The council, in its pre-draft long-term plan meeting, agreed to a recommendation council staff would begin detailed community consultation and planning work- including a final design and the selection of a location - before beginning construction of the South Dunedin complex.
But Cr Richard Thomson said he was yet to be convinced the project, which has been mooted for the last decade, should go ahead.
''Let's do the work, but I can't accept that it should just happen because it's been there [in council plans] for so long.''
Initial costings have put the cost of acquiring, redeveloping and fitting out the former Wolfenden and Russell building, which has been suggested as a location, at about $5.2 million.
Building was proposed between 2017 and 2019.
The building could be redeveloped in phases, with some parts used for a library and other council services, while the rest was leased to external partners.
The complex was expected to provide a hub for community services and resources, including a library and also a community learning centre run by Otago Polytechnic.
Other features suggested included a youth hub run by Ministry of Social Development staff, a bike library, community meeting rooms, public toilets, a council service centre and free public computers and Wi-Fi.
Cr Thomson questioned whether there was interest from organisations outside the council in the non-library aspects of the complex.
Mayor Dave Cull told him that work was exactly what the recommendation suggested be done.
Cr Hilary Calvert raised concerns council activities, such as hiring out rooms at the complex, or leasing a cafe space, would make it harder for existing South Dunedin businesses providing those services.
Council arts and culture group manager Bernie Hawke said that issue would be considered as part of the work.
He hoped the complex would help the economy of the area generally.
Cr Jinty MacTavish said there was ''a lot of water to go under the bridge'' before the complex was approved, but agreeing to the consultation work being done would allow staff to report on the details.
Mr Cull supported the recommendation, which he said had broad support from community groups, including the South Dunedin Business Association.
Cr Thomson said he had ''some difficulty'' with the plan, and had supported it so far more for what it might do for the regeneration of South Dunedin, rather than a belief another library was needed in Dunedin, close to the city library.
The plan had been around for 10 years, and in the meantime technological change meant it had morphed from one thing to another.
He said he would need evidence organisations such as the Ministry for Social Development were interested in being involved.
Councillors voted to approve the recommendation to proceed with the consultation and planning.
