Democratic Governance for Sustainable Regional Development Theorising Regional Development Governance Processes for Achieving Ecologically Sustainable Development Objectives in the Hunter Region of New South Wales by Greg Heys BSW (UNSW) MUrbStud (Macquarie) June 2007 Editorial Team: Wendy Heys Coordinating Editor Jude Conway Bernie Curran Brian English Moira Gordon Len Regan 2 Preface When my husband, Greg Heys, died in June 2007 he was moving towards completion of his PhD thesis. Three years had passed when I asked a group of his professional colleagues and friends what they thought could happen with the work he had done. They felt that the work was of value, both for original and insightful contributions which Greg was making towards the understanding of regional development governance processes and for his documentation of a unique set of interviews which he conducted with Hunter people. Further, although his draft manuscript required editing, that once edited it should be made accessible. The way ahead became clear when Len Regan, a member of the group, offered to do the editing. He inspired others of us to take up the editing work as well, and I thank Len Regan, Dr. Moira Gordon AM and Professor Brian English for committing their time, skill and dedication to the editing task. Dr. Bernard Curran I thank for his reflections on Greg’s work as indicated in his introduction to Greg’s research document, and for his liaison with Gionni di Gravio, the archivist at the University of Newcastle, leading to the placement of the document in the Cultural Collections of the Auchmuty Library of the University. My thanks to my friend Jude Conway who took on the task of proofreader and to Len Regan who committed to the additional task of formatting the document. As a result of our joint efforts Greg’s research document is now placed in the public domain. Greg’s first supervisor for his PhD was Professor Phil O’Neill, followed by Dr. Lesley Instone. I thank them for their work with Greg. In preparing the document for publication, minor editorial changes have been made to correct typographical errors, punctuation and grammatical mistakes, and to improve readability. Interviewees’ statements have been edited to remove those sounds, words, phrases and word sequences which occur in natural speech as people prepare their ideas for verbal expression, but which impede the flow of those ideas in written form. These expressions were meticulously recorded by Greg in transcribing the interview tapes. Their omission is indicated by “…” in the document presented. I wish to express my deep gratitude to “Greg’s thesis team”. Each member of the team had a far deeper appreciation than I of the work involved when we embarked on this project. Their support and commitment has been unwavering and has enabled us to achieve what we set out to do. Wendy Heys Coordinating Editor June 2014 3 Contents page CHAPTER 1 Introduction to a Particular Region and Time, to an Activist, and to a Rationale for a Line of Inquiry 1.1 Introduction 9 1.2 Observer Context 10 1.3 Taking the Case Study Method 10 1.4 Early Environmental Planning in the Hunter 11 1.5 The Hunter Resources Boom 13 1.6 New Managerialism in Local Government 14 1.6.1 Coming to Grips with New Legislation and New Managerialism 14 1.6.2 Learning to Plan Strategically 16 1.7 Pathways to Sustainability 19 1.8 Revitalizing the CBD 24 1.8.1 CBD Redevelopment 24 1.8.2 The Council as Urban Designer and Consent Authority 25 1.8.2.1 Redeveloping Honeysuckle: Council, Community and the State-run Development Corporation 25 1.8.3 Council as Property Owner and Developer 27 1.8.4 Council as Entrepreneur: Marketing, Promoting, Refurbishing and Activating the CBD 27 1.9 Post Steelmaking Newcastle 28 1.10 Understanding a Region’s History 29 CHAPTER 2 A Brief History of Regional Development Institutions and Practices Outline dated 18th May 2004 30 Outline dated 3rd June 2004 30 CHAPTER 3 Tracing Evolving Modes of Governance in a Changing Region – Shifting Bedrock 3.1 Introduction 31 3.2 Using Grounded Theory within the Case Study Model 33 3.3 Setting up the Study 36 3.4 Revealing History, Justifying Strategies and Institutional Practices 37 3.4.1 The Open Codes 37 3.4.2 Histories, Understandings and Practices in the Hunter Region: What the Open Codes Say 40 3.4.2.1 Industrial Life and Regional Development in the South Maitland Coalfields 41 4 3.4.2.1.1 Emergence of the Idea of ‘Region’ 43 3.4.2.2 Regional Economic Development – Post Keynesian Phase 48 3.4.2.3 Regional Strategic Planning and Development – Nascent Regionalism 54 3.4.2.4 From Conservationists to Urban and Environmental Activists 59 3.4.2.4.1 Insisting on the ‘Rule of Law’ 61 3.4.2.4.2 Persuasive Means 63 3.4.2.4.3 Tactical Manoeuvres 66 3.4.2.5 Cultural/Social Equity Tradition 68 3.4.2.5.1 Developing the Region through (Re)empowering its people 68 3.4.2.5.2 Responding to Change 70 3.4.2.5.3 Creative Organisation Building 72 3.4.2.5.4 Recruiting (Local) Economic Development Strategy 74 3.4.3 Others ‘Loners, Lurkers and Strong Men (and Women)’ 74 3.5 A Region’s Journey towards an Understanding and Practice of Sustainability 78 3.5.1 Axial Codes 78 3.5.2 Building on Motivation to Develop Beliefs and Practices of Sustainability in the Hunter 81 3.5.2.1 Describing Regional Motivation and its Dynamic Forces 82 3.5.2.2 Regional Beliefs 85 3.5.2.3 Significant Event(s) and Alliances and Resistances 87 3.5.2.4 The Process of Making Sense for Regional Reflexive Practice 88 3.5.2.5 Regional Reflexive Practices 97 3.5.3 Evolution of Sustainability in the Region 108 3.5.4 Diffusion of Regional Learning 119 3.6 Rallying Demand for Regional Participation 121 3.6.1 Selective Coding 121 3.6.2 Elements for Building a Model Region 122 3.6.3 Organising Principles and Processes for Regional Development 127 3.7 Conclusion 136 CHAPTER 4 4.1 Shorter Draft Constructing Participative Governance Sustainability in a Changing Region 137 Ingredients for the Development of Sustainability 138 4.2 Longer Draft Constructing Participative Governance for Ecologically Sustainable Development in a Changing Region - Creating Understanding and Practices 139 5 List of Tables page Table 3.1 Sampling Matrix for Interviews 36 Table 3.2 Open Codes, their Properties and Dimensions 38 Table 3.3 Axial Codes and Categories Derived from the Data 79 Table 3.4 Selective Codes and Categories Derived from the Data 122 List of Figures Figure 3.1 Regional Historical Framework for the Study 35 Figure 3.2 Shaping Sustainability: Relationships between Codes 81 Figure 4.1 Shaping Sustainability: Relationships between Codes 137 Figure 4.2 Relationships within and between Codes 138 Figure 4.3 Shaping Sustainability: Relationships between Codes 139 Appendices References 143 Personal Communications 144 Acronyms 145 List of Informants Interviewed 147 6 Introduction "I was a sporadic student who played a lot of sport, prayed seriously and read a lot. In my junior years at high school I read the usual boys' heroism adventures stuff, but later was greatly influenced by one of the set texts, 'David Copperfield', which led me to a rash of other Dickens' books and the conscious beginnings of my sense of moral justice." Heys, G. (1978), in R. J. Lawrence, A Career in Social Work: Seven Personal Accounts, School of Social Work, University of New South Wales, 26-34. The choice by Greg Heys for his Ph.D. study: 'Democratic Governance for Sustainable Regional Development' was not only the result of a special interest developed in earlier studies, it was in fact also the end result of a personal commitment to the ideals of equity, community and social justice. This commitment could have led him to a life as a missionary priest in the Pacific but fortunately a change of mind did not lead to a change of heart. From the time he left University in 1972 until 2000, the year of his Ph.D. enrolment, this personal commitment led him from being a novice social planner to an academic position at the University of Newcastle and then to the office of Lord Mayor of Newcastle from 1995 to 1999. What we have in this present study is the result of 30 years of personal commitment and practical experience as a social worker, a researcher and a political leader. Sadly the work is unfinished. However, for those interested in the past, present and future of Newcastle and the Hunter region this thesis is relevant for work that still needs to done. Local councils are still struggling to meet ever-increasing demands with ever decreasing resources. At times they combine, at other times they compete and conflict. The ever-constant cycles of Labour and Coalition governments, state and federal, militate against consistency in policy and planning. The industries, the engines of the Hunter - mining, wine, equine, agriculture and manufacturing - struggle with and against one another on an uneven playing field. Citizens continue to be frustrated by issues like employment, education, pollution and confusion over climate change. They are overwhelmed by an increasing sense of helplessness in the face of the powerful companies that call the shots, and sadly, they mourn the loss of those values that underpin community life - trust, integrity and loyalty. To make matters worse, the ideal and idea of the 'common good' lies buried beneath a pile of political promises and statements of 'Corporate Social Responsibility'.