LOCAL BODY AMALGAMATION

Press, Volume LXXIV, Issue 22506, 14 September 1938, Page 5

LOCAL BODY AMALGAMATION

Support of Christchurch City

Council

DRAINAGE BOARD’S OPPOSITION Evidence Before Parliamentary Select Committee [From Our Parliamentary Reporter.] WELLINGTON, September 13. The need for legislative action to bring about unification and simplification of the control of local affairs in Christchurch was urged to-day on the Select Committee on the Local Government (Amalgamation) Schemes Bill by Messrs G. Manning and M. E. Lyons, who represented the Christchurch City Council. The proposals of the bill were opposed on behalf of the Drainage Board by Mr H. G. Livingstone.

Mr Lyons said that there was no likelihood of amalgamation being accomplished without some legislative compulsion of the sort contemplated in the bill. Adjoining bodies might realise that amalgamation was in their interests; but at present it was nobody’s business to see that steps were taken to bring it about. There was nothing in the bill that merited serious criticism, except that it gave the Minister “he man” powers.

Mr Livingstone said that the existing control suited local requirements, and any alteration in the system was not warranted, as it would not bring about an improvement. Amalgamation should not be compulsory; but should be brought about through the will of the ratepayers.

Mr D. W. Coleman (Government, Gisborne) presided, and other members of the committee present were the Minister for Internal Affairs (the Hon. W. E. Parry), Mr H. G. Dickie

(National, Patea), and Mr C.

M. Williams (Government,

Kaiapoi)

“The council is of the opinion that if a reduction in the number of local bodies is made then savings can be effected,” said a statement read on behalf of the council. “Most important of all, the council desires to point out that the existing system precludes a well ordered scheme of development and planning tor the future. This lack of unification is likely to make desirable planned development increasingly difficult in the future, and affects practically all phases of municipal endeavour. Townplanning, health, water reticulation, electricity supply, and loading are only some of the principal fields ot municipal enterprise uneconomically retarded by the unwise divisions now existing in local government in the Christchurch metropolitan area. “It has usually been argued by the email boroughs contiguous to cities that a small self-contained unit of local government can usually do its work at ai smaller cost to its constituents than a larger body. In Christchurch the ileneral rates struck are definitely *than in, for example, the adlfj Borough of Riccarton, and this fiaF'oeen so for several years. On a number of occasions the City Council has made endeavours to rationalise the existing system, but experience suggests that only some form of compulsion will effect worth-while reform. “Amenities of City”

“The City Council puts forward the proposition with -some‘Confidence that liiose who enjoy the amenities of a city should contribute their quota'to their upkeep. Art galleries, libraries, baths, concert halls, etc., are necessary amenities of any city. No reason can' be adduced why any section of a town’s citizens should make their livings in a city, take all it has to give, but by reason of living over its boundary refuse to contribute to the amenities it provides. The community interest is wider than the geographical limits set by the boundaries. The boundaries of Christchurch City have in the last 15 or 20 years remained stationary while the city proper has grown and expanded its services. The city is expected to make grants to such organisations as the Arthur’s Pass National Park Board and other equally desirable objects a city should foster. A unified city should make such grants, and not a section of a city. 1 “The justifiable extensions of the city boundaries would include the following;— • Boroughs (1) Riccarton Borough (which is part of the residential area of the city). ' (2) New Brighton and (3) Sumner (The sea lungs of the , city.) Rural Districts (4) Heathcote County—Cashmere Riding and portions of Mount Pleasant, Hillsborough, Bromley, and Avon Ridings. (5) Waimairi County—Fendalton Riding and portions of Wairarapa. Middleton, Avon, and Papanui : Ridings. (6) Halswell County—(Small portions only.) (7) Paparua County—(Small portions only.) “Of these, Riccarton, Heathcote, WaiBiairi, and Halswell adjoin the city, and though the two other boroughs, are not contiguous, they are seaside resorts largely used by city residents. -It may be mentioned that the New Brighton Borough has expressed a desire to amalgamate, and has only been deterred from taking ’action on these lines by the want of a non-contiguous clause in the Municipal Corporations Act, such as clause 4 in the bill, though the council is of the opinion that this clause might be widened in its scope. The area suggested envisages possible progress in the next 10 to; 15 years, and in view of the inclusion of some urban lands to which owners may, ob- . lect, the Urban, Farm Lands Act would give any necessary relief. “Christchurch has more local bodies forking within the metropolitan area “*®. any of the other cities in the DoIn addition to those mentionea.there are the Christchurch Drainage Board, mainly concerned with sewerage over the metropolitan area; the Christchurch Tramway Board conducting trams and buses; apd the Christchurch Domain Board, which administers the Christchurch Botanic Gardens and Hagley Park. The amalgamation outlined above would give an , area practically covering- the whole of the districts' covered by the special icts of Parliament under which the above tljree bodies work. In view‘of the experience of the other cities of the Dominion it can hardly be argued that their retention is in any way essential. Irregularly Shaped City “What amalgamation has taken place With the city of Christchurch in the last 15 or 20 years has resulted in a Particularly irregularly shaped city. Its greatest radius taken from the city centre (Cathedral square) is some four miles and a half in a south-east direction along Ferry road to the Heathcote or Port Hills bridge, bordering which is the Mount Pleasant Riding of the Heathcote County, lying between the city and the Borough of Sumner, Whereas in the opposite direction to the north-west a short distance of about ope mile only will bring pne to the Fendalton Riding of Waimairi County. -“Again go along Victoria street, •Bother arterial road, .as far ■a Langdons road, Papanui, a distance

of about three miles and three-quar-ters will bring one to the Papanui riding of the Waimairi County: conversely proceeding south-east for a distance slightly more than two and a half miles one will reach Opawa bridge spanning the Heathcote and pass or into the Hillsborough riding of Heathcote County. “Travelling due east some two and a quarter miles will bring one to the City Boundary at Linwood Cemetery whilst due west, a distance of a little more than a mile, lies the Borough of Riccarton. Likewise some two and a quarter miles due north will reach the Papanui riding of Waimairi County and a similar distance due south wilj bring one to the Cashmere riding at the foot of the Port. Hills, in Heathcote County. ' “Artificially Checked”

“As things are, the expansion of the city .westwards has been artificially checked by Riccarton and Fendalton whilst on the other hand the inclu sion of the old Borough of Woolston and part of Bromley riding of Heath cote County have permitted expansion in an easterly direction. On the southern side the absorption of the Borough of Spreydon has provided for expansion in that district, but at its present rate of growth this portion o' the city will be practically built over within the next few years. “On the north side in the Papanui, St. Albans, and North Richmond districts rapid development is going on, and it will not be long before these districts also will be fully developed, so with the exception of Woolston which is principally an industrial dis trict, the next five years will most probably see- the present city area practically built over with the possible exception of the low-lying areas adjacent to the Estuary and the Heathcote river, in the Woolston district. “This means that owing to the everincreasing constriction of the city itself, numerous important public improvements and town-planning essentials are being seriously jeopardised and more or less indefinitely delayer through the inability of the nine local governing authorities (all being more or less involved at different times) tr arrive at a satisfactory solution of their difficulties to the detriment of the continued progress and well-being of the entire community, to attain which a well thought out and definite policy applied over a lengthy period is so absolutely necessary. “The present City Council administration is well organised and equipped to deal professionally, technically, and clerically with all the many phases of municipal activity- demanded by a modern city, and would need a comparatively moderate increase only econom ically to cover the proposed additional areas, which would form a marked con trast to the existing regime of nine local bodies apart from those boards with the statutory powers of local authorities that are also operating within the area under review. Subdivisions and Buildings In new subdivisions and the building by-laws there are marked differences in the requirements for these as between the city, the boroughs, and the rural districts (counties). Under the extension scheme these could be revised, codified, and unified to the ultimate benefit of the owners and residents from the double viewpoint ■ of health and economy: moreover, the present building department of the City Council could.,without much expense, deal with the entire proposed extensions, and so ensure new streets and buildings being properly constructed and erected in accordance with the new byrlaws. meaning better and healthier homes for, the people, and the distribution of these streets and buildings in such a manner as to eliminate the waste of large areas of back, land which are such a marked feature within and about the present city. It is essential for uniformity of building by-laws to be secured for those urban and suburban areas contiguous to the city.

“Highways and transport are inseparably connected’, and on these the business, general welfare, and social amenities of the whole populace of the proposed extended area, as well as further afield for at least 50 miles frdm Christchurch, of necessity depends. .Within its own area the City Council has gone to a very great deal of considerable trouble and expense in procuring the requisite up-to-date plant, and its engineering department has been busily engaged training its men in the urgently needed reconstruction of the principal highways and heavily trafficked streets, and is now constantly occupied with such work. “Gilbertian Situations” “It is not desired to weary the committee with details of the difficulty of negotiating with some of the smaller local authorities surrounging the city, many members of counties having no interest in the portions of city areas which they are called upon to administer. One instance may be quoted to illustrate the Gilbertian situations which arise when three local bodies administer a continuous piece of city road. This is Lincoln road, a main arterial highway of some two and a half miles within the city. The portion referred to is from Addington railway crossing to the city boundary at the Heathcote river, just beyond Sunnyside Mental Hospital. After leaving the railway crossing, along the northern side for about one-third of the distance, the Riccarton Borough is traversed, until just bevond Whiteleigh avenue the borough boundary is reached, and the Waimairi County is entered. The city occupies the whole of the frontage on the opposite or

southern side from Addington crossing to the Heathcote river banks. “In 1928 the boundary was along the centre of the roadway, and about that time the City Council notified these two bodies that they intended to reconstruct Lincoln road, and that they make arrangements to pay their half share of cost. As a result, the Waimairi Council applied to the Highways Board for a subsidy and was informed that before their application could be definitely considered, the then longitudinal boundary down the centre of the road would have to be rearranged with the City Council to a transverse one acceptable to both parties. This was done. The city went on with and completed its work, and some time afterwards the Waimairi Council obtained the subsidy and went on with their portion from Wrights road to the Heathcote river. This request was made by the Highways Board to obviate the difficulty of paying a subsidy for the reconstruction of the city road, which has. as far as is known, not yet been done, although there is no legal reason against it. “Riccarton did nothing to their portion for years afterwards, and when, after repeated protests, they did do their portion it ivas simply tar-sealed and left at that, so that the result was three different types of construction in the same length of road, the central, or city portion, being in permanent construction. with concrete foundations, with asphalt carpet, the Waimairi portion concrete only, and the Riccarton por+ion ordinarv macadam tar-sealed. “The Citv Council did its part, the centre first, some months after foilowed bv Waimairi. and years after by Riccarton. Water Supply

“With the exception of the Cashmere and Mount Pleasant ridings of the Heathcote County and the borough of Sumner, the area suggested for inclusion in the city has no water supply service. This includes such closely settled areas as the Riccarton Borough and the Fendalton riding of the Waimairi County. Various schemes o supply the districts outside the city are mooted. If all were to be supplied as one water district there would be outstanding difficulties in the linking up of the existing water systems and expense beyond reticulation costs in those areas at present without adequate water. Additional pumping substations would be necessary, but these represent a small cost. Additional reservoir capacity is under consideration by the council at present, and if the whole area were to be catered for then this should be done now. “The water supply rates and chargein Christchurch are outstandingly low and last financial year were as follows: —A residential property connected to the high pressure system whose capital valuation was £666 or below, paid 10s per annum water rate. / similar residential property whose capital valuation was £IOOO, paid 15s per annum water rate. The Fire Brigade area covers some of these outside districts; and the brigade is very often unable to do any real good because <i the lack of an effective high pressure water supply. “This means that there is an abundant supply of excellent water for domestic, industrial, and fire extinguishing purposes, and as far as Rlccarton and those parts of Fendalton adjoining the city are concerned, they could be immediately supplied at tl. 3 pressure directly the necessary reticulation is completed, thus oh.dating the erection of an expensive water tower similar to the one existing at Sydenham which would only give a pressure of about 501b, and sinking bores and pumping therefrom into such a tnw« •. “Sewerage is controffed by the Christchurch Drainage Board which also has the powers of a local authority in its district within and without the citv. Water carriage is used for the reticulation and land disposal by means of the sewage farm. This rne=ns that high pressure water is essential for the efficient'working of their system, and in the outside areas th's does not exist. Storm Drainage

“There & considerable confusion and overlapping between the Drainage Board and the City Council in regard to storm drainage. Many drains are said by the board to belong to the City Council, the board accepting no liability therefor, and the council accepting the board’s statement. For instance, tbe council cleans out its own sumps and at the same time attend* to over 100 others, for which the board pays the council some £143 a year. “There is considerable flood danger from the Heathcote river, and this needs a comprehensive investigation with a survey and report with a view to devising an adequate remedy. For more than 10 years this has been under tbe board's consideration, and conferences between the two bodies have been held, and although they have done quite a good deal of improvements a proper scheme has not yet eventuated. The board has taken advantage of unemployment relief work to make many improvements to th ■ upper reaches of this river, but has not done anywhere near enough to reduce flood risk. Subsoil drainage is another instance of inaction on the part of the board, which has had and is having a serious effect on the public health. Electrical Supply

“The subject of the possible amalgamation of local bodies in and round the city of Christchurch has a bearing upon the administration of electrical supply in the following respects:— “The city is surrounded by a number of local bodies. All of them at first developed their own electric supply. Several have since been absorbed by the city. The result has, however, been that electrical supply in the area has developed as a central system in the city, with a number of self-contained smaller systems round about it. This does not make for overall economy of design. As the city supply has expanded, occasions have arisen when there is definite conflict between the location of a sub-station for purely city purposes, and what would be its most economic location for district purposes had there been no local body boundaries. The stage is unquestionably being reached when some of these neighbouring local bodies must face the reconstruction, and in some cases the adoption of the higher distribution voltage incidental to growth. If all this be done on a parochial local body basis instead of upon a district basis, the anomaly already mentioned will be intensified and perpetuated. There is the further possibility that such localised expenditure may be undertaken, and the work subsequently prove to be of little value as part of a larger layout needed in the”event of amalgamation.

“In all the circumstances, local body amalgamation at an early date would tend to make for economic overall development of electrical supply, as compared with continued localised sectional development. Street Lighting

“In -the district surrounding the city it is inevitable, as matters' now stand, that the main arterial roads approaching the city run through the areas of several local bodies. The method and standard of street lighting may vary with each authority controlling it. Uniformity is not secured, unfortunate comparisons may be established, and effective unity of control, type, and intensity is lacking where it is most needed. There is also the disability that where adjacent local bodies are contiguous with the city, there are apt to be boundary roads which become Cinderellas in regard to street lighting. Neither body is inclined to bear the whole charges, which are normally shared, and if only one body is directly interested as the result of more building in its area it must either bear the whole cost or there is a tendency to neglect the need in the absence of support from the neighbouring body. , , . .. “On most of the city boundaries the anomaly arises of consumers on different sides of the same thoroughfare paying different retail rates for electrical supply. Not only the actual tariff, but conditions of supply and various appliance-selling concessions differ with different authorities, and the resulting confusion and comparisons are not helpful to the cause of electrical development. The same applies to the charges for street lighting. These are the main respects in which amalgamation would 'affect electrical supply. There are, in addition, details and subdivisions of each which make the subject, as far as electrical supply

is concerned, one of far-reaching economic importance. “If the bill is placed on the Statute Book and a scheme of city reorganisation carried out, some of the most manifest advantages accruing would be that there would be only one authority instead of nine as now existing, functioning in the area mentioned for local government, and this omits those bodies such as the Tramways Board, the Drainage Board, and others which have, the statutory powers of a local authority under their special acts within their particular districts over which they have jurisdiction within the area dealt with. It is therefore quite evident that the present central authority, the City Council, with a complete and competent staff under the direction of able and experienced officers could, with a very moderate increase, deal with the proposed extension with every advantage and economy, simplifying procedure and saving considerable time, trouble, and expense as now involved by the continuation of the present cumbrous, wasteful, tedious system of multiple controls

“Amalgamation would bring to many hundreds of electrical consumers both domestic and power the cheap rates of the city with other advantages such as assistance in installing equipment not possible with small enterprise."

Evidence on behalf of the Christchurch Drainage Board was given by Mr H. G. Livingstone, who said that the existing control suited local requirements, and there would riot be any improvement through amalgamation. In reply to the Minister, Mr Livingstone said amalgamation should not be compulsory: but should come from the ratepayers. The committee then took evidence from representatives of drainage boards from various parts of New Zealand. ' *