FAQs
simplify local governance
reduce duplication and improve efficiency
support more coordinated regional planning and infrastructure delivery
achieve greater economies of scale
maintain effective local representation and community voice
9 August 2026: outline proposals due to Government
September 2026: Cabinet considers proposals in principle
March 2027: final proposals submitted
October 2028: any new arrangements intended to be in place ready for local elections.
What is Head Start?
In May 2026, the Government announced a new Head Start pathway as part of its wider Simplifying Local Government reforms.
The Head Start pathway gives councils the opportunity to proactively develop and submit their own proposals for future local government structures before broader nationwide reforms are introduced after 2028.
From 5 May, councils were given three months to work together on outline proposals for possible new governance arrangements, including potential unitary authority models that combine regional and territorial council functions.
The Government has said the purpose of Head Start is to:
Councils participating in Head Start are responsible for developing proposals that reflect local needs and priorities. Any proposal submitted will be assessed by central government against criteria including deliverability, governance efficiency, representation, and support for future planning systems.
In Southland, councils are currently discussing possible options and governance models as part of this process.
Is it different to the Local Government Commission investigation?
The Head Start pathway is separate from the Local Government Commission investigation already underway in Southland.
The Local Government Commission process is legislated under the Local Government Act, meaning Invercargill City Council must be involved in the investigation. The Head Start pathway is an optional process put forth by central government for councils to propose their own regional amalgamations and unitary authorities.
However, both processes are focused on examining how local government could best serve Southland communities in the future.
What does "unitary council" mean?
A single council that does both the work of a regional council and the work of a territorial authority (district or city council). Combining them is one way the central Government wants to reduce duplication, and they have already indicated that regional councils will be gone following the local government elections in October 2028. Invercargill City Council elected members have agreed to develop a proposal beginning with a starting point of one council for all of Southland, but other councils are looking at other structures, as well.
Does Council have to put in a Head Start proposal?
No, Council does not have to put forward a Head Start proposal. If councils in Southland don’t submit a Head Start proposal, the Government has said wider reform will still happen from 2028 through the compulsory backstop process. We don’t have any information on what this will look like, so we believe the best option is to put forward an informed proposal that could influence outcomes.
What outcomes is the Government is looking for with local government reform?
The Government has said it wants to simplify local government by reducing duplication, improving accountability, and making it easier for councils to deliver for their communities. It has set five outcomes or assessment criteria it is considering: deliverability, simplifying local government, providing for local voice, supporting planning outcomes and achieving economies of scale.
Will Government accept a proposal that does not include all of the criteria it is looking for?
Head Start proposals will be assessed by officials and considered by Cabinet against five criteria. There is no requirement for a proposal to be perfect in every category, but proposals will need to meet the entry requirements and demonstrate they perform well overall. If a proposal does not progress through Head Start, the Government has indicated the region would instead be subject to its backstop local government reform process after the 2028 local elections.
What decisions has Invercargill City Council made?
Invercargill City Council is looking at putting in a Head Start proposal, with the starting position of one unitary council for the Southland regional boundary – but this could change as the process goes on.
No decisions have been made about how councils in Southland could change. This survey is about exploring options and hearing from you to help form our Head Start proposal. Central Government will make the final decision on Head Start proposals, which is expected to happen in 2027.
How will local voice be maintained?
Keeping a fair and effective local voice is one of the five things the Government has asked us to consider when developing our proposals. Rural and urban Southland have a symbiotic relationship and Invercargill City Councillors recognise this must be maintained at a local government level.
Options for how representation across the region will be included in the Head Start proposal we are developing, and we want to hear your feedback on the best way to ensure all voices are heard.
Will my rates go up or down?
Any change would depend on what (if anything) is decided and how it's carried out. For now, rates are set and collected as usual, and we'll be open about cost information or modelling as it becomes available.
Will my local services be affected?
Your everyday services - water, roads, rubbish, libraries, public transport, parks, consents and more - keep running as normal. These conversations are about how the councils in Southland are organised, not about stopping services.
Will I end up paying for services that I don’t use?
All council services under whichever model is chosen are differently funded. This includes options for targeted rates for services which are specific to a local area. This would be decided during the transition phase.
Why would we participate in Head Start if the Government is going to make the decision anyway?
This is the opportunity for councils to share local perspectives and priorities to inform the Central Government decision. Councils which do not submit a proposal will automatically enter the backstop process.
How long will the Head Start process take?
Councils that want to use the Head Start process must submit an outline proposal by 11.59pm, Sunday 9 August 2026. There is no clear timeline on the overall process but indications from Government are that a transition to a new entity council start in 2028.
Can I talk to Councillors about the proposal?
You can reach out to the Mayor or councillors to discuss your thoughts. There will not be hearings for the Head Start process.
Who makes the final decision about changes to councils in Southland?
If the Local Government Commission process reaches its conclusion, the Local Government Commissioners will make the decision. Otherwise, through the Head Start or backstop process the Government will decide.
Will Council staff lose their jobs and will services be reduced?
It is too soon to know how roles and council services will be impacted.
Will communities be consulted?
Any future consultation or engagement requirements will depend on Government processes and council decisions about participation.
We’re committed to keeping our community informed as work progresses.
How are iwi and Māori involved?
We are working in partnership with mana whenua on this process. All Southland rūnaka have been approached to provide feedback as part of this kaupapa, alongside Te Ao Mārama.
What if councils disagree regionally?
The Southland councils are all in discussion about what the best governance structure for the region looks like for the future. Each council is engaging on different ideas and gathering feedback from our communities, and we have invited each Southland council to choose representatives to work with us on what the local democracy structure could look like. We are committed to transparency through the process and also continue to work alongside our colleagues and elected members at other councils through regular connections, such as the Southland Mayoral Forum.
It will be up to the Government to decide which proposal or model progresses in the long run.
I need to review one or more of the documents on this page in a more accessible format. How can I arrange this?
Accessible documents from this page are available on request to policy@icc.govt.nz or via phone to 03) 21 117 77
What happens next?
We’ll share further updates as more information becomes available and as we determine next steps for our proposal.
We’re operating as normal and will stay focused on delivering services and supporting our community.
The Government’s proposed timetable includes:
How do I get involved?
You can get involved by giving us your feedback on our survey, which is open until 12 July