The current local government & planning reforms in Queensland are designed to shift planning to a new ‘regional’ level through the amalgamation of many local Councils into regional ‘communities of interest’ (http://www.strongercouncils.qld.gov.au/Home.aspx), with increased planning controls at state government rather than local government level, & water resources brought under state control (http://www.nrw.qld.gov.au/water/reform/pdf/info_paper2.pdf).
Debate still rages over whether this model will increase or reduce control of development, protect habitat, & deliver better infrastructure outcomes under the pressures Queensland is currently experiencing as a ‘boom state’. An alternative view argues that planning at this higher level – in particular statutory planning, can be dictatorial, inflexible, & out of touch with local communities.
A range of academic perspectives address the issue of ‘economies of scale’ in planning, albeit peripherally. Given the current climate, it is worth exploring in its own right.
Historically, it is clear that the level of governance at which planning occurs has a major impact on planning outcomes. Mannheim (1968) argued that in the “Great Society” we are today (p.4), appropriate ‘economies of scale’ are needed in planning, while Geddes (1968 [1915]) demonstrates the value of considering the spatial dimensions of an issue. Cursory attempts at planning & regulation during Australia’s settlement, for instance, occurred at the most remote governance level – ie. from England – & were largely ignored (Marsden (2000)).
Much of the critique on governance levels in planning historically was based in the prevailing political frameworks of the time: for instance, Marxist planners argued for state control to prevent the vagaries of the market ruling urban development (Engels (1845)), while ‘liberal’ planners argued for a mixed economy, where rules made either for or by the market would guide development of their own accord.
Considerable work on appropriate ‘landscape scale’ has been undertaken in the field of environmental science which could be applied in a planning context: it is now understood in natural resources management that in order to be effective, issues need to be addressed at their appropriate landscape scale (Paton et al (2004), p.259).
Gleeson (2003) notes the influence of reform currents in governance, in particular “an emphasis on policy integration across traditional portfolio boundaries to produce new legislative & strategic frameworks for planning” as well as new spatial governance frameworks (pp.767-8).
In contrast to the environment field, where participation at all levels is necessary (Agrawal & Gibson (2001), p.634), the statutory planning process needs to be discrete & quarantined from political influence. However, the governance level at which it is located is critical to positive outcomes. One could question whether state government has more power than local government to assert development control, as is currently being argued by the Queensland Government, or whether local-level statutory planning has an accountability to local communities that state intervention lacks (LGAQ Submission (2007)).
I argue that a range of governance levels in planning are required both to address issues at differing landscape scales & to ensure accountability in processes & outcomes, & that the development of such structures in the environment field lead the way in this regard
Buxton et al (2006) note the rationale for council amalgamation in the Kennett era in Victoria was “…to make local government subservient to state development priorities” (p.18). Where such development priorities override the amenity of local communities, the lack of strong local representation in the planning process can present a problem.
Strategic planning is often seen to be appropriate at a higher level of governance than statutory planning – notwithstanding the principle that these streams should be integrated in an effective planning process (Whitzman (2004), p.242). Recent changes flagged by the Queensland Government include the proviso that all regional plans will be statutory State planning instruments (Planning for a Prosperous Queensland (2007), p.19).
While the Constitution leaves land use & ownership to the states under ‘implied powers’ (Aikten & Orr (2002:75), there is nonetheless a national landscape scale at which planning can be most effective. ‘Macro’ issues such as climate change & the water crisis come to mind: the recent role of the federal government through the Murray Darling Basin Commission is an example of this – it is also an example of the lack of thought about structures for power sharing required for such negotiation. National & state infrastructure projects are another clear area of larger landscape scales.
Planning on a regional scale, with the involvement of all 3 tiers of government, provides an opportunity – not least because no one tier ‘owns’ a regional area, & the cooperation of all are required to obtain positive outcomes. However, for initiatives to have statutory force, an existing statutory body is required for development assessment & response. A response based on relevant landscape scale would require the setting of clear criteria in order to avoid a jurisdictional nightmare.
The concept of subsidiary lends itself to resolving this dilemma. The Oxford English Dictionary defines ‘subsidiarity’ as the idea that any central authority should have a subsidiary function only, performing tasks that cannot be performed effectively at a more immediate or local level. According to this model, policy development & implementation is undertaken as close as possible to local communities, but cannot compromise agreed objectives at the local, state & national levels (Spiller (2004)).
While this approach is already practiced in Australia to some degree through the system of tied grants from the federal government to the states, it could be extended readily to the state-local arena. It would certainly lend greater weight to strategic planning, & would shift the power base down towards the grassroots level, rather than enshrining it at the apex of the pyramid as the Queensland process seeks to do.
The SEQ Regional Plan 2006 – 2026 attempts to provide a statutory regional planning framework for local government, dividing SEQ into five regional land use categories with Regulatory Provisions to control each area. State and local governments are both required to meet the requirements of the Plan when reviewing development applications, in amending their planning schemes or developing related policies or codes.
Local Governments are required to have Growth Management Plans, as well as an Integrated Planning Scheme. However, few local Councils have developed these to date, & the integrated of development assessment process within the Integrated Planning Act 1997 has proven burdensome to local government, slowing both assessment & development response processes to a crawl in many local Councils.
The recent move to local governments amalgamation on the basis of regional ‘communities of interest’ is a further attempt in that direction. The argument is that regional alliances through the Regional Organisations of Councils or ‘ROCs’ have failed to deliver real outcomes (REF).
The Queensland Government has now developed new statutory provisions to further control development at a state level through streamlining the development assessment process, coordinating infrastructure planning, a template for Council planning schemes, a shift to mediation for dispute resolution, & the establishment of the Urban Land Development Authority with extensive planning & development approval powers.
Questions
Is bigger necessarily better in planning? Is accountability reduced the more remote decisions become from those they affect? Does the ‘machine’ of planning processes become too inflexible in a larger political structure?
Should strategic planning be integrated with statutory planning at every level of governance?
Is the concept of ‘subsidiarity’ applicable to the planning process?
Is the forced amalgamation of local government in Queensland warranted for the greater good?
References
Agrawal, A. and Gibson, C.C. (2001) Enchantment and Disenchantment: TheRole of Community in Natural Resource Conservation, World Development,27(4): 629-649.
Aitken,G. & Orr, R. (2002), “The Australian Consitution”, in The Australian Government Solicitor, Chapter 5.
Buxton, M., Tieman, G., Bekessy, S., Budge, T., Mercer, D., Coote, M. and Morcombe, J., 2006. Change and Continuity in Peri-Urban Australia: State of the Peri-Urban Regions: A Review of the Literature, Monograph 1, Chapter 8: Governance for land use in peri-urban Australia, pp. 232-249.
Engels, F. (1969 [1845]) in The Condition of the Working Class in England, Panther Edition, Institute of Marxism-Leninism, Moscow [online] http://www.marxists.org/archive/marx/works/1845/co ndition-working-class/ch04.htm [accessed 24 February 2007].
Ewing, S. (2003) Catchment Management Arrangements. In Dovers, S. & Wild River, S. (Eds.) Managing Australia’s Resources. Melbourne, The Federation Press, pp. 393-412.
Geddes, Patrick (1968 [1915]) “City Survey for Town Planning Purposes, of Municipalities and Governments” ch. 16 in Cities in Evolution: an Introduction to the Town Planning Movement and to the Study of Civics, intro. P. Johnson-Marshall, Howard Fertig: New York.
Gleeson, Brendan (2003) “The Difference that Planning Makes” Environment and Planning A , vol. 35, pp. 761-70.
Local Government Association of Queensland (2007) Submission to the Local Government Reform Commission, LGAQ in http://www.townsville.qld.gov.au/wwwdocs/yourcouncil/docs/LGAQ_Submission.pdf
Local Government Association of Queensland (2007) Supplementary Submission to the Local Government Reform Commission, LGAQ
Mannheim, Karl (1968 [1950]) “Main Symptoms of the Crisis” ch. 1 in Freedom,Power & Democratic Planning, Hans Gerth and Ernest Bramstedt eds, Routledge & Kegan Paul Ltd, London, pp. 3-21.
Marsden, S. (2000) “The Introduction of Order”, ch. 2 in Troy, P (ed) A History of European Housing in Australia, Cambridge University Press, Melbourne, pp. 26-40. Mumford, Lewis (1961) “Commercial Expansion and Urban Dissolution”, ch. 14 in The City in History: Its Origins, Its Transformations, and Its Prospects, London, Seeker & Warburg, pp. 468-507.
Paton, S., Curtis, A., McDonald, G. and Woods, M., 2004, Regional Natural
Resource Management: Is it Sustainable?, Australian Journal of EnvironmentalManagement, 11(4): 259-267.
Queensland Government (2005) SEQ Regional Plan 2006 – 2026 in http://www.oum.qld.gov.au/?id=29
Queensland Government (2007) Planning for a Prosperous Queensland in http://www.ipa.qld.gov.au/ipaReview/reform_agenda_report.asp
Spiller, M. (2004) “Planning for Community – A Governance Perspective” in Changing the Way Government Works, Institute of Public Administration Australia
Whitzman, Caroline (2004) “The Crisis in Planning (Don’t Yawn! Don’t Turn the Page!” Urban Policy and Research, vol. 22, no. 4, December, pp. 341-43.