This issue
From the editor 1 Focus From the president 2 Melbourne’s legacy for the ages 11
News Planning for the Commonwealth Games 13 Letters to the editor 3 Temporary uses - uncertainty in 2013 PIA Awards for Planning Excellence the process 16 in Queensland 4 Major events experienced 18 PIA 2013 State Conference 6 What’s New 2013 – Session 3: Digital Refereed paper City Networks 8 Coastal resilience: planning with How to ... prepare a planning scheme 8 communities for sea level rise 21 Th e Queensland Plan through a social A (re-)assessment of Northern Australia’s planning perspective 9 agricultural future 30 Planners ‘Get Big or Get out’ Growing agriculture in Queensland by thinking local! 37 Q&A: Sallyanne Atkinson PIA (Hon Fellow) 10 Cover design by Zara Ali Planning www.zaraali.com.au Statutory corner 44
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Publications are important to professions expert to the editorial group for the issue, in describing Noosa Beach, Australia’s fi rst and to membership organisations. Often this case Sharon Harwood from James Cook statutory plan (Planning schemes, September largely written by members as well as read by University in Cairns. A similar approach 2012); Ian Wright explaining a shift ‘From them, publications are in a way a refl ection has been used successfully at other times in ecological sustainability to economic of the organisation itself. If planning could the last three years. I still like to come across sustainability’ (Economic development, March be described as thoughtful, varied and the front cover for Indigenous planning with 2013), to the lowdown on planning in interesting I hope that description could be its striking artwork by Mornington Island Borneo by Aaron Russo for the ‘Postcard’ extended to Queensland Planner as well. As artists Netta Loogatha, Amy Loogatha, Dolly segment (Planning culture, June 2013). this is my last Queensland Planner as editor I Loogatha and Ethel Th omas. Th is was kindly Th ere’s a huge body of planning work out would like summarise a few of my highlights arranged by Arts Queensland. there with great variety and I suppose that’s from the past 12 issues. what planning is. I hope I have steered State conference is the PIA highlight for through some of the interesting bits. Nearly three years ago Geoff Mullins, many and it was rewarding to focus on the John Van As and I sat down for my fi rst host cities of Cairns (June 2012) and Mackay One small regret and observation is the Queensland Planner meeting. It was January (September 2013). For these issues there are relatively thin level of debate between writers, 2011, days after Brisbane and much of the many tie-ins with conference topics, refereed or correspondence from readers. Aside from south east had witnessed damaging fl ooding; papers and local stories. It is also good to a few determined letter writers, feedback is just an episode of that summer’s wild weather. write about a place from time to time, rather hard to gauge. Do planners in Queensland Planning after the fl oods was an obvious theme than solely about issues. have little to say? Surely not. Reservations for the magazine. But I am still impressed about voicing their views? Maybe. Or just I liked assembling the Shopping edition one by the number of senior planners from not have the time to write or even read about year ago. Centres, retail and mixed use around the state who agreed to write and planning issues? Possibly. I did happen to remain big challenges for planning. Shopping write candidly about the fl oods. Th is was a pick up an early 1990s issue of Queensland gathered a colourful mix of stories that time when there was much soul searching Planner a few weeks ago and couldn’t remain relevant. Mall or main street shopping (and fi nger pointing) in the community and help notice the lengthy letters from senior in masterplanned communities by Gavin media. It is to the credit of PIA’s membership practitioners about the issues of the day. Duane; Morgan Jones and Sam Burgess that alongside a veritable library of media on big box retail in multi-storey urban Th anks to those who have contributed coverage, planners put together their own buildings, the next trend in large format over the last three years, not least the many discussion and record for others to read. retail?; Place Design Group’s take on centres writers; PIA staff Kaye Duggan, Melanie Urban design is my professional planning; and a panel discussion I organised Adam and Dan Molloy; and PIA Queensland preoccupation and so an urban design on neighbourhood scale shopping, all presidents Greg Tupicoff and Kate Isles. Th e theme was high on my list of topics. Th is complimented by a smart front cover by Tract Queensland Planner committee has regularly came out as the winter 2011 issue. In consultants. featured Geoff Mullins, John Van As, Daniela it were thoughtful articles from some of Mantilla, Linda Tait, Eve Vickerson, Nikki What I have tried to do is guide Queensland Queensland’s urban design leaders like Juris Huddy. Th anks to you. On the design side Planner on a course somewhere between Greste OAM and John Byrne. Peter Edwards’ Tract, Zara Ali and Lyle Essery from Bayfi eld newsletter and academic journal. A memorable take on the (still current) fl yover- Printing deserve much credit. Best wishes magazine-journal if you like. A benefi t of inducing road building frenzy - Troll habitat to the new editorial team. I look forward this approach is the variety of topics and – is a favourite. to reading the next edition and, as they say, writers that can be included. Anything many more after that. December 2011’s Indigenous planning was from retiring Brisbane councilor David for me and I’m sure others an eye-opener Hinchliff e refl ecting on planning regulation Mike McKeown, MPIA on indigenous planning issues. Th is theme after 25 years in local government (Planning Editor was made possible by the addition of a topic and politics, March 2012), to Mark Baker 4XHHQVODQG 4XHHQVODQG 4XHHQVODQG SODQQHU SODQQHU SODQQHU -RXUQDORIWKH4XHHQVODQG3ODQQLQJ3URIHVVLRQ:LQWHU9RO1R -RXUQDORIWKH4XHHQVODQGSODQQLQJSURIHVVLRQ6XPPHU9RO1R -RXUQDORIWKH4XHHQVODQGSODQQLQJSURIHVVLRQ6XPPHU9RO1R
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Queensland Planner – Summer 2013 – Vol 53 No 4 – 1 From the president
appreciate what impact hosting such an event would have on our city. Now that I am older and hopefully wiser all I can say is thank goodness Melbourne and Sydney rejected the off er to host and therefore gave Queensland this magnifi cent opportunity to host this global event.
I do often wonder what Brisbane would be like if Expo 88 hadn’t happened. Would we still have be able to enjoy the ever transforming South Bank Parklands? Personally I don’t think we would.
Like Expo 88, it is amazing what ‘events’ can do to transform our lives both Kate Isles MPIA personally and professionally. On a President PIA Queensland Division professional level I have thorough enjoyed Whilst it is now 25 years ago, I still being involved and attending signifi cant fondly remember attending World Expo events such as the National Congress 88. I still have my season passport and and State Conferences. I was also very various souvenirs having visited all of the lucky to be the National Young Planner pavilions and many several times over. Convenor when the then National Young Th e aim of getting all of those stamps Planner Group developed the concept of was enough to bring out the competitive YPConnect and Building Your Career. streak between us siblings! All of these events are critically important Th ere was of course the favourites like to our development as professionals and Prussian philosopher Wilhelm von eating space food at the USA pavilion, in helping us be the best planners we can Humboldt was right in saying ‘I am more visiting the Swiss pavilion which was be. Th e recent PIA Queensland State and more convinced that our happiness my fi rst exposure to snow (albeit fake!), Conference in Mackay was testament to or our unhappiness depends far more on watching the Hakka being performed this and I am sure all of those delegates the way we meet the events of life than before entering the NZ pavilion, the dive who attended will agree that it was a on the nature of those events themselves’. show, riding the monorail and of course fantastic conference for both its content all the Australian states and territories. and networking opportunities! So with this I extend my season’s Our next door neighbour was part of greetings to the entire PIA community On a personal level there are of course the Expo 88 Executive team so I even and your family and friends. May this major events or milestones that continue managed to get a signed photo with Expo Christmas season bring you all warmth to shape who we are as individuals. Oz the Platypus mascot – but couldn’t and happiness and prepare you for a Sometimes these events challenge us, track it down for inclusion. prosperous 2014. bringing out the best and unfortunately As I look back on this time I smile. sometimes the worst. Th e main thing Kate Isles MPIA Obviously I was quite young at the time is that with each we grow and learn Queensland President so I at that time I didn’t and couldn’t from the experience. I think the famous
On behalf of the PIA Executive, I would like to take this opportunity to extend my thanks and sincere gratitude to Mike McKeown in his role as Queensland Planner editor. Mike has done an outstanding job in leading and driving this journal to where it is today – a highly respected and valuable membership publication. Mike - well done and thank you for your contribution to this publication. We wish you the very best of luck and look forward to you continuing to contribute to the PIA community. Monorail at Wold Expo ‘88 2 – Queensland Planner – Summer 2013 – Vol 53 No 4 Letters
Dear Editor • excluding regional outcomes for It seems very likely that there will be no environment or landscapes, or any commitment to ESD in the new Act. My letter published in QP Vol 52, No. reference to ecological sustainability 4 raised questions about Temporary from the Central Queensland plan It’s now very clear that the government State Planning Policy 2/12 ‘Planning for is winding back the checks and balances Prosperity’ and the strength of the state • preparing to replace the SPA with that have regulated the excesses of government’s commitment to ecologically the Planning for Queensland’s the market economy over the past sustainable development (ESD). Development Act. two decades. Th is is at a time when a number of environmental indicators for Since that time, the government has Th e DSDIP website describes the new Queensland are deteriorating (http:// moved on several fronts to give priority legislation as follows: www.ehp.qld.gov.au/state-of-the- to economic growth over social and environment/report-2011/). environmental outcomes. Examples of the ‘Th e proposed Planning for Queensland's changes made over the last year include: Development Act will focus on facilitating I’ve yet to see much public discussion of the economic growth and prosperity of this signifi cant change. • removing requirements that new Queensland through an effi cient, eff ective, houses include rainwater tanks integrated, transparent and accountable Sincerely system that will: drive prosperity through a Br ian Feeney • repealing the phase-out of electric four-pillar economy, including development hot water systems and construction; reduce red tape for Gold Coast business and industry; and reform the state's • under SPP 2/12, requiring local planning and development assessment system government to ‘remove regulatory to empower local governments to better plan barriers that impede development’ for their communities.’ (development being agriculture, tourism projects, mining and extractive resource industries and residential, commercial and industrial activities)
• enacting the Economic Development Act 2012 to facilitate economic development; for declared priority development areas, this Act sets up a parallel regime to that under the SPA but without the SPA’s commitment to ecological sustainability (under this regime, the Minister has confl icting roles of facilitating economic development while at the same time assessing development proposals)
• providing that, under the Economic Development Act, the Minister is not bound by the existing planning scheme
• signifi cantly reducing the scope of regional plans (compare the Central Queensland Regional Plan (approved Oct 2013) with the Far North Queensland Regional Plan (approved 2009)); the scope is now sharply focussed on resolving confl icts between competing (narrowly defi ned) state interests; this ignores regional issues that are not (narrowly defi ned) state interests
Queensland Planner – Summer 2013 – Vol 53 No 4 – 3
1262 PQ PIP Advert (Jan 2011)_PRINT_OL.indd 1 31/01/11 3:14 PM News 2013 PIA Awards for Planning Excellence in Queensland Mackay, 8 November 2013
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bronze sponsors Th e 27th PIA Awards in Planning Award for Excellence: Best Planning Excellence were celebrated at a gala Ideas Award, Small or dinner at the Mackay Entertainment Local Project and Convention Centre on World Town Planning Day, Friday November 8th. Kowanyama Aboriginal Shire Council Planning Scheme by Kowanyama Here we present a list of the winners Aboriginal Shire Council, Buckley Vann and sponsors. A full list of winners and Town Planning Consultants, AECOM, commendations can be found in the Department of Aboriginal and Torres Commemorative Book on the PIA website. Strait Islander and Multicultural Aff airs. Sponsor: Sunshine Coast Council Award for Excellence: Outstanding Student Project Award, Secondary Award for Excellence: Best Planning Ideas Award, Large, Regional or An investigation into traffi c congestion Urban Project supporter sponsor and safety issues identifi ed at Kenmore intersection by Evlyn Menzies, Rural Planning Project, Planning for Stuartholme School. Healthy Agriculture by Queensland Sponsor: Queensland Government Farmers’ Federation and Department of Agriculture, Fisheries and Forestry Award for Excellence: Outstanding Sponsor: Sinclair Knight Merz Student Project Award, Tertiary Award for Excellence: From Plan to Browns Plains Centre Strategic Plan Place 2033 by Jessica Crane, Christina Hill, Michelle Squires, Hayden Gianarakis, Santos GLNG: Integrated Project Brylee English, Genevieve Denny, Th e Housing Strategy by Santos GLNG, University of Queensland. Buckley Vann Town Planning Sponsor: Queensland Government Consultants and Briggs & Mortar Pty Ltd. Sponsor: Cardno HRP Award for Excellence: Cutting Edge Research and Teaching Award for Excellence: The Hard Won Victory Understanding Land Development by Eddo Coiacetto, Discipline of Urban Blackwood Street Aff ordable Housing by & Environmental Planning, Griffi th Brisbane Housing Company and Buckley University. Vann Town Planning Consultants Buckley Vann Town Planning Consultants had a big night Sponsor: Queensland Government Sponsor: Logan City Council 4 – Queensland Planner – Summer 2013 – Vol 53 No 4 News
Overall Winner of the Awards for Excellence, Department of State Development Infrastructure Brittany Lauga was awared the Robert Swider Memorial and Planning Award for Outstanding Achievement by a Young Planner
Award for Excellence: Improving Award for Excellence: Great Place Award for Excellence: Overall Winner Planning Processes and Surfers Paradise Foreshore Redevelopment State Assessment and Referral Agency Practices by Major Projects Branch, City of Gold (SARA) by Department of State State Assessment and Referral Agency Coast, Aquenta Consulting, Place Design Development Infrastructure and (SARA) by Department of State Group. Abigroup Contractors. Planning, DSDIP Regional Services Development Infrastructure and Sponsor: Sunshine Coast Council Group, DSDIP Planning Group, Planning, DSDIP Regional Services Development Assessment Division. Group, DSDIP Planning Group, Wendy Chadwick Encouragement Development Assessment Division. Award Sponsor: Buckley Vann Town Planning Quandamooka Action Plan 2012, Future Consultants Land Use Proposals for Minjerribah by Urban Research Program, School Award for Excellence: Public of Environment Griffi th University, Engagement and Community Quandamooka Yoolooburrabee Planning Aboriginal Corporation. Brisbane Open House: Unlock Your Sponsor: Brisbane City Council City by Brisbane Open House, Brisbane Development Association, Offi ce of the Award for Excellence: The Robert Queensland Government Architect, Swider Memorial Award for National Trust of Queensland. Outstanding Achievement by a Young Planner Sponsor: BBS Communications Brittany Lauga Planner of the Year Joanne Pocock and supporters Award for Excellence: Promotion of Sponsor: Ipswich City Council Planning At the dinner, three PIA members Award for Excellence: Planner of were also elevated to Fellow status: Ideas Fiesta by Urban Renewal the Year Brisbane, City Planning and Economic Leo Jensen FPIA Development, Brisbane City Council. Joanne Pocock Peter Tabulo FPIA Sponsor: Moreton Bay Regional Council Sponsor: Ipswich City Council Andrea Young FPIA
Outstanding Student Project Award – Tertiary winners from the New Fellows Leo Jensen and Peter Tabulo with Kate University of Queensland Isles and Dan Molloy Queensland Planner – Summer 2013 – Vol 53 No 4 – 5 News PIA 2013 State Conference Mackay, 6 - 8 November 2013
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6 – Queensland Planner – Summer 2013 – Vol 53 No 4 News
PIA Queensland’s annual get together was held from the 6th to the 8th of November in Mackay. Over Postcard from Mackay 200 delegates attended the conference, associated tours and of course the social events. My name is Meredith Hartigan and I was a lucky recipient of the 2013 Queensland Young Planner Scholarship to attend the recent PIA state conference in Mackay.
Being my fi rst full state conference, I made the most of what was on off er. For me, the standout presentation of the fi rst day was Th e Honourable Tim Fischer who emphasised the importance of thinking big and being bold in all that we do in our profession...and who knew a room full of planning and development professionals could be so enthralled by rail gauges!
Day two started with a bang and ended with a bang. Th e fi rst session, Planning Matters, was an opportunity for robust and stimulating discussion on how planners perceive the profession, what can be done to further promote the profession and what skills and knowledge would assist planners to know more and do more. Th e conference culminated in a motivating presentation from Nigel Marsh whose emphasis on pushing outside your comfort zone inspired taking challenges and chances in all facets of life.
Coupled with three fantastic social events, including the Awards Gala Dinner, and numerous concurrent sessions and speakers fi lling the program for the two-day conference, there was no shortage of opportunities to improve my understanding and knowledge in many areas of planning. I found the chance to further explore these ideas at numerous networking opportunities one of the unique ways that the state conference fosters a culture of sharing, learning and collaboration.
I would like to thank PIA for giving me the opportunity to attend this year’s conference and I would encourage any young planner with a thirst for knowledge and passion to understand more about the profession to throw their hat in the ring and apply in 2014!
Meredith Hartigan – MPIA Grad
Queensland Planner – Summer 2013 – Vol 53 No 4 – 7 News What’s New 2013 – Session 3: Digital City Networks Brisbane, 29 October 2013 John Brannock LFPIA
‘Di gital City Networks’ was session Housing and Public Works, focused on been very successful in streamlining 3 of a three-part series, conducted by bridging the technology gap between low reporting and action on repairs of PIA, exploring digital and technological and high income households: Council property. innovations and how they can be applied to • Th e negative implications of a lack of • Interactive websites which show our cities. technology aff ect not only individuals, community ideas or comments in Kieran O’Hea, Chief Digital Offi cer of but the wider communities and tweet and text form - this format has Brisbane City Council, kicked off the government. been utilised for the restoration of theme of the night: how can cities capitalise • Digital literacy should be fostered Brisbane City Hall and the design of on a rapidly growing digital economy? Key the QUT Creative Industries precinct. in social housing through access to points included: basic technology, at a low cost per • ‘Alternative’ activities to enliven cities • A ‘Digital Brisbane Strategy’ has household. – artistic graffi ti, parkour and ‘parking been released by Council, looking at days’, in which city carparks are • Another option is the creation of safe ways to fast-track Brisbane into the temporarily transformed into public and centralised digital hubs, accessible global digital economy, and outlining spaces. the importance of encouraging local by residents and housing more It is clear that the implications of businesses to get online. expensive and advanced technology. technology on how cities are planned, and Using technology and innovative ideas to • Businesses should also be creating what role planners will play in facilitating invigorate cities was the key message of the digital strategies with an economic this change, are extensive. Th e ideas and fi nal speaker, Assoc. Prof. Marcus Foth from focus, and look beyond the current strategies raised by each speaker deserve the QUT Urban Informatics Research Lab. mindset of digital purely as a careful consideration: after all they are no Ideas included: marketing tool. longer purely hypothetical, but a David Eades, Deputy Director General • Brisbane City Council’s MMS refl ection of what may well be the of Housing Services at the Department of Council 2 FIX IT program, which has future of our cities.
How to ... prepare a planning scheme Brisbane, 1 October 2013 Brett Skyring MPIA
Steve Craven and Dominic Hammersley interpretation of the provisions in court. • properly understanding the local presented the following information Whether you are preparing a planning community’s culture, needs, issues and as an informal guide to preparing a scheme under an offi cial yet soon to be aspirations local government planning scheme in superseded version of QPP, or an unoffi cial • obtaining a mandate for change, if that Queensland under the Sustainable Planning superseding version of QPP, you must Act 2009 (SPA). Th e fi rst key point made is considered desirable, and understand the process risks and identify by both speakers is Follow the stages and • establishing a process for obtaining those risks to local government for decision- steps in Statutory Guideline 02/12 to the feedback for proposed strategies. letter (unless the guideline changes), in making about how to proceed. • Th ere is no ideal model. Among other which the local government must decide to Th ey suggest that that a scheme’s sole things, it depends on budget, time and make a planning scheme. purpose is to manage development the level of consultation that may have Th e Queensland Planning Provisions (QPP) applications and that planners should remember this. been performed for other reasons, such provides a standard format template for as a Community Plan. Th ere is a range every planning scheme in Queensland. Know the strengths and weaknesses of the of consultation options – such as focus Read the QPP front to back (Module A local planning framework, using a SWAT or groups, public meeting, open days or and Module B). Th ink about and discuss other analysis types to help understand the surveys – each with their respective the rules for determining the assessment defi ciencies and opportunities available for merits and disadvantages: criteria (part 1.5) and rules for determining the new scheme. State interests are a critical the level of assessment (part 5.3). Th ese component of planning scheme preparation. Engage with relevant state government rules will determine how you construct the agencies in the identifi cation of State various parts of the planning scheme and Statutory public notifi cation aside, the SPA interests specifi c to the Local Government ensure the language used in preparation of does not make consultation a statutory area prior to preparing the planning the various components of the scheme are requirement. It is nevertheless an essential scheme. tested for usefulness AND the potential element in:
8 – Queensland Planner – Summer 2013 – Vol 53 No 4 News The Queensland Plan through a social planning perspective Brisbane, 27 August 2013 Daniela Mantilla
‘Th e Queensland Plan through a Social a stronger sense of community cohesion Planning Perspective’ was the fi rst will provide more resilient communities seminar for the social planning chapter, in the event of a natural disaster. Th e conducted by PIA on 27 August 2013. research she undertook after the 2011 Th e seminar explored contemporary state Brisbane fl oods indicated that people issues which need to be addressed to in fl ooded communities perceive fewer achieve strong and resilient communities. problems post fl ood relative to those people in non-fl ooded communities Hon Andrew Powell MP started the given the adaptive capacities of the seminar by introducing Th e Queensland communities. Plan (Th e Plan). He explained that Th e Plan will outline a shared vision for the Mr Mark Henley, CEO of Queensland next 30 years, identifying Queensland Council of Social Service outlined the wide priorities and encouraged all importance of engaging with all members attendees and their families to get of the community in the drafting of Th e involved and participate. Th e Minister Plan. He particularly expressed that the mentioned that he hoped this plan would most vulnerable needed to be measured be well used and ‘coff ee stained’ by all alongside economic growth so we can Queenslanders. Th e Minister stressed the track the progress we are making towards importance of Th e Plan and the strong eliminating poverty and disadvantage in commitment that the government is Queensland. His key take home message taking to achieve the initiatives stemming was to consider adaptability and the from the plan, with the possibility of elderly community in the drafting of Th e legislating Th e Plan once completed. Plan as they will be a large portion of our population in the near future. Professor Lorraine Mazerolle from UQ spoke about the importance of ensuring that Th e Plan encouraged strong and resilient communities. She expressed that resilient communities shared a support system of social cohesion, mutual self- help groups and family and kinship networks. She mentioned that creating
Queensland Planner – Summer 2013 – Vol 53 No 4 – 9 Planners Q&A: Sallyanne Atkinson PIA (Hon Fellow) Dan Molloy
Sallyanne Atkinson was Lord Mayor of How did World Expo 88 impact on Where would Brisbane be today if Brisbane from 1985 to 1991. She was the plan-making process around those key events had not occurred? Deputy Mayor of the Athletes Village the 1987 Town Plan? What I don’t think one can really say what at the Sydney 2000 Olympic Games. specific skill sets and knowledge Sallyanne was a member of the inaugural Brisbane would be like if those events committee to organise the Sydney Games. bases needed to be accessed to hadn’t occurred. I do believe that the Queensland Planner sought her views on inform that planning process? Games especially and then World Expo 88 focussed national attention the impact of major events and the lessons Th e main impact of World Expo 88 on on Brisbane and led to the strong for contemporary planning. the planning process on the 1987 Town immigration from the south and Plan was that the state government had You became Lord Mayor in population growth. an interest in a large parcel of land in the 1985. What was your view at city, and that land was close to the CBD. that time as to how Brisbane had We have the G20 next year Additionally, some of the World Expo 88 and the Commonwealth Games leveraged the legacy of the 1982 site was actually Council-owned land. At in 2018. What are the key Commonwealth Games? that time, the state government did not opportunities these present for have many planners and it had always I was elected to the Brisbane City been recognised that the council had both the host cities and the state Council in 1979, in the lead up to the the planning skills. I think negotiation more broadly? Commonwealth Games. Th ey were and diplomacy skills, beyond technical the most exciting (public) event of Th e G20 especially will give Brisbane planning expertise, were also called into my lifetime, and generated enormous major worldwide promotion, as will the play. excitement and civic pride throughout Commonwealth Games to a lesser degree Brisbane e.g. tidying up the city, While the World Expo 88 site because they will be publicised in fewer countries. encouraging people to spruce up their itself was subject to a separate houses etc. Th e legacy for Brisbane was planning regime, what were the also through the establishment of sporting What advice would you have for facilities and infrastructure that we needed big city-making ideas that arose today’s civic leaders and major and would otherwise not have got. Th ere from the event’s success? event managers in order that they may leave an enduring legacy was also the feeling of satisfaction that we World Expo 88 generated many changes had confounded our southern critics who and transitions in the life of the city. once these major events are gone, were very sceptical about Brisbane’s ability Sometimes simple things, such as eating but definitely not forgotten? to host such an event. out at night. Previously Brisbane had Th e really important thing is for leaders Were there lessons to be learned been very much a tea-at-5.30 kind of to think clearly about what benefi ts town, with only a handful of restaurants. from that experience in the lead- and opportunities they want from these Th e big ideas and arguments came from, up to World Expo 88? events, rather than just focussing on and were fought over, the government’s the event itself being a success. Th is is Th e Commonwealth Games gave us plan for the site to be a second CBD and what usually happens. So are there to confi dence that we could manage council’s insistence that it remain public be opportunities for wider marketing, something as large as World Expo 88. We and open space. Th ere is now no city tourist promotion throughout the state, had had experience of a community voice in the world that has a site like this on upgraded infrastructure? For the Gold with the Games…matters like parking the banks of a river and within walking Coast (where I grew up) the opportunity on the Mount Gravatt cemetery and this distance of the city centre. is for a series of villages to come together became necessary with the resumption Th e most important issue for the council as a proper city. In spite of having a of South Brisbane property. Th ere was was what was to become of the World city council for more than 50 years, valuable experience in dealing with other Expo 88 site. I had been to Vancouver in community feeling is very localised. organisations, such as Griffi th University 1986 and seen what a disaster their lack for the athletes’ village, and with the state Can you complete this sentence? of planning for post-World Expo 86 had Planning matters because ... and federal Governments. been. Th e Games had been awarded to the City … it is all about where people live and Th e two most important legacies of how they live, and should never of Brisbane, who were the hosts, whereas World Expo 88 were the site itself and World Expo 88 belonged to the state. just be a collection of policies and self-confi dence for the people of Brisbane. regulations. 10 – Queensland Planner – Summer 2013 – Vol 53 No 4 Focus Melbourne’s legacy for the ages Malcolm Middleton OAM LFRAIA
I have long been fascinated by the Royal Exhibition Major community orientated events such as Building in Melbourne, as one of the great urban Australia’s Bicentennial celebrations, World Youth legacies in our country. Day and World Expo 88 similarly have paved the way for signifi cant urban renewal and legacy To understand the root of my fascination, I go back buildings. However, the delivery of these buildings to the time in which it was built. In 1880, Australia also needed to meet a specifi c deadline. Similarly, was not yet a nation and the city of Melbourne Heads of Government events in their various had been founded a mere 45 years before. Even the forms, such as the G20 Summit, have delivered most developed nations were devoid of many of legacy outcomes on a smaller scale. the simple conveniences which we take for granted today – a speedy international postal service was Th is focus on a particular end-date is conducive not yet available, let alone wide-spread use of the to decision making processes for major capital now defunct telegraph service. How was it possible commitments. It prevents an extended debate on then, to produce such a magnifi cent urban legacy the merits of a bid by the simple need to make a and how did it come about? decision by a certain time, to deliver a particular outcome. Th is introduces a level of risk normally Th e answer is simply because we are human. A gold not easily accepted in political terms – particularly rush lined the pockets of many, which subsequently in the areas of budget management, media scrutiny, accelerated the growth of the city’s built form. infrastructure provision and legislative compliance. Th e population grew exponentially, and a sense of strong competition developed between the cities Th e timing of these legacies, in relation to its of Sydney and Melbourne. While Sydney had won catalyst, is also of critical importance and can be the battle by holding its (now forgotten) World Fair heavily infl uenced by social and political factors, fi rst in 1879, Melbourne won the war by surpassing such as a shift in a city’s identity. An example is their neighbour’s event and creating a lasting legacy Expo 88 in Brisbane, which was perfectly timed in the shape of the Royal Exhibition Building. to take advantage of the city’s cultural tipping point at that time. Th e city had been slow to adapt Th e Sydney Fair was housed at the Royal Botanic and mature compared to the evolution of other Gardens site and comprised largely an agricultural Australian cities. However, with the successful show, with the exhibition building being destroyed by staging of the 1982 Commonwealth Games, fi re in 1892. Melbourne timed their event well - the many realised that the city had signifi cantly more international exhibitors could conveniently move on capacity and lifestyle potential than what they had to Melbourne after the Sydney instalment. Th e Royal previously thought. While the rest of Australia Exhibition Building was a well designed building had failed to take Brisbane seriously as part of the of substance, which was constructed with a legacy Expo initiative, the calibre of the site today tells Melbourne Royal Exhibition in mind – it made a statement, promoted a sense of a diff erent story. Th is was a prime location – a 25 local pride and met a functional role. Because of the Building successful building design, the structure was able to expand the reach and scale of Melbourne’s World Fair and it is still well utilised today.
Th is was a deadline driven project with a strong legacy.
Th ese types of legacy outcomes have often been delivered for major sporting events, particularly in the post war era. In Australia, we have constructed many event-specifi c buildings due to our success in attracting and hosting large sporting events. Examples include multiple Olympic Games, Commonwealth Games and a Rugby World Cup. All of these events have delivered urban legacies which are consistent with their scale and social signifi cance
Queensland Planner – Summer 2013 – Vol 53 No 4 – 11 Focus
expectations are delivered by having the right people, ‘in the room’, at the right time.
Th e success of creating an urban legacy is usually dependent on the city’s cultural maturity of the time. To deliver a positive urban legacy, its community needs to understand the physical benefi ts of the building, as well as any potential impacts. Th is can be a major source of change for any community. Th e challenge is to combine this with an understanding of the investment needed, as well as an ability to discern short and long-term outcomes. Such an opportunity has presented itself again in Queensland, with the Commonwealth Games to be held on the Gold Coast in 2018.
South Bank hectare, north facing area near the city and iconic Th e Gold Coast has steadily and stealthily grown Brisbane River. Th is was a city that was asking the from an iconic holiday location, to a city of world to take it seriously. substance with almost 600,000 residents and millions of visitors each year. Expo 88 was an important, perhaps essential, city changing event at a cultural level. It brought about Gold Coast City is now a genuinely attractive a new energy and air of confi dence to the city. location for people of all walks of life. Th is includes As a legacy, it provided the canvas for the highly young medical graduates attracted by the lifestyle successful South Bank redevelopment that followed and the new $1.4 billion dollar Gold Coast in later years. University Hospital precinct. Projects like the new billion dollar light rail transit service which is set to I see a strong link between the signifi cance of the be operating in 2014, will redefi ne the Gold Coast World Fair in 1880 for Melbourne, and that of and how people travel through the city. Th ere is Expo 88 over 100 years later in Brisbane. also a renewed focus on the cultural development of the city in a way that is unique to the Gold Like the World Fair in Melbourne, the benefi ts of Coast. Th is will be strongly reinforced through Expo 88 did not come easily. Th e fi nal version the work associated with the Gold Coast Cultural presented to the world was the third iteration of post Centre development and will very likely be strongly event concepts and planning. Despite the challenges, integrated with the Commonwealth Games in 2018. it ultimately succeeded because of the event’s emphasis on the calibre of the place that was being Th is investment in capital is just the start of how created for its people. Another reason for its success the Commonwealth Games will contribute to the was the fact that the then conservative government growth of the Gold Coast. Of more importance had the political courage to remove ill-conceived, than the success of the Commonwealth Games recently completed infrastructure and replace it itself, is its infl uence on how the city will be with a suite of facilities that were both commercially perceived – a destination of high calibre of an sound and naturally attractive to users. international standard. Aside from the prospect of more jobs and the benefi ts of holding the event in As a result, Expo 88 event has contributed to an idyllic location, this event has the potential of Brisbane’s confi dence and has seen it transform repositioning the Gold Coast as more than just a into a city of calibre for visitors and residents alike. holiday destination. It has also become a benchmark for other projects in the city and for projects on a national and With the Commonwealth Games, comes an international scale. opportunity to redefi ne the relationship between Brisbane and the Gold Coast as cities. Th e event It is precisely this legacy that motivates current presents a chance to consider the ways in which initiatives on the other side of the river within the both cities complement each other. Rather than newly identifi ed Government Precinct in Brisbane compete, there is an opportunity for them given City. Th e future of this precinct and its renewal will they are located close enough to be inter-connected be strongly informed by the community expectations and allow residents to enjoy what both cities have created as a result of South Bank’s transformation. to off er. For me, the marriage of both cities from an identity and relationship perspective would be an However, for a similar outcome to be achieved, outstanding legacy. strong project leadership is required to identify legacy options and provide a high degree of Malcolm Middleton is the Queensland technical assessment. Legacy projects that meet Government Architect. 12 – Queensland Planner – Summer 2013 – Vol 53 No 4 Focus Planning for the Commonwealth Games Judith Evans PIA (Student) Th e 2018 Gold Coast Commonwealth Games will using major events as a development strategy. Some be the largest event Australia will experience this major events have been dubbed as ‘mega events’ decade. Th e Commonwealth Games is one of the in the planning literature and are associated with world’s major international sporting events, second urban planning eff orts. Th ese events are of a scale only to the Olympics in terms of a multi-sport that attracts worldwide media coverage. event. In April 2018 the Gold Coast is expected to play host to more than 150,0001 visitors and 6,500 Th e benefi ts of hosting of major events go beyond athletes and team offi cials participating in 17 sports the obvious tourism and immediate economic from 54 countries. Th e 2018 Commonwealth stimulus benefi ts. Major events can provide a Games will be the fi rst time the Games are held in catalyst for infrastructure investment earlier than a regional Australian city and in some respects can would have otherwise been, attracting investment be viewed as a ‘coming of age’ for the city. and political commitment from higher levels of government. Th e Gold Coast will benefi t from Th e Gold Coast has long been developed as investment in transport, community sporting a tourism economy and has a long history of and other community infrastructure and urban successfully staging large scale sporting events so it redevelopment as a result of hosting the Games. is perhaps not surprising that the city should seek Th e positive legacy benefi ts of hosting major events to stage increasingly bigger events and leverage are often cited as one of the major drivers behind from the benefi ts they create. Good planning and the decision to host major events. Th ese legacies management is required to ensure that potential include not only the tangible infrastructure legacies benefi ts are realised and to minimise risk and but the equally important intangible legacies such negative impacts of hosting a major event. as increased community engagement and improved community identity and city image. Why host major events? What are the benefits? Planning priorities and challenges Site of the Games Village at Parklands (Image courtesy Major events have the potential to generate a range Planning for the Commonwealth Games began of Economic Development Queensland, Department of long lasting economic and social benefi ts. Cities long before the city was awarded the right to host of State Development and regions around the world are increasingly the event. Th e 2018 Gold Coast Commonwealth Infrastructure and Planning)
Queensland Planner – Summer 2013 – Vol 53 No 4 – 13 Focus
Coomera to Elanora and west to the Hinterland, so identifi cation and management of core transport routes is vital to effi ciently moving between key destinations.
Th e new Gold Coast light rail, which becomes operational in 2014, will have a role in transporting tourists to popular destinations such as Surfers Paradise and to venues at Southport and Broadbeach. City of Gold Coast’s transport plan supports the connection of the light rail to the regional rail line at Parkwood with a park-and-ride in time for the Games. Th is could potentially serve as a major gateway to the city for tourists staying in other areas of the South East. Th is connection is yet to be approved or funded.
New park-and-rides, priority bus facilities, an Proposed Games Village Games Bid Book outlines the detailed pre- integrated traffi c management centre and new Master Plan prepared for planning involved in bidding the right to host paths to enhance active transport modes are the the Commonwealth Games planned transport legacies of the Games. Th e Bid Book in 2011. EDQ is the event. Everything from strategic planning currently assessing proposals intent to infrastructure planning and such things Gold Coast also has the opportunity to generate for a development partner for as the tender process for major projects have been a positive legacy of a change in travel behaviour the Games Village (Image via the Games by reinforcing a culture of public courtesy of Archipelago considered. Architects) transport use which will aid in achieving the long Careful planning is required to leverage maximum term goals set out in the city’s transport plan. benefi t from the Games. Better long term outcomes are achieved when short term event goals and The Games Village planning are aligned with long term regional and Th e most signifi cant development project city strategies. Planning for the Commonwealth associated with the Commonwealth Games is the Games will be facilitated by the new Gold Coast redevelopment of Parklands for the athlete’s village. Planning Scheme, economic and transport Economic Development Queensland (EDQ) took Strategies and ‘Priority Development Areas’ possession of the site in October 2013 and has established by Economic Development Queensland begun selecting a development partner for the (EDQ). Th ese long term plans and strategies project. Th e games village will provide the most establish planning priorities in the lead up to the tangible legacy for the games becoming part of the games and post games to ensure legacy benefi ts are Gold Coast Health and Knowledge Precinct and maximised. providing a range of housing options, retail and City of Gold Coast is set to release their fi rst business premises and community infrastructure. Destination Tourism Management Plan in Th e choice of Parklands for the Games Village December which will provide the strategic direction has displaced the Gold Coast Show, Gold Coast of tourism planning to 2023 in order to rejuvenate Harness Racing and Gold Coast Greyhound the Gold Coast tourism industry by spring Racing which have utilised the site for the past 25 boarding from the Commonwealth Games. years. After extensive negotiations the Show has Transport found a new home at the Gold Coast Turf Club which is the focus of further redevelopment. Gold Transport planning and traffi c management are Coast Greyhound Racing has been forced from the critical to the success of any major event. Th e Gold Coast, with new premises located at Cronulla challenge of moving thousands of athletes, offi cials, Park in Logan City. An announcement on the media and spectators around the city whilst still future of Gold Coast Harness Racing has not been keeping the city functioning requires meticulous made. planning and investment. Failure to adequately plan for transport could result in any benefi ts of Sporting infrastructure and venues hosting the event being destroyed by the poor travel One of the greatest benefi ts of hosting the experience of visitors and the danger that the issues Games is the investment in community sporting will be remembered and not the city. infrastructure. Whilst some of the investment in Sporting venues, live sites, the media centre and the upgrading facilities was planned irrespective of Games village are spread out across the city from the Games, the advent of the Games has brought forward this investment and forced a commitment
14 – Queensland Planner – Summer 2013 – Vol 53 No 4 Focus to the projects. Th e Gold Coast is fortunate to Th e 2018 Commonwealth Games will have a already be home to two major stadiums, Metricon signifi cant impact on the shape of the urban Stadium and Robina Stadium, which will be landscape of the Gold Coast. New and upgraded expanded to temporarily cater for the extra capacity community sporting infrastructure, better urban required for Games events. Carrara is set to become spaces, enhanced public transport, new major a major sports precinct by 2016 with two new urban development in the form of the Gold Coast multi-sport facilities to be constructed adjacent Health and Knowledge Precinct and an enriched to Metricon Stadium which will host the Games community event calendar will contribute to opening and closing ceremonies. the vibrancy and liveability of the Gold Coast. Th orough planning is a vital prerequisite to ensure Many of the facilities such as the new Aquatic maximum opportunities are leveraged from this Centre at Southport will be used for events prior event. to the Games and as training facilities leading up to the games. Th e Games will provide new and upgraded indoor sports facilities with cycling, hockey, basketball and lawn bowls among the sports to benefi t.
Activity during the Games will not just be focused around venues. Th e whole city will become part of the event. As such high quality public spaces around venues, facilities and key destinations is essential to create opportunities for positive interactions and to generate a sense of vibrancy. Legacy Major event legacies are linked to infrastructure development, economic impacts, urban and social regeneration and have implications beyond the host city. To ensure positive legacy outcomes – for there are too many examples of negative legacies in the form of crumbling infrastructure from major events in cities around the world - legacy outcomes and sustainability need to be at the centre of planning eff orts.
Th e City of Gold Coast, the Queensland Government and the Gold Coast 2018 Commonwealth Games Organising Corporation are actively planning to deliver positive legacy projects. City image A primary benefi t from hosting a major event is the opportunity to ‘show case’ the city to the world to secure a greater share of the tourism market and promote the city as an attractive option for international business and investment. Indeed showcasing the city is listed as a primary motivation for hosting the Games in the Bid Book.
City of Gold Coast recently launched its new brand to improve national and international recognition. A well-defi ned brand will aid in leveraging the greatest legacy benefi ts from the Games in terms of establishing itself as a ‘world class’ city. Th e message needs to be strong and unequivocal to the international community and not be overshadowed by the Games themselves.
Queensland Planner – Summer 2013 – Vol 53 No 4 – 15 Focus Temporary uses - uncertainty in the process Garry O’Dell Events increase visitation, tourism, trade and and cultural role of festivals and events in regional investment opportunities for destinations and NSW and Victoria, and Tasmania(Gibson & communities (Tourism and Events Queensland, Stewart, 2009). Th e Festivals Project recorded more 2013; Whitford, 2004). Events such as markets, than 2850 events, which were estimated to have community celebrations, sporting, music, art generated ten billion dollars for the local economy. and agricultural displays are organised by public Given the potential benefi ts and the number and entities, private and commercial groups and provide diversity of activities, events should be considered signifi cant environmental, economic and social a signifi cant industry (Gibson & Stewart, 2009) benefi ts to a community (Getz, 2008; Gibson, worthy of proper consideration in the land use Connell, Waitt, & Walmsley, 2011). Yet events are planning and assessment process. inconsistently considered in the land use development assessment process for many reasons as the short The nature of the problem duration and impermanence makes it diffi cult to fi t In Australia, land use planning and the related into the planning process (Bishop & Williams, 2012). government decision-making processes are complex Temporary land uses vary from a single day for a with many organisations and groups having the concert or a triathlon event to ten days for music view that town planning rules and processes festival and use private land or public roads, result in delay, uncertainty and inconsistency and amenities and parks with the addition of temporary the outcomes lack transparency (Booth, 2007; stages and associated facilities. Events can be staged Campbell & Marshall, 2005; McFarland, 2011). in any public or private space and are often used Town planners face many dilemmas in expediting to revitalise a struggling ‘downtown’ area used as applications in a transparent and equitable manner, short term solutions to reinvigorate a space without while taking into consideration the interests of prejudicing the land use planning objectives for parties concerned. Th e assessment of applications a locality (Kotval, Machemer, & Mullin, 2010; can be a time consuming process fraught with Th omas, 2012). And with the impact of the Global contradictions, where decisions are made in volatile Financial Crisis, temporary events were seen as and constantly changing environment (Kelly & a cost eff ective alternative to major development Smith, 2008). Generally this criticism focuses on actions (Lehtovuori & Ruoppila, 2012). the physical aspects of permanent development and when the concept of temporary uses is introduced Tourism and Events In 2007, the Australian Research Council funded the outcomes are even more complex. Queensland, 2013, p. 1 the ‘Festivals Project’ to determine the diversity Cover and number of, together with the social, economic In town planning terms, temporary land uses raise many questions, particularly as to what should be considered as ‘temporary’. In the broadest sense, many land uses can be considered temporary and may include, for example, mining, a concrete batching plant for construction of a freeway, movie fi lming in a national park, festivals, community celebrations and agricultural fi eld days and even using a race course for a camping and caravan show. Temporary land uses can be one-off , intermittent or regular activities on private or public spaces, rural or urban land, on water or in the air. In the form of events, with the use of temporary facilities such as stages, amenities and food kiosks to improve the experience, these temporary land uses provide an important leisure experience for tourists, visitors and local residents (Getz, 2012). Adding to the land use decision-making complexity is the changing locations of events in, an attempt to by event promoters, to create a point of diff erence from other events and attract more spectators.
16 – Queensland Planner – Summer 2013 – Vol 53 No 4 Focus
Th e demand and desire for a scenic locations on summarised this complexities in a section on water, land or even in the air when combined with Licences, Permits and Approvals; the diversity of improved temporary structures, new locations become feasible venues and the ‘…For most events there will be the necessity to land use decision-making more complicated comply with diff erent regulations laid down by local (Bishop & Williams, 2012). Th e event decision- government or state government departments and making process is often further complicated with authorities. Th ese requirements should be determined some temporary uses, such as tourist events, in the initial planning stage to ensure compliance and are determined outside the land use planning avoid negative surprises at the last minute.’ (Tourism jurisdiction by an economic development manager and Events Queensland, 2013, p. 36) or tourism offi cer in some local governments. Where to from here? Th e complexity of the land use decision-making Th e planning process can continue to function with events is exacerbated by the potential legal this degree of uncertainty but that course of action determinations in relation to the concept of is not acceptable. Action is required to undertake development. Th e term ‘development’, as set out in an audit of the range and diversity of events and the various Acts governing planning, appears to be the related assessment processes, and engage with interpreted by the legal system as it relates to physical all stakeholders to develop a land use based events structures and permanent use of land with temporary strategy for the future. uses deemed to be transient with minimal impact not within the requirements for a development Garry O’Dell is a qualifi ed town planner with more application. Th e various legal determinations may than 30 years planning experience in local government create uncertainty in the application of land use and private practice mainly in the NSW planning rules to events and may lead to the use of legal system. He is currently undertaking doctoral research avenues to prevent events. Th reatening legal action at the University of Newcastle exploring the or requiring compliance with a development process local government decision-making process for can be triggered by community antagonism towards temporary land uses such as tourist events. a small fi tness training groups using a beach for paid exercise (Olding, 2011) or even a council requiring REFERENCES a development application for an open garden as Bishop, P., & Willia ms, L. (2012). The Temporary City. London: Routledge. a result of a neighbour’s complaint. Increasingly a Booth, P. (2007). The control of discretion: Planning and the Common-Law tradition. Planning Theory, 6(2), 127-145. doi: 10.1177/1473095207077585 community may seek legislative action to control Campbell, H., & Mars hall, R. (2005). Professionalism and Planning in Britain. and limit activities that do not fi t their perception of The Town Planning Review, 76(2), 191-214. doi: 10.2307/40112641 an area’s character. Whilst these potential extremes Getz, D. (2008). Eve nt tourism: Defi nition, evolution, and research. Tourism of legislative response may happen for very diff erent Management, 29(3), 403-428. doi: 10.1016/j.tourman.2007.07.017 reasons, it does reinforce the potential for the current Getz, D. (2012). Eve nt Studies: Theory, Research and Policy for Planned ad hoc approach to land use decisions for temporary Events (2nd ed.). London: Routledge. uses to threaten the staging of future festivals, Gibson, C., Connell, J., Waitt, G., & Walmsley, J. (2011). The Extent and Signifi cance of Rural Festivals. In C. Gibson & J. Connell (Eds.), Festival outdoor concerts, trade fairs and even a surf carnival. Places - Revitalising Rural Australia. Bristol: Channel View Publications. Th e Queensland legislative framework in relation Gibson, C., & Stewar t, A. (2009). Reinventing Rural Places - The Extent and Impact of Festivals in Rural and Regional Australia. In Australian Research to temporary uses is fragmented and complex: Council (Ed.). Wollongong: GeoQuest Research Centre School of Earth and the Sustainable Planning Act 2009 refers to Environmental Sciences University of Wollongong. development but is silent on temporary uses; Kelly, A. H., & Smit h, C. (2008). The Capriciousness of Australian Plan- ning Law: Zoning Objectives in NSW as a Case Study. Urban Policy and under the Local Government Act, a council may do Research, 26(1), 83-100. doi: 10.1080/08111140701724562 anything that is necessary or convenient for the Kotval, Z., Machemer , P., & Mullin, J. (2010). Transformative Temporary Use. good rule of its area; the Brisbane City Council’s In C. A. Brebbia (Ed.), The Sustainable World Local Law (Entertainment Venues and Events) 1999 SOUTHAMPTON: WIT Press. Retrieved from http://newcastle.eblib.com/ governs any event that will attract more than patron/FullRecord.aspx?p=585018. 2000 people; the Environmental Protection Act Lehtovuori, P., & Ruoppila, S. (2012). Temporary uses as means of experi- 1994 allows for mobile and temporary activity mental urban planning McFarland, P. (2011). The best planning system in Australia or a system in provided the use does not result in any permanent need of review? An analysis of the New South Wales planning system. Plan- structures or any physical landform change and is ning Perspectives, 26(3), 403-422. doi: 10.1080/02665433.2011.575557 for less than 28 days in a calendar year and fi nally, Olding, R. (2011). A ggressive military-style training squads in parks get the Gold Coast Planning Scheme permits uses of a marching orders, Sydney Morning Herald, p. 5. temporary nature such as; carnivals, circuses, fairs, Thomas, L. (2012). T emporary Urbanism. Urban Design Group Journal. fetes, rodeos, shows and community uses. Th is Tourism and Events Q ueensland. (2013). How to organise special events demonstrates the diversity of legislative responses to and festivals in Queensland. Brisbane: Tourism and Events Queensland. be addressed and the complexity. Even the Tourism Whitford, M. (2004). Event Public Policy Development in the Northern Sub-Regional Organisation of Councils, Queensland Australia. Journal of and Events Queensland Events Handbook is subtly Convention & Event Tourism, 6(3), 81-99. doi: 10.1300/J452v06n03_06
Queensland Planner – Summer 2013 – Vol 53 No 4 – 17 Focus Major events experienced Eve Vickerson MPIA and Linda Tait MPIA CPP
Informing this issue’s theme of Major Events a panel of infrastructure investment was all about things that experienced planners - Milena Mog, John Gaskell and have a life beyond the Commonwealth Games. Th e Mary Mealy – came together to share their experiences investment in pools, velodromes, stadiums leverage of past events in Queensland. across the community forever after. What was involved in the planning for Milena – Of course, all those facilities are aging. Expo ’88 and the 1982 Commonwealth Th e lifespan of those facilities are nearing their Games? end and now we should be looking at rejuvenating them. Now the Commonwealth Games on the Gold Milena – In terms of the planning for Expo, the Coast (has) a whole new suite of facilities being majority was done by the state (government)... in constructed down there. We are two cities but we are the Bjeke Petersen era and Lou Edwards was actually not too divided, only an hour on public transport. in charge of running Expo and (it was) very much something that was taken out of local government What happens after the event? Were the hands. Th ere was an urgency to bring a major event promises delivered on? into the city and also to lift its profi le and bring in Mary – Th e Games was a transformative project. It the monetary gains associated with six months of was an event that changed the face of Brisbane and fun and entertainment...things that Brisbane had Queensland. never seen before. I don’t think that Brisbane had an inkling of the benefi ts it would bring. Milena – It brought people in and they could get a taste for the city. It was a much younger city... Even Th e Commonwealth Games was a diff erent kettle now, we do not have the facilities of Sydney or of fi sh. It was for a shorter period of time, 15 Melbourne. While the coast has been a draw card, days in total, but there was a substantial lead up now there are a number of people who travel to to the Games. Both events required extensive Brisbane for its own sake. planning, and putting together a suite of potential accommodation for those particular events. So in John - In terms of cultural legacy, there was terms of the Commonwealth Games it was the fi rst signifi cant impacts to the way we viewed ourselves peg in the round hole shall we say but I don’t think and the ways others viewed us through the it brought into Brisbane the diversity of food and Commonwealth Games and then through Expo culture and visitors (of Expo). and that’s culturally signifi cant for who we are as a city, our identity how people view us. Projecting Mary – Th e whole idea of looking for a forward... when you think that the G20 is being transformative project can be dated to the held here, this says we are the ‘New World City’... Commonwealth Games. it makes sense that we’re now looking at the G20 What were the legacies of those events? for Brisbane, the Gold Coast Games for the Gold Coast, potentially very signifi cant events, similar Milena - Griffi th Uni reused all the housing to how signifi cant the Commonwealth Games and components and some of the facilities simply Expo were in the past. I would say that the cultural because it was there. And the QEII stadium has issue is very signifi cant in planning terms. been used for a multitude of uses for concerts. So the events and facilities do open it up for Major event site choice alternative uses. In terms of its location QEII didn’t Mary – I think it’s interesting that South Bank was have good connectivity. only one of the sites that were being considered John – It was the same for Chandler and for Expo, including Pimpama and Hope Island, Boondall. It was trend in infrastructure and halfway down the coast. It’s hard to imagine now, facilities where they were built on the fringe. given the central, integrated location of South Serviced by buses, freeways, private vehicles. It Bank. What was then the Clem Jones Parkland, was very much refl ective of the thinking of the was 8-10 hectares that seemed to make sense with time. Th e infrastructure coordination was good a whole lot of boarding houses, transitional uses for Brisbane at the time. It was quite diff erent to and industry there. When the state government Expo as it was a very focussed sporting event. Th e made the decision regarding the South Bank site,
18 – Queensland Planner – Summer 2013 – Vol 53 No 4 Focus the transport wasn’t great, but it was certainly better than some alternative sites. So for whatever reasons they made that decision, it was the right site because no-one would doubt now that it was obviously the right one as it has been the best thing that has happened to the centre of Brisbane.
Milena – It was visionary of the government of the time, because the area was industry, derelict, there were wharves. It just was not a nice area. It wasn’t safe, so not a nice place at all. So there’s that element as well. Major event impacts Milena – One of the things that Brisbane City Mary – Th e Commonwealth Games was probably Council has identifi ed as a local authority is the the fi rst volunteer experience on such a large scale, need for accommodation in Brisbane and close and I know people came out in droves to volunteer to Brisbane. It’s just not available to the scale and over a long period as part of Expo. standard that is expected by leaders coming to the G20, and their entourage. You’re not talking about Milena – Th e volunteers at the Commonwealth just one person or two people. You could expect Games actually ran the operation per se in terms that the President of the United States would have of the social interaction. If you got lost, there was about 60 people travelling with him. For security someone to point you in the right direction. reasons, a hotel could be taken out by that group. Mary – It was exciting to be part of it and there So there are lots of implications and I don’t know had been nothing like it before. whether those implications have been thought through thoroughly, the impacts on residents, Linda – Was the interest in volunteering part of workers and schools of the inner city. the existing character of Brisbane or was there a new drive to encourage participation? Was council’s recent decision to waive infrastructure charges on high end hotels Mary – If you look at the Mud Army after the a response to this awareness of a lack of (2011) fl oods, people just come forward if there accommodation ahead of the G20? is something to galvanise them. A major event is the diff erent end of the spectrum, but if people are Milena – It was, and there were other incentives to given the opportunity and shown where they can bring that sort of infrastructure in. However, there is participate, people will get involved. a requirement that the development meets star-rating benchmarks. Th ere are incentives, but the problem John – Th e South Bank site had a big impact. As is that there is a long lead time to get development Expo was focussed so much on that area, it did up and running and you have to run the gauntlet of have a big impact on the West End and South submitters and appeals. So there are very few. Brisbane area. It was documented that it wasn’t just knocking over boarding houses. Th ere were Milena – Interestingly, demand for accommodation a lot of concerns at the time that there was a during Expo led to the inclusion of the defi ned lack of accommodation and also the long term ‘Homestay’ use, allowing residents to rent out their gentrifi cation was a major part of the planning premises for accommodation during Expo. Th ere debate, particularly in the 1980s. was an exemption to getting approvals at that stage. So there was a lot of people in Spring Hill and close Mary – I recall was that the fi rst design (for to public transport took advantage of this. the use of the Expo site after the event) that was announced... the public opposition to Mary – Changes to liquor licensing led to an gentrifi cation meant that they had to have quite opening up of the restaurant market. a few goes at the design. People had felt that this is our city, our land, so that after Expo they had It has been said that the Commonwealth a design competition, a design exploration... Games involved a lot of volunteerism and Everyone knew that this was a big opportunity for that that was a key part of its success. the city, but the answer took a long time to get Was that something that is true and right. Th ere was a huge public backlash to the idea continues? that it would become an area of residential towers for rich people and not enough parkland that they John – Yes. Volunteers were a pretty big part of had to make a diff erent response. both events. Queensland Planner – Summer 2013 – Vol 53 No 4 – 19 Focus
Trading hours and footpath dining had been restricted. Expo brought about an expectation for eating outdoors and enjoying the environment.
Mary – Th ere had been fears about safety and health. Th is was certainly before the coff ee revolution.
Lessons for the future?
John – Ideally, the investment into the event can translate into how the site is going to be used into the future, be it university accommodation, sporting facilities, infrastructure across a city, or a massive parkland public open space investment. If those kinds of concepts are understood before the event, surely there’s an ability to have a much better, cleaner and faster turnaround after the event. Upon refl ection, it just seemed to take a long time after Expo and I don’t think that was a healthy break. A lot of the positive momentum was lost.
Mary – We are now more aware and governments are more aware of the need to communicate core messages early...that’s where the (public) outrage comes from, if people think that they are given an area as a gift and it’s going to stay that way forever. What we understand is infl uenced by what we know, whereas most people in the community don’t know unless they are told that, for example, this is Milena – In terms of proportion, the same amount a temporary use and what will follow needs to be of parkland has been given back to the people, communicated even if we don’t know the detail. plus there are extra facilities such as the pool, the We still need to tell people. rainforest, the commercial enterprises such as the restaurants. John – Th inking forward to the Gold Coast Games and the fantastic opportunity that it off ers that John – Th ere was a lot of public ownership over the city, the new rail going in, the new facilities, the public open space. It took years before they settled cultural diff erences that will make. It really is a on the masterplan of the area. (1998-1992 before sensational opportunity. If that’s built on for the the opening.) It felt like it took a while at the time Gold Coast it’s a great thing for that city. Similarly, to get from great event, fantastic feeling in the city with the G20 in Brisbane, we have the opportunity to a resolution of what’s going to the Expo site. to say, we’re not Sydney or Melbourne, but we are Because there was a lot of ownership of the site, it an emerging world city and I think that’s a valid spurred on new interest in riverfront development. statement to make. Milena – Yes, at that time the Riverwalk came into Mary – At the time of Expo, the development was its youth and the concept of river access began. under state control and the site was completely Th is then led to the parkland and facilities being cleared with only three buildings left. Th ere wasn’t transferred into public ownership. a lot of energy put into what people thought of John – Yes, Expo was a confi rmation of the focus this. Now there is an understanding of the benefi t on the river. Riverside Centre was developed about and importance of communication with local that stage. Th at start of the city was starting to government and the community. change and orientate towards the river. Th is was part of a cultural change, a shift to the idea that we Milena – Th inking of legacies – When people have to use the river, that it’s a great place. think of Brisbane, they think of Expo. Th e Commonwealth Games not so much. Other Milena - In the 1990s the riverside markets started. legacies are the outdoor dining, homestay Th e concept of bringing people in to use the city opportunities, access to the river, the parkland, on the weekends. Th ere was a lot of literature boardwalk…the city as a place to recreate about how the city was dead and dormant on the on the weekend as well as work during the weekends and at night time. week. 20 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper Coastal resilience: planning with communities for sea level rise Hans Oerlemans, Claudia Baldwin MPIA
Abstract estimated at between $37.7 and $52.2 when confronted with the existing billion (DCCEE, 2011). One year earlier, and growing urbanisation (Lazarow et Th e undeniable consequences of climate the Gold Coast Council assessed that al, 2008; DCCEE, 2009). In existing change and sea level rise for coastal the damage bill for the Nerang River developments which have social and communities in Australia require pro-active catchment alone could exceed $200 economic value, the policies state planning in conjunction with communities million (GCCC, 2010a). that erosion control works may be to develop innovative solutions. Queensland acceptable, but they should be seen as a polices and approaches to coastal planning Th is paper examines the tensions around last resort, with retreat also being given recommend engagement with the Australia's urbanised coastal areas, where consideration. community, but provide limited guidance councils will have to weigh up 'soft' about how to do this in a contested options and 'hard' coastal protection While the Queensland state government environment, involving potential trade- interventions to protect economic assets. provides overall policy direction and data, off s of amenity and security, through use of Issues will arise about sharing costs and implementation is primarily through hard infrastructure solutions. We refer to the potential for maladaptive actions local government planning schemes an example from the Netherlands, which that unintentionally lead to increased and erosion management plans. Local has had to develop new approaches to vulnerability or additional impact governments execute erosion control deal with sea level rise, both technically (Singh-Peterson et al, 2013). Using the works like beach nourishment and and institutionally. For the beach town Gold Coast as an example, there appears undertake the community engagement of Katwijk, the new approach meant that to be limited direct guidance in how to around these projects (DEHP, 2012a; the community was interactively involved deal with this tension. We argue that Lazarow et al, 2008). In this context, the in the design of coastal reinforcement. a key component of any strategy is to Gold Coast City Council has developed a Combining local experience with technical engage the community in framing the Shoreline Management Plan, with actions knowhow resulted in a novel outcome that issues and fi nding solutions that they for a 10-year capital works program strengthened both coast and town and is will have to live with. Highly technical (Lazarow et al, 2008; GCCC, 2010b). promoted internationally as an example information about risk and options Th e 'Th ree Point Plan for Coastal of innovation. Lessons from this Dutch needs to be transparent, salient, credible Protection' presents the execution of experience should encourage Australian and legitimate (Leith et al, 2012) and three coastal protection projects between coastal protection agencies to engage understood in the context of local 2013 and 2015 (GCCC, 2013). Th e communities in a more interactive way to knowledge. We showcase a methodology 5-year Sustainable Flood Management fi nd their own solutions. to engage the community in the design Strategy (GCCC 2010a) sets out to of these protection measures, where an prepare fl ood risk management plans Introduction interactive planning method turned for the entire city. Strategic planning for an intrusive protection measure into a fl ood risks due to climate change and Th e growing urbanised population supported improvement of the urban sea level rise thus seem to be well on the (UNFPA, 2007) combined with climate environment in Katwijk at Sea, the agenda. change and sea level rise present major Netherlands. We conclude with lessons In this area the challenge is particularly challenges for Australia's coastal cities for Queensland and the Gold Coast based great. Th e Gold Coast population has and towns (IPCC, 2007). Past land use on the case study. decisions have resulted in thirteen percent grown from 110,900 in 1976 (ABS, of the urban population in Australia now Approaches to community 1986) to 497,848 in 2008 (ABS, 2008) living in low elevation coastal zones - 1.6 engagement in coastal and is projected to be 900,000 by 2030 times more than in the USA or Europe urbanisation and climate change (DCCEE, 2009). Th e urban footprint, (UNFPA 2007). Increased risk of on the other hand, fi rmly delineates the fl ooding is expected from the cumulative Mitigating these risks requires vision area beyond which no urban expansion factors of sea level rise and increased and long-term commitment (UNFPA, is allowed (DIP, 2009). In other words, storm events with more intense rainfalls, 2007). Th erefore the Queensland state the current urban footprint is expected storm tides and exposure to erosion has adopted policies like the Queensland to accommodate almost double the (IPPC, 2007; DCCEE, 2009). In 2011, Coastal Plan (DEHP, 2012a; DEHP, amount of people. Already, the highest between 50,000 and 70,000 buildings 2013) and the State Policy for Coastal density is within areas that are the most in Queensland were reckoned to be Management (DEHP 2012b). Th e vulnerable to the impacts of climate exposed to the risk of sea level rise of 1.1 policies aim fi rst of all to protect the change (Lazarow et al, 2008). At the same metres. Combined with infrastructure, natural coastal processes and prevent time, sources for beach nourishment the total replacement value in 2011 was degradation. Th is might not be suffi cient sand will diminish in the long-term. Queensland Planner – Summer 2013 – Vol 53 No 4 – 21 Refereed paper
Th is makes it likely that the city will degree of public support for long term system, the annual loss of dunes was need to decide at a certain moment for coastal decision-making. turned into structural accretion. Th e planned retreat or protection with hard coastal zone became more natural, with coastal structures (Lazarow et al, 2008). Th e following case study of Katwijk gives stronger native vegetation and less need Th e Gold Coast already utilises both an example of a scenario development for vegetation management. Planting soft and hard protection works, like the game that was used to resolve a complex beach grass to capture sand has stopped, A-line seawall. Furthermore, Cooper problem in coastal protection in the while the existing beach grass has become and Lemckert (2012, p. 6) point out that Netherlands. stronger (V&W, 2000). Th e pro-active 'building with nature' approach has since the community and corporate attitude of A Dutch approach the Gold Coast in some ways ‘mirror the produced other innovations, like the Dutch attitude of human dominance over Th e Gold Coast City Council refers 'sand engine' (Prov. Z-Holland, 2013) nature’. regularly to ‘the Delft Report’ (GCCC, and artifi cial oyster reefs that grow faster 2005; GCCC, 2010b; GCCC, 2013). than the sea level rises (Didde, 2013). Seen in this light, the projects of the Th e research for this report on coastal three-point-plan may be just the start of erosion, was commissioned after the 1967 Review safety standards ongoing strategies to address the tension fl oods and executed by the Hydraulic At the end of the 1990s, the safety of an urban environment impacted by Laboratory in Delft, the Netherlands climate change. With potential concern standards for the primary fl ood (Delft Hydraulics Laboratory, 1970). protection were still from the 1950s. within the community about amenity Since then, the Dutch approach and disproportionate cost sharing, But the economical importance of the toward coastal protection has changed hinterland had grown tremendously. as Singh-Peterson et al (2013) point dramatically. out, engagement and support of the Th e GNP increased six-fold between the community is necessary (DCCEE, Th e Netherlands has a long tradition of 1950s and 2000 (corrected for infl ation). 2011). Th e Queensland Coastal Plan dealing with fl ood issues. Much of the During the same period the number of and following policies (DEHP, 2012a; country is reclaimed from the sea, rivers residents had increased by 50% (V&W, DEHP, 2012b; DEHP, 2013a; DEHP, and lakes and 26% of the country lies 2000). It also became clear that the 2013b) all emphasise the need for active below sea level (Slomp, 2012). Th is is government would be made accountable community participation. In practice possible due to a system of dykes and by its citizens after a natural disaster, even however, both European and American water boards, which started in the late though the individuals have their own research has found that the majority of Middle Ages (Tol & Langen, 2000). responsibilities too. community participation in planning Major fl ood disasters in 1916 and 1953 After 2000 the safety standards were and environmental management takes led to the Zuiderzee land reclamations updated in accordance with the improved place at the 'lowest' level: information and the so called 'delta works' to confi ne understanding of damage-risks of the provision and minimal consultation the fl ood threats from the sea (Olsthoorn various hinterland areas. Th e new (APaNGO, 2007; Bierele and Cayford, et al, 2009). Th ese works strengthened statutory safety levels currently vary 2002). Yet participation with higher levels the technical ability and the mentality from 1:250 to 1:10,000 per year (fi gure of interaction and deliberation has been of 'fi ght against water' (Bendeler et al, 1) (MI&M, 2011). Flood protection found to enhance problem solving ability, 1998). Meanwhile, the western coast, in the whole country, along rivers and improve quality of, and support for the a sandy dune system, was managed coast, were assessed and where necessary decision (de Graaf, 2007). to prevent erosion, mostly through retaining sand with sandblow-screens, We draw attention to involving planting beach grass and occasional beach stakeholders in the development of nourishment. But despite all the technical scenarios and via scenario games as a eff orts, the coast was deteriorating. Up to method of higher level of engagement 1990, every year 20 hectares of dune area that stimulates imagination, capacity was lost due to structural erosion (V&W, building and social learning. Previous 2000). studies have shown that involving the range of stakeholders in a scenario 'Fight against water' becomes development process is an eff ective 'Building with nature' way to allow them to explore complex combinations of choices and outcomes In the late 1980s a new, system-based (Evans et al, 2013; Shaw et al, 2009). approach towards nature, and coastal Integrating local expertise in scenario protection, developed in the country: development can expand the information 'building with nature', using natural included and embed scientifi c processes to design the environment perspectives within local meaning (Metz, 1998; Metz & Heuvel, 2012; contexts (Shaw et al, 2009). Furthermore, Didde, 2013). Th e Netherlands Figure 1. The dyke-rings with updated flood protection started to experiment with intensifying levels. The safety levels express the chance that Tompkins et al (2008) argue that public a maximum water level occurs, which the flood understanding of the trade-off s that have supplementary sand depositing on the protection needs to be able to withstand. (Source: to be made, is critical in gaining some coast. By putting more sand into the MI&N, 2011) 22 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper works are carried out to bring them up increased. Katwijk was the fi rst project to standard. Segments that were safe at on the coast where the community was the time, but would not be safe in 2100 actively involved in researching the design due to expected climate change, were solutions. incorporated too (V&W, 2000). Katwijk, the case study, is one of the 'weak links' Case study: Katwick at Sea on the coast. One of the 'weak links' in the primary Community demands more fl ood protection on the coast was the influence town of Katwijk at Sea (Prov. Z-Holland, 2007). While in 2007, the coast met the Protests in the 1960s and 1970s against safety standard of 1:10,000, assessments top-down planning in the Netherlands, revealed that it would not within 50 led to community consultation being a Figure 2. Katwijk with the current primary protection years, and would need to be reinforced line (red dotted) going through the town. In blue, statutory part of the planning process. the dune erosion and inundation levels during a before 2015. But for many, the minimal requirements 1:10,000 storm. (Source: Arcadis et al, 2008) Th e dune strip was not wide enough for were not satisfactory. In the 1990s a natural 'growing with the sea' strategy. experiments with interactive participation Retreat was economically not viable became more common (Goorbergh & and above all culturally and socially not Scheff ers, 2012; de Graaf, 2007). Th e acceptable. Th at would be sacrifi cing a idea was that involving the community centuries old town to coastal protection. in an early stage would create a broader Figure 3. In the existing situation the dunes are 6m Landward the urban area continued far support and simultaneously less high at the lowest point and 30m wide. They need inland, past the dune zone. Raising the resistance, leading to less objections in to be raised up to 10m and widened up to 170m, existing protection line was not cost- the statutory consultation process and depending on the combination and the technical eff ective. Innovative localised or off shore prevent follow-up court cases. De Graaf solution; higher means smaller, lower means wider. (Source: OKRA landscape architects) solutions did not meet the requirements (2007) and Boedeltje (2009) show that in fi eld between the water management (Arcadis et al, 2008). Th us protection most cases a higher level of participation authorities and local communities involved going seaward (fi gure 2). Th is does indeed lead to higher levels of together with landscape conservationists. meant raising and widening the dunes, support in the community. Th e almost fl ood disasters of 1993 and up to 4 metres in height and 150 metres Water management was the last 'technical 1995, led to the conclusion the water in width (fi gure 3) (Arcadis et al, 2009b). fortress' in the Netherlands to incorporate management authorities had to involve Th is would have a big impact on the a higher level of participation into the community to be able to solve the connections between the town and the sea their work. During the 1980s dyke- safety issue quicker (Keijts, 2007). and beach (fi gure 4), with major cultural, reinforcements had become a battle- Over the years the level of participation social and economic implications.
Figure 4. A few of the visualisations that were made to show the spatial effects of different protection models on the town. Left: the view from a main shopping street in the centre. Right: a view on the boulevard. (Source: OKRA landscape architects) Queensland Planner – Summer 2013 – Vol 53 No 4 – 23 Refereed paper
Figure 5. Reference images for the three options. From left to right: ‘dune’, a pure sand solution, ‘dyke’, a hard construction, and ‘dyke in dune’, an enhanced kind of seawall. (Source: Arcadis) Katwijk, originally a fi sherman's village, of the primary fl ood protection and program in general. So the people of was (and is) a fl ourishing family beach necessary measures to compensate spatial Katwijk were not surprised, but rather town. Tourism and visitors from the qualities that will be lost or diminished anxious to learn what it would mean for region were important for its economy. in the process. Th e province is the their town (Arcadis, 2008). Th e beach and sea were an integral aspect supervising authority over assessing the Prior to this meeting, the possible of the town's ambiance, with direct sea- protection's safety levels every fi ve years. solutions were researched and modelled views from the boulevard and the main It also guards the spatial quality of the by the water experts. Given the shopping street. Th e beach pavilions solution and the integration with regional conditions, the options for Katwijk were: provided the cafes, pubs and restaurants policies. Yet it all happens within the (1) dune, (2) dyke-in-dune (comparable for the centre, making shopping and territory of the local government, so they with a seawall) - both with various beach an integrated experience. In such a are a primary partner too. Province and combinations of widths and heights - or context, reinforcing the fl ood protection council would need to fund any extra (3) a plain dyke (fi gure 5) (Arcadis et al, could not be handled as just another spatial quality. A multi-disciplinary team 2008). Th ese models were also presented coastal-engineering project. Th e prime of consultants carried out the work: the during the public meeting. Showing there objective, to strengthen the primary project management, water engineering, were solutions for the problem did reduce fl ood protection, needed to be carried design and interactive participation. the anxiety in the community over the out with special care for the local spatial threat of climate change. Knowing that it quality and in close interaction with the Interactive planning can be solved made it easier to accept the community (Rijnland, 2008). Th e interactive planning process was problem (Arcadis, 2008). done in four steps and formed an Th e second step was a range of interviews Th e project was carried out under integrated part of the design process. (or focus groups) with stakeholder authority of the local water board, groups (retail traders, residents, nature in collaboration with the national, First the issue and process were organisations, council, etc.) to detect provincial and local government. Th e communicated at a public meeting, the spatial issues and tensions in town, water board is accountable for the followed by a news letter, featuring: both existing and related to the coastal primary fl ood protection. Th e national Why is it necessary to strengthen the project. Th e interviews were held with government is responsible for controlling coast at Katwijk and how will we involve small groups of two to three people and structural erosion. It also sets the you? Th e national government and in confi dence. Th is gave stakeholders the statutory safety levels and therefore funds the province had already extensively chance to talk freely and vent emotions, the technically required improvements communicated on the weak-links which helped to further reduce anxiety.
Figure 6. The six game pieces for coastal protection and the elements of the compensation measures. All coast pieces were on scale. The vertical scale of the coastal elements was ten-fold the surface scale, to make the height differences more clearly visible. (Source: OKRA, 2008) 24 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper
Figure 7. Impressions of the scenario game event. Figure 8. Artist impression of the parking combined in the dyke-in-dune solution, made for the Council of Katwijk (Source: OKRA landscape architect) to promote further research and implementation of the idea. (Source: OKRA landscape architects) Th e result was a clear picture of the core elements represented the diff erences in Th e general consensus was that the town spatial dilemmas: construction costs. For the compensation did not need the most expensive solution. elements, the players had the choice of Th ey preferred a moderate, but specially 1. View versus Distance - the sea- a range of paths, pavilions, parking and tailored one, with various widths and view from the town, boulevard and recreational facilities. Th ese elements were heights, to match the height diff erences apartments, which sought a low and wide derived from the interviews. of the local settings. Th e dyke-in-dune solution, versus the distance between the option was only used along the town town and the beach, arguing for a high Th e scenario game was played in three centre, to minimise the disconnection and small design. diff erent ambition levels: 'austerely & with the beach. Th e number of paths and effi cient' (corresponding to the funding 2. Ecology and peacefulness versus Facilities recreational uses had a bit more variation. provided by the national government), Th e introduction of a dune pavilion was and connection - the highly valued space 'moderate', and 'luxurious', with for nature and experiencing quietness, generally agreed upon, as stepping-stone increasing amount of points to use. between the centre and the beach. Most versus the active use of the coastal zone to Th e bigger the budget, the more keep the town and beach connected and surprising was a solution of one group; compensation elements they had to they integrated parking into a dyke-in- solve the existing shortage of parking and include. Furthermore, the game was recreational facilities. dune solution, to solve the shortage of played with mixed groups. Residents, parking in the centre. When this solution Th e urban footprint of Katwijk was retailers and hospitality businesses, was presented to the other groups, it confi ned by the surrounding dunes public servants, pressure groups, water- gained massive support (Arcadis et al, already for years. Gradual densifi cation engineers, and politicians all had a part 2009a). of the town had consumed space for in the decision process, so they were parking, sport and play. Th e council was mixed in the groups. It was important Th e outcomes of the scenario game were planning to build a subterranean parking that the various parties heard each used to develop the design for the coastal structure under one of the last squares. other's considerations and arguments. protection. Regular meetings with all Several stakeholders hoped to use the Each mixed group developed their own governmental levels kept these parties coastal strip for playgrounds and small solution. Th e outcome was presented to attuned in the process. Several workshops sports fi elds, although landscape and the other groups and further discussed. were held with stakeholder groups to nature organisations were not enthusiastic In total the game was played with nine work out the details (OKRA, 2009). about that idea. groups with six to eight people each Feedback to the wider community was (fi gure 7). organised through regular newsletters. Th e dilemmas were transformed into a 'scenario game' (OKRA 2008). Th e game was composed of two parts (fi gure 6).
1. Make your own coastal protection solution.
2. Add elements to compensate for lost spatial qualities.
Th e players had six types of coastal elements at their disposal: dune and dyke- in-dune, both in three diff erent widths and heights. (It had already become clear that a dyke was unwelcome.) Th e elements were on scale and needed to be placed on a board, showing Figure 9. The final design of the coastal protection, with the parking solution incorporated in such a way that the 1:10,000 safety requirement is met. Construction starts 2nd half of 2013. For more information on the design the existing situation. Points on the and process, visit: www.kustwerkkatwijk.nl. (Source: OKRA landscape architects) Queensland Planner – Summer 2013 – Vol 53 No 4 – 25 Refereed paper
Th e most diffi cult part in the design to improve their coastal protection after their contribution in the identifi cation process was the integration of the parking the Katrina and Sandy hurricanes. Th e of risks, adaptation options and criteria solution. Th e technicians of the water DCCEE wrote in 2009 (p140): ‘maintain for appraisal’ (DEHP 2013a, p16). Th e board and national water department natural coastal defences … and encourage Katwijk project demonstrates what that were not enthusiastic about this idea. It mechanisms for their enhancement’. Th is could look like and the potential benefi ts. was technically very diffi cult, to almost can be seen as advocacy to apply 'building impossible, to combine underground with nature' also in Australia. Use of a traditional approach in Katwijk parking with a dyke-in-dune and still might have resulted in similarly modelled meet the required 1:10,000 safety level. Flood risk levels dunes, with diff erent heights and widths, But the council took the option seriously Queensland uses a general 1:100 year and the same paths, pavilions and (fi gure 8) and had it further developed event as measurement for fl ood-risk. recreational elements. But according (Gemeente Katwijk, 2009). It would be a In recent years a discussion has started to De Graaf's (2007) and Boedeltje's beautiful solution for the serious parking within the governmental authorities to (2009) fi ndings, it would not have problem in the town's centre and it had diff erentiate the fl ood-risks. Th e DCCEE had the same level of understanding, a vast support of the community. It (2009) as well as the Queensland general support and ownership by the took quite some massaging, negotiating Reconstruction Authority after the 2011 community and stakeholders. Th e and modifying, but in the end, the fl oods (QRA, 2012) both identify the holistic approach was essential to achieve combination of parking and dyke-in- need to consider fl ood events rarer than this. Th e project focussed not only on dune is going to be realised (fi gure the nominal 100 year return period. strengthening coastal protection, but also 9). Th e process further went relatively Th e Queensland Coastal Plan (2012a) on the integrated spatial quality, cultural smooth. Th e design was supported by does diversify risks for development identity and economic functioning of most of the community. Th ere were assessments. Th e coastal hazard the town. Discussing these issues with no serious objections in the statutory adaptation guidelines work with variable the stakeholders and incorporating the consultation process and no court cases. safety levels, based on use and life span outcomes into the plan, created goodwill Th e construction started in the second (DEHP, 2012a). and support for a diffi cult and intrusive half of 2013 (Kustwerk Katwijk, 2013). operation. Th e Dutch system takes a diff erent Recommendations for Queensland approach. It uses protecting areas and Important to achieve that support was Before elaborating on community various safety standards, based on obtaining trust and creating an open participation, we comment on two aspects economical value, potential damage costs and transparent process. Th e interviews that arise from comparing the context and gravity of the fl ood event (V&W, were an eff ective start to create a base of of the Dutch case with the situation in 2000). Th is provides a diff erent scale for trust. Th e scenario games strengthened Queensland and the Gold Coast. We the cost-benefi t analysis of interventions, that. Proving that there were no pre-set acknowledge that these two are not within both in time and in area; not protecting designs and the discussion was truly open our area of expertise, however suggest that every single building or collection of was very important. Giving feedback to it would be worthwhile to look into the plots on their own, but protecting large the community and demonstrating how possible benefi ts of these approaches for urban areas. the results were incorporated into the Queensland and the Gold Coast. subsequent process were also essential. Interactive community Th e fact that the council adopted the Building with nature participation parking proposal, communicated that to the public and fought for it in the project Th e Queensland approach towards Th e Guideline for Preparing a Coastal meetings, undoubtedly contributed to coastal management prioritises preventing Hazard Adaptation Strategy (DEHP, the credibility and legitimacy of the disturbance of the natural processes. 2013a) presents a well-defi ned nine-step decision. Th is is consistent with the Th e Dutch context displays that it is framework for developing a strategy. fi ndings of ApaNGO (2007), Boedeltje possible to work more actively with the It includes two stages of community (2009) and Leith (2012), emphasizing forces of nature. Th ere is a wide range consultation: step four (consult the the importance of trust, openness, of options between trying to control community about the potential adaptation transparency and a clear link to decision- nature and preventing disturbance. A options) and step eight (engage in making. Absence of these ingredients can pro-active approach towards the natural community consultation on the draft seriously undermine the participation coastal system can have big advantages. adaptation strategy). Th is does not imply process (APaNGO, 2007). Larger buff ers can be created, to better a high level of engagement. According to withstand storm-tides and periods of both De Graaf's (2007) and Boedeltje's A crucial aspect was that community intensifi ed erosion. Approaching the (2009) conclusions, it will not likely to consultation about the potential coast as a larger system than just a council gain a higher level of support; certainly adaptation options was not simply can be cost-eff ective and lessen the need not more than the statutory consultation about giving information and asking for for local interventions. 'Building with process would. However the DEHP also feedback. Th rough the scenario game the nature' has proven to be very useful for states: ‘community and stakeholders community stakeholders were actively many other countries (Didde, 2013). should be engaged early in the process, by involved in modelling, researching and Th e USA is using this Dutch expertise providing opportunities for integrating discussing the diff erent options. 26 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper
Th e visual tools and interaction between in harmony with the community. For all parties, including the engineers, this we turned to the case of Katwijk public servants and politicians, improved in the Netherlands. From the Dutch the quality of the discussion, level of coastal protection context, we ask for mutual understanding of trade-off s further consideration of two aspects: and acceptance of the result, consistent to investigate the usefulness of the with Evans et al (2013), Shaw et al 'building with nature' approach and to (2009) and Tompkins et al (2008). Th e review the way of determining fl ood-risk understanding worked both ways. For levels. Our analysis of the benefi ts of the instance, the fact that the engineers interactive planning process of Katwijk were involved in the discussion when demonstrated ways to explore complex the 'parking in dyke-in-dune' option and highly technical coastal protection was proposed, and they experienced the options with the community that could community's overwhelming support, be applied in Queensland and on the made them more receptive to the idea. Gold Coast. It thus achieved the goals of public participation as stated by Slomp (2012, Hans Oerlemans is Founding partner p70): ‘to improve the quality of and wOnder city+landscape, Queensland; PIA agreement on the end result, by involving affi liate member local knowledge, validating democratic and Claudia Baldwinis is Regional and Urban transparent government, in which citizens Planning Program, member ‘Sustainability are able to infl uence decision-making’. Research Centre’ and ‘Engaged Cluster’, Finally, a traditional approach would School of Social Sciences, University of the certainly have missed out on the unique Sunshine Coast, Queensland; PIA corporate innovation that is now going to be member realised in Katwijk. We surmise that the social learning derived from engaging and communicating with others assisted in the ability to explore novel possibilities (Wenger, 2000). Incorporating the spatial issues of a wider area into the project and mobilising the creativity of the wider audience achieved this. Th e parking structure made the project more expensive than a pure coastal protection solution, but less expensive than the total of what two separated solutions would have cost. Even more important, by solving a spatial issue that was originally outside the scope of the project but important to the community, the coastal protection project achieved Queensland Planner Advertising Sizing and Pricing Black and White a positive association, which made Full page 185x275 $450.00 the negative impacts more acceptable. Half page 185x130 $275.00 Quarter page 90x130 $195.00 Th at the Minister of Infrastructure Business card 90x50 $125.00 and Environment now uses Katwijk Full Colour as a proud example to promote Dutch Full page (outside back) 185x275 $775.00 Half page (outside back) 185x130 $475.00 innovation and water management Full page (inside back) 185x275 $625.00 abroad (NOS, 2013) is a pleasant and Half page (inside back) 185x130 $375.00 Full page 185x275 $550.00 unintended side eff ect. Half page 185x130 $325.00 Inserts (supplied by advertiser) Conclusion Max 4 Sheets (A4 size or smaller) $375.00 Additional sheets $25.00 We suggest that the combination Over 4 sheets Neg of coastal urbanisation and climate (Inserts must be supplied as one document) change in Australia will lead to greater A discount of 10% will apply if booking is for 4 (four) consecutive issues and payment is made in full. contestation about natural and soft All Artwork supplied in .TIFF or PDF form with 3mm bleed versus active fl ood protection measures For more information or should you wish to advertise please contact: in the future. Th e paper explored how Queensland planner (07) 5465 7331 or [email protected] can this be resolved on a local scale and Queensland Planner – Summer 2013 – Vol 53 No 4 – 27 Refereed paper
REFERENCES Evans, L., Hicks, C., Fidelman, P., Tobin, R. and Perry, A., OKRA landscape architects, 2009. Katwijk - Kust, 2013. Future Scenarios as a Research Tool: Investigating visualisatie m.e.r. alternatieven en ruimtelijke pakketten. ABS, 1986. Year book: Australia 1986, catalogue no. Climate Change Impacts, Adaptation Options and (Version September 2009). 1301.0. Outcomes for the Great Barrier Reef, Australia. Human Ecology, DOI 10.1007/s10745-013-9601-0. Olsthoorn, X., Werff, P. van der, Bouwer, L.M., Huitema, ABS, 2008. Regional population growth, Australia, D., 2009. Neo-Atlantis: The Netherlands under a 5-m sea 2006–07, catalogue no. 3218.0. GCCC, 2005. Gold Coast Shoreline Management Review, level rise. Climatic Change, 91, 103–122. Information Sheet. Gold Coast City Council, Gold Coast. ABS, 2012. Regional Population Growth, Australia, 2012, Prov. Z-Holland, 2007. Ruimtelijke Verkenning catalogue no. 3218.0 GCCC, 2009. Climate Change Strategy 2009 - 2014: Kustveiligheid en Ruimtelijke Kwaliteit Katwijk aan APaNGO, 2007. Community engagement in planning setting direction, enabling action. Gold Coast City Council, Zee. Provincie Zuid-Holland, Gemeente Katwijk, - exploring the way forward. Amos G., Warburton D., Gold Coast. Hoogheemraadschap Rijnland. APaNGO Project Partners. TCPA and APaNGO Project GCCC, 2010a. Sustainable Flood Management Strategy, Prov. Z-Holland, 2013. De Zandmotor [online]. Provincie Partners, Oldham. Protecting our future. Gold Coast City Council, Gold Zuid-Holland and Rijkswaterstaat. Available from: http:// Arcadis, 2008. Verslag Informatiebijeenkomst Coast. www.dezandmotor.nl/ [Accessed 24 July 2013]. Kustversterking Katwijk, gehouden in 't Zeepaviljoen - GCCC, 2010b. Gold Coast Shoreline Management Plan, QRA, 2012. Planning for stronger, more resilient Katwijk aan Zee. 4 September 2008. Summary Report. Gold Coast City Council, Gold Coast. fl oodplains, Part 2 - measuring to support fl oodplain Arcadis, Alkyon, OKRA landscape architects, 2008. management in future planning schemes, draft version. GCCC, 2013. Three Point Plan for Coastal Protection: a Queensland Reconstruction Authority. Startnotitie kustversterking Katwijk. long term solution for Gold Coast beaches. Gold Coast Arcadis, Alkyon and OKRA landscape architects, 2009a. City Council and Queensland Government. Gold Coast. Rijnland, 2008. Selectieleidraad kustversterking Katwijk. Presentation 'Workshop Ruimtelijke Kwaliteit'. landscape Hoogheemraadschap van Rijnland, Projectgroep zwakke Gemeente Katwijk, 2009. Brochure 'Kracht in de kust, schakel Katwijk. (Version 5.0, 6 February 2008). architects. Presented on 25 June 2009, Katwijk aan Zee. kustversterking versterkt'. Gemeente Katwijk, Katwijk aan Arcadis, Alkyon and OKRA landscape architects, 2009b. Zee. Shaw, A., Sheppard, S., Burch, S., Flanders, D., Wiek, A., Nota varianten en alternatieven kustversterking Katwijk. Carmichael, J., Robinson, J., Cohen, S., 2009. Making Goorbergh, F. van den and Scheffers, J., 2012. local futures tangible - Synthesizing, downscaling and Beierle, T. and Cayford, J., 2002. Democracy in Practice: Participatie @ groene ruimte. Landwerk, Wageningen. visualizing climate change scenarios for participatory Public Participation in Environmental Decisions, de Graaf, L., 2007. Gedragen beleid, een bestuurskundig capacity building. Global Environmental Change, 19, Resources for the Future, Washington D.C. onderzoek naar interactief beleid en draagvlak in de stad 447-463. Bendeler, G., Boom, L. van den, Hulspas, M., Smith, R., Utrecht. Thesis (PhD). Eburon, Delft. Singh-Peterson, L., Serrao-Neumann, S., Crick, F. and 1998. Nat & droog, Nederland met andere ogen bekeken. IPCC, 2007. Climate Change 2007, Synthesis Report Sporne, I., 2013. Planning for climate change across Rijkswaterstaat, Architectura & Natura, Amsterdam. of the Fourth Assessment Report. Core Writing Team: borders: insights from the Gold Coast (QLD) – Tweed (NSW) region, Australian Planner, 50:2, 148-156. Boedeltje, M.M., 2009. Draagvlak door interactief bestuur: Pachauri R.K., Reisinger A. (Eds.). Intergovernmental fi ctie of feit? Thesis (PhD). Universiteit Twente, Enschede. Panel on Climate Change (IPCC), Geneva - Switzerland. Slomp, R., 2012. Flood Risk and Water Management in the Netherlands, a 2012 update. Report for Ministry of Cooper, J. and Lemckert, C., 2012. Extreme sea-level Keijts, B. (ed.), 2007. Ruimte voor hoogwater; Nederland infrastructure and the Environment. rise and adaptation options for coastal resort cities: A rivierenland. Land+Water, Koninklijke BDU Uitgevers, qualitative assessment from the Gold Coast, Australia. Barneveld. Tol, R., and Langen, A., 2000. A concise history of Dutch Ocean & Coastal Management, 64, 1-14. Kustwerk Katwijk, 2013. Kustwerk Katwijk, uitvoering river fl oods. Climate Change 46, 357–369. DCCEE, 2009. Climate Change Risks to Australia’s [online]. Provincie Zuid-Holland, Gemeente Katwijk, Tompkins, E., Few, R., and Brown, K., 2008. Scenario- Coasts. Commonwealth of Australia, Department of Hoogheemraadschap Rijnland and Rijkswaterstaat. based stakeholder engagement: Incorporating Climate Change and Energy Effi ciency. Available from: http://www.kustwerkkatwijk.nl/public/index. stakeholders preferences into coastal planning for climate php?id=18 [Accessed 26 July 2013] change, Journal of Environmental Management, 88, DCCEE, 2011. Climate Change Risks to Coastal 1580–1592. Buildings and Infrastructure. Commonwealth of Australia, Lazarow, N., Tomlinson, R., Pointeau, R., Strauss, D., Department of Climate Change and Energy Effi ciency. Noriega, R., Kirkpatrick, S., Stuart, G., Hunt, S., 2008. UNFPA, 2007. State of world population 2007: Unleashing Gold Coast Shoreline Management Plan, Volume 1 - 4. the Potential of Urban Growth; United Nations Population DEHP, 2011. State of the Environment Queensland 2011. Gold Coast City Council in partnership with Griffi th Fund, New York - USA. State of Queensland, Department of Environment and University. Heritage Protection. V&W, 2000. 3e kustnota; traditie, trends en toekomst. Leith, P., Coffey, B., Haward, M., O'Toole, K. and Allen, National Government The Netherlands, Ministerie van DEHP, 2012a. Queensland Coastal Plan. State of S., 2012. Improving science uptake in coastal zone Verkeer en Waterstaat (Ministry of Transport and Water). Queensland, Department of Environment and Heritage management: principles for science engagement and their Protection, (version February 2012). application in south-eastern Tasmania. In Kenchington, Wenger, E., 2000, Communities of practice and social R., Stocker, L. and Wood, D. (ed). Sustainable Coastal learning systems. Organization, 7, 225-246. DEHP, 2012b. Queensland Coastal Plan, State Planning Management and Climate Adaptation: Global Lessons Policy 3/11 Guideline: Coastal Protection. State of from Regional Approaches in Australia. CSIRO Publishing, Queensland, Department of Environment and Heritage Collingwood Vic. Protection, (version May 2013). Metz, T., 1998. Nieuwe natuur, reportages over DEHP, 2013b. Draft Coastal Management Plan. State of veranderend landschap. Ambo, Amsterdam. Queensland, Department of Environment and Heritage Protection. Metz, T., Heuvel, M. van den, 2012. Salt & Sweet, water and the Dutch. NAi Publishers, Rotterdam. DEHP, 2013a. Guidelines for Preparing a Coastal Hazard Adaptation Strategy. State of Queensland, Department of MI&M, 2011. Veiligheid Nederland in Kaart Environment and Heritage Protection. (VNK2), overschrijdingskans, overstromingskans, overstromingsrisico. Ministerie van Infra & Milieu, Delft Hydraulics Laboratory, 1970. Gold Coast, Interprovinciaal Overleg, Unie van Waterschappen. Queensland, Australia; Coastal erosion and related problems. Report 257. Delft Hydraulics Laboratory, Delft, NOS, 2013. Nederland gaat VS helpen met voorkomen The Netherlands. van rampen [online]. NOS news, 6 march 2013. Available online: http://nos.nl/video/lq/481705-nederland-gaat-vs- Didde, R., 2013. De natuur bouwt mee, kustverdediging helpen-met-voorkomen-van-rampen.html [Accessed 25 en ecologie. Wageningen World, nr.2, 18-21. July 2013] DIP, 2009. South East Queensland Regional Plan OKRA landscape architects, 2008. Presentation 'Scenario 2009–2031. Queensland Government, Department of Spel Kustversterking Katwijk'. Presented on 22, 23 and 26 Infrastructure and Planning. Brisbane. September 2008, Katwijk aan Zee.
28 – Queensland Planner – Summer 2013 – Vol 53 No 4 Queensland Planner – Summer 2013 – Vol 53 No 4 – 29 Refereed paper A (re-)assessment of Northern Australia’s agricultural future Keith Noble MSc, B. Agr. Sc, CPP MPIA, FAICD
Abstract Introduction The historic challenges of Northern Australian agriculture Agriculture is a risky business. Th e Kharas (2010) predicts a world variables farmers evaluate and plan population of 9 billion by 2020, with Northern Australia is vast, geographically for include weather, markets, supply more than half the world's middle class diverse, alternatively (and at times chain, fi nance, labour, changing policy in Asia. Th is larger, wealthier population simultaneously) very wet and very dry. and legislation, natural disasters, will require more food, and prefer food It is a unique part of the tropics, with pests and disease. Forecasts of a world of higher value, particularly meat and an enormous natural resource base and population approaching nine billion processed foods. Linehan et al. (2013) remarkably small human population with more than half the middle class speculate that the real value of global (Lawn 2011) lying within a well-resourced living in Asia by 2020 are anticipated food demand is expected to rise by 70 per and democratically governed fi rst world to drive major changes in global food cent by 2050 from 2007 levels. Cole and economy. Ball (2010) believe it unlikely that Asia demand and investment in agriculture, Th is Northern Australian landscape has will achieve food self-suffi ciency. already a major contributor to Northern had tens of thousands of years of human Australia’s economy. Northern Australia’s Th is demand is anticipated to provide intervention (Gammage, 2011), and the opportunities for further agricultural opportunities for Australia’s northern notion that the ‘natural’ landscape can be development are diverse, but not agricultural industries through proximity maintained in its pre-European state simply agreed, and being actively explored by to Asia and perceived under-utilisation of by excluding or limiting contemporary contemporary Australia. In February its land resource. Australia’s newly-elected land uses does not stand up to scrutiny. Th e 2011, cyclone Yasi cut a swathe through number of Indigenous Australians living Prime Minister has committed to a Far North Queensland’s natural and in the north is much higher (14.3% of White Paper on the further development production environments, compounding the population) than the national average of Northern Australia (Liberal Party of cyclone Larry’s impacts fi ve years previous. (2.3%), but the lifestyle and land use of Australia, 2013), and the incumbent Whilst cyclones are geographically defi ned, Traditional Owners is now typifi ed by Queensland government wants to double their impact manifests in the convoluted relatively stable population centres and the state’s agricultural production by environment of world markets and social cessation of nomadic lifestyles. European 2040. However, anyone involved in systems. How can industry expansion settlement in the late nineteenth and early North Australian agriculture for more be contemplated when the incidence of twentieth centuries was instrumental in this than a decade would be excused for a such disasters is predicted to increase as change, and it was the search for economic degree of scepticism. Th is is not the fi rst a consequence of climate change? Now is opportunity that drove the invasion of time grand plans have been espoused a strategic time for planners to consider Aboriginal lands (Bottoms, 2013). for Northern Australia, founded on how an expanding Northern Australian the premise of underutilised land and From the earliest beginnings of European agricultural industry can prepare for the bountiful water resources providing settlement a bright future has been forecast disasters it will encounter whilst embracing the wherewithal to feed the world’s for Northern Australia. John McDouall sustainable agriculture and community starving millions. Consider also that Stuart in his 1865 exploration (p.6) well-being. Th is paper, through literature contemporary farm returns often fail remarked: and personal experience analysis, considers to meet production costs, the social, the relevance of history to contemporary I have no hesitation in saying the country I environmental and climatic unknowns aspirations and introduces resilience have discovered on and around the banks of associated with increased agricultural alongside production as research objectives, the Adelaide River (near present day Darwin) scale, and the inherent risks in as literature suggests that not only are is more favourable than any other part of the agriculture, and suddenly the future does resilient organisations about surviving, but continent…I feel confi dent that, in a few not seem quite so clear. thriving. years, it will become one of the brightest gems in the British crown. Th is paper attempts, through a review Keywords: of academic and grey literature fi ltered Northern Australia; agriculture; food Australia’s non-indigenous development through personal industry experience, to security, planning; disaster, resilience, has been succinctly described by Aschmann identify whether today’s aspirations to history. (1977) as one of an initial investment expand Northern Australian agriculture of capital and introduction of people diff er from past attempts, and what (sometimes involuntary), extensive might be the key elements for Australia’s pastoralism and limited subsistence planners and policy makers? farming, followed by mineral discoveries 30 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper
(often gold) that attracted enormous Twenty years later, Dr ‘Nugget’ Coombs, growth. Even in the more climatically immigration. Extensive agriculture a NADC commissioner and long-time hospitable and richer soils of the Atherton developed to feed these immigrants, often advocate for Northern Australia, said in his Tablelands (Queensland), Gilmore subsequently specialising in a commodity opening address to the fi rst annual seminar (2005) considered government-sponsored for export. Manufacturing and service of the Northern Australia Research Unit agriculture was more a means of closer industries developed to supply the (NARU) in Darwin, August 1977, that: settlement and strategic defence than a food established population, and the whole producing venture, and that the maize, complex became economically self- the optimism at the time and the prevailing dairy and tobacco industries so established sustaining. Aschmann thought that this views … that growth was a good thing, that foundered when Australian governments sequence was interrupted in the north at the it could be achieved primarily by seeking to realigned the economy according to neo- agricultural stage not because of climatic impose on the North a pattern of productive liberal principles. In 1985, Bauer gave or soil limitations, but because, while activity and a way of life essentially European three reasons for the failure of large-scale transport was expensive, it was cheaper than in its origin and substantially European in its agriculture in Northern Australia: (1) local production (a cost-benefi t outcome relevance. Th ere was little attempt to envisage distance; (2) ignorance of the physical repeated in today’s food-mile debates). the gradual emergence of a more humanized environment; and (3) a reprehensible environment capable of self-perpetuation, aversion to learning by experience. Australia was on the winning end of many providing a context for a more rewarding life late nineteenth / early twentieth century for those who already lived within it (Bauer, Th e twenty-fi rst century has seen a innovations. Mechanisation (the petrol 1977: 8-9). focus on contemporary Indigenous engine, refrigeration) combined with labour management of the North Australian shortages (driving the need to innovate) It is signifi cant that this conference was natural landscapes for the provision of and large areas of land to allow Australia themed ‘Cropping in Northern Australia: environmental services (Cook and Williams to supply cheap meat and butter to Europe Anatomy of Success and Failure’. An analysis 2012), but neither the previous policy and satisfy the demand for an improved of six large-scale agricultural developments, failure, nor the emerging recognition of working class diet. Advances in pesticides, undertaken by Fisher et al. (1977), showed Indigenous environmental stewardship herbicides and fertilisers continued to all failed to achieve their stated objectives. has stopped the on-going speculation increase productivity. (European) farming A particularly pertinent comment was about Northern Australia’s opportunities systems based on labour-intensive methods made by Mollah (1980) in his retrospective for further agricultural development. Th e could not compete in open markets against analysis of the cropping development at twenty-fi rst century drought in Southern mechanised industrial agriculture (Barr, Tipperary Station. In 1967, encouraged by Australia (compounded by over-allocation 2009). a world-wide beef shortage, tax concessions of irrigation water) fed this debate to the to encourage investment, and the fi rst extent that in 2007 then Prime Minister Th e fi rst Commonwealth Administrator stages of the Ord River development, the John Howard established, as part of of the Northern Territory, Dr Gilruth, Tipperary Land Corporation (registered his plan for water security, a Northern placed great hope in the pastoral industry in Texas, USA), announced the biggest Australian Land and Water (NALW) to develop the economy, and in 1914 the agricultural project attempted in Australia, Taskforce to: (British-owned) Vestey group of companies with ‘American know-how’ and $20 were allowed to build and operate the million to establish a farming community examine the potential for further land and Darwin meatworks, which in turn of 15,000 people, producing 300,000 t of water development in Northern Australia, facilitated control of vast pastoral leases. grain sorghum annually and high quality with particular emphasis on the identifi cation Th e meatworks development doubled beef cattle. Th ese great expectations were of the capacity of the north to play a role in Darwin’s population but, plagued by never realised, and farming was all but future agricultural development (Garnett et industrial action and failure to complete the abandoned after three years and the station al., 2008: vii). rail line to the Katherine River, proved a sold back to Australian interests. Mollah’s dismal failure. Th ey did not open till 1917, comment (p. 156) was that ‘Pioneering Whilst some industry sectors consider and closed in 1920 (Carment, 1996). developments in the North had no room the projections and assumptions in the for those who doubted their own ability NALW report conservative (Maher, 2011), Th e Second World War catalysed strategic but, from the outcome at Tipperary, the report clearly states that the future concerns about the North’s ‘emptiness’ and it is equally clear that confi dence is no of the North should not be limited to highlighted opportunities for development. substitute for knowledge and experience’. pastoralism and/or irrigated agriculture, Th is resulted in a government ‘imbued with and that decision making should be based a newly-forged nationalism and readiness Cook (2009) summarised fi ve historic on a thorough and balanced assessment of to engineer the future’ establishing pushes for (Northern Territory) agricultural the economic, social and environmental the North Australian Development development in which government implications. A commitment to such Committee (NADC) in 1946, charged led research eff orts assumed that once a decision making context, assisted by with ‘investigating the region’s pastoral, the science was in place, agricultural ongoing technological developments, agricultural, mining, forestry, marine, development would follow, but concluded would address the fi rst two of Bauer’s fuel and power, and processing and the aspirational drivers for these initiatives concerns, but what of the ‘reprehensible manufacturing industries; and to guide related as much to addressing the perceived aversion to learning by experience’? systematic development of these industries’ risks of Australia’s ‘empty North’ as a McLean and Gray (2012) promote the (Garnett et al., 2008: vi). genuine commitment to agricultural ‘thinking use of history’ as a mechanism Queensland Planner – Summer 2013 – Vol 53 No 4 – 31 Refereed paper for reinterpretation of the premises of But as with most complex problems, told a panel on Capitalising on the Asian major policy decisions. Without this, the the opportunity for a simple solution Century that ‘in a globalised world … potential for repeating past failure remains, fades under scrutiny. Maye and Kirwan’s success lies as much in our degree of particularly if the underlying policy editorial in the 2013 special issue on Food internationalisation as in domestic factors’ paradigms are ill-conceived or fl awed. Security warns of the risks to agriculture’s (CEDA 2013). But Australia’s agricultural other outputs such as nature conservation history diff ers from Europe and the USA, Food security – the driver for change and water management from pressures being export-orientated around demands to produce food and energy. In the same for food and raw materials, more-often International interest in food security was issue Allen (p. 137) warns that ‘solutions driven by foreign investment, resulting focused by the 2007–2008 spike in world that move control farther from the ability in a lack of (or unwillingness to) fi nance food prices (Figure 1) as a consequence of of people in their everyday lives should be value-adding or processing capacity a shift from food to biofuel production subjected to particular scrutiny’, and that (Burch et al., 1999). Th is has locked (Fraser 2008). It has been retrospectively productivist goals of doubling food output production into low value, unprocessed, argued that the crisis was actually triggered could exacerbate – not solve – problems competitive commodities vulnerable to by a combination of short-term factors and associated with food insecurity such as free market price fl uctuations exacerbated longer-term trends, including: a series of energy costs, climate change, and food by increasing application of neo-liberal extreme weather events; low global stock of low nutritional quality, and suggests policies (Lawrence et al., 2013). Australia’s levels; the use of food crops for biofuels; that food security is a collective problem agricultural sector is the second least rising energy prices; export bans; and requiring a social solution. Innovative and protected (i.e. subsidised) in the OECD increased fi nancial speculation; along refreshing outcomes are occurring from this (O’Meagher 2005). So despite recognition with structural problems rooted in global debate, such as Project Catalyst - a Coca- of the need to value-add, most Australian resource limits (see Maye and Kirwan, Cola / WWF / Australian Government / food exports continue to be commodities 2013). But politicians and policy-makers NRM Regional Bodies / sugar industry processed to the minimum necessary for were left in no doubt as to the potential partnership aimed at reducing the stability and transport, with supply chains threats to food security, the increasing environmental impacts of sugar production fragmented and dominated by overseas interdependence of agri-food systems, on the Great Barrier Reef through interests (Ball 2012). and the political and social importance of innovative farming practices (WWF 2013), aff ordable food (Ambler-Edwards et al., and along the way substantiating Coca- Th e interplay of issues related to northern 2009; Lagi et al., 2011). Cola’s social licence to source sugar from agriculture expansion includes: water a politically stable but environmentally resource management, climate change, Th e United Nations Food and Agriculture sensitive area (Cocco 2013). disaster management, environmental Organisation World Food Security summit impacts (particularly on the Great Barrier in Rome, June 2008, helped establish Th e Australian International Food Security Reef), native title and other tenure issues, a consensus that food security was a key Centre was established in 2012 to consider the future of regional communities, ‘master frame’ of twenty-fi rst century public Australia’s role in feeding an extra two or foreign ownership of land and production policy (Mooney and Hunt, 2009) and that three billion people without irretrievably units, the economics of developing new the risks to food security also included damaging the planet, and focuses on irrigation areas, and who will pay for slower-onset, more diff use perturbations Australia’s role in research and extension the infrastructure. Th e role Northern such as global climate change (Erickson, (Blight 2012). Th e Department of Foreign Australia will play in future world food 2009). Aff airs and Trade Secretary Peter Varghese security is therefore politically and socially
Time dependence of FAO Food Price Index from January 2004 to May 2011. -- Red dashed vertical lines correspond to beginning dates of ‘food riots’ and protests associated with the major recent unrest in North Africa and the Middle East. The overall death toll is reported in parentheses. Blue vertical line indicates the date, December 13, 2010, on which the authors submitted a report to the U.S. government, warning of the link between food prices, social unrest and political instability. Inset shows FAO Food Price Index from 1990 to 2011. Source: Lagi et al., 2011, p. 3. 32 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper contentious in addition to the structural and broader Australian community? schisms in the iconic Amazon eco- issues raised by Bauer in 1977. Not everyone wants to live in a city, but indigenous alliance due to indigenous regional residents also desire a future for people never becoming a central part of Contemporary challenges to their children and access to services for large conservation organisations agenda, Northern Australian agriculture an aging population. Neither should the and their subsequent failure to live up aspirations continuing appeal of the frontier ethos as to the discursive (and promotional) personifi ed by Dame Mary Durack’s ‘Kings assurances they made to indigenous people. A viable and diverse agricultural industry in Grass Castles’ (1959) be dismissed, as Cruz (2010: 421) warns that ‘publishing already exists in Northern Australia, not-withstanding the lessons of history, the information on a webpage does not with beef, dairy, corn, sorghum, peanuts, challenge of future opportunities continues make it more accessible to members of a avocadoes, mangoes, nuts, sugar, and a to excite individuals and the nation alike local community, but rather allows that myriad of fruits and vegetables as well (Bendle, 2013), even though terra nullius knowledge to escape local control and be as plantation timber. Agriculture is a never existed. used by anyone’. major contributor to Northern Australia’s economy: in 2008/09 direct primary Th e tyrannies of distance have been Th e driver for many environmental industry turnover for Far Northern signifi cantly addressed since Bauer’s time, campaigns has been concerns over Queensland was estimated at over $1.7bn, particularly through the mining boom of resource exploitation. However, mining with direct employment of about 9,000 the past decade, with improvements in is increasingly providing opportunities people (RDA, 2011). Australia is the road and rail links, port infrastructure, for Aboriginal business and employment world’s largest exporter of sheep and cattle, communication systems and employment in Northern Australia. Fortescue Metals, and eighty per cent of exported cattle are opportunities, albeit many of these on an iron ore miner in the Pilbara area of from the north, valued at $416 million a fl y-in fl y-out basis. Both agriculture Western Australia, have invested $1 billion in 2006-7 (Gray 2009), and a Darwin and export oriented mining have strong with Aboriginal businesses since 2010, abattoir capable of processing 220,000 projected growth in Northern Australia’s and employs 1,000 Aboriginal people head per annum is under construction short to medium term future, and the (Power, 2013). Th is experience contrasts (AACo, 2012). Australia’s current food obvious synergies of shared infrastructure sharply with historical agricultural industry production is estimated to feed 60 million are recognised (Owens 2013). Historically engagement with Aboriginal people, people annually. Whilst the total Australian though, the internal distribution of costs characterised initially by dispossession agricultural output represents only one per and benefi ts from mining within host and persecution before moving through cent of global production, Australia is the regions transitioning from agricultural exploitation to widespread disengagement. fourth largest net agricultural exporter in economies has been limited (Hoath & Even today, the Far North Queensland the world behind Brazil, Argentina and Pavez, 2013). banana industry is heavily dependent on the Netherlands – well above nations like international backpacker labour, whilst China and the USA that have enormous Indigenous Australian’s role in the aboriginal communities in the same region domestic agricultural sectors, but in net past and present management of experience underemployment (personal terms import just as much as they export Australian landscapes appears obvious experience and observation). (Keogh, 2009). When the outcomes to contemporary Australia, but has not of agricultural research are considered, been an easy transition, riven initially Planning for the unexpected Australia contributes to the diets of 400 by uncertainty and community division In February 2011, tropical cyclone Yasi million people worldwide (Prasad & over the implications of the 1992 Mabo cut a swathe through Far Northern Langridge, 2012). High Court decision and subsequent Commonwealth Government's Native Queensland’s natural and production Th e Australian Government’s 2012 White Title Act 1993 impacts on private and environments, compounding the impacts Paper ‘Australia in the Asian Century’ refers leasehold tenure. Today, a majority of from cyclone Larry fi ve years previous. to the opportunities for agriculture to the north is owned and managed by Unlike cyclone Larry, Yasi occurred in the be a major benefi ciary of forecast Asian Indigenous Australians, many employed aftermath of the Global Financial Crisis growth, which Keogh (2012a) interprets in community ranger programmes. Th ese and in the context of a high Australian as a signal that policy makers may now communities are actively addressing social dollar and a ‘summer of disasters’ see opportunities for agriculture rather issues and considering alternate futures throughout eastern Australia. Agricultural than as a sunset industry, and argues that and meaningful employment opportunities industry impact was widespread, but Australian superannuation funds should for their growing communities (annual highly variable. Th e banana industry join overseas pension funds in investing in population growth is 2.1% compared with received extensive media coverage with agriculture (2012b). Th e National Farmer’s 1.6% for the national average (BITRE, 90% destruction of the Australian crop, Federation (2012) ‘Blueprint for Australian 2009)). but within 10 months was back in full Agriculture 2013-2020’ sets out a strong production and facing chronic market future for Australian agriculture and its Th is is not to say unanimity exists oversupply and resultant low prices. Th e supply chain. - consider the divided response to tropical fruit industry however was dealt Queensland’s Wild Rivers legislation and a crippling blow that will take years to Industry excitement about the potential contested development of the Kimberly recover, if ever. Sugar cane, cattle, dairy, for growth is understandable, but what are natural gas resource. On the international other tree and horticulture crops were the aspirations of the northern-resident stage Pieck and Moog (2009) describe also aff ected to varying degrees relative to Queensland Planner – Summer 2013 – Vol 53 No 4 – 33 Refereed paper their geographical relation to the cyclone’s include weather, markets, supply chain, regional participation in natural resource path, but recovery times from Yasi did not fi nance, labour availability, changing management. However, there continues to mirror those from Larry fi ve years earlier legislation, natural disasters, pests and be a lack of clarity and certainty as to the (personal experience and observation). disease. Lawrence et al. (2013) point out property rights conferred by pastoral lease that over time neo-liberal policy has sought arrangements, and approaches vary across How can industry expansion be to foster self-reliance in the management jurisdictions to allow non-pastoral land contemplated when the incidence of of environmental risk by Australian uses - generally treating them as special such disasters is predicted to increase as agriculture rather than expecting it to be cases within the legislation. Th is lack of a consequence of climate change (King, addressed through government funding as formal recognition refl ects the narrow 2010), with less climatic predictability a national problem, and Gill (2011) makes and prescriptive nature of pastoral lease and more disasters impacting upon an the important point that whilst farmers arrangements (Productivity Commission, increasing and more vulnerable population have accepted their responsibility to 2002). (ISDR 2008 , Barratt et al. 2009, Handmer manage risk, their capacity to do so is often et al., 2012, Prabhaker et al., 2009), and sorely tested. Th ere is an argument that as Th ere is also an emerging discussion with regional and remote communities a consequence of constantly dealing with around the need to explore alternate in tropical Queensland among Australia’s risk, farmers are conservative when it comes governance systems from global to local most vulnerable in the face of climate to issues such as politics and the projected scales to address the contemporary social, change (Dale et al., 2011)? Indeed Flint impacts of human-induced climate change, economic and environmental challenges and Luloff (2005) argue that natural and it is ‘understandable that farmers are facing the world and improve multi-sector resource-based communities are generally cautious and contest the claims of those cooperation, particularly since ‘command- viewed as being vulnerable to risks and who would have them reorganise current and-control’ regulation has been found disasters; and climate change will not only production systems’ (Lawrence et al., 2004: wanting (see Taylor, 2010). Higgins et al. aff ect extreme weather events – higher 256). (2010) describe contemporary society’s temperatures and storm surge fl ooding broader global shift from public to private could aff ect current crop and livestock Early settlers lacked the skills and forms of governance, and how farmer- performance, as well as the pest and disease knowledge of their new environment initiated Environmental Management spectrum and pressure. to realise that introduced European Systems take a proactive approach to agricultural practices were often unsuited environmental issues to avert more onerous Additionally, whilst cyclones are stand to Australia (Gray and Lawrence, 2001). intervention by governments. Dale et al. alone and geographically defi ned events, Governments used pastoral lease conditions (2013) describe how linear governance their impact manifests in the convoluted to facilitate land use intensifi cation and systems that are poorly integrated environment of world markets. As an closer settlement, an approach often with the wider system can constrain example, the greatest concern of the incompatible with the unreliable climate thinking, have limited benefi t, and even Australian Banana Growers Council post- and limited carrying capacity of the be counter-productive, and describe Yasi was that lack of supply to supermarkets rangelands (Productivity Commission, Governance Systems Analysis as a systemic/ would result in the importation of bananas 2002). Th e resulting negative impact of adaptive means to optimise collaborative from the Philippines (Australian Food agriculture on Northern Australia’s natural eff ort. Sayer (2010: 20) extends this News, 2011) - an event that would have environment and biodiversity has been argument, warning (contentiously) that more signifi cant and persistent industry extensively documented, and climate environmentalists should be cautious in impact than one cyclone. change is predicted to bring new pressures resisting agricultural innovations that may to bear on both agriculture and biodiversity have short-term or local negative impacts A factor made clear by the two cyclones (Cocklin and Dibden, 2009). on nature but which might provide better was the interdependence of industries long-term options by jump starting the across scale and commodities: without Th e International Assessment of economic growth that people of the African regular banana transport south, freight Agricultural Knowledge, Science and continent so desperately need, and states costs escalated to the point government Technology for Development report (2009) that ‘more effi cient agriculture will in subsidy was required to ensure aff ordable describes agriculture as a multi-output general be better for the environment’, and delivery of much-needed building activity producing not only commodities, that ‘the ability of civil society to assert materials, but farmers capable of sending but environmental services, landscape itself will be much greater when people are product south also required freight amenities and cultural heritage. Cocklin prosperous and well fed’. assistance; the disappearance of back- and Dibden (2009) postulate that it packer employment opportunities is possible to envisage mitigation and Much of the world’s current agricultural impacted on local accommodation and adaptation responses that would alleviate research is undertaken in, and directed tourism businesses; and dairy cows could pressures on all three systems (climate, towards improving, agriculture in developing countries. Pachauri (2011: not be milked without electricity. agriculture, biodiversity), and there has been a wave of interest in shifting emphasis 100) reminds us though that currently Implications for planners away from productivity enhancement ‘few plans for promoting sustainability and towards sustainability and resilience have specifi cally built in means of either Agriculture is a risky business. Th e endless (McNeely and Scherr, 2003; IAASTD, adapting to climate change or promoting variables that farmers must evaluate and 2008, 2009; Nellemann et al., 2009) adaptive capacity’. Whilst the third world plan for (often almost subconsciously) which has been assisted through improved research focus is right, such research 34 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper has only limited relevance to fi rst world has provided spectacular outcomes: Th e international drivers for increased countries such as Australia. However, recognition of the value of zebu cattle by agricultural productivity have bipartisan success in the latter is inexorably bridging Monty Atkinson in 1926 eventuating in recognition and support, and the perils the gap between the two situations, and the Droughtmaster beef breed; the 2004 of remaining in a bulk commodity export Australian agriculture can demonstrate industry-driven eradication of Black paradigm are recognised and the subject of aspirational targets for sound agricultural Sigatoka disease from north Queensland active discussion. Technological innovations practices in other tropical regions. To bananas; the whole-of-industry Brucellosis continue to provide opportunities for achieve this though, the skills loss and Tuberculosis Eradication Campaign addressing Australia’s higher labour costs declining interest in agriculture as a career (BTEC); and the Natural Disaster Relief and ability to compete in world markets. needs to be addressed. Many Australian and Recovery Arrangements response Financing options include foreign capital universities have either closed or merged to recent cyclones and fl oods. With and the superannuation industry, though their agricultural faculties to compensate experience and persistence past failures AACo’s Darwin abattoir shows Australian for a shortfall in students, indicative of a are showing signs of success e.g. the industry is willing and able to invest. With broader negative community view towards recent sale of the Ord Stage II irrigation experience and persistence, past failures commercial agriculture (Keogh 2009). development to Chinese interests (Govt. of like the Ord irrigation scheme are showing Western Australia, 2013), and expanding success. Now is a strategic time to consider how a banana production at Lakeland Downs growing Northern Australian agricultural However, there can be no guarantee (particularly post-cyclones). sector can better prepare itself for the that today’s enthusiasm for northern natural, social, and economic pitfalls Whilst Cottrell (2011) warns that a shared development will be realised, or in time it will encounter, whilst embracing the view of what constitutes resilience in be just another step to a future realisation principles of sustainable agriculture and general and community/social resilience (though the concept of an ‘end point’ recognising and fostering explicit tropical in particular is likely to remain elusive, she is itself misleading). Recognition by expertise. With this in mind, Walker et al. points out that it is essential approaches today’s planners and policy makers of (2010) propose featuring resilience and taken to planning are context specifi c the considerable and honest analysis transformability alongside productivity as and developed in conjunction with undertaken by the agricultural sector in the major objectives of research, as literature those people who are most aff ected. mid-1980s (Bauer, Aschmann, Mollah, and suggests that not only are resilient Barrett (2013) is more direct, stating that their contemporaries) and Cook’s (2009) organisations about surviving, but thriving; whilst ecological resilience theory is well more recent work as an important learning and the dynamic relationships between developed and quantifi able, social resilience record rather than ‘an anatomy of failure’ vulnerability, resilience, hazard impact, is presently more ‘an ubiquitous buzzword shows there can be no one determinant of hazard change, adaptive capacity and social with a lot of arm-waving’, but that there successful Northern agricultural expansion. change in the context of climate change is ‘a big opportunity for ecologist – It will require integration of markets; and disasters can inform approaches to economist collaboration’ in this area. supply chains; people and industry skills; planning for and developing community- fl exible infrastructure; stable government based approaches to adaptation (Cottrell et Conclusions policy, particularly for international al., 2011). trade and environmental management; Northern Australia is well placed market-driven investment in research, In the same way that Cottrell and King temporally and geographically to development and extension for national (2008) emphasise the need to have an learn from and avoid the mistakes of and international arenas - delivered understanding of how people living in others in its continuing development. through an adaptive planning process communities view risk to more eff ectively Historic impediments are being capable of accepting and responding engage them in planning and mitigation addressed: improved roads and vehicles; to input from all levels, including the for disasters, both agricultural industry building technology, remote area power historical and individual experience from individuals and organisations will need to supplies, and air-conditioning; regional current participants. be engaged, understood, and empowered infrastructure, particularly in mining areas; as part of a disaster preparedness planning weather forecasting; and communications, Th is does not imply a ‘recipe’ for some process; along with adoption of the which have the additional benefi t of clever person to develop, rather an principles described by King (2010) to enabling social networks over extended approach that recognises and empowers a achieve climate change adaptation - fl exible, distances. Confusion over land tenure resilient and informed individual/industry/ local, stakeholder driven, and involve all and native title has reduced (though community, able to respond and adapt levels of government and institutions. pastoral lease conditions are still capable to challenge and adversity, and to fi nd of delivering perverse outcomes), solutions through collaboration. Agriculture is an industry connected across while natural resource management scale, commodity, and community, and it understanding and governance are Keith Noble is PhD candidate in the School is this innate capacity that has delivered empowering regional communities and of Earth and Environmental Sciences, James many demonstrations of resilience. Small delivering cross-sectoral outcomes. Cook University, Townsville & Partner, growers need larger growers to attract Insideout Architects P/L & Director, Terrain infrastructure and service provision, but Th e growing Indigenous population is NRM Ltd often smaller growers are the innovators actively considering their future, and that precede wider adoption. Collaboration their legitimacy is without question. [email protected] Queensland Planner – Summer 2013 – Vol 53 No 4 – 35 Refereed paper
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Food security introd ed.). London: Constable. in Australia in an era of neoliberalism, productivism and climate 36 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper ‘Get Big or Get out’ Growing agriculture in Queensland by thinking local! Dylan Porter MPIA & James Mulligan PIA (Graduate)
Abstract Introduction industry, the size of your agricultural property must be equally large by Th e drive to increase food production in As one of the ‘Four Pillars’ of the considering alternative and small scale Queensland is squarely focused on large Queensland economy, agriculture is urban agricultural opportunities . scale industry with limited discussion on arguably one of the most important alternative forms of agriculture or the sustainable industries across the globe, Th rough of review of the relationship contribution this can make to our own as is the case in Queensland. Alongside between urban and rural activities, the communities. As we become an increasingly this importance is the desire of both role of the current planning system in reinforcing traditional farming methods urbanised society the opportunities to industry and state government to see the will be considered. Th e paper will also interact with the farming community agricultural sector and regional economies off er case studies from around Australia have reduced, reinforced by a planning fl ourish, with targets for Queensland to and worldwide, in order to highlight how system that strictly enforces an urban, rural become Asia’s food bowl by ‘doubling new small innovative projects and policies divide. Th is paper discusses an alternative food production by 2040’ seen as the key are creating sustainable and profi table scenario which sees agriculture as a vital vision (DAFF, 2013). and integrated feature of our urban local urban and rural economies. Th is environments, off ering social, economic and However, in a context of increasing paper will also outline how smaller, health benefi ts. costs, declining farm gate prices, and innovative projects are behind a less young people entering farming, it resurgence of interest in farming which Th rough of review of the relationship would seem unwise to try and ‘double is seen, by some, as the new ‘cool thing’ between urban and rural activities, this food production’ by doing more of the to do for young people. Importantly this paper proposes that there is a greater same and only investing in large scale paper will also consider the contribution role for planners to reduce the barriers agricultural industries. Do we really of alternative farming methods in for agriculture to develop as a genuine have the most solid foundation to elevating perceptions of agriculture in feature of our urban environments. It also build sustainable agricultural growth? Queensland to off er more sustainable and suggests that the current planning system is To achieve the target of doubling food balanced community outcomes. reinforcing traditional farming methods by production, do we really comprehend The experience of agriculture as maintaining a conventional land use policy who will be producing our food, how urban dwellers and practices. it will be produced or how it will be Th is paper will also off er case studies from consumed? Th ere is a perception that agriculture around Australia and worldwide, in order is something that typically occurs a to highlight how new small innovative Work recently completed by AECOM, long way from our cities and towns. In projects and policies are creating sustainable Food Connect, and Energetic many cases the concepts of urban and and profi table local urban and rural Communities, in conjunction with rural activities seem quite separate and economies. Th is is to demonstrate that Redland City Council and Gold Coast usually incompatible. Th is perception is urban agriculture has a legitimate function City Council, explored urban based food reinforced as more viable farming land is both as a valuable community resource and systems and rural futures for peri-urban subdivided for residential purposes and economic contribution in its own right. and urban locations. In both cases, this the coverage of urban areas increases. Th e work sought to establish alternative intent of this paper is not to debate the Importantly this paper will also make strategies for food production that merits or otherwise of urbanisation, but the point that this is not a ‘them’ and reinforced locally based distribution to highlight our reduced connections ‘us’ scenario in terms of the rural, urban networks and outlined the benefi ts of a with food production and the continued communities. By elevating the role of status multi layered socio- economic strategy. role for agriculture in an urban setting. of agriculture and the contribution it makes Based upon the themes of economic to social, environmental and economic production, tourism, recreation and Much of the land at the fringes of our aspects of our communities, there is the lifestyle, the work sought to establish a urban areas would appear to be suff ering potential for a renewed appreciation of the renewed identity for declining rural areas from a slow decline while awaiting agricultural industry as a whole. in peri-urban locations. seemingly inevitable re-development. As parcels come forward for development, Keywords: Urban agriculture, Queensland Th is paper explores the notion that often sporadically, there is an uneasy planning system, sustainable communities, in order to achieve ‘big’ we really confl ict between the incoming urban alternative farming, young farmers, urban need to think ‘small’ in order to test life-stylers and the traditional farming planning policy the assumption that to contribute to communities that remain (Choy et al, Queensland’s $13.7 billion agricultural 2007). Queensland Planner – Summer 2013 – Vol 53 No 4 – 37 Refereed paper
Th e confl ict between urban and rural Use the Bowen Planning Scheme as Conversely, the regulatory framework uses was a consistent feature in the an example. Bowen produces 52% of could be seen as maintaining traditional remaining Redland City Council rural Queensland’s tomatoes, 47% of French conventions for agricultural practice areas and the work undertaken in relation and runner beans, 44% of capsicums and by making it ‘too hard’ to consider to the development of the Redland 42% of the aubergines (Sinclair, 2011). farm diversifi cation options. Planning Rural Futures Strategy (AECOM et al, However, the importance of Bowen’s restrictions have still been cited as a 2013). In particular the poultry industry agriculture is not given comparable weight major barrier to farm diversifi cation, as faced increased pressures from urban in the planning scheme, which references shown in a recent study conducted by the encroachment which has caused many land in the rural zone as ‘agricultural Queensland Farmers Federation (QFF, poultry farms to close. Th e scenario is land and land not required to satisfy urban 2012). For example, generic minimum given further weight when adding in growth’ (Bowen Planning Scheme, 2006). lot sizes and buff er separation distances the land use economics of selling low Th is statement is supported by a rural which are completely appropriate in rural value rural land for high value urban zone code which seeks to only limit areas were cited as almost completely purposes which further diminishes the fragmentation by stipulating minimum limiting any agricultural innovation in attractiveness and viability of agricultural lot sizes and prevent land use confl icts peri-urban areas. In the absence of a activities in peri-urban locations. between agriculture and residential broader discussion regarding the future properties. Th e actual regulation of the of agriculture or rural areas, it seems Th e impact of urbanisation upon rural farming activities in the Rural Zone, as unlikely that there has been suffi cient areas is reinforced when remembering with many other Planning Schemes, is public debate to explore or test alternative that the former Redland Shire historically minimal with most development being farming outcomes available, especially had a strong and long running tradition self-assessable. Th e only development smaller but more effi cient farming as a viable agricultural area. Th is required local government approval methods, that would be mutually included some of the fi rst sugar cane is intensive animal husbandry or acceptable to both the producers and crops in Queensland, rich and fertile development within 300m of a sensitive residential community. soil which supported extensive crops, receptor in a residential zone. and even unique breeds of strawberries. In considering these discussion points, it Th is reputation was described in great Discussions regarding future requirements is important to refl ect on the extensive detail in an article entitled ‘Th e Red for the agricultural and farming industry discussions, policy review, design reviews Lands of Queensland’ which went onto are also notably absent from the Bowen and guidance documents published in describe the rich and fertile soils of the Planning Scheme, with only general relation to the residential market. Th ese Redlands district as one of the greatest references made to the protection of cover a range of issues including sub- wealth producing corners of Australia economic values associated with good tropical, public realm, design outcome, (Northern Star, 1918). Th is would not quality agricultural land and protection of lot size, density, land supply and more. be a common association or description land with productive capacity. Residential housing is a topic that has for the Redland area now, despite the received extensive public debate and potential for the remaining peri-urban Th e Bowen Planning Scheme example scrutiny resulting in advancements to and rural areas to make a tenable reinforces the notion that agriculture is planning policy on both a macro and contribution to agricultural, recreational something that occurs a long way from micro scale. It is typically the case that the and environmental outcomes. an urban area, so that land use confl icts planning system has been slow to respond are minimised. Accordingly, regulation Th e successful management of urban to consideration of policies for urban by local government is reduced on the and agricultural uses in peri-urban agriculture (Deelstra and Girarde, 2005). basis that development is generally low or even urban locations needs a more risk, acknowledging that the agricultural If there is currently a planning regime sophisticated approach to land use industry is subject to other industry that is based upon a traditional view of management that develops mutually specifi c regulations and controls. agriculture both in terms of location supportive community based outcomes. - within a rural area, and operation - Th is may also include dropping the Th is light touch planning control off ers being large scale, there needs to be a assumption that rural and urban activities agricultural businesses the ability to avoid re-examination of planning policy to are incompatible, which is a key role of many fi nancial and resource burdens such ensure that it appropriately supports strategic planners. as application fees and associated costs and new farming enterprise. Th is includes How is agriculture supported by infrastructure charges. It also refl ects the introducing new models of farming that the Queensland planning system? view that removing unnecessary restrictions might support a local food network. to farming will assist in maintaining It is worth refl ecting upon the way in food security and aff ordability. Th is is What are other cities and which agriculture is managed both in specifi cally stated in the current draft State planners doing? terms of land use and development Planning Policy, which requires agricultural control provisions in rural locations and development on agricultural land to Th ere are many leading examples which the benefi ts this brings to the industry. It be given the lowest level of assessment can help guide Australia’s approach is also worth considering whether there is possible and, when not exempt, specifi c to developing alternative agricultural suffi cient understanding or emphasis on agricultural development codes should be systems and more local food systems. A the role of agriculture in the community. adopted (Draft SPP, 2013). number of cities and regions were selected 38 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper as case studies of diff erent approaches use code governing urban agriculture What models of new agriculture and initiatives taken by communities uses, including allowing ‘urban farms’ are emerging? and agencies to introduce alternative and ‘community gardens’ in all zones, agricultural practices into cities and with some limitations in industrial and From the case studies outlined next a regions. Seattle, Detroit, New York, high pollutant areas (Seattle City Council number ‘alternative agriculture’ and London, Tokyo and Melbourne are 2013). Residents are now able to sell ‘urban farming’ models have been locations that share similarities in terms food grown on their property. Th e plan identifi ed. ‘Alternative agriculture’ and of government frameworks, political also states minimum provisions of one ‘urban farming’ in the context of this structures, and aspects of demography. community garden per 2,500 residents. paper are physical initiatives that are of What is clear from the case studies is a scale either individually or collectively that alternative agriculture, in particular Th e legislation also formally recognises that could double Queensland’s food urban farming and peri-urban agricultural farmers’ markets, allowing them in production using only the existing diversifi cation, is more than just some more areas of Seattle. Th e ordinance resources (e.g. land, labour) of our urban romantic notion of local food, but is also allows dedicated food production and peri-urban communities. Th ese contributing in no small way to each on rooftop greenhouses with a 15 foot models are: city’s daily food requirements. exemption to height limits in a variety of higher density zones. Th e number of • decentralised farming: medium- How are planners helping? animals allowed per lot has increased large scale farming of vacant or with additional animals allowed for large All of the cities studied in this paper underutilized urban and peri-urban lots associated with community gardens lands shared some type of city-wide/regional and urban farms. Certain pesticides are strategy, program, or policy in place banned for use across the city to ensure • rooftop gardening and hydroponics: with an associated food policy council the health of the food system and to small-medium scale vertical urban or board to guide the development of minimise damage to pollinator species. farming the local food strategies. An example of these are the London Food Board Detroit urban agriculture • master-planned farm communities: (Greater London Authority, 2013) and planning scheme amendments medium-large scale peri-urban the New York Food NYC – A Blueprint farming. for a Sustainable Food System (Food NYC, Detroit’s Planning Commission has recently released planning amendments 2010). Most of the policies take a ‘whole- Decentralised farming of-system’ and community-led approach, that allow small scale farming throughout the city (City of Detroit, 2013). Th e considering all aspects of the food system. Th e decentralised farming model is planning amendments specifi cally defi ne Th e food policy council or group work based on ‘land-share’ principles and and diff erentiate urban farming activities with community members and various gives experienced farmers the ability to such as aquaculture, aquaponics, farmers’ government departments to secure and easily farm vacant urban land on behalf markets, greenhouses, hydroponics, co-ordinate a range of resources (funding, of owners or groups that do not have urban farms, and urban gardens. Within land, waste management, community the time, knowledge, or interest to farm each of the city’s land use zones these engagement, etc.) required to develop themselves (BK Farmyards, 2013). Th e each city’s food program. urban farming activities are either a ‘by- owners or groups are rewarded with a right use’ which requires limited council share of the harvest or revenue, and the Planners form an integral part of the review or a ‘conditional use’ that requires farmer takes the rest to sell at market. dedicated food policy councils or groups a higher level of council assessment. that implement the local food strategy. Decentralised farming can occur in large Planners have the most power over For example, urban gardens are allowed backyards and hobby farms, verges, amending planning regulations and by-right in all residential zones and fl ood plains, infrastructure corridors, by-laws to support agriculture and make most business zones. Greenhouses and urban development areas and vacant local food access easy, and to ensure urban farms are permitted by-right or as lots. Decentralised farming is not limited appropriate control over the use of conditional uses in all of the residential, to urban areas and is well suited for pesticides and chemicals, waste disposal business and industrial zones. Urban underutilised peri-urban rural lands. and recycling, and of other amenity farms and gardens in industrial zones impacts. require a higher level of assessment, Firstly, New York has been at the where in contrast greenhouses, forefront of the decentralised farming Seattle land use zoning and by- hydroponics and aquaculture are by-right model for a number of decades and has law amendments uses in all of the city’s industrial districts. a strong local food culture. Th e Five Borough Farm project in New York Th e City of Seattle has developed a Food While Detroit’s new planning provisions has developed four robust models for Action Plan (Seattle City Council, 2013). are very permissive of urban farming, urban faming that are linked to specifi c In 2010 the council approved a bill that there are some prohibitions that still locations within the city (Five Borough supports the rapidly growing local food limit certain farm species, ‘injurious Farms, 2013). Th ese models include movement. Seattle City Council describes or invasive’ species and crops that may community farms, community gardens, the ordinance as updates the city’s land attract rodents. institutional farms and commercial farms. Queensland Planner – Summer 2013 – Vol 53 No 4 – 39 Refereed paper
Since 2010, the project has aimed to Benefits of decentralised and landowners needs to be explored create the fi rst citywide, comprehensive farming in order to determine a cost eff ective urban agriculture plan for New York solutions. City. Th is has included evaluating the • Provides a model for gaining revenue city’s existing urban agriculture activity, and food from underutilised urban • Land use confl icts and neighbour establishing a set of metrics by which to land for either personal, community, complaints between agricultural quantify the benefi ts of urban agriculture commercial and charitable ends. and urban uses (e.g. noise, smell, and creating policy recommendations for and amenity) will need to be relevant city agencies. • Model can be applied as either a appropriately managed outside of temporary or permanent/indefi nite a regulatory planning application Renting urban farmland is also popular use on a medium-large scale. processes for the decentralised farming model to be economically in Tokyo, where the government • Signifi cantly reduced start-up costs as feasible. intervention has been used to persuade sub-lease agreements are used instead traditional rural farmers to better of requiring land ownership. utilise unused farmland (Encountering Rooftop gardening and Urbanization, 2010). To promote the • Provides an avenue for young people hydroponics use of this land the government has entering farming the ability to been off ering subsidies to farmers if they develop farming skills within urban As cities become more compact and the rent out land and knowledge to urban areas, maintain family and friend competition for land increases, less and residents interested in growing their own networks and be close to amenities less land is available at ground level for food. and entertainment opportunities. urban farming activities. Conversely, Th e model provides a new pathway as cities grow denser and taller new A local example of this is on the Gold to get more urban young people into opportunities of vertical gardening on Coast where Gold Coast Permaculture farming who in later years may move rooftops and facades also emerge. As partnered with a local developer to lease out of cities to help fi ll the skills gaps the name suggests, rooftop gardening some vacant land that is earmarked for and farmer shortages that are currently involves setting up small-medium future residential development. Th e being experienced in rural areas. sized private and commercial farming developer receives a modest rental income operations on existing and new rooftops. from Gold Coast Permaculture to cover Barriers to decentralised Hydroponic, aquaponic and greenhouse rates while also having the land managed farming in Queensland systems are normally employed rather on their behalf. In return, Gold Coast than soil-based systems due to weight • Planning regulations may trigger the Permaculture gain access to a large and restrictions and the need for higher yields need for a material change of use convenient inner urban block of land per area. Rooftop gardening is best suited applications to allow a temporary to install relocatable garden beds, the when the building occupants such as farming activity to occur. Th is could produce of which is sold at a weekly residents, commercial farmers or local require a signifi cant amount of time farmers’ market. food retailers (e.g. restaurant or market) and cost (e.g. fees, infrastructure take full control of the gardening. Food elements are also being incorporated charges) which may make farming into new Australian developments, an unfeasible. Furthermore, planning In recent years many examples of personal example being VicUrban’s Meridian regulations may prevent the and commercial rooftop gardening have development (FSPUD, 2011). Th is new processing or sale of any food emerged, with a notable example being greenfi eld residential community includes produced on site. Th e resulting the Gotham Greens who built New York’s orchards across the public open-space development approval may also limit fi rst rooftop hydroponic farm in 2011 areas and verge swales beside the street. fl exibility in farming practices that (Gotham Greens, 2013). Th e greenhouse Th e street and public open space orchard are needed to stay competitive in the is a 1,100sqm growing facility that yields is professionally managed and maintained market. 20-30 times more produce per acre than by an incorporated association of • Gaining access capital from conventional fi eld production and uses 20 residents funded through a levy on the lenders may be diffi cult with just times less water in the growing process. rates notice. a ‘gentleman’s agreement’ for the While a decentralised urban farming use of land, so a land subdivision, On a smaller scale, Th e City of Sydney model may be more suitable for subdivision by lease or easement Council have recently adopted a footpath Australian cities given the high amounts may need to be created to allow the garden policy (City of Sydney, 2012) which of available land, rooftop farming may farming to occur. Minimum lot size permits the installation of planter boxes play an increasingly important role in provisions around urban areas may and use of road verges for community contributing to food requirements for limit the ability to create these areas gardening projects within existing and inner city populations. Importantly, for farming and thereby prevent established urban areas. Th is off ers a broad rooftop gardening and other forms of farming activities. range of community and social benefi ts urban farming can act to reinforce the through increased interaction and contact • Generic public liability insurances for links between food production and with the public realm. farmers, community organisations consumption off ering broad and varied 40 – Queensland Planner – Summer 2013 – Vol 53 No 4 Refereed paper education opportunities for local schools that peri-urban agricultural land has a • Allows for some sensitive urban and community organisations. market advantage due to the high level of development while retaining some accessibility to city consumer markets and agricultural heritage. Benefits of rooftop gardening reduced distribution costs. • Creates a direct link between • Utilising previously neglected Unsurprisingly, these lands are also producers and consumers that helps inner city roof space for revenue, highly prized by greenfi eld developers supports farmers and provide fresh food production, amenity and and investors who wish to make a profi t food for residents. environmental value. from the conversion of rural land for urban purposes. While in recent years • Barriers to master-planned farm • Maximises the use of fl at rooftops governments have tended to sway more communities in Queensland which are abundant in high density to policies of urban consolidation, the • State and local planning restrictions cities. reality is that many peri-urban farming may limit the integration of certain areas are slowly being developed into new types of agriculture and residential • Provides better building thermal residential housing projects. and environmental performance uses (e.g. buff er distances). (e.g. reduced urban heat island Th is universal issue of urban development • Existing land use and gross fl oor eff ect, stormwater treatment and sterilising prime agricultural land has area limitations may prevent urban waster sensitive urban design, greater prompted the development of new development outside of the urban biodiversity). master-planned farm communities. Th ese new communities, normally footprint, even if the aim is to retain • Improved access to food and green established in greenfi eld farming areas, agricultural uses. Furthermore, space for inner city residents and aim to maintain some agricultural and adherence to generic standards for offi ce workers who lack access to natural elements with a complementary development may limit the benefi ts private open space. new residential community. While of site-specifi c master-planned farmland is still lost through this form approaches. Barriers to rooftop gardening in of development, in comparison to • Existing body corporate titling Queensland traditional large residential developments, schemes may not be the most a greater amount of land is retained for appropriate model for creating land • Land use confl icts and neighbour agricultural purposes. titling and farming arrangements. complaints between agricultural and urban uses (e.g. noise, smell, An example of such a development is Prairie Crossing in Illinois, USA (Heart How should we be supporting and amenity) will need to be agriculture now and into the appropriately managed. Change of Foundation, 2011 and Liberty Prairie future? use, building works and plumbing Foundation, 2010). Th is community was and drainage applications may designed to combine the preservation of forest and agricultural land (over 60% If there is to be a genuine role for be triggered and impose excessive alternative diversifi ed agriculture, urban conditions on rooftop gardening. of the 270 ha site) while incorporating almost 400 new homes. Integrated farming and local food systems, there also needs to be a shift in the way such uses are • Existing buildings may not be able to nature corridors and recreation trails run managed in both peri-urban and urban be retrofi tted due to load limitations. through the forest and agricultural lands. Stormwater is fi ltered through wetlands areas. Based upon the case studies presented • Safety and privacy concerns of and is stored in a lake that is both clean there would be opportunity to establish providing rooftop access to buildings. enough for swimming and stocked with agriculture in a range of urban locations. fi sh. Agricultural elements include a However, refl ecting back to the planning • Concerns over the safety of food certifi ed organic farm, an ‘educational exemptions for agricultural operations in produced in inner city locations with centre’ and seasonal on-site Farm Market Queensland, there is a need to consider increased levels of air pollution. which provide residents with produce how a permissive dynamic can be more and a rural setting. Residents and the broadly applied in an urban context. Master-planned farm general public buy vegetables, fruits, communities If an urban farming enterprise is going fl owers and other products such as honey to contribute by providing good quality Peri-urban locations around Australia’s and eggs from the organic farmers who locally produced foods for the local cities are arguably the most contested are employed full time on behalf of the community, it should be given the community body corporate. areas between existing rural uses and same privileges as its country cousin, by planned urban expansion. It is a common Benefits of master-planned farm removing liabilities such as infrastructure scenario that original agricultural communities contributions and development approval holdings, enter into a slow decline as requirements. Th e current Queensland urban encroachment moves closer, • Provides a coordinated approach to planning system only considers creating seemingly insurmountable transitioning urban and rural uses by traditional forms of farming in rural areas reverse amenity issues for traditional planning and managing competing and there needs to be a broader policy farming methods. Th is is despite the fact land uses. shift forward in both a statutory and Queensland Planner – Summer 2013 – Vol 53 No 4 – 41 Refereed paper strategic perspective to support farming of our urban places and connections need to seriously consider the role that diversifi cation across the board. with the communities around us. urban and peri-urban areas can play Urban agricultural activities can be scale in contributing to any goals for food However, the number of elements to up or down to suit location specifi c production, not just distant rural lands. consider when introducing a new use circumstances. A backyard veggie patch into an urban area is inevitably more can still be termed urban agricultural and Th ere also needs to be a debate around complex. As we have seen, urban farming still off ers educational, health and general the values we place upon our remaining practices would need to respond to this wellbeing benefi ts. rural areas close to urban areas. Th ere by modifying production techniques is an increased emphasis that needs to accordingly to reduce neighbour Th e economic benefi ts associated be placed on the social, environmental concerns. However, in any regard, a with urban farming should also be and economic contributions that genuine movement toward safe and considered. If appropriately supported, existing rural areas make to our urban healthy food production would most the start-up costs for an urban farm can environments and how this is continued likely focus on ecologically sound and be signifi cantly lower, than compared in conjunction with urbanisation. To sustainable farming techniques and thus with traditional farm operations, thus respond to this we need to be more be more compatible within urban areas. providing an alternative route for creative about how those core attributes young people to enter the industry. are retained as part of future urban By placing farming in an urban and Th is movement towards start up social expansion. peri-urban context, it reinforces the enterprises is often self-sustaining with While agriculture may not be a critical link between producer and consumer. If supporting networks being established issue for planners at the moment, the implemented in the right way it would linking producers to commercial development of a more integrated allow the community to develop a strong consumers who wish to off er their and diverse agriculture system is and positive association with their ‘local’ customers the opportunity to support fundamental to the implementation of farmer to the benefi t of the broader locally sourced produce. Th is is a trend a more sustainable, resilient, healthy farming industry. Th is can eff ectively which is being seen in other areas, such and equitable future for all our urban replace current centralised food supply as the increased popularity of small scale and rural communities. As planners we chains allowing farmers to supply direct boutique breweries which are creating a need to stop largely ignoring local or to the consumer through local markets, loyal customer base and alternative choice community based food systems and start local food branding and eateries utilising to the corporate brewing companies. locally sourced produce. A study in the to implement appropriate and reasonable UK established that the cost of food While complex, all of these stated measures to support it. transportation added approximately 12% benefi ts can be quantifi ed. A 2010 As planners we need to increase our to the cost of per capita food baskets study in the US analysed the impact (Knowd et al, 2006). awareness and knowledge regarding food of the Northeast Ohio region meeting system issues and become advocates in 25% of local demand for food with All of this should contribute to a more our workplaces for catalysing change. local production (Shuman et.al, 2010). positive association between fresh foods, Th is means challenging our own Th e study concludes a 25% shift could consumers, and importantly, increase perceptions of what the agricultural create 27,664 new jobs, provide work the value placed upon local and broader industry might be in order to support for one in eight unemployed, increase Queensland food production and rural sustainable food production in all forms, annual regional output by $4.2 billion landscapes. not just in remote, rural locations. and increase tax collections by $126 What can agriculture give million. Th is 25% shift would provide Dylan Porter is Associate Director – communities in return? food security to hundreds of thousands Planning AECOM Australia Pty Ltd of people and reduce levels of obesity and [email protected] Urban agriculture can be viewed as Type-II diabetes by creating access to low having intrinsic economic, environmental cost, healthy food. James Mulligan is an Urban Planner and social values (Knowd et el 2006). AECOM Australia Pty Ltd Th ese three themes consistently feature Conclusion [email protected] in the debate regarding our urban areas and it is considered appropriate that Th e outcome of the ‘doubling food agriculture should be included as part of production’ debate needs to establish the broader community outcome. a legacy. Firstly, there needs to be a broader understanding of what it means Th ere is a strong community and social to produce and supply fresh healthy interaction attributed to urban farming, food to the widest possible market. community gardens and the local food To achieve this, we cannot continue systems which support them. Farmers down the same pathways we have been markets are now prominent features of following. Alternative but complementary many towns, suburbs and public spaces, production, supply and distribution creating opportunities for the activation methods need to be considered. We 42 – Queensland Planner – Summer 2013 – Vol 53 No 4 Information
REFERENCES Food NYC, 2010, Food NYC – A Blueprint for a Sustain- Seattle City Council, 2013, Local Food Initiative-various able Food System, New York, USA, http://www.mbpo.org/ pages, Seattle, USA, http://www.seattle.gov/council/conlin/ AECOM Australia Pty Ltd, Food Connect, Energetic Com- release_details.asp?id=1496 food_initiative/ munities, 2013, Redlands Rural Futures Strategy prepared for Redland City Council Five Borough Farms, 2013, New York, USA, http://www. Shuman. H, Masi. B, Schaller. L, 2010, The 25% Shift - fi veboroughfarm.org/ The Benefi ts of Food Localization for Northeast Ohio & BK Farmyards, 2013, New York, USA, http://bkfarmyards. How to Realize Them, Ohio, USA com/ From Field to Fork: The value of England’s local food webs, CPRE, June 2012 Sinclair . I, 2011, Contested landscapes: Planning for Choy. D, Sutherland. C, Scott. S, Rolley. K, Gleeson. B, Resources. PIA Queensland Division Conference, Dodson. J, and Sipe. N, November 2007, Change and Gotham Greens, 2013, New York, USA, accessed September 2011. continuity in per-urban Australia, Peri-urban case study: 02/07/2013, http://gothamgreens.com/. South East Queensland Greater London Authority, 2013, London Food Board, City of Detroit, 2013, Urban Agriculture Ordinance – April United Kingdom, http://www.london.gov.uk/priorities/ 2013, Detroit, USA, http://www.detroitmi.gov/ environment/promoting-healthy-sustainable-food/london- food-board City of Sydney , 2012, Footpath Gardening Policy, City of Sydney, May 2012 Heart Foundation, 2011, Food Sensitive Planning and Urban Design-A conceptual framework for achieving a Cullingworth. B and Nadin. V, 1997, Town & Country Plan- sustainable and healthy food system, Heart Foundation ning in the UK, London, UK Knowd. I, Mason. D and Docking. A, 2006, Urban Agricul- Deelsa. T, Girarde. H, 1997, Urban Agriculture and ture: The New Frontier Sustainable Cities Liberty Prairie Foundation, 2010, Building Communities Department of Agriculture, Fisheries and Forestry, 2013, with Farms – Insights from developers, architects and Queensland’s agricultural Strategy, A vision to double farmers on integrating agriculture and development, USA agricultural production Northern Star, 28th December 1918, The Red Lands of Department of State Development, Infrastructure and Queensland Planning , 2013, Draft State Planning Policy, April 2013 Queensland Farmers Federation, 2013, Planning for Encountering Urbanization, 2010, Japanese Urban Healthy Agriculture, Brisbane, Australia Agriculture, http://encounteringurbanization.wordpress. com/2010/12/07/japanese-urban-agriculture/ Ryedale District Council, Local Plan, adopted 2002
Queenslandplanner Journal of the Queensland planning profession
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Queensland Planner – Summer 2013 – Vol 53 No 4 – 43 Statutory corner Incessant-reform distress disorder Robert Stonadge MPIA
Th is journal’s statutory corner sees Should I review QPP v3, which after Should I conjecture on the content the writer in a quandary. What topic all this time has fi nally come out of of the single State Planning Policy? should I discuss in our ever changing incubation? Has it really been two How about the changes to assessable statutory environment? years since the draft was put to public vegetation clearing? Should I risk getting into the ring consultation, and more importantly, will councils get to use it before the At this point, with my mind full of with infrastructure charging reform? policy intents, divisions, sections and standardised provisions change again I can already hear the gnashing of chapters, something snapped. A wave of when the new Planning for Queensland’s local government teeth and the hardly vertigo hits and a sinking feeling forms Development Act comes into eff ect? suppressed jubilation of the property in the pit of my stomach. I cannot industry. write, I cannot think. I need answers, so I go to my doctor. Planners... After the routine tests, doc comes back with the diagnosis. Incessant-reform p|dfry for" distress disorder.
How could this happen?
We all know how regulated our profession is and how frustrated we can all be with the system. However, it is concerning when the measure of a successful planning system is determined by the amount of reform you are doing.
Truism. Good planning is not achieved quickly. Th e seeds are planted long 3 before the fruit is ready to pick. Good planning happens regardless of the legislation or policies in eff ect. We know what to do. We build communities, one decision at a time. We balance competing interests seeking the ever elusive ‘more good than bad’.
Reform is great, but planning is better.
Wishing you happy holidays and a new year filled with prosperity and success!
Our office will be closed 20 December reopening 20 January 2014
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44 – Queensland Planner – Summer 2013 – Vol 53 No 4 draft brisbane city centre master plan
what does it mean for transport in Brisbane?
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