Notwithstanding the histrionics from the Greens and other hard-left activists, the Ministry for the Environment isn't being shut-down, it's being merged with two other Ministries and part of a Department to create the Ministry for Cities, Environment, Regions and Transport (MCERT).
I opposed this when it was floated nearly a year ago, and I still oppose it. Not because of the claims that it will risk MfE's work programme (if only!), but because bigger bureaucracies are NOT more cost efficient, and they are certainly not more dynamic, nor do they result in integrated and co-ordinated thinking.
I've worked in both large and small government agencies, but it's not just that experience that informs my opinion, it's the experience seen elsewhere. The views on savings are largely from the perspective of accountants, who typically measure "X-efficiency" which is about minimising wasted resources. In the context of government it is really around the number of managers vs. output, which given the outputs are highly subjective, is hard to assess without a close understanding of the detail of those outputs. It's not goods sold or customers satisfied. It might consider productive efficiency based on numbers of people relative to outputs, although the "productivity" of policy agencies ought to reflect the quality of output, which I'd be astonished if the Public Service Commission could identify at more than a rudimentary level.
What definitely isn't measured is dynamic efficiency (how responsive organisations are to innovations and technology), nor do they measure allocative efficiency (allocating resources to meet most specifically what is desired - in this case by Ministers).
From experience, large Ministries can be awfully inefficient and slow to be responsive. For example, I half wonder if I still have a live "on demand" employment contract with MBIE, even though I left its predecessor permanently 26 years ago, although I did work casually for it for a subsequent 2 years. I never received any communications terminating it. However I digress.
One of my favourite administrative failures of MBIE's predecessor - MED - was how it spent three years developing an all of Ministry centralised Document Management System, which was designed primarily for "security". There were full time staff dedicated to this project, who were bewildered when one senior advisor pointed out that every single document created in this system was copied onto individual PC hard drives, which were accessible to anyone who logged onto the PCs. It took another year for the system to be implemented, by which time it was already obsolete.
As much as there are efforts to try to bring together people in a single Ministry to be co-ordinated across sectors, the record of doing so successfully, without bringing other activities to a snail's pace is not particularly inspiring. By and large, MED and its predecessor the Ministry of Commerce, largely operated in silos. The idea there was some commonality between how energy, telecommunications, land planning (RMA) and industrial/trade policy was fanciful. Electricity was heavily regulated and resulted in structural separation, telecommunications was very lightly regulated, land use planning was largely about tinkering with the RMA (and monitoring the impacts of its implementation), industrial/trade policy focused on tariff removal and supporting MFAT on trade negotiations. Throughout the five years I had there, the proportion of effort of the Secretary/Chief Executive in telecommunications, broadcasting, postal and IT policy as a share of activity was <5%. In other words, mega-Ministries struggle to get their senior management across everything they do. Small ones don't have that problem. Of course that can be an advantage for divisions/directorates/units led by managers who want to get on with their jobs without micro-management at a more senior level, but it is hardly amenable to accountability. Of course what it does mean is that there are multiple Ministers for the Ministry to report to, over the head of the Secretary/Chief Executive (otherwise the Secretary would spent all of her/his time at every Minister's office).
What mega-Ministries DO implement is a rather significant in-house administrative function, which inevitably justifies more staff to perform functions across IT, HR, finance and information management.
I've pointed out that MBIE and DIA, both large Ministries have not displayed much capability in delivering innovative reforms over recent years. MfE of course delivered an abject disaster with Labour's proposed RMA replacement with two pieces of legislation imposing greater costs on property owners and more complication through centralisation of power. This is primarily because MfE's culture is antithetical to economic growth, development and private property rights (you can still see in the new Planning Bill which is far more diluted and modest than what is needed to address the sclerosis in development). This was so apparent when in 2023, Vicky Robertson departed as MfE Chief Executive and stated:
In her presentation she pointed to the programmes that will have a profound and lasting positive impact on our environment.
She spoke about how reforming the resource management system has been the Ministry’s key priority and remains our single biggest deliverable for a system that is future-focused, adaptable, and encourages decisions that are good for our long-term wellbeing.
I'm not sure whose wellbeing she meant, certainly not taxpayers...
“People still say what they love about the Ministry is how people care about each other. They still say that now, as they did when I started. It’s pretty incredible how we’ve gone from 320 people to 1200 and held onto our culture. I’m proud we’ve been able to do that,” she says"
Being proud of more than trebling staff numbers says all you need to know about bureaucratic culture. Now that is being merged with the local government arm of DIA (which spent decades responsible for the statis of water policy), the Ministry of Housing and Urban Development (which was established in 2018 and presided over the country's most rapid increase in housing prices) and Transport (which itself has seen a more than doubling of staff numbers over 25 years).
Another example.
In 2004, Transfund New Zealand was merged with the Land Transport Safety Authority to become Land Transport New Zealand. That entity was merged with Transit New Zealand in 2008 to form the NZ Transport Agency. The end result has been to create a bureaucratic monster. In 2004, the three separate agencices had a combined total of around 700 staff. In the 2023/24 financial year, NZTA had 2,769 permanent employees.
In 2007 announcing the merger, then Transport Minister Annette King said:
“Combining the functions of Land Transport New Zealand and Transit New Zealand will create one organisation accountable to one board, ensuring improved focus on value for money for land transport activities and an appropriate balance of land transport activities".
Value for money?
In Australia, a mega-Department I've previously done work for had a total of six project leads for a single project I was involved in as a contractor, over five years. Each time the new lead had to be brought up to speed and learn again. The reason why was because the mega-Department kept poaching anyone talented to work on other projects in other areas. One comment I heard from a different agency was "this is the Department you send projects to so they die". That's a bit unfair, but isn't entirely untrue. Quite simply there are five layers of management on top of each project or activity, so it is easy for them to get lost.
So I'm not optimistic. I'm not sure a single entity co-ordinates better than separate entities, because the bigger the organisation the more sluggish it is to work as an integrated whole. Moreover, so much of what these agencies do is not across other portfolios. I doubt aviation policy has ever paid much regard to housing policy, local government or the environment, but I am sure there are people in a couple of those who would keen to get involved - which would slow it down. A mega-Ministry has great potential for sclerosis.
I hope I'm wrong, but I've seen multiple mega-agencies in several countries over 30 years. I'd love to see the example that, by an objective external measure, has delivered serious innovative reforms that have released productivity, growth and dare I say "wellbeing" for taxpayers and the public.

