Civic Precinct Project (Te Aka)

It's more than just a book storehouse! We are building a vital community gathering place that will give Napier residents of all ages and backgrounds a safe and welcoming place to learn, share, work and meet, supporting lifelong learning and literacy. 

Staff and services will be equipped to serve Napier’s residents in a way that meets their needs in the technological age. Modern libraries complement and fill gaps that online information sources can’t provide.

As Napier’s main library, it will support the educational, cultural, and creative life of our community. For example, there will be space for residents to attend digital education classes, technology skills workshops, building and creative workshops, or hold cultural activities. People will be able to further develop their passions, such as music, craft or artistic pursuits.

There will be bookable community meeting rooms, learning and collaboration spaces, a dedicated children’s area, and a coffee kiosk for community connections.

Why are libraries important?

“A library in the middle of a community is a cross between an emergency exit, a life-raft and a festival. They are cathedrals of the mind; hospitals of the soul; theme parks of the imagination.”
- Caitlin Moran | Moranthology

Equity

Libraries help bridge the digital divide. Many people do not have at home internet access. Libraries provide free internet access, enabling everyone to stay connected and informed. 

Libraries provide free access to resources that would be unaffordable for many people to purchase themselves. They are a place where everyone is a citizen, not a consumer.

Enrichment

Libraries enrich the cultural and creative life of their communities. They showcase collections, hold events, and develop partnerships. Libraries preserve local history and culture for future generations. 

Libraries offer a safe and welcoming space for people of different backgrounds, ages and abilities. They are "third places" that are neither home nor work but are neutral and inclusive environments that enrich connection and participation in civic life.  

Libraries encourage creativity and innovation by offering spaces and tools for people to explore their passions and hobbies. 

Education

Libraries promote reading, writing, and learning for people of all ages.  

For children, libraries provide story times, crafts, games, reading clubs, and activities that stimulate their curiosity and imagination. 

For adults, libraries offer workshops, lectures, classes, and other resources that improve their knowledge and skills.

Economics

Libraries support local economies through operational expenditure, user spending, and retail spending during visits.

Delivering Council or other community services through libraries can lower operational costs for central and local governments by using libraries' trusted spaces and local connections.

A multi-purpose meeting space for public Council meetings, where you can witness local government in action. When not being used by councillors, the space will be available for public bookings. It is a flexible, dynamic space suitable for events such as small concerts, private social events, club gatherings and community meetings.

Benefits of the overall precinct

In developing an overall civic precinct, rather than just a library, we’re establishing a strong and vibrant civic hub for our community with complementary activities, such as enabling community organisations to lease ground floor space.

Taking a long-term view, Napier has good options for both buildings, no matter what the future situation is. The spaces we’re creating are multi-use and flexible, giving our community a wide range of opportunities to use them. Napier will always need a library and a community hub, but any excess space that might come about can be leased, bringing in income to offset rates. 

Ground floor - Customer Service Centre and community organisations

This is the beating heart of our customer service to the community. It will be a central point for accessing essential Council services, making it easier than ever to interact with your Council. The ground floor will also include space for other community organisations to occupy.

Ground floor - public café 

A social space to relax and catch up with friends or colleagues, located inside the precinct. 

Office tower

The next three floors will be for Council office staff. Surplus space will be commercially leased to external tenants, bringing in a source of income to offset rates and ensure the long term sustainability of the project.

Having Council back-office staff working together in one building is more efficient. We’re currently leasing various buildings, which has increased costs through having to pay more than $1 million in rent every year to landlords. By occupying just one building we can achieve economy of scale with other costs such as electricity.

The library will be complemented by outdoor spaces where you can rest, play, or gather, making the area a lively and versatile space for all ages. These outdoor areas could host ceremonial events and community celebrations.

The design will allow library activities to extend outside the new building, such as for children’s story time. The area will provide for cafe dining, waiting spaces for buses, e-bike charging stations and seating for people to enjoy the outdoors. New paths and laneways will be built throughout the area and ground level changes will make it safe and fully accessible for all pedestrians. There will also be plantings throughout the site.

The outdoor space will be redeveloped after construction and redevelopment of the two buildings is completed.

Local consortium MCLStead has been awarded the construction contract. MCLStead is a joint venture between local companies MCL and Stead. The partnership was chosen after an extensive procurement process, including rigorous due diligence that looked at broader outcomes such as local partnership and employment, as well as price attributes.

We’re using this project to drive local job creation and economic momentum. Up to 300 subcontractors will be on site over the life of the project. This is about securing meaningful work for local tradespeople, suppliers, and businesses across the region.

MCLStead is aiming for 87% of its contract value to be delivered by locally based subtrades and workforce. They will use national suppliers when out-of-region supply and expertise are needed but will enable them to work with local providers for installation. This will upskill the local market and provide further economic benefit to Hawke’s Bay.

The development of the business case for the detailed design of the new library began in 2022 after the 2021 community consultation on the Library and Civic Area Plan.

The demolition of the Civic Building began in August 2022 and was completed in March 2023. The old library demolition was completed in early 2025. View demolition images here.

Tenders for the design of the building and surrounding outdoor area were called for in late 2022. Athfield Architects were eventually engaged to develop the design, in partnership with a local mana whenua design lead.

Council approved the concept plans for the new library in late 2023 and the plans have been progressing with greater detail ever since.

RFPs for the main construction contractor are currently in progress with a decision made in mid-2025.

During our Three-Year Plan 2024-27 community consultation, we sought feedback on whether Council should retain the Library Tower on Dalton Street and redevelop it for staff or sell it to a developer to strengthen and lease it back. After this consultation, Council decided on the first option.

We are redeveloping the building using the same architects and consultants who are working on the new library’s development. After extensive due diligence, this was judged the best option because it enables the following:

• We can take advantage of our existing relationships with the library’s architects and consultants, maximising the best outcomes for both developments.
• We can combine services for both buildings, including electrical infrastructure, cooling and heating, and fire sprinkler infrastructure. It will result in a less expensive build and lower operating costs.
• A better outcome with the construction contract. Combining two buildings into one contract is likely to attract more interest from top level construction companies. This allows the potential for greater quality assurance, economies of scale (in technology, materials, supply chains), and cost and time efficiencies.
• We can redevelop the building and the surrounding area exactly to our needs and that of the community we serve.
• We will continue to have long-term ownership of the asset.

The Council meeting space was part of the first phase of design development in tandem with the new library. It will be constructed on the same site as where the old Napier Library used to be.

Affordability and fairness

Construction costs for the new library, new governance/public meeting space, refurbishment of the office building and outdoor public space is $70.5 million. The inflation-adjusted total project cost is $110.5 million. This is the total project cost, and includes fitout costs, professional and other fees and a significant contingency budget. 

The project is currently on time and on budget. There’s potential for the project to come in under budget and we’ll continually look at where savings can be achieved during the construction.

Intergenerational equity

To make the project affordable, the costs will be spread across multiple decades, with future ratepayers contributing to the facility they can use and ensuring that today’s ratepayers don’t bear the entire financial load. We have specialist staff who make informed decisions about loan terms and repayment structures to reduce borrowing costs. As part of the Local Government Funding Agency, we access competitive financing specifically developed for local government.

Keeping the building gives our ratepayers greater financial security. We’ll have repaid the loan in 30 years, rather paying rent for many decades in buildings that might not be suitable. Importantly, we’ll own an appreciating asset that will belong to the community for decades to come. Construction costs will rise over the long term. If we sell our building asset now, it leaves our children with a difficult financial decision if there’s a desire for Council to own its own building in future.

Taking a long-term view, Napier has good options for both buildings, no matter what the future situation is. The spaces we’re creating are multi-use and flexible, giving our community a wide range of opportunities to use them. Napier will always need a library and a community hub, but any excess space that might come about can be leased, bringing in income to offset rates.

Financial prudence

From the outset of this project, Napier City Council has worked in partnership with mana whenua to co-design the new library and its surroundings. Both mana whenua and NCC wish to promote and enhance the environmental, economic, social, spiritual, historical and cultural values of Ahuriri/Napier for present and future generations. This is a significant and appropriate project to enable this partnership, and for these values to be tangibly reflected.

A cultural narrative has been developed in partnership with mana whenua. This narrative describes what is unique about our place and people, and the stories important to the whenua (land). The cultural narrative has been woven through the library's concept design and highlights opportunities for mahi toi (creative and artistic workmanship).

The New Zealand Green Building Council (NZGBC) administers a sustainability rating system known as Green Star ratings for every commercial building type including schools, hospitals, office buildings, shopping centres, and industrial warehouses.

Napier City Council is ensuring its new library and governance facilities will be a certified Green Star 5 construction. This represents excellence for a New Zealand construction project and will demonstrate that the building meets best practice sustainable design and build benchmarks. These benchmarks are assessed independently by the NZGBC. This project is currently registered with the NZGBC for future Green Star certification. 

Media release 9 May 2025: Local economy to benefit from contract award

Media release 14 October 2024: Office tower refurbishment kicks off

Media release 12 October 2023: Concept design for new library unveiled

Media release 18 July 2022: Demolition date set for Napier's civic building

Media release 20 September 2021: Library and Civic area consultation open

Media release 17 October 2018: Draft Library strategy consultation open

Media release 13 September 2017: City library will move to MTG

Media release 13 September 2017: NCC asks what's best for Napier?

The Napier Library on Station Street closed due to earthquake safety concerns with the civic building and library tower. In early 2018 the library relocated to the MTG Hawke’s Bay building, and Council staff moved into various leased buildings throughout Napier’s CBD.

The Napier Library Strategy was developed, with input from many varied community groups, including non-library users. We visited a variety of locations, such as the speedway, golf courses and supermarkets, to get a broad community view. Formal community consultation on this strategy took place, which gave us clear direction on what residents wanted in a new library. The Napier Library Strategy can be viewed here.

A six-month in-depth analysis was conducted on 16 potential locations for the new library within a defined central Napier area, as approved by Council. Factors such as location, size, accessibility, flexibility, and impact on existing and neighbouring activities were all carefully considered. The analysis was carried out by a Council team that included urban designers, planners and transportation staff. The Station Street site emerged as the most suitable choice from both an economic, social, cultural and financial perspective, making it the best choice of location for the new library.

Council presented the Station Street site as its preferred location for the new library, based on the analysis carried out in 2019. A public consultation was held, with 75% of respondents supporting the proposed location. Only 5% disagreed, while 20% were neutral.

During this consultation, Council also announced its vision to bring its staff and Council meeting chamber back to this area to create a civic precinct. This decision was arrived at with input from external groups, including organisations such as the Citizens’ Advice Bureau. The vision was for a civic precinct that would revitalise the area and deliver long-term financial savings by reducing the need to rent office spaces for Council staff.

The Civic Precinct Framework was developed. It set the overarching principles and values to guide decision-making and established our commitments to the community and the environment. 

http://issuu.com/napiercitycouncil/docs/civic_precinct_framework_final_small

(Internet Explorer does not support the viewing of this document).

A high-level library and civic area plan was developed for the block bound by Hastings Street, Station Street, and Dalton Street. The plan outlined key spaces, activities, and the general layout for the precinct. Public consultation was held to gather feedback on the proposed plan. 80% of respondents expressed support for the plan as it was presented. You can view the library and civic area plan here.

The Napier Library business case was developed. It aimed to confirm that we were putting the right things in the right place, while demonstrating value for money. It also explored the facility’s ownership, governance and operating model. The business case follows the ‘Better Business Case’ method, which presents the project’s strategic, economic, commercial, financial and management case. The business case development ensured affordability, with clear options for decision making. It was developed in response to the library design brief (see below).

The library design brief was also developed in 2022. It describes the size and layout of the facility. It also describes the relationship and connection between different spaces needed to deliver library, community and democratic services in a way that fully meets the community’s needs. Demolition work on the old civic building began, clearing the way for the new library and the broader civic precinct development. The Napier Library Business Case can be viewed here.

The project was named Te Aka, a name gifted by mana whenua. Working with a mana whenua design lead, architects created designs for the new library, Council meeting space, and the surrounding outdoor space. This partnership ensured that the design reflects the cultural and community values of Napier, blending modern architecture with a respect for the city’s history and natural environment.

The business case for Council staff accommodation was also developed. The business case considered the options of selling the building and leasing elsewhere, selling and leasing back, refurbishing the existing building, or demolishing the existing building and constructing in its place. Further due diligence was done on the existing building to understand its residual value and the viability of refurbishing it. The business case demonstrated that keeping this asset was the best option from an economic and environmental perspective.

More consultation took place. We asked residents whether they wanted us to refurbish the former library tower for Council staff or sell the building and lease it back. Council’s preferred option was to refurbish the building. The consultation showed a preference for refurbishing the building, with 58% of submissions in favour.

The project to refurbish the building was then combined with Te Aka (new library project). This offered various benefits, including financial savings, improved project timing, and sustainability outcomes. By combining the two, the project is more cost-efficient, benefiting the community in the long run.