Three councillors - Steve Morris, John Robson and Bill Grainger - argued for not making a decision today, as the council did not have enough information.
The decision will go out for public consultation as part of the draft Annual Plan before councillors make a final decision and strike a rate for 2020-21.
Rates rise breakdown
Business as usual general rate: 3.9 per cent
Waters: 2.1 per cent
Growth and transport planning: 1.5 per cent
Debt management: 5 per cent
Other: 0.1 per cent.
How they voted
For: Deputy mayor Larry Baldock (mover), mayor Tenby Powell, councillors Kelvin Clout, Jako Abrie, Tina Salisbury, Heidi Hughes.
Against: Councillors Steve Morris, Dawn Kiddie, Andrew Hollis, Bill Grainger, John Robson.