Copyright is owned by the Author of the thesis. Permission is given for a copy to be downloaded by an individual for the purpose of research and private study only. The thesis may not be reproduced elsewhere without the permission of the Author. Asian Community Needs and Participation in the New Zealand Local Democracy A dissertation presented in partial fulfilment of the requirements for a Master of Resource and Environmental Planning Massey University New Zealand Panjama Ampanthong_ 2002 Abstract The increased cultural diversity of the New Zealand population has generated challenges for local government. Ethnic groups have different needs and expectations of the services local government provides. Section 37K of the Local Government Act (1974) states that local government has an important role in providing for the wellbeing of local communities. As local communities today increasingly consist of diverse ethnic groups, local government has the challenge of meeting community needs in more difficult social, economic and cultural areas. As well, the local government also has responsibilities to provide avenues to accommodate the input of these increasingly diverse groups. The research presented in this dissertation examines (1) whether the needs of the Asian community are being met, and (2) what is the pattern of Asian participation in the local government democracy. Palmerston North City Council was used as a case study. A questionnaire survey was conducted to collect information from the resident Asian population. The findings of the research indicate that the majority of Asians felt their needs were being met. Though the overall assessment of the Council's services was positive, some peopie made suggestions on possibie ways that the Council should improve its services to the Asian community. These suggestions include promoting cultural awareness, encouraging cultural activities, providing more English language classes and enhancing employment opportunities for new migrants. The research also showed that the number of Asian people participating in the Council decision making processes is low. The survey results indicated that this is due to limited understanding of the participation process and lack of awareness of the opportunities the citizens have for participating in local affairs. ii Acknowledgements I would like to thank the following persons for their contribution to this dissertation. • Dr Johanna Rosier for her supervision. • Vicky Forgie for her invaluable guidance, suggestions and proof reading. • Dr Murray Patterson for his help in construction of the survey. • Garry McDonald for his constant support, enthusiasm and love. I am also grateful to all of the people who took part in answering the questionnaire, without their efforts this dissertation would not have been possible. iii Table of Contents ABSTRACT ................................................................................................................................... II ACKNOWLEDGEMENTS ............................................................................................................ Ill TABLE OF CONTENTS ............................................................................................................... IV LIST OF FIGURES ........................................................................................................................ V LIST OF TABLES ......................................................................................................................... VI CHAPTER ONE ............................................................................................................................. 1 INTRODUCTION ........................................................................................................................... 1 1.1 PLANNING AND MULTICULTURAL COMMUNITIES ..... ... ...... ....... ... .. .. ........... .... .. .. ..... ..... .. ... .. ... .. 1 1.2 MULTICULTURAL COMMUNITIES IN NEW ZEALAND .................................................................. 2 1.3 DISSERTATION OBJECTIVES .......... ...... ... .... .... ....... ... .... ..... ..... ... .. ..... ....... .............................. 3 1.4 DISSERTATION STRUCTURE ... .. ... .. ... ..... ... .. .. ... ...... ...... .. ... .......... .... ........ ...... ................... . ..... 3 1.5 RESEARCH METHODOLOGY ..... ... .. ............ .... .... ... ......... ....... ... ......... ...... ....... ... ..... .... ... .. ..... .. 5 1.5. 1 Conducting the Survey ........ .. ............. ............. ...... ... ....... ......... ..... ............ .... ... ... ...... 5 1.5.2 Profile of Respondents .......... ................ .. .. ..... ......... ... .. .... ... .. ...... .. ....... ... ........ .. ... .. ... 5 1.5.3 Questionnaire Format ......... .. ...... ... ... ......... ............ ....... ..... ....... ........ .. ......... .... .... ... .. . 6 1.5.4 Statistical Analysis of the Survey Data ... ........ .. .. ................ ... .. ....... .......... ... .. ......... ... 6 CHAPTER TWO ............................................................................................................................ 8 RACE AND THE PLANNING SYSTEM ........................................................................................ 8 2.1 CONCEPT OF RACE .............................................................................................................. 8 2.2 CONCEPT OF ETHNICITY ....................................................................................................... 9 2.3 CONCEPT OF MULTICUL TU RALi SM ................................. ... ................... ......... ......................... 9 2.4 PROBLEMS OF RACE IN THE PLANNING SYSTEM .................. .. .............................................. 10 2.5 ADVOCACY AND PLURALISTIC PLANNING ............................... ....... .. ............ ......... ................ 11 2.6 HOLISTIC PLANNING APPROACH ............. ......................................................... ... ................ 13 2. 7 CONCLUSION .................................... ............... ................ .. ................................... ............. 15 CHAPTER THREE ...................................................................................................................... 16 THE ROLE OF LOCAL GOVERNMENT .................................................................................... 16 3.1 AN OVERVIEW OF LOCAL GOVERNMENT .......................................................................... .... 16 iv 3.2 PURPOSE AND FUNCTIONS OF LOCAL GOVERNMENT ..... .. ....... . ..... ... .... .............. . ..... ...... .... .. 17 3.3 EFFECTIVE SERVICES TO COMMUNITY NEEDS ............... ...................................................... 18 3.4 THE GOVERNANCE ROLE ........................................................ ........ .... .. .... ...... ................... 19 3.4. 1 Councils and Chief Executives .......................................... .. ... ....... ..... .... ................ . 20 3.4.2 Elected Members .... ..... .... .... .. ........ ...... ... ... ...... .. .. .......................... .. ... ....... ........... ... 20 3.4.3 Council Committees .. ............... .... .. .......... .. ................................. ............... ......... ... .. 21 3.4.4 Community Boards .. .... ...................................................................................... ... ... 21 3.5 CHANGING ROLES ...... . .. .... ........... ........................... .... ... .. . ... .. .......... .... ..... .................. . ...... 23 3.6 THE ROLE OF LOCAL GOVERNMENT IN A MULTICULTURAL SOCIETY ...... .. ................ ... .. . .... . .. . 24 3.7 CONCLUSION ... .. ............... ... . ... . .. ...... . ...... .. ............ .. . .. ..... ... .. . ... .. .. ...... .... ... ............ .. ... . . .. ... 26 CHAPTER FOUR ........................................................................................................................ 27 DEMOCRACY IN LOCAL GOVERNMENT ................................................................................ 27 4.1 REPRESENTATIVE DEMOCRACY .... . .... . ............. ........... .... ..... .. .... . ... . ..... . .. . ................. ... .. .. .. . 27 4.2 LIMITATIONS OF REPRESENTATIVE DEMOCRACY .. ........................ . .. .. ...... .. .. ... .. .. .... .......... . .. . 29 4.3 PARTICIPATORY DEMOCRACY .......... ...... ..... . .......... ....... .. ..... . .. .. . ...... ..... ... .. .. .. .. .... .. ... ..... .. . .. 29 4.4 PARTICIPATORY PROCESS .... . .. .. .. ........... ..... ... . ...................... . .... .... ... .. ...... .. .. . .. . ....... .. .. .. .... 30 4.5 LEVELS OF PARTICIPATION ......... .. .... ......... . . ... .. .. . ... ...... ... . . . . ...... . .. .. ... ............................... .. 31 4.6 BARRIERS TO PARTICIPATION .. .... ..... .. ..... ..... . ... .. ... . .... ... . ... .. .. ... ... ... ....... .. . ...... ... . ...... . ......... 32 4.7 REPRESENTATIVE DEMOCRACY IN NEW ZEALAND LOCAL GOVERNMENT ..... .. .. . .. .............. . ... . 33 4.7. 1 Voting for Representatives ...... ..... .... ... .. ......... ....... ..... ....... ........... ..... ...... .. ..... .... ..... 33 4. 7.2 Ward Representation ..... .. .. .. .......... ........ .. ........... ..... ... ... ..... ........ .. .. .......... .. ............. 34 4.8 PARTICIPATORY DEMOCRACY IN NEW ZEALAND LOCAL GOVERNMENT ................ . ............ ... .. 35 4.8. 1 Annual Plan Process ... ... ... .......................................... ........... ...... .... ...... ...... .... ... .... 35 4.8.2 Consultation ........................ .. ...... .... .... .... ........ ...... .. ...... ... .. ... .......... ... .. ... .. ... .. ..... ..... 36 4.9 ETHNIC MINORITY PARTICIPATION IN LOCAL GOVERNMENT DEMOCRACY ...... .. ... .. . .... ..... ....... 37 4.10 CONCLUSION ......................... .. ........ .. .. .. .. ... .... . ......................... ......... ........ .. ..... .. . ...... .... 37 CHAPTER FIVE .......................................................................................................................... 38 HISTORICAL CONTEXT OF IMMIGRATION IN NEW ZEALAND ............................................ 38 5.1 HISTORY OF IMMIGRATION ...... ....... ................. .. .. ............................. ... ....... . .. .... ................. . 38 5. 1. 1 White New Zealand Policy ........... .. .................. ... .. .... .. .... ..... ...... ... ..... .. ... ................. 39 5. 1.2 The Post World War II Period (1940 to 1970) ............. ......... ....... .. .......................... 40 5.1.3 New Era in New Zealand's Immigration Policy (1970 onwards) ................. ....... ... .. 41 5. 1.4 Immigration Patterns in the 1980s .. ...... ......... .. .......... ........................... ... .... .. ...... .... 42 5.2 HISTORY OF ASIAN IMMIGRATION ................................ ..................... ... . .. .. .. .. ... ..... .. ... .. ........ 43 5.2. 1 Asian Migration in the early 1860s ........................ ..... ............................................ . 43 V 5.2.2 Early Twentieth Century ... .... ... .. ..... .. .... ..... .. ... ..... ... .... .... .... ............ ....... ..... ........ ..... 43 5.2.3 After the Second World War .. ... .. .. ..... .. .. ... ... ... .... ... ....... ... ... .. ....... ...... ... .. ..... .... .... ... . 44 5.2.4 Asian New Zealanders 1986-1996 .. .... .... ... .... .... ..... ....... ....... .. ...... .. ... .. ..... ... .. ... ... ... 44 5.3 CONCLUSION .. ... ... . . ... ...... . ..... .. ....... .. . ..... . .......... .. ..... .. .. ... ....... . .. . . . . .. ....... .. .... . .. .. .. .... .. ... .. ... 47 CHAPTER SIX ......................................... .................................................................................... 48 ANALYSIS AND RESEARCH FINDINGS ........................... ....................................................... 48 6.1 PROFILE OF ASIANS IN PALMERSTON NORTH .. .. ..... . . ................. . .. .......... . .. ... . .. ..... . .... . .. .. .. . . .. 48 6. 1. 1 Composition of Ethnic Population in Palmerston North, 1986-1996 .. ... .. .... ..... .. .. ... 48 6. 1.2 Age Sex Structure of Asian Population in Palmerston North in 1996 ............ .. ....... 49 6.1.3 Income Distribution of Palmerston North Population in 1996 .. ... .... ....... .. .. .. .... .... ... . 51 6.1.4 Employment Status of Asian Population in Palmerston North in 1996 .............. ..... 51 6. 1.5 Distribution of Asian Population by Ward in Palmerston North in 1996 ............. ... .. 52 6.2 PROFILE OF ASIAN SURVEY RESPONDENTS .. .. .. . .. ..... .. . ..... ....... ....... .. ... .. ..... ... . ... .. .. ......... ..... 54 6.2. 1 Ethnicity of the Respondents .. ..... ..... ... ... ... ..... ... ... ......... ........ ... ..... .. ... .... ....... ... .. .... . 54 6.2 .2 Country of Origin of the Respondents .. .. ....... .... ...... ...... ....... ....... .. ... .... ..... ... ........... 55 6.2.3 Age Sex Structure of the Respondents .. .... ... .. .... .... ... .... ...... .... ...... ... .. ......... ........... 56 6.2.4 Income of the Respondents ... ... ... ... ..... .... ..... .... ..... ... .... ..... .... ... .... .... ......... .. .. .. ........ 57 6.2.5 Employment Status of the Respondents ...... .. ...... ....... .......... ....... ...... .. .... .... .. .... ..... 58 6.2.6 Distribution of the Respondents by Ward ... ...... .... .. ......... ...... .... ..... ... .. .... ... .. ... ..... ... 58 6.2. 7 Years Living in New Zealand of the Respondents ... ......... ........ ... .... ....... ... .... ... .. .... 59 6.2.8 Reasons Why the Respondents Came to New Zealand ......... ..... ... .. ..... .... ..... ........ 60 6.3 RESEARCH FINDI NGS .... .... ... ... ........ ........... ........... .. .... ... ... .... .. ... . . ... ... . ... .. ... . .. .. ... .. ... ... .... ... 61 6.3. 1 Consider your family needs. How important are the following Council services/amenities to you and your family? ......... ..... .. ..................................... .. ........ ... ....... 61 6.3.2 Are there any other services/amenities that are provided by the Council that you think are important? ..... ........... .. .. ...... .... ...... ..... ...... ....... .. ......... ...... ..... .......... .. ..... .... .. .... .... .. 62 6.3.3 How well do you think the Council provides the above services/amenities? ... .. ... .. 62 6.3.4 Do you think the Council does a good job of meeting the needs of the whole community? ...... .. .. ..... .. ..................... .... ...... .. ..... ... ......... .. ...... ... ...... ... ... ... ..... .... ..... .. .. ... ....... 63 6.3.5 Do you think the Council does a good job of meeting the needs of the Asian community? .... ...... .... ... ... .. ..... ... ...... ... ... ....... .. ....... .. .. .... .... ...... ....... ....... .. ....... .. ... .. ..... .. ... .... . 64 6.3.6 Do you feel there are any areas in which the Council could improve its services/amenities to the Asian community? ... ...................... ............................ .. ...... .. ....... 65 6.3. 7 Have you, as an individual or as a member of a group, ever approached the Council for help in a particular area? .. ... ...... .......... .. ......... .. .... .. ........ .... ..... ...... ........ ..... ........... .. ..... .. 67 6.3.8 Have you taken part in any of the public participation activities? ... ....... ....... ....... .... 68 6.3.9 Did you vote in the recent Council election? .... ......... ....... .. ..... ... ... ... .. .. .. ... .... ..... .. ... 69 vi 6.4 CONCLUSION .. ... ................. . ... . ............. ... ... .... .......... .. ......... . .. .... ...... ........ . .... ... ... ..... ... .. .... 71 CHAPTER SEVEN ...................................................................................................................... 73 CONCLUSION ............................................................................................................................. 73 7 .1 NEEDS OF THE ASIAN COMMUNITY .. ... ..... .... ... . ...... .. ....... ... .. ... ... ..... ......... .. .... .. . ... .. ...... ........ 7 4 7.2 ASIAN PARTICIPATION IN THE LOCAL GOVERNMENT DEMOCRACY ... .. .... ..... .. .. .. .. ... .. . ... . . ..... .. . 75 7.2. 1 Participatory Process ...... ... ... ..... .......... ...... .. ................................. ........ ................. .. 75 7.2.2 Voting ....................................................................................................................... 76 7.3 RECOMMENDATIONS ............ . ........ .... . . ........ .. .... .. ... ... .... . .. .. ........ . .......... .............. .... . ......... . 76 APPENDIX A ................................................................................................................ ............... 78 SURVEY QUESTIONNAIRE .................................... ................ .. ..... ............................................ 78 APPENDIX 8 ............................................................................................................................... 84 THE PURPOSES OF LOCAL GOVERNMENT ACT ................. ................................................. 84 APPENDIX C ............................................................................................................................... 85 GUIDELINES ON MAKING SUBMISSIONS .............................................................................. 85 BIBLIOGRAPHY ............................................................................. ............................................ 87 vii List of Figures FIGURE 1.1 DISSERTATION STRUCTURE AND RESEARCH METHODOLOGY ....................................... 4 FIGURE 3.1 How LOCAL GOVERNMENT WORKS .................... ... .. ............. .................................... 23 FIGURE 4.1 A LADDER OF CITIZEN PARTICIPATION ........................ .......... .. .. ........ .. ............... ....... 32 FIGURE 5.1 MAIN GROUPS OF THE NEW ZEALAND ETHNIC SECTOR, 1996 ................................... 46 FIGURE 5.2 BIRTHPLACE OF PEOPLE BORN OVERSEAS, 1996 ..................................................... 47 FIGURE 6.1 ASIAN AND NON-ASIAN BY AGE-SEX COHORT IN PALMERSTON NORTH, 1996 ............ 50 FIGURE 6.2 PALMERSTON NORTH CITY WARD BOUNDARIES ............................. .. .. . ................... .. . 53 FIGURE 6.3 PALMERSTON NORTH ASIAN POPULATION BY WARD, 1996 ........................................ 54 FIGURE 6.4 ETHNICITY OF RESPONDENTS .............................. .... .................... .......................... ... 55 FIGURE 6.5 DISTRIBUTION OF ASIAN RESPONDENTS BY WARD .................................................... 59 FIGURE 6.6 YEARS LIVING IN NEW ZEALAND ............................................................................... 60 FIGURE 6.7 How WELL DOES THE COUNCIL PROVIDE SERVICES/AMENITIES? ................................ 63 / viii List of Tables TABLE 6.1 COMPARISON OF 1986 ETHNIC GROUP AND 1996 ETHNICITY FOR PALMERSTON NORTH AND NEW ZEALAND ..... ......... ... . .... .. ... .. .. .... ......... ................. . ... .................................. .. ............... 49 TABLE 6.2 AGE SEX COHORT STRUCTURE BY ETHNICITY IN PALMERSTON NORTH, 1996 ... ... ....... . 50 TABLE 6.3 INCOME STRUCTURE OF THE PALMERSTON NORTH POPULATION, 1996 ....................... 51 TABLE 6.4 EMPLOYMENT STATUS BY ETHNICITY FOR PALMERSTON NORTH, 1996 ..................... ... 52 TABLE 6.5 REGIONS OF PREVIOUS NATIONALITY AND COUNTRY OF ORIGIN .. ...... . ........ . ..... ........... 56 TABLE 6.6 AGE OF RESPONDENTS .................... . .. ........ .. ..... . ..... .... .... .. ........................................ 56 TABLE 6.7 INCOME OF RESPONDENTS BY SEX ............................................................................. 57 TABLE 6.8 EMPLOYMENT STATUS OF RESPONDENTS .................. ................ ... .... .. ............... .. ....... 58 TABLE 6.9 REASONS FOR COMING TO NEW ZEALAND ........ . ....... ...... .. .. ....... ... .... .. .... ... .. .. . .. ... .. .. ... 61 TABLE 6.10 PREFERENCE OF SERVICES IDENTIFIED BY RESPONDENTS ..... .... ............ . .. .. ..... .... ..... 62 TABLE 6.11 REASONS GIVEN BY RESPONDENTS .... . .. ... ... .. ... ..................... ..... .... ......................... 64 TABLE 6.12 SUMMARY OF REASONS GIVEN BY RESPONDENTS .................................................... 65 TABLE 6.13 SUGGESTIONS FOR IMPROVE OF SERVICES TO THE ASIAN COMMUNITY ... .. . .. ........... . .. 66 TABLE 6.14 RESPONDENTS ATIITUDE TOWARDS COUNCIL OFFICERS .................... ... . ....... ... .. .. .... 68 TABLE 6.15 LANGUAGE DIFFICULTIES STATED BY RESPONDENTS ........ ..... ........ .......... .. ... .. ... ... .... . 68 TABLE 6.16 REASONS FOR NOT PARTICIPATING IN THE RECENT COUNCIL ELECTION .......... . .. . .. . .. . 70 ix