S O C I A L S T R AT E G Y F O R PA L M E R S T O N N O R T H
SEPTEMBER 2012
Introduction
4
Role of Local Government
7
Role of Central Government
8
What is Social Well-Being?
11
City Council’s Investment in
Social Infrastructure
13
Increased Social Connectedness
in Neighbourhoods
17
Increased Social Connectedness
of Disadvantaged Communities
21
A Strong and Sustainable
Voluntary Sector
24
Active Citizenship
27
Monitoring
31
Appendix 1 - Comparison of Social Domains
32
Appendix 2 - Comparison of Social Report
and Q
uality of Life Domains and Indicators
34
1
[ contents ]
2
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Executive Summary
Where trust and
social networks
flourish, individuals,
neighbourhoods, and
businesses prosper.
P
[ executive summary ]
almerston North City Council
aspires to create a vibrant, caring,
innovative and sustainable city.
The Social Strategy takes this vision
forward. It is aimed at meeting the
challenges ahead by capitalising on
our significant strengths as a diverse,
inclusive city.
A vibrant, caring, innovative and
sustainable city needs a strong
social infrastructure. A good social
infrastructure attracts human and
financial investment and makes the
city more liveable. Where trust and
social networks flourish, individuals,
neighbourhoods, and businesses
prosper. The City Council has a critical
role in making sure a strong social
infrastructure exists.
Social infrastructure allows social wellbeing to flourish. Health, knowledge
and skills, paid work, economic
standard of living, civil and political
rights, cultural identity, leisure and
recreation, safety, social connectedness
and life satisfaction all contribute
to what is collectively called social
well-being.
This Strategy recognises that central
government, and its agencies, are vital
contributors to social infrastructure
in the City. The City Council, with its
neighbourhood-level
knowledge,
relationships and local provision is wellplaced to know which communities
are in greatest need of support and
can help co-ordinate investments in
particular neighbourhoods.
The Council already invests heavily
in social infrastructure through the
provision of arts, sports facilities,
social housing, libraries, transport
infrastructure and community services.
In addition the Council supports city
safety and has planning and regulatory
functions. The
Social
Strategy
acknowledges these current roles, but
does not duplicate them.
The Strategy has a recurrent theme
of connection. This is because a
connected community is welcoming,
vibrant and adaptable. The Strategy
articulates
a
commitment
for
strengthened social cohesion and to
create a community where people feel
connected with each other and the
place they live.
3
The Strategy identifies four areas that the Council will influence the
most to improve the City’s social infrastructure.
The Council will
take a leadership
role to encourage
partners to invest
collaboratively
in the City’s most
disadvantaged
neighbourhoods.
It will ensure that
its own resources
are targeted
to reduce the
social disconnect
experienced by
disadvantaged
neighbourhoods in
the City.
The Council will
take steps to build
an inclusive city
that celebrates
diversity where
the City’s young,
aged, disabled and
minority ethnic
communities all
take part in the
everyday life of the
City.
The Council will
support the
City’s voluntary
and community
sector to become
stronger and more
sustainable.
The Council will
encourage all
residents to take
up their civil,
political and
social rights and
responsibilities.
vibrant | caring | innovative | sustainable
[ executive summary ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Summary
Executive
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
2
4
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
I ntroduc tion
T
he City Council aspires to
create a City that is vibrant,
caring,
innovative
and
sustainable. It has a goal that the
City is socially sustainable where
people want to live because of its
safe and easy lifestyle and its many
social, cultural and recreational
opportunities.
[ introduction ]
This Social Strategy identifies the
Council’s priorities to ensure that
all Palmerston North residents whether they are young, older, have
a disability, are from a minority ethnic
community, and live in rural or urban
neighbourhoods - can take part in the
everyday life of the City. Investing now
will build a resilient city that can be
enjoyed by all in generations to come.
The 2010 Sustainable City Strategy
identifies that the City needs a strong
social and cultural infrastructure to
sustain itself. It identifies that a social
strategy needs to be developed
covering
Maori
engagement,
safety, a strong community sector,
active citizenship and co-ordinated
infrastructure. The Maori community
and community safety are so significant
for the City that separate strategies now
articulate the priorities in these areas.
The issues of social housing, libraries,
arts, sports and recreation are critical
parts of the social infrastructure within
the City, and the importance of these
issues and services is such that they
also need to be considered separately.
A growing body of research
suggests that where trust and
social networks flourish, individuals,
firms, neighbourhoods, and nations
prosper economically. A good social
infrastructure attracts financial and
human investment, and builds the social
capital which helps mitigate the effects
of socio-economic disadvantage.
Building social infrastructure, therefore,
makes economic sense. It improves
people’s health, reduces crime and
makes places more attractive to live.
This reduces reliance on government,
and hence the tax-payer. Good social
infrastructure increases investment,
makes residents more employable and
creates jobs.
The social infrastructure of cities is as
important as their water, transport
and physical infrastructure. A city
that lacks social cohesion makes the
city less safe, less healthy and less
attractive. The effects of limited social
infrastructure tend to be concentrated
in areas of socio-economic deprivation,
which is typically concentrated at the
neighbourhood level. Most examples
of effective action to promote social
cohesion are therefore focused on
neighbourhoods.
This strategy recognises that the
complexity and intensity of social
issues will grow as the City grows in size
and diversity. Future cities will require
populations that are resilient and
able to cope with crises and sudden
changes. Investing in social cohesion
and social capital will promote inclusive
practices that make diversity a strength
of the City. Many government agencies
are involved in social infrastructure
provision and, in these financially
constrained times, making the best
use of available resources will involve
co-ordination of the many agencies
involved.
This strategy will ensure that the
Council is clear on its investment in the
City’s social infrastructure by utilising
definitions of social well-being from
the Ministry of Social Development
(MSD) and other national frameworks.
The strategy explores the current
role of Palmerston North City Council
and suggests a number of actions for
change.
Role of
Local Government
It is too early to predict what the details
of the reform will involve. What is clear
is that councils will be required to focus
on services that provide public good
and do not duplicate provision made
by central government or the private
sector. In addition, the government
wants central and local government
to work together to provide better
public services. This strategy reflects
this new direction by defining Council’s
priorities and focussing resources on
the issues of most importance to the
City’s future.
The Royal Commission on Auckland
Governance (March 2009)2 was clear
that local government’s core services
have a significant role in building social
capital:
DIA March 2012 Better Local Government
http://auckland.royalcommission.govt.nz
1
2
Even a brief examination of local
government activities identifies how
they can impact on peoples’ wellbeing. The provision of clean drinking
water and waste management services
has an impact on residents’ health. The
planning functions of local government
impact on the physical environment
that people live in. Library services
support access to information and
knowledge. Provision of facilities for
community recreation, arts and sports
contribute to residents’ choices on how
they spend time with friends and family.
Provision of social housing, regulatory
efficiency and District Plans impact
on housing affordability. Councils also
have a statutory obligation to provide
alcohol and gambling policies, with
a direct impact on health. Their role
in car-parking and public transport
impacts on individuals’ physical
health and connection with the wider
community. Local authorities need
residents to participate in decisionmaking, take up their democratic right
to stand for election, and to vote in
local body elections.
Despite the level of investment
that local authorities have in social
infrastructure, it appears that local
authorities in New Zealand have been
reluctant to gain greater leverage
from their investment. Again the Royal
Commission on Auckland Governance
reports that:
"local government
appears to be just starting
to address the social
well-being impacts for its
core ‘place shaping’ and
infrastructure activities."
7
[ role of local government ]
Good quality local
infrastructure,
public services and
regulatory functions
at the least possible
cost to households
and businesses.
"The issue of local
government involvement
in social well-being
has been a matter of
debate. It is clear to the
Commission that local
government is already
inextricably involved. All
council activities (such as
public transport, urban
design, rate setting, roads,
and other infrastructure)
have significant social
consequences. These
functions can and should
be approached with
the explicit intention
of maximising their
contributions to improve
social well-being."
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
T
he
Government
has
announced1 that it intends to
amend the Local Government
Act (2002) to replace references to the
four well-beings (economic, social,
environmental, and cultural) with a
new purpose of providing:
Role of
Central Government
T
9
It is becoming increasingly important
to recognise where collaboration
between central and local government
can be more effective and efficient at
developing social capacity. Again the
Royal Commission makes a noteworthy
point:
"Central government can
be limited in its ability
to target initiatives at
the neighbourhood
level where clusters of
deprivation are located.
Local government, with
neighbourhood-level
knowledge, relationships
and established
initiatives (such as
community development
programmes), can work
with national agencies to
increase the effectiveness
of policy, funding, services
and monitoring in order
to improve social wellbeing for high need
communities."
The DIA has a strong involvement with
the community and voluntary sector.
Its briefing to the incoming Minister
for Community and Voluntary Sector3
notes that:
"Community
organisations are often
better placed than
government agencies
to ensure communities,
including those that have
traditionally been hard to
reach, are well served and
are able to contribute to
New Zealand…"
“The Government invests
significantly in the
community and voluntary
sector. By assisting the
sector to develop its
capacity and capability,
the Government seeks to
leverage off the work of
community organisations
for the benefit of all New
Zealanders."
http://www.dia.govt.nz/pubforms.nsf/URL/BriefingCommunityandVoluntary2011.pdf
3
The DIA also has responsibility for the
Ministry of Ethnic Affairs, which aims to
build a strong and inclusive nation by
promoting social harmony.
The MSD aims to build strong,
healthy families and communities.
It does this by, among other things,
funding community service providers,
supporting youth development and
developing social policy.
A Regional Interagency Network
(RIN) leads the development of a
‘Whole of Government’ approach to
social development within the wider
Manawatu region. It encompasses
over 20 central and local government
agencies concerned with social
development including MSD, ACC,
Police, Housing New Zealand and
DIA. The network ensures alignment,
co-ordination and communication
between the agencies on matters that
are strategically important to the whole
region.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
[ Role of Central Government ]
he
Ministry
of
Social
Development
(MSD),
the
Department of Internal Affairs
(DIA), Police, the Ministries of Health
and Education, Housing New Zealand
and other government agencies,
collectively invest more than the
Council does in the social structure of
the City.
Wh at is
Social Well-being?
11
Those aspects of
life that society
collectively agrees
are important for a
person’s happiness,
quality of life and
welfare.
T
he MSD Social Report4 identifies
a set of indicators that are
collectively used to provide a
picture of progress towards better
social outcomes for New Zealanders.
These are identified in Appendix
1. The indicators are grouped into
ten domains: Health, Knowledge
and Skills, Paid Work, Economic
Standard of Living, Civil and Political
Rights, Cultural Identity, Leisure
and Recreation, Safety, Social
Connectedness and Life Satisfaction.
The Quality of Life Project5 was initiated
in response to growing pressures on
urban communities, concern about the
impacts of urbanisation and the effects
of this on the well-being of residents.
It is a survey of eight cities in New
Zealand that uses 11 domains that are
http://www.socialreport.msd.govt.nz/
http://www.bigcities.govt.nz/report.htm
4
5
similar to the MSD Social Report. The
domains are compared in Appendix 2.
Both of these frameworks collate a
number of indicators under each
domain. The Social Report uses a total
of 57 indicators, while the Quality of
Life Project uses 68 indicators. Many
of the Social Report indicators have a
particular relevance at a national level,
and are affected significantly by central
government activity. The Quality of Life
survey is a tool that uses indicators that
are more relevant to a city. Therefore
the domains may be the same, but the
indicators are different, as can be seen
in Appendix 2.
The Social Report and the Quality of Life
Reports have been used collectively
to inform the development of this
strategy.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
[ what is social well-being? ]
MSD defines social
well-being as:
T
he City Council’s Sustainable
City Strategy identified the
need for a Social Strategy to
articulate its aspirations to improve
social outcomes for residents along
with the Council’s economic and
environmental
aspirations.
The
Council has already done much
to plan its investment in social
infrastructure that will contribute to
the domains defined in the Social
Report.
Table 1 identifies the different strategies
that have a relationship with each of
the domains.
6
Table 1 identifies the strategies and plans that articulate the Council’s aspirations for each of the domains. This strategy does not aim to duplicate these
strategies and plans. The aim of this strategy is to identify the gaps and determine how the Council can do more to improve the social infrastructure in the City.
13
[ city council's investment in social infrastructure ]
I nfrastruc ture
The Council is already
making significant
contributions to the
social infrastructure
of the City. For
example, its provision
of clean drinking
water and its disposal
of waste aid the good
health of its citizens.
The provision of
swimming pools,
sport facilities, parks,
reserves and theatres
are fundamental
to the leisure and
recreation ‘offer’ the
City makes to its
residents.6
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Social
City Council’s Investment in
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Domain
Council’s Strategic Response
Health
Asset Management Plan
The City Council and Community
Services Council jointly host a Social
Well-Being Forum that has a role in
identifying the biggest issues facing
the sector. In 2011 it identified the
following as the key issues:
Water Conservation Plan
•
Dealing with changes to
government services, resourcing
aims and criteria
•
Affordable
or
short-term
emergency accommodation that
is safe and healthy
•
Cost of living increases placing
increased pressure on low income
earners and families
•
Lack of disposable income
leading to increased isolation and
limiting community participation
opportunities
Waste Minimisation Plan
Active Recreation Strategy
Manawatu Active Transport Strategy
Cycle Action Plan
Domestic Energy Use Strategy
Sanitary Assessment
Knowledge and skills
Library Strategic Plan
Maori Community Strategy
Paid work / economic development
Economic Well-being Strategy
Economic standard of living
Social Housing Strategy
[ city council's investment in social infrastructure ]
Economic Well-being Strategy
People living in safe, stable home
environments
•
The ability of the sector to be
heard by government agencies, to
build its capacity and to respond
collectively to joint issues that
affect the sector
• Increased social
connectedness
of disadvantaged
communities
•
Affordable, accessible, effective
and relevant public transport that
supports disadvantaged people
accessing services
• A strong and
sustainable voluntary
sector
•
Getting services to clients and
keeping them engaged
• Active citizenship
Community Engagement Strategy
Safe City Strategy
Cultural identity
Maori Community Strategy
Arts Strategy
Leisure and recreation
Active Recreation Strategy
Arts Strategy
Cycle Action Plan
Social connectedness
Arts Strategy
This analysis suggests that
the key focus areas for the
Council will be:
•
Maori Community Strategy
Safety
This neighbourhood well-being is
heavily influenced by the level of social
capital in the area. Social capital can be
described as the networks of friendship,
kinship
and
acquaintanceship
within a neighbourhood, or the
connectedness within a community.
Social connectedness is one of the ten
domains identified in the Social Report.
• Increased social
connectedness in
neighbourhoods
District Plan
Civil and political rights
the Police and Palmerston North City
Council.7 This research identified that
the well-being of local neighbourhoods
is a key indicator to the economic and
social health of the wider city.
Research into Palmerston North
neighbourhoods was undertaken as
part of a partnership project between
The strategy examines each of these
aspirations individually, although it
is recognised that there are strong
linkages between each of them.
Events & Festivals Strategy
Safe City Strategy
Life satisfaction
7
B. Calkin. November 2011 Measuring Neighbourhood Well-being in Palmerston North Discussion Paper.
15
[ city council's investment in social infrastructure ]
Table 1: Domains and Council’s Strategic Response
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
14
Social
Increased Connectedness
in Neighbourhoods
Three linked qualities appear with
some regularity in research into
communal life; tolerance, reciprocity
and trust.8 Interaction enables people
to build communities, to commit
themselves to each other, and to knit
the social fabric. Some research even
suggests that civic connections rival
marriage and affluence as predictors of
life happiness.
Early
community
development
practice focussed on enhancing the
well-being of individual communities.
However, it is now becoming more
widely recognised that interaction
and bridging between different
communities is also a critical
component of building social capital
in cities.
Palmerston North neighbourhoods are
ethnically, socially and economically
diverse and experience different
degrees of social cohesion and social
capital. Some have better access to
services and facilities than others.
Research9 by Senior Sergeant Brett
Calkin from Palmerston North Police
identified that at a local level there
are several neighbourhoods that
experience a combination of indicators
that point to low levels of social
cohesion and social capital. These
indicators include income, perceptions
of safety, employment and levels
of volunteering. Central, Highbury,
Awapuni North and Roslyn were
found to be the neighbourhoods most
affected by these issues. Each of these
neighbourhoods also tended to have
a high level of social disorganisation
when measured in terms of crime,
http://www.infed.org/community/community.htm
B. Calkin, November 2011 Measuring Neighbourhood Well-being in Palmerston North Discussion Paper
8
9
graffiti, juvenile complaints and
domestic disputes. These factors point
to these communities being less
resilient and less able to cope with
crises or change.
West End, Papaioea, Takaro and
Westbrook were also identified as
lacking in social infrastructure. However
these neighbourhoods did not feature
as prominently on the list of combined
social and economic disadvantage and
some exhibited signs of improving
social capital.
Poverty can be a
significant contributor to
social exclusion however
it is rarely the only one.
The Council has adopted
an Economic Well-being
Strategy which aims to
improve the wealth of
everyone in the City.
Delivering the Economic
Well-being Strategy will
be the most effective
way for Council to reduce
financial poverty, so
this strategy focusses
on addressing the other
barriers that impact
on a person’s ability to
participate.
Community centres are often provided
to help build social connections. The
Council operates community centres at
Awapuni, Westbrook, Highbury, Milson,
Kelvin Grove and Rangiora plus the
Ashhurst Village Valley Centre and the
Community Leisure Centre. There have
been no major changes to the way the
Centres have been run over the last
25 years until recently. A survey of 348
city residents showed that over half of
17
[ increased social connectedness in neighbourhoods ]
A
connected community is
welcoming,
vibrant
and
adaptable.
A
connected
neighbourhood strengthens social
cohesion and is a community where
people feel connected with each
other and the place they live.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Many different pieces
of research shows
that communities
where people know
their neighbours’
names, where
residents are involved
in the everyday
activities of their
neighbourhood and
where residents are
connected to services
and facilities, are
communities that are
safer, more resilient
and more responsive
to future challenges.
deliver. Partnerships can be encouraged
by targeting the Council’s community
funding resources and its contracts
with social and recreational agencies
to deliver in community centres. If
effective partnerships with local or
national agencies cannot be developed
the Council should find better ways to
invest in communities of need.
The Council has a role to play in
promoting lifelong learning. This
can principally be achieved through
its library services. However, the
provision of community centres,
support for volunteering, and engaging
communities
in
neighbourhood
activities all offer opportunities
to engage residents in learning
opportunities.
The District Plan Review should
ensure that future communities
have the physical infrastructure
for social connectivity, including
pedestrian activity and adequate
space for local recreation and leisure.
Neighbourhoods should be engaged
in any redevelopment plans for their
communities and community planning
techniques should be adopted to
ensure good engagement.
Council priorities
[ increased social connectedness in neighbourhoods ]
the respondents had not used any of
the Council’s facilities, and, with the
exception of the Community Leisure
Centre, no centre had been used in
the previous year by more than 10% of
respondents. Westbrook Community
Centre is a recent example of progress.
The management of the facility has
passed to an independent group to
ensure that the facility is responsive to
the cultural needs of the local Pasifika
communities.
activity and engagement. A sustainable
neighbourhood is laid out to make
it easy to walk to local shops and
facilities. Ensuring neighbourhoods are
connected for pedestrian activity, have
adequate space for local recreation
and leisure, and are flexible for future
change, all contribute to building
communities that people use. These
planning solutions can be enhanced
by the introduction of community
place-making initiatives.
Other community infrastructure can
contribute to the social connection in
neighbourhoods. Council facilities such
as libraries, reserves, neighbourhood
parks, bus shelters, walkways and
cycle paths can contribute to residents
interacting with each other. There are
numerous opportunities, outside of
Council’s control, provided by schools,
places of worship, sports clubs, shops,
health centres and many others.
Connectivity is also
improved by access
to information. Local
newspapers and the
Council’s Square Circular
are useful tools to keep
residents informed of
community and Council
activities.
The Urban Design Strategy and the
District Plan are tools to ensure that
the physical make-up of the City’s
neighbourhoods enable community
Community noticeboards provide
an opportunity for neighbourhood
activities to be promoted and
publicised. In the future it is likely that
the availability of broadband, and the
ability to engage with social media,
will become more important in how
information is transferred.
Change being sought
Actions
What success will look like
Greater equity
in quality of
life in different
neighbourhoods
Council works proactively in the
neighbourhoods
facing
greatest
disadvantage to establish partnerships
aimed at reducing disadvantage
Residents feel safer
Resources are targeted at neighbourhoods
facing greatest disadvantage
More people take part in community
activities in their local neighbourhood
Social and recreational agencies deliver
activities in targeted neighbourhoods
Council can show clearly their investment in
disadvantaged neighbourhoods
Lifelong learning opportunities are enabled
through neighbourhood activities
More people report that they trust people in
their neighbourhood
Partnerships are developed to enhance
community centre use and involvement of
local people
Community centres are well patronised and
valued by local residents
Analysis
The Council needs to take a leadership
role and work pro-actively to develop
partnerships aimed at reducing the
concentrated levels of disadvantage
occurring in some of the City’s
neighbourhoods. In the short-term
the Council needs to identify how
effectively its own resources can be
used to improve the quality of life in
the most disadvantaged communities.
Over the long-term the Council needs
to consider how its service provision
is responding to local needs identified
in different neighbourhoods, rather
than applying a ‘one-size fits all' model.
There are numerous community
planning models available that can be
applied.
Community centres
are key facilities in
local communities
Community centres that cannot operate
under a partnership arrangement will be
closed
The unique
characteristics of
neighbourhoods are
reflected in long term
planning processes
Urban Design Strategy is implemented
Neighbourhood planning model is identified
and used
Place-making happens in disadvantaged
neighbourhoods
More residents spend time outdoors in their
own communities and neighbourhoods
Neighbourhoods look more attractive
19
[ increased social connectedness in neighbourhoods ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
The Council needs to establish a clear
rationale for retaining the delivery of
its community centres. Community
centres need to be seen as part of a wider
inventory of social infrastructure within
a neighbourhood. If the centres do not
add value to the local community, the
resources can be better utilised. Where
they are necessary, the centres should
be vibrant hubs of community activity,
well patronised and be valued by their
local community. Partnership working
is the most realistic way to deliver
services and activities that are most
relevant to the community, responsive
to new ideas and are cost-effective to
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
18
Social
Increased Connectedness
of Disadvantaged Communities
A new study - the first of its kind to
investigate the play habits of New
Zealand children aged 8 - 12 years old
- reveals that nearly half (46%) of New
Zealand children are not playing every
day.10
Council’s youth provision includes
the Youth Space and library. It also
supports
programmes
including
Youthline, Youth One Stop Shop, the
Highbury Whanau Centre and the
Trades Mentoring programme.
The Mayor’s Youth Sector Taskforce
Steering Group (YSTSG) has developed
collaborative action plans on five focus
areas -education, employment, crime,
safety and health. Youth unemployment
has been a major concern, with the
number of unemployed young people
rising sharply from 2008 to 2011, but
there has been a decrease in the last
year. However the 2012 level is still
two-and-a-half times higher than the
2008 level.
At the 2006 Census, the over 65-years
age group made up around 11.5% of
the local population (9,000 people).
This is slightly below the overall
New Zealand figure of 12.3%. This is
expected to grow to 18.5% of the city
population by 2031.
There are a number of agencies working
with the aged sector, principally in the
health and social care sectors. People
aged over 65-years and on a low
income are the number one priority
for tenancy of Council-managed social
housing units. The Council currently
houses 220 older people through this
programme. The Council has previously
supported agencies through its
community funding policy including
Age Concern Manawatu and Senior
Citizens Association Palmerston North.
It is difficult to ascertain how many
people in the City have a disability.
Throughout most of 2011, 2.4% of
the city population were in receipt of
the Invalid’s Benefit. With only 1.9%
of the national population share, this
suggests that the City may have more
people with a disability than would
be expected. There are a significant
number of agencies in the City that
support people with a disability. In
2010/11 the Council’s Major Grants
Fund awarded 28% of its social sector
funding to health and disability
agencies. In addition, the Council
currently funds the Disabled Persons
Assembly to act as a co-ordinating
body for this sector. The Council’s
current social housing policy gives
second priority to persons under the
age of 65 with a disability.
Being healthy enhances people’s ability
to take part in everyday community
life and build social connection. The
Council supports healthy living through
various services. Water distribution
http://www.youtube.com/watch?v=4X-PctJxIbw&feature=BFa&list=UUZLeBkaCMdBD--vH1C86jKQ&lf=plcp
10
21
[ increased social connectedness of disadvantaged communities ]
At the 2006 Census the ethnic makeup of the 0-14 years age group was
significantly different to that of the
Palmerston North population overall.
More Palmerston North children
identify as Maori (27%) or Pacific (7%)
compared to the Palmerston North
population overall (16% and 4%
respectively).
There is strong
evidence that access
to wide ranging
play opportunities
contributes significantly
to young people’s
social development as
well as their physical
development. No local
data exists on local
participation levels but
the majority of the City’s
households are within 500
metres walk of a children’s
playground, and this level
of access is an agreed
target for future city
development.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
A
t the 2006 Census there were
15,700 children aged 0-14
years living in Palmerston
North, approximately 20% of the city
population. This figure is projected
to grow to 16,400 by 2021, and then
decline to 16,000 by 2031.
[ increased social connectedness of disadvantaged communities ]
There is anecdotal
evidence from the
health sector that there
is a growing group of
people suffering from
mental health issues
and that this is likely to
increase. Although the
Council offers backing to
this sector the greatest
support comes from the
Ministry of Health and
MSD.
In Palmerston North City nearly 13,000
people were born overseas at the
2006 Census, this is only 17% of the
City’s population compared to the
national average of 23%. The majority
of overseas born residents living in
Palmerston North are in the 20-24 years
age group.
There are approximately 850 former
refugees in the City, from Bhutan,
Cambodia, Burma, the Congo and
Rwanda. This is expected to increase in
the short-to-medium term as the City
accommodates its share of refugees
who would normally have been
located in Christchurch.
11
There are 1,125 people who identify
as Pasifika in Palmerston North. It is
projected that this will rise by 63% by
2021. Partnership work has resulted
in developing the Westbrook centre
to support cultural activities for this
community.
At a national level research undertaken
for the Human Rights Commission has
consistently shown Asian people to be
perceived as the most discriminated
against.11 This community is projected
to be the fastest growing community
in the City over the next 20 years.
Palmerston North also has an unusual
combination of residents that have
the potential to impact negatively on
the feelings of connectivity in the City.
The City is home to many staff that
are based in Linton Army Camp and
Ohakea Air Base that have the potential
to be transient. In addition, there are
many New Zealand and international
students who live in the City for a
relatively short space of time.
Analysis
Children and young people are at
school for little over half of their year,
so there is a great need for them to be
able to access places where they can
be with their friends and whanau. With
a young population, and a political
desire to be the ‘best place to raise
a family’ there is strong evidence to
suggest that the Council should seek to
strengthen the work it has done with
young people in Palmerston North. Its
commitments to play areas and youth
playgrounds should be complemented
by implementing high standards of
design and maintenance. Support for
the Youth Space and the wider youth
sector has benefits including improved
social cohesion and community safety.
Council is in a position to explore how
Human Rights Commission, 2011 Tui tui tuituia Race Relations in 2011
it can contribute to reducing youth
unemployment in the City.
With a growing older population, and
a growing sector supporting them,
there is a need for the Council to
ensure that its facilities and services
are suitable for older people and their
diverse needs. Ensuring the support
sector is co-ordinated is one way
that this can be achieved. The Active
Recreation Strategy is well-placed
to ensure that the Council’s leisure
provision is able to provide effective
recreational opportunities for this part
of the community. A planned review of
the Social Housing Strategy will identify
how the Council can most effectively
support older people with housing
needs.
Support for the disability
sector is principally an
issue for the Ministries
of Health and Social
Development. However,
the Council has an
important role in ensuring
this community can get
around the City easily.
The Council must ensure
that it can access the
views of this community
to ensure that its servicesparticularly access and
transport, leisure and
community development
- are fit for purpose.
The City has an increasingly diverse
population. The future City will need
to ensure that different communities
have the opportunity to celebrate their
own culture. It will also need to ensure
that there is bridging between different
communities. If the City grows
in line with projections there will be
many more new settlers who need to
feel welcome and part of the City. If
the national experience of the Asian
community is duplicated at a local level
the consequence will be a sizeable
community who are disconnected
from everyday community life, with
potential implications for community
harmony, lost economic opportunities
and decreasing migration into the City.
The growing population diversity
will create greater future demand for
community facilities that allow ethnic
and religious communities to meet,
celebrate and share their cultural
heritage. Over the long-term the City
Council should support the creation
of a network of multi-use facilities
that will allow all the City’s different
communities appropriate space to
share, celebrate and experience their
traditions.
The City will benefit from ensuring
the City is welcoming to students and
military staff who are stationed in and
around the region. Encouraging these
groups of people to make the City their
long-term home will help keep the
population young and bring new ideas
and skills to the community and to the
economy.
Council priorities
Change being sought
Actions
What success will look like
Children and young
people feel part of the
City
Deliver play spaces as defined in the Active
Recreation Strategy
Public open spaces are well-used by children,
young people and their whanau
Investigate ways the Council can contribute
to increasing youth employment in the City
The City Council has a greater number of
young people working in it
Older people are well
connected and able to
take part in everyday
community activity
Support a forum for older people to ensure
views of this sector are understood
Older people report that Council services are
appropriate for their needs
Ensure Active Recreation Strategy, Active
Transport Strategy and Social Housing
Strategy consider needs of older people
Social Housing Strategy identifies how the
City can provide housing for older people on
low incomes
Implement Domestic Energy Use Strategy
People with a
disability are well
connected and able to
take part in everyday
community activity
Support a forum for people with a disability
to ensure views of this sector are understood
Settlers and refugees
feel welcome in the
City
Encourage developments at the Westbrook
Centre supporting the Pasifika community
Settlers and migrants report that they are
welcome in the City
Community funding is targeted to support
communities celebrating their cultures and
collaboration between cultures
There are many festivals and local activities
that allow communities the opportunity to
express their culture
People with a disability report that Council
services are appropriate for their needs
Ensure Active Recreation Strategy and Social
Housing Strategy consider needs of people
with a disability
Work proactively with the NZDF to ensure
families are integrated into community life
in the City
23
[ increased social connectedness of disadvantaged communities ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
and disposal, waste collection, active
recreation facilities and active transport
options all contribute to creating a
healthy community. According to the
2008 New Zealand Housing Survey,
37% of respondents from Palmerston
North thought their homes caused
health problems (due to being damp
and cold) compared to the national
figure of 26%. The City Council has
adopted a Domestic Energy Use
Strategy which encourages people to
make their houses more fuel efficient.
This will also have an impact on
improving people’s health.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
22
A Strong and Sustainable
Voluntary Sector
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
The City has a strong voluntary sector.
It will be good for the City socially
and economically if the sector grows
in capacity and capability. Indicators
suggest that collaboration will be the
most effective way to increase the
sector in these constrained economic
times.
Working in partnership
needs to be a feature
of central and local
government agencies that
are involved in supporting
this sector. This will build
on existing good work
that already occurs.
[ a strong and sustainable voluntary sector ]
The ability of the
voluntary sector to
develop and grow is
vital to the well-being
of any community.
V
olunteering
affords
the
opportunity for people to be
involved, return something to
the community, and gain experience,
skills and confidence. It gives people
the chance to meet each other,
and it is a vehicle for individuals to
contribute to the social fabric of
their community. The possibilities
are many and varied, and include
schools, local environmental activity,
caring for the elderly, sports clubs
and supporting emergency services.
National agencies such as MSD, DIA
and the Charities Commission report
that Palmerston North’s voluntary
sector is very strong. The 2009 NotFor-Profit Sector Profile identified
that the City has nearly 1800 not-forprofit institutions, with an economic
contribution of $105 million to the
local GDP.
This sector brings money into the City
that supports economic well-being
as well as social infrastructure. For
example, in 2011 one MSD scheme
funded Palmerston North agencies
3.4% of the total funding pool available,
when the City only has 1.9% of the
nation’s population.
Much of the support for this sector
comes through central government,
particularly MSD and DIA. They provide
support through grants, advice and
information.
The City Council also provides
assistance to the voluntary and
community sector. In 2010/11 the
Council supported more than 220
not-for-profit
agencies
through
a combination of grants, rates
remissions, fees-for-service and rental
subsidies. The City Council agreed in
June 2012 to change from providing
grants to contracting the voluntary
and community sector to deliver
outcomes aligned to the Council’s
strategic aspirations.
The Council provides a number of
facilities that enhance the voluntary
and community sector across the
arts, sports, environmental and social
sectors. This includes community
centres, arts and sports facilities. The
Council opened Community House
in August 2011. This is home to 15
community and not-for-profit agencies.
A key outcome for developing this
facility was to encourage groups to
work collaboratively
On the face of it the City is well placed
to have a very active voluntary sector.
It has populations that are well-known
for volunteering in their community;
members of the Defence Force and
other arms of the public service,
students, and a growing retired
community are significant parts of the
community.
The Community Funding Policy
identifies that the Council needs
to develop stronger partnership
arrangements. This will move away
from traditional grant-funding to
contracting agencies to deliver
outcomes for the Council. This will
help build the capacity of the sector,
equipping it better to attract even
more resources to the City and deliver
better outcomes for the people of the
City.
There are big challenges ahead
for the sector including ensuring
that it continues to adapt to meet
changing social patterns, finding
new approaches to support the City’s
communities and attracting resources
in difficult economic times. One
way to increase the effectiveness of
the sector will be to promote social
enterprise as a valuable tool for
agencies to become more sustainable.
It also needs to be recognised that
the voluntary and community sector
makes a significant contribution to the
City’s vitality. Finding ways to celebrate
their successes and promote their
contributions will encourage those
involved and attract new people to the
sector.
The Council should take advantage
of campaigns and programmes that
celebrate and promote the value of
volunteering. These include activities
such as Volunteer Awareness Week,
Neighbours Day Aotearoa, International
Day of the Volunteer, Massey University
Volunteer Expo and Trustpower
Community Awards.
International, national and local
changes to the voluntary and
community sector, coping with
tightening resources, responding to
more diverse needs and working with
a changing demographic will require
quality leadership from within the
sector. Investing resources in leadership
will have a long-term benefit for the
City.
Council priorities
Change being sought
Actions
What success will look like
Collaboration in
the voluntary and
community sector
Utilise Community Funding Policy to
encourage joint working
More joint projects funded
Effective partnerships
with central
government
Work in partnership with DIA, MoH and MSD
to advocate for resources in disadvantaged
neighbourhoods
Co-ordinated
action
neighbourhoods and
communities.
Voluntary and
community sector
becomes more
resourceful and
adaptable
New streams of funding are brought into the
City
More funding agencies are involved in the
City, more projects receive joint funding
Social enterprise
supported
Growth in social enterprise
delivering services in the City
Sector works proactively with Council in
delivering joint outcomes
in
with
particular
particular
Jointly funded projects take place
is
encouraged
Leadership initiatives are supported
Successes are celebrated
and
agencies
Sector more able to cope with change
25
[ a strong and sustainable voluntary sector ]
Analysis
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
24
Active
T
http://www.nzherald.co.nz/nz/news/article.cfm?c_id=1&objectid=10680766
[ active citizenship ]
Voter turnout is thought to reflect
the confidence the population has in
political institutions, the importance
they attach to them and the extent
they feel their participation can
make a difference. Research by Local
Government New Zealand (LGNZ)
identified that there were a number
of reasons that impacted on voter
behaviour. These were the relevance of
the election; the levels of knowledge
about elections and candidates, and
the influence of electors on election
outcomes. The City Council elections
have received about a 50% turnout
over the last two decades, as shown
in Table 3. DIA categorises this as a
medium to low turnout.
Active citizens are involved in
discussion and decisions that affect
them. The Council is required by
the Local Government Act to give
consideration to the views and
preferences of persons likely to be
affected by, or to have an interest in,
the matter. The Council also has a
Community Engagement Policy that
gives further guidance on this matter.
12
27
his is demonstrated through
engagement
in
civic
institutions such as sitting on
committees and governing bodies,
taking part in actions to support
community development, engaging
in local and national elections, and
responding to consultations and
debates on local issues. The Social
Report identifies civil and political
rights as a key domain.
Associate Professor Christine Cheyne,
from Massey University’s School of
People, Environment and Planning, was
reported 12 as saying that:
"Overall figures indicate
that the number of people
voting at city, district
and regional council
level will continue to
decline. In many areas,
election campaigns are
not reaching enough
people, particularly young
people, Maori and many
other ethnic communities,
and there is generally
poor understanding of
the significance of local
authority decisions."
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
The possession of
civil, political and
social rights and
responsibilities
is considered as
a fundamental
requirement of
any sustainable
community.
Council elections are not the only
way that people can become active
citizens. Volunteering to be on the
management group of charities,
trusts and community organisations
is an important way that people
contribute. The Council supports
a number of organisations such as
Council Controlled Organisations
(CCO) with Boards of Trustees that are
open to public appointment. Although
there is no statistical evidence,
many organisations report that they
have difficulty in recruiting skilled
and experienced people to act in a
governance role for their organisation.
[ active citizenship ]
Settlers and migrants are an obvious
group of people that face particular
challenges in becoming active citizens.
These challenges may include language
barriers, unfamiliarity with type of
voting, lack of access to networks, or
knowledge of city institutions. The
Council runs welcoming ceremonies
for new migrants and holds citizenship
ceremonies when people become
New Zealand citizens. These help
people feel welcome in the City and
encourage them to feel part of the
wider community.
The Youth Council is a group of young
people aged between 12 and 18-years
that acts as an advisory group for
the City Council. Their views were
instrumental in achieving the Youth
Space and their views have influenced
other decisions by the Council.
Analysis
Palmerston North, like other western
democracies, has a growing disconnect
between citizens and governance
bodies. A sustainable city will need to
reactivate the concept of citizenship.
Achieving this will be aided by the
Council continuing to demonstrate
accountability,
transparency
and
openness. It will also be important
for the Council to increase the sense
of ownership people have of its
services, facilities and achievements.
One way to achieve this could be the
development of a membership card for
Council leisure and recreation facilities
that is available to all rate payers. This
will ensure facility users know that
their facilities are funded by the City
Council, will allow Council to engage
with service users (and non-users)
more effectively and improve customer
relationships with the facilities. This
could operate simply as an extension
of the City Library membership, could
be a simple card system or involve a
variety of delivery partners.
All modern cities have diverse
communities and this diversity needs
to be encouraged and celebrated.
Palmerston North civic structures need
to recognise the City’s diversity and
reach out to new communities. Council
can influence the composition of the
Boards of its arm’s length organisations.
It should ensure that these Boards
reflect the demographic composition
of the community.
Palmerston North has a young
population. Listening to the views of
young people is important to ensure
that services are delivered that are
appropriate to their needs. Having the
Youth Council is an important conduit
to make that happen, but more
could be done to acknowledge the
importance of its role.
No single process or structure can
deliver the voice of young people. To
mitigate this, effective partnerships
need to be developed between service
providers and young people. These
partnerships need to consider the
needs of young people who may also
be disadvantaged by geography, or
discriminatory attitudes about their
ethnicity, disability, gender or sexuality.
29
Table 4: Voter turnout in Palmerston North Council elections
Year
1989
1992
1995
1998
2001
2004
2007
2010
51
48
48
54
50
50
46
43
% turnout
Council priorities
Change being sought
Actions
What success will look like
People feel more
engaged with the
Council and its
activities
Council investigates a system to promote a
membership-type card for all its recreation
and cultural facilities
Residents are more aware of Council’s role in
promoting recreation and cultural facilities
in the City
Effective partnerships
are created between
Council and local
neighbourhoods
Council works proactively in the
neighbourhoods
facing
greatest
disadvantage to establish partnerships
More people take part in community
activities in their local neighbourhood
Collectively, Boards
of CCOs reflect the
diversity of the
community they
represent, whilst
retaining the required
skills base
Monitor Board’s succession plans
Boards of CCOs reflect the wide diversity of
the City’s population
Decision-making
processes reflect the
views of young people
Youth Council views are integrated into
Council decision-making
Presentations are made to Youth Council on
relevant issues
Service deliverers build effective partnerships
with young people
Committee and Management Team reports
reflect young people’s views
[ active citizenship ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
In recent years the City Council
has been supporting the Local
Government New Zealand initiative
‘Kids Voting’ which is focused on
Year Nine students. The City Council
facilitates local contacts for the
national programme that targets
national and local body elections.
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
28
A number of outcome
and output indicators
will be used to
monitor and report
on progress of the
Strategy on a threeyearly, annual and
quarterly basis. A
range of indicators
will be monitored to
identify the success
of the Strategy.
On a 3 yearly
basis the
following will
be identified:
On a annual
basis the
following will
be identified:
On a quarterly
basis the
following will
be identified:
The City’s social
capital.
The number and
value of contracts
the Council enters
into with the
voluntary and
community sector
to deliver services
in disadvantaged
neighbourhoods.
The number of
social, recreational
and cultural
projects delivered
by Council and its
partners in the three
most disadvantaged
neighbourhoods
in the City.
The number and
value of contracts
entered into with
the voluntary and
community sector
to deliver services
to disadvantaged
groups.
The number
and range of
programmes and
projects delivered
for specific
communities
in the City.
The perception of
involvement in the
City experienced
by different
communities
in the City.
Levels of voting in
local and national
elections.
Representation
on Boards of the
Council’s CCOs.
The development
and progress of
neighbourhoodbased partnerships.
Collection of all this data will allow
progress against the outcomes to be
measured. There is little benchmarking
data in place at the moment. Once the
data has been collected and the pace
of change identified it will be feasible
to develop more specific targets for
change.
The level of
involvement
with Council
decision-making
felt by forums
that represent
young people,
the disabled, the
elderly and the
social sector.
The number and
range of Council
programmes
that have been
discussed with
forums representing
youth, people
with disabilities
and the elderly.
[ monitoring ]
31
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
onitorin
This Strategy will
formally be reviewed
within five years.
However, it will
be continually
monitored and
adapted as changes
occur.
Social Report Domains
Quality of Life Domains
Health
Health
Knowledge and skills
Knowledge and skills
Paid work
Economic development
Economic standard of living
Economic standard of living
Civil and political rights
Civil and political rights
Social connectedness
Social connectedness
Safety
Safety
Cultural identity
Leisure and recreation
[ appendix 1 ]
Life satisfaction
Natural environment
People
Housing
Built environment
[ appendix 1 ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Comparison of Social Domains
33
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
32
APPENDIX 1
35
[ appendix 2 ]
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
Comparison of Social Report and Quality of
Life Domains and Indicators
Domain
Social Report Indicators
Quality of Life Indicators
Domain
Social Report Indicators
Quality of Life Indicators
Health
Health expectancy
Life expectancy
Te Tiriti o Waitangi/ Treaty of Waitangi
Low birth weight babies
Civil and
political rights
Voter turnout
Life expectancy
Suicide
Infant mortality
Cigarette smoking
Teenage parents
Representation
government
Obesity
Communicable diseases
Perceived discrimination
Potentially hazardous drinking
Access to general practitioners
Perceived corruption
Representation on local decision-making
bodies
Mental health and emotional wellbeing
[ appendix 2 ]
Knowledge and skills
ethnic
groups
in
Community involvement
decision-making
Assault mortality
Perceptions of safety
Criminal victimisation
Child safety
Self-reported health status
Fear of crime
Injuries
Recreation and leisure
Road casualties
Road safety
Participation in early childhood education
Workplace safety
School leavers with higher qualifications
School participation
Crime levels
Participation in tertiary education
Qualification levels
attainment
of
the
adult
Cultural identity
Skill and job match
Local content programming on New
Zealand television
Career training
Maori language speakers
Adult literacy skills in English
Maori well-being
Language retention
Unemployment
Economic growth
Employment
Employment
Participation in physical activity
Median hourly earnings
Research and development
Participation in arts and cultural activities
Work-related injury claims
Local businesses
Leisure and recreation
Social connectedness
Satisfaction with leisure time
Telephone and internet access in the home
Overall quality of life
Contact with family and friends
Diversity and identity
Tourism
Contact between young people and their
parents
Community strength and spirit
Skilled migrants
Trust in others
Arts and culture
Market Incomes per person
Income
Loneliness
Income inequality
Work/life balance
Population with low incomes
Cost of living
Housing affordability
Social deprivation
Household crowding
Net worth
Non-residential building consents
Voluntary work
Life satisfaction
Overall life satisfaction
in
council
Voter turnout
Modifiable risk factors
Retail sales
Economic standard of
living
of
Participation in early childhood education
Educational
population
Paid work / economic
development
Safety
Representation of women in government
Access to telecommunications
S O C I A L S T R AT E G Y F O R PA L M E R S TO N N O R T H
34
APPENDIX 2
Palmerston North City Council
Private Bag 11034, The Square, Palmerston North | Phone: 356 8199 | Website: www.pncc.govt.nz