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Industry Benchmark: How accessible are New Zealand's council websites?

Joseph Wynn
··5 min read
Industry Benchmark

Our Industry Benchmark series takes a sample of websites from an industry, either globally or within a specific region, and evaluates their web accessibility score. This time we turned to local government in New Zealand and tested the websites of 26 city, district, and regional councils. Council websites make a good subject because they serve everyone in their community, and as local government organisations they are encouraged to meet the New Zealand Government Web Accessibility Standard (WAS 1.2), which is built on WCAG 2.2.

The Household Disability Survey (HDS) found that 1 in 6 New Zealanders are disabled, which is far more people than most of us would guess. Not every disability changes how someone uses a website, but for residents who rely on assistive technology like screen readers, an inaccessible council website can stand between them and paying their rates, reporting a problem or applying for a consent.

The results for this report broke two of our records at once: Palmerston North City Council became the first website we’ve ever tested to score a perfect 100, and at the other end of the table we saw single-digit scores for the first time, with three councils scoring below 10.

26
Sites scanned
66Poor
Average accessibility score
92%
Sites with at least one critical issue
23 of 26
Sites failed the colour contrastPeople with low vision or color blindness cannot read text that lacks sufficient contrast with its background. With nearly three times more people having low vision than total blindness, and 8% of men and 0.4% of women having color deficiencies, adequate contrast is essential for making text readable to millions of users. audit

How we test

To generate this report, we collected a list of New Zealand council websites by hand and added each site into A11y Pulse. We used the site crawl feature to find up to 100 pages per site, then A11y Pulse scanned every page and generated an accessibility score for each one. The overall accessibility score for a website is calculated as the average score of all its pages, so a council needs accessible pages across its whole site rather than a single polished home page in order to score well.

On top of the automated testing, we also used A11y Pulse to guide us through manual testing on the sites that had the best and worst scores. This testing was a combination of keyboard navigation and screen reader use. The screen reader software we used was VoiceOver on Mac in both Firefox and Safari. Manual testing is used purely to provide additional insights and does not affect the accessibility scores.

Accessibility score by site

The most surprising part of these results for us was that 11 councils received a “Poor” score rating. In New Zealand, local government organisations are not legally required to meet WAS 1.2, however if any of the issues found by A11y Pulse actually prevented users from accessing council services, they could face legal challenges under the Human Rights Act 1993 or the Bill of Rights Act 1990.

Click or tap on any row to expand a council’s full results, including every issue A11y Pulse found.

Toggle detailsRankSiteIssues foundAccessibility score
1
Screenshot of Palmerston North City Council's homepage
Palmerston North City Councilpncc.govt.nz
4100Good
2
Screenshot of Whangarei District Council's homepage
Whangarei District Councilwdc.govt.nz
4396Good
3
Screenshot of Waipā District Council's homepage
Waipā District Councilwaipadc.govt.nz
21589Needs improvement
4
Screenshot of Invercargill City Council's homepage
Invercargill City Councilicc.govt.nz
26088Needs improvement
5
Screenshot of Hutt City Council's homepage
Hutt City Councilhuttcity.govt.nz
26687Needs improvement
5
Screenshot of Rotorua Lakes Council's homepage
Rotorua Lakes Councilrotorualakescouncil.nz
27787Needs improvement
7
Screenshot of Tasman District Council's homepage
Tasman District Counciltasman.govt.nz
13086Needs improvement
7
Screenshot of Kāpiti Coast District Council's homepage
Kāpiti Coast District Councilkapiticoast.govt.nz
17086Needs improvement
9
Screenshot of Selwyn District Council's homepage
Selwyn District Councilselwyn.govt.nz
24984Needs improvement
10
Screenshot of Tauranga City Council's homepage
Tauranga City Counciltauranga.govt.nz
25083Needs improvement
11
Screenshot of New Plymouth District Council's homepage
New Plymouth District Councilnpdc.govt.nz
29282Needs improvement
12
Screenshot of Bay of Plenty Regional Council's homepage
Bay of Plenty Regional Councilboprc.govt.nz
18781Needs improvement
13
Screenshot of Auckland Council's homepage
Auckland Councilaucklandcouncil.govt.nz
22979Needs improvement
14
Screenshot of Whanganui District Council's homepage
Whanganui District Councilwhanganui.govt.nz
17278Needs improvement
14
Screenshot of Hamilton City Council's homepage
Hamilton City Councilhamilton.govt.nz
33678Needs improvement
16
Screenshot of Waikato Regional Council's homepage
Waikato Regional Councilwaikatoregion.govt.nz
25469Poor
17
Screenshot of Environment Canterbury's homepage
Environment Canterburyecan.govt.nz
41564Poor
18
Screenshot of Greater Wellington Regional Council's homepage
Greater Wellington Regional Councilgw.govt.nz
26862Poor
19
Screenshot of Dunedin City Council's homepage
Dunedin City Councildunedin.govt.nz
70049Poor
20
Screenshot of Gisborne District Council's homepage
Gisborne District Councilgdc.govt.nz
66547Poor
21
Screenshot of Porirua City Council's homepage
Porirua City Councilporiruacity.govt.nz
54044Poor
22
Screenshot of Far North District Council's homepage
Far North District Councilfndc.govt.nz
46340Poor
23
Screenshot of Christchurch City Council's homepage
Christchurch City Councilccc.govt.nz
52138Poor
24
Screenshot of Waimakariri District Council's homepage
Waimakariri District Councilwaimakariri.govt.nz
8128Poor
25
Screenshot of Timaru District Council's homepage
Timaru District Counciltimaru.govt.nz
7087Poor
26
Screenshot of Napier City Council's homepage
Napier City Councilnapier.govt.nz
7276Poor

The podium

The top three councils were Palmerston North City Council, Whangarei District Council and Waipā District Council. Palmerston North was the clear standout, scoring a perfect 100 with every one of its 96 scanned pages reaching the good threshold, and Whangarei followed close behind on 96. We performed extra manual testing on these three sites - read on to see our findings.

Palmerston North City Council

pncc.govt.nz

Screenshot of Palmerston North City Council's home page
Score100Good
Pages scanned96
Issues found4
Pages by score

Our manual testing showed that Palmy council mostly deserves its perfect score. We would have liked to see a dedicated landmark for the navigation menu, but other than that we did not find any issues. Keyboard and VoiceOver navigation was easy, the design is uncluttered, and there is an overall high attention to detail.

Whangarei District Council

wdc.govt.nz

Screenshot of Whangarei District Council's home page
Score96Good
Pages scanned90
Issues found43
Pages by score

Whangarei District Council's website appears to be built on the same platform as Palmerston North's website, so it's no surprise that it scored highly. It had the same lack of navigation landmark, but was otherwise very pleasant to navigate. Points were deducted from their overall score for content- and theme-related issues such as missing alt text and insufficient colour contrast.

Waipā District Council

waipadc.govt.nz

Screenshot of Waipā District Council's home page
Score89Needs improvement
Pages scanned96
Issues found215
Pages by score

Manual testing showed that Waipā District Council's website also earned its score, with easy navigation and good page structure. Similar to Whangarei District Council, points were deducted for content-related issues such as confusing alt text. Points were also deducted for pages that did not make sufficient use of landmarks, although we did not find that this made the pages hard to read.

The lowest-scoring sites

Just like we did for the podium websites, we also performed manual testing on the three lowest-scoring sites, which belong to Waimakariri, Timaru and Napier. Their results sit in a completely different league to everyone else, with hundreds of serious and critical issues across most of their pages. This is actually the first time we’d ever seen websites with single-digit scores. Let’s dive in and talk about what our manual testing uncovered.

24
Screenshot of Waimakariri District Council

Waimakariri District Council

waimakariri.govt.nz

8Poor
Pages scanned88
Total Issues812
Critical Issues196

Severity breakdown

  • Critical196
  • Serious197
  • Moderate327
  • Minor92

Pages by score

Waimakariri District Council's score is so low due to the sheer volume of issues that A11y Pulse found across their website. Most of their issues appear to be structural, e.g. element attributes or DOM hierarchy that make navigation confusing. Overall their website was perfectly navigable with both a keyboard and screen reader, but the accessibility issues were common enough that some users may struggle to find what they are looking for.

25
Screenshot of Timaru District Council

Timaru District Council

timaru.govt.nz

7Poor
Pages scanned84
Total Issues708
Critical Issues161

Severity breakdown

  • Critical161
  • Serious287
  • Moderate184
  • Minor76

Pages by score

Timaru District Council's website was extremely confusing and difficult to use. The first thing we noticed was that we needed to tab through 12 items before finding a skip link. However, instead of a standard 'skip to content' link, we found 5 separate skip links: skip to primary navigation, which placed focus in a hidden menu; skip to secondary navigation, which did not work; skip to search, which did not work; skip to content, which actually skipped to the search form; and finally skip to Tim the Chatbot, which also did not work. Two menus had an identical 'navigation' landmark. Worst of all, the links to important forms such as reporting infrastructure issues or applying for building consent are completely inaccessible to keyboard and screen reader users. This could potentially raise issues under the Human Rights Act 1993.

26
Screenshot of Napier City Council

Napier City Council

napier.govt.nz

6Poor
Pages scanned100
Total Issues727
Critical Issues199

Severity breakdown

  • Critical199
  • Serious312
  • Moderate205
  • Minor11

Pages by score

Napier City Council is on the cusp of doing many things right, but instead their website presents a very frustrating experience. While it is technically possible to navigate the entire website by keyboard or screen reader, expanding submenus in the navigation resets the focus, requiring the user to tab through all of the previous items again. Their site is littered with carousels which periodically announce their content, making screen reader use confusing.

The most commonly failed audits

The table below shows the 10 most common issues that A11y Pulse found across all the councils we tested. Incorrect heading structure was the most widespread problem by a distance, appearing on all 26 websites, followed by insufficient colour contrast on 23 of them and missing or misused page landmarks on 22. As in previous benchmarks, the majority of the most common issues come down to poor content structure and colour contrast.

  1. 1Heading levels should only increase by oneHeadings convey page structure for screen reader users the same way text size does for sighted users. Properly ordered headings (h1 through h6) allow screen reader users to quickly navigate and understand content structure, saving significant time and frustration while also improving search engine optimization.
    26 / 26
  2. 2Elements must meet minimum color contrast ratio thresholdsPeople with low vision or color blindness cannot read text that lacks sufficient contrast with its background. With nearly three times more people having low vision than total blindness, and 8% of men and 0.4% of women having color deficiencies, adequate contrast is essential for making text readable to millions of users.
    23 / 26
  3. 3All page content should be contained by landmarksContent should be organized within high-level landmark regions like <header>, <navigation>, <main>, and <footer>. Content outside these sections is difficult to find and its purpose may be unclear, making navigation inefficient for screen reader users who rely on landmarks to understand page structure.
    22 / 26
  4. 4Frames must have an accessible nameScreen reader users rely on frame titles to understand frame content without exploring each one. Without descriptive, unique titles, users receive unhelpful information like "frame," "JavaScript," or URLs, making navigation through frames difficult and confusing.
    21 / 26
  5. 5Links must have discernible textKeyboard users and screen reader users can only interact with links that have accessible names and can receive focus. Without proper names, users don't know where links lead. Without keyboard focus, users who cannot use a mouse cannot activate the links at all.
    21 / 26
  6. 6Interactive elements must have a visible focus indicatorSighted keyboard users rely on a visible focus indicator to know where they are on the page. When focus styles are missing, too subtle, or have insufficient contrast against the surrounding colors, users cannot tell which element will respond when they press Enter or Space, making keyboard navigation slow and error-prone. This especially affects people with motor impairments who cannot use a mouse and people with low vision who need clear, high-contrast indicators.
    20 / 26
  7. 7Images must have alternative textScreen readers cannot translate images into text without alt attributes. Alternative text is essential for blind users and beneficial for users with low vision or color blindness, providing the same information that sighted users get from viewing the image.
    18 / 26
  8. 8Landmarks should have a unique role or role/label/title (i.e. accessible name) combinationEach landmark on a page must have either a unique role or a unique accessible name. Duplicate landmarks confuse screen reader users about which section they're navigating to, making it difficult to efficiently move through the page structure.
    17 / 26
  9. 9Headings should not be emptyScreen readers announce headings to help users navigate page structure. Empty headings confuse users and prevent them from understanding the page's organization. Headings should only be used to convey structure, not for visual styling, and must contain accessible text that screen readers can announce.
    15 / 26
  10. 10Document should have one main landmarkEvery page should have exactly one main landmark that identifies the primary content. Without a main landmark, screen reader users must navigate through all content linearly to find what they're looking for, making page navigation difficult and time-consuming.
    15 / 26

Our conclusion

Accessibility across New Zealand council websites is uneven, with a small group doing well, a large middle that is close but not quite there, and a tail of sites that are failing the basics. The amount of low-hanging fruit is what stands out most, because problems like heading structure and colour contrast are among the most well understood and most fixable issues in web accessibility, and yet they are everywhere in this data. The manual testing we performed on these websites highlighted that accessibility issues do have a serious impact on users’ ability to access the content they need. In the case of Timaru, these issues seem to actually prevent access to critical resources.

The encouraging part is that the councils at the top of the table show how achievable a good score is, and Palmerston North in particular proves that a large council website can score full marks when accessibility is taken seriously.