COMMUNITY ENGAGEMENT COMMUNITY ENGAGEMENT COMMUNITY ENGAGEMENT IN THE NSW PLANNING SYSTEM www.iplan.nsw.gov.au/engagement/ IN THE NSW PLANNING SYSTEM in partnership with www.iplan.nsw.gov.au/engagement/ Prepared for PlanningNSW by Elton Consulting COMMUNITY ENGAGEMENT IN THE NSW PLANNING SYSTEM www.iplan.nsw.gov.au/engagement/ PlanningNSW in partnership with NSW Department of Local Government Lgov NSW Institute of Public Administration Australia (NSW Division) Planning Institute of Australia (NSW Division) International Association for Public Participation NSW Premier’s Department Prepared for PlanningNSW by Elton Consulting © Crown copyright 2003 Department of Planning Henry Deane Building 20 Lee Street Sydney, NSW, Australia 2000 www.planning.nsw.gov.au Published February 2003 ISBN 0 7347 0403 8 Pub no. 03-034A Disclaimer. While every reasonable effort has been made to ensure that this document is correct at the time of printing, the State of New South Wales, its agents and employees, disclaim any and all liability to any person in respect of anything or the consequences of anything done or omitted to be done in reliance upon the whole or any part of this document. Minister’s Foreword Building vibrant and sustainable communities is a complex, multi-layered process but at its heart is one critically important component – the views of the community itself. There is growing recognition both in Australia and internationally that engaging the community in both plan making and development assessment processes results in better planning outcomes. That is why one of the key principles of planFIRST – the biggest reforms to the NSW planning system in more than two decades – is greater community engagement in the planning and development system. This handbook and its companion website (http://www.iplan.nsw.gov.au/engagement) has been designed with that aim in mind. It seeks to describe, in simple language, the best practice community engagement principles, techniques and tools by providing practical examples and stories from the field. It is the result of a unique collaboration with our partners who are leading community engagement practitioners – Lgov NSW, the Institute of Public Administration Australia (NSW Division), Planning Institute of Australia (NSW Division), NSW Premier’s Department, NSW Department of Local Government and the International Association for Public Participation. In addition, all local councils in NSW were invited to contribute stories and experiences for inclusion in the handbook and on the website. This co-operative approach has resulted in a single, comprehensive, and easy to read practical resource for practitioners. I would like to thank all of our partners for their contribution and welcome that effort continuing as this resource grows through the addition of new stories and developments from the field. It is my pleasure to present the Community Engagement handbook to you on behalf of the NSW Government and our partners. We look forward to receiving your contributions to the website and your on-going support in working to improve our planning systems – making them more accessible and responsive to community views and, as a result, delivering better communities across NSW. The Hon. Andrew Refshauge, MP Deputy Premier Minister for Planning Minister for Aboriginal Affairs Minister for Housing . iii COMMUNITY ENGAGEMENT IN THE NSW PLANNING SYSTEM www.iplan.nsw.gov.au/engagement/ Contents Minister’s Foreword . iii PART A: Setting the context Section 01. Introduction . 3 A practical resource for all parties . 3 What this handbook aims to achieve . 4 How to use this handbook . 4 Give us your feedback . 5 Section 02. Engagement Essentials . 6 A definition . .6 The importance of defined community engagement processes . 7 Benefits of community engagement . 8 Section 03. The NSW Planning System . 10 Introduction . .10 planFIRST . .11 Ideas for community consultation . 13 Principles being put into practice . 14 Section 04. Opportunities for Community Engagement in the Planning and Development System . .15 Plan making . 15 1. Pre-plan phase . 17 2. Plan making phase . 18 3. Ongoing monitoring and review phase . 19 Development assessment . 20 1. Pre-lodgment . .21 2. Pre-determination (exhibition, assessment and decision phase) . 23 3. Post-determination . 24 PART B: How to engage Section 05. Leading Practice Principles . 29 iv Section 06. A Five-Step Engagement Planning Cycle . 33 The five engagement steps . 33 Step 1 - Design and plan . 34 Step 2 - Preparation and organisation . 46 Step 3 - Implementation . 51 Step 4 - Feedback and follow up . 55 Step 5 - Evaluation . 57 Section 07. Community Engagement Techniques and Tools . 62 Matching technique to process . 62 Profile of techniques adapted to the NSW planning system . .64 1 - Inform . 66 2 - Consult . 76 3 - Involve . 89 4 - Collaborate . 94 5 - Empower . 104 PART C: Resources Section 08. Stories from the Field . 109 Section 09. Useful Resources and Credits . 124 Appendices 01. When Community Engagement is Required (Minimum Statutory Requirements) . 131 02. Process Diagrams . 139 Part 3 plan making under the EP&A Act . 139 Opportunities for consultation in Part 4 and Part 5 development assessment under the EP&A Act . 142 03. Groups that Require Special Consideration . 144 v COMMUNITY ENGAGEMENT IN THE NSW PLANNING SYSTEM www.iplan.nsw.gov.au/engagement/ PART A Setting the context sections 01- 04 P ART A section 01 Introduction A practical resource for all parties The Community Engagement Handbook and its companion website (www.iplan.nsw.gov.au/engagement/) has been developed by a unique partnership of practitioners and advisers as a single, comprehensive, easy to read resource for practitioners in the NSW planning and development system. The planning system can involve competition and confrontation as it impacts on the value of land and quality of life, and is often the intersection between public and private sector interests. In the face of diverse views and interests it is difficult to achieve universal consensus, however, it is widely acknowledged that early engagement with the community in both plan making and development assessment offers considerable benefits for all parties involved. It can ensure better planning outcomes as a result of taking account of a wide range of views, increasing the integrity and quality of decisions. This handbook and website is a starting point in fulfilling the need for practical guidance on how to conduct quality processes of community engagement. Hopefully they represent a solid foundation for developing leading practice through feedback and adding success stories to those already collected from the survey of all councils in NSW and from the partners in the project. Designed with local and State government environmental planning practitioners in mind, the handbook and website are also useful for others who use the planning and development system, including the development industry, businesses, residents, interest groups and community organisations. Consultation was of prime importance in the development of this resource. The views of local and State government practitioners, key stakeholder groups and public participation practitioners were sought during one-to-one sessions and workshops held by Elton Consulting, the authors of the handbook. The handbook’s content builds on the publication, Ideas for community consultation, issued for Reference comment by the then Department of Urban Affairs and Planning (now PlanningNSW) in Ideas for community consultation. February 2001. The feedback received on that document from planners around the State has See Section 8, Stories, Item 37 been informative and helpful in shaping content and emphasis. Website URL An independent analysis of The handbook and its companion website are initiatives of PlanningNSW in partnership with: submissions on planFIRST White Paper, . NSW Premier’s Department www.iplan.nsw.gov.au/ . NSW Department of Local Government engagement/stories . Lgov NSW (formerly the Local Government and Shires Associations of NSW) Introduction . Institute of Public Administration Australia (NSW Division) . Planning Institute of Australia (NSW Division) . International Association for Public Participation (IAP2). A01 003 COMMUNITY ENGAGEMENT IN THE NSW PLANNING SYSTEM www.iplan.nsw.gov.au/engagement/ What’s included in the handbook: . a guide to NSW plan making and development assessment processes, including the planFIRST reforms to the planning system . leading practice principles that underpin successful engagement processes . descriptions of commonly used engagement techniques . a step-by-step model for designing, planning, organising, implementing and evaluating any process . current practice examples for some of the most common techniques . guidance on the resource implications of each technique . sources of further information and resources to support engagements. This handbook is a companion to the internet site at www.iplan.nsw.gov.au/engagement/. You are encouraged to visit the website because it has a number of links to useful resources unavailable in the handbook. The interactive nature of the website also offers a forum within which ideas and experiences can be exchanged more easily. What this handbook aims to achieve The handbook is intended as a source of reference for anyone keen to improve the quality of community engagement in the NSW planning and development system. Understandably, there are often limits on time, money and staff skills to plan, design and