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Planning Australia

An Overview of Urban andRegional Planning

Planning Australia is the first comprehensive Australian planning text to bewritten in over 30 years. It incorporates both theory and current practice,providing a well-researched critique and overview of the discipline. The bookprovides a comprehensive and interdisciplinary view of the major issuesand principal activities that occupy planning practitioners today. Issues ofsustainability and social equity are highlighted throughout, reflecting thebreadth of the authors’ planning expertise, theoretical positions and prac-tical experience. The book defines and contextualises planning in terms ofits theoretical, ideological and professional foundations. The history of thediscipline, its relationship to broader governance structures, and its legisla-tive framework as well as specific issues central to planning practice today areexplored and discussed.

Richly illustrated with instructive case study examples, PlanningAustralia will have broad appeal for those with an interest in planning: stu-dents, community groups, practitioners, and people working in local councils.

Susan Thompson is Associate Professor and Head of the Planning andUrban Development Program in the Faculty of the Built Environment at theUniversity of New South Wales.

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Cambridge University Press978-0-521-61261-6 - Planning Australia: An Overview of Urban and Regional PlanningEdited by Susan ThompsonFrontmatterMore information

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Planning Australia

An Overview of Urban andRegional Planning

Edited by Susan Thompson






CAMBRIDGE UNIVERSITY PRESSCambridge, New York, Melbourne, Madrid, Cape Town, Singapore, Sao Paulo

Cambridge University Press477 Williamstown Road, Port Melbourne, VIC 3207, Australia

Published in the United States of America by Cambridge University Press, New York

www.cambridge.orgInformation on this title: www.cambridge.org/9780521612616

C© This collection Susan Thompson 2007Authors retain copyright in respect of their contributions to this volume.

First published 2007

Printed in Australia by Ligare

A catalogue record for this publication is available from the British Library

National Library of Australia Cataloguing in Publication dataThompson, SusanPlanning Australia: An Overview of Urban and Regional PlanningBibliography.Includes index.ISBN-13 978-0-521-61261-6 paperback1. City planning – Australia. 2. Regional planning – Australia. I. Thompson, Susan.

307.12160994

ISBN-13 978-0-521-61261-6

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Planning Australia is dedicated to furthering the hope that is at theheart of planning.






Contents...................................................

Contributors xiCase studies xiiiDiscussion points xvList of tables xviiList of figures xviiiList of illustrations xixPreface xxAcknowledgments xxiiAbbreviations xxivTable of statutes xxvi

Introduction 1Susan Thompson

Part 1 Frameworks1 What is Planning? 11Susan ThompsonThe theoretical context of planning 12

Defining planning 17

Planning Australia’s conceptualisation of planning 22

Why planning matters in today’s Australia 22

2 Government, People and Politics 29Peter WilliamsPopulation and urbanisation 30

Governance and management 32

The hierarchy and constitutional status of government in Australia 33

Role of the federal government in urban governance 34

The state–local relationship in urban planning and governance 35






viii Contents

New structures of governance for urban development, infrastructureprovision and service delivery 38

Planning decision-making 41

Supervision and scrutiny of government action 44

3 Planning as a Profession 49Nancy MarshallA brief history of professions 50

The Planning Institute of Australia 52

Defining a profession 54

An analysis of planning’s professional status in Australia 55

Is planning a profession – and does it matter? 62

4 A History of Planning 67Robert FreestoneColonial inheritance 69

Inventing planning 72

Postwar reconstruction 76

The long boom 78

Reconstructing planning 80

Neo-liberalism 83

5 Planning and the Legislative Framework 91Peter WilliamsEnvironmental law 92

Administrative and jurisdictional characteristics of Australianplanning systems 93

Strategic planning, statutory plans and plan-making 97

Development assessment 100

Environmental impact assessment 105

Appeals and review 107

Public participation 110

Part II Key Issues6 The Natural Environment 117Peter WilliamsFundamental concepts 118

Environmental and resource management tools 120

Principles for assessing human impacts on the environment 122

Origins and principles of ESD 122

Environmental indicators and state of the environment reporting 126

Planning for biodiversity 128






Contents ix

Bioregional planning and integrated approaches to resource andenvironmental management 129

Regulatory and market-based approaches to environmentaland resource management 133

7 The Metropolis 141Peter MurphyPreliminary considerations 142

Vertical coordination 143

Horizontal coordination 144

Metropolitan plans 145

Future challenges 155

8 Planning for Rural Landscapes 159Ian Sinclair and Raymond BunkerPlanning in rural areas 160

Balancing agricultural and residential land uses: The importance of agriculture 161

Balancing agricultural and residential land uses: The attraction of rural lifestyle 162

Rural land-use conflict 165

Preserving rural landscapes: Policy responses 166

Towards a methodology for planning rural landscapes 170

A case study from South Australia 175

9 Planning for Regions in Australia 179Paul CollitsRegions and regionalism 180

Beyond traditional regional planning: Spatial planning at regional scale 184

Government involvement in regional planning in Australia 186

Challenges for regional planners 191

Improving regional governance and planning 192

10 Planning for Diverse Communities 199Susan ThompsonUnderstanding diversity in contemporary Australia 200

Planning for diversity in Australia 204

Sustaining diverse communities through social planning 208

Contemporary challenges for social planning 214

11 Aboriginal and Torres Strait Islander Australians 225Ed WensingThe legacy of a turbulent history 227

Two sets of laws and customs 229






x Contents

Planning’s cultural blindness 231

New imperatives for land-use planning and decision-making 234

12 Community Participation: To Be Involved or Not To BeInvolved – Is That the Question? 247Robert Zehner and Nancy MarshallPlanning and the public interest 248

Public involvement in governance: An historical background andcontemporary framework 249

Challenges for public involvement 255

The future is now: Public involvement in the age of the Internet 259

13 Urban Design 263Alexander CuthbertThe urban question 264

Urban design in Australia 266

Examples of urban design 272

14 Planning for Heritage Conservation and Management 285Robyn ConroyWhat is heritage? 286

Statutory heritage conservation planning in Australia 290

The heritage conservation planning process 294

Challenges for heritage conservation planners 300

15 Urban Infrastructure 309Brendan Gleeson, Jodi Dong and Nicholas LowThe definition and development of Australian urban infrastructure 310

Australian infrastructure planning 311

The economic dimensions of infrastructure planning 318

Recent trends and debates 320

A sociotechnical view of infrastructure 322

Spotlight on water infrastructure and services 323

Conclusion: Planning Australia into the Future 329Susan ThompsonPlanning Australia today: The issues 329

Planning Australia tomorrow: The challenges 332

Possibilities for planning Australia 334

Index 337






Contributors...................................................

Raymond BunkerRaymond Bunker is Visiting Associate Professor in the City Futures ResearchCentre, Faculty of the Built Environment, University of NSW.

Paul CollitsPaul Collits was until recently a regional development policy adviser in theNSW Department of State and Regional Development and part-time lecturerin the Planning Program, Faculty of the Built Environment, University ofNSW.

Robyn ConroyRobyn Conroy is a heritage practitioner, conservation planner at the NSWHeritage Office, and PhD candidate in the Faculty of the Built Environment,University of NSW.

Alexander CuthbertAlexander Cuthbert is Emeritus Professor of Planning, Faculty of the BuiltEnvironment, University of NSW.

Jodi DongJodi Dong is a PhD candidate and research assistant, Urban ResearchProgram, Griffith University.

Robert FreestoneRobert Freestone is Professor in the Planning and Urban DevelopmentProgram, Faculty of the Built Environment, University of NSW.

Brendan GleesonBrendan Gleeson is Professor of Urban Management and Policy, and Directorof the Urban Research Program, Griffith University.

xi






xii Contributors

Nicholas LowNicholas Low is Associate Professor of Environmental Planning in the UrbanPlanning Program, Faculty of Architecture, Building and Planning, Universityof Melbourne.

Nancy MarshallNancy Marshall is Lecturer in the Planning and Urban Development Program,Faculty of the Built Environment, University of NSW.

Peter MurphyPeter Murphy is Professor of Planning and Dean, Faculty of the BuiltEnvironment, University of NSW.

Ian SinclairIan Sinclair is Principal Consultant, EDGE Land Planning and part-timelecturer in the Planning Program, Faculty of the Built Environment, Univer-sity of NSW.

Susan ThompsonSusan Thompson is Associate Professor and Head of the Planning and UrbanDevelopment Program, Faculty of the Built Environment, University of NSW.

EdWensingEd Wensing is a practising planner and was formerly an Adjunct SeniorLecturer at the School of Environmental Planning, Griffith University.

Peter WilliamsPeter Williams is Senior Lecturer in the Planning and Urban DevelopmentProgram, Faculty of the Built Environment, University of NSW.

Robert ZehnerRobert Zehner is Associate Professor in the Planning and Urban DevelopmentProgram and Associate Dean (Education), Faculty of the Built Environment,University of NSW.






Case studies...................................................

2.1 Local government amalgamations in Sydney page 372.2 Sydney Metropolitan Strategy: The Growth Centres

Commission 392.3 Rail transport infrastructure provision: South West Perth 402.4 The South East Queensland Regional Plan 424.1 The first Australian planning conference, 1901 734.2 The green bans of the 1970s 824.3 Privatising Australian airports 844.4 The turn to creative city planning 876.1 Sustainable Cities 1256.2 ‘Bush Forever’ 1306.3 Integrated natural resource management and bioregional

planning 1326.4 Tradable offsets schemes in New South Wales 1357.1 Planning balance sheet for urban consolidation in Melbourne 1459.1 Portland, Oregon 1859.2 PlanFirst 1889.3 Western Sydney Regional Organisation of Councils 1899.4 UK devolution initiatives 193

10.1 Cultural diversity 20610.2 Safe cities 21610.3 Healthy cities 21811.1 New Zealand’s Resource Management Act 1991 23211.2 The Redland–Quandamooka Planning and Land Management

Strategy 23811.3 The Halls Creek planning scheme 23911.4 Rezoning in the Block 24012.1 Government commitment to public involvement in Canada 25212.2 Wingham Advancement Group 25712.3 Sydney’s Kingsford Smith Airport’s Third Runway 259

xiii






xiv Case studies

14.1 The role of the National Trust 28814.2 Overview of the Burra Charter 28914.3 Colonel Light Gardens, Adelaide, South Australia 29514.4 Cultural heritage significance in Goldtown 29814.5 Managing the colonial cultural landscape 30215.1 Infrastructure management in South East Queensland 31215.2 Perth’s ‘Network City’ 314






Discussion points...................................................

1.1 Planning a town page 181.2 Defining planning in plain language 211.3 Key practice definitions of planning 232.1 The ‘panelisation’ of planning in Australia 433.1 Planning associations and their beginnings 523.2 Organisational structure of the PIA 533.3 What is planning? A comparison 563.4 Top ten skills/subject matters used by NSW planners 573.5 Summary of the PIA’s Code of Ethics and Professional

Conduct 614.1 Some key documents in Australian planning history 685.1 The Environment Protection and Biodiversity Conservation

Act 1999 (Cth) 965.2 Strategic and statutory plans in Victoria 995.3 Integrated development assessment in New South Wales 1025.4 Public participation: Third-party merit appeals 1096.1 What do we mean by the ‘environment’? Definitions in

environmental law 1196.2 Framework for environmental protection in Victoria 1237.1 Contemporary metropolitan plans 1479.1 Typologies of regions 181

10.1 Social capital 20810.2 Home 21210.3 Elements of social sustainability 21311.1 Some stark comparisons 22811.2 Further reading 24612.1 Public involvement techniques 25312.2 Effective consultation for remote Indigenous communities 255

xv






xvi Discussion points

12.3 Logistical questions to consider in public involvementactivities 256

12.4 After the disaster 25913.1 Twenty classic texts in urban design 26614.1 Criteria for assessing national heritage significance 291






Tables...................................................

1.1 Conceptualising planning for today: A framework forpractice and reflection page 24

2.1 Population growth for Australian states and territories,2004–05 31

5.1 Lead administrative bodies and primary statutes overseeingAustralian land-use planning systems 95

6.1 The environmental and resource management toolkit 1216.2 Core environmental indicators (biodiversity) 1288.1 Proportion of state agricultural production derived from

peri-urban regions 16210.1 Range of social planning requirements across Australia 21010.2 Social Impact Assessment 21414.1 State heritage conservation and primary planning legislation 29315.1 Infrastructure types 31315.2 Federal agencies with infrastructure interests, 2005 31315.3 Infrastructure governance by state and territory, 2005 316

xvii






Figures...................................................

3.1 The professionalisation continuum and its components page 556.1 SoE reporting: The pressure-state-response model 1277.1 Urban growth models 1498.1 Policy responses to preserving rural landscapes 1678.2 Western Sydney rural land use 1718.3 Western Sydney land fragmentation 1728.4 Western Sydney land use by lot size 1738.5 Types of rural residential land use in Western Sydney 173

10.1 Past, present and future age and sex structure of the Australianpopulation 201

12.1 Ladders and levels of citizen involvement 25415.1 Spectrum of infrastructure ownership and control 321

xviii






Illustrations...................................................

4.1 Historic Plan of Adelaide, 1830s page 714.2 Walter Burley Griffin’s ‘city and environs’ plan for the federal

capital, 1910s 744.3 Planned neighbourhood of the 1940s 774.4 Perth corridor plan, 1970s 794.5 Woolloomooloo urban renewal proposal, 1970s 814.6 East Perth redevelopment, mid-2000s 887.1 Urban release areas, Sydney 1518.1 Rural fringe housing at Wallacia, NSW 1648.2 Rural living housing near Taree, NSW 1658.3 Rural land-use conflict, Catherine Fields, near Sydney 166

10.1 The culturally diverse landscape of Fairfield 20710.2 A safe local area and an isolated and poorly maintained one 21710.3 The neighbourhood dog park – a place for physical exercise

and social interaction 21911.1 Signing of the Redland–Quandamooka Agreement 23913.1 Federation Square, aerial and street views 27313.2 St Mark’s Square (Piazza San Marco), Venice 27413.3 Olympic Site, Homebush, aerial view of the site in the

context of Sydney 27613.4 Housing in the town of Seaside, Florida 27813.5 The Melbourne Docklands, aerial view 28014.1 Colonel Light Gardens, Adelaide 29514.2 Goldtown, Helen Goldsmith’s painting for Planning Australia 29914.3 Conserving the historic curtilages of Hambledon Cottage and

Elizabeth Farm, Parramatta 30314.4 Historic building, Ross, Tasmaina – sympathetic extension 305

xix






Preface...................................................Susan Thompson

Planning Australia: An Overview of Urban and Regional Planning provides a com-prehensive and interdisciplinary view of the major issues and principal activi-ties that constitute urban and regional planning in Australia today. While nota ‘how-to-do-it’ manual, the emphasis is on contemporary practice, informedby theoretical developments in the discipline. The book does not advocateor adopt a singular ideological stance. Instead, it adopts a conceptual modelof planning that is holistic, interdisciplinary and, most importantly, under-pinned by the principles of sustainability and social equity. The contentsreflect the breadth of different authors’ planning expertise, theoretical posi-tions and practical experience.

Individually, the chapters provide wide-ranging introductions to key top-ics in the field. From these foundations, readers interested in exploring theissues further will be well placed to investigate other more detailed and spe-cialised commentaries and critiques on specific aspects of planning ideologyand practice. No prior knowledge about planning is assumed, and techni-cal and legislative terms are explained and defined. The book is illustratedthroughout with national examples and includes extensive references to facil-itate further study.

Initiated as a project of the Planning and Urban Development Program atthe University of New South Wales (UNSW), Planning Australia has evolvedas an edited collection with a wide cast of Australian planning academicsand practitioners. It is arguably the first comprehensive text covering thebreadth of key Australian planning issues to be published since Alfred Brownand Howard Sherrard’s classic Town and Country Planning appeared in 1951.Some 18 years later, John Shaw, Founding Professor of the School of TownPlanning at UNSW, joined these authors to write a second edition of thetext. Almost 40 years on, the connection with the university continues. Plan-ning Australia reflects shifting and newer concerns about the environment,culturally diverse communities, and the involvement of government in theprocesses and outcomes of planning.

xx






Preface xxi

Planning Australia in fact appears at a critical time for urban and regionalplanning in this nation and beyond. Governments are moving away fromcentral involvement in the public sphere. There is a strong shift towardsprivatisation of services such as roads, public transport, health care, socialsecurity and public utilities. This trend is accompanied by an erosion ofthe urban public realm. This is also a time of unprecedented environmentaland social challenges. Many people in the community are worried aboutecological destruction, the impacts of globalisation, changing power bases,and the disenfranchisement of the poor and vulnerable. This book is writtenfor them and for those who want to better understand the planning system,its contexts, its operational modes and the avenues for effective and activeparticipation in the process.






Acknowledgments...................................................

Research Assistant: Daniela Gambotto, for her passion, infectious enthusi-asm and commitment to the project.

Editor: Catherine Pratt, for her patience, her tireless and unflagging sup-port for this project and her incredible editorial expertise.

Cover Artist: Helen Goldsmith, for the painting that graces the cover ofthis book, which was especially commissioned to depict urban and regionalplanning in Australia.

Cambridge University Press: Jill Henry, for her encouragement and beliefthat the project could be completed in spite of heavy workloads and someunexpected glitches. Copy editor Venetia Somerset for her advice and herincredible eye for detail; Kate Indigo, Managing Editor, Academic and Pro-fessional for steering the book through the publication process.

Robert Freestone, for insightful and consistent internal editing of all draftchapters.

Stephen Harris, for assisting with the initial conceptualisation of the book.Thank you to those, from across Australia and the ranks of academia and

practice, who acted as external reviewers on different chapters: Wendy Bell,Sheridan Burke, Jenny Cameron, Sue Jackson, Ludmilla Kwitko, Paul Mees,John Minnery, Danny O’Hare, Glen Searle, Gary Smith, Danny Wiggins andStephen Willey.

We are grateful to the following organisations for permission to use theirmaterial in Planning Australia: Illustration 4.2 Walter Burley Griffin’s ‘cityand environs’ plan for the federal capital – National Capital Authority; Illus-tration 4.4 Perth corridor plan – Western Australian Planning Commission;Illustration 7.1 Urban release areas, Sydney – NSW Department of Planning;Figure 10.1 Population Pyramids – ABS data used with permission from theAustralian Bureau of Statistics; Illustration 13.3 Olympic Site, Homebush –courtesy of Olympic Park Authority; Figure 15.1 Spectrum of infrastruc-ture ownership and control – adapted from information in Allen Consulting

xxii






Acknowledgments xxiii

Group (2003) Allen Consulting Group, Funding Urban Public infrastructure:Approaches Compared, Report for the Property Council of Australia, 2003.

Thanks are also due to the Faculty of the Built Environment, Universityof New South Wales, for awarding the project a Book Support Grant. ThePlanning and Urban Development Program of the Faculty also provided sub-stantial financial support for researching and editing the book.

Finally, as editor, I wish to express my sincere appreciation to all authorswho have stuck with the project. I thank them for their hard work in deliveringchapters that speak to the issues, providing a critical understanding of whatconstitutes planning in Australia today and how it can best serve us in thecoming years.






Abbreviations...................................................

ACC Area Consultative CommitteeAEC Australian Environment CouncilAGPS Australian Government Publishing ServiceAIP American Institute of PlannersANZECC Australian and New Zealand Environment and

Conservation Council (formerly the AEC)BBCP Building Better Cities ProgramBLF Builders Labourers FederationBSAP Building Surveyors and Allied ProfessionsCALM Department of Conservation and Land ManagementCBD central business districtCIP Canadian Institute of PlannersCPD continuing professional developmentCPP Certified Practising PlannerCPR condition-pressure-responseCPTED Crime Prevention through Environmental DesignCth Commonwealth of AustraliaDCP development control planDEPA Development and Environmental Professionals’ AssociationDIPNR Department of Infrastructure, Planning and Natural ResourcesDPPA Designated Primary Production AreasEP&A Act Environmental Planning and Assessment Act 1979 (NSW)EPBC Act Environment Protection and Biodiversity Conservation

Act 1999 (Cth)EPI environmental planning instrumentESD ecologically sustainable developmentEIA environmental impact assessmentEIS environmental impact statementGIS Geographic Information SystemGTCC Greater Taree City CouncilICAC Independent Commission against CorruptionICOMOS International Council on Monuments and Sites

xxiv






Abbreviations xxv

IGAE Intergovernmental Agreement on the EnvironmentIHAP Independent Hearing and Assessment PanelILAP Integrated Local PlanningIPA Integrated Planning Act 1997 (Qld)IUCN International Union for the Conservation of Nature and

Natural ResourcesLARP Local Approvals Review ProgramLEP local environmental planLGSA Local Government and Shires AssociationsLPPF Local Planning Policy FrameworkMRS Metropolitan Region SchemeNRM natural resource managementNZPI New Zealand Planning InstituteOECD Organisation for Economic Co-operation and DevelopmentOUM Office of Urban ManagementPIA Planning Institute of AustraliaPPP public–private partnershipPSR pressure-state-responsePTA Public Transport AuthorityRBDA Regional Business Development AnalysisRDO regional development organisationREP regional environmental planROC Regional Organisation of CouncilsRTPI Royal Town Planning InstituteRVMP regional vegetation management planSEPP state environmental planning policySEQ South East QueenslandSIA social impact assessmentSoE state of the environmentSPCC State Pollution Control CommissionSPPF State Planning Policy FrameworkTOD transit oriented developmentUNESCO United Nations Educational, Scientific and Cultural

OrganisationVCAT Victorian Civil and Administrative TribunalVPP Victoria Planning ProvisionsWAG Wingham Advancement GroupWCED World Commission on Environment and DevelopmentWSROC Western Sydney Regional Organisation of Councils






Table of statutes...................................................(See also pp. 95, 210, 293)

CommonwealthAboriginal and Torres Strait Islander Heritage

Protection Act 1984, 296Airports Act 1996 86Australian Heritage Commission Act 1975, 295Australian Heritage Council Act 2003, 296Disability Discrimination Act 1992, 205Endangered Species Protection Act 1992, 98Environment Protection (Impact of Proposals)

Act 1974, 98, 107Environment Protection and Biodiversity

Conservation Act 1999, 35, 37, 96, 98–99,107, 121, 126, 129, 296

Historic Shipwrecks Act 1976, 296Mutual Recognition Act 1992, 106National Parks and Wildlife Conservation Act

1975, 98Native Title Act 1993, 6, 232, 240Protection of Movable Cultural Heritage Act

1986, 296Whale Protection Act 1980, 98World Heritage Properties Conservation Act

1983, 98

New South WalesEnvironmental Planning and Assessment

(Amendment) Act 1997, 104Environmental Planning and Assessment Act

1979, 85, 96, 99, 103, 106, 108, 112, 113,121, 173, 189, 296

Environmental Planning and AssessmentAmendment (Infrastructure and OtherPlanning Reform) Act 2005, 105

Heritage Act 1977, 296, 301Local Government Act 1993, 104, 129, 211Municipalities Incorporation Act 1868, 35Native Vegetation Conservation Act 1997, 137

Regional Organisations Act 1972, 189,196

QueenslandIntegrated Planning Act 1997, 44, 96, 103,

113

South AustraliaDevelopment Act 1993, 45, 108, 111Environmental Protection Act 1993, 121Natural Resources Management Act 2004,

163Regulations under the Development Act

1993, 111

TasmaniaEnvironmental Management and Pollution

Control Act 1994, 108Land Use Planning and Approvals Act 1993,

111, 113

VictoriaEnvironmental Effects Act 1978, 108Environmental Protection Act 1970, 121Historic Buildings Act 1974, 85, 296Planning and Environment Act 1987, 45, 100,

101, 112, 113

Western AustraliaEnvironmental Protection Act 1986, 108Town Planning and Development Act 1928,

102, 111

New ZealandNgai Tahu Claims Settlement Act 1998,

234Resource Management Act 1991, 138, 234

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