Appendix 5: Key Regional Pilot Evaluation Findings7
Northland Region
Key Findings
There is a regional perception that the Northland region was already working collaboratively on some political and economic levels when the RPP was introduced, and the RPP gave impetus to this. Northland's expectations of what the RPP can achieve have increased over time as successes have been achieved. For example, sector groups that were once antagonistic to each other (e.g. forestry and timber processing) are now talking about collaborative opportunities, and government departments are interacting to identify co-operative opportunities.
The governance group has expanded over time to ensure better representation. Specifically, TLAs were invited to nominate business representatives from their local area, and the group is working towards a quota of 50:50 of iwi trustees with Pākehā. Positive aspects of the governance group are that the present and immediate past chairperson have provided strong leadership (e.g. have extensive business experience and credibility among industry and business sectors, and are "highly driven individuals"), and that trustees are committed to seeing Northland's economic development progress.
On the negative side of the governance group, there has been variability in the level of participation by members (in a couple of cases relating to lack of confidence) and iwi / Māori concern about the perceived lack of focus on iwi / Māori economic development. There is recognition that having ten trustees on the governance group is not so efficient because it slows decision-making and progress.
The governance group has fully supported the RPP because it gave impetus to initiatives that had already been started prior to the launch of the programme. Partnerships have been forged with sector groups, local government and government departments. The group also undertook widespread consultation at all levels throughout the region in the strategy development phase.
The partnership comprises the three territorial local authorities (TLAs), the Northland Regional Council, government departments, key industry sectors and iwi / Māori (an evolving partnership exists with iwi / Māori). It has recently been augmented by an informal layer comprising Enterprise Northland and CEOs of government organisations, on the basis that social issues have economic implications.
The partnership is still in its infancy but has made a promising start. Apart from the Far North District (which has aspirations to be a stand-alone region) and, to a lesser extent, iwi / Māori, partners have actively engaged with the partnership and the RPP.
In terms of the RPP's mechanisms, the strategy that was developed is well supported and considered to be in line with Northland's strengths. Capability building is a priority if Northland is to develop its economic potential, however, there is a perception that this is currently being held back because of lack of funding. Considerable frustration is expressed regionally that capability building funding (rather than the MRI) is not given higher priority because this is where Northland needs investment. Northland recognises the benefit of having a MRI and is apparently finalising one based around tourism.
At the partnership level, the RPP has provided a framework for TLAs, industry and government departments to come together to debate issues. This has not previously happened in Northland. This has allowed for increased communications, understanding and a willingness to look for opportunities to work co-operatively and collaboratively.
At the individual level, people are taking on new ideas and ways of looking at things (e.g. being more aware of the benefits of working regionally, and increasing their understanding of others' issues and processes) and engaging in new behaviours, e.g. within sector groups, businesses are talking with competitors and government departments are looking at areas of overlap and how they can work co-operatively to contribute to Northland's economic development.
Looking into the future, Northland expects the RPP to create new opportunities in sectors such as tourism, shipbuilding and forestry, e.g. being able to attract new businesses, investors and developers and create new employment opportunities.
However, the RPP environment has not been completely straightforward. In particular, the Far North District's belief that it has economic development issues that are unique and different from the other Northland districts means that its focus is primarily on its own challenges and engaging fully in a regional approach is clearly a second order priority.
The challenges Northland faces with the RPP are having the resources to deliver on the strategy, ensuring iwi / Māori business become fully engaged with the RPP (or, the researcher suggests addressing the lower buy-in to the RPP by iwi / Māori business) and ensuring Northland maintains its uniqueness without sacrificing economic development.
Programme Design Theory
The governance group is progressing through the expected changes outlined in MED's programme design theory. At the time of interview, it had improved skills, knowledge and expertise to develop and implement strategies and improved momentum (although this has not happened for all governance group trustees).
The level of ongoing development of shared values, trust and understanding varies within individuals but overall is moving in the right direction (although more slowly in relation to iwi and Māori business). New behaviours are being engaged in that support the RPP approach, e.g. businesses within sectors working collaboratively.
Indicators for Success of the RPP
| Broad Areas of Evidence for Success8 | Assessment of Performance |
| Characteristics of the regional governance group are consistent with policy prescription | Weak performance on this indicator initially but is now meeting the requirements of policy prescription |
| Outputs developed (strategy, capability building and MRI) are aligned with regional specialisation | Strong performance in relation to strategy and MRI (assuming this is based around tourism) and a reasonable performance with capability building (accepting that studies are perceived by the governance group as constituting capability building, that little physical capability building has been undertaken but where it has been done in key sectors that it has been well aligned to requirements) |
| New learning within the governance group | Some learning is occurring, e.g. greater recognition of the benefits of working regionally, greater Pākehā understanding of iwi / Māori issues and greater confidence to speak up and contribute at meetings |
| New learning is applied by the governance group and its members, resulting in changes in the way they interact with one another as well as their broader engagement outside of the governance group | The researcher believes that governance group members are generally conducting themselves in collaborative/co-operative ways within and without the governance group |
| Changes in behaviours lead to improvements in the way decisions and resource allocations are made | Too early to comment on |
Key Contextual Factors Influencing Regional Governance
The major challenge will be having the resources to deliver on the expectations of the strategy. Time and effort need to be expended on an on-going basis to ensure that the momentum and cohesion achieved to date are not lost. Resourcing this effort could put Enterprise Northland under pressure.
The region's pressing need for capability building in order to deliver on the strategy is being limited by lack of funding. Inability to address this issue will have ongoing implications for regional governance. The Far North District's ongoing aspirations to be a stand alone region presents challenges for regional governance and will continue to do so unless a resolution is reached.
If the region is to be completely united, iwi / Māori business need to be more actively involved with the RPP. The RPP must operate in a way that maintains the uniqueness of Northland but without sacrificing economic development.
Auckland Region
Key Findings9
Initial positive expectations that the RPP could build a robust partnership approach that would give a more strategic approach to improving social and economic development have now become more muted because RPP progress has slowed somewhat.
The initial governance group that delivered the strategy (the Strategy Leaders Group) included representation from business, iwi / Māori, Pacific peoples, migrant peoples, the education sector, local government, central government, and economic development agencies. While the group experienced tensions throughout its life, it survived (the researcher believes) because of the chairperson's strong leadership skills (e.g. being visionary, having significant business experience, being fair and impartial and not allowing splinter groups to give their agenda air play). The chairperson drove the strategy development phase to completion, and ensured widespread consultation occurred at all levels throughout the region.
The group was disbanded after the strategy was launched. The new governance group (the Establishment Group) is one of two tiers of governance structure, loosely based on the Infrastructure Auckland model. This two tiered mechanism was designed to meet the particular needs of the Auckland region (with its diverse stakeholder groups and funding issues associated with the need for a higher local funding contribution). There are some concerns at the local level that the time necessary to conceptualise and broker this new governance arrangement (a critically important major leadership task) poses some risks in terms of progressing strategy objectives (e.g. some aspects of the new partnership are not yet strong).
Politicians are entering their second year of providing funding and are putting pressure on for the RPP to deliver. This puts further pressure on the RPP environment and the need for "runs on the board" soon (this is not an Auckland-specific problem, but a broader partnership problem, where long-term strategy objectives and the need for strong partnerships have to be carefully balanced with the need for some early results).
The partnership comprises the seven TLAs, the Auckland Regional Council, Auckland Chamber of Commerce, Competitive Auckland, and representation from the education sector and the Māori and Pacific communities. Partners were initially actively involved with the RPP, feeding information to their respective sector or community. There is now concern that the momentum and expectations raised by partners among their constituents will dissipate with implications for the credibility of the RPP.
In terms of the RPP mechanisms, the strategy that was developed was supported by the TLAs and Auckland Regional Council. However, there are mixed views about the buy-in of business and education. Two or three capability building projects are under way. There are perceptions that the capability building component of the RPP may be more important currently than an a MRI.
When considering the impact of the RPP, the programme did contribute significantly to bringing the region together in a partnership. At the partnership level, the RPP has been responsible for joint initiatives being undertaken for the first time (e.g. the Auckland Regional Council working with the Tertiary Education Commission on an education forum). There is a better understanding of the forces that drive the Auckland region and of the issues and challenges TLAs face.
There is a belief that the strategy identified under the RPP will make a difference to the Auckland region. However, the RPP itself faces a number of challenges, the most immediate one being to deliver some results before the political pressure becomes too intense and the partnership potentially breaks down. Other challenges will be having the resources to deliver on the strategy and getting the right people in place (e.g. on the Implementation Leaders Group) to drive economic development forward.
Programme Design Theory10
Regional governance in Auckland appears to have progressed past the first two stages of the expected changes outlined in MED's Programme Design Theory. However, the RPP's momentum has been interrupted because of delays in the Establishment Group starting up, and this has implications for governance to move to the next stage.
The level of ongoing development of shared values, trust and understanding varies within individuals but overall is moving in the right direction.
Indicators for Success of the RPP
| Broad Areas of Evidence for Success | Assessment of Performance |
| Characteristics of the regional governance group are consistent with policy prescription | The Establishment Group does not meet with policy prescription because it comprises mainly TLA representation |
| Outputs developed (strategy, capability building and MRI) are aligned with regional specialisation | The SLG performed strongly in terms of strategy
The region has only just moved into the capability building phase and a MRI has not been identified |
| New learning within the governance group | Reasonable performance - SLG members noted personal learning, e.g. greater understanding of the forces driving Auckland and the importance and value of building and nurturing relationships |
| New learning is applied by the governance group and its members, resulting in changes in the way they interact with one another as well as their broader engagement outside of the governance group | Strong performance - SLG members reported being actively involved among constituents to promote RPP |
| Changes in behaviours lead to improvements in the way decisions and resource allocations are made | Too early to say |
Key Contextual Factors Influencing Regional Governance
Continuing to work together is a significant issue. The most immediate problem facing the RPP is balancing the need for some early project results with longer term economic development objectives, particularly in the context of political pressures.
Other challenges facing the RPP will be having the resources to deliver on the strategy (including capability building) and getting the right people in place (e.g. on the Implementation Leaders Group) to drive economic development forward.
Taranaki Region
Key Findings
When the RPP was launched, the Taranaki region was already engaged in regional economic development through a private sector model that had the support of the three TLAs. A high level of synergy currently exists across the key personalities involved with the RPP in the Taranaki region.
Initial expectations of the RPP ranged from positive to cynical. Generally, it was expected to be a catalyst for even closer regional co-operation. Current expectations are that RPP will continue to support planned and existing initiatives. The exception is iwi / Māori business which feels frustrated and marginalised because of perceived poor communications from the former governance group and concerns about Māori needs not being fully understood.
The first official governance group (the Taranaki Advisory Group) comprised eight members including representation from the TLAs, two government departments and Venture Taranaki and an independent chairperson. A perceived strength of the governance group was its strong leadership. The chairperson was perceived as being visionary, having significant business experience and being well networked, being fair and impartial and effectively addressing personal agendas. Initially there was no iwi or Māori business representation on the group but this appears to have been corrected after ministerial intervention. The Mayoral Forum has just confirmed the board of Venture Taranaki is the new governance group (this has happened since the time of interview).
The partnership comprises the TLAs, government departments, industry, business and iwi / Māori. The partnership has evolved in that a voluntary model of co-operation and partnership exists. Districts have their own economic development model. This allows for initiatives to have a local flavour while supporting regional initiatives.
Both the Taranaki Advisory Group and the partnership strongly engaged with the RPP. As indicated, this applies less to Māori business.
In terms of the RPP's mechanisms, the strategy is well aligned with the region's strengths (and importantly will enable Taranaki to transcend regional boundaries to tap into national and international opportunities). Capability building has occurred and is generally perceived as supporting the right areas. The region is currently finalising a MRI based around engineering.
The RPP gave impetus to what was already occurring in Taranaki. It bound the region together more tightly than before and gave it focus. It enabled increased communications, understanding and willingness to look for opportunities to work together.
At the partnership level, the RPP has reinforced that success is far more likely to occur working in a partnership than in isolation. Business clusters are acutely aware of the benefits of having a central body that has focus, drive and provides good governance.
At the individual level, the RPP has impacted on people to increase their awareness of others' views and needs, taught them how to build more effective relationships and recognising the importance of opening one's mind beyond regional boundaries to national and international levels.
There is a strong sense of optimism in Taranaki that the RPP will provide a number of significant national and international opportunities for the region. There is an expectation that education can play a greater role in the partnership through aligning teaching curricula with the needs of business and industry to deliver the right skills sets.
The main challenge facing the region is ensuring Māori business development and iwi / Māori needs are catered for within the RPP framework. The researcher understands Māori business has not bought into the strategy. This may change when their own strategy is finalised and they have a greater sense of involvement with the RPP.
Programme Design Theory
The Taranaki region is well advanced in terms of progressing through the expected changes outlined in MED's Programme Design Theory. An application for MRI funding (to support engineering) is to be tendered in the near future.
A high level of shared values, trust and understanding exists across the governance group and partnership (except for Māori business because of their lower level of involvement with the RPP because of perceived poor communications from the former governance group and concerns about their needs not being fully understood).
Indicators for Success of the RPP
| Broad Areas of Evidence for Success | Assessment of Performance |
| Characteristics of the regional governance group are consistent with policy prescription | Appear to be consistent with policy prescription |
| Outputs developed (strategy, capability building and MRI) are aligned with regional specialisation | Solid performance |
| New learning within the governance group | Solid performance |
| New learning is applied by the governance group and its members, resulting in changes in the way they interact with one another as well as their broader engagement outside of the governance group | Solid performance |
| Changes in behaviours lead to improvements in the way decisions and resource allocations are made | Solid performance |
Key Contextual Factors Influencing Regional Governance
The issue of Māori business and iwi has the potential to create difficulties for the RPP unless difficulties are overcome.
Otago Region
Key Findings
Prior to the RPP, there had been some discussion between the TLAs and the Community Trust about working on a regional basis. However, talks had ceased because of tensions over different agendas. Further, there was no unified perception of the Otago region at the political level.
A number of contextual factors are influencing the RPP environment in the Otago region. For example, there is a high level of interaction with stakeholders outside the Otago region (mainly in relation to forestry and Southland), and some believe that the partnership boundaries should have taken this into account. Also, the region is seen as extremely diverse, making it difficult to find a single MRI that would apply to the whole region.
Initially, there was considerable interest in the RPP, and the Mayoral Forum promoted the concept that the region could work together. However, interest has waned by some who believe that the initial momentum has been lost.
The governance group was made up of most of the mayors in the Otago region, as well as Ngai Tahu, Chamber of Commerce and the Community Trust representation. This group has not met recently.
The partnership group (Otago Forward) is made up of business representatives from four of the five local authorities (one of whom is also a City Councillor) and CEOs from the Territorial Authorities and Regional Council. Three additional people sit as advisors, but do not have voting rights. Otago Forward has now appointed a co-ordinator, who will work across the region. There is not currently any Māori representation in the partnership group.
In terms of the RPP's mechanisms, Otago now has a working strategy and has achieved some capability building (e.g. has formed Otago Forward and has employed a co-ordinator). It is making headway with its MRI but is still working through some issues around what will, and will not, be accepted by Industry NZ.
At a regional level, there have been some projects that have taken place that would not have happened if it were not for the RPP. At present, progress is seen by some to have slowed. However, there is considerable work going on behind the scenes by Otago Forward.
At a partnership level, there are signs that the group is beginning to break down some of the parochial defences and to share information. Otago Forward was formed at the end of 2002, and this group's ability to refocus the RPP over the next few months will be critical to its success.
Capability building is considered a greater priority than having a MRI.
The main task for Otago now is to find a MRI that is accepted by the region as a whole.
The major issue facing Otago is to maintain a positive concept of Otago as a region and to convince all players that each area in the region has something to contribute and something to gain - regardless of existing development/growth patterns. For example, although the Lakes area is growing fast, it will still have needs for support from the rest of the region, and will be able to offer insights to areas that are not experiencing such strong growth.
Programme Design Theory
The Otago region has made a slow start with the RPP. It is at the first to second stage of expected changes outlined in MED's Programme Design Theory and has gained a small amount of traction in these areas.
Indicators for Success of the RPP
| Broad Areas of Evidence for Success | Assessment of Performance |
| Characteristics of the regional governance group are consistent with policy prescription | The initial mayoral forum performed well but will need to keep closely in touch with Otago Forward to ensure strong governance |
| Outputs developed (strategy, capability building and MRI) are aligned with regional specialisation | There is some feeling that Māori business is not adequately represented in the strategy and the MRI has yet to be determined |
| New learning within the governance group | Relationships have developed within the governance group that are giving the mayors a better understanding of issues facing each others' areas |
| New learning is applied by the governance group and its members, resulting in changes in the way they interact with one another as well as their broader engagement outside of the governance group | Otago Forward is still finding its feet. However, it has plans to engage wider involvement once it has defined its direction |
| Changes in behaviours lead to improvements in the way decisions and resource allocations are made | There have been some changes in the willingness to share information and to form relationships at a political level. |
Key Contextual Factors Influencing Regional Governance
The Otago region faces a double challenge in that it is simultaneously struggling to identify an MRI that caters for the diversity of the region, while grappling with many seeing the RPP as a vehicle for funding non-regional initiatives. For example, although the Mayoral Forum decided to focus on the Otago region initially, there is the expectation that a MRI will fund Otago/Southland initiatives.
The dislocation of the Queenstown-Lakes District (including Wanaka) presents an ongoing challenge to the RPP because it prevents co-operation and collaboration occurring at the regional level.
In summary, the diagram below shows the relative positioning of regions according to the extent to which they have bought into the RPP (horizontal axis) and the extent to which regional governance is performing as envisaged under the programme (vertical axis).
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