houston_p_if planning is everything, maybe that’s the problem?
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Beyond the Edge: Australia's First National Peri-urban Conference La Trobe University Oct 2013TRANSCRIPT
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If planning is everything...
maybe that’s the problem?
Reflections on efforts to protect agricultural land in Australia’s
peri-urban regions
Peter Houston
“Beyond the Edge”
La Trobe University
October 2013
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Key messages...
• The failure of planning to support
agriculture in peri-urban regions
– the contradiction between traditional planning
thought and contemporary planning practice
– the role of rural land in metropolitan areas:
insights from theory and research
• The success of “double protection” in
Barcelona (where planning isn’t everything)
• Conclusions and directions
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1. Traditional planning thought, the views of
planners and espoused policy
– tenets of modern town & country planning
– planning education and professional norms
– public opinion
– planning documents (what they say)
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
– managerialism and planning system trends
– COAG criteria for capital city planning
– “Red tape reduction”, “One stop shop”,
“Performance indicators” etc
– metropolitan strategic plans (what they do)
– the case of the Virginia horticultural district
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Virginia horticulture district
– Major horticulture ‘cluster’ based on favourable climatic, soil and water conditions
– Greenhouse, high tech hydroponic and field production systems
– $95 million (3%) of total SA agricultural value (2003)
– $73.5 million (15%) of total SA horticultural value
– 22% of total SA horticulture processing value
– Major public and private infrastructure investment
– Largest concentration of greenhouse structures in Australia (700 ha+) and major site of recycled water use
– Access to a major market and freight routes
– ‘Drought-proof’ horticulture
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Metropolitan Adelaide Planning Strategy, 1998.
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Land zoned for Horticulture in the City of Playford, 2005
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Late 2004: Inter-modal freight facility and mixed use proposal
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Late 2005: Northern Expressway and alternative inter-modal site
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2006: Buckland Park Country Township proposal
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2007: Edinburgh Parks employment lands proposal
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Early 2008: Expansion of Buckland Park proposal
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Mid 2008: Urban Growth Boundary shifted west to Expressway route
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Early 2009: Draft 30 Year Plan nominates growth new urban areas Buckland Park South, Virginia South and Angle Vale
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Late 2009: Final 30 Year Plan adds further growth areas Virginia North and Angle Vale South
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Early 2011: Minister adds land between Angle Vale and Expressway
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Mid 2013: Playford Structure Plan adds further urban growth areas
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Playford Growth Area Structure Plan, May 2013
– 50% reduction in land zoned for primary production without:
– discussion/justification of the case for departing from the 1998 strategy;
– consideration of the significance of the Virginia horticultural district; or
– acknowledgment of the significance of horticulture sector to northern Adelaide
– Still ear-marked for protection and nominated as “an important feature of Adelaide's food-bowl”
– But no detail about how that will happen
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
3. An emerging critique: the role of rural land
in metropolitan regions (Bunce 1991) – “… the inherent conflict between preservational
objectives and the municipal planning mandate.”
– “… agricultural designations tend to be used as holding
categories for future development, while urban-rural
boundaries appear to be devices for phasing
development rather than protecting rural land.”
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
3. An emerging critique: insights from Policy
Network Analysis (Bell & Wanna 1992) – Framework for explaining the fortunes of
- industry sectors (automotive, textiles, tourism, wool) and
- policy agendas (deregulation, trade, industrial relations)
– “Strong” and “weak” policy networks
– Peri-urban regions as a stage for competing sectoral
policy networks...
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·
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Urban development
policy network Agriculture policy
network • State planning agencies
• Urban land authorities,
Housing and Infrastructure
agencies
• Local government
• Government-industry
coordination committees
• Industry lobby groups
(HIA, UDIA, PCA, REIA)
• Professional bodies (PIA)
• R&D forums
(AHURI, SOAC)
• Commonwealth/State
primary industries agencies
• ABARES/ABS/CSIRO
• Industry lobby groups
(NFF, State Federations,
Producer groups, AFI)
• Industry R&D bodies
(GRDC, Horticulture
Australia, RIRDC)
• Agribusiness
Peri-urban
regions
Peri-urban
land
Principal focus:
Metro/urban development
Principal focus:
Major commodity groups/
broadacre industries
?
?
?
?
? ?
?
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
3. An emerging critique
4. Insights from Barcelona: “double protection”
as an antidote to captured planning (Paül &
Haslam-McKenzie, 2013)
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Parc Agrari del Baix Llobregat
– Situated in the Barcelona metropolitan region (5 mill.)
– Approx 3,500 ha including 2,000 ha of farmland
– 621 farms/1,200 farmers (80% f/t, 20% pt) producing field vegetables, tree crops, livestock, greenhouses
– No EU subsidies!
– Consortium of 4 levels of government (Catalan, Provincial Council, District Council, 14 municipalities) and the farmers’ union
– Land use plan (2004) AND a Management Plan (2002)
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Parc Agrari del Baix Llobregat
– BLAP Management Plan – Infrastructure and services
for farmlands
– Production and marketing systems that generate higher farm incomes
– Farm modernisation and services to increase viability
– A quality space integrated with the surrounding natural environment
– Raise awareness of the natural and cultural heritage of the PABL
– Sold almost entirely into Barcelona’s fresh food markets and alternative food networks
– Farmers benefiting from consumer interest in locally grown food
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
3. An emerging critique
4. Insights from Barcelona: “double protection”
as an antidote to captured planning (Paül &
Haslam-McKenzie, 2013) – “local commitment to ... governance initiatives are as
important and perhaps more effective than adherence to
narrow government policies and regulations. Land-use
tools are needed, but they are not enough by themselves”
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1. Traditional planning thought, the views of
planners and espoused policy
2. Contemporary planning practice, priorities
and paradigms
3. An emerging critique
4. Insights from Barcelona
5. Conclusions and future directions
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References:
Bell, S. and Wanna, J. (eds) 1992. Business-Government
Relations in Australia, Harcourt Brace, Sydney.
Bunce, M. 1991. Local planning and the role of rural land
in metropolitan regions: the example of the Toronto area.
in van Oort et al. (eds) Limits to rural land use.
Proceedings of an international IGU conference, 21-25
August 1989. Pudoc, Wageningen.
Paül, V. & Haslam-McKenzie, F. 2013. Peri-urban
farmland conservation and development of alternative food
networks: Insights from a case-study area in metropolitan
Barcelona (Catalonia, Spain). Land Use Policy vol. 30, pp.
94–105.