We Have A Plan! A guide for community service organisations to engaging with the Tasmanian spatial p

We Have A Plan!

A guide for community service organisations to engaging with the Tasmanian spatial planning system

CONTENTS We Have A Plan! Factsheet............................................................................................................................................ 2 I. Introduction: Why spatial planning? Why community service organisations?.................................4 II. Key planning bodies and instruments: a field guide .................................................................................... 7 At the state level............................................................................................................................................................ 7 Tasmanian Planning Commission...................................................................................................................... 7 State Government..................................................................................................................................................... 8 Regional level.................................................................................................................................................................... 8 Local level .......................................................................................................................................................................... 9 Strategic documents................................................................................................................................................ 9 Day-to-day planning mechanisms................................................................................................................... 10 III. Getting engaged ..........................................................................................................................................................12 Tips at a glance..............................................................................................................................................................13 Tips for community service organisations ..................................................................................................13 Tips for planners and community development staff............................................................................16 Conclusion .............................................................................................................................................................................17 Appendix 1: Tasmania’s Resource Management and Planning System ..................................................18 Appendix 2: Some important addresses ................................................................................................................19 Appendix 3: Some great resources for community service organisations and spatial planners alike........................................................................................................................................ 20

About TasCOSS TasCOSS is the peak body for the Tasmanian community services sector. Its membership comprises individuals and organisations active in the provision of community services to low income, vulnerable and disadvantaged Tasmanians. TasCOSS represents the interests of its members and their clients to government, regulators, the media, and the public. Through our advocacy and policy development, we hope to draw attention to the causes of poverty and disadvantage and promote the adoption by government of effective solutions to address these issues.

Designed by

Authorised by: Tony Reidy, Chief Executive Officer For inquiries: Wynne Russell, Planning Policy Analyst wynne@tascoss.org.au TasCOSS gratefully acknowledges the support of the Social Inclusion Unit, DPAC for this report and for its companion piece, Social Inclusion Issues for Spatial Planning in Tasmania. We also thank all those who have contributed their time and thoughts to the preparation of this report.

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We Have A Plan! Factsheet What is “spatial planning”?

“Spatial planning” is an umbrella term for all forms of planning that involve physical space—for example, land use planning, urban planning, regional planning, transport planning, or other forms of infrastructure planning.

Why is spatial planning important to community service organisations?

The work of many Tasmanian community service organisations is focused on helping socially excluded Tasmanians secure the resources, opportunities and capabilities that they need to learn, work, and engage socially, economically and politically. However, many socially excluded Tasmanians face problems related to past spatial planning decisions.

• Tasmania’s supply of public and social housing as well as affordable private housing is far short of demand, and will fall shorter still as housing affordability continues to decline.

• Tasmania has a history of planning decisions that have led to pockets of disadvantage—broad-acre public housing projects outside of Hobart and Launceston, for example, which are isolated from services and employment.

• Tasmanian public and community transport networks are not extensive, a situation that disadvantages the state’s high (and growing) number of older people who may not be able to drive their own car as well as the higher than average number of residents who cannot afford to own or run a car.

Rising fuel and energy prices and the effects of climate change are likely to exacerbate these issues as well as lead to new challenges.

Against this backdrop, future spatial planning that is focused on social inclusion can: • Encourage the construction and creation of affordable housing options for all ages and needs in convenient, sustainable locations • Provide opportunities for healthy activities for people of all ages, physical abilities and levels of socio-economic advantage • Provide the infrastructure for public and community transport options, as well as healthy options such as walking and cycling • Provide peaceful places where people of all ages, physical abilities and levels of socio-economic advantage can de-stress and relax • Help people and communities to connect through spaces for social and community activity • Bring services closer to people • Help socially excluded Tasmanians access employment • Help ensure that socially excluded Tasmanians can manage the financial and logistical impacts of climate change.

• Help ensure the liveability of all Tasmanian towns and neighbourhoods.

• Facilitate and encourage the activities of community service organisations.

Spatial planning principles for social inclusion should focus on: • Encouraging participation in decisionmaking by socially excluded and vulnerable Tasmanians and community service organisations.

• Ensuring that spatial planning works to protect the interests of all Tasmanians, regardless of socio-economic status, age, gender, or levels of ability.

• Ensuring that the social inclusion impact of development is understood, and that development does not negatively affect socially excluded Tasmanians.

• Ensuring that all levels of the spatial planning system work effectively with each other and with relevant agencies at their own and other levels of government.

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Why are community service organisations important to spatial planners?

The issues that lie behind social disadvantage are complex and interrelated, and socially excluded individuals and groups often do not engage with planning processes. Thanks to their on-the-ground, client-focused activities, community service organisations have a detailed understanding of social exclusion issues, and can help planners: • Understand specific local issues contributing to disadvantage and social exclusion • Avoid potential problems in existing and proposed planning approaches and schemes • Develop innovative approaches towards overcoming barriers to social inclusion and community well-being.

What are the main spatial planning bodies in Tasmania?

What can community service organisations do to engage with the spatial planning system?

• Identify yourself to planning bodies, stating your organisation’s interests and objectives and asking to be added to the list of stakeholders for relevant planning processes.

• Get to know people in planning bodies.

• Lobby councils, regional organisations, and the Tasmanian Planning Commission for early inclusion of community service organisations in all spatial planning processes.

• Get involved at the drafting stage.

• Divide up the load.

• Concentrate on a few clear main points.

• Think constructive, not confrontational.

• Emphasise the opportunities for mutual benefit.

• Play a bridge-building role.

• The Tasmania Planning Commission

• Build strength in numbers.

• The Tasmanian state government

• Get clients involved.

• Regional council associations

• Lobby your regional council association to address social inclusion issues in their upcoming regional settlement strategies.

• Councils

• Lobby your council and regional council association to follow Hobart City Council’s lead in drawing up Social Inclusion and Affordable Housing Strategies.

• Lobby for better inclusion of spatial planning in other policy areas.

What can planners and community development staff do to get community service organisations involved?

• Hold conversations with community service organisations before deadlines loom.

• Create a database of local community service organisations interested in contributing to planning processes.

• Go to them.

• Use strategic advisory groups strategically.

• Urge your organisation to draw up a Social Inclusion Strategy, and to take a whole-oforganisation approach to social inclusion.

• Take the lead yourselves in breaking down bureaucratic barriers.

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We have a plan!

A guide for community service organisations to engaging with the Tasmanian spatial planning system “Social inclusion starts with land use planning.”

Social Inclusion Strategy for Tasmania, p.73.1

I. Introduction: Why spatial planning?

Why community service organisations?

This guide is written to help Tasmanian community service organisations (community service organisations) understand and engage with the various levels and stages of Tasmania’s spatial planning system. It also hopes to encourage early, effective inclusion of community service organisations and their clients in spatial planning processes.

But why should community service organisations care about spatial planning issues? Why should spatial planners want to engage with community service organisations? And what is spatial planning anyway?

Many community service organisations have social inclusion as one of their key goals.

“Social inclusion” is about people having access to the opportunities, capabilities and resources that enable them to contribute to and share in their communities and society at large, including being able to: • Learn (participate in education and training).

• Work (participate in paid, unpaid and/or voluntary work, including family and carer responsibilities).

What is a community service organisation?

Community service organisations are non-government, not-for profit organisations that provide human, health, community and social services. These organisations operate within a broader context that also includes services provided by government agencies, forprofit organisations, and informal household carers. Community service organisations provide services in a range of areas.

These include: • Community services and community development • Disability services • Aged and community care services • Youth services • Children and family services • Culturally and linguistically diverse (CALD), migrant and refugee services • Alcohol and other drug services • Indigenous services • Housing and homelessness services • Education and training • Health • Justice • Advocacy • Mental health

• Engage (connect with people, use local service, and participate in local cultural, civic and recreational activities).

• Have a voice (influence decisions that affect them).2

What is “spatial planning”?

1 Adams, David (2009) A Social Inclusion Strategy for Tasmania. Social Inclusion Commissioner, Department of Premier and Cabinet.

2 Australian Social Inclusion Board (2010) Social Inclusion in Australia: How Australia Is Faring. Australian Social Inclusion Board, Department of Prime Minister and Cabinet.

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“Spatial planning” is an umbrella term for all forms of planning that involve physical space— for example, land use planning, urban planning, regional planning, transport planning, or other forms of infrastructure planning.

Thousands of Tasmanians, however, experience social exclusion, deprived of the resources required for participation in the social, economic and political activities of society as a whole. Social exclusion is often linked to poverty and low income, as well as to poor health, low levels of education, or physical or intellectual disability. It can also be linked to other forms of disadvantage, such as: • Lack of affordable, adequate or appropriate housing.

• Locational disadvantage in relation to employment opportunities or access to services such as health/mental health services, sources of healthy food, or chemists.

• Transport disadvantage.

All of these issues relating to disadvantage can be addressed by better planning in relation to land use, transport, services infrastructure, and urban design—all areas that often are grouped under the term “spatial planning.”

Good spatial planning is vital to addressing many key areas of social disadvantage and exclusion, as well as broader social issues such as cost of living for all Tasmanians.3 Spatial planning that is mindful of issues of social inclusion can: • Encourage the construction and creation of affordable housing options for all ages and needs in convenient, sustainable locations.

• Provide opportunities for healthy activities for people of all ages, physical abilities and levels of socio-economic advantage.

• Provide the infrastructure for public and community transport options, as well as healthy options such as walking and cycling.

• Provide peaceful places where people of all ages, physical abilities and levels of socio-economic advantage can de-stress and relax.

• Help socially excluded Tasmanians access employment.

• Help ensure that socially excluded Tasmanians can manage the financial and logistical impacts of climate change.

• Help ensure the liveability of all Tasmanian towns and neighbourhoods.

• Facilitate and encourage the activities of community service organisations.

Spatial planning that is focused on social inclusion should: • Encourage participation in decisionmaking by socially excluded and vulnerable Tasmanians and community service organisations.

• Ensure that spatial planning works to protect the interests of all Tasmanians, regardless of socio-economic status, age, gender, or levels of ability.

• Ensure that the social inclusion impact of development is understood, and that development does not negatively affect socially excluded Tasmanians.

• Ensure that all levels of the spatial planning system work effectively with each other and with relevant agencies at their own and other levels of government.

Meanwhile, spatial planning that ignores social inclusion issues can lead to wasted opportunities and perverse negative outcomes. For instance, it can: • Create ‘ghettos’ of economic disadvantage.

• Lead to a shortage of affordable housing and accommodation for people with special needs.

• Leave people dependent on cars that they can’t afford to register, insure or run or that they are unable to drive.

• Lead to spaces that are not accessible to people with physical disabilities.

• Create unsafe spaces.

• Help people and communities to connect through spaces for social and community activity.

• Bring services closer to people.

3 Adams, David (2011) Cost of Living in Tasmania: Interim Report. Social Inclusion Commissioner, Department of Premier and Cabinet.

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The legacy of the past Many socially excluded Tasmanians indeed face problems related to past spatial planning decisions.

• Tasmania’s supply of public and social housing as well as affordable private housing is far short of demand, and will fall shorter still as housing affordability continues to decline.

• Tasmania has a history of planning decisions that have led to pockets of disadvantage— broad-acre public housing projects outside of Hobart and Launceston, for example, which are isolated from services and employment.

• Tasmanian public and community transport networks are not extensive, a situation that disadvantages the state’s high (and growing) number of older people who may not be able to drive their own car as well as the higher than average number of residents who cannot afford to own or run a car.

• Rising fuel and energy prices and the effects of climate change are likely to exacerbate these issues as well as lead to new challenges.

The needs of clients aside, community service organisations themselves often could benefit from better recognition of their needs in spatial planning processes. For instance, zoning restrictions in some councils’ planning schemes may make it difficult for community service organisations to set up operations in the most appropriate locations, to take advantage of more reasonable rents, or to modify their premises. Similarly, there are no provisions in the state’s various planning schemes that could encourage the development of affordable office or service accommodation for community service organisations. Given that all levels of government, including many councils, 6 We Have A Plan!

increasingly recognise the critical role that community service organisations play in service provision, all sides have an interest in working together to achieve good outcomes in these areas.

Community service organisations therefore have every reason to want to see spatial planning in Tasmania conducted in a way that takes social inclusion issues into account, and to have a voice in spatial planning processes. Meanwhile, spatial planners have just as much to gain from community service organisation engagement in strategic and day-to-day planning as do community service organisations and their clients. Across Australia, spatial planners are under increasing political pressure to achieve good social inclusion outcomes. However, even the most expert spatial planners are often only beginning to understand the complexity and interrelation of issues that lie behind disadvantage and social exclusion.

Socially excluded individuals and groups also are among the least likely to engage with public consultation processes, making it hard for planners to hear their points of view. Thanks to their on-the-ground, clientfocused activities, however, community service organisations have a fine-grained understanding of the interconnected and compounding nature of factors leading to economic disadvantage and social exclusion.

Community service organisations therefore have the potential to serve a unique function as a bridge between Tasmania’s spatial planning system and some of the state’s most marginalised individuals, families and communities. With their detailed knowledge, community service organisations have the potential to help planners: • Understand specific local issues contributing to disadvantage and social exclusion • Avoid potential problems in existing and proposed planning approaches and schemes • Develop innovative approaches towards overcoming existing and potential barriers to social inclusion and community wellbeing.

It wouldn’t be a first!

There are plenty of precedents for incorporating outside advice early in spatial planning processes.

For instance, Tasmania Police are already helping local councils incorporate Safer By Design principles into their plans for central business areas, parks, and school zones in order to achieve crime prevention through environmental design.

Spatial planners can achieve better social inclusion outcomes, and save themselves work in the process, by including community service organisations in their planning process. Add on the potential for local council-community service organisation partnerships to attract additional Commonwealth and state funding, and the efficiencies gained by reducing the chances for future confrontation as the planning process unrolls, and it becomes clear that, as one council strategist put it, “It’s crazy for planners NOT to engage with the community sector!”

For all parties to enjoy the greatest benefit, community service organisations should be fully engaged in spatial planning processes, and their input should come at a comparatively early stage. At the moment, however, many community service organisations find the Tasmanian planning system opaque and cumbersome. So how is the planning system structured?

II. Key planning bodies and instruments: a field guide

The mother of all planning schemes The most important planning instruments drafted by the Commission are Planning Directives. These are mechanisms that provide direction on a wide range of land use planning matters, including but not limited to land use issues requiring consistency across all municipal areas. All council planning schemes must conform to relevant Planning Directives.

The most important planning directive in Tasmania is Planning Directive 1: Format and Structure of Planning Schemes, which lays out a Key Elements template for all council planning schemes.

This template approach will help ensure consistency across all planning schemes (for instance, by providing standard definitions for particular land uses), although it does make the system a bit less flexible at the local level.

The Tasmanian spatial planning system is a multi-tiered structure, operating at the state, regional and local levels. While this may make the system seem confusing, in fact it means that there are multiple opportunities for community service organisations to get involved!

State level Tasmanian Planning Commission The Tasmanian Planning Commission is Tasmania’s peak land use planning body, charged with managing Tasmania’s land use planning system. It is the successor to the former Resource Planning and Development Commission (RPDC). The Commission develops and maintains the planning framework and related planning schemes, assesses proposals for major developments, and undertakes inquiries, reviews and reports on the use of land and the environment generally. Many of the Commission’s directives are quite technical in nature and probably of only limited relevance to most community service organisations; however, it is well worth keeping informed of directives in the pipeline. At the moment, the Commission does not seek out contact with community service organisations during its drafting processes, relying on a public comment period.

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State Government The State Government has a variety of strategic planning instruments dealing directly or indirectly with land use planning, the most important of which are State Policies, Strategies and Frameworks. State Strategies and Frameworks in particular provide a good opportunity for community service organisation engagement with government departments.

Regional level For a variety of purposes, Tasmania is divided into three regions, each of which comprises between eight and twelve councils. Each of these has its own regional council association.4 • The Cradle Coast region (Burnie City, Central Coast, Circular Head, Devonport City, Kentish, King Island, Latrobe, Warratah-Wynyard and West Coast Councils) has the Cradle Coast Authority.

• The Northern region (Break O’ Day, Dorset, Flinders, George Town, Launceston, Meander Valley, Northern Midlands and West Tamar Councils) has Northern Tasmania Development (NTD).

• The Southern region (Brighton, Central Highlands, Clarence City, Derwent Valley, Glamorgan Spring Bay, Glenorchy City, Hobart City, Huon Valley, Kingborough, Sorell, Southern Midlands and Tasman Councils) has the Southern Tasmanian Councils Authority (STCA).

All three regional council associations are in the process of finalising regional land use strategies/frameworks, all of which are likely to receive approval from the State Minister for Planning sometime in the 2011-2012 financial year. These strategies will provide consistency on issues like zoning across councils within a region.

All indications are that these regional associations will play a steadily growing role in certain aspects of spatial planning in Tasmania. Community service organisations working in more than one council area would be well advised to make contact with the relevant association(s) to find out what sorts of opportunities for engagement may lie ahead.

4 Although these organisations are slightly differently structured—Northern Tasmania Development is a company wholly owned by its member councils, while the Cradle Coast Authority and the Southern Tasmanian Councils Authority are statutory authorities—there is little material difference in their operation.

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Tasmania’s State Strategies and Frameworks State Policies represent the government’s overarching position on sustainable development policy issues such as sustainable development of natural and physical resources; land use planning; land management; and environmental management and protection. Through COAG and other intergovernmental agreements, the State Government also automatically accepts as State Policies all National Environment Protection Measures developed by the National Environment Protection Council. These primarily cover issues of air, water, soil and noise pollution. All regional and council planning schemes must conform to relevant State Policies.

State Strategies and Frameworks are designed to provide strategic direction not only to land use planners, but to whole-ofgovernment efforts around particular issues. In addition to existing State Strategies and Frameworks, various branches of the Tasmanian government always have more strategies and frameworks under development — a good time for community service organisations to weigh in!

• Infrastructure Strategy • Walking and Cycling for Active Transport Strategy • Urban Passenger Transport Framework • Passenger Transport Framework • Road Safety Strategy • Residential Development Strategy (State Architect’s office, under development—soon to be available for public comment) • Tasmanian Open Space Policy and Planning Framework (Sport and Recreation Tasmania, DEDTA, under development) • Tasmanian Transport Strategy (DIER, under development )

Local level Other regional, cross-regional and sub-regional elements In developing regional land use strategies, the regional council associations have taken into account existing regional, cross-regional and sub-regional frameworks such as: • Cradle Coast Open Space Plan (regional) • Vision East: East Coast Land Use Framework 2009 (cross-regional, bringing together Break O’ Day, Tasman, Glamorgan Spring Bay and Sorrell Councils) • Joint Land Use Planning Initiative (sub-regional, bringing together Brighton, Central Highlands, Derwent Valley, Southern Midlands) • Tamar Valley Regional Open Space Framework (sub-regional, bringing together Launceston, George Town and West Tamar Councils) Government departments are also working with regional council associations in developing regional strategies, frameworks or plans.

For example, the Department of Infrastructure, Energy and Resources (DIER), working with the three regional council associations, has already created three regional Integrated Transport Plans: Northern (2003), Cradle Coast (2006), and Southern (2010).

In addition to bodies dealing primarily with the built environment, in keeping with a federal initiative, Tasmania also has three Natural Resource Management (NRM) bodies—Cradle Coast, North and South—each responsible for a region whose boundaries correspond to those of the regional council associations. Each NRM body has or is developing its own Natural Resource Management Plan— possibly of interest to community sector bodies with an environmental focus or who wish to see better attention to bush regeneration around lower socio-economic neighbourhoods.

At the moment, the bulk of Tasmania’s everyday spatial planning takes place at the level of local government bodies, or council Planning Authorities, of which Tasmania has 29. Every council Planning Authority has a number of strategic documents as well as a day-to-day planning mechanisms.

Strategic documents Every council Planning Authority has: • A Planning Scheme. Planning schemes divide the council area into different land use zones and specified areas such as central business areas, and set out the conditions under which use and development can take place in different zones and areas.

• While most councils only have one planning scheme applying to the whole council area, in principle separate planning schemes can apply to zones or precincts within a council area. Hobart City, for instance, is governed by three planning schemes: City of Hobart, Sullivans Cove, and Battery Point.

• All councils also have the option of developing Local Area Plans under the main planning scheme; for example, Hobart City Council has Local Area Plans for Tolmans Hill, Gregory Street, Ferntree, Mount Nelson and South Hobart. Check with your council to see what plans may apply to particular precincts or areas.

• A Strategic Plan. Strategic plans typically apply to the whole council area. They identify areas for forward, strategic thinking over the longer term— at a minimum five, but typically ten years. Typical goals include community development/cohesion; environmental sustainability/protection; economic development/sustainability; and good governance. Unlike planning schemes, the Local Government Act 1993 requires councils to consult with the community in its municipal area and any authorities and bodies it considers appropriate in preparing a proposed strategic plan or updating an existing strategic plan.

• Any number of plans, strategies or frameworks focused on particular issues or policy areas such as sports, recreation, emergency management, transport, etc.

These plans both inform, and are informed by, the Strategic Plan. Hobart City Council

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is unique among Tasmanian councils in having a Social Inclusion Strategy — a potential model for other councils.

All of these schemes, plans, strategies and frameworks, once they are in final draft form, must be exhibited for public comment for a period of at least 14 days.

Comment periods are advertised in the Local Government section of the local newspaper.5 Some councils also notify stakeholders by letter, phone or e-mail of the opportunity to comment—so community service organisations should ask to be added to stakeholder lists!

Day-to-day planning mechanisms In addition to these strategic documents, councils also provide two major opportunities for input on development: planning permits, and planning scheme amendments.

Planning permits: Council Planning Authorities maintain control over development activities in their jurisdictions by requiring developers (whether individuals or companies) to obtain a Planning Permit (also known as planning approval) to carry out development or to use land for particular purposes, including subdivision, demolition and construction. The application for such a permit is sometimes called a Development Application (DA). If a DA is deemed a Discretionary Use Application (see box), it is then advertised for 14 days, by way of letters to adjoining property owners, a site notice, and advertisement in the Local Government section of the local newspaper. Some councils’ Planning Authorities—Kingborough, for instance—also post discretionary DAs on their website, although this does not constitute legal notification.

For example, as of November 2011 Kingborough Council has...

• Kingborough Strategic Plan 2010-2020.

• Kingborough Planning Scheme 2000 (under revision) • Central Area Master Plan • Kingston Sports Complex Master Plan • Positive Ageing Strategy • Youth Strategy • Recreation Plan • Tracks and Trails Strategy • Emergency Management Plan • Climate Change and Energy Action Plan • Public Open Space Master Plan (under development) • Kingborough Integrated Transport Strategy (under development) • Arts and Cultural Development Strategy (under development) • Climate Change Adaptation Response Strategy (under development) • Community Participation Strategy (to be developed 2011-2012) • “Active Kingborough” program (to be developed 2011-2012) • Sport and Recreation Plan (to be developed 2011-2012) • Browns River Catchment Management Plan (to be developed 2011-2012)

5 Brighton, Hobart City, Kingborough, Glenorchy City, Clarence City, Sorell, Tasman, Derwent Valley, Central Highlands, Huon Valley and Southern Midlands Councils advertise in The Mercury; Glamorgan Spring Bay Council advertises in both The Mercury and The Examiner; Break O’Day, Dorset, Flinders, George Town, Launceston City, Meander Valley, Northern Midlands, and West Tamar Councils advertise in The Examiner; and Burnie City, Central Coast, Circular Head, Devonport City, Kentish, King Island, Latrobe, Warratah-Wynyard and West Coast Councils advertise in The Advocate.

Some councils also advertise some projects in local free newspapers—ask your council’s community development officer for details.

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• Social Plan (to be developed 2012-2013) • Northwest Bay River Catchment Management Plan (to be developed 2012-2013)

Development Applications made easy (well, easier) In accordance with the Land Use Planning & Approvals Act 1993 and council planning schemes, individuals and organisations must obtain planning approval for most types of use and/or development.

This means that a developer (or a community service organisation) may have to lodge a development application (DA), or apply for an amendment to the planning scheme, if they (or you) wish to: • develop, subdivide, or make boundary changes to land; • use land or buildings for a different use; • make additions/extensions to existing structures; • add new dwellings or outbuildings; • extend the existing use of buildings; • move premises to a different zone.

If a developer (or a community service organisation) is building a new structure or modifying an existing one, once they (or you) have obtained planning approval, they (or you) will also have to apply to the council for building and plumbing permits in accordance with the Building Act 2000. Some basic points: • If the details of a proposed development—a structure, for instance—are entirely consistent with the guidelines (structural guidelines and/ or the guidelines for uses and activities) that apply in its zone, a council Planning Authority is required to issue a planning permit, and can do so without public notification. However, the Planning Authority can still impose conditions around certain issues, depending on the type of land, the type of proposed development/

use, or the zone in which the development is to occur—a good reason for community service organisations to make sure that key points have been taken on board by planners.

• If, however, any aspect of the development falls outside the guidelines for its zone, then Planning Authority approval is “discretionary”—in other words, a case has to be made for the development to go ahead. In these instances, it is possible for individuals or organisations, including community service organisations, to raise objections or to make suggestions for improvement.

• All council Planning Authorities treat some types of development—commercial development, for instance—as always discretionary, regardless of the zone in which it occurs.

• All Planning Authorities also have some zones— environmental management zones, for instance—in which all types of development are discretionary.

These advertisement periods provide community service organisations which have concerns about a particular development the opportunity to offer comments or voice objections. Unless an activity by a developer is in conflict with some aspect of state or council policy—whether laid out in a State Policy or Framework or in a planning scheme—council Planning Authorities cannot legally require a developer to take comments or objections on board. However, they may offer mediation between a developer and those lodging objections in order to try to work out compromise solutions.

Planning scheme amendments: Planning scheme amendments involves either a change to the council Planning Authority’s zoning plan by rezoning of a piece of land or a change to the written part of the Planning Scheme that sets out the rules under which use and development of land can be carried out. Planning Scheme Amendments are used We Have A Plan! 11

to keep the Planning Scheme up to date with ongoing changes in community needs and trends in development in the city or municipality. Planning Scheme Amendments can also be used to fine tune Planning Scheme rules as a result of a change in council strategies or to solve interpretation problems. Planning Scheme Amendments are advertised in the same way as DAs, but for 21 days, rather than 14.

III. Getting engaged All of these plans, strategies, frameworks and schemes—whether at the state, regional or local level—do not emerge out of thin air.

During their drafting—typically by council, regional council association or statelevel department staff, but sometimes by consultants—these documents are almost always informed by discussions with others.

At the moment, most levels of the planning system do not seek out community service organisation involvement at the drafting stage, relying instead on written submissions during public comment periods. This late engagement is inefficient, for planners and community service organisations alike.

• Planners miss out on community service organisation expertise. Drafters do not have the opportunity to take advantage of the detailed local knowledge that community service organisations can provide, or to hear new perspectives and ideas.

• Engagement becomes a costly exercise for community service organisations. Many community service organisations lack the staff resources to make time-intensive written submissions in response to highly technical documents.

• Both sides are thrust into reactive mode.

By the time planning approaches reach the public comment stage, they have already been substantially formulated; rethinking costs planners both time and effort. Community service organisations, for their part, are forced into critic mode, rather than being able to play the role of constructive partner.

All parties should therefore be working to encourage early, effective inclusion of community service organisations and their clients in spatial planning processes.

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Different strokes for different folks As is evident, there are multiple opportunities for community service organisation engagement with the Tasmanian spatial planning system—but no one organisation needs to take advantage of them all.

• A health-focused community service organisation may wish to get involved in councils’ reviews and updating of Strategic Plans to ensure that healthy living is recognised as a priority.

• A transport-oriented group may wish to comment on a suburb-level DA to ensure that major streets are bus-accessible and that park-and-ride facilities exist for users of public and community transport, and to help plan routes for cycle-ways and walkways.

• An organisation focused on housing may wish to focus strongly on the state-wide revision of Planning Schemes underway (see insert) to ensure that all Planning Schemes maintain and encourage the supply of affordable housing.

Tips at a glance The following tips are discussed at greater length below.

For community service organisations • Identify yourself to planning bodies, stating your organisation’s interests and objectives and asking to be added to the list of stakeholders for relevant planning processes.

• Get to know people in planning bodies, particularly your local council.

• Lobby councils, regional organisations, and the Tasmanian Planning Commission for early inclusion of community service organisations in all spatial planning processes.

• Get involved at the drafting stage.

• Divide up the load.

• Concentrate on a few clear main points.

• Think constructive, not confrontational.

• Emphasize the opportunities for mutual benefit.

• Play a bridge-building role.

• Build strength in numbers.

• Get your clients involved.

• Lobby your regional council association to address social inclusion issues in their upcoming regional settlement strategies.

• Lobby your council and regional council association to draw up Social Inclusion Strategies.

• Lobby for better inclusion of spatial planning in other policy areas.

For planners and community development staff • Hold conversations with community service organisations before deadlines loom.

• Create a database of local community service organisations interested in contributing to planning processes.

• Go to them.

• Use strategic advisory groups strategically.

• Urge your organisation to draw up a social inclusion strategy, and to take a whole-of-organisation approach to social inclusion.

The following are a few tips on how community organisations hoping to get more involved in spatial planning can stay informed, and make engagement strategic and effective. And there are a few thoughts for planners and community development staff too!

Tips for community service organisations How can I make sure that my organisation is informed of opportunities to be included in strategic planning?

• Identify yourself! Planning bodies are increasingly trying to engage potential stakeholders in consultation at earlier stages of planning through interactive mechanisms such as workshops and consultation meetings—but how do they know who to invite? Many planners advise that the best thing a community service organisation can do is write a simple letter to the Tasmanian Planning Commission, your regional council association, and your council, stating your organisation’s interests and objectives and asking to be added to the list of stakeholders for relevant planning processes.

• Get to know people, especially on your council’s staff. The people in the system are the ones who know what’s going on—and a few personal contacts will help you hear of upcoming opportunities. At the very least, get to know people on your council’s staff.

Every council has a general manager and a head planner; almost all have a community development and/or community services officer, covering issues such as youth issues, aged issues and health. By forming relationships with people in the system, you not only stay informed, but can better choose which issues your organisation wishes to weigh in on, in what forms, and how often. Also, check around to find out which of your councillors are the most interested in the issues that concern your organisation.

• Take the lead yourselves in breaking down bureaucratic barriers.

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• Lobby your councillors and council general managers to ensure that early consultation with community service organisations is a part of all council spatial planning processes, and takes place in a way that works for you. The amount of time that planners spend in public consultation reflects the amount of importance placed on consultation by councillors—who, after all, your clients elect—and the heads or general managers of councils and other planning bodies. Make sure that the relevant people know that inclusion is important to you, and how to make consultation the most effective for all concerned.

• Don’t forget the regional bodies...

Particularly if you work in more than one council area, make contact with the relevant association(s) to find out what sorts of opportunities for engagement may lie ahead, and to lobby for early consultation.

• ...or the Tasmanian Planning Commission.

As the body with overarching responsibility for the Tasmanian planning system, the Commission has the potential for leadership on bringing community service organisations into the planning process, and for securing the consideration of social inclusion issues in spatial planning in the state.

See you in the lobby In lobbying for better consideration of social inclusion issues in spatial planning, community service organisations should remember that it’s one thing to talk to staff members (of state-level departments, the Tasmanian Planning Commission, councils, and regional council associations) and another to talk to politicians (whether Ministers, state-level politicians, or councillors and aldermen). Staff members often can’t make significant changes without political direction; politicians, meanwhile, are often reluctant to take decisions until they have consulted with their staff.

So it’s important to get both on board when lobbying for change.

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How do I make my intervention strategic?

Few community service organisations have the time or resources to participate in every stage of the planning process, from the development of State Policies to the approval of individual DAs. In thinking about where and when to engage, some points to consider include: • Get involved at the drafting stage.

Whether it’s a council strategy or Strategic Plan, a regional initiative, or a state policy, the earlier you make your ideas and concerns known, the better chance they have of getting in to a draft.

• Divide up the load. Coordination with other community service organisations can help busy organisations keep on top of planning issues in your area and formulate responses when you have an opportunity for input. For example, some council insiders suggest that the most valuable thing that community service organisations can do is to send a representative along to the meetings of relevant council committees in order to get a heads-up in relation to upcoming planning issues—a task that can be shared among several organisations.

Remember that staff members are particularly keen to hear of ideas that make it easier for them to do their jobs well, and also that bureaucratic ships can take some time to change course; because of these factors, it’s particularly useful for staff members to hear from you early in any process. Politicians, meanwhile, particularly want to know that they will be making their constituents happier; hence the importance of including your clients’ views. And both groups are happy to hear of ways to save money! But both groups have a genuine concern for the public interest—so if you can demonstrate to them how good spatial planning will benefit social inclusion, they’ll listen.

How can I make my participation effective?

• Concentrate on a few clear main points.

No one expects you to engage with every technical detail of a proposal—and it makes more work for you. Chose a few main points, express them clearly, and repeat as necessary.

• Think constructive, not confrontational.

Planners are people too—and no one likes to feel attacked. Constructive suggestions for improvement have a much better chance of being taken on board than criticisms, or demands that a DA or Planning Scheme Amendment be rejected outright. While sometimes a wholesale rejection is the only viable response to a grossly inappropriate or poor thoughtout development proposal, it will pay to concentrate on constructive suggestions for improvement wherever possible.

• Emphasize the opportunities for mutual benefit. For councils in particular, one of the greatest incentives for collaboration with community service organisations is that it can lead to new avenues for funding—through philanthropic organisations, for instance, or some forms of federal or state funding (the Tasmanian Community Fund, for example). Keep your council informed of grants that you may be able to apply for together. And look through your council’s Strategic Plan to see how your organisation’s interests mesh with its objectives—that way you can frame issues in a win-win fashion.

• Play a bridge-building role. Communication between government departments, or even between the planning and community development divisions in councils, sometimes isn’t great—so get people together across bureaucratic divides.

• Build strength in numbers. The more community service organisations come together on an issue, the stronger their voice. It can be even more effective to build an alliance on a issue with organisations outside of your sector, particularly with the business sector.

• Get your clients involved. While planners value the bigger-picture view that community service organisations can provide on an issues, they also appreciate hearing directly from the people who are affected by planning decisions. Ask your clients to describe their experiences and needs so that you write them down and bring them along when talking with

planners; even better, see if you can include clients in some meetings. You can also help clients put in submissions to public consultations.

What can I do to get social inclusion on the planning agenda more generally?

• Lobby your regional council association to address social inclusion issues in their upcoming regional settlement strategies.

These strategies will provide an important foundation for future spatial planning issues; getting social inclusion onto the agenda up front will make it substantially easier for processes further down the track to keep social inclusion in their sights.

• Lobby your council and regional council association to draw up Social Inclusion Strategies. Hobart City Council already has a Social Inclusion Strategy—something that could benefit all councils and regional council associations. Such a strategy, a whole-of-organisation document, has the effect of bringing together planners and community development officers, and encourages council staff to view everything that a council does through a social inclusion lens.

• Lobby for better inclusion of spatial planning in other policy areas. For instance, in addition to the State Strategies and Frameworks listed above, Tasmania also has a Health Plan, a Food and Nutrition Policy, and a Homelessness Plan—all of which have obvious links to spatial planning issues. Get involved in the discussions of strategic planning for the underlying issues—health, transport, disability, aging, social inclusion—and insist that spatial planning issues be considered.

And remember...

• An ounce of prevention is worth a pound of cure. While state- and regional-level policies and council Strategic Plans may seem very distant from your activities, timely intervention at the level of strategic planning can help ward off a host of problems at the level of individual developments further down the track.

• Don’t give up. The wheels of the planning system move very, very slowly. Don’t be discouraged.

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Tips for planners and community development staff How can I move from reactive to active mode where social inclusion issues and community service organisations are concerned?

• Hold conversations with community service organisations before deadlines loom.

Planning processes, from the drafting of strategic plans to DAs, have tightly defined time-frames. Engage strategically with community service organisations prior to the moment when feedback will add to time pressures. For instance, seek out community organisations that work with youth and find out the recreation, employment, educational, transport and other needs of their young clients—and feed these into all your plans and strategies from the start.

• Urge your organisation to draw up a social inclusion strategy. Whether or not it’s explicitly recognised, social inclusion is in fact core business for local, regional and state-level government and planning bodies.

A formal recognition of this fact will make it easier for all bodies to keep focused on the issue.

• Urge your organisation to take a whole-oforganisation approach to social inclusion.

Making social inclusion everyone’s business, rather than one or two officers’ responsibility, ensures that different parts of organisations are working together rather than against each other, and spreads the workload. It also promotes synergistic, joined-up thinking.

• Take a whole-of-organisation approach yourself. Planners and community development officers can take the lead in breaking down bureaucratic barriers. In particular, community development officers should be able to propose, and respond to, Planning Scheme Amendments— which may often be necessary to ensure that developers comply with proposed social inclusion measures. A planning representative should also sit in on all community development strategy development processes—for instance, positive ageing strategies, or disability advisory groups. Hold annual brainstorming workshops for all involved in an issue area.

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How can I make including community service organisations easier?

• Create a database of local community service organisations interested in contributing to planning processes, for instance through an e-mail survey of all local community service organisations. Issuespecific lists can be particularly useful; for example, some councils already have lists of arts and heritage organisations. Through gaining an overview of all groups involved in particular issue areas in your jurisdiction, you can avoid relying exclusively on “usual suspects”—who can become exhausted by over-consultation—and you can hear new perspectives. You also are creating an institutional memory—avoiding the chance of a community service organisation missing out because someone was on leave.

How can I secure more effective engagement by community service organisations?

• Go to them. Many community service organisations lack funds to cover trips to you. Hobart City Council, for instance, noted that after initial good rates of consultation with CALD community groups, attendance was beginning to flag; so council officers started going out to visit community group premises on an ad hoc basis, with excellent results.

• Use strategic advisory groups strategically.

Many community service organisations are understaffed and under-resourced, and may not have the staff time or resources for highly routinised mechanisms—monthly meetings, for instance. Strategic advisory groups—which can meet on an ad hoc basis—may be the best way to get planners, community development officers, and community service organisations together; try for short-lifespan working groups with measurable outcomes.

Conclusion Putting it into action One example of effective engagement between planning bodies and the community services sector is the Hobart City Council’s Community Sector Reference Group (CSRG).

The CSRG was established to monitor and provide feedback to Hobart City Council (HCC) on the implementation of its social inclusion strategy; to identify new and emerging social inclusion issues; and where appropriate, to propose strategies to address issues in an effective and collaborative manner. The CSRG includes HCC officers and representatives of around 18 community service organisations.

HCC provides secretarial and other administrative support and chairs meetings, which occur twice a year, with task-related sub-groups convened where required.

Better attention to social inclusion in Tasmanian spatial planning processes has the potential to benefit thousands of disadvantaged and socially excluded Tasmanians. Although Tasmania’s spatial planning system may look complex, it’s easier for community service organisations to engage with than it initially appears—and planning bodies have the potential to make it easier still. Community service organisations and spatial planners at all levels of government thus have powerful incentives to work together for spatial planning outcomes that are good for all Tasmanians. Good luck!

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Appendix 1: Tasmania’s Resource Management and Planning System

The Resource Management and Planning System (RMPS) is the overarching planning and environmental framework which promotes the sustainable development of Tasmania’s resources. The system requires local governments to further the objectives of the RMPS through their planning schemes. The principal pieces of legislation underpinning the RMPS are the Land Use Planning and Approvals Act (LUPAA) 1993, State Policies and Projects Act 1993 and the Tasmanian Planning Commission Act 1997.

The objectives of the RMPS are to: • Promote the sustainable development of natural and physical resources and the maintenance of ecological processes and genetic diversity • Provide for the fair, orderly and sustainable use and development of air, land and water • Encourage public involvement in resource management and planning • Facilitate economic development in accordance with the objectives set out above • Promote the sharing of responsibility for resource management and planning between the different spheres of Government, the community and industry in the State.

In the objectives, “sustainable development” means managing the use, development and protection of natural and physical resources in a way, or at a rate, which enables people and communities to provide for their social, economic and cultural well-being and for their health and safety while: • Sustaining the potential of natural and physical resources to meet the reasonably foreseeable needs of future generations • Safeguarding the life-supporting capacity of air, water, soil and ecosystems • Avoiding, remedying or mitigating any adverse effects of activities on the environment.

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Some land use activities are fully or partially outside the control of the RMPS and/or local councils and/or may require approvals under other legislation. These include Projects of State Significance and Regional Significance, forestry activities in State Forests and Private Timber Reserves, mining activity, offshore aquaculture, and farm dams, as well as activities that may have an impact on protected flora and fauna or national parks and reserves.

The RMPS legislation sets out certain processes under which competing interests for land use may be tested transparently.

These include requirements for planning authorities to: • Test proposals against consistent decision-making criteria which have undergone extensive public consultation, representation and hearings processes i.e. a planning scheme.

• Notify adjoining owners and occupiers in writing and other potentially affected persons, by newspaper advertisement and by site notice.

• Permit any person to make a representation at the first stage of planning approvals, and to take those representations into account in the decision-making process.

• Notify the applicant and any representors of planning authority decisions.

• Permit those who have made initial representations to appeal planning authority decisions.

Rights to take civil enforcement action if a planning scheme or permit is breached.

(Sources: Tasmanian Planning Commission website, LUPAA 1993)

Appendix 2: Some important addresses

State level bodies

Local bodies

Tasmanian Planning Commission Level 3, 144 Macquarie St /GPO Box 1691, Hobart 7001 Tel: (03) 6233-2795; (fax) 6233-5400 www.planning.tas.gov.au

Council contacts A full list of council contact details (street address, phone/fax numbers, websites) and key staff can be found at: http://www.lgat.tas.gov.au/webdata/ resources/files/Council_Contacts_1_ April_2011.pdf

State Policies, Strategies and Frameworks related to spatial planning tend to be handled by the Department for Infrastructure, Energy and Resources (DIER).

Policies/strategies/frameworks in other areas are typically handled by the relevant government agency; the State Health Plan, Food and Nutrition Policy, and Homelessness Plan, for instance, fall under the responsibility of the Department for Health and Human Services (DHHS).

Local Government Association of Tasmania This body provides overview information on the activities of Tasmania’s 29 councils.

34 Patrick St., Hobart 7000 Tel: (03) 6233-5966; (fax) 6233-5986 www.lgat.tas.gov.au

Department for Infrastructure, Energy and Resources (DIER) 10 Murray St /GPO Box 936, Hobart 7001 Tel: 1300 135 513 www.dier.tas.gov.au Department for Health and Human Services (DHHS) Tel: 1300 135 513 www.dhhs.tas.gov.au

Regional bodies Cradle Coast Authority 30 Marine Terrace/P.O. Box 338, Burnie 7320 Tel: (03) 6431-6285; (fax) 6431-7014 www.cradlecoast.com Northern Tasmania Development Level 1, 113 Cimitiere St/P.O. Box 603, Launceston 7250 Tel: (03) 6333-9374; (fax) 6331-9400 www.northerntasmania.org.au Southern Tasmanian Councils Authority (STCA) Level 3, 85 Macquarie St/GPO Box 503E, Hobart 7001 Tel: (03) 6270-2242 www.stca.tas.gov.au

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Appendix 3: Some great resources for community service organisations and spatial planners alike

Social inclusion Adams, David (2009) A Social Inclusion Strategy for Tasmania. Social Inclusion Commissioner, Department of Premier and Cabinet. Available at: http://www.dpac.tas. gov.au/divisions/siu/strategy/strategy

Affordable housing Gurran, N. (2008) Affordable Housing National Leading Practice Guide and Tool Kit, Department of Housing New South Wales. Available at: http://www.housing. nsw.gov.au/NR/rdonlyres/D3B288EA6BDA-49C3-AA4E-E96CD35CDF49/0/ AHNationalGuideandKitv2.pdf Hobart City Council (2010) Affordable Housing Strategy 2010-2012. Available at: http://www.hobartcity.com.au/Publications/ Strategies_and_Plans

Australian Social Inclusion Board (2010) Social Inclusion in Australia: How Australia Is Faring. Australian Social Inclusion Board, Department of Prime Minister and Cabinet.

Available at: http://www.socialinclusion. gov.au/Resources/Documents/SI_ HowAusIsFaring.pdf

SmartGrowthBC (2008) Creating Market and Non-Market Affordable Housing: A Smart Growth Toolkit for BC Municipalities. http://www.smartgrowth.bc.ca/Portals/0/ Downloads/SGBC_Affordable_Housing_ Toolkit.pdf

Hobart City Council (2010) Everyone has their place: social inclusion strategy for Hobart 2010-2013. Available at: http://www. hobartcity.com.au/Publications/Strategies_ and_Plans/Social_Inclusion_Strategy

Climate change impacts

Health National Heart Foundation of Australia (2009), Healthy By Design速: A Guide to Planning and Designing Environments for Active Living in Tasmania. Available at: http://www.heartfoundation.org.au/ SiteCollectionDocuments/HW_HBD_Tas_ UpdateAug2010_FINAL%20LR.pdf Kuo, Frances (2010) Parks and Other Green Environments: Essential Components of a Healthy Human Habitat. National Recreation and Park Association. http://www.nrpa. org/uploadedFiles/Explore_Parks_and_ Recreation/Research/Ming%20(Kuo)%20 Reserach%20Paper-Final-150dpi.pdf Planning Institute of Australia, Australian Local Government Association, and National Heart Foundation of Australia (2009), Healthy spaces and places: a national guide to designing places for healthy living. http:// www.healthyplaces.org.au/userfiles/file/ HS&P%20An%20overview.pdf

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Edwards, Taegan and John Wiseman, Addressing Social and Equity Impacts of Climate Change: The Case for Local Government Action, The Liveable and Just Project, McCaughey Centre: VicHealth Centre for the Promotion of Mental Health and Community Wellbeing, University of Melbourne, School of Population Health, 2010. Available at: http://www.vlga.org.au/ site/DefaultSite/filesystem/documents/ Liveable%20and%20Just/2010-Toolkit/ LJ%20Toolkit-2010%20-%201%20Social%20 and%20equity%20impacts.pdf VEIL (Victorian Eco Innovation Lab) and VicHealth (2011) Food-Sensitive Planning and Urban Design: A Conceptual Framework for Achieving a Sustainable and Healthy Food System. http://www.ecoinnovationlab.com/ uploads/attachments/article/417/HF-FSPUDLRFINAL.pdf

Crime prevention State of Queensland (2007) Crime Prevention Through Environmental Design: Guidelines for Queensland. Available at: http://www.police.qld.gov.au/Resources/ Internet/programs/cscp/documents/ CPTED%20Part%20A.pdf

Diversity issues Australian Local Government Association (ALGA) (2006) “Age-friendly built environments: opportunities for local government.” http://www.alga.asn.au/ policy/healthAgeing/ageing/resources/ publications/Agefriendly_built_environment_ paper.pdf Royal Town Planning Institute (2003), “Gender Equality and Plan Making: The Gender Mainstreaming Toolkit.” http://www. rtpi.org.uk/download/765/Gender-Equalityand-Plan-Making-Mainstreaming-Toolkit.pdf

Employment Macfarlane, Richard (2000) “Local jobs from local development: the use of Planning Agreements to target training and employment outcomes.” Joseph Rowntree Foundation. http://www.jrf.org.uk/sites/files/ jrf/185935310x.pdf

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Tasmanian Council of Social Service 2nd Floor McDougall Building Ellerslie Road Battery Point TAS 7004 Hobart Tasmania PO Box 1126 Sandy Bay TAS 7006 Ph: (03) 6231 0755 Fax: (03) 6223 6136 Email: admin@tascoss.org.au Web: www.tascoss.org.au