At a Glance

• Local government carries both service delivery and democratic responsibilities

• Reform cycles in NSW have often led to compulsory mergers

• Housing debates risk unfairly targeting councils

• Any reform must strengthen, not diminish, community empowerment

The Enduring Tension at the Heart of Local Government

In recent Minutes, I have spoken about the challenges facing local government and the dual role councils play. We are both service providers and instruments of democratic self governance. That dual character is not incidental. It is foundational.

I have always believed that the tension between efficiency and democracy sits at the centre of the local government story in New South Wales. On one hand, councils are expected to deliver services with financial discipline and operational precision. On the other, we are expected to reflect the diverse views of our communities, facilitate participation, and uphold local representation.

Efficiency seeks speed and consolidation. Democracy requires deliberation and voice. Reform efforts tend to circle around this tension.‍

A Familiar Reform Pattern

In reflecting on past reform cycles, a familiar pattern emerges.

A newly elected state government expresses dissatisfaction with the performance or transparency of councils. Media commentary amplifies concerns, often highlighting individual cases as representative of systemic failure. Public debate intensifies.

An inquiry is then announced. It is described as independent and evidence based. Consultations follow, discussion papers are issued, interim findings are debated, and eventually a final report is delivered. The recommendations often include structural change, frequently in the form of compulsory mergers.

We have seen this before. In 2004, the number of councils in New South Wales was reduced from 174 to 152. In 2013, it was reduced again from 152 to 128. In both instances, mergers were implemented despite significant opposition from the sector.

These events are part of our institutional memory. They shape how councils interpret contemporary signals.

Motives and Evidence

Some observers describe this view as cynical. I prefer to see it as attentive to history.

Local government scholars, including Professor Joseph Drew, have argued that reform agendas are not always driven solely by the publicly stated objectives of efficiency or housing supply. In his work Reforming Local Government, he suggests that alternative explanations are plausible, including political advantage or strategic alignment with higher tier priorities.

Whether one agrees fully with that interpretation or not, the broader point remains. Reform is never neutral. It is shaped by values, incentives, and power structures.

If reform is presented as evidence based, then the evidence must be robust. Business cases must withstand scrutiny. Claims about scale and savings must be tested against lived experience. Above all, the democratic function of councils must not be treated as incidental to their administrative role.

Housing, Responsibility, and Narrative

The current housing debate provides a useful example of how reform narratives can take shape.

Councils are often portrayed as obstacles to growth. The language of crisis can quickly turn into the language of blame. Yet in Campbelltown, we have worked diligently to meet and exceed housing targets. We have invested in strategic planning and prepared land for growth.

There is significant discussion about the impact of what is commonly referred to as NIMBY sentiment. Community resistance to development is real and must be managed. But I am also mindful of another dynamic, what some have described as a Not In My Term Of Office mentality. Short term political positioning can generate expectations or narratives that are difficult to reconcile with long term policy settings.

When standards are challenged during opposition campaigns and then reinstated in government, councils are left to manage community confusion and distrust. That work falls to local representatives and staff, who must reconcile policy ambition with public understanding.

The Democratic Function Must Be Central

If reform of local government is to occur, it must begin with clarity about purpose.

Local government is not simply a delivery arm of the state. It is the tier of government closest to the people. It is where residents can speak directly to decision makers, where local priorities are debated in open forums, and where civic identity is expressed.

I am reminded that mergers and structural changes may promise efficiency, but they can also dilute representation and distance decision making from community context. Scale can deliver administrative savings in some areas, yet it can also weaken local voice.

For Campbelltown, any reform must strengthen our capacity to serve residents while preserving our democratic integrity. Empowerment of communities should be the guiding principle, not a secondary consideration.

Vigilance and Constructive Engagement

I hope my concerns prove unfounded. Reform, if undertaken thoughtfully, can modernise systems and clarify responsibilities. But it must be transparent in its intent and grounded in genuine consultation.

As Mayor, my responsibility is twofold. I must remain vigilant in defending the interests of our community. At the same time, I must engage constructively with the State to ensure that any change enhances, rather than erodes, our capacity to govern well.

“If Local Government reform is indeed necessary, it should be grounded in Council’s democratic function and prioritise the equitable empowerment of communities.”

Reflection

Local government in New South Wales has evolved through cycles of reform, resistance, and renewal. Each generation is asked to reconsider the balance between efficiency and democracy.

In reflecting on this moment, I return to first principles. Councils exist not merely to administer services, but to embody local choice and civic identity. Any reform agenda worthy of support must respect that foundation.

For my part, I will continue to advocate calmly and firmly for a system that serves our residents well and honours the democratic trust placed in us.

Read the original Mayoral Minute here: 20.  Local Government - Reform Agenda