Examining 60 Years of Strategic Planning in Metropolitan Perth and Peel. Gemma Davis and Georgia Harford-Mills

Transcription

1 Examining 60 Years of Strategic Planning in Metropolitan Perth and Peel Gemma Davis and Georgia Harford-Mills Introduction This Bulletin examines the evolution of strategic land use and transport planning for the Perth and Peel regions from 1955 to It has been produced as part of the Committee for Perth and RAC Get a Move On! project, which aims to deliver a comprehensive analysis of land use and transport in the Perth and Peel regions and provide recommendations for the future. The Bulletin provides a timeline of strategic planning events starting at 1955 and identifies the cornerstone strategies and objectives within major strategic plans through to It then assesses the outcome of these strategies and plans on the ground. Timeline of Strategic Land Use and Transport Planning The following timeline outlines major strategic plans and other key land use and transport studies for Perth. It also identifies other events which have influenced the context within which the strategic plans have been prepared. 60 Years of Strategic Planning for Metropolitan Perth and Peel Date Event Summary of Strategy/Key Events/Policy Directions 1955 Plan for the Metropolitan Region Perth and Fremantle (Stephenson-Hepburn Plan) An integrated study and masterplan for Perth s land use and transport future. The plan projected that the Perth region would grow to 1 million people by 1985 and 1.4 million by 2000 and provided for expansion to be evenly distributed north and south of the Swan River in a low density yet relatively consolidated form. The plan specifically proposed/advocated for: Low density growth framework (90% low density growth) with higher density flats in some inner suburban locations. Superior road network to provide for increased car use (projected to be one car per 3.5 people by 2000) and to improve safety. The designation of major highways and regional roads including eight major regional highways and 136 kilometres of highway reserve. Rigid zoning regime to provide for orderly growth State election Labor government re-elected State election Liberal government elected Metropolitan Region Town Planning Scheme Act and Metropolitan Region Improvement Tax Act Perth as the primary regional centre and Fremantle as the secondary centre. The development of two new rail lines to service Perth s northern suburbs. The development of accessible industrial areas on the urban fringe. A firm line to be drawn to limit lateral expansion of the built up area. Provided for the development of a statutory planning scheme to guide regional growth; and the establishment of a permanent body to guide regional development, consistent with the recommendations of the Stephenson- Hepburn Plan. Also provided for the implementation of the Metropolitan Region Improvement Tax. FACTBase 1

2 Date Event Summary of Strategy/Key Events/Policy Directions 1960 Minerals boom and population growth 1962 State election Liberal government re-elected. Rapid population and economic growth facilitated by Western Australia s second mining boom. Land shortage due to zoned land not being released for development. Rapid growth in vehicle ownership to one vehicle per 2.4 people. Growth in trips by private car and reduced public transport patronage (MRPA, 1970) Metropolitan Region Scheme gazetted The 1963 Metropolitan Region Scheme (MRS) was a high-level statutory regional planning scheme which broadly classified land into reserves and zones. The Metropolitan Region Planning Authority (MRPA) was established to administer the scheme, however successful implementation was also reliant on the preparation of consistent local authority town planning schemes which were mandatory. Private land reserved in the MRS for future regional public purposes could be purchased by the MRPA using funds from the Metropolitan Region Improvement Tax State election Liberal government re-elected Town Planning Regulations 1968 State election Liberal government re-elected Corridor planning and traffic engineering 1970 Perth Regional Transport Study The 1963 MRS was generally consistent with the Stephenson-Hepburn Plan although: limited access highways were upgraded to freeways; reserves to accommodate the additional passenger rail lines proposed by Stephenson and Hepburn were not incorporated in the MRS; and the MRS did not identify a boundary or limit to the built up area. The Town Planning Regulations 1967 prescribed procedures by which local planning strategies, local (town) planning schemes and amendments to local planning schemes must be prepared and adopted by local government and State Government; and maintained a Model Scheme Text for local planning schemes established in earlier 1963 regulations. Corridor development emerged as a contemporary land use and transport planning solution and corridor plans become a staple of Australian metropolitan planning (Freestone R, 2004 p. 203). American Consultant R. S. Nielson prepared the Perth Regional Transport Study (Freestone R, 2004). It found that a corridor planning framework would deliver the most economic transport system for the region (MRPA, 1970). The Perth Regional Transport Study projected/proposed: Cars as the dominant form of transport catering for at least 50% of journeys to work in the CBD. Phasing out existing suburban rail services. The use of existing railway reserves to form busways. Development of busways operating on special rights of way to Whitfords and Rockingham. The concentration of population growth around busways to maximise public transport accessibility. Limiting employment growth in the Perth central business district Corridor Plan The MRPA s Corridor Plan aimed to allow low density, car dependent, urban expansion of the Perth Metropolitan Region without increasing the number or length of journeys in the region. To achieve this the Corridor Plan proposed: Linear urban corridors radiating out from a regional centre separated by green spaces. That corridors would have strong, distinctive identities and be highly selfsufficient. The development of sub-regional centres within each corridor to counterbalance tertiary employment growth in Perth central area. These five centres were Fremantle, Midland, Armadale, Joondalup and Rockingham. Public transport spines within the centre of each corridor in the form of busways which were proposed to provide rapid movement to the regional centre. Limiting the CBD workforce to avoid ongoing increases in traffic congestion and the need for additional infrastructure in central areas. FACTBase 2

3 Date Event Summary of Strategy/Key Events/Policy Directions 1971 State election Labor government elected Corridor Plan reviewed The Corridor Plan was the subject of two major reviews including a Royal Commission. The Royal Commission identified concern regarding a lack of adequate consideration of environmental protection; lack of detail regarding growth corridor boundaries; and not delivering a fully integrated land use and transport strategy. The ability of government to limit the CBD workforce and to direct employment into sub-regional activity centres was also queried (White, Griffiths & Claughton, 1972) Corridor Plan endorsed by State Cabinet 1970s Suburban retail centre development 1974 State election Liberal government elected Retail Shopping Policy and Perth Metropolitan Region Retail Structure Plan 1977 State election Liberal government re-elected Fremantle Rail Line closed 1980 State election Liberal government re-elected Transport 2000: A Perth Study The Royal Commission questioned the reliance on inter-agency co-ordination for the implementation of strategic plans, stating that co-ordination of governing bodies and public understanding have not been achieved up to the present time (and it) is doubted whether present policies will achieve these desires (White, Griffiths & Claughton, 1972 p.72). Implementation of the Corridor Plan commenced with the MRPA s preparation of corridor sub-regional structure plans and centre plans for the sub-regional centres (1970s). Significant development of large suburban shopping centres occurred in metropolitan Perth (Ministry of Planning, 1997). This was recognised as impacting on the capacity for successful development of the five sub-regional centres identified within the Corridor Plan. The MRPA prepared the 1976 Retail Shopping Policy which required strategic planning to identify the location and permissible size/leasable floor space of shopping centres. The Fremantle passenger rail line closed and services were replaced with buses. The closure of the Fremantle passenger rail line generated significant public debate and controversy, and prompted a further review by the Director General of Transport entitled Transport 2000: A Perth Study. The study recommended that the role of the public transport system be limited to enabling commuter traffic into the city centre and providing for people without access to a motor vehicle. It also concluded that electrification of the remaining passenger railways was not economically viable (Knox, 1982) State election Transport became a focus of the 1983 election and the Labor opposition announced support for the re-opening of the railway as well as a review of the Corridor Plan and the Metropolitan Region Scheme (Newman P, 2011). The election, in early 1983 saw a large swing and a Labor government was elected (Committee for Perth, 2011) Perth-Fremantle passenger rail re opened Perth-Fremantle passenger rail line re-opened by the State Government Corridor Plan review Review of Corridor Plan and Metropolitan Region Scheme initiated State Planning Commission Act (renamed Western Australian Planning Commission Act in 1994) 1986 Environmental Protection Act 1986 Central Perth Policy Document 1986 State election Labor government re-elected. The State Planning Commission (SPC) was established, subsuming the powers of the Metropolitan Region Planning Authority which dealt with MRS and whose powers were confined to the Metropolitan Region, and the Town Planning Board which dealt with statewide local (town) planning schemes and land subdivision, and provided widened statewide powers and functions. The Environmental Protection Authority was established and provided for the conservation, preservation, protection, enhancement and management of the environment, and in particular enabled formal (statutory) environmental assessment of proposals, amended in 1996 to enable formal assessment of planning schemes (EPA, 2015). Aimed to strengthen the role and amenity of the Perth CBD as the primary commercial, retail, administrative and civic centre for the region. FACTBase 3

4 Date Event Summary of Strategy/Key Events/Policy Directions 1987 Planning for the future of the metropolitan region report (Corridor Plan review report) The SPC s Corridor Plan review report was released for public comment. It identified a number of concerns regarding the implementation of the 1970 plan including: A failure to develop the sub-regional centres. The continued concentration of tertiary employment within the CBD and inner and middle suburbs. The continued low density expansion of urban corridors and the high cost of servicing residential development in fringe locations. The review recommended a focus on urban consolidation and containment rather than uncontained outward expansion. It also identified a need for the development of employment uses in middle and outer locations; for road development to support new employment areas; and the electrification and upgrade of the metropolitan rail system (Stokes and Hill, 1992). The recommendations of the review report generated substantial community feedback, with specific concern and controversy regarding proposals for urban consolidation and containment (Yiftachel and Kenworthy, 1992) Swan River Trust Act Established the Swan River Trust to address problems associated with fragmented planning and management of the Swan and Canning Rivers (SLW, 2010) Development Control Policy 1.6, Residential Development Near Metropolitan Railway Stations 1989 State election Labor government re-elected Heritage of Western Australia Act The SPC s Development Control Policy 1.6 was the first explicit policy to promote higher density development close to railway stations. The policy promoted higher density development with minimum densities of R40 (approximately 35 dwellings gross per hectare) for areas within close proximity to urban railway stations. The Heritage Council of Western Australia was established to identify, conserve and promote places of cultural heritage significance in the State. Aimed to overcome policy inconsistency regarding places of heritage significance Metroplan adopted The SPC s Metroplan provided a framework for the growth of the Perth metropolitan region to from 1.1 million in 1990 to 2 million people in It was the first strategy to incorporate urban consolidation as a key strategic objective and place an emphasis on environmental goals. However, the strategy also provided for a dominance of low density suburban expansion. Metroplan promoted/provided for: 80% of growth to be in greenfield locations and 20% of growth to be in infill locations. Areas adjacent to regional activity centres and station precincts as suitable for higher density housing. 80% of jobs to be in suburban locations (i.e. outside the City of Perth). A new urban corridor (NE) as well as widening of other corridors in the 1970 Corridor Plan, abandoning the Eastern Corridor. Employment activities in strategic regional centres and accessible locations and increasing the number of strategic regional centres from five to eight: Fremantle, Armadale, Midland, Joondalup, Morley, Rockingham, Stirling, Cannington associated with a well-established hierarchy of additional commercial and retail centres. The development of office parks and mixed use business areas in locations accessible by road and public transport. The upgrade of the existing suburban rail network, bus feeder services and priority measures, a bus priority lane on Kwinana Freeway and proposed a new southern passenger rail line as key public transport initiatives. Improved provision for walking and cycling. Better co-ordination between land use and transport planning. Ongoing monitoring of residential land supply to ensure efficient supply of land for development. Implementation by the preparation of new sub-regional structure plans for each of the corridors (prepared ) and for centre plans for each of the strategic regional centres. FACTBase 4

5 Date Event Summary of Strategy/Key Events/Policy Directions 1991 Electrified railway opens 1991 Metropolitan Centres Policy Statement for the Perth Metropolitan Region 1991 East Perth Redevelopment Authority Act 1992 Joondalup passenger rail line opened The electrified Midland, Armadale and Fremantle rail lines commence operation. This SPC policy provided a revised hierarchy of metropolitan centres and identified objectives for the development of centres at different levels within the hierarchy (Yiftachel and Kenworthy, 1992). Established the East Perth Redevelopment Authority (EPRA) to carry out the renewal of Claisebrook Cove in East Perth. EPRA had both redevelopment and planning powers. The Act was subsequently amended to enable EPRA to oversee the redevelopment of adjacent areas and Northbridge. The redevelopment authority model was later also deployed via separate Acts to areas in Subiaco (1994), Midland (1999) and Armadale (2001). The full service to Currambine opened in March State election Liberal government elected State Planning Commission Act 1985 amended 1995 Perth Metropolitan Transport Strategy 1995 Urban Bushland Strategy 1996 State election Liberal government re-elected State Planning Strategy 1997 Liveable Neighbourhoods Community Design Code trial commences 1999 Development Control Policy 1.6 Planning to Enhance Public Transport Use State Planning Commission renamed Western Australian Planning Commission (WAPC) and SPC Act renamed WAPC Act Enabled Regional Planning Schemes to be made by WAPC statewide. Peel Region Scheme (2003) and Greater Bunbury Region Scheme (2007) subsequently approved, although the Metropolitan Region Improvement Tax was not extended to these regions to enable WAPC purchase of reserved land. The Metropolitan Transport Strategy was the first transport strategy for the Perth region. It proposed a balanced transport system and focused on demand management rather than traditional traffic planning/engineering to reduce car dependence in the Perth region. It proposed/predicted: Car ownership to approach saturation at 650 cars per 1,000 people by Limiting average personal car trip length to 8.6km by 2010 and 7.2km in Keeping transport costs at or below the current net per capita funding in 1995 (i.e. limiting the funding provided to the transport system). Raising car occupancy rates from 1.21 in 1991 to: 1.22 in 2000, 1.23 in 2020 and 1.25 in Locating at least 80% of all new residences within 1.5km of commercial, service and educational facilities. The introduction of road use pricing as technology permits and congestion demands. The strategy identified targets for transport journeys by mode to be achieved by 2029: 12.5% of total trips to be made by walking. 11.5% by cycling. 12.5% by public transport. 11.5% by car passenger. 46% as car driver. Proposed the preparation of a strategic plan for the conservation of bushland on the Swan Coastal Plain. The State Planning Strategy, required to be prepared by the Western Australian Planning Commission Act, set out an overall vision relating to the environment, community, economy, infrastructure and regional development and promoted the sustainable development of Western Australia to Liveable Neighbourhoods provided new guidelines for the preparation of structure plans and the subdivision of greenfield and large brownfield developments. The policy had regard to the principles of new urbanism and aimed to achieve the objectives of the State Planning Strategy (WAPC, 2007). The policy was implemented for a trial period prior to becoming an operational policy in WAPC amended its 1988 policy to promote medium to high density development of land in close proximity to railway stations but unlike the 1988 policy it no longer stipulated actual densities to be applied. Also provided recognition of the need to optimise land use around high-frequency bus routes (Curtis C, 2012). FACTBase 5

6 Date Event Summary of Strategy/Key Events/Policy Directions 1999 Perth Parking Policy and Perth Parking Management Act 1999 This Minister for Transport policy was made under the Perth Parking Management Act The policy, which has been revised a number of times since 1999, sets strict limits on the amount of private tenant parking that can be provided within the Perth Parking Management Area. The Act introduced a levy on all nonresidential parking bays with the revenue to be hypothecated towards improving public transport and active transport within the City of Perth (Richardson E, 2010) Bush Forever Bush Forever was endorsed as a whole-of-government policy and implementation framework for bushland protection and management on the coastal plain portion of the Perth Metropolitan Region State election Labor government elected Department of Planning and Infrastructure formed 2003 Review of Metropolitan Planning Framework 2003 State Sustainability Strategy 2004 Network City published for comment 2005 Planning and Development Act Rise in commodity prices 2005 State election Labor government re-elected Mandurah passenger rail line opened 2008 State election Liberal government elected. The amalgamation of the Ministry for Planning and the Department of Transport formed the Department of Planning and Infrastructure with an aim to increase integration in land use and transport policy and planning. The WAPC remained the independent strategic and statutory planning decision maker. The Department of Planning and Infrastructure prepared the Greater Perth Discussion Papers on behalf of the WAPC. The papers emphasised the need for Perth to focus on improving the sustainability of land use and transport systems and on improved integration of land use and transport planning. The Western Australian government released the State Sustainability Strategy. The Strategy incorporated objectives to overcome car dependence and to support communities to fully participate in a more sustainable future (Government of Western Australia, 2003 p. 7). The WAPC s draft Network City was to provide a new strategic framework for a sustainable future for Perth as a region of 2.2 million people or until Network City strategy was prepared through an extensive community consultation process which included Dialogue with the City, a landmark participatory planning event involving more than 1,100 people. It could be differentiated from previous statutory documents by its focus on a broader array of social, environmental and economic objectives; its promotion of urban consolidation and infill development; and its consistency with new urbanist and participatory planning principles. The core theme of Network City was the integration of transport and land use by developing a network of places (activity centres) connected by corridors (activity corridors) that allow for the movement of freight and people. The strategy envisaged activity centres being developed as higher density, mixed use urban centres incorporating a range of employment, service and recreational uses and proposed that 60% of urban growth would be accommodated within the existing urban area and 40% would be accommodated through greenfield development. The strategy also proposed substantial investment in a high quality public transport system to connect activity centres in the region. The detailed implementation of Network City was proposed to occur through local consultative processes or dialogues, however implementation was limited and the draft strategy did not obtain the support of the State Liberal opposition. Consolidated the Town Planning and Development Act 1928, Metropolitan Region Town Planning Scheme Act 1959 and the Western Australian Planning Commission Act 1985 into a single piece of legislation. Investment in mining increased dramatically and Western Australia entered a period of rapid economic and population growth during which the population increased from 1.5 million in 2006 to 1.7 million in 2011 and more than 2 million people by June FACTBase 6

7 Date Event Summary of Strategy/Key Events/Policy Directions 2009 Reform of Western Australian planning system Planning Makes it Happen 2009 Department of Planning and Department of Transport reformed as separate agencies 2010 WAPC s State Planning Policy 4.2: Activity Centres for Perth and Peel 2010 WAPC s Directions 2031 and Beyond final report and draft Central Metropolitan Perth, and Outer Metropolitan Perth and Peel Sub-regional strategies released 2011 Strategic Assessment of Perth and Peel 2011 Metropolitan Redevelopment Authority Act The State Government released Planning Makes it Happen, which promised the most comprehensive and strategic reform agenda ever undertaken of the Western Australian planning framework (DoP, 2009 p. i). The process resulted in initiatives aimed at improving quality and consistency of decision making and implementation of strategic metropolitan goals at a local level. Legislative outcomes included amendments to the Planning and Development Act in 2010 which introduced Development Assessment Panels and other measures which shifted planning powers away from local governments and in some instances the WAPC. The Department of Planning and Infrastructure is divided into two separate agencies, the Department of Planning and the Department of Transport. WAPC remained the independent strategic and statutory planning authority. Revised the hierarchy of places and locations (activity centres) from previous retail policies, providing for a range of economic activities and employment across Perth and Peel with higher order employment uses encouraged to decentralise to activity centres within the upper levels of the hierarchy. Activity centres were now to have a full range of commercial, employment, cultural, entertainment and residential functions, not just to be retail focused. Adopted after the advertising of a draft for public comment in Provided a strategic framework for the development of metropolitan Perth. Covered the Perth Metropolitan Region and also the Peel Region. Planning horizon until 2031 or a population of 2.2 million people, but indicated the need to plan beyond 2031 for the 3.5 million people city expected by around mid-century. Directions 2031 reflected a hybrid of corridor planning and new urbanist principles and promoted urban consolidation and infill development as well as urban expansion. Directions 2031 proposed: Infill development target of 47%. Infill targets for local authorities which proposed that 37% of infill development would occur within the Central sub-region and that remaining infill would be dispersed through outer sub-regions. Reducing the consumption of residential zoned land by implementing targets of 15 dwellings per gross urban zoned hectare in new development areas and establishing minimum residential densities. Future urban growth focused around retail and employment centres, transit oriented developments, and public transport corridors. Focusing the highest share of employment in the Perth CBD but increasing jobs and employment self-sufficiency in sub-regions. An activity centres planning program, including an audit of activity centres and the preparation of activity centre structure plans. A Public Transport Strategy for Perth and Peel. Directions 2031 included some strategic actions and targets for the delivery of key objectives and sought monitoring and reporting upon implementation. Defined areas for more detailed sub-regional structure plan preparation: Central sub-region, North-East sub-region, North-West sub-region and one plan for the South-East and South-West sub-regions/peel region. The WA Ministers for Planning and Environment and the Commonwealth Minister for Sustainability, Environment, Water, Population and Communities announced that the State and Commonwealth governments agreed to undertake a Strategic Assessment of the Perth and Peel regions to assess the potential impacts arising from Perth s development on matters of national environmental significance as protected by the Commonwealth Environment Protection and Biodiversity Conservation (EPBC) Act The aim of the Strategic Assessment was to identify appropriate management measures to ensure the unique environmental values of the Perth and Peel regions are protected and maintained, while enabling urban, commercial and industrial developments. Created the Metropolitan Redevelopment Authority (MRA) from the commencement of The Act consolidated the four previous redevelopment bodies established under separate Acts and enabled the redevelopment authority model to be applied across the Perth metropolitan region via regulations without the requirement for additional legislative change. FACTBase 7

8 Date Event Summary of Strategy/Key Events/Policy Directions 2011 Draft Public Transport Plan for Perth The Department of Transport s draft Public Transport Plan for Perth was released for public comment. The plan supported the current land use plan, Directions 2031, and aimed to deliver strategies to meet public transport requirements to First Delivering Directions 2031 Annual Report Card released 2013 State election Liberal government re-elected Capital City Planning Framework: a vision for Central Perth 2014 Population reaches two million 2014 Planning Makes it Happen Phase State Planning Strategy 2050 The draft Public Transport Plan recognised the importance of central and inner areas of Perth in terms of employment and generation of public transport trips (76% of all trips within 15km of CBD) and prioritised this area for future public transport investment. The draft Public Transport Plan 2031 proposed: Increasing the capacity of current public transport services. Expanding the current public transport network: providing priority bus lanes to connect major centres and through congested areas; addition of rail service to the airport and hills; extend Armadale line to Byford and then Mundijong; extend the northern line to Yanchep. Transformational projects including a new rapid transit system through the areas of Alexander Drive, through North Perth, extending to Curtin and UWA/QEII. Possible ferry services linking Burswood, East Perth, Perth and Applecross. Integrating public transport and land use through: concentrating development in designated strategic centres; aligning centres with corridors; connecting streets to create connections to public transport; improved walkability access to public transport; management of parking supply to discourage car use; and the protection of priority public transport routes through management of the road system. The WAPC s first report monitoring the delivery of Directions The report card provided a statistical benchmark regarding the delivery of strategic planning objectives in metropolitan Perth and Peel. The WAPC s strategy for the central Perth portion of the Central subregion, covering an area 12km by 12km around the Perth central business district, was published after a draft had been released for public comment. The Framework proposes: A network of high-frequency transport corridors to facilitate public transport use. Encouraging walking, cycling and public transport and prioritising alternative transport over car use. Increasing residential population in central Perth and encouraging a mixed use of activities with higher density developments. Linking the CBD to the airport along the Midland rail line. Investigating further the role of ferries in facilitating movement. Promoting an increased supply of end-of-trip facilities as per The Australian National Cycling Strategy Future planning to facilitate activity centre intensification with specific reservations for doing so designated in local planning schemes and strategies. Sustained period of population growth sees metropolitan Perth/Peel s population reach 2 million people, noting that Directions 2031 had considered 2.2 million might be reached by The initiation of Phase 2 of the government s planning reform process had a stated aim of improving statutory decision making processes and land use planning and land supply, including: best practice at both the State and local government level; further streamlining of planning processes; aligning statutory outcomes with strategic frameworks; enabling more integrated land use and infrastructure planning; and supporting the timely release of development land in accordance with State Government policy objectives (Department of Planning, 2014). Further changes to the planning system included the introduction of the Planning and Development (Local Planning Schemes) Regulations 2015 which in part override existing local planning schemes. The WAPC s review of the 1997 State Planning Strategy was endorsed by State Cabinet and published. FACTBase 8

9 Date Event Summary of Strategy/Key Events/Policy Directions 2015 Draft Perth and Strategic Framework for Perth and Peel Draft Perth and was released providing updated context and increased detail for the implementation of Directions Perth and incorporates a suite of documents, which provide a land use planning framework to guide Perth s growth from a region of 2 million people to 3.5 million people. The draft Perth and Peel@3.5million documents identify that there is an adequate supply of zoned land to meet Perth s growth requirements until approximately However, the strategy also proposes to enable the zoning of additional greenfield land for urban expansion. A distinguishing feature of Perth and Peel@3.5million was the concurrent release of sub-regional strategies which identified locations for urban expansion as well as outline plans, strategies and actions for implementing the strategic vision. They are intended to be further refined into sub-regional structure plans, following the finalisation of the strategic assessment Draft Perth and Peel Green Growth Plan Strategic assessment of additional conservation needs by State and Commonwealth Governments resulted in the release of the draft Perth and Peel Green Growth Plan for public comment. Applies to land to the north and south of Perth Metropolitan and Peel Regions. Summary of Key Strategies and Objectives for Perth and Peel 1955-Present The draft Green Growth Plan seeks to deliver a comprehensive environmental program for the protection of both Commonwealth matters of national environmental significance and State environmental values. The plan proposes 170,000 ha of new and expanded conservation reserves in the Perth and Peel region and immediate surrounds and includes improved protection and management of Bush Forever sites; the establishment of Peel Regional Park; and measures to reduce nutrient run off into the Swan Canning and Peel Harvey estuaries. Strategies and objectives for land use and transport in Perth have been relatively consistent over time. The most notable shifts in strategic direction occurred in the 1980s and 1990s with the emergence of strategies aimed at reducing car dependence, enabling urban consolidation and infill development and protecting the environment. Table 1: Summary of Key Strategies/Strategic Objectives for Perth and Peel 1955-Present Key Strategies/Objectives 1 Low density greenfield expansion (as dominant) Stephenson- Hepburn Plan (1955) Corridor Plan (1970) Metroplan (1990) Network City (2004) x x x x 2 Decentralise employment x x x x x 3 Focus employment into small number of strategic metropolitan centres 4 Employment into a hierarchical structure of activity centres 5 Increase employment selfsufficiency and self-containment 6 High quality road network, to cater for a majority of trips by car/road x x x x x x x x x x x x 7 Radial public transport system x x *x 8 Invest in new public transport infrastructure x Directions 2031 (2010) x x x x x x FACTBase 9

10 Key Strategies/Objectives Stephenson- Hepburn Plan (1955) Corridor Plan (1970) Metroplan (1990) Network City (2004) 9 Reduce car dependency x x x 10 Connected network of activity centres 11 Urban consolidation x x x 12 Increase proportion of urban infill (target) x 20% infill x x 60% infill 13 Improve amenity in the Perth CBD x x x *Metroplan also identified/acknowledged the need for orbital routes. Directions 2031 (2010) x x 47% infill Land Use and Transport Outcomes Figure 1: Population Change This section examines the outcome of the key land use and transport strategies for the Perth metropolitan region. Low Density Expansion as the Dominant Form of Growth Perth has developed as a low density region. The region extends 150km from north to south and population growth has been most significant in fringe, greenfield locations (DPC, 2015). ABS residential building approvals data for indicates that residential building activity remains concentrated in outer locations. Approximately 60% of residential building approvals over this period have been for locations in excess of 15km from the Perth CBD. Key residential building hotspots are primarily outer and middle locations including the Cities of Wanneroo, Swan, Stirling, Rockingham, Cockburn, Armadale, Mandurah, Gosnells and Belmont and the Town of Kwinana. Source: SGS Economics as cited by Department of Infrastructure and Regional Development, 2015 (Chapter 3, p. 38) FACTBase 10

11 Figure 2: Residential Building Approvals by Local Authority Residential Building Approvals % Residential Building Approvals Approx. Distance from CBD Local Authority Proportion of Residential Building Approvals Approx. Distance from Perth CBD Source: ABS, 2013; ABS 2014; ABS 2015c Decentralise Employment The proportion of employment located in the Perth central business district has reduced from approximately 60% in 1955 to 15% in 2011 (Stephenson and Hepburn, 1955; Department of Planning, 2015). Employment has also become dispersed, however current evidence indicates that the majority of significant employment industries remain concentrated within the Central sub-region. In 2011, 64% of total employment was in the Central sub-region (Department of Planning, 2015). More recent counts of Australian businesses (2014) indicate that approximately 72% of the top 69 business nodes (SA2s with highest number of businesses with twenty or more employees) in Perth and Peel are located within 15km of the Perth central business district. Figure 3: Businesses with 20+ Employees/Distance from Perth CBD Distance from the Perth CBD Nodes of Businesses with 20+ Employees (SA2)/Distance from Perth CBD An estimated 72% of key nodes of businesses with more than 20 employees are located within 15km of the Perth CBD Number of Businesses with 20+ Employees by Statistical Area Level 2 Source: Adapted from ABS, 2015, Counts of Australian Businesses including Entries and Exits FACTBase 11

12 Focus Employment into Strategic Metropolitan Centres/ Hierarchical Structure of Activity Centres Strategic metropolitan centres are designated as the highest order activity centres within the current strategic planning and policy framework for the Perth region. There has been a long-term strategic objective to attract tertiary employment into designated strategic metropolitan centres. Evidence indicates that in practice, employment has been distributed through more than 200 activity centres within metropolitan Perth and Peel, with primary concentrations of economic activity and employment remaining in central Perth and in activity centres located within approximately 15km of the Perth central business district. Fremantle is the strategic metropolitan centre with the highest concentration of businesses, with an excess of 20 employees. The City of Stirling and City of Canning also contain substantial agglomerations of employment, however businesses in these locations appear to be distributed through multiple industrial, retail and/or mixed business areas rather than concentrated within the designated strategic metropolitan centre. These mixed business/industrial areas are highly car dependent. Figure 4: Top 30 Locations (SA2 s) for Businesses with more than 20 Employees/Distance from the CBD (Excluding Perth CBD) Nodes of Businesses with 20+ Emloyees 2014/Distance from CBD Number of Businesses Approx. Distance from CBD (km) Statistical Area Level 2 Number of Businesses with 20+ Employees Approx. Distance from CBD Source: Adapted from ABS, 2015b FACTBase 12

13 Increase Employment Self-sufficiency and Selfcontainment The proportion of employment outside the Perth central business district and the Central subregion has increased over time, however evidence indicates that outside the Central sub-region, the proportion of residents who live and work within the same corridor remains limited (Martinus K, 2016). Statistics also indicate that: Average commute distances in the Perth region have increased to 14.9km, 0.1km behind Sydney (BITRE, 2015). Commute distances are, on average higher in outer subregions than in the Central sub-region (BITRE, 2015). The proportion of crosssuburban commutes have increased (BITRE, 2015). Table 2: Self-Containment by Sub-Region Sub-region: Central Northwest Northeast Southeast Southwest Peel Employment selfcontainment* *Proportion of workers working locally to total labour force Source: Martinus K, 2016, p. 4. Figures 5: Commute Distances by Capital City/State 2011 Sydney Rest of NSW Melbourne Rest of Vic. Brisbane Rest of QLD Adelaide Rest of SA Perth Rest of WA Hobart Rest of Tas. Darwin Rest of NT ACT Australia Commute Distances by Capital City/State Average distance (km) Figure 6: Commute Distances Regional Perth 2011 Commute Distances Regional Perth 2011 Inner South East North East North West South West Mandurah Perth average distance (km) By SA4 of work By SA4 of residence FACTBase 13

14 Figure 7: Cross-Suburban Commutes 6.0% Cross-Suburban Commutes Ambiguous Average annual growth rate % 4.0% 3.0% 2.0% 1.0% 0.0% Inward Outward Within home SLA To different SLA in same subregion Sydney Melbourne Brisbane Perth Cross-suburban Figures 5-7 Source: Bureau of Infrastructure Transport and Regional Economics, 2015, Australian Commuting Distance: cities and regions Information Sheet 73 High-Quality Road Network (to cater for a majority of trips by car/road) Perth has a high-quality road network which is 14,162 kilometres long and accommodates 17.8 billion vehicle kilometres per annum. However, the performance of the road network has been declining and congestion costs per kilometre travelled and per capita have increased. Increasing congestion is closely linked to population growth. Figure 8: Avoidable Costs of Congestion Annual avoidable cost ($ per person Australian dollars) Annual Avoidable Costs of Congestion Per Capita Sydney Melbourne Brisbane Adelaide Perth Hobart Darwin Canberra Total Metro projection - lower baseline scenario 2030 projection - upper baseline scenario Source: BITRE, 2015 FACTBase 14

15 Figure 9: Population Growth and Congestion Costs 7.00 Population Growth and Congestion Costs $ billion (avoidable congestion costs Australian dollars) Resident population (thousand) Sydney Melbourne Brisbane Adelaide Perth Hobart Darwin Canberra Source: BITRE, 2015 (p. 31) Radial Public Transport System/Expand the Public Transport System The public transport system in Perth and Peel remains radial and primarily focused towards providing for journeys from suburban residential locations to the Perth central business district. The only major orbital public transport route is the circle bus route, bus routes 98 and 99, which was initiated in 1998 and serves inner suburbs within the Perth region. As a result, while approximately 47% of journeys to work in the Perth CBD are by public transport, just 5% of journeys to work outside the city centre are undertaken by public transport (Department of Transport, 2011; Loader, 2013). Reduce Car Dependence A comparison of 1991 and 2011 Census data indicates that there has been a significant increase in public transport use in recent decades, most notably in trips to work by train. Yet the population of Greater Perth remains car dependent. Table 3: Journey to Work 1991 and 2011 Transport options Public transport 1991 ABS Census Journey to work 1.5% (Train) 6.1% (Bus) Walk only 2.1% 2.6% Cycle 1.3% 1.7% Car as passenger 7.7% 5.3% 2011 ABS Census Journey to work (population of 1.72 million) 6.7% (Train) 3.7% (Bus) Car driver 61% 62.2% Taxi 0.2% 2.2% Transport substitution by telework N/A 3.4% Source: ABS, 2011 Census; ABS 1991 Census (Greater Perth) Urban Consolidation The average density of new residential development in Perth and Peel is 10 dwellings per gross urban zoned hectare (17 dwellings per residential site hectare), in comparison to the Directions 2031 target of 15 dwellings per gross urban zoned hectare (26 dwellings per residential site hectare), however there has been a 13% increase in the proportion of smaller lots within new residential developments (post Directions 2031) (Department of Planning, 2012 p20; Department of Planning, 2015a p 10). Residential building approvals for Greater Perth from 2012 to 2016 indicate that 74% of approvals were for detached houses and 26% of approvals were for higher density dwellings (semidetached, row or terrace houses or townhouses; and flats, units or apartments) over this period (ABS, 2013; ABS 2014; ABS 2015c). This is a slightly higher proportion than the existing housing stock, of which 22.7% are higher density housing types (ABS, 2011). FACTBase 15

16 Increase Proportion of Urban Infill The proportion of infill development in Perth and Peel has been relatively consistent over time. The historic 20-year average infill rate has been calculated at 30%. In 2011, the net infill rate was 32%; in 2012 it was 28%; and in 2013 it was 31% (Department of Planning, 2015a). Building approvals data from indicates that outer local authorities that have accommodated the highest proportion of residential building approvals in Perth and Peel over the past four years are the Cities of Wanneroo (14%), Swan (10%), Rockingham (8%), Armadale (6%) and Mandurah (5%). Residential building approval hotspots in inner and middle locations include Stirling (9%), Cockburn (7%), Gosnells (5%), Belmont (4%) and Kwinana (4%). An estimated 40% of residential building approvals over this period have been for locations within approximately 15 kilometres of the Perth CBD (ABS, 2013; ABS 2014; ABS 2015c). Concentrate Urban Infill in Accessible Locations Low to medium density infill (infill yielding one dwelling per lot to 2-5 dwellings per lot) make up 83% of infill development and infill development has been distributed through the metropolitan region (Department of Planning, 2015a p. 70). As a result, population density is more dispersed in the Perth metropolitan region than in other Australian capitals (Loader, 2012). Residential building approvals data also indicates that higher density development continues to be relatively Figure 10: Proportion of Infill Development Number of dwellings Source: Department of Planning 2015 Proportion of Infill Development Greenfield areas Infill areas Figure 11: Population Weighted Density by Distance from CBD (2011) Density (persons/ha) Distance from CBD (km) Source: Loader 2012 Population weighted density by distance from CBD 2011 Greater Sydney Greater Brisbane Greater Adelaide dispersed through the region with key concentrations currently within middle suburban locations. There is no evidence that infill development has been specifically concentrated within locations accessible by public transport or active modes. Greater Melbourne Greater Perth Australian Capital Territory FACTBase 16

17 Figure 12: Proportion of Residential Building Approvals for Higher Density Development by Local Government Authority / Journey to Work Car Use 2011 Higher Density Development /Car Use 2011 Proportion High Density Wanneroo (C) Swan (C) Stirling (C) Rockingham (C) Cockburn (C) Armadale (C) Mandurah (C) Gosnells (C) Belmont (C) Kwinana (T) Serpentine-Jarrahdale (S) Canning (C) Bayswater (C) Joondalup (C) Vincent (C) Perth (C) Victoria Park (T) South Perth (C) Kalamunda (S) Cambridge (T) Melville (C) Fremantle (C) Murray (S) Subiaco (C) Mundaring (S) Nedlands (C) Bassendean (T) Claremont (T) East Fremantle (T) Cottesloe (T) Waroona (S) Mosman Park (T) Peppermint Grove (S) Local Authority Proportion of Higher Density Development Car Use Journey to Work Car Use Source: ABS, 2015; ABS, 2013; ABS 2014; ABS 2015c; ABS, 2011, Census (Car as Driver and Car as Passenger) Improve Amenity Perth City Centre Substantial investment and redevelopment in the Perth central business district and in Northbridge since the 1990s has increased the amenity of the central city area and has facilitated significant population growth within the City of Perth. This has been assisted through legislation enabling the establishment of redevelopment authorities to oversee the redevelopment of key areas, and through the City of Perth s Strategic Community Plan Vision Key Findings and Observations 1. The strategic planning system in metropolitan Perth has been successful at facilitating orderly low density growth and car based movement. 2. The effectiveness of strategies which aim to intervene in the market to influence the location of employment uses, reduce low density growth, increase urban infill, encourage urban infill in accessible locations and reduce car dependence has been limited. 3. Strategies and policies to increase employment selfsufficiency/self-containment by focusing employment into strategic regional activity centres have had limited success, with key agglomerations of economic activity and employment remaining centralised, but often diffused in public transport deficient locations. Problems associated with developing strategic activity centres have been recognised since the 1980s. 4. A substantial proportion of public transport infrastructure initiatives proposed within strategic plans for Perth from 1955 to present including proposals for rail, light rail, rapid bus and ferry, have not been implemented. 5. The governance framework and legislative and policy context has become increasingly complex over time and today multiple political portfolios, government agencies and stakeholders are involved in or effect land use and transport planning policy and implementation. This has increased the potential for competing objectives between agencies and stakeholders. 6. The implementation of strategic plans for the Perth and Peel regions have relied upon policy consistency FACTBase 17

18 and co-ordination at a local government level. This has been recognised as an obstacle to the implementation of strategic plans for Perth since the 1960s and 1970s. Legislative amendments and regulations since 2010 have centralised more planning powers from local governments to the State level, but this has become more diffused at State level between the WAPC, Metropolitan Redevelopment Authority and the Development Assessment Panels (Maginn and Foley, 2014). 7. The statutory 1963 Metropolitan Region Scheme and 2003 Peel Region Scheme have provided strong implementation mechanisms for strategic plans, having a 30-year plus horizon for the zoning and reservation of land. The continual amendment of these schemes, generally in accordance with strategic plans and sub-regional structure plans, has given a high degree of certainty as to the land which will eventually be developed, the co-ordination of zonings and reservations in local government planning schemes, and the WAPC s timely and effective acquisition of land reserved for future regional public purposes, using the Metropolitan Region Improvement Tax in the Metropolitan Region (not available in Peel). State and Commonwealth environmental assessment processes have lessened planning certainty in some cases (Foley and Williams, 2016). 8. Localised community resistance to strategies for urban infill and urban consolidation have been a barrier to implementation since first proposed in the late 1980s. 9. Newly elected State Governments are likely to initiate major reviews of the strategic planning framework/ changes to the strategic direction for land use and transport. This has affected the implementation period of some strategies and plans, and has and can influence the capacity for the realisation of long-term strategic goals. 10. There is inherent conflict between some core strategies and objectives for the Perth metropolitan region. Examples include strategies which promote urban infill and strategies which enable outward urban expansion; and strategies which promote the provision of a high quality road system and those which aim to reduce car dependence. 11. Despite long-term recognition of the need to integrate land use and transport planning for the Perth region, particularly since the 1990s, the Stephenson-Hepburn Plan remains the only fully integrated land use and transport plan prepared for Perth. References Australian Bureau of Statistics, 1991, Census of Population and Housing, Commonwealth of Australia Australian Bureau of Statistics, 2011, Census of Population and Housing, Commonwealth of Australia Australian Bureau of Statistics, 2013, Building Approvals, Australia, July 2013, Commonwealth of Australia Australian Bureau of Statistics, 2014, Building Approvals, Australia, July 2014, Commonwealth of Australia Australian Bureau of Statistics, 2015, Counts of Australian Businesses including Entries and Exits , Commonwealth of Australia Australian Bureau of Statistics, 2015b, Counts of Australian Businesses including Entries and Exits Businesses by Industry Division by Statistical Area Level 2 (a) (b) by Employment Size Ranges, June 2014, Commonwealth of Australia Australian Bureau of Statistics, 2015c, Building Approvals, Australia, Dec 2015, Commonwealth of Australia Bureau of Infrastructure, Transport and Regional Economics (BITRE), 2013, Population growth, jobs growth and commuting flows a comparison of Australia s four largest cities, Report 142, Department of Infrastructure and Regional Development Commonwealth of Australia, Canberra ACT Bureau of Infrastructure Transport and Regional Economics (BITRE), 2015,Traffic and Congestion Cost Trends for Australian Capital Cities, Information Sheet 74, Department of Infrastructure and Regional Development, Commonwealth of Australia, Canberra ACT Bureau of Infrastructure Transport and Regional Economics, 2015a, Australian Commuting Distance: cities and regions, Information Sheet 73, Department of FACTBase 18

19 Infrastructure and Regional Development, Commonwealth of Australia, Canberra ACT Curtis C, 2012, The Challenge of delivering the D in Transit Oriented Development: Examining the Town Planning Contribution, The Journal of Transport and Land Use, 2012, vol. 5, issue 3, pages 83-99, Centre of Transport Studies, University of Minnesota Department of Infrastructure and Regional Development, 2015, State of Australian Cities, Progress in Australian Regions, Commonwealth of Australia, Canberra ACT Department of Infrastructure, 2002, Melbourne 2030, State of Victoria Department of Planning, 2012, Delivering Directions Annual Report Card, Western Australian Planning Commission Department of Planning 2013, Planning makes it Happen Phase 2, Review of Development Assessment Panels, State Government of Western Australia Department of Planning, 2014, Introduction to the Western Australian Planning System, State Government of Western Australia Department of Planning, 2015, 3.5 Million Central Sub-region Planning Framework, Western Australian Planning Commission Department of Planning, 2015a, Urban Growth Monitor 2015 Section 4, Western Australian Planning Commission Department of Premier and Cabinet, 2015, Strategic Assessment of the Perth and Peel Regions, State of Western Australia Department of Transport, 2011, Draft Public Transport for Perth in 2031, Mapping Out for Future for Perth s Public Transport Network, State of Western Australia Foley N and Williams P, 2016, Funding and Governance of Regional Public Land Acquistion, Urban Policy and Research, 2 February 2016 Online , Retrieved 25 May 2016 Freestone R, 2004, The Americanization of Australian Planning, com:8080/international/case/ case/1629.pdf, Retrieved 12 December 2015 Government of Western Australia 2003, Hope for the future: The Western Australian State Sustainability Strategy, Department of the Premier and Cabinet, Perth. Loader 2012, Charting Transport, as cited by Bureau of Infrastructure Transport and Regional Economics, 2015, Australian Commuting Distance: cities and regions Information Sheet 73, Department of Infrastructure and Regional Development, Australian Government Loader, 2013, Journey to work and the city centre, Charting Transport, com/2013/02/16/the-journeyto-work-and-the-city-centreaustralian-cities /, Retrieved 15 March 2016 Maginn P and Foley N, 2014, From a centralised to a diffused centralised planning system: planning reforms in Western Australia, Australian Planner, Vol. 51, No. 2, 2014, p Metropolitan Region Planning Authority, 1970, Corridor Plan for Perth, State Government of Western Australia Ministry for Planning, 1997, Commercial Land Use Survey 1997: Perth Metropolitan Region, Western Australian Planning Commission Richardson E, 2010, Extracting maximum Benefit from Parking Policy 10 Years of Experience in Perth Western Australia, Association for European Transport and Contributors State Library of WA, 2010, Managing the River, State Library of Western Australia, wa.gov.au/swan_river/caring_ for_the_river/managing_the_ river?sq_design_name=print, Retrieved 20 February 2016 Stokes and Hill, 1992, The evolution of metropolitan planning in Western Australia, page , Urban and Regional Planning in Western Australia, Paradigm Press, Perth Stephenson and Hepburn 1955, Plan for the Metropolitan Region, Government of Western Australia Western Australian Planning Commission, 2007, Liveable Neighbourhoods, a Western Australian government sustainable cities initiative, Government of Western Australia White, Griffiths & Claughton, 1972, Report of the Honorary Royal Commission of Inquiry into the Corridor Plan for Perth, Government of Western Australia Yiftachel and Kenworthy, 1992, The planning of Metropolitan Perth, some critical observations, page , Urban and Regional Planning in Western Australia, Paradigm Press, Perth FACTBase 19

20 About FACTBase FACTBase is a collaborative research project between the Committee for Perth and The University of Western Australia to benchmark the liveability of Perth and its global connectedness through an examination of Perth s economic, social, demographic and political character. The FACTBase team of academics and researchers condense a plethora of existing information and databases on the major themes, map what is happening in Perth in pictures as well as words, and examine how Perth compares with, and connects to, other cities around the world. Copyright This paper is copyright of The University of Western Australia and the Committee for Perth. While we encourage its use, it should be referenced as: Davis, G. and Harford-Mills, G. (2016) Examining 60 Years of Strategic Planning in Metropolitan Perth and Peel, FACTBase Bulletin 50, The University of Western Australia and the Committee for Perth, Perth. Acknowledgements The authors acknowledge the peer review undertaken by Professor Neil Foley, School of Earth and Environment at The University of Western Australia. About the authors Gemma Davis is Manager of Research and Strategy for the Committee for Perth and is an Honorary Research Fellow with The University of Western Australia. She is a policy and strategic planning professional with 19 years experience and has worked as a consultant in Australia and New Zealand for public and private organisations. She holds an Honours Degree in Urban and Regional Planning from Curtin University and has undertaken studies in Arts and Psychology at The University of Western Australia and Aboriginal Studies at Curtin University. The Committee for Perth is a member-funded organisation and we acknowledge Foundation partners: A complete list of current members is available at: Georgia Harford-Mills is a Research Officer with the Committee for Perth, joining the organisation in She holds a Bachelor of Science, Geography and received First Class Honours in Urban and Regional Planning from The University of Western Australia. UniPrint FACTBase 20