Dr. Rachel Keedwell, Chair of Horizons, spoke to Milson Rotary about the council’s vital but often misunderstood role in protecting our environment, managing transport, preventing floods, and more. With candid insights and big-picture thinking, she also shared why local government matters more than ever.
Her final message was clear: if we care about our rivers, our air, public transport, and the resilience of our communities, then we must also care about regional councils. And, just as importantly, we must vote.
👉 Read the full summary here:
On Monday, 16th June, the Milson Rotary Club welcomed Dr. Rachel Keedwell, Chair of Horizons Regional Council, for an insightful and candid presentation about the role of regional government, the challenges it faces, and the future of our communities.
Despite battling a cold, Dr. Keedwell delivered a passionate talk that wove together her personal journey into politics and the wide-ranging responsibilities of Horizons. With a background in science—holding a PhD in ecology and a postgraduate diploma in wildlife management—Rachel never expected to end up in public office. But in 2012, after reading about a council decision to eliminate its biodiversity budget, she realised the environmental voice was missing from the table. That moment sparked a 12-year (and counting) commitment to regional governance.
Horizons, formally known as the Manawatū-Whanganui Regional Council, is tasked with managing natural resources across a vast and geographically diverse area—stretching from Tararua on the east coast to Whanganui and up toward Ruapehu. Unlike city councils, whose functions are more familiar to the average resident (rubbish collection, footpaths, libraries), regional councils often fly under the radar. Dr. Keedwell noted how many people she meets are unsure what Horizons actually does—yet its work directly affects our environment, safety, and long-term prosperity.
At the heart of Horizons’ mission is environmental stewardship. The council manages a wide range of responsibilities, including water quality and biodiversity protection, pest control, land use regulation, and flood protection. In Palmerston North, for example, stopbanks maintained by Horizons have protected the city from serious flood events. Transport is another major focus. The council oversees bus services and transport planning, having recently spearheaded the transformation of Palmerston North’s public bus system into a modern, electric fleet with direct routes and high-frequency services. Since the changes, public use has soared, with over one million rides recorded in the past year—a first since the COVID-19 pandemic.
Horizons also plays a behind-the-scenes role in emergency management, regional development (through initiatives like Accelerate25), and environmental data collection. Financially, the council operates on about $100 million a year, with around 60% of that coming from rates, and the rest from government grants and modest dividends, particularly from its share in CentrePort.
But the picture isn’t without its challenges. Keedwell spoke frankly about the difficulty of working in an unstable policy environment, especially around resource management and freshwater reforms. Constant shifts between successive governments—first gearing up for stricter environmental regulation under Labour, then seeing those frameworks paused or repealed under the current coalition—have made it nearly impossible to plan with certainty. Horizons had to reduce its planned rates increase from over 11% to 8.8%, mainly by cutting back on staff it had anticipated hiring to meet policy obligations that may no longer exist.
Staffing has also been a hurdle. Under the previous government, the Ministry for the Environment expanded so rapidly it drew away much of the regional talent pool, offering significantly higher salaries. However, with the central government now contracting, experienced staff are returning to councils, which Keedwell sees as a welcome stabilising trend.
In closing, Dr. Keedwell revealed this would be her final term on the council. As someone who never imagined becoming a politician, she expressed pride in her contributions but also urged citizens to engage more deeply with local government. Voter turnout in Palmerston North’s last local election was under 40%. Yet the decisions made at this level, she reminded the audience, often affect daily life more directly than those made in Wellington.
Her parting message was clear: if we care about our rivers, our air, our public transport, and the resilience of our communities, then we must care about regional councils, too. And, just as importantly, we must vote.
Summary:
Personal Background and Entry into Politics
- Academic and Professional Background:
- Holds a PhD in Ecology and a Postgraduate Diploma in Wildlife Management
- A former ecological consultant, she later co-owned a building company with her husband.
- Political Involvement:
- Elected to Horizons Regional Council in 2013, prompted by a proposal to cut the biodiversity budget.
- Saw a lack of environmental representation on the council and felt compelled to act.
- Served 12 years on the council: 2 terms as councillor, 2 terms as chair (since 2019).
- Perspective on Politics:
- Describes herself not as a “politician,” but as someone with a passion for environmental stewardship and community service.
- Elected chair in 2019 after a shift in council direction; succeeded long-time chair Bruce Gordon, who remains on council.
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Horizons Regional Council Overview
- Name and Jurisdiction:
- Legal name: Manawatū-Whanganui Regional Council.
- Covers a vast and diverse area: from Taranaki’s east coast to Ruapehu, Whanganui, Palmerston North, Rangitīkei, and Tararua.\
- Boundaries based on river catchments, not traditional community links — a challenge for shared identity but also a strength in collaboration.
- Misunderstandings About Council Functions:
- Many citizens confuse city council services with those of regional councils.
- Emphasised that Horizons is not responsible for rubbish or rates billing, but for natural resource management and regional planning.
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Key Responsibilities and Services
1. Environmental Stewardship:
- Management of land, water quality, biodiversity, and biosecurity.
2. Regulatory Oversight:
- Resource Management Act (RMA) enforcement.
3. Flood Protection:
- Manages stop banks and river systems, which are critical to urban areas like Palmerston North.
- Warned of growing flood risks and limited funding, requiring prioritisation of high-risk areas.
4. Public Transport:
- Oversees bus networks, planning, and funding (subsidised 51% by the government).
- Lead the transition to electric, high-frequency routes in Palmerston North.
- Redesigned routes from convoluted loops to direct lines.
- Service now records over 1 million rides per year, the best since pre-COVID.
5. Emergency Management:
- Coordinates civil defence with all local mayors via a joint committee.
6. Regional Development:
- Supports economic growth through Accelerate25, backing local business and infrastructure initiatives.
7. Monitoring and Data:
- Maintains a vast environmental data network for rivers, air quality, and more.
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Financial Overview
Income (~$100 million):
- 60% from the rates.
- 22% from government grants/subsidies
- 33% from dividends/interest, primarily from CentrePort (not a major contributor compared to other regions like Bay of Plenty).
Expenditure:
- 25%: Land & Water Management (science and regulation)
- 18%: Transport (bus services and planning).
- 15%: Flood Protection.
- 11%: Biodiversity & Biosecurity.
- 20%: Regional Leadership & Governance (not just council salaries — includes policy, emergency services, and environmental data systems).
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Public Transport Success Story
- Highlighted the success of Palmerston North’s new bus network:
- Electric fleet, direct routes, and 15-minute peak frequency.
- Increased usability and accessibility.
- One route (Massey–Airport spine) alone accounts for 1,300 riders/day and 23% of ridership.
- Evidence contradicts the common claim that buses are empty.
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Current Challenges and Political Environment
- Policy Uncertainty:
- Rapid government changes (Labour → Coalition) have created planning paralysis.
- Previous freshwater regulations were paused, confusing both councils and farmers.
- Example: possible loss of enforcement powers to the EPA, leading Horizons to halt hiring for compliance roles until clarity is given.\
- Budget Constraints:
- The original rates increase proposal of 11.2% was scaled back to 8.8%, mostly by cutting planned staffing.
- Staffing Stability:
- Improved since the central government stopped drawing heavily from council staff — now able to recruit strong candidates.
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Final Remarks
- Not seeking re-election after the current term.
- Encouraged all attendees to vote in upcoming local elections, noting that local government decisions have a greater direct impact on daily life than many realise.\
- Emphasised the value of informed and active civic engagement.
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Tone and Style
Dr. Keedwell was informal, engaging, and open, even acknowledging being unwell during the talk. She spoke candidly about politics, public misconceptions, and her personal motivations. She welcomed questions and was transparent about the complexities facing the council in a changing political landscape.