Art & Science of Strategic Planning in Queensland
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Transcript of Art & Science of Strategic Planning in Queensland
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Art & Science of Strategic Planning in Queensland
Carrying Capacities, Planning & Population in Noosa
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Introduction
Insights into: Measuring the true cost of population growth –
and getting it to one diagram! Art and science of strategic planning – how is
it done? Population caps vs carrying capacities
Presentation based on an older one – but principles still apply
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Measuring the True Cost of Population Growth
Population Growth
Increased DevelopmentCapacity
ExistingCircumstances(benchmarks)
Degradation of NaturalAssets
Increased Demand forCommunity
Infrastructure
+ Increases + Increases
Natural Capital Economic Capital Social Capital
- Red
uces
+ Increases
+ In
crea
ses
- Reduces- Reduces - R
educe
s
+ + =True Cost Of Population
Growth
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Potted History of Strategic Planning in Queensland
Prior to 1980 in Queensland, planning schemes were just about regulation – what you could do where and what process you followed
In 1980, Strategic Plans and Development Control Plans were introduced into the then Local Government Act – the legislation that controlled local planning
Strategic Plans evolved to become a vision together with overall strategic outcomes and implementation criteria for the City or Shire and the various places within it
By 1990, Strategic Plans had become a requirement of the then Local Government (Planning & Environment Act)
In 1998, the Integrated Planning Act removed the requirement for Strategic Plans and in fact prevented these types of instrument being a part of a planning scheme
In other words, Queensland went backwards In 2009, the State re-introduced the ability for schemes to have limited
strategic provisions via the Sustainable Planning Act – a strategic framework In 2013 the State expanded the ability for better strategic provisions We are almost back to where we were in 1990!
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Strategic Plans
To gain an understanding on how these plans are done, we will examine a single location through three periods
An area to the south-east of the town of Cooroy, after de-amalgamation back in Noosa Shire
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COOROY
1
Kilometers
20
1988 Strategic Plan
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COOROY
1
Kilometers
20
1988 Characteristics
Little bit of art, not much science. Where there was vision - it was often of
the rear-view mirror variety: Looked at where we had been – reflected the
zoning scheme (the development control system).
Rarely was serious consideration given to where we were going, where we wanted to be or how we would get there.
Rudimentary development control systems.
Rudimentary tools with which to carry out the task.
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1988 Pluses & Minuses
Positive: It was simple, because it was fairly rudimentary. Didn’t cost a lot to do or to defend the position - there wasn’t much on
which to argue. Negative:
Extensive commitments, but little understanding of what the commitment really meant:
Little serious measurement of environmental capacity to support development.
Little serious measurement of the need for various land use commitments Little serious measurement of the services necessary to provide for those
commitments Little serious measurement of the costs (real or otherwise) of provision of
those services Little serious communication of the real planning outcomes to the community
(not sure we really understood them ourselves) Focus on development control: leaving hard decisions until later Focus on process: less clear on outcomes
COOROY
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Kilometers
20
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Strategic Planning: What It Should Be About
Focused on vision, not process About planning for people and the places
those people live, work and play About what we want as communities, not
what we don’t want Positive, rather than negative Fundamentally about making the hard
decisions early
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Strategic Planning: About Making the Hard Decisions
Planning is about compromise and resolving differences between competing uses.
In planning, as in business, the earlier hard decisions are made the better.
Information is needed to make hard decisions and to choose how, when and what to compromise.
Geographic Information Systems (GIS) assists in the gathering and assimilation of data and can be also be used in the analysis and synthesis of information to aid the hard decisions.
The data needed to achieve this is surprisingly simple, but often difficult to come by.
So jumping to 1997 ...
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1997 Strategic Plan (Noosa)
Three critical exercises: Analytical assessments of land’s:
Biophysical constraints Environmental values Suitability for various land uses
Analytical assessments of the infrastructure needed for the projected population/development and the capacity to fund that infrastructure
Consultation with the community on its desires for the Shire and the various places within it.
Next few slides focus on the land-based assessments
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1997 Land-Based Assessment using GIS
Primary datasets: All science
Secondary datasets: All science
Tertiary datasets: Art, with a dose of science
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1997 Primary Datasets
What is the land? Geology & Soils
What form does the land take? Topography (Elevation &
Slope) What’s on the land?
Vegetation
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21
Kilometers
0
COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Geology
22 classes Czd Czg J-Kg Qa Qc Qe Qhm Ra Rc- Cedar Pocket
Porphyry R-Jy - Myrtle Creek
Sandstone Rlf -Keefton Formation Rlk - Kin Kin Beds Runl - North Arm
Volcanics Rw - Woondum Granite Ta - Allandale
Arfvedsonite Granite Ti Tp - Pomona Beds
Tv
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Kilometers
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Slope
6 categories1. Flat 0-5%
2. Moderate 5-10%
3. Sloping 10-15%
4. Steep 15-20%
5. Severe 20-25%
6. Extreme >25%
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Kilometers
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Vegetation
8 types, 32 sub-types
1 Rainforest
2 Ecotonal forest
3 Eucalpyt forest
4 Melaleuca
5 Heathlands and sedgelands
6 Mangroves and saline communities
7 Frontal dunes and foreshores
8 Plantations
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1997 Secondary Datasets
All built from the three primary datasets About the way in which humans:
Use the land; and Value the land.
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Kilometers
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
1997 Agriculture
7 classes Class A - GQAL Class AT&V - Tree
and vine crops - GQAL
Class B - GQAL Class BS - Sugar -
GQAL Class C1
Class C2
Class D
Derived from soils and slope data (and developing an erosion hazard model and using rainfall data)
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Kilometers
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Bushfire
3 classes Extreme bushfire
hazard area Bushfire-prone area Not in a significant
bushfire hazard area
Derived from slope and vegetation data (and developing aspect data and using fire history)
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Kilometers
0
COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Extractive Resources
37 resources Of which 14 were
recommended for protection
Derived from geology data (and using slope and vegetation data, together with distance and road suitability data)
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Kilometers
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
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1997 Landslip Hazard
4 classes1. Negligible
Potential2. 3. 4. Significant
Potential
Derived from geology and slope data
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Kilometers
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1997 Waterways & Riparian Buffers
4 waterway classes:
1. Shire2. District3. Local4. Tributary
4 riparian buffer classes:
250 metres 100 metres 50-100 metres
(mapped at 75 metres)
50 metres
Derived from soil, vegetation and waterway data , (including status and tidal influence) and developing soil erodibility data
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1997 Other Mapping
All up, more than 30 layers of GIS data were generated. Other key data included: Acid sulphate soils data – derived from
topographic and geology/soils data Flooding – derived from topographic data On-site effluent disposal suitability – derived
from topographic, soils and vegetation data Etc.
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1997 Art & Tertiary Datasets
Art: How the data needs to be combined to produce the tertiary information, which is the plan
Sieve mapping: Starting with the what is known and can be accurately
defined - science Moving towards the things that are less tangible or less
clear – where art is needed to produce a cogent result
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1997 GIS and the Hard Decisions Using the GIS:
Working each end (the known)
Against the middle (the unknown)
Result is that the mapping merges biophysical constraints, environmental values with land use outcomes in a single layer.
Biophysical ConstraintsSettlement
RuralConservation
Land unsuitedfor rural
settlement
Unknown
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Kilometers
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1997 Strategic Plan
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1988
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Moving Forward in Time, but Going Backwards
With the inability to have proper strategic provisions in plans in Queensland, planning schemes became weaker with less clarity
The integrated outcomes of 1997, had to be disintegrated in 2006 so:
Zoning tools; and Biophysical constraints and environmental values
were put in separate layers The plans became coarser …
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2006 Noosa Plan
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COOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROYCOOROY
1997
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Population Growth: Is it inevitable? A few years ago
I presented on a question at the Woodford Folk Festival.
We were asked: Population Growth – is it inevitable? Should we just lie back and think of England ...
So I did ...
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Population Caps
Noosa’s so-called population cap doesn’t exist and cannot exist under a Westminster system of government
It has not been and never has been mentioned in any legal planning instrument
It was a political expediency to help sell the message and worked well in Noosa
Outside of Noosa most believe that the population outcomes were a target number set by politicians to which the planners worked
Nothing could be further from the truth. When adopting the final plan component, the pollies didn’t even know the final number
Witness what Queensland’s premier said: ... a population cap was a simplistic solution that would place pressure on the economy. The only
way we could really do that is to put a fence up at the (Queensland) border, or to cancel or freeze all new home building approvals (22/04/2007 - The Age)
6 months later, even her own idea of building a fence, she rejected ...it is my view that we need to actively embrace growth. I note comments early this week from
one of our regional mayors that we should have a population cap. Well I don’t support that, even if I did I don’t think that I can constitutionally erect a barbed wire fence at the border... (16/10/2007 – Speech to Committee for Economic Development of Australia)
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Carrying Capacities Remember the three critical exercises:
Analytical assessments of land’s: Biophysical constraints Environmental values Suitability for various land uses
Analytical assessments of the infrastructure needed for the projected population/development and the capacity to fund that infrastructure
Consultation with the community on its desires for the City or Shire and the various places with it.
The result of measuring all this and putting in place policy consequences could be gauged in Noosa at the time, which was and is still growing albeit much more slowly, yet its water supply, sewerage, roads, etc. etc. were all secured and paid for.
By comparison, we could look at whether the Queensland Government has planned properly over the last couple of decades e.g.
There were frantic episodes with water in the period 2009-2012, as south-east Queensland ran out of raw water for even its existing population!
¾ of the road funding for SEQ for 5 years was expended to build the Pacific Motorway – resulting in a commuter road to Brisbane for northern NSW residents
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State Reaction to Noosa’s Planning
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2004 – Former Minister for Local Government & Planning Desley Boyle
Minister Desley Boyle said: Welcome to Queensland, but keep on driving. You might like to live at Toowoomba or Crows Nest, or maybe you'd like to go north to Hervey Bay, or maybe continue right up the coast.
Addressing a group of Gold Coast developers, Ms Boyle said the State's southeast was becoming overcrowded, placing extreme pressure on infrastructure and the environment. She said it was dumb that everyone clustered in the southeast corner when Queensland was so large. (2004 - Courier Mail)
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Conclusions
Good planning relies on art as well as science – recently the art has disappeared and plans have become dry technical instruments.
The term population cap has reached its use-by date and should be dropped – carrying capacity is a far better term.
Population growth is not inevitable – if it was why would the Federal Government need a baby bonus?
Minister Boyle had the right idea and instead of denigrating the approaches carried out by Noosa Council, the Queensland Government should be listening hard.
More information: Visit: www.paulsummersplanning.com.au For a copy of the paper go to the web page and click Presentations &
Publications in the menu
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