion Act ho ho.s unlLdtod po-;101~s so tho extent o:f' his po\!Gr depends upon liis i)orsm:12,li-iy o It also d.opond.s on hon tho Councillors ro2,ct ·co tho Ew.yor, tln.t is, ul1c~tl10r thoy let hiu e,vmy \7ith things or ,rhother thoy cs,n pin hin dorn.1, 11

2This is h2-,ro.ly corr0ct r..s tho i:unicipal Corpore,tio;_1 Act

doos not dete,il tho ponor of the ;=ayor, e:;cco1Yc to sts,to the.t ho is chair;-w,c1 of tho counc:Ll,

- 88 -

''Ho hc,s vor/ ui<fo povwrs r.s is clo8r :C'ron tho sta .di,1g o:rclo:cs, It I s L1UC~1 ,;ricer the.i1 awiy thinlc I ::''oel sure t:1et our ik,yor hes 1:isoly t.cb1inistorod his pov:or 8.:tlC~ he is :c1ot 8.icts.torial, lio fori.o,.;s stff16.ing ord.ors f'.11.C: tl1is is tho correct procedure, 11

liT:10 irI2,yor is e.s stronG o,s his po:cso:,.11:,,lity c.1101,:s hL1 to ·bo, 'rho Le,yor c2,r0s o'..out tl10 Dorough s.:i.1d its :p:cogross o.:c1c1. he hes 2.:1 al:Jility c~Jovo tho rost of tho cou:rniL Ho'::cver t.!cro is e.t ,ci,,cc,s so,:,o chspr,.rity tet-,r00:J tho rosponsilJilitios ho soes for hi:1sol:C 1:.nd th2t ',.hic:1 slEiuld oe tho coulwillors, Ho 110.y soGu to bo stretchi:c12; for the e.do.itional por.cor •:>trc perhaps his assossi;w~1.t of other peoplo 's ignon1,;1ce is so vocy corroct,"

Tho inc.go of' o, nayor is often ono cast in the noulc":. of s. chairn;:,,n

·17ho r,1eroly co;.1trols th0 ;.10etil1gs and. su,.;.s up tho conclusions

f1~0!'.l any o.iscuss.io 2.::1d. puts tho notio:i.1 to tho voto, '.!.'his

a,spoct .,fi,,s D,lso r:1e;,.tioned., rn.,ong othors, ·by sone of the

ElOl.lOC:JrS,

11 I1e 's only gs poHerful as tho councillors will allorr hi , to ·bo, 1:Cl10 council n1:..J.:os tlrn decisions Hhile tho faayor ch2,irs tho meeting, In cou;:1ittoo work he: hc.s :i.10 extra J?017Grs bu~t of cot1rso 110 cru1 giv0 e,n. Oj_)il1i0:1 o

11

0 Tho tovn:, is rulec"i. by tho council but tho r.lcyor is 102.der o:;:' th0 COiill.lUnity. Tho council can't a.epose hi.1. r.:1d by virtue of his offico he's tho cho,in.rn.:1 of tho cou:acil Eis find ruling nust oo 0.cceptod but

ho uost carte.inly c2x1 bo oh2,llengec1 Pouer is the ttoasure of :1is e.bility 2.s r- lc;2,der, but cloc.rly tho council cgn out voto hiD even al though he Ll8,y

2.ppor.;;c to be stronger because of his presence on 2,ll co1.1,,1ittees. Also it s:;.1::;,.1lci bG re1:odbored. the.t the ~;c,y0r is the only 0110 ,rho goost to tho ;,;mblic r:ith 2, po1icy w11ich cLoos give hiu. &1 extra responsibility to th,; coDr:mni ty, 11

The ?.'l1:;yor c.e:;s.in nes c·:insiclerod. to be tho E10st ponerful ne,n on th0

council by all tho councillors '.ihOJ:,. thoy uero e.s};:ed to :-1D;10 the

- 89 -

throa i:10st j_Jo·.orful :1orL :CxDre:ssions such c,s "the iic,yoi1 is

of course tho most poworful en~- cleo,rly ste,na.s out~" 11 tho

ii2yor is c_ofinitoly top i.,illl.; 11 "tho I1fo,yor is no:tun,11y the lrny

figure; 11 11 relud2,ntly I uust aonit th:;t tho I,ieyor is tho 1,1ost

powerful 11 rroro cor:1non" '1'110 who wore propo,rod to :ca;:10 only 2.

sucond re.nld·,g parson pl£woo. tho Deputy li12,yor in this position1

while five o'chers coi1sidorod that tho Chairnan of }:'inance r.nd

\for!·~s do served tho socono_ anc. third ranld:ngs" Yet o.geJ.n tho

foo1ii1g m:.s thct porsonc,1i·e,ios ,;rero tl1u ,:wst vit2,l co:.sicle;:o.tion

in dicte,ting po-,rnr e,nc1 tll[:t this boc2~10 uuch noro iuport2.nt

tl12,11 tho ofi'ico _

Clo2,rly th0 wxcl10rity end th0 position of tho i,fayor is

undorstooo. by all tho councilloi1 s, evon if it is not r1uays

o.pprecio/cod, for sontiuu:..1ts such s,s Htho I.:2,yor has vrisoly

8.di.li ;istorad his j_)O\rorn e,nd "he I s noE,a.lly v,~ry fr,ir" ,;rure nixed

with expressions si::.lile,r to 11.llG is too dicto,tori[.l 2" a_ unbondin6 11

and 11 ho }:mst C'.lwe,ys hc,ve things his ow11 we,y 11 • ',!hilo it is

certe,inly boyond th0 scopo ai1cl responsibility o:f t~1is study to

po,ss jud0L1-m1t on the ri('j:1ts a.nci i!rongs o/ nayoral decisions r.

ree,ding o.2 those roportoo. inci&onces o;: 2, E12yor-councillor cla,sh

1,0ro found to ;:.10ro co1T1011ly hinge 0:1 contrary intorprote.tions

of tho nayorv,l of the neyorr.l rosponsibilitios as chaiI'n2,11

- 90 -

thLn on 8. &ifroronco over policy.7. - :>

'l'he ·;,)ossibilitios of L nr.yor~c,Jtmcillor clrsh would soon

:,10ro i f:.iiaont if politic el psrtiGs ,wro to cmtor upon tho

conr.m11ity stago for thon opposition would bo L1<-1ro c7-ofinito

2nci orgrnisud, lh.:0vor the likolihooc, 01' this occurinc; is

oxt:ceuoly rc:.:oto. ·, .'110n th0 governors '.voro e.s'~0d if they

thought p::.ilitico.l po,rtios shoulo. t2..ko sor.10 native intorost :Lri

loccl govornnont, oe,ch reply cnphcsizoc1 tho nisaa.vox:tur(js that

,nu.le~ result if pG.rtios uo.do e, uove to ontor tho field of loce.l

govcrm1ont. 'I'ho one exception c0u,.te11tea.: -

lilfot p0rh2,ps in Oruaru, but it h2.s distinct oloctoral 2,civc,nto.gos l!fh,;Y'i,; tho people don't L11ovr tho inc.ividuo.1s, }k cc11 thm, vote for tho part::r. Act1inist:..~r:~tivoly it's not good gs it loads to a division of councillors. Prc,oticc,l judguont rrthcr tll2.:r1 p2.rty juc1guoffc is ro­quiroC:. in locc,l govon1.,'.i01,c, but the clisc.dvrmtago is t:1Lt thcro arc no ue,jor coi1flicts 2,nct tho public ii:',,?,5;0 ten0..s to be: un2,ttractivc ~-,;ithout p2,rtics."

1l10 8,nyo:i10 2.ocusto; __ wd to e, p2.rty systor, of local govornuei1t it

would. l):i.'obe.bly soon the..t tho governors rgthe;r ovo1' e::iphasized

3 A,. oxcolloat ox1:j1plc o: this occurred in Novonbor 1963 rrhon tl10 locel :i;iross lrnadlinod their report of tho previous ovonings council cooting ,7ith 11 Counoil lfootin,0; :':2rcie.l Too l'.iwy Points of Orclor 11

•. ( n•r11e 02uaru x.fo.H 11 - Tuoscioy, 26th Hovo::ib0r 1963) One

councillor 2.t this ti,:o seeui"1gly oxprossod t110 :'.:'oolings oi' L,ost of t:10 council whcm he seic. that he felt lilco 20

11 bushoa_ bush l2T:yor· 1

,, Tho clir:12,x o~' this rieoting •11as a uotion to buy cT9ios of' the sto,no.ing •Jrc;,,or;,; issuod by the l,;unicip2,l Association, r,nd 2, \Tarning fron the ifo,yo1° that ho intcndod to soc, thc:c standing orc1ors woro observc:c1 nucl, noro strictly in thu futu:ce, for e,s ch2,irnc.;,1 it ':O,cs his c_utf to control tho T,10eting 2.i1d if c, point ,Jf orct:,r o,roso it rre,s for 11iu to oxplidn enc_ give 2, ruli;,1g.

- 91 -

the clonin2.ticm of 2. party over inc1ividu21 opinion 2,s 8,11

their replios oclDod this scmti:Jont.

11 1 seo only dis~ dv8,nt2,gos .. I cons id.or th2,t r:te,ttors sh0ulc:. bu discussed on tt1oil~ norit i,1 rolation to their co:;mon good. 0,:10. not in 0,groo,·,ont 1;i th c,:,:1y sectioi12.l group. 11

ct all, Tuol vo go·JC, non 2..ro t!e.n. to d C\i10_ cro vrh,t

1rho toos " I'u co~winced th,,t no ::1enbor

p2,rty lLw c2,,1 i"Joot up to this. 11

H\io 'ro very lucl:y to bo ,rithout it. You nust vote in 2,ccordcwo nith your O"\Ii'. viows, 211d if 2, m:m c2n't give his views Hithout part;• colouring then ho's not nuch USUc 11

urooplo hc,vo to o.iviclo sides on p~rty lines. is tho nost inporte,;.1t

their int2rosts if' thoy tcJrn Tho ovort.11 good of the body

i oe,turo of council VTork, ii

'Tl--io no:-.ibors tho,.1 nost ccrt2,inly Fish to co· tinuo this

situ.?:tion o:f "unf'ottorod. opinion 11 e.s th0y soe no pl2,co for

IYJlit:i..cd pc.rtios in lc.1cel govon1nont. ::i'urtlwr tho politics.1

_pr.rticl thc1,~solvos 2,p:pc,ro,tly lE.vo no roc.l intorost in oxtond:i..ng

thoir loccJ.. n,ctivitios into cor.n1unity politics. As for tho

popul£•.tion the follo1;iing ttble suc;gost the,t thcro is only

no o.,g:ro sup _,ort for tho idu £~.

'r.iiliLE 2 ·--~--~--Urbc.n fl..i.1d Ru:r2,l Support for tho Introduction of

Polit:i..cel Pc.rt:i..os into Locc1l Govor:n,1ont

::mRAL UJ{BAN

Yos

No

Don't kno;;.r

10,2;::; ( 21)

83,0?:: ( 169)

6,8/ ( i 4) ~-~ ' - ( ') ~) 100.oi. L.04

11 , 3>, (28)

81. 0~: (210)

7. (;,. ( 19)

1 00, O';'. ( 21., 8)

92 -

L1 co;1sic'.0:cing tho ·02,ckgrcund. of the 49 wh·) :f 2.v'.:>ur pE'.rtic:i.p2tion

bJ pc,liticc.l pc,rt:L:_,s it ,H s ncticee,blo th2.t only thrco :curc,1 c.nd

five urbc.:i:1 J)O',)}?hJ in t}J.is grouJ;i b0lo:,_16 ;.:;o_ b I?, politiccl p£1,rty,

'rho c, ,ount of p ,litic2l c'iiscussL,n in tho hot.10s of tho 11 y,;s 's 11

is littl,) B.iffororrl:; f'rou thv ro:~lc,indcr of tl.10 popul2:cion,

but tho urbr,,, "y0s 'sil do appor,r to bo u.oro viilling ·co stn.nd

for locs.l govor:0;1cnt if e,pproc.chod, Occupatic,no.lly it ,;c,s

e,ppc.ront tho:t tl.lc n2..jority of the 49 11or~. p0cplo who ,;;0uld

p3.0 ')bc,bly sup-port the Lc,bour P2..rty 1md. it thoro?oro cc-n bo

suggostod thr:l; th0y vmi0 0 1?: . .-2,ro o:,:· tlw efforts of tho L2bour

Pr.rty in ·.:ithor loco,litius ii1 su:fiporting locc1 govorm:1Gnt

ccmdicl.2,t0s . 'l'hosu uho '.1oro i11torost0c1 in ste.ndin,::; for

10021 gov0r:c1J.011t s) ... oyrnd. t;.10 possiblo L2,bour bic:.s ovo::-. :.ioro

str:i;.1gly 2.s it is likoly tl12.t tho::r n,Jula. cot:sicfor thoir

cha.coos o:c" solucticn 2,s loceJ_ bud.y cnrnUdatos groc:cly on­

hancud if thoy Hero of/0rod 12,bour Pc-rty SU)?lJort"

It is intorusti·.1,::_ t:::: CJffcc\ qldo tLc offod; the,t tho

introducti:m o:Z politiccl pcrtios nc,t;lc1 hnvo upon loce,l

g•JVOY'YL1.out i.•. Ou,Hn"u, noru osp0ci1c,lly Ol1 tho J3orDugh Com1ciL

?c'irstly, in a.ofining tl10 tor1 11 pcrty 11 it shuulcl ;)o strosso3.

tlrnt it ,ust nocoss2,rily i,.10luo.0 o group of ino.ividullls uho

assuuo c. c .1L1non po,rty 12.bol for locQl ol0ction purj)Oses c,nd

rs 11Gll r.s e, group of c:Jtmcill0rs ·;:ho stc.,10. :·.s in6o::JOD.d,mts

- 93 -

,yot cfo ED 1~o clotor,::i.iY106. of:i:'orts tc S)<Jc,': vith c m1i,cca. voice

011 cou::wil yolicy. It is e, urojJ_g c,ssu1:1pti.m t:ic,.t p, rtios in

hc:vo precisely th·..: sr-;:.o offoct vith,)u:~ c,ny fi:)1°:·,2,.l cttc:c,pt t,.'.

oste,blish 2. p,.rty,

pltrty v2,ri1.;s c.:, sic',orr:bly :C'roJ r-. situc:cion c,~ total support

for [', nc,jo:d.ty CL8Cision to c, :x1int Hhur.:.: the;r<:, is L:or0ly 2,

nroquostn :nt to O) ,oso tho cc: jority :;?;:,licy d.ocisions of tho

pr,rty, p,.:cticulc.rly i:f they 11ev-o ouon p2.rt c~. tho election

Thus ·p2,rty m.ri_J.._)o:ct, if' ino..oed it is do:.,£mclod 11t

e,11!1 0211 ve,17 c•msiclG,·c,bly on t~1.is s)octrun E',na. shouldn't

bo thought o,: r,luc,ys e rigic-:. cl.0nc,no. sl1c,ckling 0vcry pe,rty

Tho jJnrnonco ,nc. usoful:..1oss o::'.~ pe,rtios in locei g,T11 or:uo;.1t

is in , c,;.1y ,12:ys c > .di tL•noa. b~;- tlrn p:1~tsicc,l, s:wif,l arn1

oc0··,,.:,·,:1ic onvironmmt 2,rn" ovon by thu quality o.:.· in(iivic:cur,l

council no,.1bors.

r,ppo2,rs fo bu precious littlo scopo for p2.rt_. iaitfrtivc in

O2,~e,ru 's loce..1 g•:1v0r·.;uont, ns tlw }?Uroly 2,a.Linistrr,tivo

content ,.d' the Lorough business is con.siclo:rc))ly high,

?urthor tho ,.:2,j·.:,rity ol' tho :problcns lacing tl10 Dorough

Council o,ro not 0itur:tio~1s vhoro th:..rc ~.'oulci be r11y ch2.~wo

- 94 -

C•Julc, l)'-' sono a.ifforoi_1co •Ji' opini:m as roge,rds t}10 speod of

i .. 5?101:,entrticm, This lattor considor2,tion is of course

2.lroocLy j)rosont thre;ugh th;,; norr:icJ. liberoJ_-c :msorvctivo

r.ttitudos which •:.,ccur o

Yot uhil,:, r,gn,oin;~ that 2.t p1·os0j.1t th01°0 o,re :,.10 issuos

which wc-ulc,. foster tho gr,Yi:r,c:1 of rigid divisions i~\ Oer:-:e,ru

Dorough g0vorm:·:cm.t, aao.. thus allow tho clovolopi_wnt of

po1iticd partios, this doos not proclucto tho possibilities

o:,:' th0ir untrenco L, tho futuro 2.t r, tL10 vhon pcrtius ,1ight

'11he tl10i:,ry o: contrf'.l govor:n.i.11:mt

describes the: role; of tlw do::locretic p,Jliticie,n rs 0110 in

th0 citiz0n, It is nornc,l for th0 2cl1i:ilist:cdio:1 to r.clviso

on tho vo,rious '.;ff_ys of dcecling ,,,ith e, signi:c'icc.nt problo· . .1

ancc it is thon tho )Oliticie11 1 S •tC'cSky firstlc,r to inforEl the

l)Ul)lic of tho ranco of' al torn[/civos c.nc.. tb.0~1 to bo sonsi tivo

to popular prof0ro11cos bot,.10..:n tll,:,so 2.ltornr.tiv0s, boce,uso

· ho is li2,blo t.J rojoction et oloction tino if ho ie.ils too

fr0quo11tly to sc.tisfy tho public, Thora is no ro2.s011 to

suggost tkt th,J si tuc.tiun shcn.1lc', bo e,.;iy fi:fforcnt for 1002,l

In bot;:1 rospucts it w:mld sco;,: the,t tho

existing syston in nust Non Zo2,l2.~1c_ loco.l 2,utl10ritios is

clor,rly dofoctivo principr.lly boco.uso thoro is no c:,horent

.:,7p 1Jsition cve.2lalJlo t highlight issue:s 1::.i1c7.. to ;rnop tho

- 95 -

public c•,d0qur,toly info:c'cd on th0 reJ1go of r.\ltorno,t:ivo ),J1icios,

lm ind.ivid.ucl c:,m1eillor le,cks buth tho inccmtiv0 end tha

r2,,chii1ory ·b oxploit issuos in this 1.w,y c nc. so c )n.soquontly

It locvus a :• .. 1C',jori-ty oi' tho citizens so littlo Lrprossoo. by

th0 l'J0hrviour of locc,l boclius, pc_r,ciculerly ,7hon thoy c•.;:,.1sid.or

tl1:.t it dog(.;;_1orc.tcs Lite: 2 disorganis,Jd r:c,stoful cl£,,sh of

porsonr,litic:s, cl1d by th0 cl10ico of cc-.ncli6.c,tos ttioy 6.a not

evo· bothor to voto. 4

'I'hc rusisto,~:co tJ politicnl p2.:cti0s is pecrtly bucc,uso

of th0 i:02,r thc,t ti:~·, nr-,ti:oml ,?oliticc,l :(:>:::rtius uill invc,cio loce,l

p.::ilitics thEJr .by ii1jocting oxtnmoous 2::i:10. i:crolovcnt issues,

c.n<'L ct th,.c sr.,u.G ti:.:0 dcc.2,,.1d }?L:,rty orthodoxy, ji_lso bocauso

iuportr.nt t•J call forth 2, co,1tinuing voluntery offort fro~.1

Loc2,l govo:c:i.E:c11t ;,;ithout stinulr:i:;ion

sco::cs t,.) bo trcppoo. in 2, vicious circle - it 2,ppuc,rs u:,1i11torosting

u;,1L1porto,nt c;.1cl. thcro::. oro thurc is 2. distinct lr,cl: of

cmthusicsn ",:Jhich ,:toruly co:1tinucs tho le,c'.~ of intorost 2,t1d

/+Bightly or m 1 :mgly this 2:ttitudo is ovio.ei:1t o::.wng cou:10:,,1ts r~out tho BJrough C uncil fro • Oc• aru citizens.

11 j:uc~1 noro h2,rno11y is r.cquiruci 0:1 tl:to Boruugh Cou cil c,s did;,:.tonz·l [,-ttituc"Los o:C c. scloct fov, c.:ac. froqu.ont cl[l,shos m.· pcrson2,lity seriously rotr,rd ,Jrogross, 11

11 It is gc:nvre,lly 2.grood thc:t ov0ry e,11 gunont ~~t council lovo1 rosolvos t,:, 2, clc,sh cf porsunr•,lity, 11

- 96 -

tho viow thct it is uniu11ortc,nt, ln rl[cny nro::-..s C'>ntinuoa.

h~lstility to tho dovol~)]?'-.iont of pc,rtios in locel govorrn 1ont

rost,l ts in tho oxclusio:;_1 not of pclitics but o:C policy choicos.

This is curt2,inly ilO c.,dvocc,cy ho·,rnvor, :or tho introa.uction of

polit:Lcc,l pr,:ctius int•j Oc,::o,ru' s locsl govorn: :.ont c,s thoro is so

vory littlo wl1ich c, politicd }_)a:cty c ;ul(l utilize t0 sti:.,uldo

intorost cno. e:..1.thusio,s,,, It is suggesting thet thcru w:Lll bo

c, ne0a. for roecljust1ont of thinking o:n this issua r.s tho

ton:. i'1croc,sos L1 sizo CcL1C!.. the :Jor~,ugh Council I s rospon.3ibiliti0s

.All tho f'ivo l:Jccl r)od.ios nc.,il E.gond.r,s to thoir uonbcrs

c, fon do,ys b,:,:i:'•~1:cc thoir ncnthly i.10otings, but -:,nly tlw 13·:::rough

C•JUi1cillors cro givm1 in MY dc,tc,il :hwthconing c,->:>.;:iittoo

rocon:.rnnd.c.tions, c,s tho othor bodies lo,c:~ tho co;,i;::ittoo pro-

codurc.:s t: 8llov,- tllis o Idodly this proce:duru eJ.lo,;s tho

the full buard or council r.100ting.

gov0ri10rs to soo it thoy ecid hc,v0 infun,1_2J.. discussions c:c this

ti~ .0 0 1rl1e goirnrc,l ?ttitud.o ,ms th1"t ·;nly occ2,sionally clid

disct1.ssions ')ccur 2110. thon it wc,s only t.:' s;;ck i f'Jrcr tion ancl

definitely n,:it t :, lobby :i:'or support o

scio. th2t h2 f1:wour0d lob1)ying.

Only ono Bcrough c~uncillor

- 97 -

n::;: f:)01 thoro is of'to-:. a nood for lo~btying f'.S it's uucl1 oe,sior doing t:1is t:C1[!,,_1 t put uy viuws in e.,

CC'Ui'.Cil j_l_OGti:1g" 71

subvorsivu )T thct it ·Jes no 2,ssurr,:·wo •_;f 12:t,)r support.

11 Occ2,s:,_:)nc,lly if I 11., sooldng ij1:i:-xcuc,tio:;.1 I 111 havo inforr.wl a.iscussions" I 1i; not in fnvour e,t all •:i/ lobbyiDg c.s they ,.:2,y bo with you oi1 th0 stroot but r.go,inst you i'.1si0.o the nc.otint;, 11

11 I hr;vu c., fc,z discussions bat I noula.n 't ovor like to bo accused A lobbyi;_1g, 11

:.G'u:cthor, tuJ ;jQ'.j1J0rs cr;:rnic.oroa. tho;i:; 8V0i1 discussi:ms noro

. " Sf,lQ :-

Hit Is c.1· e:ys bo0i1 8, ·_1Y:Jlicy Os: Dine l1UVGl' t:)

discuss t:.iings outsiclo tho ;:,ooting, 11

but z.nothor felt thc-:c c,n incroz,,r,o in cl.iscus sion ~;-oulc1 bo

bonofici2,L

11 :t:h ·Je don't hc.v::, en OjJportu~1i ty roe,lly 2,s 1.10 solc1ou soo oncl1 ,Jthor., I lil.w h;:r: :.ony on lJcol bodios u1d 2cj1 undorstanding botvoon nonb0rs loc,d.s to this. Ou thG c 1.::,tmcil \TO nove:r got -CJ },::no,., occh xi:;hor vory ·-;r2ll c,s \!O ,Lly soo oc,ch ~)thor onc0 c, ::,-::nt:1c. 1rl1is ·c:J :~:o hin0..0rs @/hid g:.;vurnL:mt, n

'l'}w throo .::.ct lnc 2,uthoriti:"s crn:: th;, County C•)m:1cil Loot

o:nco c. ,.10nth o.urin,:.; tho f.0,y ·-:,hib tho }Jorough C,)u;1cil hold.s

its nonthly uoo t i,1g c,,1 a l iondt:,J ovoni.115. Tllo rurcl ;~iu1.11Jors

trr,volling t:L ,0, E; possiblo co:,Dittc-o uootins iI1 tho norning

c.nd tho boc,rd. or c,Ju;.10il ,Juoting in tho eSt'-'rn·:1011 an ontiro

d,EJ ne'-'d.s t~, lJ;:; o.ovotca_ t·::i th0ir L:,c, 1 govu1";L:.1ont rospo: .. ,sibilitios.

- 98 -

tlu,,t bocc.uso the ;Jcutings wor ,n 1 t ~wld 2,t night, r, nu;:_,bor of

poo·;;il,J wbo ;:iight ho.vo t)oon i.:torostco_ i:,1 stco.cling wore dotorrcd

fron c1oin0 so" It is i:ntore:sting t•j n•st8 thc/c oi' tho tr,olvo

urbc.n uunb0rs o:2 the, ad hoc o.uth:::ritios only fivo c·.ro o ·,2l~yoo. 1

six c,r_, rutiroct c~,d one is e, housoFifo vThich cloos suggust thr.:c

dotorrc.nt to st ending"

boc\y ·.10·.:bcrs sponcl c.tto:.•.c~iDg t, their locr.l g. vort.L~ent

r;;spc11s:L'l1ilitLs. 'rrblo 3 is c:,nstruct0d tc s:u1• tho v21'i)US

of tL:o c,s rc;;:JOrtcd by tho ,;wuburs spo;.1t on occh one, c1uring

thu Cor.-1:,,ittoo no,L 1 durine, cho C·ouncil \JOok ,;id. a.urine tho

t··,1, ;; 01f 11 woo~ .s" As tho rr.nL ordor cl .. ) es i ollon tho sono

pctt0r. 2.s tlFt ostc,blishocl uc.:i.'lior shonii1G th0 nunbor of

roc~.ui:1onc.2,tions j_)Gl' cJiJ.Dittoo :?roscotud to tho full council,

it docs suggest thee tl'.o typo of' portfulio is tho c:tisting-

u.is:li:,16 foc,tur() c,.s rog2,:ccls l:wur s of nor~;: tE1cl.0rtc,2~0;.1 by c.

councilL,r '.!.'ho 2,vo:n1.go for tho councillors if 26 hours 2,

C:

,w;.1th or c:~out 0110 hour L\ doy :,i or n si:c day wocL; w~1ilo tho

?;e.yor soo:~ingly dovotos ebout throe hours .Jf ovoryd.ny to t}10

ST. c··1 ' ' ' l f . t' ' , l . l 110 11·:i.s-cc11Urc 1 survoy ··ounc. 1.1c 'G c~10 c'.VOrE,go tine por \teo_c spo~1t by ,:18'.lDGrs of th::i Christchurch Cits Cc,uncil '\lCS '11,3 houi~s, i'or thu Ricc2,rton ~:(;rough Council 4.1 l1.J1.1.rs, ':.£:,Lw,iri C,)unty C .. ,1.L,cil 8, 9 h,:urs ci10. t:10 :r.r2i>isport D,>o,rd 3, 5 h .. urs,

- 99 -

J,11 .Approx:L·,ctiJn '.). 'I'i :o S:_)o:,1d on L,Jrougl1 Council

or:: Acc.Jrd.i,'l;:_; to tho 1fosious Pe,rtfolios,

tl-10 Jiiayor

•1Iorl:s

,.., . -~·incJ.1CO

Rosorvos

Dy leers

'.l.'o·,-:c:· .. PlcDninc

To\El Hc.11

G-r.s f\:_10_

LigMin.,5

Libn.ry

':Jc.tur

Lbdtoir,s

Co,.10tory 2,110.

•. ,ilk

'l'u1'AL

_._.,.,__.._._.-., -~-c_.-

C:mnciJ. ' .. oolc

20

17

9

9

13

10

6

6

3

G

4

4

97

Co:,mittc.,o ·eek

30

19

12

12

i3

10

6

·10

4

6

5

5

132

The, Other

40

30

12

12

6

8

10

6

8

2

4

3

151

,__....,.-~-·-~--=---.. --...-c-----·__,,__.._.,. ...... ~---

n_wrs sp0;.1t por no:,th

90

66

33

33

32

28

22

22

15

14

13

12

380

nffe.irs of tho Borough, Noticoo,l)ly tho busiest wook is th2.t

tho ir.1porto,rw0 o/ the c·,,:x1itto0 systo;:1,

Tho C•Ju;:-it::/ C,-,u,10illo1°s fom10. it i:,oro difficult to givo r-"n

- 100 -

o,ttonc,c,nco ct r,, Cou,10il no,:;ting to .. ,l: e full dcy. Of those

vith so;w oxporionco throo sugc;ost0d the;(:; four hours of hclf

t: dLy c. uo0:c would cov0r th0 ro::2,indor o.. thoir nork, c, fou1~th

quotoo. ono hour c w...:ok c::ic1 occc,si'Jnally c.. days inspection, r,.nd.

2,1Dtl10r fol t thc.t 10-'I 2 h:,urs r, Li.Jnth ,nulo. cover whc.t ho diet

outsic1G tlu., council uoot:ing.

s1)0:..1t by £', cou;_1ty councillor c;)uld 2.t ,· D8-XiDUi:l bo c"round

20 h:curs 8, r.1.:,,1th, c·msisting of.' tho n,J;,thly '-~uoting, c,:1

occc.si:.mc,l co·;_mittoo T,lootinc;, porioo.ic ins:Joctions of work

1)oing dono in tho riding - 1• tho sto.,ff a1Y:;irocic.tos sooing c.

cou21cillor tc,ki11g t:•n intorost 11 scicl ono couacillor, - or Ll1

inspection of suggostod problons.

'l\) tho Ho.rbour Bon.ra. rurc.1 nvibors thu rogule,r bor>,rd

nooting is en c.11 dry 2,ffnir, but to tho urben 11c;,b0rs it

takos o,bout fc,ur hou:cs a no,1th, Other rosponsibilitios for

ouburs 2,ro co1:,,;1itt00 e,s sig:o.nont s, uoro so nm: ,rith their 110°,;

d.ovolol1d011t progrr,LL\8, Lnd visits t0 tho port occasionolly on

tours of i:1Spoct:i.o~'.l. Six nonbors nontionod thc,t tllis took

botvroo:;:1 two to throo hours c, HooL, r .. na. t\n further ,·io~.::.bors

th:,ught that ono hour 2, neck v1oulc'. cover cJ.l tlw:'c thoy dia_,

l'ine,lly \mo boo,rcl u.0;1bor c,:,nfussoa. th2:t eJ.1 ho did. bot,,.'0on

tho nonthly 1:1;:ietings v12,s to rocd through tho ninutcs oJ: tho

lr.st :1ooting,. For tho lk,rbour Bor.rcL noub0rs s,bcut 14 hours r1.

rxmth w0uld covor tho 2,vor2,go tir.:o spont on their boc:cd

r0sponsibilitius" Tho uonthly u.uoting of tho Po\:or Boo,rd nc.s

- 101 -

Of thcso

busi::-1.ess; .-;hich seenecl to consist of rewiing correspon0.e,1ce,

five :,;Leube:cs sai6. it too).: ·tl1em 2,bout tvro hours 8, vree~[i 2,ncl. 2,

sixth g_uotsd the srme 8.L1om1t for the mont1L The chc,irman

se,ic:. thc;t he w:-,cie it pert of his policy to cdl i::xco the

office whe, ever he vro,s in tow~1 ornl bec2,use of this founct it

difficult to esti,,,c,,te the 8,·,1.ount of tL,e he S)ent, li'or the

othei :me:u1oe1·s ci1 estim2,te of 11 hours a month would probably

cover the time givei1 to their loce,l gover11menJc rror:~, :D'in2,lly

the Hospite,l Boa"c. meE1bers seem co.;sid.er2,bly less 2-s 0JJ2,1~t from

the chairrnon 1 who sc.i(~ he s1)eirc ten hours D- week; it would

ap:pee,r th[,t the emount of time t:10 men1,Jers give consists

of four hours for the monthly meetint; ano. about two or three

hours every three moiiths on the visiting committee, averaging

out D,t about six hours a mo,,th,

imticiJJrstea. cl2shes vr:i.th home or business responsibilities

is often cited. f~S c rer.son why men nre not prepared to ste,nd

for a locel body. ·(,'j_th this in mino. o,11 the members vrere

o,sked if they hncl found H d.ifficul t to combine their council

or board -work ,;rith their other responsibilities, 1007'., felt

the" t they hc,d. no difficulties, either because their occui)e,tion

c,llo-;-.:ea. them to t2,ke time off, they had B generous firm, en

uncl.orstc,ndine; fc,t1ily, or boce.use tlleir loc81 body responsilJil-

i ties um:e:n' ·t g:i:·es,t, These exe illustr2,ted by the following

- 102 -

comments:-

i1The firm I y;01~l;: for is very generous in allowin6 me time off when. requiredo 'rhey feel thc.,t they too e,re d.oinc; somet:1ing for the conmunity, ii

11 1 hr,ven '·t hno. 8,ny clr.shes as yeto 'That I S the ad.v2-.1J.tc,ge o.:: being c. fG,nwr in thE,,t you cr,n te,ke off tiue ·,rl1en it's requirea. for boe,rd. activities, 11

11 1 try r,nd not to let it i:c1.terfere o I think my .c'tL:ily 2,re ho;p H thct I';:~ tc,l;:ing J.)8,rt 2nd they are ah1ays verJ helpful e~1d sympE:thetic tow2,rds my responsibilities, 11

11Ifo · iY portfolio is not one nhich req_uiros e. greet dee.l 01· vror!~) end I cr,n 2.6.equc,tely cope with any probleas tl1et o.rise. 11

11~.'.y theo:c'\J is thc.t if you aron 't free then you shouldn it be on the counciL It does take time but think thr:t tir,1e is not rmsted wheD the public is l)eing servec .. 11

Three ir1portant rel8:cionshi1Js were investigated through

the intervie,rs with the local 1Jody aernbors; thc:.t between the

bodies c,n& the.ir :i;iaid. officers; between locc,l end. ce"1trr,l

gover:cment, end f'i1i2,lly ·betm• en the local lJodios theii1selves.

In the first inst2,nce the division between "policy decision"

r.nd '\iolicy exocution 11 is rrnll defined in all local bodies so

tho:t r,11 council or boc,r•d decis:Lons must be convoyed ofl:'iciclly

through tho aa1,linistrctive e,:o::)ardus" li'urthe1~ there 2,r-e few

exc.nplos which exhibit c'.a111h,istr2-tive encro2,chment on council

or bocrd. responsibilities end very sela.om c2-11 it l)e shovm

-· 103 -

to have occurred_ inte11tionally. 6

fcelc:i:;ions bGti;rnen the

Borough Council cor:111i-ctee cho,irnr.;:1 end their dep2,rtl11entc,l

heo.o.s res11onsible for the o..dministrc;tion of the vcrious

portfolios r:;:ipe2.rs in most cases to be excelle,1·~, and 2°11

s:ioke highly o:,· the quality o.nc_ efficiency of these paid

officers. Some also stressed the need for qualified men,

0 Yes c,11 tho staff are very gooci., p2.rticularly the Tovm Clerl-: nlw is nost efficient, 1::0 aust have gooc1 1 highly qualified men so '.le should.'i.1 1 t be niggly with the salo,ries, You he,ve to p,;,y good money for good. men, 2,nci. I I i,1 Etll in f o.vour of this, 11

The Couilty Councillors 8.lso seem0d well sdisfied i7i"th their

c.oJ-linistrative stoi':::' ct present, e,lthough there were suggestions

1oThe quc,lity is now excellent, although in the pc.st it vr::·.s poor. Tlie Cou·:1ty Clerl: is o.. consorvcative, efficient ,M'.n responsible for keeping a tight rein on the finc,nces o

11

'rhis ss.tisfcct:_on with the po.ic7.. officers is continuecL throughout

5 One exrn:rple d.emr:.nd.s -,~1ention, In August 1963 the Borough

Com;cil he.a. agreod to 2.llow Iforric.ge OD.eon, u;,c:or cert&in con­ditions, the use of tho local cinema for Sunday perform2,nces, 'rhe first Sunc~r.y se:w st1.ch enthusicsm that 2. large crowd could noJc oe seG.te(l 2.nct in desper2..tion Kerridge Odoon attempted to get Borough Council penaission to use c. second_ the2.tre to hold the overflow" It a-;pec,roc1 that nano of tho senior councillors could. ~)e contc1cted cmd co:.:1sequontly the Town Clerk took it upon hiL,1self to oi)en the second thee/ere, His actions nero stro "gly censured. by the l;fr,;yor as being beyond. tho bounds of his resjJOnsibilities 2.nd. the a_ecision of tho counciL However in G. subsoq_uent vote the i.fayor could :find only two supporters 8,nct thus no officid complaint vr2~s rnc,o.e, The majority seemed to hole:_ to the 2,tti tua.e th2..t while the Town Clerk did 8.Ct v,ithout cou~1cil 2.uthority ho he.a. rospondea_ vTisol;y· tmder the circunste.ncos ano_ thorefo:ce should not be officio.lly criticised.

- 10/+ -

the three eil. hoc boa.ios.

ei,1>.)loyor, with 2, stafr" of 2,bout 300 generally consio.ered

t:1et1S0lves fortu.112,te to have very few staffing proble;ns, c.i1.d

r,lthough the po-rrnr of tl1e 11[tYw.ger-seco:ctary v1as qtwstionoc. his

competence nr,s never doubtoc1, 1 00 of C\ stnff seoE1ed to pose

few problo,::is for the Po,1or Board, except in the nr.ttor of

apprenticeships, encl c,go,i11 th0 senior officicls Dna_ 011gii10ers

were given e, strong vote o:c co~1fi0.e"1ce. Ji1fotlly tho Har1JOUr

Boera. cos1sic1.erod thl':c its sove;.1 employees wei~e 011 most

e.a.equr.te o,:1cl cs,palJlo of liloeting their responsi1Jilities,

The rehd:;ionship of locD,l r.;;.1.d central govermwnt is r,

vital 0110, The generr,l attitude resulting fron tho lo:1gthy '

a.ebe:tes which have taken place is that central govarnmont he,s

slonly been encroaching onto tho responsibilities of the loc2,l

r,uthoritios, lJ2.rticulr,rly- tho c.d hoc lJodies, not by d0sigi1 but

,ilore by c1efe,ul t on tho pc,rt of the locel bo6.ies" 'rhis is

ofto, rego,rdod o,s L o.angorous siturition but only the nw.,jori ty

of tho Hospital Boa,rd feel th2,t there is dopo,rtL10nttl

infringer,1011t l\110. r, lack oi' local independence ond initie,tive,

75~~ of tl10 boo.rd sr,id. th2:c tho:.:e ,;12,s definitely o, need for

wic.er locel r,uthority in principnlly two 2,spocts - staffing

i:md eX}?endi tu.re.

11 '..'e certainly could 6.o with more 2.uthority, particulo,rly r,s tho curn·:)orsouo 112,y the govermwnt operates lirn.its us to o, cort2,in expei10.i ture. In eaorgo1.wy situations ,1e noea_ more }?OUer to de2,l vit1·1 natters in ho.nd, 11

105 -

11 Staff estr,blishnont is one plnce whore ,acwr authority is roquiroc'. e,s wo ht~Ve to r,pply to tho Hee,lth :Uepr,Ttment foT tho nm;1ber we cru1 employ. Coi,chtions ve,ry fTo;-,1 hospitc,1 to hos)itcl but this is never consiciorecl h'f tho Dope,rtuent. 11

froEl "oxco1loilt 11 to ncumborsor.1e 11 50'i considered tlmt the

departuent ws,s guilty o:f interforoDco. Houover so• o suggested

a rocson for it.

w,ffG 1\re very like E- school cowrnittee right under the thumb of tho govonL1e21t dopnrtment. But I su)~)ose they find the mor~oy wc1 they tl10reforc should have sor,12 sr:-:r in :.ou it I s spent. They shoL:ld however give us o, more liberal 2 . .uount to spend on our ovm initic,tive. 11

50';, e,lso c,greod with tho suggestion that their bo<iy vms simply

Er/1 c:.dministrativo body lo,c~:hi.g N1Y porrors of origin2,lity uhile

the remainder felt thr.,~ eithor tho powors of' origi:c1e1ity a_ic1n I t

need to be grod or thd there were sufficient opportunities

for originc:1 i ty 2-lreo,dy.

L1 cornpc,rison all tho Porror Boara_ B0::1bers considered th2-t

thoy hc,d sufficient local c,uthority o.,-,1d independence~ that they

hnd very good rolc..tions with tho Electricity Depr,rtrnont 2,nd

suffered no interfero·.-ice, cmd only 0110 felt th2,t tho Poymr Doard

w: s 211 aa1ninistro,tive group lo,cking any 1)01,rnr for originality

2,s he stressed. tho,t all Powor Boo,ra_ operations ho.,d to follo\7

specific linos. Surprisingly two members we:at to the other

extrene o,nd sc.icL th2-t they really sm1 no re2,son why the Electricity

- -106 -

Ilope,rtment coulili1 i.t; tal;:e over tho onti:i.'e po,rnr system.

Similer expressions, P,b rogards loc2,l inc:Copoj_1dence; central

c1epo,rt,wntc.l intorf,:n~e:..-100 j 2,nd pouors of origi,1.e,lity, as

i:,1.entionoc:'L by tho W'jority of tho Pouer Bonrd., 17oulci also cover

the attitudes of the H2,rlJour Board L10ii:bers. \11.2,t regulc:cions

the lfo,rino llopa:rtJ,10nt requii~ed vroro co:-ssicl.ered mos·c necessary

for tho goo a. ope:rc:tio~ of tho bo2,rd e . .nd tho ;)Ort, Both tho

territorial bodios hr.ve little to do r.,ith govorm:1ent doimrt­

ments otho:r than tho fo:i.Tw,l adninistrativo connections with

dep2,rh1ents like tho Intorno,l A,:fairs vep2.rtli1ent or the

hinistry of' t'orl;:s, '.rhe Mo,yor is seemingly responsible for

any furth,Jr nogotic.,.tions nith the gove:rnnont over any matters

of controvorsy m10. the ~fomber of Parli&•lcrnts e,ssiste,nco is

only occe,sionally cc.llod upon if there c,ro sone difficulties

in negotintion ;,ith a covern,i1011t dopc,rtr,ient.

'l'ho thirct rel2,tionshij? between tho locc,l bodies then­

selves were investigated through the tl1ree 2,d hoc 'bodios only,

2,s the r:1embers Horu o,sl:ed if they he.a. founo. tho jjorough Council

and Cou:nty Council willing to cooperate. Both the Hospital

o:t1.d Hr,1 bour Bor,rc1 noubors 2J.l considGred th2,t both terri torie,l

c·,uthoritios w0re cooperative 2,nd al though tho Por,er Boe.rd

r:1enbers agreec. thnt tho County CotmciJ. was 17illing to

coopore..te t~10y could. not say the sc.L1e for the Lo:rough Council,

which they coils:i.d.erod hac1 2.t tir,10 s boon 2, littlo high ho,nc1ed,

- 107 -

But in spito of this 2,ll 27 o,cl hoc nuubors :fol t the;c tl-rnr<.

112,s no re2...1 ovide,·,ce oJ. :civalry beti.:reen the five loc2,l

boc.ies.

CHAP'l1ER FIVE

SACRIFICE OR SATISFACTION -

11 It is his duty to sacrif'ice his repose, his pleasures, his satisfactions to theirs, and above all, over, and in all cases to prefer their interests to his own. 11

Edmund Burke.

The attitudes of the members towards their local government

responsibilities were also investigated. .An ing_uiry was made to

firstly establish whether particular aspects of their responsibili­

ties appealed to them more, and thus whether specialization of

interest ;,-rn,s a. feature of Oamaru I s local government. Almost

exclusively the Borough Councillor's echoed the feeling that the

bettermen-t of the community vrn,s their principal concern, and if

they did mention some special aspect of interest it was normally

their own portfolio. The following expresadons illustrate

the strength of this principally small tovm attitude:-

"The whole of locel body work is a unity, so that one aspect isn't stronger than any other, It's the people you're working for and this is how I see it. Being a councillor is more important th&~ being a particular committee chairman. Together we I re building a community! ! 11 ·

"The progress of the local community is my main consideration. I'm concerned_ VTi th the efficient carrying out of local government without pro~ crastination and excessive government handling."

- 109 -

Another councillor hacl a slightly cLifferent approacl~

nThorG is nothing which redly teJrns ray particule.r interest 2,s thore is nothing but m2:l:;ters of rou:cino on the :Borough Council. It I s very seld.om that a councillor comes U::.J with an origi· .el thou.g:::1t" Peo:;?lo ju.st 2.r0n 't prc,parocL to put the time ir:d:;o it a11c'. they fdl COTaiJletely to see the systo-,1 in any depth, 11

Three o:f' the County Councillors also E10ntioj_1ea. that they

triecL to worl:: for the county as e, whole" One of them commented:-

11 ·rhe Count~✓- he,sn 1 t got so i;1e.:iy pc.,rts to conte:c10. Ydth. It's just genoro.l lJroaa. business, -particularly lookin6 2:C-t0r tho roe,e.s, A nu.:ber cf othor ad:minis-trati ve rna:tte:rs are co11trollea. through tho council~ such f,.s W8.ter schem0s, but those e,re all of little concern 11

Tiece.J.tly the County h2,s embarkect 0;_1 a seD..ling programme which hc,s

increo,soc1. their 2;,mue,l quota from :five to thirty-five ,·1iles ana.

it is thereforo he,rcUy surprising the,t tho four members who

ex:,;.iressod a s;?ecj.fic interest mentio:18d. '\getting some sealing

o.own n [;S be i.ng inportant' One councillor said:•"

n1 ';n interostea. in the council taking on 2, wider scope, I 'u fr1tensoly inJcorestocl in the see.ling of our roe,o.s a.10. in go~:,.oral busi113ss, At present ou.::.~ s02.J.inc; progr21:r1.o is an excellent one, 11

OtheJ~ fields o .- :Ln-i:;orost inclu&ea. :cabbit destruction ano. rogd

roco:,struction but these vrero of uinor significanco in com··

p2,rison to the enphe,sis ple,coc1 on ro2,cl. sealinc;.

0:2 the throe ad hoc bodies the Harbour Board is tho one

fecin,:s the greatest uncertainty in its futu:co 2,nd this uas

reflected in the specific interests of tho DaJbors as seven

- 110 -

mentioned tlid; tllo c'Lovolo}_)nen-c schcE10 we.,s of princi1_)lo

inte:rost, 'I'hree 2lso co,.1siclerocl th2t sl1i;)pLDg enci efficient

nethods of handling cr,rgo concornod ther:1, So.,ic:c one ,;10,:,1ber :-

11:''und@.o.,tally the cor.1ings 2-nd goings of tho cnrgo is ;Jy groc.tost intorcst 2.s there h2.ngs the whole story to our future, 11

Al though the bo2.ro. r:ieic,_bers outnuubor their 0E1ployees good. strcff

:col2/cions rrn,s givon e. t1ino:c rrmld~16 b-/ three, while public

relations and f'ine-nce received a mention, Jfour of the Power

Board monb0rs concluded that thore uas no aspect of the bo2,ro.' s

worl: which interostocl. them e:oovo a,."ly other ancl those who pro··

ferrod to be specific:) four mentioned. just thG gener0,l

reticule/cion of po1re1~, Tho limited autono;ny oxperioncod by

the Hospite,l Bo;:;.rd probably accounts for nuch o:f the vagueness

in tho 2,nsnors ol tho 1i1eic1bers as n general afu1inistre,.tion 11 ano. tho

welfaro of patients s11c'.. sta:i.'i' woula. cover th8 principle

interests of tho m.ombers,

'j:bo 0110 ettituc~o Ythicl.: instinctively links both rural a,nd

ur'be;,.'. 1:10,nbors is Jcheir d.islil'~o for porn1anent divis:.ons on e,

locd 1Joo.y, ,;;}:1icl! is t:1c; basis cJ.so for their O;J)Osition to

politicc,l }Jr,rtics pla:ri~1c; a po.rt in loc2J. gove:rmwnt.

the Dorough Councillors ,1ore e,s:cod ii eny aain issues did

ctivic.o the council they e,11 re:Qlied th2,t tllore wore novor eJJ.y

perna.nont divisio,:is rmcl Hhe,t divisions did. occur ,rnro m:::,inly e,

- 111 -

n2,ttor oi' pe:cs:i,12.lit:y, 'l'ho folJ.,ywing c:-;iEtonts illustrr,te

this

11 'l'horo 2,1'c no de,jor issues in this tovrn to ciivide tho council, '1'118 only i 'l)Orta,1t poto;itie.l issue is ,vhuthur rot inc; ElO: .r:f;.' shoulo_ bo spm,.t on tho oldor soct~.ons or the new areas, ll.ce,lly tho only issues 2,:co onus of porsonc,1.it;y .. 11

11 I 1.;rouldn 't s2,y th2t thero 2,re 2,ny issues ciividing tho CCJlU1CJJ. p,2rr:lCt.il(Utly c.s our type oi c,o.Dinistrc:cion, vrithou.t ::)s,rtics doosn 't 2,llow issuos to divicto tho c•:JU.nc >.l, 11

R0g2,rd.less o:f the loce,l body :position l1Gld, or the

responsfoilitios i:mo.. tiuo involved it sooms 112.ture,l to cssumo

the:c there should bo sorno se:cisf'o.ct:,.ons which tho ,1embors feol

tlley are getting for their e/forts, Indeed. this w0,s tho

ce,se as 2,ll but tino Povor Boaro. uoLl'oers concluded th2ot they

enjoyed their local governr:10;_1Jc work and roceivod satisfo,ction

from what they did,

they were; doing sor.10thing for their comE1u,1ity E•.S is evident

froEl the following comnonts from Dorough Councillors vrllich are

re:presoat2:tive of tho conrploto nombers>Jip,

11 1-1:; s2.tisfios the fooling that you are a_oing som0thi:..1g vhich c, rospo;.1.siblo ci tizon should 1Je doin~, A grontor contact with the p0rso.'1cl issues o:: tho turn1 is ~)ossiblo so th2.·I:; it fools i;1oro liko your orn1 town, B

1·Thore I s e, satisf-:,,ing senso oi' tc1,k111,:; an active p8,rt in thu workinc o:.:~ tho tom1. You f0ol 2-s if uhr,t you' re do inc; is bonefitinf; ever-ybc,c'"y i~1 the tow,1, 11

A simill',r fooling 112,s no toe_ E'l,1ong tho County Councillors.

11 You ,:;ot a lot o:C sstisfaction if you St:JO tl-1i~1gs

- 112 -

getting done. If you're constantly running against a brick wall you say darn it all. "\ilhen you are a party to progress it I s very satisfying."

Likewise a Hospital Board member commented:-

ttThe satisfaction I got is that you feel you are doing something for the benefit of the community in general, al though the rev1ard sometimes is bricks, It keeps you informed regarriling general developments up and dm-m the country and you gain a general knowledge of all aspects of local government."

The 27 ad hoc body governors ,-:ere asked also if membership

provided them Hith any advantages. While half replied that

it didn't the remaina_er felt that if there was any advantage

gained it v7as a social one, in that they rrnre in contact

with more people and it therefore helped them to r1iden their

horizons. It was mooted earlier that consideration of status

might be a more important feature of urban members attitudes

towards local bodies. With this in mind the ad hoc members

were asked if they thought membership conferred any status.

One member quickly replied:-

"I 1ve been dying to find out v1hat my neighbours think of me now that I 1m on the board. rr

.Although some of the members were a little indirect the

following table does manage to tabulate the replies. As two-

thirds of the urban members and only one-third of the rural

members considered that they personally gain status from their

membership this is certainly an indication of a greater apprecia­

tion of this among the urban members. Al though it is hardly enough

- 113 -

TAiYi,.~ I . --~----- ----

8,ny stt·.tv.s? 1

Yos

A little

It cfoos, but :,.ot to ;:10

porsono,lly

I I d lito to t!1fak it didn't but it uight

Ho

1

4-

2

4

15

5

3

3

1

12

to forn 9,ny :fir:1 conclusions tho urbe..J. attitud.o is 1Jrobably a

product of tho add.itioncl co11potitivenoss fom1c1 in tho urb2.11

co~.liJ.uni ty

Du:cing 1 SSS botl1 tho Borou:::1 [md County Councils c,110_

thG Hc.rbour Boc,ro. :.1ovod that no;Jbors be roir:,bursod for oxpensos

C.i).d i,:ootins e,ttonda.nco, whilo tho Po1;;or Board ue,s 2.lroady

"1£1.:.dng 1')0,yuonts for mqons~s a;c this ti::o. Set:,tfr10nts on tho

vcJ.uo o.i:' this novo vcriocL 'l'ho eight Borough Councillors

rob1burse:•.ont for out of pocl.:ot oxponses. Ls 0110 c0Em1ontocl :-

11 11ho govorrn;iont po.ssoo_ tho 8,ct 2.J.1c1 now tho trono. is to r02.lising th[,t tlwro 2..ro ox;:im1s0s rrhich sh--1ulcl. bo roi1bursc(.o 1 1,.1 fulJ.y iil f2,vour of this. 11

- 114 ....

cou.,.-mni ty se:cvicc; c.s 0~10 s2,id :--

,;- ·o s,D c~_tizo~1s got our living in tho toun ana_ o -joy th0 :_ 2,cilitios provic_od. ::,,nd v:o shoulc. there­fore bo p:cop2,rGo. ·co giv·;:; tac!,: to th0 coLn.mDity ns ;:mch t.s ,,- 00 ;)os.sibl:- ce;, ·,;ithout :coc1ur.10rD,tion, 11

0::10 of' the c-~u:1ty Couucillor' s in fr:vour o{ t:10 ,:100,surc co,:i.­

sidoro<l thc\t :L~ c, counciJ.l,w' s tLw n2,s ,rorth a,nythinc: to the

rate payo:cs tl10y sluuld oo willing to seo thc,t ho is

On tho other hand_ those fon opposod fol t that

it ,10:coly increased their oblige,tions DllCt thc.t tho:? '\7oulc1 feel

thoy HC1'0 doing things bocn,uso thoy 110:c~ bo~;_:ng po,icl, Tho

Pm:or :::02,rd r-wi1bors Yvaro all in fnvoui' for it ,ms fol t th2:t

'a reiubursor:1ont o::_· ox-ponsos 1.72.s not detrimontrJ. to tho

e.ttitucio of lo col gover1.ti1_cmt nor\: 2.s a civic duty 1 , c,ncl ono

.onbo:c 0,0.<io<i, 11 No ono should. 1)G askod to cio whD.t W8 clo

1ri thout getting pc.iC:L 11 •rho ·rncb01~s of the J:fr.rbour Bo2,rd

woreil 't qui to so unnGL10us 21 though this we,s tho ce,se who,1

tho proposal we,s :nut to tho v0to. T:nroo nonb,.crs OXj?rossucc

op:;)osition to tho ;?ay,11011t, oi ther bocauso th0y felt thoy

vroult.;, bo under soi:10 obli6 e,tion or as 0110 noubor co1m:10nted:-

iifo no porsone.lly it's e,n m::be,rn,ss;~;_ont as I don't liko tho icto£', of boi:c1g paid for voluntary loce.l bod-;.0 worl:. 11

'fho chnirnan of tho Hospital Boe.rd surrr1od up tho fe8lings

o:i' his rnonbers 1:l1on ho s2,icl.;-

HI don't think e,ny uonbor of I!lJ boe,rd would 1rn

- 115 -

pr-:,:oc,r00. to [',Ccopt j?0,y1i1ont of this kinD, ,;

This WB.s ino..ooc~. t:10 cas0 1:',S ;:10 one nr:,s strJngl;y in fc.vour

o:f oith..;r c, rei,1bursouont of oxponsos or a payr:1ont for

nooting ette~&rnce,

jJ'i:crnlJ.y, tho ir11p0,ct of tho vrrious lo cr,l boo.ies on tho

citizons they e,rc; roprosonting end sorving rrcs 6.iscussod with

all the ne::1.bors in mi. e.tton;Jt to suo nhothor tl1Gy thought

tht..t thoir of .. : orts "lrnro '.)eing approci2,tod. Tho principle

thorn:: r>..1:1on,; the Lorough Councillors nas the,t uhil0 there was an

vnr..rmreness o? tho co11sid.0rablo i·::,J_)f',ct thr.t tho cou:c1c::.1 hts on

tho town, thoro no,s a11 approcio.tfon of its efforts, This

fooling is oxprossod Koll in tho f)llouing quotations:-

11Al thoug:1 ,i1any arc, w.10,1;;·are of tho cf:fort of tho council the tWOl'age parson loolrn upon it in its truo licht. 'l1h0ro 's no·c tho thought of tho council 1Jic1ding tho big stic:.: 2,s peoplo soo thr,t no here strtu:co17 poT:ors Y'hich must ,. o C8.rri0d out, '£ho o,vorage citizo nill givo us f,:11 creo.it for Hho;i; h2,,':l boon done and for wht:c is being ple.,mi:;d. 11

11 Yos thoro is co:;:1si(lE)rab1o i,pr,ct and although thoro .c,y bo en uno.,~raronoss of this, civic pride ofto~1 roflocts bac:,·. on the council. If tho c·-:,tmcil cs,•.'· co,1tributo to tho dovelop;;1<:,nt then it can develop a high degree of civic pric~o. 11

TLo sauo ox;_;rossions are oqt1.ally applic~cblo to tho c,ttitudcs

of tho County Councillors c.s they too consider thv:t thoso

t~10y sorvo aron 't really aware of the i,,1pact, 2-110. ·chat h; is

only Hhon rato demw.10.s 50 out or Y✓hon their roe,d nooe.s

grading 0so they a.t all intoresteo.. Said one councillor:-

- 116 -

n1t I s all tal~e,1 for grantod unfortu"1e.t0ly, , If uwone cr~n fino. a loop hole to aill::: tho counci7_,

they 111 cortaL.ly givo it £, go, It woula_ bu 211 oducc,tion /or re,to peyors to co;·:10 c,lonL~ to our council aootings,"

O;?ini,Jns 1zo:c0 rat:hor sinilm:· eDoni; the Lkli'1burs of the throo

o,d hoc boctios, 1.rho Harbour Buarf '.0;;1bors in ge;.1Crol felt

t~10,t there -rras vory little onthusias,,1 ?or thoi:r bo2.rc~, e_j_10.

Vihr.t thoro vras ce.1110 fro1;1 the business cor.munity. T:10

co1.1E1011t o:.:.' e, Powor Bonrc~ no 1.bor illustro.t0 s this c.tti tuc'lo

::--i,lso,

i;-, think 1,)eoplo use tl1G po1wr without c, roe,l 2.li8.ronoss ,Jf tho 2.c:L1inistr2.tion behi::.1~- it, 11

tho,t boco.uso tho Board was doe.ling norc cdroctly 1i1ith tho

poo::?le thoro would bo o, gToo,ter ar;.._--,ro:..10 ss o,_ its oxistonco.

Othors howevor ropoe,tod tlv,t -!;hoy thought tlwre '.7~,s 2, gonorcl

le,c:.: o,:' :Lutorest in all local govormwnt e,nc. that t:wir boc,rd

coulc1n 't bo consia_orod 2.n oxcoptio11, to this,

CHAPTER SIX

- PUBLIC PBRB'OIDlANCE .AND PRIVATE ATTITUDES

"Hain 't we got all the fools in tovm on our side, and ain't that a big enough majority in any tovm., 11

Mark Tvvain,

From tir,1e immemorial politicians have been rated a close

second to the weather in the amount oi' criticism, cynicism, and

good natured badgering which has been directed at them by those

they represent. Local· politicians are· certainly no exception in

this process, and if anything, they are more open to it because

of their general availability, Much of.this criticism is

undeserved and exaggerated however, and often further investigation

of ·a _person I s attitudes vrill reveaJ. that there is also a feeling

of appreciation for those willing to give time and energy to

their oomaunity, even although the traditional Nei:1 Zealand

ambivalence seldom allows expresn,ion of this appreciation.

The use of the mailed questionnaires in this study was an

·attempt to uncover those latent feelings; to see whether the

-disinterest commonly associated with local. political affairs,

often demonstrated at the time of an election, is in fact a true

indication of the population I s intere-st and armreness of the

- 118 -

local politicB,l scene. A further intention was to discover uhat

qualities were considered advantageous for a person to have if

he hoped to stand successfully for a local government position.

Public attitudes towards the vexing question of the quality of the

local body members i;-ras also investigated, nhile finally two

important aspects of Borough Council performance were opened for

public scrutiny.

Interest, or awareness, are difficult attributes to measure,

al though probably the closest i,1ea,sureme11t is the amou11t of

political discussion in the home. This indeed vras used on the

questionnaire and the results of the inquiYJ appear in Table I.

Noticeably the rural a,:nd urban respondents returned sinilar

percentages in each of the categories, indicating that one-quarter

of the population discussed politics in their homes 11frequently 11

or "fairly often" •1 As only about 2CY}6 considered that they

rarely or never discuss politics, it does suggest tha,t the

interest in local politics is greatGr than might have been

anticipated from a general observation. As the figures indicate

that both populations discuss politics with about the same

enthusiasm, this seems to negate the theory that the sense of

1 This may of course be slightly exaggerated as the most interested group is al so the one most lil'::ely to reply to a mailed. questionnaire,

- 119 -

TABLE I

The Amount of Local Political Discussion in the Horne

Amount RURAL URBAN

Frequently 11.8% (24) 10.~fo (26)

Fairly Often 16.7% (34) 16.3% (41)

Occasionally 53,4% (109) 55.8% (140)

Rarely 13.2% (27) 13,1% (33)

Never 4,99o ( 10) 4°4% ( 11)

1 oo.cyo (204) 1 oo.~; (251)

community in the rural areas would account for a greater degree

of politicr,l auareness and interest. Hmvever, one consideration

which offers support to the theory is that it v1as found., in subse­

quent investigations, that a larger number of the rural population

answered "Don't Enow 11 to questions concerned with the quality of

the local body members. 2 '.L'his lack of lmowledge could indicate

that the local bodies were not as closely in contact with the rural

2For exaaple, 11% of the rural respondents could not give an answer to the question, "Do you think the quality of the County Council is satisfactory?", while only 2% in the tovm could not answer e similar question -for the Borough Council, Also Y,hereas only 7 .6% of the urban population could not comment on the quality of the Pm-rer Board, this rose to 17 .27S for the rural population.

- 120 -

populc:,tion, as with the urban, and theref'ore in relation to this

the aE10unt of political c.iscussion 1;1ight be considered to be

higher in the country.

Occupationally, it was the 11Ac7.uinistrative and Professional"

group which displayod the highest rate of political discussion.

In the urban community one-third discussed politics frequently

or fairly often, although t}ie administrative group by itself had

459,j of its membershil) in the saJ:le category, Rather similar in

their ax.10unt of political discussion, in both populations, w-ere

the farmers and the na11ual workers, ,1ho had slightly over a

T.A:BLE 2

A Correlation of Occupation and Political Discussion

in the Home for the Rural and Urban Populations

RURAL Occu- F. o. R, Total F, pation

Adminis-trative, Prof es•• sional 40. 0;:; 45.1% 14,9% (20) 33. 390 Farm-

ers 26. 51s 55.9% 17,6% ( 136) 28 2c,1' • 10

Sales, Cleri-cal 27,3% 45.4% 27,3% (-11 ) 24.2:/o

Manual Work-·

ers 29. 71; 51 -rl ,)10 19,(lj1a (37) 24.4%

3These abbreviations, whicll will be used refer to: Ii',, Frequently anct Fairly Often; R., Rarely or Never.

URBAN 0, R.3 Total

56,9% 9. s~; ( 51)

51 .3% 20,5% (39)

54.6% 21 ,qb (60)

59,3% 16.3% (80)

throughout the study, O., Occasionally;

- 121 -

qua,rter of' their number in the c2,tegory of l,ighest discussion.

The final group, those er.1ployeo_ in a, sales or clerical occupation,

ina_icated a rather loner rate of' political discussion.

Age is another factor likely to influence the amount of

discussion, as the development of family and_ home responsibilities

often means greater contact uith local bodies, This is not

evident frorn the material, as shown in Table 3, although there

·was a noticeable increase in enthusiasm between the 11 thirties 11

and the ":forties". The rural figures also i:1dicated an increas-

ii"1g interest in political discussion with age, although those over

the age of seventy, as expected, show a genereJ. decline. vVhereas

the sixties in the country shovred the greatest amount of dis­

cussion it was the fifties in the tovm vrho were in a similar

position. Overall the under fifties in the to,m tend to

discuss politics more than the same group in the country, but this

was reversed for the over fifties as here the country population

indicated greater enthusiasm for the discussion of politics,

The frequency of political discussion also correlates with

the number of activities tha,t a person is involved in. This is

particularly true in the country where it was found that 6C/fo

of the 11frequently's" or 11fairly oftens 11 were involved in more

than three activities, compared with 34% for the rural population.

In the to'l'm, whereas 2ofo of the population i,-,ere involved in more

- 122 -

TlillLE z ___ !..._..2

A Correlation of Age and Political Discussion in the

HoEle for the Rural and Urban Po,Julr,tions J,

---~· Age F,

RURAL 0, . R. Total F. URBAN R o. . Total

21 - 29 17. 7% 52. 99~ 29.4% ( 17) 25,9% 63.0% 11.1;s (27)

30 - 39 12.2% 70. 7;; 17,1% (41) 20.8% 62.5% 16.7% (48)

40 - 49 28.6% 57.1% 14.2% (50) 24.5% 6o.o% 15,5% (45)

50 - 59 3lho% 43,09; 18.0% ( 51 ) 31 ,4% 52. 9% 15.7% (51)

60 - 69 44,1% 41 .2% 1 l~. 7'/~ (34) 28.a/o 52.0% 20.0% (50)

Over 70 36 ,41~ 36.470 27. 2;s ( 11 ) 30.0% 43,3% r;,7 7« '- . /'- (30)

than three activities, the figure rose to 34% for the group with

the highest amount of' discussion, However, ·when the number of

activities a person was i;wolved. in was in turn correlated with

age an interesting pattern emergea_, The urban figures in Table 4

show a gradual increase in activity participation, rising to a

peak for the 50 - 59 1 s 1Jefore declining for the last two age

groups. This was precisely the pattern shown on Table 3, which

correlated age and political interest, The similarity was

repea,ted for the rural figures as except for the first two age

groups which showeda, surprisingly hiGh rate of activity partici-

pation, an increase to a peak in the sixties was also indicated.

'rhe conclusion the:.:1 must be thE,t activity membership and

- 123 -

TABLE 4

A Correlation of Age and Activity Participation for

the Rural e..nd Urban Populations

RUPJ\.L URBAN Age Involved Involved Total Involved Involved Total

in three in more in three in more or less than three or less than three

21 - 29 53,CJ% 47,o% ( 17) 81 . Lf.%; 18.6% (27)

30 - 39 58. 55t ~,1. 5% (41) 83,3% 16. 7% (48)

40 - Lf-9 66.o:/o 34,0% (50) 73,3% 26. r/o (45)

50 = 59 62.SjS 37,'c/o (51) 70.6% 29.4% (51)

60 - 69 lr-7. 1 % 52.9% (34) 80,Cffo 20.o% (50)

Over 70 82.0% 18. 0>~ ( 11) 93.4% 6.6% (30)

participation is the important factor in stimulating interest in

local politics, rather t:1,in any particular age. This is offered

strong support by the fi1:d,1g t:1at while the Administrative and

Professional group, alreaw shcwm to be the group with the highest

amount of political dis ·.1,ssic.n, accounts for 2o% of the town I s

popule,tion, 5090 of' the '),)pulation 'lt'ho had membership in more than

three activities belong ..3 l to this occupational group. It is

therefore the I communit > activists I who Here more likely to

discuss the local poli·~:: ..\S in their hone, just as they were the

group 'l'?ho displayed a ~: ·eat Jr willingness to stand for a local

government position.

- 124 -

A Government report on local governnent in 1960 commented:­

"As most witnesses v1ho were examined on this point agreed the prim2,ry attribute for a member of any local authority to possess is sound cor.ui1on sense •••••• 114

Seemingly a la.rge proportion of tl10 population would readily agree:

comiilOn sense was rated as the most desirable attribute for a

locw. body :nember among a list of seven given qualities. To

introduce the term "quality" brinc;s with it the sheer intangibility

oflll8ny of the qualities TThich 1-dght r0asonably be requfred of a

good councillor - such qualities as integrity, political nous,

will power, judguent, locaJ. knowledge - all nhich need to be taken

into account in any realistic assessment of calibre. Hovrever,

the seven quolities, as shovm on Table 5 uere ones \?hich were

considered to be everyday factors which people might look for in

assessing the qualifications of prospective candidates" Some

respondents dia. also nention other qualities, such as honesty,

integrity, toleration, and impartiality, which they felt vrnre

important. The rather general qualities of 0 cor:llllon senseu and,

"being in touch with the problems of tl1e people" amassed two-

thirds of the support, There is then a long drop to the third

ranked quality of 11 a good business background 11, which is only

slightly more important in the tovm than in the country.

411 The Structure of Local Govermt,ent in Ne,! Zeala,nd11 Report of the Local Bills Cornrrittee of the House of Representatives 1960 P.15,

- 125 -

TABLE 2_

Qualities Considered Advantageous for a Local

Body Member5

RURAL

Common sense

In touch with the probler,1s of the people

A good business background

A good fantling background 5.4%

Good leadership qualities

A good standard of education

Experience in other organizations

5 5(/ . /" 100. OJ~

URBAl"\f

37.rJfo

26.;lfo

11.5%

11 • fJ5/o

6.3%

7-3%

1 oo. ct/o

Noticeably, 11 a good farming background" received meagre support

from a population n-hich is nearly 7afo farmers. The demand for

leaders in a small tomi community, already indicated by the small

number of people Vfilling to stend for local government, is also

reflected in the higher urban preference for "qualities of

5The respondents were asked to list in order the three qualities they considered to be advantageous for a local body member. On a rating scale of three for a first ranking, two for second and one for a third the total for each quality was established ancl then presented as a percentage.

- 126 -

leadership". Eclucation received scant support, although the

rural population showed slightly r.10re regard for its importance.

Finally, the quality which is the most instrumental in local

body candide,ture, 11 ex1Jerience in other organizations 11, vms

considered to be of only very 1;_1inir:.1al importance.

Age did not make ariy significant difference to the qualities

considered advantageous, although the younger age groups did

show a slight preference for "a good education 11 and "qualities

of' leadership", while "experience in other organizations 11

received a substantial portion of its su:9port from the over

fifties. The occupation of the respondent seemed to have only

a marginal influence on the choice of qualities. It was

noticeable however, that those with a business background

naturally placed more emphasis on this aspect, while the pro­

fessional group gave more weight to the need for II a good

educational background". But again the two loading qualities

were dominant throughout all occupational groups. This "Has

also the situation as regards the rnnount of political discussion

as it did not influence seriously the choice of desirable

attributes.

Criticism of the quality of local governr,rnnt is in no

way a recent vogue, for indeed it has been the kind of general

observation made since local government was first established

- 127 -

in its present form. There is considerable difficulty in

assessing the validity of the charge that the quality is too

lo'Vf, or has declined, if only because of possible ambiguity of

the terms used. .Also when examining the meaning of quality

in the light of the functions and responsibilities of councils

then further doubts arise about the validity of the low or

declining quality argument; an apparent decline might merely

be a reflection of the increased technical complexity of local

services which renders the individual councillor less and less

able to come to grips with the services he is nominally re­

sponsible for administrating, rather than quality not keeping

pace with modern requirements. However, as North Otago's

local government could hara.ly be said to have reached any

advanced stage of technical complexity this argwnent does not

have the same strength as it might on other areas, Yet even

without definite guide lines on the term "quality" it should be

possible to feel the pulse of the popula.tion and thereby judge

the general community ir,1age of the various standards of the

membership and performance of the local authorities.

The results of such an atter:1pt appear in Table 6, v,here the

urban and rural population's opinions on the quality of the

various local bodies is srnnmarized, Notice ably the 11 Don I t

knows" are considerably higher among the rural population than

that of the urban community, indicative of the greater contact

Local Body

County or Borough Council

Power Board

Hospital Board

Harbour Board

- 128 -

TABLE 6

The Quality of the Local Bodies as Considered by the

Rural and Urbm1 Populations

RURAL URBAJ.lf Very Satis- Doubt- Don't '.l'otal Very Sat is- Doubt-Good factory ful Know Good factory ful

21 .1% 52.9% 11+. 2°/4 11. 8?~ (201+) 12.o% 62.~ 22.9%

25.CP/o 50.!Jjo 7.8% 17 .2% (204) 27.7% 60.6% 1+.1%

30.9% 43.1% /+. o/76 21.1% (204) 37.8% 51.8% 1.6%

1 /+. 2% 41.2% 16.7% 27.9% (204) 11+.1% 59.Cffo 17. 7%

Don't lmov1

2.4%

7.6%

8.8%

9.2%

between all the local boo.ies and the town population. There is also

an increase in the "Don't Knor1s" within each of the populations

from the territorial bodies, which are reasonably well lmovm, to

the less involved Harbour Board. The m:m1ber of "Don't Knows" does

naturally influence the other percentages, but even vtl th this only

the Harbour Board in the countr-y did not receive a "very good" or

11 satisfactory" rating from at least three-quarters of the re-

spondents. 'rhis response must be regarded as a sign of

constituent satisfaction with the present quality. In both

popule,tions the Hospital and Power Boards are rated first and

second respectively, especially in the to,m where 9Cffo felt

Total

(251)

(251)

(251)

(251)

- 129 -

pleased with the calibre of the board members. In Oomaru the

Harbour Board follows these two, while the Borough Council,

placed fourth, had one-quarter of the respondents doubting the

quality of its members. The other territorial authority, the

County Council, did slightly better as it mo.naged to rise above

the Harbour Board in ranking, although the latter may be handi­

capped by the fact that nes,rly 3Cf/o of the replies appeared

among the "Don 1 t lmows 11 •

In attempting to investigate whether the amount of

political discussion, and therefore interest, had any bearing

upon considerations of quality a nuaber of re-occuring trends

were evident, all of which are illustrated in 'rables 7( a) and

7(b). Firstly, the percentage of "very goods" did generally

decline with interest so that in every case the 11f'requentlys 11

and "fairly oftens 11 returned the highest percentage who felt that

the quality was very good. Those who consia_ered that they dis-

cussed politics occasionally showoda much higher percentage

for a "satisfactory" rating, indicating the preference to

accept the two middle, rather non-committal, criteria. Finally,

the highest percentages of those who viewed the quality as

doubtful were to be found among tbose in the highest interest

category. This then suggests a pattern where high interest

merely provides nore political lmowlea.ge, which allows a

Political Discuss-

ion

Frequent-ly and Fairly Often

Occasion-ally

Rarely or Never

Political Discuss-

ion

Frequent-ly and Fairly Often

Occasion-ally

Rarely or Never

- 130 -

TJIJ?LE 7 ( :u_ A Correlation of Political Interest and Ratings of Quality

for the County and Borough Councils

COUNTY COUNCIL BOROUGH COUNCIL Very Satis- Doubt- Don't Total Very Satis- Doubt- Don't Good fact- ful know Good fact- ful knon

ory ory

31.Cf/o 44.89~ 19.0fa 5.2% (58) 15.5% 49.1% 34.1% 1.3%

16.5% 56. 9;'6 14. 7% 11.9% ( 109) 12.1% 70. 2c;s 17. 7%

1 19.0% 54.Cf/c 6.4% 21.6% (37) 9.1% 50.1% 33.3% 6.5%

TABLE 7(b)

Total

(66)

( 136)

(¼)

A Correlation of Political Interest w.1.d Ratings of Quality

for the Three Ad Hoc Bodies

RURAL URBAN I

Very Satis- Doubt- Don't Total Very Satis- Doubt- Don t Total Good fe.ct- ful know Good fact- ful lmow

ory ory

32.9% 41.5% 9.8% 15.8% ( 164) 29-2% 57.1% 8. 1;~ 5.6% (198)

22.3% 47.7% 10.7% 19.3% (327) 24 .• 35'6 61.2% 7.3% 7.27; (408)

14.4% 45,1% 8.1% 32.lefo (111 ) 23.30 55°5% 6.8% 14.47; ( 132)

- 131 -

greater degree of discrimination, and at the same time reduces

the likelihood. of a person replying, "Don't know".

TABLE 8(a) A Correlation of Age and Ratings of Quality for the

County and Borough Councils

COUNTY comrcn BOROUGH COUNCIL Age Group

Very Satis- Doubt- Don't Total Very Satis- Doubt- Dont Total Good fact- ful lmow Good fact- ful know

ory

21 - 29 18.8% 43.6% 18.8% 18.8%

30 - 39 12.2% 61 .w; 9.1% 17.1% 40 - 49 26. 07& 54. O<}~ 'IO .Cf}'ci

50 - 59 24.o% 56.o% 11+.o,%

60 - 69 18.2% 51+.5% 18.2%

Over 70 27.3% 45.5% 18.27S

1 O.CY/v

6,o% 9.1%

9,CY-/b

( 17)

( L~1 )

(50)

(51)

(34)

( 11 )

ory

7.4% 70.3% 18.5;'b

10,4°/o 58,3% 27.1%

6.7% ~7.8% 28.9%

11. 8% 70. 5% 17. 71; 16.CY-Jb 58,0% 26.Cf/o

20.0% 58.3% 18.3%

TABLE 8(b_l

Age Group

21 - 29

30 - 39

40 - 49

50 - 59 60 - 69

A Correlation of Age and Ratings of Qua.1ity for the

Three Ad Hoc Bodies

RURAL UR:BJU\T Very Satis- Doubt- Dcn 1t Total Very Satis- Doubt-Good fact- ful YJlOW Good fact- ful

ory ory

20.85-b 37-5% 6,3% 35,4% (51 ) 16.0% 63.o,% 5. 0:/o 21 .1 % 3 9. 0% 11 • 4!)6 28.5% ( 123) 25.Cf/o 57 .6fb 9. Cr/a

~ &a cl 2b • 1/'o 51 • 3;o 9.4% 13,3% (150) 23.o:fo 55.6% 9.6% 26 • 7% 48. 71s 11 • 3/: 13o3% ( 153) 34. Cf/o 53.6% 9.2% 22.0% 44.($ 12.0:;; 22.($ ( 102) 26.Cf/o 62. ay; 4. 7/o

3.8%

4.2%

6.7%

Don't know

16.CY-Jb

8.4%

11. 9%

3.2%

7,3% Over 70 24. 2% l~ • 50 27,3% (33) 30.C'f/o 51 .1% 7.8% 11 .1%

(27)

(l~)

(45)

( 51)

(50)

(30)

Total

( 81)

( 144)

( 135)

( 153)

( 150)

(30)

- 132 -

When the respondent's opinions on quality were viewed in

terms of their age, as is done in Tables 8( a) and 8(b), the

40 - 49 1 s in the countr-y were noticeably the age group which

thought the most of the quality of the members of the County

Council and the Ad Hoc Authorities, followed closely by the

50 - 59's. In the tovm, hoHever, the forties were clearly the

r,10st critical of the quality and it was the neighbouring fifties

who provided the highest rating, It should be remembered that

this latter group in the urban community was also seen to be the

most interested in local government and the one with the highest

rate of activity particiJ1ation, which therefore suggests a

positive correlation of high interest and high quality, It is

difficult to provide an adequate conclusion for the reaction

of the urban 40 - 49 1 s but it is possible that because they are

naturally the nearest group to the age of fifty they ai~e more

resentful of the fact that nearly 80% of their loceJ. governors

are over the age of fifty. 6 In the country the youngest age

group provided the lowest rating, ancl the highest percentage of

11Don 't lmovrs 11, which was to be expected as they are the group

6This suggestion is offered support by the fact that although the urban 40 - L~9 1 s account for 18% of the sauple, 30f6 of the additional comments fron respondents came from this group. Of the comments from the forties one-quarter complained that the local governors were too old. In no other age group is this suggestion anywhere noar as prevalent.

- 133 -

viith the least political interest. 1rhis is also the situation

for the se.me group in the tovm, in regard to the ad hoc authorities,

al though their higher politica,l interest, compared with tho two

age groups above them, does produce a parallel increase in

enthusiasr11 for the quality of the Borough Council, Unfortuna,tely

the sixties and over were quite inconsistent ,.vith this developing

pattern, as despite their great political interest, the sixties

expressed a slightly lorrnr quality rating on all the local bodies,

in both tovm and country. Therefore it can be concluded that

only up to the age of sixty does there appear to be a correlation

between a person I s interest in local politics and his vie1,,1s on

the quality of the elected personnel.

No clear pattern seems to emerge from 'l1ables 9( a) and 9(b)

where a correlation of occupation and quality ratings is shovm.

The County Council qualities were appraised the loudest by the

farmers. The other three occupationaJ. groupings were rather

similar in their attitudes, although one-quarter of the manual

workers were unable to attest to the quality. The "Sales and

Clerical" class, already sho...-m to be the group with the least

interest, displayed the characteristically high II satisfactory"

rating, but this was just sufficient to allow it to replace the

farmers as the. class giving the highest rating to the Ad Hoc

Authorities. The other remaining classes, the AclE1inistrative

- 134 -

T.ABL_! 9( a)

A Correlation of Occupation and Ratings of Quality for

the County and Borough Councils

BOROUGH COUNCIL COUNTY COUNCIL Occupa- Very Satis- Doubt- Don~ Total tion Good fact- ful know

Very Satis- Doubt- Don't Total Good fact- ful know

ory ory

Farmers etc. 23.5% 56.676 11.8% 8.1% (136) 21. o% 57 JJ/o 21. o% (39)

Admini­strative Profes-sional etc. 15.0% 55.0% 20.ofo 10.0% (20) 9.8» 64.7% 21.6% 3.9% (51)

Sales and Clerical 9,1% 63.6% 18.2;iS 9.15·s

ManueJ. ·workers 14.3% 43.01/; 17.11/~ 25.6%

( 11 )

(37)

T.ABLE 9(b)

A Correle,tion of Occupation and Ra.tings of Quality for

the Three Ad Hoc Authorities

HUR.AL URBAN Occupa- Very Satis- Doubt- Don't Total Very Satis- Doubt- Don't tion Good fact- ful know Good fact- ful lmow

ory ory

Farmers etc. 25. L{s 45. 6% 1 o. 51t 18.5% (41 o) 37.7% 46.5% 7.9% 7-9%

Admini-strative Profes-sionsJ. etc. 21. 79; 45. (Y;'[, 6,6% 26.7% (60) 24,8% 61.4% L~.6~b 9.2%

Sales and Clerical 15 .1 % 63.6% 3. 19; 1s.2rs (33) 21,7% 56 .67~ 8,6% 13,1% Manual Workers 23. 7>'G 41.9% 14.0% 20.4% ( 111 ) 25.9% 61.2% 7.8% 501~6

(86)

Total

( 117)

( 153)

(198)

(258)

- 135 -

and Professional, and the :Manual Workers again expressed rather

similar views on the three Boards, but the former did offer a

slightly higher rating. The urban farmers, principally men who

have retired from the country to 00111aru, seemingly continued

their good impressions of local bodies as for both the Borough

Council and the ad hoc authorities they have the highest regard

for the quality. The view that 11 they 're coi:ununity spirited

men and vre shouldn't be too critical" is a derivative of the

rural community ethic and probably accounts for this higher

expression of approval from the farners, in both to,m and

country. 7 Similar to the rural situation the "Administrative

and Professional" class and the "riianual Workers 11 were approxi-

mate in their expressions on the quality. There is certainly

no correlation between interest and quality evident, yet it is

a significa11t point that those with a farming background

generally expressed greater enthusiasm for the quality of all

the local body members.

It would appear then, that there is general satisfaction

7As one of the farmers who replied to the mailed questionnaire commented:-

"In my opinion most Council and Board members give of their best, and they have the welfare of the district at heart. These men give their time and energy, and they are not ah,rays appreciated by the connnuni ty. Some people could be much r:1ore con-structive in theil~ criticisms. 11

- 136 -

with the present q_uality of the local representatives. In

order to find out what the members thought of their own

quality they were asked whether they felt that the quality of

their fello'\1 councillors or board members was as high as it

should be. Table 1 0 shorrn how they answered this. Surprisingly

their rating of the quality is not as high as that of the

TABLE 10

Members Attitudes Towards the Quality of Local

Bodies

Standard O.B.C. vr .P .B. O.I-LB. W.H.B. w.c,c. TOT.AL

Very Satisfactory 2 6 8 6 6 61 • 05~ (28)

Reasonable 1 2 1 8. 7/o (4)

Unsatisfactory 7 1 1 1 21 .6% ( 1 o)

Non committal 2 2 8.7% (4)

TOT.AL 12 9 10 8 7 1 00. CYfo ( 46 )

population, as nearly one-quarter considered that it was not

sufficiently high, This is principally because seven members of

the Borough Council felt that the general quality of their council

·was not satisfactory and oi1ly trm rrere prepared to soy that it was

high enough. Two councillors commented:-

"Every candidate for the office of councillor should have acquired a status based on cornmuni ty work and leadership before his nomination. This is hardly the case at present."

- 137 -

"Tho quality is certainly not there. There's a straight inability to think on the part of many councillors. Also there's a complete failure to see things in any depth."

A third man thought that the system was at fault and not the

individuals:-

"Una.er the present set up the system is a"c :fault, not the individua,L Because en individual has been successful e:c his own job doesn't mean he 111 be useful as a local body administrator and I therefore see a great need for public scrutiny of new candidates. 11

Half of the councillors felt that the qu.eJ.ity vras "much the same"

as it had been in the recent past, but three others thought that

it had improved, either because of the experience of the longer

serving members, or bec&use one of the neTT members Has well

qualified to be a councillor.

Of the County Councillors all but one considered that their

collective quality was sufficiently high, although at the same

tine some reserva,tions ·were expressed.

"It seems to be most satisfactory, although of course you never have it too high.n

"For the requirements of the county the ansvrer is yes as really conunon sense is all that I s required to cope with our activities. 11

The one .-,10mber who felt the quality vlas not se.tisfactory

gave much the same sort of reason for his opinion.

"No it's not satisfactory but I thiriJ;: you can say that of any local body. Too many peoJ?le shirk their civic responsibilities. Hovrnver I would think that the quality of the council is higher than any other local body in the area, 11

- 138 -

The same standard of quality was being continued according to

five members, while one stressed that the improved works pro­

gramme of the council surely indicated an improver:i.ent in the

quality of the councillors.

Except for two new members ·who preferred. not to comment,

the Hospital Board members all agreed that the quality was very

satisfactory, al though two did qualify their answers by adding,

"it would.n 't hurt to be higher". .An improvement in the quality

was commented. on by 50% of the board members. To the remainder

the standard had remained. about the same. Finally, of the

five who were prepared to rate tho quality of their membership

against that of other local bodies, three considered it was as

high and the other two felt that it was higher than that of the

others.

'l\'l'o-thirds of the Power Board membership commented that the

quality of their Ad Hoc Authority 17arranted a rating of "very

satisfactory". The two who suggested that overall the quality

was just reasonable did so on the grounds th2,t there were a few

weak members w:10 vrere responsible fi:lr lowering the overall

standard. The one member who considered that the quality was

unsatisfactory commented:-

"There should be e. qualifiea. aceountant, a legal man, and a top businessman involved in the work-ing of the Power Board. Our present group is lacking in this respect. 11

- 139 -

Three members considered that the quality was improving, end

apart from hw who preferred not to comment, the rest saw it as

being "much the same 11• Overall, the Power Board nembers

confidently felt that no other local body had a standard which

v,as higher than their ovll.1.

About 9CJ/o of the Har1)our Board would term their q_uality

as being high, and while some minor aspects of possible improvement

were mentioned, the general attitude ·was expressed by the following

comrnent:-

"They1re as good as you could get. They have proved thenselves in other spheres of life &'1d as they all have had varied backgrounds, it I s a real help. 11

Improvement in the quality was mentioned by 50% of the members,

mainly because of the high standard of the newly elected members.

Similar to the Power Board, the members of the Harbour Board

rated their quality to be as high; if not higher, then that of the

other local authorities.

With the three ad hoc authorities all considering that the

quality was very satisfactory the members TTere asked what local

body they thought had the highest prestige in the community.

Of the twenty members who Here prepared to rank them, the Power

Board clearly felt that they had the highest prestige, as five

members ranked it in first place and three in second place,

followed some considerable distence back by the two territorial

authorities, The Hospital Board members also decided that their

body deserved the highest rating, although the County Council

Yms only slightly behind in their estinw,tions. Only three

Harbour Board members mentioned their local body at all, and con­

sequently it was ranked a poor fourth behind the Borough and

County Council, and the Po,.rer Boara_. When these were all to-

talled it was the County Counc:i 1, followed by the Power Board

and then the Borough Council, which the members of the three ad

hoc authorities felt had the highest prestige in the community.

Still keeping in mind the various conclusions reached con­

cerning the quality of the local an+:h.odties, -particularly that

of the Borough Council, it is finally proposed. to investigate the

attitudes of the to1cm population towards two aspects which can be

most vital for the efficient performance and progressive develop-

ment of a col1.ncil, These -b,o are the smoothness of the

relationship between the Nayor and the Councillors and the length

of a borough mayoralty,

To many Oamaru citizens witnessing the performance of the

Borough Council it may seem that progress is hindered by petty

bickering and the fact that issues evolve into unnecessary

"clashes of personality". However, the indications are that

many of these differences have been exaggerated out of all pro­

portion to the amount of uncomplicated, unopposed business

transacted during a normal council meeting, Because the

- 141 -

newspaper reports are the principle source of reference for the

public these clashes quickly become part of the public ~nage

of the Council activities. The part played by the local press

does have an important bearing on the public attitudes and in

this respect they have been guilty in the past of lJublishing

more in the interests of local sensationa,lism and better sales,

thun in the interests of good government.

commented:-

As one Oamaru citizen

11 The local newspaper is of no help to any of the Local Bodies as they like to pick the things that they think go over ,vell with their reading public. 11

This resulted in the highlighting of relatively unimportant

differences of opinion which progressively distorted the efforts

of the Borough governors in the eyes of the public.

8 But 11 clashes of personality 11 certainly do occur. The

one relationship which often rubs to provide the spark to set

alight such a clash is that between the Mayor and his council.

In an attempt to gauge the present strength of this liaison, as

seen by the population, the respondents were asked which one

of four given statements best described the relationship.

Table 11 shows the results of this investigation. The 6afo

8rt would appear however that in a party system differing points of view, whether ex-pressed quietly or violently, are in the main classified as "party differences", whereas in a non-party system the tendancy is to attach the label "personality clash".

- 142 '"

seeing it as being only 11mostly harmonious 119 are a high proportion,

but yet hardly high enough to indicate the degree of satisfaction

which could be expected from a Borough Council operating with

smoothness and efficieno'T. A high degree of political interest

should off'or a more @,cute interpretation of the relationship,

and in this regard those with higher interest saw it as being

_TABLE 11

Public Attitudes torrards the Relationship of the

Mayor and Borough Councillors

.Always harmonious

Mostly hax!ilui-,.:.uu.8

Occasionally ha1~monious

Never harmonious

Don't know

2.4% (5)

31 .4% (77)

6.2% (15)

1 .6% (4)

1 00. a%( 2li-5)

slightly less harmonious than the remainder of the population.

This was also the sitv.ation Tihen age was considered. The 50 - 59's,

the age group Hith the highest interest in local politics, and the

one Hhich offerred the best support for the q_uality of the Borough

Council, had the lowest percentage (53%) of any age group who

9Note that "mostly harmonious" also includes the five who felt that the relationship Has 11 alv✓ays harmonious 11

•

- 143 -

described the relationship was being a. mostly harmonious one.

Noticeably, of the 40 - 49 1s, the group which thought the least

of the Borough Council, 1 z/o replied that the Mayor and councillors

were never in harmony. Occupationally, the group which had

earlier thought the most of the quolity of the Borough Council, the

farmers, confirmed this opinion by being the group with the

highest percentage (7CP/o) who saw it as a. "mostly harmonious"

relationshi1J. But the group with the greatest interest in local

politics, the administrators ancl professionals, had the highest

percentage regarding the relationship as being occasionally

harmonious. This is the important feature, as in all situations

those with a higher political interest were more inclined to

consider that "occasionally" was a more fitting description of the

relationship.

It is oceasionally the misfortune of some local authorities to

have as their Mayor or ChairtUan a man who is reluctant to re­

linquish his position even although rapidly increasin5 age

suggests that this would be desirable. While this is certainly

not a predicament facing the Oamaru Borough Council at present,

the importance of' an active and alert Mayor to the progress of

the tovm prompted the inquiry; "What is the most acceptable

length for a borough mayoral ty? 11, As Table 12 indicates 45%

of the population consider that five years is most acceptable

- 144 -

although another 30% would recommend that there be no limit.

This latter suggestion is lesS: popular among those who discuss

politics frequently, as this same group provided the highest

TABLE 12

The Advisable Length of a Borough Mayoralty

No limit

.About 15 years

About 10 years

.About 5 years

Less., th&n 3 years

29.7% (73)

3. 7% (9)

21 .1% (52)

30. 9°/b ( 76)

14.6% (36)

1 oo. 0%( 246)

percentage (26%) who felt tha,t "about ten years" was the most

desirable. When age was c~msidered it produced the interesting

picture of the older people strongly favouring a limit of five

years and the group from 21 - 3\' 3howing equal determination

that no limit should be placed. Of the group with the higher

political interest, the 40 - 5'., '.3 (36%) accepted the middle

suggestion that about ten yea.-v..·r Jhould be regarded as an ade-

quate length. However, again ;; H,' critical forties have a low

percent age, 16%, in the "no lin J.-; 11 category. Of the Adminis tra-

ti ve and Professional group 36~ · h..dicated their preference for

•. 145 -

a mayoralty of about ten years, which adds strength to the con­

clusion that those with greater political interest were more likely

to accept this interJ::1ea_iate suggestion,

In conclusion a final word on interest and quality, .Although

the precise link up is not deuonstrable some overseas investigations

into local government have postulated that there has been a steady

decline in interest in local politics rrhich has been parallelled by

an equally steady fall in the quality of those offering thel:lselves

f 1 al t ·t· 10 or oc governmen posi ions. The essential 11 snap shot" nature

of this present study cannot offer any dr:°~nite conclusions on this

proble1:1, but strong supporting evidence is available. It would

seem that interest in the politics of the community is indeed high,

at least higher than a general observation might tend to suggest.

Further, the majority of the population are rrnll satisfied with the

quality of their local representatives. If there is a link up

between interest and quality it must surely be because more people

are willing to stand for local govern;~1ent, and it has already been

shown that between one--quarter and. one-third of the population

would consider doing this, This then, does strongly suggest that

in the present study the two are interconnected, but whether a

future decline in interest will also resuH in a drop in quality

must renain as a dilenm1a for the future.

1 0 See A.m. Rees and T. Smith, - Town Councillors - A Study

of Barking. P,105.

CHAPTER SEVEN

INTERACTION -

"It is a general popular er:rwr to suppose the loudest complainers for the public to be the most anxious for its welfare, 11

Edmund Burke.

Classical democratic theory depicts the elected representatives,

in this case the councillors and board. members, as the link betvJeon

the people and the governmental bureaucracy. As such they perform

two distinct, though inter-related, roles. On the one hand they

represent the interests of the electors, vrhile on the other they

perform what might be termed an "errand boy" function, taking up

individual problems and, where possible, "fetching" solutions.

This latter function is considered important by all the

members of the Borough Council. They all received problems

or comp~aints but there was some variance over the number

received by each member. Five had less than ten such complaints

a month, four had between ten and twenty, while another member

averaged closer to thirty a month. The Nayor and the Chairm:an

of ·works were however by far the most active in the receiving

of these problems, as the Mayor was asked to provide nearly

eighty solutions a month, and the Works Chairman approximately

- 1 '-+7 -

150, or six a day. 1/Toen asked if these problems came from any

particular class or group the members all replied that this was

not evident:

"No I don't think that I could discover MY particular group. They are normally people who know me or else they have questions concerning my portfolio. Oamaru is hardly big enough to discern distinct social classes."

The Mayor did however mention one $1)ecific group.

"No, there I s really no special group for it I s well distributed. I do get a real plateful of newly weds who thought two could live as cheaply as one, but then Hi th a fanily on the way they had no where satisfactory to live. 11

The three most prevalent types of problems were said to be those

concerned with works, "a hole in the road or a leaking water main";

town planning, "problems of sub-division"; and "the interpretation

of by-laws". Other minor complaints which members said they had

received were traffic and parking control, gas and lighting, and

for two members being on the "State House Allocation Committee"

provided frequent requests for assistance. The councillors ell

gave the impression, when asked why they thought the people came

to them Hith problems, that this was the only real avenue for

complaints, as many simply replied by saying, "Where else can

they go to?" They sa\1 themselves as re~resentatives of the

people whose responsibility it was to receive any problems which

might arise. These attitudes are expressed in the following

- 148 -

comments:-

"They look upon the Borough Councillor as their representative. He's a ready safety valve for the individual rate payer. Furthermore where else can they go to? You must al,,-mys be ready and willing to tal<:e all of these problems."

"I 1m sure they think it I s the obvious way of bringing to the notice of those responsible problems which have been bothering them. People may at first criticise councillors but I think they respect -them for the roles they perform. 11

"A person feels he has democratic rights to uphold and this is why he comes to me. Further most of the problems are genuine problems by the time they get to me, 11

When a complaint does come forward most councillors seemingly

adopt much the same procedure; they first listen to the problem

and then discuss it in the light of any previous council policy.

i\Iinor problems are often referred directly to the Chairman of the

committea concerned or to the Borough Overseer, but with anything

of importance the advice normally given is that a formal letter

should be written to the council explaining in detail the

complaint or injustice.

"Firstly I listen to see if their complaint is justified as I'm in a better position to judge. If the complaint is genuine they can be instructed on the right way to go about a complaint. Perhaps it may be necessary to write a formal letter about it or I can just pass. the information on to the chairman concerned, 11

The Chairman of Works did outline a s'lightly different procedure.

- 149 -

"Often a lot of small jobs have been promised to be done, but it's often just left as the bigger 1,7ork has gone on, rather than the smaller aspects which I feel are just as important. I'm interested in getting the best poss:ible pro-gramme through, I've developed "action forms" and "follow up forms t1 so that when I look at complaints and decide that action should be taken I add it to my action form. In my first two months I had 113. I try to keep a constant vigilance to make sure that things are being done. I'm trying to foster better public re-lations between the Works Department and the public and I make lmo1,m any appreciation frol;l. citi?ens,"

.Anong the members of the second territorial body, the County

Council, all but one of the newer men, said that people did come

to them with problems, al though only two mentioned that this was

because they saw them as their representatives on the council.

One other member cornmented:-

11It 's just a matter of taste I suppose. Some ring the engineer or the foreman, Personally I think people should malrn more use of their neE1bers than they do at present. t1

The very small nu1ilber of problems the,t are brought to the County

Councillors, in comparison with those received by the Borough

Councillors, is highlighted by the fact that five members con­

sidered that they had less than four problems a month, while

a sixth felt that about eight would be a reasonable number he

received in any one month, This seems surprisingly low in

a community where the availability of the local body 1,1ember

is considered to be an important attribute of the systera.

- 150 -

Those problems which the members did receive were principally

concerned with the maintenance of roads and the need for tar

sealing, while some minor problems had involved the Hater races

s,nd the staff. All of these were handled in a similar manner to

that of the Borough Councillors as besides a reviewing of the pro­

blem the members normally suggest that a formal letter to the

Council is more acceptable than a mere verbal request.

None of the board members appeared at all burdened by people

coming to them with complaints. No member of the Hospital Board

received any more than four questions a month, most of which crune

from either staff members or from people who had relatives in one

of the institutions under the board's control, although no

specific problem seemed predominant.

the complaints were unjustified.

One member felt that often

"They think they C/:ill do more by coming to a member. Often they are sick people with a personal complaint against a doc.tor, whioh is unjustified. 11

Another suggestion vra~ that they came personally to the member

because a letter was :considered inadequate.

"They feel that a letter doesn't ali;rays· convoy the .whole stoty. Some people are afraid of the

' . executive secretary and often they might consider that unlesp a problem is broughtto the ~ember 1 s notice b,ef9re the meeting they non 't consider it adequately 1

;" · ·

Consider the pr?blym, decide whether the complaint is justified,

ask them to write ,to the board formally if it's l:l- major problem

- 151 -

but solve it quietly with the right official if it's minor,

vrnuld sum up again the typical procedure for handling a

complaint brought to a Hospital Board member. Business men

were mentioned by one Power Board member as being the principle

group which brought him problems, however the other three ,,ho

also received problems felt that just a general cross section

vms evident amont those vrho approached them. About tvm

problems a nonth were all tvro 1i1en received, while the other two

ans,7ered respectively six and sixteen inquiries a month. The

sparsity of complaints rms also reflected in the tone of some

of the comments, particularly three men who felt that as re­

presentatives they were not called upon enough with problems.

"I think the people who come are those who understand what local government is really all about, They are prepared to use the member as he should be used. They can go to the paid official but we are their representatives and therefore they should come to us. 11

"The people of the district don't seem to realise that I have aceess to the Po,,-,rer Board. They are all very complacent and not really concerned. 11

"It seems they are only prepared to go to the board member when they don't get satisfaction with the executive officers."

What problems there were, nere normally handled in a sinilar

manner to that suggested by the Hospital Board members.

Finally, only three of the Harbour Board members said they ever

received a problem or complaint associated with the board I s

- 152 -

activities in an average month. Typical comments of the

remainder were rather similar to those mentioned ·by the Poner

Board members.

11 There 's very little interest in tho board.' s activities in my area and probably many of them don't even knoTI they are in the Harbour Board, 11

"The average citizen could.n 't care loss about the problems of the board and they seldom ever ask about the activities of the board. 11

A few questions about the cost of the loan to the rate payers were

all that the members had received, and therefore it was too

difficult for them to sec any prevalent group responsible for

the complain~ or to su50est \'7hE,.t they could do to help a11sy,er

such inquiries.

If the majority of governors, particularly board members,

are not called on frequently to solve constituents problems, a

rather different picture emerged from a review of the number of

q_uestionnaire respondents who had taken problPr:is to any of the

five local bodies, Hore in keeping with the wider citizen

participa·cion of the rural community, but hardly in line with the

conclusions of the County Councillors, 5Cf}& of the respondents said

that they had taken a complaint or problem to the County Council.

On the other hand only 37% of the town respondents had exercised

this democratic perogative with the Borough Council. A similar

rural-urban distribution occurs in reference to those who have

- 153 -

been to the Power Board vrith conplaints or problems, as 38%

from the countrJ had a.one this compared with a nere 17% in

the tovm. The Hospital and Harbour Boards were quoted by

only six ur1Jan and six rural people as being local bodies 1iihich

they had approached with a col'.1plaint.

Political discussion, or interest, again influences the

likelihood of complaints, for as Table I sho,1s those who

discussed politics "frequently" or "fairly oftentt he,ve a

higher percentage who have been to either the Borough or County

Taken Pro­blems to Councils

TABLE I

Political Discussion Correlated with the Frequency

of Complaint to the Borough and County Councils

COUNTY COUNCIL BOROUGH COUNCIL F. 0, R. F. O. R

Yes

No

TOT.AL

70.8%(41) 53.2%(59) 11.4% (4)

29.2%(17) 46,8%(51) 88.6%(31)

46,9%(31) 39-3%(55) 16.0% (7)

53.1%(36) 60.7%(85) 84,0%(37)

1 oo. 0%(58 )100. Of{{ 110)100, 0'}[(35) 1 oo. 0%( 67)100. ();1~140 )100. Of'c(44)

Council -rrith complaints or problems,

Table 2 introduces age and indicates that it is the two age

groupings with the most enthusiasm for standing for local government

the 21 - 49 1 s in the to,m and the 40 - 69 's in the country, -rrho have

more frequently come to the Councils with complaints. As this

.. 154 -

TABLE 2 .Age Correlate a_ wi. th the Frequency of Complaint to

the Borough and County Councils

COUHTY COUNCIL BOROUGH COUNCIL .Age Yes No Total Yes No Total

21 - 29 41.(Jfo 59.o% ( 17) 44-4% 55.6% (27)

30 - 39 43.9% 66 .19; (41) 48.0% 52.Cf/o (48)

40 - 49 58.afo 42. Cf}i; (50) 42. O"/o 57.6% (45)

50 - 59 ~-9-Cf/o 5-1.afo (51) 29.4% 70.6% (51)

60 - 69 55.9% 44.1% (34) 38.0% 62. af~ (50)

Over 70 36.2% 63.8% ( 11 ) 13. 376 86. 75{: (30)

does not correlate closely Hith high political interest the higher

responses may possibly stem from a greater ap1Jreciation of' the

responsibilities of a local government neaber. The fifties in the

town have earlier been shoi0m to be the group least critical of

the Borough Council, and this is supported by the fact that they have

a lower percentage who found grounds for complaints. However, the

sane relationship does not hold for the County as here the least

critical age group, the forties, has the highest percentage of

any age group who have talrnn problems to the County Council.

The Professional and Administrative class, has the highest

percentages in both county and borough who have talcen a complaint

or probler,1 to their respective boards, although the farmers are

- 155 -

only slightly behind in this respect in the county. This

leading group, besides being accustomed to approaching

TABLE 2 Occupation Correlated with the Frequency of Conplaint

to the Borough ro1d County Councils

COUHTY COUNCIL BOROUGH cmrncIL Occupation Yes No

Professional/ Administra-tive 55. 050 45. afo

Sales/ Clerical 27. 37?; 72.7%

Fanners 54.Cf/o 46. (Jjo

Hanual Workers 40.5% 59.5%

Total Yes

(20) 47,if/o

( 11 ) 34.8%

( 136) 28.1%

(37) 40.0%

No

53.0%

65.2%

71 • 9fc;

60.0JS

Total

(51)

(66)

(39)

(85)

individuals or orgrmizations in this manner, is also the one which

expresses the greatest interest in local government. Again this

reinforces that interest seeas to be the i11portant criteria which

motivates a person to talce a problem or complaint to a local

government member of administrator.

In investigating further it 1.7as found tha.t the local body me1i1ber

'Vvas approached 1:1ore in the country than he v7as in the to,m, as one­

third of those with problems concerning the County Council had.

- 156 -

taken them only to their local riding member. 1 In the to1im

a mere 5% had done this with couplaints about the Borough

Council I s a&iinistration. A further one-third in the country

and 2o% in the town had been to bot:O. a councillor and a council

official, leaving the rema,ining one-third and 75%, from the rural

and urban populations respectively, who preferred to go straight

to an official. Therefore, r;Jith the County Councillors

supposedly dealing with tvvo-thirds of all the complaints and

problems, and the Borough Councillors only receiving one-quarter

of those in the town, the picture looks a litt.le different from

that suggested by the members themselves. This is much more in

keeping with the functioning of a rural coramunity as the riding

representatives are much easier to contact that is a County

Council official. A trip to the Tor;m Hall in the urban community

however, is probably a simpler uethod of approach, rather than

trying to locate one of the councillors. A similar patt.ern

occurs with complaints brought to the Power Board, as the rural

members are concerned, either individually or with an official.,

with a little less than half of then while the tovm aei;1bers are

approached on about 25% of the proble11s complained of by citizens.

Although the types of problems or complaints which were made

to local bociies o1ere not investigated, the respondents were

1 Of the rural respondents 78?~ indicated that they lmffH their

riding menber personally. Also only 1o% criticised the riding systeL1 of local governr:ient.

- 157 -

asked if a successful solution had evolved folloning their

complaint. Of the problems talcen to the County Council 57/o had

been satisfactorily answered, while 55% of those to the Power

Board and 54% of those to the Borough Council had met with

success.

Local Body Member

Table 4 shovm this according to the original method

TABLE 4 The Satisfactory Ansv1ering of Complaints Brought

to the Notice of a Local Govern.~ent llember,

Council Official,or Both.

comT'l'Y comrcu BOROUGH COUNCIL Offic- To Total Local Offi- To ial Both Body cial Both

:l·fomber

Total

Yes 63.6%(21) 54,5%(18) 51.4%(18) 57.0%(57) (4) 59.1%(39) 27.8%(5) 54-0%(48)

In part 18.2% (6) 27,2;& (9) 28.6%(10) 25.0%(25)

No 15. 2% ( 5) 1 8. 3% ( 6) 1 7 .1 % ( 6) 1 7. CYjo( 1 7)

Don't know 3.r:!fo (1) 2.95<, (1) 2.0'fo (2)

TOT.AL 100.o%(33)100.o%(33)100,0}b(35)100.0%(101)

28.8%(19) 44,4%(8) 30.3%(27)

(1) 12.1% (8) 27,8%(5) 15.7%(14)

(5) 100.0%(66)100.0%(18)100.0%(89)

of approach, either to a councillor, to an official, or to both.

The County Councillors presumably provide a better service in the

answering of complaints, than do the County officials, as they have

a slightly better record and only 15% of the problems did not receive

an answer. Those problems that rmre taken to both an administrative

- 158 -

official and a councillor were possibly nore involved. and more

difficult to solve, which could account for the lower rate of

successful solutions. '\Hth problems taken to the Borough Council

a direct, officisl approach seemed. to provide the best chance of

a solution. 1::rith 88% of the conplaints being completely, or

partly, answered there is grounds for satisfaction with the

perfornance of the Councilfs administrative nachinery.

Considering the earlier iri1pressions of the Borough Councillors

all being actively involved. in the receiving of problems it is

surprising how few times they have been approached. by the

respondents. Probably nany of the probler.1s accepted originally

by the officials would immediately be passed. on to the appropriate

committee ohairr,1an, and, therefore these would also be

included in the councillor I s consideration of ho\7 Ernny problems

he had. received. in an average month. Yet even this does not

really account for the discrepancies which occur between the

number of problems brought forward by the population and those

received. by the councillors.

Interaction between the electors and. the elect also occurs

at the tirae of the trie,u~ial local elections. Horrever a

freq_uently heard complaint 1 once the meagre a,;·;iount of dust they

raised has settled.j is that too few citizens were prepared. to

arouse themselves sufficiently to make the effort to vote.

- 159 -

The local body members v1ere asked what they considered was

responsible for the low election day turn out. The 1:1aj ority replied

that it was just a lack oF:±.'1terest, al though one sew it arising

because of the scarcity of major issues,

"It I s really caused by a lack of major iss-ues, Local government doesn't really affect &nybody as it's purely administrative, It's very mundane, very ordinary, lacking in any conflict and hence in interest."

The others preferred to view it more as a hun1a:n failing, or as

complacency, while a fee; SU/;gested tentatively that it might be

caused by satisfaction with the adninistration and membership

of' tho bodies. The following cor:inents illustrate these attitudes:-

"It's a uodern trend, People aren't interested as they just accept everything on a plate, They want everything they can get but they won't do anything for it. 11 (A Borough Councillor)

"No elections, no opposition, no interest, means no support. As long as someone is doing it people are satisfied, It makes no difference really who is on. 'rhey could throw me out and bring in someone else and it wouldn I t make a scrap of difference. 11

(A County Councillor)

"M.ay be people are satisfied and this is why they don I t vote. But I suppose this is unlD<:ely. I think it's probably just an apethy brought about by a typical hunan failing. Further, most of our needs come from the central governnent; so this is included to talce mo st of their interest," (A Borough Councillor)

"The low polls are just caused by a lack of interest. Things are going along so why change then seems to be the attitude ~uong them, Unless there is soLle-thing controversial, the public just are not interested. 11 (A Board l"Iember)

- 160 -

Som0 consideration has recently been given to a complete

overhaul of the machinery for local authority polling,

principally so as to meet the circm1stances of the tiues as

people now appear to ha,ve nany other preoccu1)ations. The two

suggested methods of inprovenent have been postal voting and

2 an extension of the voting period beyond a single day.

An inquiry was put to all the governors to see whether they

could suggest any method of ir;iproving the numbers who triennially

turned out to vote. Postal voting and. an extension of the

hours vrere provided as exemples, but even then only one-quarter

felt postal voting worthy of consid.eration, and only a further

four suggested an extension of the hours of polling. Various

forms of compulsory voting vrere generally opposed~ although

three did mention it as a possibility. One comnented:-

"I think the answer is this. Initially everybody must enroll. If they do not vote their name is automatically removed from the roll and they are then required to pay £1. to have it restored. 11

Other suggestions offered were; to introduce an issue of inportanoe

or controversy, such as fluoridation; the holding of a series

2Both schemes sometines have resulted. in an il'.l.provement in

polling figures when they ham been adopted. In the 1965 elections in Havelool:: North, where voting was spread over six days, the poll was a 7CP/o one compared -r1i th 55% under non1al procedures in 1962, Also hlore than 80fo of the eligible voters cast their votes in the Coronandel County Council poll using postal methods, whore as the best that could have beon anticipated una.er the old systGrn TTas 50'}6, I-Io-wever :i.p Dunedin in 1962 voting for six days produced. a lower polL

- 161 -

of meeting to allow public scrutiny of the candidates; greater

newspaper or television coverage; and a prograinne of education

stressing the importance of the single vote, Yet for so nany

no suggestion really appeared to offer an ideal solution, and

often the response to the question was a shrug of the shoulders,

e:x:pressed with the attitude that people 1i1ill never really be

interested in local government no natter what alterations are

made.

Yet it is evident that if sone local issue of lively

concern comes before the electors, or if sonebody or some

group, determinedly drw:1s up enthusiasn the poll will reflect

the consequences. A mayoral battle is normally a good draw

card and this has proved to be so in Oru:1aru' s local elections

since 1956, The three rJa:yoral elections in 1956, 1959 and 1962,

sa.~r voting percentages of 66%, 72% and 65% returned respectively,

while the 1965 alection, lacking a r:iayoral contest, shoued a

drop to 52%, The urben questionnaire respondents were asked if

they had voted in the last local body election, and although a

slight exaggeration of the figures was anticipated, 3 it was some-

what staggering to find that 9(Jfo said that they had voted, The

lack of a master roll for the election in the Borough Council

3For those with greater interest are more likely to vote and also E1ore likely to return questionnaires.

- 162 -

records unfortunately meant that a cross checking was not possible,

and therefore the figure aust be treated with soue scepticis1,1.

In studying closer the mayoral election figures it is evident

that where the vdnning r2ajority was so.all certain trends er:i.erged, 4

In 1956 uhen the present f.!ayor opposed an· older incunbrent, and

in 1959 when e,n older councillor challenged the present Hayor,

it was noticeable the,t the older, r:i.oro well established sections

of the town provided rJ.ore support for the candidB.te of greater

age. In cor;iparison the newer developing areas felt inclined to

give more support to the present 1.'iayor, In the 1959 election both

candidates lived in approxiEiately the sarae area, the expanding

North End, yet here the younger raan received his highest majority.

An atter;i.pt Ylas also nade to see whether candidates for the Borough

Council receive a higher percentage of the vote at the polling

booth nearest their hones. Of the thirteen candidates in 1962,

five did receive a slightly increased percentage. One candidate

obtained 8.6% of the total vote, yet his percentage at the

nearest polling booth to his home rose to 10.4%. A further two

uen showed an increase of 1%, while the remaining two obtained a

rise of only a fe~ percentage points. In 1965 three received

4rrhe winning majority in 1956 was 1,8%, in 1959 2,6% and 1962 35, 4%,

- 163 -

a slightly increased percentage, 1Ji th only one exceeding 1 %,

while four others had their lowest percentage at their nearest

polling booth, al though again it was only by a fe\7 percentage

points. This is all rather inconclusive and suggests that the

size of the toun is such that those who stand for a position on

the Borough Council receive a sioilar proportion of support from

all sections of the conr.mnity.

The infrequency of elections in the county and its effects

on local politics has been stressed previously, but the folloTI'ing

is a cor1plete list of county elections for the past decade:-

1956 Otekaike Riding; sitting member challenged

Papakaio Riding; sitting member defeated

Kmlcanui Riding; by-election

1959 Awamoko Riding; sitting r.1ernber defea,ted

1962 Election for member of the Power Board

Election for neBber of the Hospital Board.

The question 11Here you required to vote in the last local body

elections, for the election of a neu riding neBber, or for a

meaber of the Harbour, Hospital or Power Board?" ,1as asl:ed of the

rural respondents of the mailed questionnaires. In spite of the

fact that the last election of any kino. was in 1962, 4-3% said

that they were required to vote in 1965, 4-8% said no, and 9% replied 0 Don I t know". Of those ,rho said. they were required to

- 164 -

vote 82% said they had in fact done so. Furthermore, of this

same group 50% thought the election was for a County Councillor,

4CJJo for a Harbour Board member, 3afo for a Pmrnr Board oenber and r;

3CJJo for a, Hospital Board r'.let1ber. ::> Those who had stated that

there was no election in 1965 were aslwc1 when the last election

took place, and it was surprising to find that only six people

were able to answer correctly that it -was 1962. Even allowing

for possible misunderstanding over the wording and interpretation

of the question it is renarkable that in the rural cornr;iunity

only y;s were inforned enough to lmo,7 when the last election was

held. This could suggest however that elections seen nore

immediate and inportant than they really are.

In both as1Jects Ylhich have been discussed, the taking of

problems or complaints to the local bodies, and local body

elections, the distinctive features of si;1all town ana. country

politics w.ake a further appearance. The rural community,

me.king good use of the riding systen, are more prepared to use

the services of the local body nenber as a connunication link

with the a&ninistration. This the meuber appreciates as he

sees it as a definite responsibility which he acc.epted nith

the office. In the m:iall town, on the other hand, the

5These percentages do not total 100% as some people said that they were required to vote for nore than one.

governors are a little more distant fror2 the population, and

although they display a vrillingness to "fetch11 solutions, the

citizens are more likely to take their complaints up the steps

to the Town Hall. Again, the sparsity of rural elections is

indicative of the sinplo replacement of a retiring local body

meaber by another cor.10unity activist. Although the problem

of voting absentism cannot be disregarded the Owuaru election

figures during the past decade have been above the national

average. Further, as the disr:ially low figures for the last

Christchurch local body elections indicate - 38% in 1962 and

30% in 1965 - the voting enthusiasm in the sr;1aller centre is

much more iupressive than that of the larger, more impersonal,

city comm.unity.

OH.APTER EIGHT

Tifil FUTURE

11 :Host schemes of political improveuent are very laughable things o

11

Sa:,mel Johnson.

While it is generally accepted that the raain function of local

governnent is to operate a day to day adninistration within its

area, it cannot, and should not, be precluded from a wider field

of action, decision and planning. A positive role in the planning

and guidance o:f the economic future of the cor:rrnunity should also

r)e part of its responsibilities and it should not find it necessary

to call upon central govornnent except for the purpose of co-

ordination of plans at a national level, To see whether the

mer,1bers of the two councils accepted and appreciated this

responsibility questions vwre asked on what line of develop1:ient

1 they considered nould be the nost beneficial to the area. The

views of the Borough Councillor's on Oanaru I s most productive

approach for the future varied from an enthusiastic desire to

1 A numb;r of questionnaire respondents also made reference to this responsibility,

11 The future of Oaraaru cru1 only be assuued by the establishment of further industry, hence local bodies nill have to lift the restrictive policies on land, 11

"The Borough Council seei:1S to be against any new busines5, or industry starting in Oanaru~'

"Oamaru is beconing more and nore a to,m for retired people and industry is being kept out."

attract industry, to the opinion that developnent cannot, and

should not, be forced. lui1ong the eight who considered that

industrial development offerred the greatest possibilities there

was a general consensus that only sne,11 industries would be suitable.

Tourism. was given pr0i,1inence, by two councillors, while a small

plastics industry, clot:1ing nanufacturing and a canning industry

based on locally grown vegetables and fruit, ,rnre also raentioned.

as distinct possibilities. One councillor said:-

"There's terrific potential in Oamaru and North Otago, and one of the ri1ain reasons for the to,m having gone ahead has been the restoration of the liquor license, which now means that we have excellent facilities for our visitors. The nearby Waitaki Lakes formation means that Oamaru should prosper from tourisu. 11

.Another commented:-

"Oanaru seel!1s to be a town of school children and retired people and it has no big industries. If it I s possible I'd like to see Oa1;1aru develop as a to,m of sr.1all industries, concerned YJith such things as plastics and dress w1king. This type of product would. find suitable local o.arkets. Also, a lot of young people have to leave home, and therefore these snall industries Hould help keep then in the to-rm. 11

However, two r.1er.1bers did express doubts that a particular type of

development could be brought to the area:

11 A practiceJ. stand is that you aren't going to get a particular type of developr:1ent no matter how required it is, There is a distinct lack of local rc1arkets for industrial goods, a lack of development potential and a lack of potential for agricultural products. You can 1t force industry and it's wrong to develop beyond what the population can support."

- 168 -

The role that the ri1embers see for their council in this develop-

rnent naturally also varies. One suggestion was that it could

set about providing an environment for discussion on developnent

between other local bodies or interested organizations, as the

council had standing in the coi:v:mni ty. The appointnent of a

Public Relations Officer uas also considered an urgent necessity •

.Another possibility ·1,7as for the council to make available suitable

land for industries, at e.n econor.1ic rate, and in accorda11ce with

a good toi:m plan. Hmrever, one of those who saw no part for

the council in this type of developoent ret1arked:

"The Council's job is to simply supply tho services and amenities that any cor:11:iunity requires. Theirs is a leadership capacity, but the developnent of industry is not one of the Council I s responsibilities. We have our hands filled in raerely keeping Oar.1aru as a happy place for people to live in. 11

In spite of their differences of opinion over future development,

all were uni tecl on tho vim:r that the council had nade ada:;tuate

preparations for axiy increase in populc\tion, as all of the torm

was now serviced nith high pressure reticulation. Three

menbers mentioned also that, as Oamaru was the fastest gro,Ting

borough in the 3outh Island1 it would reach city status in about

fifteen yoars.

The County Councillors saw that there was great potential

for development within their county, although the part they

thought they could play was far fron clear. Irrigation was

stressed as the 1,1ost vital necessity ·Hhich could incree,se farm

production and help establish a fruit and vegetable industry in

the lifaitaki Valley. The provision of good arterial roads,

assistance with i;tater scheues, and the maldng available of good

land for industry, Here seen as the most inportant contributions

which the County Council could offer.

Yet regardless of whether the local authorities feel they

have a responsibility to assist the general econonic development

of the area, it stil.;b~ ssems likely that they all have developnental

proble:os of their om1 to face. In order then,to see what the

local governors feel will be their tasks for the future, they

were all asked Hhat they saw as being the wain problems facing

their respective local authority. In answer eight Borough

Councillors made reference to problems involving traffic, parking,

or the trees in the centre of the main street. Uorks and road

reconstruction, e,nd more concern for the older areas of the -com1,

were mentioned by four further councillors, while three stressed

problems with the we,ter supply, t-vm town planning, and two the

obtaining of sufficient finance.

illustrate these problems.

The following quotations

"Town planning and the reconstruction of roads, traffic ana_ parking, YTi th a change from angle to parallel parking all have to be considered by the council in the near future. 11

- 170 -

"One problem for the: future is that of trying to bring in satisfactory Town Planning. into an old bo:rough. 2 This can cause real headaches. •rraffic control is a further Bajor problm1 ano. it can only be overcori1e by ·che people being educated up to the requirenents of traffic safety. 11

"I would say that ue have to attenpt to catch up ·with the olci(n~ areas of Oanarn, which have been left to sli:i;> 8,S the nerrnr areas have been developed ui th satisfacto17 serrage and drainage. There's no real p1:trldng proble:,: 2.s sone claim. We've creatGd the problet1 for ourselves by allo1.1ing all day pa1°king in the trees. 11

11Probleus concerning ::_n'lrking and the trees in the maih street face the CounciL Soon too they'll have to face repairing the drains in the centre of the tovm. A further big problem renains in getting to gri1)s 1:rith the enpire building Power Board. 11

Road reconstruction~ uaintenance and sealing v,ere the major

future responsibilities seen by four of the County Councillors,

vrhile another mentioned that th0 biggest probler;i vmuld be their

new workshop and offices. The remainder felt that there uere no

problens in the Councils future which vmuld cause any concern at

all. No particular probleLi seencd significant to the Poner Board,

as besicles two 1:1e1:1bers who foresaw no difficulties, others

mentioned rip;Jlc control, high tension vririni;, the new tarrif

for the purchase of bulk power, the employ,aent of qualified staff

2A Tovrn Plan was finally issued enrly in 1966, evea although all ~fonicipalitios lrnve been required by G-overmwnt Act to have one since 1926. Oa:::1aru I s Mayor in 1954 is quoted a,'3 saying 11He don 1t need a tonn plan. Vlhat we need is tm7n comr.1011 sense."

- 171 -

and "keeping tho price of pouer dovm", 2s q_uestions v7hicl: would

de;-c1and future consideration. Tho Hospital Board has recently

oor::ipleted a major building progranme and this was probably the

reason for the contentnent expressed, General maintenance w8.s

the only real coi1eern, although two r;1embors macle r.iention of minor

difficulties v./ith staffing and laundry facilities, which they

thought might req_uire the boards attention. The local body

11ith the most uncertain future is the Harbour Board. No

unexpectedly every facet of tho Boe,rd' s activity was mei1tioned

as being a potential pro·blen, 'l'he maintenance of the port, such

as repairs to the rrharf, d.redginb and noTT sheds were most prominent,

but they vrere followed closely by tho need to obtain shipping, and

an increase in cargo, One meaber felt that whe,t was nost necessary

w.s,s an overall plan for th0 future, while another stressed that a

progressive out1ook and iraaginative thinking would be required if

the Harbour Board was to make a success of its operations and keep

the port open in the future.

But progressive developraent is often seriously hindered

if a wasteful overlapping of local authorities results in areas of

responsibility being so suall thet the inclividual bodies can

afford to do little nore than cover the costs of adr,1inistre:cion,

From. Table I it is seen that tho L1onbers do not consider that this

is the situation in North Otago, as less than ono-q_uarter indicated

that they thought there vras soae hinderance to developr.1ent. The

- 172 -

TABLE I

ifonbers Opinions on whether DeveloJ?nent is Hinderea. by

the Number of Local Authorities

Opinion 0,B,C, ·w.P.D. O.H,B, W H.B. w.c.c. TOT.AL

Yes I+ 2 3 1 22.5% (9)

No 8 7 7 7 7 77 ,5% (31)

'rOT.AL 12 9 10 8 7 1 oo. o% (40)

~-----------------raajority seeEJ.ed to conclude that ee,ch body VTas serving a particular

function and was operating satisfactorily, in tho best interest of the

comuunity. Ho~rnver sor.10 who also saw no real hinderance to progress

and developDent suggested the,t it coulcl be stepped up uith more

co-operation betneen tho authorities, A menber of the Borough

Council aJso COD.plained of a lack of co-operation.

"Thare is great o.ifficul ty in getting across fron one to the other for there is a distinct lack of co-operation l)etween bodies. Thero is o:ften a real paper wai· between local bodies. 11

The Borough Council has the highest percentage conpldning of

hindera,nce, rrhilo tho Deabership of the County Council feels

oonpletely assured that dovolopmont is not upset by a lack of

co-operation.

With the possible exception of the Harbour BoaTd, the

loca,l authorities s0on faced with feu difficulties TThich cannot

be answered by the day to day nachinery of aaninistration, Yet

- 173 -

even if the sys'!Jen is working adeg_uately, without hihderances, this

should not preclude some consideration being given to possible

reforns. It has been said that tho inadog_uacios of·our present

syster:1 lie not so i:mch in nhat it does as in what it does not do and

that its greatest cost stens fron its inability to look ahead r.:

inaginatively. '.) This situation ,;ms e.nalyzed succinctly by a

governnent report issued in 1960.6

11 The basic structure of local governuont is essentially sound, It is houover, capable of being ir.1provoc1 in so far as the organization of the territorial authorities is concorned. In addition, there is a tendency v1hich we believe undesirable, towards tho formation of spacial purpose authorities to perfora functions nhich could ancl should bo perforued by territorial authorities. The solution to the problen is to consolidate and strengthen the territorial authorities to enable then to cope v,ith 1:iodern reg_uireuents c..nd e.bsorb to a large degreo tho functions of the gro-vling nunber of special purpose authorities. 11

Suggested schonos to provide this neodod consolidation, have so

often beon stoutly opposed by local e,dninistrators who cling

jealously to thoir prosent povrnrs Mel. responsibilities. In order

to see if a sinile,r reluctance to any al tor[',tion is felt in North

0tago suite,blo questions wore included in tho interviews nnd the

5R.J. Polo,schek, 11Locnl Govornr.1011t Roorganizn.tion and Docontral­isation11 Docentr£1..lis2,tion in Nm7 Zon1end Govornnont Adr.1inistration. J .L. Roberts, editor, (Ylollington: Noy, Zoaln.nd Institute of Public Adninistrntion, 1961) P.88.

6Tho Structure of Local Govornnont in Nmi Zoe.lend, Report of

the Local Bills Cormittee of tho House of Reprosont2,tives 1960. P.18.

- 17li- -

quostionnaires.

Teri•itorid 2,uthoritiGs ho,vo boon quick to c01:ipltdn that their

powers h1wo gro.duo,lly boon oroclod 12src,y, oi thor directly by central

government or indirectly by the establishment of ad hoc authorities.

However when the members of the two territorial e,uthorities were

asked if' they thought that local governnent power was in generDJ.

adequate all but tuo replied thct it vras,

commented:-

One of the minority

"No, our power is not adeq_uate e.,s it he.,s been gradually pruned away by the centr11.l government, This could account for the increasing npnthy. Also people are interested more 11hen they feel the,t they have 2, So::/

in tho use of thoir money."

Of those mombors who vie,10d the pouer e,s being adequate, 0110 folt

that although tho council -r:rns lacking in some respects it Yl!:'-S

not in pormr, while another suggested th2,t a restraining authority

was al-:io.,ys needed on local bodies.

"Oh yes the pouer is o.,dequnte as tho me.in lack has nothing to do ,rith tho organizntion. It's the porsonal E',bility e.ncl enthusiasr:i of the mernbors of the council uhich is not present. 1:'l:hat it is, is an administrative body doo.linc; nith dome.nds, but lo,cking in E1otive,tion. Id.oally it shr::.ulcl be prominent in both spheres."

i;We shouldn't be invostod nith 2.ny noro ponor. Ue I d be inclinoa. to run mmy ,rith ourselves, You need e. definite restro.,ining influence in tho background. 11

A third cOi"'.ll:1011tod:-

11Yos HO ho..vo e,11 the potrors that ure nccesse,ry outside of intorforint_:; with nhat is rightly centrc,l goverrn",m1ts power. 11

- 175 -

Although many of tho ansrrnrs rwro vo..gue end hesitnnt it is cloc,r

thr,t tho majority coEsidorod thr,t loccl government po11or rn.',S ndo-

q_ur,to. This inprossion Hns

only one of whieh folt unc.uly

confirnod by tho ad hoc nuthoritios,

inhibitod by central govornnont. 7

This generc,l content nith the prosont systou and tho 17illingnoss

to rrork within it, is possibly inc1icattve of e. le.ck of OXlY

serious clc,shes in tho ]_:Jo.,st rrith governuont dopo,rtr.10nts. Yot

r.1ore directly this tyi)o of consideration is not ono which would

cross tho ninds of na:-iy of tho local governors. They soe

thousolves principclly ns roprosentatives ro,:;ponsible for tho

srJooth functioning of a conrmni ty, ond since things havo boon

functioning suoothly fen have given the subject rcmch thought.

The English systor.1 of local govornnent includes rnong the

responsibilities of its ve.rious councils such things o,s tho pro­

vision oi' oduc2,tion2,l fr,cilitios c,nd rosponsibility for housii.1g"

In order to test tho v,ccoptenco of those 2,s 8- possible oxto11sion

of loc0l initio,tive the ,uonbors of tho two councils nero nskod

if they folt such fields o..s oducntion, housin13; end sono trading

enterprises could roo,c1ily bo included cr.10ng their council I s

rosponsibilitios, Tho o..ccoptru1co of tho prosoi1t systou of centrc1

governnont control of oducdion r:c.s r,luost univorcl cDonc tho

7see Chapter Four, Pego 101,

- 176 -

councillors. Sow.e mentioned tho,t as locf0. bodies had enough

to do alre[',dy this v,ould be extending things too far 2.nd loccl

body work vmuld by necessity develop into c, full time occupntion.

The only exception to this srn7 possibilities if locnl government

m,s to develop on a rogionr,l bc,sis. He co1m;10ntod.:-

"Responsibility for ecl.ucc.tLm uould be o. good thing on o, regiond bo.sis. Then you would get e. cor,1:petitive elel'lent 2,nd locd people nould oJ. so tc,ke groo,ter pride in their schools. It I s on'.ly o, pottecL education system we hE.we 2,t present ond 2,utonomy i;rould corto..inly help this."

The response to the quostion on nhethor the~ thought their

po,rticular council should tnlrn on responsibility for housing W[',S

e, little different. Liost territorif0. locd authorities h[',VO

e,lreaa.y gone o.head li'i th schemes of pensioners cottages ond the

Oanaru Borough Council is no exception to this. All of the

Borough Councillors mentioned that they thought this had boen a

success although no one felt the,t it should bo extondod into othor

forns of housing.

v11iling attitudes:-

The f ollov1ing coI:llilents illustrate tho pre-

11We e.lrerily do a littlo in tho housing lino now. It is nocesso,ry t0 loc.,k after the older poople of tho town for wo all have an oblig1;;tion towr,rc1s thom. 11

rrwe have tdrnn on soLw rosponsibilitios for providing c0ttages for older poople. But further housing is a question for tho Sta.to to be concerned with, not loce.l councils,"

"Something has already boon dono with pensioners

·- 177 -

flo..ts, but ic is clHays necessary to float a lom.1, I think that all othor housing should be loft to priv2-te ontorprise, t1

Tho County C'.)Uncil he,s never accept od o,ny responsibility for the

provision of nny fon1 of housing. It does honever provide a

scheme of lioited finencio..l ci,ssistunce for farnors: - "rather like

o, Stc,te AclvGUcos 1Iortgnge" added ono of ,che councillors - , but

this does not soon ta bo very widely publicized.

A numbe:r of tro,ding enterprises which local bodies could

own and operv,te ,1ere suggested to the councillors but none of the

schemes were greeted vrith much enthusiasm Generally their

opinions vrould be surmned up by the follovring co1mnent :-

"Trading enterprises should be right outside council authority c,s the capital investment is far too great for us to undertake. Further it needs to be complotely self supporting before it rroulc]_ be worthy of consideration. t1

The running of public transport and the oper2.tion of shops

received no support at all amoni:; the Borough Councillors,

al though one member die. feel that motels or co,bins 1:i.ight prove

o, useful source of finance. Hilk supply, or distribution, is

eJ.ready u responsibility of the Borough Council imd all but

t;,70 agreed thc,t this should continue. To all the County

Councillors the possibilities of thoir council running trc,ding

enterprises had never really b0on considered and it rms there-

fore not unexpected thc.,t tlloy offorred no support to the proposcls.

- 178 -

It could be anticipo,tod from tho past corcilllent s that any

further extensions to cover ruw fm1.0tions of tho central government

would. hardly be nelco;·10d by tho councillors. This was indeed the

vievr of all but tvro; o.,s they oi ther sau it as being too expensive

or they felt thet the present na.ministrntivo no.,chinel:"J wo,s not

adequate to copo with any increo,se,

"No we could not tcl:o on any further responsibilities, for there is too much r;ionoy involved when trying to talco on big projocts.n

"There is no administro,tive ability in the Borough Council and they couldn I t possibly cope with nny more functions, 11

.Another councillor added:-

11 Tl10 tendency is no•:r to\1ards E1ore control goverm1011t, but this doesn't upset ne in the slightest. 11

The Ndiono.1 Roc,ds Boo,rd was vaguely mentioned by three Borough

Councillors as being a j.)ossiblo aroe, vrhere nore loce.l initio-tive

might bo nolcoraed. One County Councillor com.10nt0d :-

11 Thore I s no ror,son vrhy TIO ce,n I t control the uain hig1mays folloninc tho construction of those roads by the central governnent. 11

But the tento.,tivonoss of tho rouarks only served to suggest thc,t

there ,ms littlo enthusio.,s-n for any o:x:tonsion in this c1irection.

The Councillors rrore cl.so asked v1hether they thought thoy

should to.,ko over sooo of the functions at prosont being co,rrioa.

out by volunto,ry nssoci£1,tions, In 2, snoll town or a rural

comnunity, whoro this typo of nctivity is rnther the expoctod

- ·179 -

thing, the ideo. of woakcnin6 it nE:,:3 grootod nith concern.

"The r..ioru there [',rcJ tho botter. Tho voluntary o,spect is r.10st inportc.nt for they givo great support to the coL111unity. They nre also excellent trdning grounds for potontitl councillors, 11

"This 1:oulC:. lJo c, d.ofinito background step as they are nou run by i_)ooplo 11ho are deeply interestecl in their r,ssocic,tion N1C_ they will al,mys give n nuch bettor servicc. 11

Ono Borough Councillor cticl suggest tho,t porhc,ps in tine tho cou.ncil

vrould fino. tk.t it had to e,ccopt thoso novr rosponsibilitios.

Ho ronl',rkod:-

"Thero is sor:io neod fer hol;;i v;1i th sport_-1'1@; f'c.cili tios as tho 11 do it yourself" s1)0:rtsnm is 011 tho vmy out. This is perhaps nmr c, transitiond stage £',S up to a certain populo;tion voluntary support is sufficient, but 12,tor it is necessc,ry for tho councils to take a grec,tur interest. 11

Again the County Council nonbors all e..greed tho.,t tho present

e..rra11genont -vn,s nuch preferred. Besides hewing sufficient

resi)onsibilities already, thoy concluded that tho voluntnry

associations holpod to involvo noro pooplo in tho activities of

tho corn.mnity.

Eeny aspects of loca,l authority dovolotJDcnt hingos on tho

availability of ac1oquato financo. Bosic1us the ennual collection

of ratos) fin2,11cid support fro~:1 tho central govor:iment is

avc,ilc,blo prLJci.pdly through brc.11ts fron tl10 lfotioncl Roads Board.

However cl th0\_t6h there o.,ro possibilities for floating 0, loo,n,

incroc,sing devolopoent usudly forces the loccl authorities into

- 180 -

tho dilor.:::1c_ of oi thor incroc,sing tho re,tes or into a grec,ter

dG)_)Gl1donco on tho contro,,l govornuont. No urbrn questi01me.,iro

rosj?ondent nontionod th2,t the r2.tos 11oro oxcossive, 8

possibly

sterE1ing frou tllo fact th2.t, e,l tlnugh rove,lur,tions hc.vo increased,

the basic re,ting porcenta,go ho,s r\Duinod tho s2c·.10 for tho pc,st

d.ecade, While one aoubur of the Borough Council diet consider

th£1.t tlwro should be c substo.nti2,l increcs0 in re,tos, thoro is a

nc.turrl roluctrn.1ce cuong tho rono,indor to inposo ex1y further

burdens. But c, frequent source of conplc,int is tho.t the present

rr,ting sy stou is not equite,blo, Sono g:r.01'i?S in tho Urben popu-

lc,tion are; not required to pc,y ro,tos, Qll.c1 thoreforo contribute

nothing to tho cc. st of lo cril c,dninistr2,tion, yet thoy ne.ko uso

of the public f£1.ciliti0s provided, Tho possibilities of loco,l

bodies hr,vini::; sono rights of t£1..X0,tion such c,s an incono, or c,

purchc.se tax to suPl_,lonont ro,tos, and ovorcono this :irequo..li ty,

TTe.s susgost to tho councillors. Sovon uoubors of tho council

favourod srxw e,ltorn.tions in tho prosont systoc.:.1, such o..s tho

in1x,si:1g o:C r-, citizons tr.ix:-

11 1 'n strongly in ~'c.,vour of a citizens tc.x as this v10ul<1 give c, c:;ntribution fron tho young people who £To roally getting things for nothinc, Evo;i.·y-ono shoulc-:. contribute five pc•unds to tho Borough

8T1·ro dicl. Do.ko specific roforonco to tho fact that it '\7C'.S c,

burden on lJens ioners, but this they th'.:lught sh ulc1 bo Q pro blor.1 for the cont rd govornnont.

Council. Tho rcto peyer coulc1 thon subtract his fivo pounds i7hen ho pays his ro.tos, or to,1 pounds for a husband and wifo. Everyone hc,s a right to voto, P,11C'- everyone he,s a right to uso tho :i;iublic fe,cilitios proviccoc1, c,ncl thoy should thori;,fore 211 bo nade to contribute. 11

Throo councillors fc.1lt the,t tho central govornnont should bo re-

quired. to accept sor:io further rosponsrbilitios for e,ssistinG

loce,l bodies r1ith fine.nee, either through its PAY'.J systo;:i, by

relief of the.: rr,ting burc1en :m elderly people, or by tho :;_Jo,ynent

of rates on governnent pro:;_Jerty to loc[•,l euthorities. The

fullouin6 quotdions illustro,to these suggestions:-

"Yos sono [',ltorctions night bo useful. I 1n in fr,vour of so ne.ny pence in tho pound being added to the PAYE scheno and then returned to tho locul body. This woulc. e,ls.J ovorcone tho problon of those Hho don't pcy re,tos but uso tho facilities."

"Loctl boo.ies cculc:. bo roliovod sononhe.t. R[',tos have bocooo an increc,sing burden for olc1orly people and I fool th2,t tho control governr.10nt should teke sone interest in 2,ssisting in this iliroction. 11

urfo I 'n not in favour of this forn of t['..Xo,tion but e,s tho contrnl govornnont is o, parnsi to on loctl boc.io s they should be 1.10.do to p~\Y rato s on govornnont property. 11

.A noto of caution m,s intrJc1ucoc1 by ono councillor vrho felt thc-,t

cl though the idoo., uo..s o, northrrhilo ono thoro night bo sone

difficulty in justifying tho adc:.itiono,l tax burclon,

"Vfuethor tho people 1:1..ro propc.rod to pay noro for their servicos is a proble,:1 thc.t shoulrl bo con-sidered. On c, 112,tionoJ. sec.lo it can just be te.l:en, whore2,s loctlly it he.s to bo justifioc1. If you 1ro contributing locally you 1ro 1:'lso ::1ore likoly to to.ko M intorost in ~hore your noney is going. 11

- 122 -

Tho County Councillors showed no interest 1.st ru..l in any

pro;_)os2,ls for the· suggested for:~i of tox2-tion. Thoy considered.

th£'t enow;h Has raisocl l)y tho prosont sys ton, £met thoy noro ru.. so

ha,ppy ni th the c,)1~tributions frou tho Nctionnl Roecls Boe.rel,

Threo nonbors clso suggostocl thct if ru1.y further finonce rrns

requirocl then tho prosoi1t re.to sh .ulC. just bo suito,bly incrocsocl.

Nu :-1ention vrc.s nc,clo by any of tho councillors on tho present

syston of unL1provocl vclu:._;s, c.s to 11hethor thoy consic.orecl this

£in equitc.1)10 crre.ngo:J.ont. This he,s co,usecl sone concern in the

county in the pe,st ancl oight qucsticmnc.il0 0 responclonts no.clo S1)L10

roferonce to it stressing that it hnd w:my nnonc,lios M<l Has in

noecl of reforu. Twc of those cor1r1ents l:'.re vrorthy of quotc.tion :-

11 The systen of rding is out of dr..to 011a. in need of c.. conploto ovorhe,ul, Tho prosont uninprovod vru..ue systeu l,as 1.1ru1y anonnlios, al though tho olcl co,pito.l vru..uo systo:_~ hcd just us nn.ny. Thero is thoroforo a need for n nuch bettor syste,:1, oithor on nn 11 cwernge vclue syst0:-1" or bottur still, ono bnsocl c,n 11 2,vorc,ge production" ovor er.ch type of lD.nc. uso in the country, so thc.t c, progrossivo fan1er ,-rill be encouro.geQ 2,nJ. e, 11 110 hoper" l)oneJ.izocl. 11

"Rn.ting br,secL on uni:.1provoc. vcluo is giving rise to incree.sinG d.isse.tisf[tetion, cl thouch both systo:~18 givo inequalities in ro.tinc, The Counties Associl:\.­tion dicl requost tho Govorn.Jont t::., introc::.uco cnothor option which 1tJulc_ hc:.vo nurt_:;oct both systons Ui) t::i e,

certain valucttion lovoL This vr._:,ulcl hnvo ironed out so;:.10 vory 0,ppcront inoquclitios. Tho Governnont took no e.ction p.,nJ. tho Countios Associntion i'.12.,cle

no o.tteupt to f•':lll:Yi"T it up. A cre1.1t pity. 11

Criticisus of tho prosont taxo.tion systm:1., then, o,ro voiced

- 183 -

in both toun c.nt country but it n.,ulC .. soea that cnly sono of the

Borough ropresentr;tives hr,vo boon listening encl hr,vo beon uilling

t'.) nnko sugg0sti'.)11S on inpruvenonts in tho systen. However

even those Bor.:mch Councillors arguing for inprovonohts Here

norrn1lly m10..re tho,t scirious c:.ifficul tios of ir.:plommto,tion existed;

c.nd therof',,ro they apprecfotoc1 thd tho l)roblec noulc:. need to bo

carefully c:-;nsidoroc1 bofore MY e,ltorr.,tions wero furthconing.

Territorir.,l rmr,lgrno,tion moons tho union or merger of two

or more adjoining local government authorities, whether of the S['Jlle

kind or not, such e,s thd between [1, county .. ,,nd c. borough, It

could c.lso involve tho unificr,tion of some or nll of tho ri.d hoc

boa.ies in tho c,ror, with 11n alroc,dy existing terri torinl c.uthority.

Tho c.rec, r;i:; present aarninistorod by the loccl bodies of North Otc,go

is a complete googro.phicd unit Md nl though s01,10 ovorlnpping

does occur it is not besot by the problems of wc.stoful repetition

common to othor ports of Non Zoclrnd. 9 Yet tho proliferation of

spocir,l purpose nuthoritios hr.,s characterised tho area, and there-

fore tho absorbin6 of many of' thoso by r, torritorial nut}1ority

would bo 2. decidod advc,nto,go, Proponents of cr:1nlg2nn:tion maintQin

thr,t so• e of its benefits noulcl be r, lessening of a&,iinistrativo

and fiD[mcid costs, n bottor utilizo,tion of plant nnc1 staff,

9Tho Borough of Hrunpd.on is e, possible oxcoi)tion to this, but its ar.1c,lgnr..1dion ,;1ith tho Waiteld County appears as a distinct Jossibility in tho noar future,

- 184 -

@den improvonont in ad.ministro,tiv0 services. Honovor it has

often been found. that po,rochio,lis,:1 ho,s boon a serious obstn.clo

to suggested schor:ios of awJ.lgar.1£~tion. tlhilo approcic,ting thet

ane,lgauation ho,s nevor r0ally beon seriously considered in North

Oto.go it TTo,s duciclod to investigate tho feelings of tho loce,l

ropresontc.tives encl. the populo,tion touo,rds it,

'.!:he possible onalgnnr-tion of tho Borough end County Councils

v1c,s first discussed \Tith all tho nenbors, Uhilo othor unifications

woro thought possible this :idoi:, could find only ono supportor,

e, nombor of tho Ponor Boara., 11ho cor.montec1 •

"I see no reason for having a sepc,rate borough nnd. county council. It would bo o, saving end tho hiO could be assisted by the scr.10 engineer. 11

The councillors thens0lves uero agrood tho.t nhilo it night boa

saving, thGre 1,-rero still problens peculiar to their individuc,l

councils ·which they o,lono could solvo.

"':!.'hero is certainly too nuch ovorlo,pping but although in thoory an enalge.nn,tion night uork I think the,t in practice it woulc. sc,vo v0ry little, I really feel thr,t the local conclitions r,re bettor he,ndlecl by those vrho hc.ve the e:x:perience required., 11 (A County Councillor)

11 1 wouldn I t lilrn to soo tho cuulgo.nation of the Borough and County Councils o.,s I feel that the County neubers should be in u bettor position to understnnd their ovm problons. 11 (1\. Borough Councillor),

Two other re0,sons opposini; tho ic1e2, uoro thr,t, the Borough Council

vms <',ctivo enough already, and c,n increase in its acl.-1inistration

would nean that it could no longer bo n voluntary responsibility.

- 18 5 -

11 Tho Borough hc,s enough to clo now without nnything further. Thero ·would clso bo conflicting views on county ancl borough clecisions and it vwulcl thorofore be better to lonve the,:1 sopnrc,te. 11

11 .tu.-ic,lganation uight be rwrth,;;rhilo but you would hnve to consider tho chnngos in tho personnel structure, po,rticulnrly o..s it uould. no longer be a voluntary responsibilit;:/, Furtho1' it I s rc,ther inpossiblo for a torm ;:1c,n to roc,lly unc1orstond tho problons of tho country [',rcc,so 11

Both territoriel boc:.ios op?osu wy forn of auulgano.tion, but

there is a noticeabl~ difforonce in tho attitudes ex-_prcssod

in tho cor:ments. Sone of tho Borough Councillors inneclidely

inaginod the.t a.ri. enalgn.na,tion nould noan thr:t; they W-Julc. thon be

responsible for the e,duinistrc,tion of tho County; - hence the

renarks thd the Borough clrondy hc,d enough to do. The County

opposition to arialgrnation on the other hnnd. appoe.rs nuch nore

d.efensivo, as they tenc1 t:J stress tho.t only u local nen ce,n know

the locr.l conditions.

Tho possibilities of entlgeriation with a larger neighbouring

boc,rd ho.:ve been no,de cloc,r to both tho Hospitc.l e.nd Harbour Boards.

Alroo.cly the Hoal th Dopc..rtnont office in Tinn.ru is responsible for the

dc:partuental affc.irs in Oai.,aru anc. as fc,r as tho Harbour Boo.rd is

concerned tho dovclopuont of tho Tiuc,ru port hn.s resulted in f.'.

serious' clro,in of exports and iL1ports a,ruw frou Oennru I s port,

One Hospital Bocrd nonber c.icl seo dofinito advantage in a.r:iclganation

al though tho ronc.ininf; ;:.10nbors coi1siC~erec.1 thc.t it TTould bo urong

to loso their local nuthority, pr..rticularly c.s they he,ve enough

- 186 -

to keep a bor:crd active in the to,;m. V/hile in favour of unifying

the Timaru and Om,1aru Harbour Bonrds, hro r;1embers coulc. not

invisage it happening 0,t present. For the reaainder the loss

of identity, and sufficient business to keep the port operating

nere rensons for opposing amalgenation. One nenber wo.s particu-

12,rly adene,nt :-

"The Tinaru and Oa;::iaru Harbour Boards D,re in opposition Md they just could.D 1t amalgru1ate. As long 0,s the port is open for fair competition and as long as it remeins chee,p there is certc.inly no need for eny thoughts on Nnr,lgru:,10.tion."

T1;10 merabers of the Pouer Board e,dvocnted 2, conplete reorganization

of the electricity supply ino.ustry, suggesting the ['_,bolition of

sepo.rde po\ier authorities. The othor sevm1 S[Wl no value in

arn:i,lg2.Bc,t ion ,.rit~ My othor o.uthori ty, al though tvro suggested

other possibl0 forr,1s of ru:1e,lga10,tion Hhich could be nutually

beneficial.

There appears to be vory little enthusiE'.sn onong the urbf.\n

population for 2:11.y te,ke over by the Borough Council of MY of the

three o,d hoc euthoritios as 89% of the quostionnnire respondents

supported tho present systen. Council control of tho Pouor Bor.rd

,ms recon,:wnc.ed by I'.\ nere 5%, end e, sinilar percentage suggested

the sru10 fc.te for tho Harbour Bol1J'.'d. Yet inspito of their earlier

reluctance to take on v..ny further responsibilities, seven uoabers

of the Borough Council E>,dvocatod thc.t their body should take

- 187 -

control of tho aduinistre,tion of e,t loo,st ono of tho ad hoc

c,uthoritios. Half thoir nenbership suggostod that the Power

Bonrd should. 001:10 unc1er the jurisdiction of the Council, or

possibly soDo wider o..uthority. Trio nenbers of tho Council

rer.1arkod:

"Adninistro.tion is eating into our revenue e,s all the locd bodies ore building individunl enpires. Collectively 1:0 should organize on a large scrJ.e which could noa:n n grea.ter efficiency of adninistrn­tion nnd. econony. Ue should def'ini toly reticulate our o,m. electricity for the Poner Board is so filled with pride over its prosont authority. 11

11 The Borough Council should toJw over tho Power Board which is e, trading uej)artr.1ent and therefore he,s no need to collect tuxes. It has ne.de itself very weelthy, w:id this noney could be nuch better spent by the Borough Council."

One of the councillors was strongly opposed to the ideo, of the

council oxtencling its responsibilities to include the Power Board.

"The Borough Ccuncil should not tclce over the Po,mr Boo,rd. The nd. hoc bodies hi.we totally different rosponsibilitios. The Power Board is El. highly efficient body which requires conpetent o,dninistrators. 11

Four Borough CJuncillors also considered the,t tho Harbour Boe,rd' s

responsilJilities coulc1 bo CE1.rriod out noro c,bly by tho council,

whil0 c, fifth suggested that locr,l govorn,.1011t shoulc1 be responsible

for the running of tho HospitoJ. Bo0,rd"

'\'Jhen nslrnd if tho County Council should tdrn on Hider

responsibilities, such o,s rc,bbit bonrds, 25% of tho rural

- 188 -

respondents to the postnl quostionnc.ire replied. thd they thought

it should, but t:', further hro-thirds consiclered thgt they he.a.

sufficient undor thoir jurisdiction l'.t present. Enthusiasn

ovor E'De,lgru.:.ations rJ1d extensions of r,uthority is, horrever, n,Jt 0,

fo£1.ture of tho o.ttitudes of County Councillors, Only ono mm

thought thr.t thore uight bo sone benefit in council control of

rabbit boc,rds, while another thought tlrnt it night, in ti::10, cor10.

"Control of tho Rc..bbit and Catchnent Boards by a county is coning pe.rticulo.,rly through governnent legislo,tion, Sone countio::i o1roady have wider authority thEm vie do. Hov1evor I 1n not in favour of it at present. 11

The rest of the councillors either had not evon consic1er0d tho idee,

or wero opposed to the introduction of MY 11017 functions.

Corn:1ented ono nenber :-

"I so0 no bonofit c.t all, in taldng over rabbit boards. The only possible benefit night be o,

reduction in office costs 2.1 though othonTise it would cost elJout the scno, Also I 1I': sure it woulc1n 't b0 c1one noarly o,s vrnll as it is unrlor the present systen, 11

If po.st expressions E'..re e.ny indioc.tion then tho response

fron th0 throe L,d hoc bodies, following eny e.pproo..ch concerning

a nerger rrith o., territorial body, would be distinctly unfavour1:1.,blo.

True to forn tho ne,j:)rity of the '.!?oner Board were strongly opposed

to the idee,:-

11Po-.-1er Boarcls are so highly conplex thd it roquiros non nho o.,re solely responsible to ono boo.rd. They should never bo ~J2,rt of 2, Borough Council for this rec.son. Furthernoro you

- 189 -

woulct ovorloc,d tho mm to tho extent thd they wouldn't stone. for either."

Two nonbers Here however in favour of o,;:.1algeno.,ting the Po1,-rer

Board with o.. le,rgor torritoricl 2,uthority, while three others

agreed thc,t tho Pmior Board I s work could bo hanc1led cdequo..toly by

t:.\ con::--1ittee of such an o,uthority, although they vrore opposocl to

seoing the idoa in 1)ro..ctico. Those who considered thr,t a

connittoo could not handlo tho aaninistration of a Pov10r Board

dofenc1ecl the present systo,-.i on tho grouncls, thc..t supplying power

is a specialized job.

"Tho PoYrnr 1300,rcl is not c, public bocl.y and it shoulcl continue to l)o kc1Yt soperato. Further it is a spocializod job which only i~ soparc,to body crn control 2,r1c, it coul(\. not bo hnnc.led. rnlequc,tGly by a co1T1ittoe of c.ny territorid authority. 11

The Harbour Boe,rd were also genoroJ.ly opposed to 2:.11y suggested

norger 1,:ith c, territJriol routhority, such ns tho Borough Council,

cl though ono i..10:.1bor dic7. ontlmsiastically endorse tho proposcl,

lfo cor.montod:-

"It noulc. bo o.n oxcolloD.t saving in acJ1.1i11istration 2.m:. it ccrtuinly could. bo usec:. to stroo.nlino locc,l govern:rnnt throughout tho exe2,. 11

!mother go.,ve tentative support, clopending on tho qudi-ty of tho

nenbers of tho torritorinl authority, Tuo uho opposoc1 this

forn of nergor re8,soi1od thc,t they shoulct rounin as they aro

becc.,use they ,:ore nn indeponc.1ont body functioninc~ for a

specific t2,sk, Md in this rrc,y thoy could bettor co-ord.inr,te

- 190 -

thoir icleo,s" Ju though of course S'JIJ.e of the noDbors r1ere not

willing to see it happen 60% of the rnmbership adnitt.od that e,

coonittoe of sono territori£cl authority could control the Harbour

Bo arc.. A ;:.1oubor of tho Hospittl Boo,rcl connontecl:-

"Yes, I see no reason why 2., nerger couldn I t bo arre11gecl, oithor with the Borough Council o,s the controlling e,uthori ty or c, vricl.or regionnl 2..uthority. 11

This viow -we,s supportol7.. by ono othor Doub er, but the other six

felt tho;i:; tho Hospital Boe,rd functioned better under its present

set up. No e,clvantc.,ge He,s seen by the five nonbors in having tho

Hospito,l Boesel. run by o.. counittoe of 2, territoriel nuthority,

o,l though four thought the,t it coulc:. bo run unc,er such 0..n

r'.rrangmJent.

Jul practicc,l :Qroposnls for L;cc,l goverm.1ont roforc highlight

th.a ncod for a greeter degree of co-ordino,tec:. <lecision naking over

wic.er c,reas. So;:ie authorities sug6est that Nmr Zo8lanc1' s neeils

c:mlcl be net nost ri.,pj_)ro::;irio,tely by the introduction of a "tvro tier"

• L • org2,nizr;c1on. This, they feel, noulc7. incree,se the poi:rnrs,

effectiveness. e.nc1 vito,lity of our loctl institutions, v,hilo at the

SllDO tiue preserving those feo,turos nhich are solic1ly based on

10 popular esteen. They do ho,rnver, 2J)lJrecie;i:;e thnt the neecl for a

10 See R.J. Polnsc110k, "L•Jc2,l Govorm.10nt Roorgnnizl~tion ond Decentre1ist.tiun 11

, Decontralisc,tion in Now Zeo,lenc;. Governuont Ac1ninistrc,tio1}, J .L. Roberts, eC:.. Hollington: New Zoalo,nd Institute of Public Acl.ninistrr.tion, 1961 ,

- 191 -

"tno tier" systou vo.,ries yricely f'ror..1. ono po,rt of tho country to

another, and whothor it \7,)uld be applicablo to North Otc,go is D­

consider£rcion c., littlo boyond. tho so01J0 of this prosont study o

YJhm1 the ne,~1.bors wer0 o.sked i::' thoy favourecl tho c1evolopDont of o.,

"Uo,itaki Rogion(Q il.uthority", sup0rvisin6 2.nc. co-ordine,ting all

locd bodios in the c,r0n., it ne,s cloc,r that to uany tho sus;;ostion

uas en entirely 11011 concei_)t, e.nd they noro nn:turnlly reluctant

to connit thonsolvos '\!ithout further considerc.tion. Those in

fo.vour of it rrnro el so gm10r2.lly rathor tento.,tivo in their o,pproach,

which uc,a_e it a little cl.ifficul t to categorize the ;:10nbors Qppro-

T.i\BLE 2

Locol Govornnont Eenl)ors Attitudes t,:i a Ueitald

Regionol imthori ty

Attitude O.B.C. U PoB, OoILB. U.H.B. 11.C.C. Total

For 10 3 4 3 1 45. C'fjb

il.gainst 2 6 6 5 6 ss.01s

Total 12 9 10 8 7 100. if;6

This c.loes incico.te tho,t thoso opposocl to w.w fc:rn of rogioncl

c,uthority 2,ro only slightly elloac~ of those who either thought it

( 18)

(22)

(40)

night have possibilitios, or uoult1 bo of definite ve,luo, Ono of tho

strongest supporters of o.. rogional authority, a uonber of tho

- 192 -

B,jroug:1 Council, enthusiasticoJ.ly ex;)l2.,inec1 :-

"Tho ;_io,in rof;;rn I woulc1 liko to see in local GOVern::,ont is the rostordion of e.uth.Jrity in locd ,J,~ttors to tho local authori tios. '.!.'his c:mld :JeM tho c.ovoloix1ont of loce.,l govorr.i:10nt on c.. Duch noro sr,tisfc.,ctory rogion['.,l bo.,sis such as 2,

Yiai tc}::i V dloy Rogionc.,l Jmthority, '.!.'his rr::mlc1 be rosponsiblo f,Jr tho plcnning of tho ontiro l\roc.,, such E\S soil, c.criculturo, v10,tor o,nd post ccntr·oL In puroly lucd z-10..ttE,rs tho Borough Council end County Council 1aoulC_ roGE!.in to c1ocl ui th thee but in natters concerni,16 tho uhol,:i c1istrict the joint authority mrnh'. lJe in control. Thorefcre it ,mulcn 't woc.,kcn tho Borcugh Council to ho.ve a regional authority c.B they noulc. hc.,vo to do oxr,ctly wlrnt thoy c.,ro c.;.oing ['.,t pre sont. Tho Co,tcbs.10nt Boo.,rcls vmulc.7. bo o.,bolishod., Si::iilo,rly power ro-ticulntion Houle:. bo taken over by tho rer;ione,l c.,uthority, At pro sent tho Porror Doc.,rcl nilks the c.ensely poimlo.to,::. c..reas to support tho re::mindor.

The regiono.,l c:,,uthori i.,-•y control uoulc1 be c., nuch fc.,irer foru of operation. The authority 1,7ould. neocl to be ostablishod by stdutory r2oans, although I think tho:c o. co1101·21 ngreo~.10nt is ot first nocessc.,ry."

'.J-!J1cr loccl govornors nho fo.vourocl a re6 ioncl auth•)rity so.,,,-, the

\10,tors of tho \foitaki Rivor beconing tho bo,sis of a successful

a~'.'rango::wnt, through riv or control and irrigution c1evelo~)Ll011t,

1iThi::..o it uas DJ.so strosse<1 that o., great saving on aclninistration

WOUJ.C bo poss-iblo,

11Yes, I seo o.. gror.t need for o., rogionoJ. authority, ~)o..:cticu.lm~ly for South Cwtorbury anc1 North Oto.so as the TTn.ter fron tho 1,ia,i tnki coulc1 be controlled end put to trenenclous uc1vgntago. It's c., thing vro o.11 nust ho..vo nn int ere st in. 11

"Yos I'n nost certainly in fo.vour of this. It i-wulc1 holp trm:.10nclously ,iith o.,cl.uinistrdion and it would avoiL" nuch of the needless cluiJlication nhich goes on 2-t J?resent."

- 193 -

To its Oi);)ontmts a rogion2l forn of govornnont is an unnocosso,ry

expense which would. not result in any greater aclninistrntive

efficiency; it rwulc. low:!. to tho negloct of specific areo,s of

presont responsibility o.,nc~ it woulc7. bo difficult to got tho

qu2,lifioc1 rwn, Further, tho lJeoplo 1JOulc7. no longer be in control

anC. thoroforo local boc1ios should try to exist as separate

onti ties for as long o,s j_J:)ssiblo. Soao of those attitucl.es aro

illustre,tod in tho follonint; quotdions :-

"No, I 'n op:"losc,cl. to it as I think they arc do inc a good job like thoy e,re. ADy rogionc:l o,uthority nould only lx, an adC:'.itional costo 11

"This ic1oe., raises tho big problou of finc1ine; qualified people, pc,rticularly engineers, c,s it wculc7. lJe difficult to got tho required non. 11

"It c:mlc. also be c;ottin[~ c;<,12,y fron tho concept of local boc7.ios uhere the iJOople are D,t tho controls,"

"No I 'n not in fu.vour 01~ it. Ue 11ant to exist as o, sope,ro,to entity for as long e..s 110 possibly cw1."

In returning to T2,b1e I it is ncticonblo thet tho Borough Council

is very nu.ch in favour o:f c, recicmo..l authority. This cleu.rly

o,risos froa an 8,pprecic,tion thc,,t their JYm porJOr anc:. prestige

will not be seriously e.ffoctec1 by any such dovelopnent; in fact

it could even be enhancecl., Tho other boc7.ios generally vil-Wl'

o,ny new prci;_Josr,l of tl1L1 nc,ture c,s a serious threc,t to thoir

very existence, This is :)rrticularly true of tho County Council

o,nc_ the Power Boo,rcl. One Poner Board nonber corn.1ented :-

- 19L:- -

"This TT'JUlc. lrn 2, northnhile suggestion n.s long as it exclua.es the Por1or Bonrc:. 2:,s it is just so <liff oront. Thoy shoulc1..n I t be e trndinG entor-1)rise but thoy shoulc:. bo tho 'mly 1)oc1y concerned 1.:1ith the c:.istribution c.,ncl rndntonnnce of pm:rnr. 11

To soLw ·Jf tho Hospital Board tho iu.on, of a rec;iontl authority

night seeG o,t least M escape fron central c;overnnent control, but

to tho uo,jority it offors little inprovenont, Tho fact that the

Harbour Boarc:. has nu.ch loss to lose by surrenc1erinc its autonony

then c7.oos tho Pouor Bc1arrl, probably accounts for 4ofs of its nenber-

ship favouring tho iD.oi:,, of TT'.)rkins unc7.er a regional authority.

But even if thG opinions of tho local political loac~ors on such

2,,11 authority e..ro re,ther divicl.erl tho runl 1Jo1,ule,tion does not

o:x:press uuch onthusiasn as a ::1oro 17% sex: nerit in the proposaJ.. 11

Horrevor, 2, lo,c~c of kno11ledgo on the possibilities, anc7. voluos of c,

regionf'.,l 2.uthority probably accounts for tho sn2,ll nu~.1ber in favour,

Ifoticoably in o.~,ch caS\) of proposoc1 refor;.1 or gnaJ.g01.1c,tion

tho Borough Council has ouorcocl as the body Dost intorestoc7. Qnd

concornec7., Besic1os recognizing that c, rosional 2,uthority Houlcl

not l:,o a threat to their future nost of' tho :-.10~1bors aro willing to

11 One of tho so in favC1ur coru.wntod ;-

"I nn of' the opinion that porh2,ps one or two, r10ll pai(. quc.lifioc. non rmulc1 serve the district better than c, rather lW:'GG nuabor of voluntary, unp2,il7., unqualifiec:. poo;_)lo, Gro.pplin(i; ,dth probloDs thoy lmon littlG or nothinc about. Peo:,lo who have never been tre,inoc1 for such VJ,)rk. 11

- 196 -

is only soon l)y a porson te,ldng l!.ll overall nnc1 outsic.1o vim7 of

tho S-Jsten. Hu .. rover further c.ifficul ties beset the would-be

refor;ier. Firstly tho contrel coverm10nt, which shoulc. be trucing

£, nore positive ap1,roach, does not appear to bo particularly koen

to becor.10 involvec1 in loccl politics o A furthor problou is that

in the najc;rity of succestocl ir.11)rove::1onts ono particular body

is soon to bcmofit; in tho case of North Ote,c;o probably the

:Bor w;h Council. Other e,uthorities aro eSn,ic: that their

vcstoc.1 interests will bG throo,tenecl by this, anc.7. strong opposition

is i:rwc1iatoly arousoc1. Finally, as this pc,st cho,1Jter hc,s showe¢1,

only o, fev1 of tho rw- :bors hnve over given r.mch thought to the

niclor as)octs of' their i;rork, for they interprot thoir rolo as

essentinlly ono of reprosentation. Tho :::iaj ori ty are quite

content tu oporato ui thin tho systo'.·.1 they have inhori tocl, finding

[:.p)ropriato solutions to tho ~,roblons of the co:J:~mni ty as they

c1ovolo_p. Solclo1.1 C::.0 they rc,ise their eyos f'ron the clete.ilec1

day to clay runnin0 of their loccl authorities to vim, tho systen

with e, wic'ter r.101°0 f'orunrd lo::ikinc perspoctiveo

this the prospects for roforr.1 ro:.1nin din.

Until they clo

CONCLUSION

Political beh2.viour is Gverywhore sho,poc1. by socicl conditions,

nnc:. no-where does this eppear tc be noro true thn.n at tho grassroots

lovel of loccl politics. In 1877, clurinc; the fi:cst elections for

;101.;bers of the newly for,wcl \fr..itcld County C)m1Cil, an incident

occurec1 which i12,s to typify politics of the rurcl cor:1IJunity for

yenrs to coLJo, The cr.,nc-:.idde for one of the ridint:;s, \7ho had

been c.uly nonindocl l)y his neighbour, found hinself in the unlikely

situdion of he,vins to second his 01m noninc.,tion, 2.s they ,Jere the

only two eligible voters in the ric1.inc. This desire for repre-

son-bti,,m, esta1Jlishoc1. i1 c, spirit of co-opordion, is the essence

of rurnl politics evon tocJ.2.y, Tho hoL1ogeneity of tho rurr,l

population enc:. the niniccl socfr,l difforontiation hes fosterec'.. this

co-oper~',tion to proc1.uce 8Xl inti,-12,to, c,ctivo courmnity, Virtuclly

overyo110 co.n finc1. sono f'or:.1 of co:-rmnity or5onizc,tion uhich c.,llows

thon to nix with their neighbours; '\lhothor it bo tho locc,l school

co;-.ir.1i tteo, tho local he,11 funcl-re,isint,; sche,-1.0, tho loce,l wc,ter

schene, or the onnipresent lre("..orr.,toC .. Fo,rners. Locc.,l politics is

viewoc1 si;:!:;_Jly e,s rn1 oxtonticn of this corn:mnity 2,ctivity. Tho

replo,ceuont of l'.. retiring locn.l boc"cy ro:i_)resento,tive involves e,

- 198 -

process of castinc arounc:. for tho ncno of e. person nho soons

proninent in cor..1Lmnity c,otivitios, Follo,·r±nc:; c, porsono,l

cpproc,oh, it is likely the.t his accoptrnco is forrre.rcloc:. uith tho

fooling th2,t this is e, co:JI.mnity rosponsi.bility rrhioh soneono,

though not noooss8-rily hL:, shoulc". bo proi)c.rod. to c,oooi)t,

Bosiaes tho socio,l structure of the cor.v1unity influencing

tho t~Jo of person YJho stcw::.s for local govorir10nt so too

cloos it influonco tho porfornc.nco of the oloot anC:L tho response

fro• tho electors. Tho rural noubors soo their role :;irincipally

c,s one of re1n~osent2,tLm, e.nC:'.. o,s tho riS:~ing systm1 fosters this

:;_Jorsono,l oontc,ot botwuon olootors we:. thoir roprosentc,ti.vos,

e.pproaohes ui th c;riov&1cos c,nC. suggestions c,ro noro froquont.

Becc~use they fine'. tho uork snti,:ifyinc; thero is 2., oortc,in 2-LL·unt

of clodiodion to,7c.r(~s thoir rosponsibili tios. But it is c,

c1oclicc,tion to thoir oornunity, not to tho wi,7.or systor.1 of local

r-;ovori1l~ont , For t:1is is n co,Tmnity in action,

Tho urbo,n co::muni ty hc,s o,lwc,ys he.cl its politioc,l loo,c-:.ors.

In the earlier yec.rs cf its c;rorrth tho business anc.7.. sooic,l loaclers

ol the ton;.:. ,10ro 2.,lso its politioc,l fie;uros~ ,7hich holpoc7. to

provic1u 8, unity in tho c.orn:mni ty. Fro,., tho turn of tlrn century

tho locc], snall business proprietors t:;rc,c1.uc,lly novecl into a

l)lc,oo of pro,.1inonco in tl-w p,olitics oi' tho torn1, but tho one

attribute hold by thoir proC.ooossors \7hich they laol:ec'.. vras

- 199 -

This they coulc:. fin~~, 2.m:. nc,intain, by their

c.,ocopt0,nc8 of 1Joliticc,l ro Sj,1ons ibili tio s J for c, c'.e siro to sorve the

1001:\l cou .. 1Unity 0,nC. e.J1 Oilj_jortunity to 0o,in prosti;:;o hc,ve c,lwuys

been the intorlocking notives for pnrtici1)r~tion in locd politics.

Tho grov;th of 2, nen niclclo clo,ss of ru:ii6rc,nt, sor.1i-professionc,l,

o,cl,:linistr2..tivo anc7. :1CT10,c;erio1 pooplo, uith c.1ifforont politicc,l

E'.,ttituclos froD thoso of tho self nw~'.o locnl ontrepenour, is

ccc,in gro..dunlly c.l tering tho l)icturo 0f tho town I s local politics.

As tho couuunity boconos incroe,sinGlY involvocl whc.t is enorcinG

is t, situction nlwro tho ocononic C.oninc.nts 2,ro beconinc further

sopcrc,tecl. fror!. tho :i:iublic 102.clors, nho in tir.io will essonti2,lly

be the s2..lc,d.ol~. cc'.ninistro:tors.

Tho incroc,so in tho size of toun nouns thL,t roldionships

1Jecono rc,the:,r loss intine;co one'.. pors:mcJ., resulting in e,ctivity

pe,rticii)cc;ion l)oinc; not so r:mch tho oxpectocl thine thc,t it is

in the rurnl c8;Tmnity, Yet e,lthouGh loss people nre v;illing

to pc,rticipnte] th,),Jo 11ho c7.o c,ro notivo.tec. by w uneq_uo.llocl

cmthusit,SL1, Tho;:r fine'. Sl'/cisfc,cti::,n in orc.;r,nizing] c,nc:. they c,ro

constl'.ntly boinc.; clrr,\:n to,rr,n1s co;:_ini ttoo one. org2'"1izc.tion[',l

responsibilities. Onco tlloy ho.vo oste,blishecl c, rocsond;lo inn.go

as o, coonunity loE1-clor thoir next c,spirntion is [o j_Josition in loccJ.

c;ovornnont.

- 200 -

As tho socic,l systou of tho to.TD. bocones oore clifforentic,l

Mel conplicc.,ted, diff0rences of opinion oftm1 tclrn on nore of' c,

clc,ss be,sis, n.nc.:. bocu:-.io noro ex[•.gc;or2..tec'... This ofton en6enders

c, trc~co of c.tc,visn in the coununity J for i 1.plicit in :·-10,ny of the

cor.ment s is c., yo c.rning to roturn t :.i tho cood. olc:. d.a,ys, whon

councillors, cxiong other thincs, wore known end rospectoa. by the

citizens, MC. tL10 ur,s not \Ic,stec. in council uooting II clashes of

porsone,lity 11 - or so it is irn1c;inoc.. Thoso c.,ro tho politicn.l

growinc po.ins of tho c,J1:1.1mnity, for \7hcthor it is a)procir..toc1 or

not tho gap has slo,1ly -v.-ic1enec7. botween tho l_)oli tied leo,c1.ers 0nd

those they reprosent. There is a lesseninc; of :;:iorsoncl ccnt£1,ct

b0t1rnon tho oloctors c.n.-"'c the elect rn1c. consequently the o,c1ninistrc.,­

tion is nore likely to receive the bulk of tho conplaints c.,nc1

crievc.ncos. Yet chr.,ro..ctoristic of tho urbc,n ropresontctivos is [\,

grec,ter onthusio.s;:1 MG. involvonont in the loce.l ~)oliticcl scone,

for thoy hcvo c, sonso of i)ri~1.o in tho toun; in its pc..st, in its

l',ppoo,rC11c0 Nlc1 in its pro cross. Their c:.odication also is to tho

corn:mni ty. But it is o. co::-uunity -rvhero political lonc1.ership is

tho responsibility of tho fov7,

Tho lnrcor tho t0vm bocouos tllo noro 1)ronounc0C. bocor:10 those

nttituc7.os, so thc.t by tho tL10 city status has b00n attained locd

govornnont is vienocl ,;Ji.th o, c7.iffer0nt 1)orspoctivo. A lcrrs0r

- 201 -

i,roportion of its populc,tion shows totcl. disinterest in either

connunity nctivitios or locol i,olitics, votinc ['..bsonteeim:i 1Joconos

c-, noro bothersoDo proble'._1, N1C'. there is o, cc,nste,nt shorte,c_;e of

people willins to tru.G) on loc2,l governnent responsibilities.

B3r auso of the grO"wth of sectional interests, which closiro

reprosoatction, tlw l}D.ttorn hc.s boon for local elections to be

organized on 22,rty lines, such e,s in Christchurch, nhore the

Labour Party r..nC.. Citizens Ass.ocintion naintdn their rolos as

recruiting agoncios for local c;ovornnont positions on tho City

Council 211•:_ Jthor r.,c. hoc @thoritics. 1'ho p2,rty systou of city

~oli tics cl.rnws into tho poli tic1;,l l\.X'onn nen uho c.t l',11 ee,rly cgo

becane involve::'._ in politics, s;:; th2,t nm7 ;?arty politics is ix,,rt

anc'.. ~)arcel of their GVoryde,y livos. Those have ::minly boon

nouburs of tho Lal:iour Party nhich has roquirucl 0, stronc; organiza-

tion to break through tho no.,tural nidc:.lo clEcss prepi:mc:.oro.,nco in

city loco,l covornnont. A furthor group of non, who n,ro r.:iost

lH oly to P,lroo,cly bo c,:i:·1r_mnity rn1c7. businoss lornlors aro also

proninont, m.:onc; tho political loe,cl.orship of e, city, Thoy ho,vo

o.siJiroc. to th0 broad horizons of loccl covornuont enc:i_ bocc,use of

their bt~ckgrouncl of coDnon soci0,l intorosts thoy hc.vo no roc.l

110Gcl for o, stronc, forncclizecl orf;1mizctio11, To those non a

business ncunen is r, ~10st ii:'.):::irt2.,nt requisite; for loc2,l govern::10nt

c,t city levol he,s 1Jocono so nuch noro c, conplex business oporation.1

1 Seo G. Choyno, 9hristclmrch - 'Cho ifon ··,,110 G,:vorn, P. -195, ------~ ,

- 202 -

This then is tho che,ro.,cter ,Jf loce,l gov0rnnont; its

porsonslities 1 its procossos, [:.nC. its public. It is unlikely

thct th0 pattern of rur2,l ~)olitics will ever d tor, but for c,

c1ovolopinc; foym loctl politics is c; slowly chCl1(sinc: process.

As tho socie,l diversonci,,s bocouo groc,ter, ::,n(:. cor.munity

intorost in politics lessons, thoro rrill 1)0 c, plnce fJr politica,l

p2,rties in tho 1,olitics of tho co::muni ty. ~::hon this devolo;:mont

night occur is too difficult to postulc,to, c,s it is conc7.itional

Ui)OD the gronth of the torm. Yot nhon it c.oos coue it should

not bo vionoc7. c,s 12 feilinc in the systo::l, Rc.ther it should bo

np:;_:irecic,toc. e,s instituticmc,l c;rorrth encl dovolopL:ont.

A.H. Birch,

G. Cheyne,

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