What we can learn from others and why we want to run a citizens' assembly in Napier
The 2023 DIA report on ‘The Future for Local Government' described why deliberation is important:
‘Local democracy needs strengthening. Voter turnout has decreased over the past few decades and engagement doesn't meet the needs of increasingly diverse communities. Some improvements have been made in recent years but older, Pākehā people remain over-represented in elected members' demographics. Broad citizen participation in local government decision-making is critical, and the use of citizens' assemblies and deliberative and participatory democracy is vital as councils embrace their role as enablers of democracy' (DIA 2023, p.11).
Citizens' Assemblies have been held in Aotearoa New Zealand since 2003, though most have taken place in the past four years.
In Wellington, an assembly was held on water and setting service levels during Long Term Plan (LTP) preparation. Auckland held an assembly on identifying a new water source for the city. In Tairāwhiti, the focus was on land use. Porirua hosted an assembly on climate action, while Whanganui's recent assembly explored the future of the city's pool.
Councils are increasingly turning to Citizens' Assemblies and other forms of deliberative democracy* because traditional consultation methods have often lacked depth. Engagement is frequently reduced to a ‘tick box' exercise. Deliberative approaches, such as wānanga, talanoa, study circles, think tanks, open houses and roadshows, prioritise meaningful dialogue and shared understanding.
At Napier City Council, we are shifting towards dialogue-based models that emphasise quality over quantity. Our goal is to meet people where they are, bringing key issues directly to community. We are working to overcome barriers to participation, especially those created by digital-only forums, limited timeframes or formats that only allow for short responses. We aim to move beyond simply informing the public. We want to open spaces for genuine debate, shared learning and deep discussion, where multiple perspectives shape the outcome.
Citizens' Assemblies do not replace existing governance, leadership or operational mechanisms, they complement them. Recommendations from assemblies sit alongside the work of Ngā Mānukanuka o te Iwi, kāhui pakeke, our disability, safety, seniors and youth advisory groups, and the Council itself. We will continue to use surveys and submissions processes, but Citizens' Assemblies provide an additional platform to hear richer, more nuanced input. They also offer participants a chance to work within Council processes, deepening their understanding of how Council operates.
A Citizens' Assembly works through listening, questioning, testing ideas and deliberation. Its role is to reach consensus on a specific remit and provide a recommendation to Council. From the outset, Council has made a public commitment, the promise to the people, about how that recommendation will be handled.
From assemblies already held in New Zealand, several important lessons are emerging. Chief among them is the role of Te Tiriti o Waitangi and Council's responsibility to uphold partnership with mana whenua. Council's commitment to embedding Te Tiriti o Waitangi into deliberative processes aligns with obligations under the Local Government Act 2002, which requires councils to maintain and improve opportunities for Māori to contribute to decision making. Every assembly so far has engaged with this principle in different ways, whether through co-facilitation with mana whenua, orientation processes grounded in whanaungatanga, or ensuring that 50% of participants are mana whenua or tangata whenua.
Councils and practitioners are still learning how to embed Citizens' Assemblies meaningfully within the New Zealand context. The process remains a work in progress, with conventional models being rethought and adapted.
Case studies also raise important considerations around transparency, privacy and demographic representation. While assemblies often claim that all relevant information will be made available to participants, there are issues of commercial sensitivities. Sessions may be livestreamed or recorded for public access, but this can conflict with participants' need for safe, confidential discussion.
Demographic diversity is another critical factor. To ensure representative input, we must lower barriers not only to participation but also to applying. Outreach must be broad and inclusive, using a variety of communication methods. We must ensure participation reflects Napier's diversity across culture, gender, socio economic status, household type, language, education and employment.
Throughout the process, the Design Group (or Technical Advisory Group) plays a crucial role in maintaining integrity. While officers carry out the work and governors uphold the vision, it is the Design Group that ensures the process stays aligned with its goals. It includes people prepared to challenge assumptions, ask tough questions and guide the process throughout. Sitting on the Design Group for Napier's first Citizens' Assembly are representatives from mana whenua, the multicultural association, disability awareness and youth council.
“Experts say there are a few key ingredients that must be considered for a successful assembly: the citizens selected must, absolutely, represent the population; the question or issue posed must be one that is so complex or so divisive it has not been able to be solved by the usual political processes; the citizens must have control over the sources of information they receive and have time to digest it; and it must be very clear from the outset what a government will do with the recommendations made by the group.”
Case Study 1: Porirua Talanoa and Citizens' Assembly Initiative on climate action
Community leaders in Porirua supported a proposal led by mana whenua Ngāti Toa to establish a citizens' assembly grounded in Te Tiriti o Waitangi and Pacific talanoa traditions. This dual model aimed to provide inclusive, culturally responsive platforms for community dialogue and collective decision-making.
The original Community Leaders Forum (“talanoa”) was first held in December 2022, at Takapūwāhia Marae, with about 80 participants including Ngāti Toa leaders
Following that, the initial online meeting your summary references took place mid‑2023, as part of a series of discussions and planning sessions. By April 17, 2025, the first full citizens' assembly on climate featuring 100 people (50 mana whenua, 50 community members) was convened.
The idea was initiated by Helmut Modlik, CEO of Te Rūnanga o Toa Rangatira, who drew on insights from a 2020 Ministry of Health workshop focused on increasing vaccination rates. He emphasised how the pandemic showed that when systems need to shift quickly, communities and government can work together effectively but also highlighted that current institutions are not set up to deliver universal outcomes.
Participants stressed the importance of inclusive representation particularly for rangatahi (youth) and disabled communities and called for safe, facilitated spaces to discuss critical issues like climate change. One speaker suggested the initiative could serve as a national model for civic engagement across Aotearoa.
The meeting, originally scheduled for Takapūwāhia Marae, was moved online due to illness concerns, yet still demonstrated strong support for advancing the proposal.
Case Study 2: Tairawhiti Citizens' Assembly on land use
The Tairāwhiti Citizens' Assembly, convened by Gisborne District Council and Te Weu Charitable Trust in late 2024, brought together a diverse group of 30-40 locals chosen via civic lottery to deliberate on “a fair way to manage the proposed land use transitions” in the region. Over three full-day hui and two online sessions, participants learned from experts, iwi representatives, and local council staff before co-creating a set of “Calls to Action” urging holistic, climate-resilient land-use change that honours the mauri of the whenua.
Mana whenua were deeply involved: the complex assembly design included cultural input and facilitation through Te Weu Trust, and Māori voices featured prominently in both the learning phase and final recommendations. The process was structured to align with Council's Forestry Plan Change, ensuring that community and Māori perspectives are integrated into official land‑use planning.
https://teweu.zephyrwind.co.nz/
Case Study 3: Wellington Citizens' Assembly of levels of service for three waters
In 2023, Wellington City Council convened a Citizens' Assembly of 42 randomly selected residents to deliberate on the question: “What should be the levels of service for three waters (drinking water, wastewater, stormwater) in Wellington?” The process was designed to reflect Te Tiriti o Waitangi partnership principles and ensure meaningful Māori participation. Historically excluded from urban planning decisions, Māori participants were supported to contribute beyond ceremonial roles, with tikanga Māori embedded throughout the process. This included opening pūrākau, cultural protocols and facilitation practices that upheld mana and enabled equitable deliberation. Māori knowledge and lived experience were treated as essential, shaping both the learning phase and final recommendations.
*Deliberative Democracy: A model that puts conversations, diverse perspectives and understanding at the centre of the decision making (https://inclusiveaotearoa.nz/i-tiki-mai-whakawhiti-te-ra-a-porirua-te-tiriti-based-climate-assembly/)
