COAG Reform
Council Review
of Capital City
Strategic
Planning
Systems
ACT Submission
December 2010
ACT Government
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
ACT Government
This submission has been prepared for the information of the expert advisory panel appointed by the
COAG Reform Council to review capital city strategic planning systems on the understanding that it
will be used for internal purposes.
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
ACT Government
Table of Contents
List of Tables and Figures ...................................................................................................................... vi
List of Case Studies ................................................................................................................................vii
Introduction .............................................................................................................................................. 1
The ACT Strategic Planning System ....................................................................................................... 1
Chapter 1 Criterion One: Integration ...................................................................................................... 3
1.1
Context .................................................................................................................................... 3
1.2
Attributes of consistency .......................................................................................................... 5
1.3
Other comments .................................................................................................................... 13
Chapter 2
Criterion Two: Hierarchy of Plans ...................................................................................... 16
2.1
Context .................................................................................................................................. 16
2.2
Attributes of consistency ........................................................................................................ 18
2.3
Other comments .................................................................................................................... 25
Chapter 3
Criterion Three: Nationally Significant Infrastructure ......................................................... 26
3.1
Context .................................................................................................................................. 26
3.2
Attributes of consistency ........................................................................................................ 27
Chapter 4
Criterion Four: Nationally Significant Policy Issues ........................................................... 39
4.1
Context .................................................................................................................................. 39
4.2
Attributes of consistency ........................................................................................................ 41
Chapter 5
Criterion Five: Capital City Networks ................................................................................. 57
5.1
Context .................................................................................................................................. 57
5.2
Attributes of consistency ........................................................................................................ 58
Chapter 6
Criterion Six: Planning for Future Growth .......................................................................... 65
6.1
Context .................................................................................................................................. 65
6.2
Attributes of consistency........................................................................................................ 66
Chapter 7
7.1
Criterion Seven: Investment Priorities and Frameworks ................................................... 72
Context .................................................................................................................................. 72
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
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Chapter 8
ACT Government
Attributes of consistency ........................................................................................................ 73
Criterion Eight: Urban Design and Architecture ................................................................ 77
8.1
Context .................................................................................................................................. 77
8.2
Attributes of consistency ........................................................................................................ 78
8.3
Other comments .................................................................................................................... 80
Chapter 9
Criterion Nine: Governance and Implementation .............................................................. 81
9.1
Context .................................................................................................................................. 81
9.2
Attributes of consistency ........................................................................................................ 82
Conclusion ............................................................................................................................................. 92
Further Reading & References .............................................................................................................. 94
List of Appendices ................................................................................................................................. 98
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
ACT Government
List of Tables and Figures
Figure 1.1 The ACT Government Strategic Planning Framework........................................................... 4
Figure 2.2 The ACT Government Infrastructure Framework ................................................................. 20
Figure 3.1.1 ACT Strategic Public Transport Planning – the 2031 Frequent Network.......................... 31
Figure 3.1.2 Map of Eastern Broadacre Area........................................................................................ 35
Figure 4.1.1 Summary of Results from ACT Urban Form Analysis Project .......................................... 44
Figure 5.2.1 Map of the ACT and Region .............................................................................................. 59
Table 5.2.1 The ACT and Surrounding Region – Population Projections ............................................. 59
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
ACT Government
List of Case Studies
Case Study One: The Canberra Spatial Plan .......................................................................................... 6
Case Study Two: Applying Unified Goals and Objectives to deliver Reform .......................................... 8
Case Study Three: Land Release Coordination Committee ................................................................. 12
Case Study Four: A Vibrant City with Great Neighbourhoods .............................................................. 17
Case Study Five: The Draft Structure Plan for the Molonglo Valley ..................................................... 23
Case Study Six: Nationally Significant Infrastructure and ACT Planning .............................................. 28
Case Study Eight: Demographic Information Informs ACT Planning .................................................... 42
Case Study Nine: ACT Sustainable Future Program ............................................................................ 44
Case Study Ten: Improving Connections in Disadvantaged Areas to Employment Opportunities....... 49
Case Study Eleven: Identifying Areas of Disadvantage ........................................................................ 50
Case Study Twelve: Bilateral Agreement between the ACT and Commonwealth................................ 53
Case Study Thirteen: The Regional Management Framework ............................................................. 60
Case Study Fourteen: Building an Evidence-Base via Infrastructure Studies ...................................... 68
Case Study Fifteen: Promoting Private Sector Investment and Innovation .......................................... 76
Case Study Sixteen: Encouraging Innovation and Excellence in Urban Design .................................. 78
Case Study Seventeen: ACT Evaluation Policy and Guidelines ........................................................... 87
Case Study Eighteen: Canberra 2030: Time to Talk ............................................................................. 89
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A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
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Box 1.
National criteria for capital city strategic planning systems
Capital city strategic planning systems should:
1. be integrated:
a) across functions, including land-use and transport planning, economic and
infrastructure development, environmental assessment and urban development, and
b) across government agencies;
2. provide for a consistent hierarchy of future oriented and publicly available plans, including:
a) long term (for example, 15-30 year) integrated strategic plans,
b) medium term (for example, 5-15 year) prioritised infrastructure and land-use plans,
and
c) near term prioritised infrastructure project pipeline backed by appropriately detailed
project plans;
3. provide for nationally-significant economic infrastructure (both new and upgrade of
existing) including:
a) transport corridors,
b) international gateways,
c) intermodal connections,
d) major communications and utilities infrastructure, and
e) reservation of appropriate lands to support future expansion;
4. address nationally-significant policy issues including:
a) population growth and demographic change,
b) productivity and global competitiveness,
c) climate change mitigation and adaptation,
d) efficient development and use of existing and new infrastructure and other public
assets,
e) connectivity of people to jobs and businesses to markets,
f) development of major urban corridors,
g) social inclusion,
h) health, liveability, and community wellbeing,
i) housing affordability, and
j) matters of national environmental significance;
5. consider and strengthen the networks between capital cities and major regional centres,
and other important domestic and international connections;
6. provide for planned, sequenced and evidence-based land release and an appropriate
balance of infill and greenfields development;
7. clearly identify priorities for investment and policy effort by governments, and provide an
effective framework for private sector investment and innovation;
8. encourage world-class urban design and architecture; and
9. provide effective implementation arrangements and supporting mechanisms, including:
a) clear accountabilities, timelines and appropriate performance measures,
b) coordination between all three levels of government, with opportunities for
Commonwealth and Local Government input, and linked, streamlined and efficient
approval processes including under the Commonwealth Environment Protection and
Biodiversity Conservation Act 1999,
c) evaluation and review cycles that support the need for balance between flexibility and
certainty, including trigger points that identify the need for change in policy settings,
and
d) appropriate consultation and engagement with external stakeholders, experts and the
wider community.
Source: (COAG 2009b, p. 20–21)
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Introduction
The ACT Strategic Planning System
The circumstances of the ACT are unique among Australia’s jurisdictions: it is the seat of
national government, it is a growing city servicing its own community and it is the
economic and service centre for the Australian Capital Region.
These distinctive features present opportunities and challenges for the ACT Government
in designing and implementing its strategic planning processes.
Canberra’s development has always been guided by considered spatial planning, which
has helped create a very attractive urban environment. Indeed, Canberra is renowned for
being a planned city and for the orderly design of its urban land uses and functions.
However, Canberra’s dispersed, low density urban form also creates a variety of
challenges as it significantly influences how well and how quickly we are able to adapt to
all manner of contemporary changes including economic, demographic, cultural and
climate.
The Commonwealth’s investment prior to self-government bequeathed the ACT with
valuable infrastructure assets, but these also carry significant ongoing maintenance costs
or are now due for replacement.
The planning of Canberra’s urban form is split between the Commonwealth and the
Territory, with the National Capital Authority retaining significant influence in the strategic
planning, promotion and development of Canberra as the national capital.
The ACT Government considers that in the wake of the review of the National Capital
Authority, there are opportunities to better harmonise the Commonwealth and Territory’s
planning roles.
Similarly, there are potential tensions in land use planning interests between the ACT
and adjacent New South Wales municipalities, as has been demonstrated in the case of
the Tralee development. The ACT also receives limited fiscal support for the
employment, education, health and other services it provides to the Australian Capital
Region.
Since self-government, the ACT Government has developed a comprehensive and
integrated strategic planning framework, which has sought to accommodate the needs of
a growing city and Canberra’s role as national capital.
The Territory Plan is the ACT Government’s detailed, statutory land use plan which
establishes the pattern of permissible land uses across every part of the Territory. The
original Territory Plan was drafted by Commonwealth officers to coincide with
self-government, however, the ACT Government has undertaken a detailed update since
this time.
In 2004, the ACT Government took a critical step in Canberra’s planning history by
producing the first strategic plan since self-government. The 2004 Canberra Plan was the
first real attempt to move Canberra’s strategic planning beyond the spatial and integrate
other Territory and municipal functions.
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Under the umbrella of The Canberra Plan sit the ACT Government’s social,
environmental and economic strategies, which provide a strong and flexible framework
for guiding the development of policy, programs and services for the ACT community.
The Government’s rolling Infrastructure Plan, along with other portfolio-level strategies,
further reinforce this framework.
The 2004 Canberra Spatial Plan and the Sustainable Transport Plan for the ACT
currently form the ACT Planning Strategy. The Canberra Spatial Plan is the Territory’s
key strategic spatial planning document for directing and managing urban growth and
change. It outlines a strategic direction that will help manage change and provide for
growth to achieve the social, environmental and economic sustainability of Canberra.
The ACT Government is committed to the ongoing review and improvement of these
planning structures. The Canberra Plan and the Government’s economic plan, Capital
Development, were both updated in 2008, while the Social Plan and Spatial Plan are also
currently under review.
The ACT Government has also recently reviewed its Performance and Accountability
Framework to facilitate improved co-ordination of planning and program evaluation
across government. In 2011, the ACT will work to strengthen and embed
whole-of-government service planning as part of a refreshed approach to strategic
planning across government.
The importance of the Commonwealth as a Territory employer has made the ACT highly
responsive to national circumstances and emerging issues. The ACT Government
welcomes COAG’s commitment to closer cross-jurisdictional co-operation to address
Australia’s emerging planning challenges.
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Chapter 1 Criterion One: Integration
Capital city strategic planning systems should be integrated:
a) across functions, including land-use and transport planning,
economic and infrastructure development, environmental
assessment and urban development, and
b) across government agencies.
1.1
Context
The ACT Government has a strong framework to facilitate integrated planning across
functions. At the centre of the approach is The Canberra Plan: Towards Our Second
Century which outlines the Government’s vision for the Territory.
This strategic document draws together government functions in seven broad themes
and is supported by strategic planning processes and sub-plans which inform agency
work programs and priorities.
The integrated nature of the Territory’s strategic planning system is reflected in the
Canberra Spatial Plan. This important planning document provides a spatial
representation of the city over the next 30 years. The Spatial Plan highlights the
importance of linking strategic direction-setting with appropriate planning settings to
deliver results.
The ACT Government strategic planning system also seeks to facilitate local
development that aligns with the dual planning system applicable in the Territory.
Significant opportunities exist to review and streamline legislative processes between the
Commonwealth and Territory governments to provide for greater consistency with this
criterion.
Integrated planning is a necessary characteristic of ACT Government strategic planning
given the need for coordination with Commonwealth planning requirements. This
approach provides avenues to deal with emerging and contemporary policy issues whilst
respecting the vision, objectives and values embedded in the original intent and design of
Canberra.
Since self-government the ACT Government has worked towards planning for, and
delivering services through, an integrated strategic planning framework. The ACT’s
strategic planning framework covers the entire management cycle, from the hierarchy of
strategic plans, to reporting against planned performance, and then evaluating and
revising plans.
The framework reflects the ACT Government’s approach to integrated service planning
and delivery. The Government acknowledges that maintaining effective strategic
planning systems requires ongoing effort and is continuing work in this important area.
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The ACT Government reviews key plans on a regular basis to ensure proactive and
responsive strategic planning settings. Its spatial, transport, and social plans are all
currently being reviewed in the context of changing economic, demographic, and
environmental circumstances.
In addition, the Territory Government has recently completed an extensive consultation
process as part of its review of the Canberra Spatial Plan. The outcome of this
consultation will be released publically in January 2011.
As part of its commitment to continuous improvement, the ACT Government has
identified opportunities to enhance and further integrate service planning across
government. This includes aligning agency service planning with longer term
infrastructure planning across government.
An example of work in this area is the development and release of the first ACT
Government Infrastructure Plan in 2010, based on a ten year planning horizon.
1.1.1
Links with other criteria
The ACT Government strategic planning framework covers the entire management cycle,
from the hierarchy of strategic plans, to reporting against planned performance,
evaluation and revising plans.
1.1.2
Hierarchy of Plans (criterion two)
As outlined in Figure 1.1 below, the strategic planning framework can be conceptualised
as a hierarchy to inform and link long term strategic objectives with medium term
planning processes, and service planning, and delivery in the near term.
Figure 1.1 The ACT Government Strategic Planning Framework
Societal Progress
The
Canberra
Plan
Long term
The Spatial Plan
ACT Infrastructure Plan
Government Performance
Medium term
Capital Development
The Canberra Social Plan
Weathering the Change
Implementation Strategies
Organisational
Performance
Near term
Programs
Source: ACT Government, Chief Minister’s Department 2010
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1.1.3
Land release programs (criterion six)
Land release programming and planning are closely integrated across the ACT strategic
planning framework. Over the longer term, the Spatial Plan provides the framework for
urban growth and change.
The Territory’s spatial planning system is based on the Development Assessment Forum
Leading Practice Model1 which places greater emphasis on strategic planning and land
use policy in making development assessment decisions.
Greenfields land release programming includes planning for estate development where
necessary, construction or enhancement of municipal infrastructure and service planning
for future social and economic infrastructure, such as schools.
The range of processes currently in place to facilitate coordinated and integrated land
release programming is discussed further in Chapter 6.
1.1.4
Modes of delivery (criterion seven)
The ACT Government has a range of processes to facilitate coordinated across
government services. Recognising the importance of strategic planning to inform
investment decisions, the Government is working toward a whole-of-government service
planning framework.
In 2010, the first ACT Government Infrastructure Plan was released as part of this
refreshed strategic approach toward integrating resource allocation decisions across
government.
1.1.5
Integration with other governments (criterion nine)
The capacity of the ACT strategic planning system is evidenced in the close working
relationship and interaction of Territory planning systems with the National Capital
Authority.
As a regional centre, ACT planning systems also link closely with regional partners in
areas such as health, education, transport and economic development. The Regional
Management Framework formalises this with NSW and provides a framework for
resolving cross-border matters and planning for services.
1.2
Attributes of consistency
Criterion One.
Integration – Self-assessment
Capital city strategic planning systems should be integrated: across functions, including
land-use and transport planning, economic and infrastructure development, environmental
assessment and urban development, and across government agencies.
1
Development Assessment Forum, A Leading Practice Model for Development Assessment in
Australia, March 2005
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Attribute 1.1 Unifying goals or objectives
Does the capital city strategic planning system have a series of unifying goals or
objectives that various functions—including but not limited to those listed in the
criterion—and agencies are working toward? Please articulate these objectives or goals.
What system is in place to ensure that different functions and agencies within the capital
city strategic planning system align with these unifying objectives or goals?
Response 1.1
The ACT Government strategic planning system is drawn together by the Canberra Plan.
This overarching plan of the Territory Government was developed through a
comprehensive and consultative planning process.
The Canberra Plan provides unifying goals and objectives across government which
cascade through its sub-plans that are more focused in scope.
The Canberra Plan
The Canberra Plan articulates the Government’s long term vision for Canberra and is
supported by the Spatial Plan, as well as social, economic and environmental sub-plans.
These supporting plans articulate the strategic direction required to achieve the broader
societal outcomes identified in the Canberra Plan.
First released in 2004, the Canberra Plan is the product of extensive community
consultation and was updated in 2008. The consultative process of updating this plan
ensures the vision and objectives which draw together government services encapsulate
community values in working towards creating a liveable and sustainable city.
The refreshed, Canberra Plan: Towards Our Second Century retained the underlying
hierarchical planning structure and provides a more integrated strategic planning
framework.
The Canberra Plan: Towards our Second Century articulates the Government’s vision for
the ACT as:

a truly sustainable and creative city;

an inclusive community that supports its vulnerable and enables all to reach their
potential;

a centre of economic growth and innovation;

the proud capital of the nation and home of its pre-eminent cultural institutions;
and

a place of natural beauty.
Case Study One: The Canberra Spatial Plan
The Canberra Spatial Plan (Spatial Plan) reflects the detailed, evidence-based approach the
ACT Government has adopted to integrated and strategic planning. This plan provides a spatial
representation of Canberra over the next 30 years and beyond to support the overarching
Canberra Plan. The Spatial Plan aims to ensure that Canberra can achieve a more sustainable,
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prosperous and equitable future.
As the Territory’s key strategic spatial planning document, it assists in directing and managing
urban growth and change. However, it also provides the flexibility necessary to respond to
changing contexts and is currently under review.
Informed by strategic policy settings identified by the Government, community aspirations and
detailed planning analysis, the Spatial Plan provides a Canberra-wide context within which
neighbourhood and district planning policies can be set. It maps a course of short, medium and
long term actions to support a strategic approach to key urban development issues facing
Canberra. It helps to improve understanding of, and responses to, issues that have
geographical, physical and spatial planning dimensions or implications.
The Spatial Plan is a vital tool informing resource allocation decisions, such as the use of land,
the construction of infrastructure, service planning, as well as to inform changes to both the
National Capital Plan and the Territory Plan.
The Spatial Plan is discussed in detail in Response 2.1.
The Canberra Plan is structured around seven key themes which draw together
operations across government.
These are:

quality health care;

a fair and safe community;

excellent education, quality teaching and skills development;

a strong dynamic economy;

a vibrant city and great neighbourhoods;

a sustainable future; and

high-quality services.
Underlying The Canberra Plan are more detailed spatial, economic, social, environmental
and transport plans.
Supporting Systems
The ACT Government uses a range of mechanisms to ensure alignment with its unifying
goals and objectives. These include:

an annual Government priority setting process, which sets and communicates
priorities to all agencies;

coordination of planning and delivery by the Chief Executives’ Strategic Planning
Committee (Strategic Planning Committee);

annual reporting including at the whole-of-government level through The
Canberra Plan Annual Report;
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
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alignment of business cases and the annual budget process with overarching
Government objectives and priorities;

cross-agency exchanges and inter-departmental committees to work through
specific projects, reviews and evaluations; and

incorporation of emerging national best-practice and policy settings across
government planning and operational settings.
Case Study Two: Applying Unified Goals and Objectives to deliver Reform
The ACT Planning and Land Authority (ACTPLA) have undertaken significant planning
system reforms over the last few years to enhance linkages across the Government’s
strategic planning hierarchy.
The diagram following illustrates the unifying role of strategic planning system goals and
objectives in the context of the ACT spatial planning system. This is consistent with the
draft National Planning System Principles identified by the Planning Officials Group of the
Local Government and Planning Ministers’ Council (LGPMC).
At the operational level the reform process commenced with the implementation of the
code-based assessment of the DAF Leading Practice Model, which forms the basis of the
Planning and Development Act 2007 and the 2008 Territory Plan. Since this new
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framework was introduced, ACTPLA has commenced a rolling-review of its planning
policies.
Reforms also included the expansion of exempt development provisions for all forms of
detached housing, knock downs and rebuilds, and extensions. This, in conjunction with
changes to internal procedures, has enabled the ACT to achieve some of the best
Development Approval results in Australia, as acknowledged in the first inter-jurisdictional
report card to the Local Government and Planning Ministers’ Council in February 2010.
The ACT Government is also implementing reforms being developed by the LGPMC in
response to the National Partnership for the Seamless National Economy. This includes:

changing ACTPLA's accountability and strategic indicators to reflect the national
performance measures and facilitate annual reporting of the health of DA systems
to COAG;

finalising the roll-out of eDevelopment;

exploring opportunities for increased code-based assessment for multi-unit
developments; and

ensuring that the National Planning System Principles underpin the ACT planning
system.
Attribute 1.2 Communication and Coordination
How does the capital city strategic planning system facilitate whole-of-government
communication and coordination?
Response 1.2
Since self-government the ACT Government has worked towards developing mature
systems and processes for communication and coordination across government.
Principal mechanisms include the Cabinet process, the annual priority setting process,
Management Council, the Strategic Planning Committee, and interdepartmental working
groups.
The Cabinet Process
The Cabinet process requires that agencies support their Minister in developing Cabinet
Submissions to inform Government decisions about significant plans and policies.
These Submissions are developed in consultation with key agencies, and go through a
final pre-Cabinet agency consultation process as set out in the Cabinet Handbook. This
ensures all agencies are aware of government policies and decisions, and provide input
as part of the policy development process.
Management Council
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Management Council is the key senior management forum for the ACT Public Service.
The Council provides a forum through which to identify and discuss key policy and
operation issues affecting, or potentially affecting, the ACT Government and Public
Service, particularly issues with implications across government.
The Council provides strategic leadership and direction for cross portfolio planning and
policy development, including the consideration of particular issues for subsequent
Ministerial consideration.
Management Council is chaired by the Chief Executive of Chief Minister’s Department.
Membership includes departmental Chief Executives; CMD Deputy Chief Executives –
Governance/Commissioner for Public Administration and Policy; and the Chief Police
Officer.
The Chief Executives’ Strategic Planning Committee
This Strategic Planning Committee is composed of the Chief Executives of all ACT
Government Departments, and meets monthly. It is co-chaired by the Chief Executives
of the Chief Minister’s Department and the Department of Treasury.
The Strategic Planning Committee addresses strategic issues requiring coordination and
integration across government over the longer term. This includes developing the ACT
Infrastructure Plan and service planning processes, and coordinating significant spatial
planning processes.
Interdepartmental Working Groups
Responsible agencies also operate a range of inter-departmental working groups to
facilitate across government coordination and communication. These include:

Policy Forum — chaired by the Deputy Chief Executive of the Chief Minister’s
Department, Policy Division. Deputy Chief Executives meet fortnightly to discuss
major policy development initiatives, particularly those with across government
impacts;

The Chief Executives’ Land Supply Steering Group — develops the
Government’s annual land release program, monitors its implementation and is
supported by a range of working groups;

The Capital Program Development Group — chaired by Treasury and composed
of all agencies, this group meets regularly to coordinate and prioritise
implementation of the Government’s capital program;

The Chief Executives’ Water Group — meets regularly to direct and oversee the
development and implementation of ACT Government water policies and
includes representatives from all agencies and the water utility ACTEW; and

The Transport Reference Group — meets regularly to consider and address
across government strategic transport issues and to ensure that the government
continues to consider transport decisions in line with the Integrated Transport
Framework developed by the Integrated Transport Inter-departmental Committee
in 2008.
Attribute 1.3 Decision making and budgeting
How does the capital city strategic planning system ensure that decisions regarding
plans, policies or programs reflect a whole-of-government perspective and have wholeof-government endorsement?
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How are whole-of-government decisions regarding capital city strategic planning reflected
in and shaped by budget processes and mechanisms?
Response 1.3
The ACT Government has a range of mechanisms across its strategic planning system to
engage with agencies and facilitate whole-of-government decision-making.
The Cabinet Process
The Cabinet process is the principal mechanism by which the ACT Government ensures
its decisions reflect a whole-of-government perspective.
Decisions by Cabinet ensure whole-of-government input and advice is provided on key
planning issues. The process of consultation supporting Cabinet Submissions ensures
that the recommendations of the submission are informed by an across government
approach.
The Chief Executives’ Strategic Planning Committee
This Strategic Planning Committee works across government to develop key strategic
plans and policies, and to prepare information and evidence to inform Government
decisions. The Strategic Planning Committee also coordinates implementation of
Government decisions to ensure an across government approach.
The Budget Process
The annual budget strategy agreed by the Budget Committee of Cabinet guides the
budget process and identifies priority areas for investment.
All requests for infrastructure funding are brought to the Budget Committee of Cabinet for
consideration and must be supported by a detailed business case. Successful business
cases will need to demonstrate that the proposed project aligns with Government
priorities and Strategic Asset Management Plans2, and presents a rigorous case for
funding including economic analysis of options.
At a minimum, business cases must include the following:
2

information on the problem or situation addressed by the proposal;

a justification for the proposal;

links to Government strategies, priorities and policies;

detail on the features and scope of the proposed initiative;

an explanation of the reason why intervention is necessary;

information on options or solutions considered and the rationale for the solution
proposed;

an outline of the proposal’s conformity with existing policies, etc;

an implementation plan for the proposed initiative;

an outline of the expected costs, including whole of life costing (by a Quantity
Surveyor);

economic and financial analysis on the impact of the proposed initiative;
See Chapter 3.4 for further information on Strategic Asset Management Plans
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
sensitivity analysis;

environmental and social impact analyses of the impact of the proposed initiative;

project milestones and a procurement strategy;

anticipated outcomes and benefits or a cost-benefit analysis;

a complete functional brief;

an outline of the impact or risks and consequences of not proceeding;

information on expected risks associated with the proposal’s implementation and
a consequent risk mitigation strategy;

details of stakeholder consultation;

an identified performance measurement method; and

a strategy or process to evaluate success of the proposed initiative.
A review of the Territory’s Strategic Asset Management Framework and planning for this
activity is currently underway to enhance existing processes.
Attribute 1.4 Implementation and Review
What mechanisms does the capital city strategic planning system have in place to deliver
integrated implementation?
Response 1.4
A range of mechanisms exists to assist with the delivery of integrated services across the
ACT Government.
Examples of these include arrangements between agencies around the delivery of
coordinated citizen-centred services and the Land Supply Steering Group discussed in
Response 1.2.
Case Study Three: Land Release Coordination Committee
The Land Release Coordination Committee assists in coordination of matters to do with
land release, including direct sales. It includes, as permanent members, several key
areas within ACT Planning and Land Authority, as well as relevant areas of Territory
and Municipal Services and the Department of Environment, Climate Change, Energy
and Water. Other agencies, such as the Chief Minister’s Department, Health and
Education and Training are involved as necessary.
Interdepartmental Committees
Interdepartmental committees and working groups are the primary mechanism used by
the ACT Government to deliver integrated implementation. Such groups are generally
established by the lead agency for a specific purpose where there is an identified need
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for coordination and expertise across government. These groups have the advantage of
allowing flexible and specific arrangements and membership.
Often, particularly where the project is complex and high-profile, there is a need for more
formal arrangements. In these cases, agencies will engage with Cabinet to formalise
governance, roles and responsibilities, and ensure integrated implementation across
Government.
The Land Release Coordination Committee, discussed in Case Study 3, offers an
example of the manner in which the strategic planning system sets the framework for
integrated planning and implementation across government.
Future work
The ACT Government is working to strengthen capacity to plan for and deliver integrated
services.
As part of a review of its performance and accountability arrangements, the
ACT Government has agreed to develop a framework for working across government.
The Framework will address both informal and formal mechanisms for facilitating
integrated implementation.
In addition, the Hawke Review, to report in December 2010, is examining the broader
capacity of the ACT Public Service to deliver Government priorities. Specifically,
Dr Alan Hawke AC has been asked to examine:

the capacity of existing public-sector structures to support the Government of the
day with strategic and direction-setting advice;

effectiveness in delivering on government policies and objectives;

performance and accountability mechanisms;

how existing structures differentiate between the roles of policy and regulation;

across-government coordination of service delivery; and

structures that would improve resilience and innovation across the public sector.
1.3
1.3.1
Other comments
Continuing to reduce overlap between planning systems
Following the 2008 Federal Parliamentary Inquiry into the role of the National Capital
Authority (NCA), the ACT has been working with the Commonwealth Attorney General’s
Department and the NCA to give effect to the core elements of the inquiry’s
recommendations.
The aim is to achieve a harmonised approach to manage the ACT’s dual planning
system. This approach seeks to identify clear areas of operation for the two jurisdictions
and support both ACT and NCA interests by reducing duplication and overlap.
The objectives are be to remove the duplication and overlap that currently exists in
planning for the Territory, while continuing to recognise that there is a need and a role for
both a national and local planning presence in the nation’s capital. Notwithstanding these
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dual requirements, there is a need to better integrate national and local planning
activities.
A harmonised approach, that reflects the political and fiscal reality of self-government,
could be achieved by defining the NCA’s principal functions as relating to the
Parliamentary Triangle and other national land where the National Capital Plan currently
applies to.
National interests and investments in areas outside direct Commonwealth control could
be supported by a clear definition of “matters of national significance” in both the National
Capital Plan and the Territory Plan. This would embed clearly defined national interests
in ACT planning, as well as define the role of the Commonwealth planning agency.
From the ACT Government’s view, the National Capital Plan would no longer require the
Metropolitan Structure Plan. This is an overarching and detailed structure plan for the
Territory that sets out areas of land-use and transport corridors. As a Commonwealth
statutory instrument, this structure plan overrides the ACT Territory Plan, which sets out
the detailed conditions of land-use and development.
For the ACT, the key problem is that this level of Commonwealth strategic spatial
planning conflicts with land management obligations transferred as part of
self-government arrangements. Under current arrangements it appears that the Territory
Government has land management obligations but unlike States does not have planning
authority within its jurisdiction. In some cases, this level of Commonwealth strategic
planning does not reflect the fiscal reality of self-government or the responsibilities that
rest with ACT Government.
In accordance with COAG’s National Reform Agenda, the ACT Government’s efforts to
introduce contemporary planning legislation, with the objective of a simpler, faster and
more effective system, is potentially compromised in those areas where the NCA also
has jurisdiction over the land to which this legislation applies.
This introduces complexity, uncertainty and delay.
The ACT has also raised the issue of paid parking in the Parliamentary Triangle as an
impediment to integrated transport planning in the Territory.
1.3.2
Fostering a consultative relationship with the Commonwealth Government
The ACT considers that, ideally, the relationship between the ACT and Commonwealth
Governments should be more of a partnership with clearly articulated roles and areas of
responsibilities (e.g. metropolitan planning should be the sole responsibility of the
Territory).
The ACT Government enjoys an effective working relationship with the NCA, but
considers that the overlap in planning functions between the two jurisdictions is less than
ideal.
As stated in the ACT Government’s submission to the Parliamentary Standing
Committee’s inquiry into the future arrangements between the NCA and the Territory
Government, there has been significant change in the administration of planning in the
ACT.
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The ACT Government’s strategic planning capacity has developed significantly since
self-government. As the national capital the consequent Commonwealth Government
interest in the manner in which Canberra is developed is acknowledged. This includes in
defining principles of National Capital significance and direct administration over key
strategic features of the Capital, such as the Parliamentary Triangle.
The ACT Government has significant experience with, and is more closely associated
with, planning processes in the Territory than the NCA. The nexus between being the
planner and planning administrator is compelling. Consideration should be given to
reducing duplication of processes associated with one administration being responsible
for land tenure and another for development control.
Acknowledging that common ground exists on many of these issues there is scope for
closer integration between NCA strategic planning arrangements and the Territory
system. Limited progress has been made toward developing a sensible re-alignment of
planning roles and responsibilities between the ACT Government and the NCA. This
issue was highlighted as a potential impediment to strategic planning arrangements in
the ACT in the KPMG report commissioned by Built Environment Meets Parliament3.
KPMG, ‘Spotlight on Australia’s Cities – An Independent Assessment of City Planning
Systems’ commissioned by Built Environment Meets Parliament (BEMP), 14 June 2010, p. 42
3
BEMP comprises the Property Council of Australia, the Australian Institute of Architects, the
Planning Institute of Australia and the Green Building Council of Australia
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Chapter 2
Plans
Criterion Two: Hierarchy of
Capital city strategic planning systems should provide for a consistent
hierarchy of future oriented and publicly available plans, including:
a) long term (for example, 15-30 year) integrated strategic plans,
b) medium term (for example, 5-15 year) prioritised infrastructure
and land-use plans, and
c) near term prioritised infrastructure project pipeline backed by
appropriately detailed project plans.
2.1 Context
The ACT’s strategic planning framework provides for a future oriented hierarchy of plans
made up of:

long term integrated strategic plans under the umbrella of the Canberra Plan and
represented through the Spatial Plan;

medium term prioritised infrastructure plans and land use plans made up of the
10 year Infrastructure Plan and land use plans incorporated in the Spatial Plan;
and

near term prioritised infrastructure project pipelines set out in the Government’s
capital works program in its annual Budget papers, supported by detailed agency
project plans.
All plans, other than specific project plans, are publically available and updated regularly.
The capital works program is centrally monitored and reported quarterly.
2.1.1
Links with other criteria
2.1.1.1 Providing for economic infrastructure (criterion three)
The ACT Government strategic planning framework incorporates economic
considerations throughout its hierarchy of planning and implementation processes. This
includes consideration of the significance of investing in economic infrastructure as
outlined in Capital Development.
These considerations are underscored in the national context given the Commonwealth
role as partner in the Territory’s planning framework and the ACT’s regional role.
2.1.1.2 Strengthening capital city networks (criterion five)
As the nation’s capital and a significant regional centre, the ACT Government
acknowledges the importance of developing strong networks between capital cities.
Particular examples for consideration relating to transport are dealt with in detail in
Chapter 5.
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2.1.1.3 Future growth (criterion six)
The ACT Government has a range of coordinated and consistent planning processes in
place to facilitate and support future growth in the city.
Case Study Four: A Vibrant City with Great Neighbourhoods
The Canberra Plan outlines a vision for a vibrant city with great neighbourhoods.
The Spatial Plan provides a representation of this over a 30-year timeframe.
As the city grows, future urban area land will be developed to accommodate its
population (for example, a new suburb). The ACT Government’s strategic planning
settings ensure that this development occurs in a manner that is complementary to
the vision of the Canberra Plan.
At the operational level broad principles for development of the future urban area
are determined using spatial planning and structure planning that is formally
recognized in Territory Plan maps. At this point Concept and Estate Development
planning occurs. This is more detailed planning as part of the land release pipeline.
This manifestation of the planning hierarchy is illustrated in the diagram below.
Source: ACT Government, 2009
2.1.1.4 Investment frameworks (criterion seven)
The strategic planning framework facilitates complementary and consistent investment
through its hierarchy of plans which include the economic strategy paper, Capital
Development.
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2.2
Attributes of consistency
Criterion Two.
Hierarchy of plans – self-assessment
Capital city strategic planning systems should provide for a consistent hierarchy of
future oriented and publicly available plans, including:
a) long term (for example, 15-30 year) integrated strategic plans,
b) medium term (for example, 5-15 year) prioritised infrastructure and land-use
plans, and
c) near term prioritised infrastructure project pipeline backed by appropriately
detailed project plans.
Attribute 2.1 Integrated and prioritised plans
Does the capital city strategic planning system have:
a) a long-term (for example, 15-30 year) integrated strategic plan?
b) a medium-term (for example, 5-15 year) prioritised infrastructure and land-use
plan?
c) a near-term prioritised infrastructure project pipeline backed by appropriately
detailed project plans?
How have these plans been made public? Please attach relevant documentation.
Response 2.1 — Integrated Strategic Plans
The ACT has a clear hierarchy of integrated and publically available plans which span
the long, medium and near term. This hierarchy is detailed following and in Chapter 1 of
this submission.
Long-term
The Canberra Plan
The Canberra Plan (the Plan) was launched in 2004 to guide the growth and
development of Canberra for this generation and beyond.
The Plan articulates the Government’s objective to improve the well-being of Canberrans
and contribute to real and sustainable improvements in health, education, prosperity,
social inclusiveness and the environment.
Updated in 2008, The Canberra Plan: Towards Our Second Century retains the
underlying structure of social, economic and spatial plans, and seeks to facilitate a more
integrated overarching strategic planning context.
The Canberra Plan: Towards Our Second Century has seven broad goals:

quality health care;

a fair and safe community;

excellent education, quality teaching and skills development;

a strong dynamic economy;
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
a vibrant city and great neighbourhoods;

a sustainable future; and

high-quality services.
The Canberra Plan acknowledges that Government, individuals, businesses, and
community groups all contribute collectively to societal progress. Framed in this context,
this long term plan acts as the basis for aligning Government priorities, agency objectives
and services that should contribute to meeting these goals.
The Canberra Plan is supported by more detailed economic, social, and environmental
plans:

Capital Development is the Government’s plan to support a strong, dynamic and
resilient ACT economy.

The Canberra Social Plan is the Government’s long-term plan to ensure all
people meet their potential, make a contribution and share the benefits of living in
Canberra.

Weathering the Change is the ACT Government’s Climate Change Strategy, and
a central pillar of the Government’s commitment to creating a sustainable
Canberra.
The Spatial Plan
The Canberra Spatial Plan (Spatial Plan) is the spatial representation of the Canberra
Plan. It sets the strategic direction for the development of Canberra over the next
30 years and beyond, but provides the flexibility required to respond to change. It is the
Territory’s key strategic planning document for directing and managing urban growth and
change.
Based on community aspirations and detailed planning analysis, the Spatial Plan
provides a Canberra-wide context within which neighbourhood and district planning
policies can be set. It maps a course of short, medium and long term actions to support
the strategic approach to the key urban development issues facing Canberra. It helps to
improve understanding of, and response to, issues and implications that have
geographical or physical and spatial dimensions. It provides a clear framework within
which all of the stakeholders in Canberra’s future can plan their own development
activities to the best effect in working toward the vision of social progress identified in the
Canberra Plan.
The Spatial Plan is intended to guide the Territory in its allocation of resources, such as
the use of land and the construction of capital works as well as to inform changes to both
the National Capital Plan and the Territory Plan. The Spatial Plan does not replace the
Territory Plan, introduced prior to self-government. It is a strategic document to guide
more detailed planning, setting the framework for spatially based decision-making in the
future and outlines the actions needed to achieve the strategic goals for Canberra over
the next 30 years outlined in the Canberra Plan.
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Medium-term infrastructure and land-use plans
Infrastructure Plan
The ACT Government Infrastructure Plan (the Infrastructure Plan), released in June
2010, outlines the Government’s 10 year infrastructure strategy and will be regularly
updated.
It has been informed by the views of the community and industry, through the
Government’s budget consultation strategy, and also through a series of high-level
roundtables.
The Infrastructure Plan provides an important link between the objectives identified in the
Canberra Plan, longer term infrastructure planning, and the Government’s funding of
capital works through its annual budget.
The current Infrastructure Plan outlines:

key drivers of infrastructure demand and investment;

current infrastructure projects and strategies;

infrastructure priorities for the next 10 years; and

the ACT’s framework for planning, analysing, delivering, and maintaining
infrastructure.
The main elements of the ACT’s infrastructure framework are outlined in Figure 2.2.
Figure 2.2 The ACT Government Infrastructure Framework
Direction
Setting
Strategic
Planning
•Canberra Plan: Towards our Second Century
•Government Policies: Capital Development, Social Plan, Spatial Plan, Sustainability Policy
•Other Government Priorities
•Agency strategic planning: integrated service and infrastructure planning
•Consolidated ACT Infrastructure Plan
•Business Case
•Feasibility Study
Analysis and •Annual Budget Papers
Approval
•Procurement Plans
•Agency Asset Management Plans
Delivery and •Project planning and implementation
Management
Source: ACT Government, 2010 Infrastructure Plan
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In the ACT, the main drivers of demand for infrastructure investment in the next 10 years
are expected to be:

changing demographics, including a growing and ageing population in the ACT
and region;

maintaining vital infrastructure as it ages;

addressing climate change; and

sustaining a growing economy.
The Infrastructure Plan recognises the national significance of infrastructure. The ACT’s
highest-priority bid for Infrastructure Australia funding – the Majura Parkway project – will
play an important role in any future development of the Canberra Airport as a freight hub,
as well as delivering significant benefits to local road users and road freight on the
Monaro and Federal Highways.
The ACT Government will continue to pursue shared funding opportunities for other
major infrastructure initiatives that are beyond its capacity in isolation. These include
long-term projects such as:

a light rail system linking Civic to the airport, Parliamentary Triangle and major
town centres;

a Very Fast Train linking three or possibly four eastern capitals, including
Canberra;

a new sports stadium; and

a world-class convention centre.
Land Use Plans
The Spatial Plan outlines medium term land use objectives and implementation plans for
Canberra. In developing this Plan, consideration is given to potential urban development
areas within the ACT. These areas are identified through examination of factors that may
constrain, or potentially limit, the location of future urban development, including social,
physical and environmental constraints.
Generally these are areas currently undeveloped for urban purposes but excluding
conservation areas, river corridors, habitats for endangered species, and areas of steeply
sloping land of 20 per cent or more.
Sustainability principles are applied to determine suitability of this land for urban
settlement. Key issues include:

maximising access to, and use of, existing services and facilities and
infrastructure;

minimising the need for new transport links and travel times;

maintaining the sense of place of the city;

protecting biodiversity;

ensuring fiscal responsibility for the Territory; and
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
supporting employment opportunities.
Near-term project pipeline
Indicative Land Release Programs
The Government’s 4-year Indicative Land Release Programs for the residential,
commercial, industrial and community sectors are an important part of its broader
economic and social strategies.
The delivery of the Programs involves planning and development of significant
infrastructure to prepare land for the market. Supporting the Land Release Programs is
the Government’s annual Capital Works Program and the 4-Year Indicative Program
which identifies the infrastructure required to facilitate land release.
Infrastructure Pipeline
Business cases for each project identified in the annual Capital Works Program are
provided to enable the Government to make informed decisions and strategic investment
decisions. Once business cases are approved for funding through the budget process
these are included in the Government Capital Works Program.
Projects in the Capital Works Programs must be supported by business cases, feasibility
studies, robust planning, design works, functional briefs and project plans..
The ACT Annual Infrastructure Investment Program is released annually through the
annual budget papers.
Progress in delivery of infrastructure is reported publicly on a quarterly basis. Reporting
provides commentary on significant projects, and identifies the achievement of key
milestones, as well as providing a project by project update on expenditure to date.
Attribute 2.2 Consistency of plans
Demonstrate how each of these plans is consistent with one and other (for example,
provide evidence that near-term infrastructure projects are identified or closely linked to
the medium and long term plans).
Response 2.2
Consistency and integration of plans is a driving imperative of the ACT strategic planning
system. This is exemplified with reference to the ACT Infrastructure Plan and land
release planning.
ACT Infrastructure Plan
This medium term plan is informed by strategic service and asset planning by agencies,
which must be consistent with the Government’s long-term objectives and priorities set
out in the Canberra Plan and sub-plans. In turn the Infrastructure Plan informs and is
consistent with near term planning and decisions in agencies and through the annual
budget process.
Notwithstanding this alignment, the ACT recognises that there are opportunities to
improve consistency and express it more clearly. To this end the Government will
continue to refine its planning processes, and the structure and content of its plans.
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Case Study Five: The Draft Structure Plan for the Molonglo Valley
The Draft Structure Plan for the Molonglo Valley has identified an extent of
development and an initial layout of major and local access roads.
Major infrastructure requirements have been identified, incorporated in the
planning, identified in the 4-year and 10-year indicative programs and funded
through the annual capital works programs.
Source: ACT Government, March 2010
Land Release
Each year the ACT Government prepares Indicative Land Release Programs setting out
the Government’s intended program of land releases. These programs are aligned with
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the budget process encompassing its 4-year cycle, and are published each year with the
Budget.
Infrastructure projects to support land releases, including feasibility studies, forward
design and construction identified in the Government’s 4-year indicative programs are
updated based on the land release program. The indicative programs assist the ACT
Government in the consideration of the capital works program, and the development of
the Infrastructure Plan.
The relationship between the capital works program and the planning and development
process is illustrated in the Molonglo Valley development.
The Molonglo Valley Urban Development Area is identified in the Canberra Spatial Plan
as a key implementation project to be undertaken over the next 30 years.
The National Capital Plan provides a general policy framework for land use and planning
in the area; and the Territory Plan is a detailed statutory document, providing the policy
framework such as zones and codes for the administration of spatial planning in the ACT.
Extensive planning, engineering and environmental studies have been undertaken for the
area to enable a variation to the Territory Plan and amendment to the National Capital
Plan.
Attribute 2.3 Review or updates to plans
How does the capital city strategic planning system allow for review and or change of
plans within the hierarchy?
Are there mechanisms in place that allow all plans to be updated once a change has
been decided?
Response 2.3
The plans that inform the ACT’s strategic planning framework are regularly reviewed and
updated, as discussed below.
The Canberra Plan: Towards Our Second Century is focused toward 2013, marking the
centenary of Canberra. The progress of society towards the objectives outlined in this
plan are reported against annually. The Plan is updated every four years.
To ensure ongoing relevance, the Canberra Spatial Plan is subject to a rolling program of
reviews. These reviews are geared toward maintaining the plan’s policy responsiveness
to the policy context and its effectiveness in directing planning and decision-making.
The first review occurred after two years with another, currently underway, after six. This
review is legislated, with reporting back to the Government.
The Planning Minister’s Statement of Planning Intent is reviewed and refreshed as
required, most recently in 2007 and 2010. The Statement establishes key spatial
planning priorities for the Government including spatial planning system reform,
affordable housing and land release, and addressing climate change.
The Government has publicly committed to annual reviews of the ACT Infrastructure
Plan.
In accordance with the Australian Capital Territory (Planning and Land Management) Act
1988, the National Capital Authority is required to review and amend the National Capital
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Plan. The amendment process includes public consultation. After approval by the
Minister, amendments are subject to disallowance by either House of the Commonwealth
Parliament. The process of review and amendment responds to the contemporary
environment while ensuring that development accords with the national significance of
Canberra.
Attribute 2.4 Detailed project plans
Please explain the nature and basis of the ‘appropriately detailed project plans’ that
support the projects in the infrastructure project pipeline required under part c of this
criterion. What degree of certainty is there regarding the likelihood, nature and mode of
delivery of the projects in the pipeline?
Response 2.4
The annual budget process requires the development of individual business cases which
are required to contain project plans or functional briefs – and the outcomes of previous
feasibility and design projects. In addition agencies prepare rolling four-year indicative
capital works or infrastructure programs, to assist in forward planning.
The Territory has centralised procurement processes. ACT Procurement Solutions
assists agencies in identifying appropriate procurement strategies for delivering individual
capital works projects.
The Territory has also adopted the national best practice guidelines for public private
partnerships, and in doing so, considers whether any public infrastructure projects with a
capital investment over $50 million could be delivered through alternate
procurement methodology including PPPs4.
This analysis is typically undertaken after the preliminary evaluation or feasibility work is
completed. Treasury maintains the capacity to engage expert advice to assist in these
determinations.
All capital works projects require implementation or project plans which are appropriate to
the size and complexity of the project. The key elements of an individual implementation
or project plan, discussed in Response 1.3, are required as part of the business case
seeking funding which is submitted to the Budget Committee of Cabinet as part of the
annual budget process.
Once the Budget Committee of Cabinet approves a project, the implementation or project
plan is finalised.
Finalised plans contain functional briefs that detail the project scope, contain project
schedules and list project milestones. They also identify project stakeholders or owners
and the make-up of the steering committee where the project size or scope warrants one.
2.3
Other comments
The Commonwealth Government also undertake periodic reviews of the National Capital
Plan.
Infrastructure Australia, ‘National Public Private Partnerships: Policy Framework’, December
2008.
4
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Chapter 3 Criterion Three: Nationally
Significant Infrastructure
Capital city strategic planning systems should provide for nationallysignificant economic infrastructure (both new and upgrade of existing)
including:
a) transport corridors,
b) international gateways,
c) intermodal connections,
d) major communications and utilities infrastructure, and
e) reservation of appropriate lands to support future expansion.
3.1 Context
The ACT’s status as host of the national capital arguably bestows national significance to
its key infrastructure elements. Supported by the Commonwealth’s Nation Building –
Economic Stimulus Plan, the ACT has invested significantly in planning and
implementing significant new infrastructure projects and systems.
Ensuring an adequate water supply in an uncertain climate future is critical to Canberra’s
future viability. The ACT has initiated the enlargement of the Cotter Dam, the
Murrumbidgee to Googong Water Transfer and the Tantangara Transfer to maintain
Canberra’s water security over the coming decades. ActewAGL is similarly ensuring the
security and reliability of Canberra’s electricity supply by building a second bulk supply
point at Williamsdale.
Through private sector investment, Canberra Airport is being significantly upgraded to
increase its capacity, including acting as a regular entry point for international business
and private travellers.
The Canberra Airport is also exploring the potential to serve as a national 24 hour freight
hub and dispatch point. This possible function would link in with other intermodal
transfers, including the planned development of the Majura Parkway. Canberra Airport
would also link in with the possible development of a high speed rail link between Sydney
and Melbourne.
While the Canberra Airport is privately owned, and governed by Commonwealth
legislation, the ACT Government and the Airport work closely on planning and related
issues. For example, major road works to Pialligo Avenue was a collaborative project
supported by investment from both parties.
The ACT Government and the Canberra Airport recently signed a Memorandum of
Understanding formalising its sound working relationship. ACT officials meet regularly
with the Canberra Airport (including central agencies, Department of Territory and
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Municipal Services and ACT Planning and Land Authority Chief Executives and
representatives).
3.1.1
Links with other criteria
3.1.1.1 Hierarchy of plans (criterion two)
The ACT Spatial Plan and the ACT Infrastructure Plan are critical in the identification of
essential ACT infrastructure and for ensuring appropriate planning actions to support
their development.
3.1.1.2 Strengthening capital city networks (criterion five)
The redevelopment of the Canberra Airport will provide the capacity for improved
connections with other capital cities. The development of the Majura Parkway provides
improved access from Canberra to Sydney, including for freight from Canberra Airport.
3.1.1.3 Planning for future growth (criterion 6)
Water and electricity security projects are currently underway to safeguard the future
supplies of these essential utilities for ACT residents as the city expands and increases in
density.
3.1.1.4 Investment priorities and frameworks (criterion seven)
The Infrastructure Plan sets out a rolling plan of priorities for the ACT, helping guide the
construction industry to plan for likely future infrastructure projects.
The Canberra Airport precinct is an example of a major site for private sector investment
and development, providing a significant industry and employment centre next to
important air and road infrastructure.
3.2 Attributes of consistency
Criterion Three. Nationally-significant economic infrastructure –
self-assessment
Capital city strategic planning systems should provide for nationally-significant economic
infrastructure—new infrastructure
Attribute 3.1
Does the capital city strategic planning system identify new nationally-significant
economic infrastructure against the different categories listed at right? Please outline
any such infrastructure needs and indicate where these needs have been
documented.
How is this new nationally-significant economic infrastructure provided for in the
capital city strategic planning system?
Response 3.1
The ACT Government takes an integrated and long-term approach to infrastructure
planning. Agency infrastructure planning is guided by the Government’s long term
objectives, strategic service planning and the national policy context, and is expressed
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in Strategic Asset Management Plans. These plans help identify nationally significant
infrastructure, and inform medium-term, across government infrastructure planning, as
expressed in the ACT Infrastructure Plan, and investment decisions in the annual
budget process.
a) Transport Corridors
The Spatial Plan identifies key current land uses and transport routes and future
opportunities at the metropolitan and ACT-wide scale. This includes actioning key
initiatives over the short, medium and longer term.
At the sub-metropolitan scale more detailed work is undertaken to ensure that
infrastructure planning is integrated in a network context and to meet land use goals
and objectives. The National Capital Authority’s National Capital Plan also documents
‘high level’ land use intentions including some infrastructure.
There are three national transport routes into the ACT – the Barton, Monaro and
Federal Highways. A number of roadways link into and beyond these roads within the
metropolitan area. The capacity of the road network for freight is an integral part of
transport planning.
Case Study Six: Nationally Significant Infrastructure and ACT Planning
Three ACT priorities for nationally-significant infrastructure are identified in the Infrastructure
Plan, and detailed transport planning, and will only be possible with Commonwealth and ACT
Government partnerships:
Majura Parkway:

A key link in the national freight corridor, Majura will improve freight movement for
Canberra and the region
Northbourne Avenue:

Northbourne Avenue, the major approach to Canberra is the ACT’s first priority
corridor for moving people – by car, public transport, bike and foot. It is also the key
approach to the Nation’s capital.
Canberra Avenue — the Eastern corridor:

The Canberra Avenue transport corridor provides a critical link between Canberra and
Queanbeyan, and will require focus on mode shift to respond to projected growth in
the region and improve cross border connections.
The latter two corridors are reserved as Intertown Public Transport Corridors in the Territory
Plan, the statutory document guiding land use planning in the ACT. The Sustainable Transport
Plan (2004) identified them as key priority corridors.
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b) International gateways
The Canberra International Airport is an important element of theTerritory’s economy
and the ACT Government will continue to support the planned expansion of both
passenger and freight activity.
These developments complement the ACT Government’s ongoing efforts to attract
new migrants and businesses to the Territory, and also facilitate the diversification of
the local economy by providing the opportunity for new economic activity.
The importance of the Canberra Airport is referenced in the Canberra Plan, the Spatial
Plan, Capital Development (the Economic Plan) and the Infrastructure Plan.
The Government has established a Canberra Airport Integration Committee, the role
of which is to:

facilitate dialogue between all members concerning the operation and
development of the Airport and the integration of the Airport into the wider
community and the ACT planning context;

assist with the implementation of Commonwealth Policy as it applies to
Canberra Airport;

facilitate the implementation of the Canberra Airport Master Plan;

facilitate the integration of Commonwealth Laws and Policy with applicable
Territory Laws and Policies in relation to the Airport and surrounding area; and

be a forum where its members can openly discuss issues, policy, disputes,
opportunities and other matters in relation to planning and infrastructure.
The membership of the Committee includes:

Chief Executive, ACT Chief Minister’s Department;

Deputy Chief Executive, Policy, ACT Chief Minister’s Department;

Chief Planning Executive, ACT Planning and Land Authority;

Chief Executive, ACT Department of Territory and Municipal Services;

Managing Director, Canberra Airport;

Director of Planning, Canberra Airport; and

Manager, Regulatory Affairs, Canberra Airport.
The Airport’s current Master Plan envisages multiple and expanding roles for the
Airport. It seeks to grow the Airport into an international, domestic and regional hub,
providing for 6.7 million passengers annually. In addition, it seeks to become an
overnight freight hub within five years with associated warehousing and office support,
to be a key location for business, retail, industry, security and Defence and a back-up
for overflow and bypass traffic from Sydney Airport.
It also anticipates the provision of international services in the near future and
completion of a major new terminal within 5 years. The first stage of Canberra
Airport’s $350 million upgrade became operational on 14 November 2010.
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c) Intermodal Connections
As part of its approach to infrastructure planning and investment, the ACT
Government will continue to explore options to:

enhance links between capital city and regional road networks;

support the development of the Canberra Airport; and

potentially develop a Very Fast Train linking Canberra with up to three Eastern
capital cities.
At the local level, the ACT Government’s Transport for Canberra Program and
strategic public transport planning are focussed on integrating public transport with
walking, cycling and short car tips where appropriate, such as Park and Ride facilities,
to address the nationally-significant issue of climate change.

Northbourne Avenue: a study in 2010-11 is investigating multi-modal use of
this key transport corridor, including public transport priority. In 2011-12 a new
commuter cycleway will be constructed. Commonwealth support will be
required to construct the full revitalised Northbourne Avenue corridor.

Canberra Avenue: a study in 2010-11 is investigating multi-modal use of this
corridor, including public transport priority, commuter cycle connections and
park and ride opportunities.

Belconnen to City Transitway: construction of city end measures in 2011-12,
and feasibility study into central section. The transitway will include cycle at
pedestrian access, supported by park and ride facilities at appropriate
locations. The central section would require Commonwealth support to
progress.

Park and Ride and Bike and Ride programs, major stop improvements and
real time passenger information system will all be rolled out over the next four
years to make intermodal passenger trips the easy travel option in Canberra.
The ACT’s strategic public transport planning identifies a “frequent network” of public
transport corridors which will, by 2031, have guaranteed 15 minute or better
frequency; this is represented in the map on the following page.
d) Major communications and utilities infrastructure—including water,
electricity and telecommunications infrastructure
Canberra is the national capital, and seat of the Commonwealth Government.
Providing secure and efficient utility and communication infrastructure is a nationally
significant issue. This fact is underscored by the role of the ACT as a regional centre
and, in some cases, supplier of utilities to surrounding areas.
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Figure 3.1.1 ACT Strategic Public Transport Planning – the 2031 Frequent
Network
As discussed on page 30, the frequent network plan shows only those services which will run at 15 minute
or better frequency all day by 2031. Two other service types (not shown) provide peak hour and “coverage”
or accessible public transport service, but are subject to shorter term network planning, including transport
disadvantage mapping being undertaken in 2010-11.
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Source: ACT Government, 2010
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Water Security Projects
In the first part of this century, the ACT faced a major water security challenge – over
the period 2001 to 2006 dam inflows were 63 per cent below the long term average.
This prompted a major review of water security options by the water utility, ACTEW,
and the establishment of a Water Security Taskforce. In 2007, this culminated in the
agreement to a comprehensive water security strategy including the three flagship
projects discussed following.
Enlarged Cotter Dam
This project involves building a new dam downstream of the existing one to increase
the Cotter Reservoir’s capacity from the current 4 gigalitres (GL) to around 78 GL –
almost 20 times its current size. The project is expected to be completed in late 2011.
Murrumbidgee to Googong Water Transfer
This project involves building a 12km pipeline from the Murrumbidgee River to Burra
Creek, allowing up to 100 megalitres of water per day to be transferred from the River
to Googong Reservoir. The project will increase the diversity of the ACT’s water
supply, and is expected to be completed in 2012.
Tantangara Transfer
This project involves purchasing water entitlements from Murrumbidgee irrigators, to
allow water to be transferred to the ACT via the Tantangara Reservoir and the
Murrumbidgee River. Commercial and intergovernmental negotiations will continue in
2011.
Second Connection to National Electricity Grid
The ACT currently has one bulk power supply point, the Canberra Substation. From
this substation, ActewAGL distributes electricity to homes and businesses around the
ACT and surrounding areas. To ensure the security and reliability of Canberra’s
electricity supply, now and into the future, a second independent bulk supply point is
being built at Williamsdale. The project will cost $80 million and is expected to be
completed by Winter 2012.
e) Reservation of appropriate lands to support future expansion
The Spatial Plan identifies existing and future potential land uses at an ACT wide
scale.
Subsequent consideration and documentation of the range of place based issues
lead to Structure Plans that are prepared for incorporation into the Territory Plan.
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Case Study Seven: Eastern Broadacre Planning
The ACT Government has commenced long term planning for the eastern side of the ACT known as
the Eastern Broadacre area (see Figure 3.1.2 on the following page). This area, which extends from
Majura in the north to Hume, is identified as a future employment corridor in the Canberra Spatial
Plan.
The Eastern Broadacre planning study confirms that the area will have an important role in the future
supply of employment land for the ACT and region. It could provide for a significant range of light
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industrial uses, nationally and internationally significant business, and national freight
distribution.
The opportunity also exists to consolidate the growing role of the Majura Valley as a defence
and national security hub, and for the area to support further tourism and recreational uses.
The study also identifies areas for conservation, including potential future nature reserves in
the Jerrabomberra and Majura Valleys.
Figure 3.1.2 Map of Eastern Broadacre Area
Attribute 3.2
Please outline the process used to determine the need for the new infrastructure items
identified in response to question 3.1. In providing a response, please indicate
whether consideration has been given to alternatives to providing new infrastructure,
including improving the efficient use of existing infrastructure.
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Response 3.2
The Planning Process
Metropolitan and district scale structure planning addresses network infrastructure
requirements by undertaking site analysis processes. Further work is then undertaken
to analyse technical requirements and environmental issues as part of scoping and
concept development.
Overarching guidance relating to infrastructure efficiency and systems innovation is
provided through the Territory Plan’s Statement of Strategic Directions, and the
Minister for Planning’s Statement of Planning Intent 2010. These both require the
application of a triple-bottom-line approach to sustainability.
Once need and nature are established, projects are put forward as part of annual
budget processes. Detailed project scoping and control plans are subsequently
undertaken to manage design, approval, procurement and construction processes.
Infrastructure Planning Methodology
Nationally significant infrastructure projects are identified from agency Strategic Asset
Management Plans. The ACT’s Strategic Asset Management Framework identifies
the requirement for all agencies to investigate alternatives to asset replacement,
including upgrading existing assets and non-asset solutions.
Treasury coordinates interaction with Infrastructure Australia to ensure that any ACT
Government projects of national significance are identified for inclusion in the National
Infrastructure Pipeline – through the Annual Submission process to Infrastructure
Australia.
Capital city strategic planning systems should provide for nationally-significant economic
infrastructure—existing infrastructure
Attribute 3.3
Does the capital city strategic planning system identify existing nationally-significant
economic infrastructure that requires upgrade against the different categories. Please
outline these and indicate where these have been documented.
How is the upgrade of nationally-significant economic infrastructure provided for in the
capital city strategic planning system?
Response 3.3
a) Transport corridors
The Spatial Plan identifies key current land uses and transport routes and future
opportunities at the metropolitan scale. The Spatial Plan nominates that the strategic
directions are achieved with an implementation framework. This includes actioning key
initiatives over short, medium and longer terms. This specifically includes investment
in infrastructure.
At the sub-metropolitan scale more detailed work is undertaken, for example the
discussion paper released in 2010 for an area called Eastern Broadacre considers the
implications of a range of key future transport facilities for the ACT, in keeping with the
guidance the Spatial Plan provides.
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These facilities include the airport as an international facility, a north-south bypass
linking current national transport (freight) routes and a high speed rail corridor as part
of the Sydney to Melbourne route. These wider metropolitan and subsidiary scales of
investigation inform more locally focussed research and strategic policy documents
such as Transport for Canberra.
In addition, the National Capital Authority’s National Capital Plan (NCP) sets out
general principles and policies to be implemented for planning national and arterial
road systems (refer Chapter 6 and the General Policy Plan). The NCP also provides
controls for Canberra’s main avenues and approach routes, as “…it is important that
the traveller is immediately aware of the special symbolic and functional significance
of the National Capital.”
These routes are Designated Areas under the provision of Section 10 (1) of the
Australian Capital Territory (Planning and Land Management) Act 1988, which means
the National Capital Authority is an approving authority for any works.
The transport corridors are documented as Intertown Public Transport Corridors in the
Territory Plan, the statutory planning document guiding land use in the Territory.
b) International gateways
The importance of Canberra Airport is referenced in the Canberra Plan, the Spatial
Plan, the Capital Development and the Infrastructure Plan. The Government has
established a Canberra Airport Integration Committee, the role of which is to:

facilitate dialogue between all members concerning the operation and
development of the Airport and the integration of the Airport into the wider
community and the ACT planning context;

assist with the implementation of Commonwealth Policy as it applies to
Canberra Airport;

facilitate the implementation of the Canberra Airport Master Plan;

facilitate the integration of Commonwealth Laws and Policy with applicable
Territory Laws and Policies in relation to the Airport and surrounding area; and

be a forum where its members can openly discuss issues, policy, disputes,
opportunities and other matters in relation planning, infrastructure, and
Airports.
See Response 3.1 (b).
c) Intermodal Connections
See response 3.1 (c)
d) Major communications and utilities infrastructure—including water,
electricity and telecommunications infrastructure
See Response 3.1 (d) relating to the water security projects such as the Cotter Dam,
Murrumbidgee to Googong, Tantangara and connection to the national electricity grid.
These projects are critical for Territory and national security to secure water supply
and support forecast population growth, and climate change predictions by CSIRO,
and support effective National Broadband Network connections. Critical infrastructure
facilitation legislation is being prepared by ACTPLA to facilitate planning approvals to
remove time constraints associated with such projects.
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e) Reservation of appropriate lands to support future expansion
In planning for future ‘greenfields’ developments, the Structure Plans incorporate
easements of land for infrastructure, taking account of anticipated present and future
needs in keeping with guidance provided by the Spatial Plan.
In planning to increase the density of already developed urban areas, infrastructure
capacity studies with associated surveys, are undertaken early to inform development
and identify potential limitations and dependencies. These are undertaken prior to
more detailed urban planning studies, community consultation and land release
scheduling.
f) Other
The Government’s Commercial Land Release Program (CLRP) includes specific sites
earmarked for Commonwealth Government office buildings. Due to the current high
vacancy rates of office space, the CLRP requires these sites to be ‘release ready’, so
the ACT Government can respond quickly to Commonwealth requests for land for
offices.
Attribute 3.4
Please outline the process used to determine the need to upgrade existing
infrastructure. In providing a response, please indicate whether consideration has
been given to other strategies to ensure the efficient use of existing infrastructure.
Response 3.4
Agencies receive a base funding allocation to maintain and upgrade existing assets
(Capital Upgrades). Project allocations are based on information included in agency
Strategic Asset Management Plans (SAMPs).
In preparing SAMPs, agencies are required to explore “non-asset” solutions to service
delivery requirements including:

redesigning the service to reduce the need for assets;

increasing the utilisation of existing assets;

using the private sector to provide parts or all of the service so assets will be
controlled and operated by contractors rather than the agency;

innovation; and

asset re-use or revitalisation.
Funding for major asset upgrades is through the annual budget process where
requests are also assessed against SAMPs. Funding decisions for these major
upgrades are assessed in conjunction with requests for new infrastructure assets.
The Department of Treasury has been funded to undertake a whole-of-government
project to enhance strategic asset management planning. This has been built into
longer term infrastructure planning.
As part of the Spatial Plan review, the Territory is also looking more broadly at the
question of infill development to optimise its use of land and existing infrastructure.
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Chapter 4 Criterion Four: Nationally
Significant Policy Issues
Capital city strategic planning issues should address nationallysignificant policy issues including:
a) population growth and demographic change,
b) productivity and global competitiveness,
c) climate change mitigation and adaptation,
d) efficient development and use of existing and new infrastructure and
other public assets,
e) connectivity of people to jobs and businesses to markets,
f) development of major urban corridors,
g) social inclusion,
h) health, liveability, and community wellbeing,
i) housing affordability, and
j) matters of national environmental significance.
4.1
Context
The ACT is unique among Australia’s jurisdictions: a city-state with limited primary
industry resources and an economy strongly influenced by the presence of the
Commonwealth workforce.
These distinctive elements present opportunities and challenges in responding to
emerging national issues that need to be taken into account when considering the
ACT’s systems under this criterion.
The ACT’s capacity to address national as well as territory level policy issues has
rested on its strong, integrated strategic planning systems, which have been central to
the Territory’s governance since its establishment. The Canberra Plan is at the apex
of this planning structure, and is supported by economic, spatial and social plans.
Further plans, such as the Infrastructure Plan, the Weathering the Change (climate
change) action plan and the Sustainable Transport Plan support, reinforce and link the
four primary plans.
Capital Development, the ACT’s economic plan, gives flexible guidance to the pursuit
of ongoing improvements in productivity and global competitiveness. The ACT’s
strong economy is also drawing continuing population growth. The ACT’s planning
processes are supported by a clear understanding of the direction of demographic
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change through the Confronting the Demographic Challenge initiative and the ACT
Information Development Plan.
4.1.1
Development of major urban corridors
At the commencement of self-government, the ACT inherited a generous
Commonwealth legacy of excellent infrastructure systems, but has needed to dedicate
significant financial support to maintaining, updating and extending Canberra’s
infrastructure systems.
The ACT Government has increased its ongoing infrastructure funding, establishing
the $1 billion strategic infrastructure program, Building the Future in 2008-09. The
ACT is maintaining its strong urban corridors in the development of greenfields sites,
but also through increasing urban infill consolidation
4.1.2
Social inclusion
The ACT also has a strong policy commitment to social inclusion. This includes a
targeted approach to improving housing affordability. The ACT continues to rank
highly, relative to other jurisdictions, on indicators such as community health and
educational achievement.
4.1.3
Health, liveability, and community wellbeing
The ACT’s strategic planning system is designed to support and facilitate health,
liveability and community wellbeing. This is achieved through its strategic planning
and related policy documents that detail various aspects of liveability, affordability,
environmental responsibility, economic vitality and identity.
4.1.4
Housing affordability
The ACT Government has a range of measures in place to address the issue of
housing affordability. The Affordable Housing Action Plan, now in its second phase,
reflects this with a suite of measures to assist Canberrans to access a range of tenure
options. Priority areas range from addressing homelessness, rental affordability, and
programs to assist first homebuyers enter the property market.
4.1.5
Matters of national environmental significance
The ACT has been a national leader in setting greenhouse gas emission reduction
targets. In 2010, the ACT legislated targets for emissions, including reductions of 40
per cent less than those in 1990 by 2020.
The ACT is developing a revised climate change action plan to guide action towards
these targets.
The ACT’s commitment to broader national environmental matters is demonstrated by
it having the highest levels of nature reserves in Australia, and the ACT’s co-operation
with the Commonwealth in dealing with matters of national environment significance
through a bilateral agreement.
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4.2
Attributes of consistency
Criterion Four. Nationally-significant policy issues – selfassessment
Capital city strategic planning issues should address nationally-significant policy
issues.
Attribute 4.1
Please outline and describe the methods used to define and analyse nationallysignificant policy issues.
What are the strategies, actions, initiatives and/or mechanisms the capital city
strategic planning system employs to address nationally-significant policy issues?
In addressing nationally-significant policy issues, what methods have been used to
determine the most effective strategies, actions, initiatives and/or mechanisms?
Please include a separate response for each issue identified in boxes (a) through (k)
to the right.
Response 4.1
a) Population growth and demographic change
The ACT Government is committed to high quality planning and policy development,
and accurate population projections are fundamental to this process.
As part of the Confronting the Demographic Challenge initiative, the Chief Minister’s
Department was funded through the 2008-09 ACT Budget to produce demographic
analysis and to inform the Government about the changing nature of Canberra’s
population.
This initiative funds a regular program of work which supports strategy, policy and
planning across government, including:

biennial updates to ACT Government population projections disaggregated by
age-by-sex and suburb-level;

targeted demographic research and reporting; and

coordination and implementation of the ACT Information Development Plan.
Projections of the level, characteristics and location of the ACT's future population are
fundamental to quality policy development and informed decision-making.
Demographic analysis and population forecasting inform the Government about the
changing nature of Canberra’s population and helps agencies to efficiently plan and
deliver infrastructure and services to the community.
The ACT Information Development Plan, 2008-2011 (IDP) was prepared by the Chief
Minister’s Department and the Australian Bureau of Statistics to recognise and give
effect to the important role that quality statistics play in informed decision-making
within governments, business and the community.
The IDP provides a high level strategic framework for a whole-of-government
approach to improving the management and development of statistical resources for
the Territory.
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Case Study Eight: Demographic Information Informs ACT Planning
The age-by-sex and suburb-level projections are used by all ACT Government
agencies. They are used by:

the Department of Education and Training to determine when and where new
schools might be needed;

the Department of Land and Property Services to support land release;

ACT Health to plan hospital and health services;

the Department of Housing and Community Services to plan for disability
services;

by ACTEW for water and sewerage planning; and

by TAMS for traffic modelling.
All ACT Government agencies are committed to developing and improving their
statistics to better equip them to develop policies and programs that meet the current
and future needs of their clients. The IDP provides a framework for advancing the
availability and quality of statistical information in the ACT, and constitutes a
significant step in advancing evidence-based policy research within the ACT
Government.
The importance of the region surrounding the ACT is recognised in the Canberra Plan,
the Spatial Plan, Capital Development and the Infrastructure Plan. The ACT
Government has also undertaken a number of studies examining the impact of the
region on the local economy and the Chief Minister’s Department is currently
undertaking demographic work to take a wider regional perspective and ensure that
the ACT strategic planning system takes better account of these regional impacts.
b) Productivity and global competitiveness
The ACT Government’s economic plan, Capital Development, is focused on
increasing productivity and global competiveness by:

investing in people;

building infrastructure and planning for the future; and

encouraging business and innovation.
These strategies support productivity growth by:

increasing human capital;

increasing physical capital, both private and public;

ensuring effective use of scarce land resources; and
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facilitating new and more efficient ways of doing business and combining
economic resources.
The actions and initiatives to achieve these outcomes are outlined in more detailed
plans including ACT Skills Future, the Infrastructure Plan, and Canberra’s 2010-11
Business Prospectus: See Your Business in Canberra – Australia’s Capital.
As an example of the ACT Government’s commitment to productivity and global
competitiveness, it delivers funded trade development, investment facilitation, and
innovation support programs to the ACT business community.
These programs build enterprise capability and productivity performance exposing the
business community to international competitiveness factors. These factors include
sources of innovation and global supply chains.
The ACT Government also has a specific program in place to develop key sectors
such as ICT, international education, the defence technology sector and creative
industries.
During 2010, the ACT Government initiated a Tertiary Taskforce to investigate options
and identify opportunities to optimise Territory investment in the tertiary education
sector. The initiative aims to identify actions to promote education further as a major
business sector for the ACT. The Taskforce’s report will be released soon.
c) Climate change mitigation and adaptation
The Spatial Plan Evaluation Project currently underway is reviewing measures to
mitigate and adapt to the climate change impacts on human settlements reflected in
Weathering the Change - Action Plan 1.
Specific research has been undertaken to understand the need for any amendment of
strategic spatial planning documents. The key findings are to address the locally
identified risks – increased extreme heat, bushfire and storm flooding, decreased
water supply, with spatial solutions at all scales throughout the metropolitan area, with
the different urban form types.
The project is also exploring the issue of social disadvantage and consequent higher
vulnerability and reduced capacity to respond and adapt to climate change. Cross
agency information sharing has been key to this work and understanding the impact of
social disadvantage and possible solutions.
The Climate Change and Greenhouse Gas Reduction Act 2010 (the Act) was recently
passed in the ACT Legislative Assembly. The Act establishes a non-binding
greenhouse gas (GHG) emission reduction target for the ACT of zero net emissions
by 2060, with non-binding interim targets of 40 per cent less than 1990 emissions at
2020; and 80 per cent less than 1990 emissions at 2050.
Weathering the Change — Action Plan 2, will be released in 2011 and will set out
strategies and actions in detail to reduce greenhouse gas emissions, against
efficiency and value for money criteria.
Climate change vulnerability is a significant risk which the ACT Government is working
to manage. Adaptation and risk mitigation approaches to climate change have
highlighted the impact of our current infrastructure decisions on future generations. In
particular, this relates to locking in higher carbon infrastructure.
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Climate change also has significant potential to disrupt or damage existing or future
infrastructure, which means we need to assess this risk and incorporate into asset
maintenance or design processes.
The ACT Government acknowledges that many nationally-significant policy issues
such as climate change require innovative solutions that respond to local realities
while drawing on best-practice nationally and internationally.
Case Study Nine: ACT Sustainable Future Program
The Sustainable Future Program is part of the ACT Government’s strategic approach to
making Canberra more sustainable and building resilience to climate change.
As part of ACTPLA’s Sustainable Future Program, the urban form analysis project measured
and compared the social and environmental performance of seven case study areas; four
Canberra suburbs - Reid, Kingston, Gungahlin and Weston - and three overseas residential
developments that are showcases for sustainability - Kronsberg in Hannover and Vauban in
Freiburg in Germany, and Dockside Green in Victoria, Canada.
Figure 4.1.1 Summary of Results from ACT Urban Form Analysis Project
Source: ACT Government 2010
The suburbs of Reid, Kingston, Gungahlin and Weston were chosen because they have
different and representative types of Canberra’s suburban urban form.
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Sustainability performance was measured in four ways:

land use – compact layout and efficient land use;

resource use – efficient energy and water use in private households;

diversity – housing choice and socio-demographic mix; and

connectivity – ease of movement, amenity and proximity of local services.
The key findings and conclusions from the urban form analysis were:

There is no such thing as a standard Canberra suburb.

None of the four Canberra study areas performs outstandingly across all the
performance indicators.

Canberra’s suburban land-use patterns are less efficient than they could be,
particularly in the quantity of land allocated to single detached residential buildings or
low density housing and the underutilised public lands that are roadways.

Road verges could be safe, convenient and interactive corridors of green open space
that improve urban ecological functions and link to conserved natural resources in
open spaces.

Stormwater management and rainwater retention infrastructure should be publicly
visible and applied to all layers of all developments (block, street, section and estate
scales).

Rapid public transport systems significantly reduce car dependency, particularly
where the urban design provides a high quality walkable public realm and essential
services are in the local area.

District scale co-generation (power) plants and low-energy buildings that are built-in to
estates can make a significant difference to CO2 emissions and operational costs
(affordability).

A mix of types, tenures and sizes of buildings at the section scale can achieve a
balanced and diverse social mix.
The findings and full documentation of the Sustainable Future Program are publically available.
A summary of the Urban Form Analysis project and outcomes is at Appendix A.
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d) Efficient development and use of existing and new infrastructure and other
public assets
The ACT Government’s Strategic Asset Management Framework guides the
acquisition, use and disposal of infrastructure and public assets, to enable agencies to
meet their service delivery objectives efficiently and effectively.
The Framework requires that agencies develop a Strategic Asset Management Plan
(SAMP), which should be reviewed annually. These Plans outline:

agency objectives and services;

the existing asset base;

the asset panning strategy including links to service delivery, projected
requirements for changes in demand, projected requirements for
enhancement of services or assets, gap analysis, future strategies and nonasset solutions;

strategies to sustain and maintain assets;

asset acquisition options;

asset disposals; and

funding implications.
SAMPs must be submitted to Treasury before 30 September each year. These plans
guide agency service and infrastructure planning, and inform Government decisions
through the annual budget process.
The Territory’s procurement system is also underpinned by the concept of ‘value for
money’ which aims to ensure efficient delivery of infrastructure projects.
e) Connectivity of people to jobs and businesses to markets
The development of Canberra has been based on the accommodation of growth by
the development of new “towns” each with a town centre providing substantial and
diverse community facilities, employment, retail, and personal services.
The centre in each of the new towns is complemented by group centres serving a
group of suburbs and local centres which are walkable within neighbourhoods. This
hierarchy of centres provides work opportunities and services close to homes and
function as activity ‘hubs’, supporting the provision of public transport.
Difficulty in influencing the location of Commonwealth office employment has led to a
reappraisal of this previous approach, now being complemented by a “people to the
jobs” strategy.
Some 55 per cent of jobs in Canberra are found in North and South Canberra while
these areas have 18 per cent of Canberra’s resident workforce.
The Spatial Plan is based on urban densification within 7.5km of Civic with the
objective of increasing housing options in these areas and consequently the share of
public transport, cycling and walking on the journey to work.
The ACT Government also invests significant resources and efforts to encourage and
support private sector development at the small and micro firm level and potential
firms in high growth trade sectors.
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f) Development of major urban corridors
Canberra’s post WWII development has been a corridor in the shape of a “Y” (the
Y-Plan), a polycentric city of new towns around the city centre (Civic) and the original
inner north and south urban areas. These have been constructed progressively since
the 1960s in the form of the areas: Woden-Weston Creek; Belconnen; Tuggeranong;
and the current development front, Gungahlin. Each has a town centre and is
interlinked by physical and social infrastructure with the other towns.
The Spatial Plan departed from the linear structure of the Y-Plan in key areas by
seeking to provide a more sustainable and compact city form. Whilst the current
dispersed land use pattern of Canberra has provided good residential and
environmental amenity, it has come at a significant cost through continued
considerable investment in building and maintaining an extensive public infrastructure,
especially roads.
The Spatial Plan identifies areas for new urban development within a 7.5 and 15
kilometre radius of Central Canberra. This approach aims to maximise provision and
use of infrastructure and services and to provide for a range of housing choices for the
community as it progresses through the housing life cycle. It also identifies three
employment corridors and the need for greater east-west transport connections.
Construction is underway in Molonglo, the next major greenfields area in the ACT.
Molonglo was not identified for development as part of the Y-Plan. However, its
identification as the next settlement area was influenced by its proximity to the existing
metropolitan area and efficiency of infrastructure provision. Additional potential
benefits of the Molonglo development include facilitating a higher modal shift to
sustainable transport options including cycle short trips to access the work, retail and
recreational opportunities in Canberra City, Woden and Belconnen.
The ACT Government has also started long-term planning for the Eastern Broadacre
area along the ACT’s eastern border. The Canberra Spatial Plan identifies the area as
a potential future employment corridor, and the area will receive stronger emphasis in
the next version of the revised plan under development.
Over recent years, the Canberra Airport precinct within the area has rapidly grown as
an employment centre, effectively developing into a new town centre. The Eastern
Broadacre area is also important for its land transport routes, containing the Monaro
Highway, the future Majura Parkway with its links to Sydney via the Federal Highway
and the Sydney-Canberra rail link.
g) Social inclusion
Social inclusion has been an important driver in across government social policy since
the release of the Social Plan in 2004. Equity, opportunity and a respect for human
rights5 are core government themes and inform planning and operation processes
across functions.
The ACT addresses this nationally significant issue by incorporating this concept in its
key strategic planning documents such as the Canberra Plan, Spatial Plan and Social
Plan. The effectiveness of this integrated and strategic approach as a facilitator of
social inclusion is assessed through central agency oversight and coordination. This
includes across government reporting on societal progress indicators.
5
The ACT introduced its Human Rights Act in 2004.
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At the operational level, the effect of this strategic approach is evident in strategies
such as the Affordable Housing Action Plan discussed in the Housing Affordability
section of this Chapter.
Strategic Plans
Inclusion is part of the vision outlined in the Canberra Plan. It is reflected in one of the
Plan’s themes - a fair and safe community. It is also embedded in Measuring Our
Progress6, the ACT’s online report card against 28 outcome indicators (including the
Gini Co-efficient).
Inclusion is also built into the Spatial Plan, which seeks to ensure that by 2032
Canberra will be a more inclusive city that values the diversity of its people. One of
the key goals of this plan is to create and maintain a healthy city, which would be
achieved through the following objectives:

providing opportunities for a diverse range of housing for the full range of
household types and lifestyle preferences;

facilitating the equitable distribution of services and facilities, including
education, health care, arts and recreational facilities;

improving safety and perceptions of safety within the community; and

facilitating an environment that provides shared access to public spaces and
promotes healthy activities.
Community Inclusion Policy Agenda
The ACT Government uses the term community inclusion to reflect its commitment to
fostering social cohesion through policies and initiatives that address disadvantage by
facilitating participation in the community.
Notwithstanding strong economic and educational attainment among Canberrans,
including the highest average incomes in Australia, from 2004 to 2009 the ACT
Government has invested in developing a more inclusive city and established a
Community Inclusion Board.
Since mid-2009, the community inclusion policy agenda has been led by the Chief
Minister’s Department in partnership with agencies and the non-government sector.
The primary elements of the current community inclusion policy agenda are:

targeting priority areas for concerted effort across government;

listening to community views about building a cohesive community and
reducing disadvantage;

research partnerships to continue to build the evidence base to support good
decision making; and

a Community Inclusion Sub-Committee of Cabinet to review progress.
The first three priority areas for effort across government and the community are long
term unemployment, homelessness and addressing the needs of vulnerable families.
Additional areas will be added to this action plan over time, for example, integrated
across agency responses for offenders and their families.
6
www.measuringourprogress.act.gov.au
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Community inclusion will be the guiding theme of the updated Canberra Social Plan to
be released in early 2011. The updated Canberra Social Plan 2011 is premised on a
commitment to an inclusive community and the themes of connection, belonging and
collaboration.
The Government is also conscious of the need to ensure that hard to reach sections of
the community are engaged. This is part of the Government’s revised community
engagement protocol and was also an aspect of the recent Canberra 2030: Time to
Talk7 initiative. The final report on the outcome of this consultative process is due for
release in January 2011.
Case Study Ten: Improving Connections in Disadvantaged Areas to
Employment Opportunities
The Home to Work pilot project is one example of work underway in the ACT to
improve connections for people living in disadvantaged areas. In particular, it has
been designed to improve the opportunities of public housing tenants living in the
inner-north of Canberra.
The project is based on two earlier ACT Government research projects that showed:

long term unemployment is geographically concentrated in small pockets of
Canberra that also have multi-unit public housing; and

that Public Housing tenants describe the “service run-around” as a barrier to
finding work.
Home to Work was funded through the Commonwealth Government Innovation Fund,
the ACT Chief Minister’s Department and Department of Disability, Housing and
Community Services. The Commonwealth has funded Anglicare Canberra and
Goulburn as the Project Manager of this initiative.
The University of Canberra will independently evaluate the project to assess the
experiences and outcomes for tenants, and the challenges and opportunities for
working in innovative and collaborative ways. The evaluation will further inform
‘joined-up’ policy development and service delivery to better connect people who are
disengaged from the labour market with the community, education, training and
employment opportunities.
7
Further information on this initiative can be found at: www.Canberra2030.org.au
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The Home to Work pilot also complements the significant reforms underway in the social
housing and homelessness sectors under the National Affordable Housing Agreement.
Other Government Strategies
Social inclusion is embedded in a range of ACT Government strategies and initiatives.
Progress on the social inclusion agenda and wider across government initiatives is
reported in the 2009 Social Plan Biennial Report and the 2010 Canberra Plan Annual
Report.
Case Study Eleven: Identifying Areas of Disadvantage
There has been growing research and policy interest in locational and place-based
responses to disadvantage. As a whole, the ACT is a relatively affluent community in
which disadvantage and social exclusion have been geographically dispersed.
The Chief Minister’s Department has been analysing Australian Bureau of Statistics
(ABS) data to better understand the locational dimensions of disadvantage in Canberra.
Socio-Economic Indexes for Area (or SEIFA) are generated from ABS Census data and
widely used by governments and researchers to analyse relative advantage and
disadvantage across areas. Analysis of SEIFA data at the postcode or suburb level can
mask variations in the ACT, where there is a tendency for highly disadvantaged
households to be in close proximity to highly advantaged households.
To better understand locational disadvantage within suburbs, locally and nationally the
Chief Minister’s Department has developed a proposal for the ABS Annual Statistical
Consultancy Fund to analyse SEIFA at the lowest level available such as at the census
collection district. The proposal is currently being developed into a project plan by the
ABS with a project expected to commence in 2011.
This work builds, in part, on earlier research commissioned by the ACT Government
and published in 2008 as Long Term Unemployment in the ACT.
The project outcome will be used to inform broader social analysis and demographic
work.
Another area for future work is the greater use of more detailed local area social and
economic data in conjunction with ACTmapi, a web-based tool for viewing maps and
geographic information about the ACT.
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h) Health, liveability, and community wellbeing
The ACT’s strategic planning system addresses this significant policy issue through its
strategic planning and the related policy documents that detail various aspects of
liveability, affordability, environmental responsibility, economic vitality, and identity.
These policies are reflected through the following themes in the Canberra Plan:

Quality Health Outcomes;

a Fair and Safe Community;

a Vibrant City and Quality Neighbourhoods; and

a Sustainable Future.
These themes are reported on in annual reports against the Canberra Plan and
through relevant societal outcome indicators on the Measuring Our Progress website.
The latest report against the Canberra Plan sets out achievements in health planning.
These achievements are informed by the Capital Asset Development Plan which
seeks to target major investments in health infrastructure and service delivery through
long term population health planning.
This is a structured and comprehensive response to the pressures of an ageing
population, changing technology, new models of care, and provider and consumer
expectations. The impact of demand for health services in the growing regional
population is also an issue. The Capital Asset Development Plan covers infrastructure
for all public health services including community health and community-based
post-hospitalisation support.
The ACT Health strategic framework includes a range of health policies and initiatives
including wider preventative health strategies and targeted responses to such issues
as GP shortages. Along with other jurisdictions, the ACT is also participating in COAG
health reforms.
Policy issues around liveability and community wellbeing are embedded in the goals
and objectives of the Spatial Plan. ‘City Design for Liveability and Wellbeing’ was also
one of the areas explored in Canberra 2030: Time to Talk as part of the process of
updating this plan.
A discussion paper on this issue encourages community debate on questions of
amenity of public spaces, housing choice and diversity, transport, access to services
and making sure our services meet the needs of the community, particularly the
vulnerable.
The engagement also addressed issues around urban sprawl and alternatives such as
urban infill and related community impacts. A report on the outcomes of the Canberra
2030 consultation will be released in early 2011.
Other relevant initiatives across government relate to sustainable transport options,
housing affordability, public housing initiatives, investment in community facilities on
former school sites, local centre improvements and upgrades and public art.
Comprehensive detailed planning for implementation of strategic policies occurs at
various scales to deliver neighbourhoods that have high amenity and safety for people
that balance environmental impacts and biodiversity conservation, and manage risks.
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The ACT undertakes a comprehensive planning process to support land development
that starts with detailed investigations and site analyses. This is followed by district
and neighbourhood outline planning, Structure Plans, which in turn are further
developed into detailed planning and design frameworks, Concept Plans and/or
Precinct codes, which facilitate the design and development of urban estates.
i) Housing affordability
The ACT Government has adopted the widely used definition of affordable housing as
‘housing that is safe, appropriate and accessible and where housing services are
purchased for 30 per cent or less of a household’s gross income’.
Given that affordability and housing stress are matters of great concern for low-income
households, the ACT Government applies a 30 per cent ratio to the bottom 40 per
cent of income earners. In the case of the ACT this would be up to a household
income of around $58,000 a year.
In analysing and calculating housing affordability, the ACT Government uses data
from:





the Australian Bureau of Statistics (ABS);
the ACT Planning and Land Authority (ACTPLA);
the Real Estate Institute of Australia (REIA);
the Registrar-General’s Office; and
ACT Treasury.
A key measure used in all the analysis is the distribution of incomes across all families
in the ACT. This is used as a guide to set thresholds for the various entry points into
housing through either the public and community sector or through the private market.
The Chief Minister announced the establishment of the Affordable Housing Steering
Group on 15 August 2006 “to advise the Government on initiatives to increase the
supply of affordable housing in the ACT”.
The Steering Group was chaired by the Chief Minister’s Department, with participation
from the ACT Department of Treasury, and the Department of Disability, Housing and
Community Services. The Steering Group made recommendations to Government on
initiatives to increase the supply of affordable housing in the ACT and identified and
assessed the factors that promote housing affordability which can be influenced by the
ACT Government.
In developing its recommendations, the Steering Group examined the effectiveness of
initiatives to address housing affordability currently being undertaken in other
jurisdictions, and their appropriateness in the ACT context. It also liaised with relevant
organisations and agencies in other jurisdictions examining housing affordability,
including but not limited to Federal and State Housing and Planning Ministers, industry
groups and community organisations.
Since the release of the findings, ongoing policy development has been undertaken by
the Department of Land and Property Services to ensure the plan’s objectives remain
relevant and effective.
The ACT Government introduced its Affordable Housing Action Plan in 2007 and
signalled that this matter will be a priority for the Government over the coming years.
Containing 63 objectives, the plan seeks to address housing affordability through
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increasing the supply of residential land available in the market and a range of
targeted measures.
The targeted measures cover a wide spectrum of housing and planning related issues
including initiatives aimed at home ownership, affordable rental properties, community
and public housing, and planning and legislative reform.
In August of 2009, the Government released Phase II of the Affordable Housing Action
Plan to build on the achievements from Phase I with a further 21 initiatives to meet the
housing needs of older Canberrans and the homeless.
The latest progress against the ACT Government’s Affordable Housing Action Plan is
as follows:

51 objectives have been fully implemented with many being monitored and
refined on an ongoing basis;

11 objectives have been partially implemented; and

22 objectives are not yet implemented.
j) Matters of national environmental significance
Increasingly, the development of new urban areas is requiring approvals under the
Commonwealth Environmental Protection and Biodiversity and Conservation Act. This
has added a further layer of process and led to delays and in some cases prevented
the release of land.
The ACT Government acknowledges the importance of conserving our national and
local biodiversity and is working to ensure that matters of National Environmental
Significance are assessed and identified at the earliest possible stage in the planning
process. This could be at the sub-metropolitan, district or suburb level.
Subsequently, consultation is undertaken with the relevant Commonwealth agency to
scope the range of issues and determine how the best obtain the necessary
approvals.
Case Study Twelve: Bilateral Agreement between the ACT and Commonwealth
The ACT Government has signed a bilateral agreement with the Commonwealth Government in
respect to the Environment Protection and Biodiversity Conservation Act 1999. The agreement
aims to minimise duplication of environmental assessment processes, strengthen
intergovernmental co-operation, and promote a partnership approach to environmental protection
and biodiversity conservation.
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In particular, the agreement provides for the accreditation of the ACT's Environmental Impact
Assessment processes to ensure an integrated and coordinated approach to identifying
conditions of approval from both the Commonwealth (under the EPBC Act) and the ACT (under
the Nature Conservation Act).
Attribute 4.2
How does the capital city strategic planning system provide opportunities for review of
nationally-significant policy issues? What are the mechanisms/processes to adapt the
relevant strategies, actions, initiatives and/or mechanisms in light of this review?
Response 4.2
The ACT Government regularly reviews its strategic planning processes and policy
settings to ensure they reflect changing circumstances. These processes are
discussed in detail in Chapters 1 and 9 respectively.
Having regard to the need for flexibility and responsiveness to significant shifts in the
national context, the ACT Government has a range of adaptive processes. Where
significant recommendations or agreements are reached through COAG, for example,
the Government seeks to identify, and where necessary, implement modifications to
policy settings to accommodate both local and national objectives.
From a procedural perspective, the response is tailored to the situation and breadth of
the change required. Generally, agencies will coordinate matters of inter-jurisdictional
significance through central agencies and seek agreement from Cabinet in response
to emerging nationally significant policy issues.
The new strategic framework, however, has provided strong policy consistency with
these emerging national reform agendas. For example, the Social Plan provided a
strong base to initiatives in areas such as education, early childhood development,
and integrated service delivery through child and family centres.
Attribute 4.3
Does the capital city strategic planning system include performance measures or key
performance indicators to monitor the effectiveness of strategies, actions, initiatives
and/or mechanisms to address nationally-significant policy issues?
Please attach relevant documentation.
Response 4.3
The ACT Government has a well developed system of performance indicators, which
cover both locally and nationally significant policy issues (such as climate change and
social inclusion). See section 9.4 for further information.
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Attribute 4.4
How does the capital city strategic planning system manage the policy trade-offs
between the identified nationally-significant policy issues?
Response 4.4
The ACT Government has a well developed system for managing trade-offs, both
within and between policies, including nationally significant policy issues.
As part of its focus on sustainability, the ACT Government requires that all policies are
examined on a triple-bottom line basis, to ensure a sound understanding of the tradeoffs between economic, social and environmental outcomes. The ACT Government is
developing a triple-bottom line assessment tool, to strengthen the rigour of this
assessment.
The Government considers the majority of proposed policies and initiatives at the
same time, though the annual budget process. This allows the Government to
consider the trade-offs between possible policies, and allocate funds, given budget
constraints and Government priorities, to the most effective set of policies and
programs.
A major focus of the just completed community consultation program, Canberra 2030:
Time to Talk, was the identification of trade-offs between urban development policies.
This understanding of community preferences will help inform Government policy
development.
See section 9.10 for further information.
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Chapter 5
Networks
Criterion Five: Capital City
Capital city strategic planning systems should consider and strengthen
the networks between capital cities and major regional centres, and
other important domestic and international connections.
5.1 Context
The Australian Capital Territory sits at the heart of a dynamic region with a population
approaching 700,000 people. While growth in the ACT has been keeping pace with
the national average for some time now, the areas surrounding Canberra are some of
the fastest growing in NSW.
Regional growth is an important driver of infrastructure and service demand in the
ACT and this is reflected across the ACT Government’s strategic planning hierarchy.
Over 20,000 people living in the surrounding region travel to work in the ACT each
day, and every day the ACT provides health, education, community and justice
services to a large number of NSW residents.
In recognition of this growing demand, the ACT is actively engaged in strategic
planning across the region through a variety of mechanisms and at a number of levels.
This includes regular meetings with leaders and officials from the surrounding shires
as well as discussions with representatives from the NSW Department of Premier and
Cabinet and the NSW Department of Planning. The ACT and NSW Governments also
have a Regional Management Framework in place to guide cross-border engagement
and service delivery.
Connectivity within and across the region is also a key consideration that stretches
beyond jurisdictional boundaries. Transport planning is a major focus for the ACT and
region and continues to form the basis of the ACT Government’s submissions to
Infrastructure Australia. Within this context, Canberra International Airport also plays a
key role, both as a major regional gateway and as an important, and growing, element
of the regional economy.
5.1.1
Links with other criteria
5.1.1.1 Prioritisation and provision for infrastructure (criteria two and three)
The ACT Government recognises that the strong linkages between the ACT and the
surrounding region makes regional growth a key driver of future infrastructure demand
in the Territory. The pace of development in the Capital Region also necessitates a
regional approach to infrastructure planning and delivery. This is being facilitated
through a variety of intergovernmental agreements and high level forums.
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5.1.1.2 Population growth (criterion four)
Work is currently underway within the ACT Chief Minister’s Department to refine the
concept of a regional demography for the ACT. This will include preparation of
detailed regional demographic projections as well as further research to better define
the ACT’s regional service population.
5.2
Attributes of consistency
Criterion Five.
Capital city networks – self-assessment
Capital city strategic planning systems should consider and strengthen the networks
between capital cities and major regional centres
Attribute 5.1
What are the major physical, economic and communication networks between the
capital city and major regional centres?
What methods and/or analysis was undertaken to determine these links?
Have any weaknesses, gaps and/or opportunities for strengthening been identified?
How were these determined?
How do these connections align with regional growth and development strategies?
Please provide details and supporting evidence.
Response 5.1
The ACT has a population of almost 360,000, but it is also the regional centre for a
much larger population, providing employment, retail trade, and delivering a range of
services. Over 20,000 people living in the surrounding region travel to work in the
ACT each day.
Every day the ACT provides health, education, community and justice services to a
large number of NSW residents. For example, 25 per cent of ACT public in-patient
hospital services are provided to NSW residents.
The strong link between the ACT and our region makes regional demography an
important driver of future infrastructure and service demand in the ACT. The
south-eastern region of NSW, which houses the region surrounding the ACT, is
projected to grow, and to age, at a faster rate than the ACT.
The current population of the region is approximately 218,000. This is projected to
grow by 28,000 over the next 10 years or by 12.8 per cent, and by 55,000 over the
next 20 years (by 25.2 per cent). Much of this growth will occur in the areas closest to
the ACT with the fast-growing areas being Queanbeyan, Palerang, and the Yass
Valley.
The Access Economics 2007 study, ACT and Region Demographics and Trends,
notes that Queanbeyan’s population has grown three times as quickly as Canberra’s
in the previous decade and that the trends here suggest that population demands
from the broader region can have significant effects, notably through increased
health demand from the older population in the region.
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Figure 5.2.1 Map of the ACT and Region
The 2008 study, The ACT and Its Region: Economic Relationships and Key
Drivers of Economic Growth, also by Access Economics, further found that:
... household incomes in the Australian Capital Region (ACR) are slightly more
than half of those in the ACT, the unemployment rate is significantly higher
while participation rates are somewhat lower. Importantly, the ACR
demographic structure and projections imply that ageing is somewhat more of
an issue in the ACR than is the case for the ACT. This suggests that the ACR
service population (those in the ACR accessing ACT services) will increase in
the future especially for public hospital separations.
Table 5.2.1 The ACT and Surrounding Region – Population Projections
2011
2016
2021
2026
2031
356,300
377,400
398,500
418,900
438,000
Palerang
14,300
15,800
17,300
18,800
20,300
Queanbeyan
42,400
46,900
51,600
56,300
60,900
Yass Valley
15,000
16,200
17,500
18,800
20,000
ACT
Surrounding NSW
The importance of the region surrounding the ACT is recognised in the Canberra Plan,
the Spatial Plan, Capital Development (the Economic Plan) and the Infrastructure
Plan. The ACT Government has also undertaken a number of studies examining the
impact of the region on the local economy and the Chief Minister’s Department is
currently developing its regional demography capacity to ensure that ACT planning
takes better account of these regional impacts.
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Attribute 5.2
What actions, initiatives or mechanisms are in place to strengthen the networks
outlined in 5.1? Please provide details and supporting evidence.
Response 5.2
To address the growing pressures outlined above, the ACT is actively engaged in
strategic planning in the region through a variety of mechanisms and at a number of
levels.
Regional Management Framework
On 30 January 2004, the then NSW Premier and the ACT Chief Minister agreed to
develop a new framework for strategic regional management, to be used to resolve
cross border matters and plan for better ways to provide Government services.
The focus of the agreement is to facilitate both State and Territory Governments
working together on cross border issues.
Case Study Thirteen: The Regional Management Framework
The Regional Management Framework Agreement was signed by the NSW Premier and
ACT Chief Minister in 2006. It outlines the history, principles, agreed structure, functions
and outcomes for the Regional Management Framework (RMF) and how it will be
implemented.
The Agreement is based on the following principles of understanding for the development of
work between the ACT and NSW to:

foster a closer working environment for the NSW and ACT Governments;

advance cross-border issues and improve policy development and service delivery
in both jurisdictions;

establish adequate consultation and notification mechanisms for actions that
potentially impact on the different jurisdictions;

develop a process for identifying and dealing with impediments to coordination;

establish a structure that will deal with emerging issues before any potentially
serious cross border problems emerge; and

develop and evolve a methodology for a new long-term model for strategic regional
management and cooperation.
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Regional Leaders’ Forum
The Regional Leaders’ Forum (RLF) was originally established in 1995 as the
Australian Capital Regional Leaders’ Forum. Its role was regional engagement to
promote the economic, business, environmental and community development of the
Australian Capital Region (ACR).
Membership was originally the ACT Chief Minister and Mayors of NSW Local Councils
that make up the Australian Capital Region. It was chaired by the ACT Chief Minister.
The role and composition of the RLF has changed over time. The RLF now operates
as an information sharing forum, providing an opportunity for leaders from all levels of
government, across the Australian Capital Region, to discuss and share experiences
on regional issues. The membership has been expanded and now includes:

the NSW Minister for Regional Development;

a larger number of NSW Local Councils;

federal and NSW State Members of Parliament; and

the newly created Regional Development Australia (RDA) Committees which
have coverage in the RLF local government areas.
The RLF is now co-chaired on an alternating basis by the ACT Chief Minister and the
NSW Minister for Regional Development. The ACT Chief Minister’s Department and
the Southeast Regional Coordinator, NSW Department of Premier and Cabinet share
responsibility for the secretariat.
Regional Development Australia
Regional Development Australia (RDA) ACT was established on 25 May 2009 under a
Memorandum of Understanding with the Commonwealth Government. Initially nine
members were appointed to form an interim RDA ACT Committee. Members were
drawn from the Capital Region Area Consultative Committee and Capital Region
Development Board. The purpose of the RDA ACT Committee is to:

cooperate to improve the coordination and delivery of regional development
initiatives;

deliver strategic input into national programs and help coordinate development
initiatives at the regional and local level;

work with all levels of government as a key linking organisation to empower
communities in regional development activity;

provide independent advice to the ACT and Australian governments on the
efficacy of the delivery of policies and programs; and

consult and provide advice on issues confronting regional Australia.
South-East Regional Organisation of Councils (SEROC)
The ACT Government has recently been invited to join the South-East Regional
Organisation of Councils. The ACT Government will follow up, in the first instance,
with observer-status involvement.
SEROC is a newly formed Regional Organisation of Councils. It includes 12 of the 17
member councils from the Regional Leaders’ Forum. Their first meeting was held
14 May 2010. The objectives of SEROC are to:
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
advance the interests of the region;

promote regional sustainability;

develop regional cooperation and resource sharing; and

facilitate regional planning.
Meetings between the Chief Minister and Queanbeyan Mayor
The ACT Chief Minister holds quarterly meetings with the Queanbeyan mayor and has
indicated his willingness to discuss regional issues with other local Mayors as
necessary.
Capital city strategic planning systems should consider and strengthen important domestic
and international connections
Attribute 5.3
What are the major domestic and international connections (e.g. transport, trade,
industry and labour, communication and tourism flows) in the capital city?
Please specifically outline the airport, port and freight connections.
In considering and strengthening domestic and international connections, have any
weaknesses, gaps and/or opportunities for strengthening been identified?
How does the planning system determine which networks require strengthening?
Response 5.3
As noted previously in this Submission, the Canberra International Airport is an
important element of the ACT’s economy and the Territory Government will continue
to support the planned expansion of both passenger and freight activity. These
developments complement ongoing efforts to attract new migrants and businesses to
the ACT, and also facilitate the diversification of its economy by providing the
opportunity for new economic activity.
The Airport’s current Master Plan envisages multiple and expanding roles for the
Airport. It seeks to grow the Airport into an international, domestic and regional hub,
providing for 6.7 million passengers annually. In addition, it seeks to become an
overnight freight hub within five years with associated warehousing and office support,
to be a key location for business, retail, industry, security and Defence and a back-up
for overflow and bypass traffic from Sydney Airport.
Attribute 5.4
What actions, initiatives or mechanisms are in place to strengthen the domestic and
international connections outlined in 5.3? Please provide details and supporting
evidence.
Response 5.4
The importance of Canberra Airport is referenced in the Canberra Plan, the Spatial
Plan, Capital Development (the Economic Plan) and the Infrastructure Plan. The
Government has also established a Canberra Airport Integration Committee, the role
of which is to:
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
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facilitate dialogue between all members concerning the operation and
development of the Airport and the integration of the Airport into the wider
community and the ACT planning context;

assist with the implementation of Commonwealth policy as it applies to
Canberra Airport;

facilitate the implementation of the Canberra Airport Master Plan;

facilitate the integration of Commonwealth Laws and Policy with applicable
Territory laws and policies in relation to the Airport and surrounding area; and

provide a forum where its members can openly discuss issues, policy,
disputes, opportunities and other matters in relation planning, infrastructure,
and Airports.
ACT Government agencies also sit on a number of consultative forums that are
convened by the Airport.
Attribute 5.5
How does the capital city strategic planning system place the city in a broader national
context—and affect the city’s place in that context—through the key connections in
this criterion?
Response 5.5
Various strategic planning documents recognise Canberra’s dual role as the nation’s
capital and as a regional centre for employment and other services. Businesses in the
ACT also have a strong national and international flavour. The importance of tertiary
education and research provides a strong boost to Canberra as a destination for
international students, and there is a strong interest in developing education further as
a business sector. Many of the ACT’s private sector businesses operate in national
and international markets.
These documents focus on Canberra’s national and regional roles more than strategic
connections with other cities in Australia and there is room for improvement in
achieving the Canberra–Sydney and Canberra–NSW regional linkages through a
review of the Regional Management Framework with the New South Wales
Government.
Road travel connections within the region are well served, however the upgrading of
the Canberra Airport to take international passengers and freight is potentially affected
by Queanbeyan City and NSW State Government decisions on residential expansion.
The airport’s potential for international capability is the most significant opportunity for
enhancing the growth of the ACT and region, with potential for diversification of the
economic base of Canberra, particularly in the short term to grow the nascent potential
as:

a transport and logistics hub;

the education capital in South-East Asia; and,

a viable location for scientific research and head quarters for businesses and
institutions.
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In addition, increased investment in rapid and linked-up transportation systems would
increase internal and external tourism with consequent benefits for employment and
the economy of the city and the South Eastern NSW region.
Attribute 5.6
Are these networks and connections being used to manage the nationally significant
policy issues in criterion four (particularly 4a—population growth and demographic
change)? If so, please provide details.
Response 5.6
These networks and connections are being used to manage nationally significant
policy issues outlined in Chapter 4. The Government is currently reviewing our
broader regional framework to support longer term strategic direction setting and
planning. A regional demography project is also being developed to more accurately
define the geographic and population dimensions of our region and improve service
data for cost recovery.
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Chapter 6 Criterion Six: Planning for
Future Growth
Capital city strategic planning systems should provide for planned,
sequenced and evidence-based land release and an appropriate balance of
infill and greenfields development.
6.1
Context
The ACT Government recognises the importance of a strategic approach to land
release and striking an appropriate balance of infill and greenfields development.
The dual planning system in the ACT adds a unique strategic and spatial planning
dimension to land release. Similarly, the benefits of inheriting the urban form and
design of Canberra present both opportunities and challenges in meeting the needs of
the growing city in a sustainable manner. The ACT Government seeks to balance all
these considerations to provide residents with options to suit changing lifestyles while
also managing community expectations.
The ACT Government acknowledges that strategic planning requires a dynamic and
integrated approach. In the area of housing for example, it introduced and continues
to implement a comprehensive Affordable Housing Action Plan with more than 60
initiatives targeted across the spectrum of tenure options. Similarly, the Government
acknowledges the need for comprehensive land release strategies and supporting
work on infrastructure which are all underway.
Significant effort is being directed at coordinating efforts. Each year the ACT
Government prepares Indicative Land Release Programs (the Programs) setting out
the intended program of residential, commercial, industrial and community land
releases. The Programs are aligned with the four year budget cycle.
The Programs are indicative and subject to change as market conditions alter or as
Government priorities are adjusted.
The Department of Land and Property Services (LAPS) is responsible for preparing
the Programs in conjunction with key Territory agencies such as Treasury, the Chief
Minister’s Department (CMD), the ACT Planning and Land Authority (ACTPLA) and
the Land Development Agency (LDA). The Programs are published each year with the
budget papers.
The ACT Government also acknowledges the limits of its strategic planning
jurisdiction. It has sought to work cooperatively with the Commonwealth on matters of
national significance. However, it is noted that in some instances dealing with matters
pertaining to Commonwealth legislation have resulted in significant delays or
reductions in the amount of land available for release.
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6.1.1
Links with other criteria
6.1.1.1 Integration (criterion one)
The ACT strategic planning system provides a framework to integrate planning for
future land release with evidence-based analysis and technical spatial, service and
infrastructure planning. This is reflected in the processes required to prepare future
urban area for land release discussed in Chapter 2.
6.1.1.2 Hierarchy of plans (criterion two)
The land release process is enabled by the ACT Government strategic planning
framework which allows for the identification and development of both infill and
Greenfield areas in a considered, coordinated and consultative manner.
6.1.1.3 Reservation of appropriate lands to support future expansion
(attribute 3e)
The ACT Government strategic planning system embeds spatial planning principles to
facilitate sustainable future development through the Spatial Plan.
6.1.1.4 Nationally significant policy issues (criterion four)
Nationally significant policy issues have a significant impact on land release and urban
densification in the ACT. These matters relate to the role of the National Capital
Authority and Environmental Protection and Biodiversity Conservation Act.
The ACT strategic planning system reflects the Government’s approach to seeking to
work cooperatively with the Commonwealth to the extent possible.
6.2
Attributes of consistency
Criterion Six.
Planning for growth – self-assessment
Capital city strategic planning systems should provide for planned, sequenced and
evidence-based land release and an appropriate balance of infill and greenfields
development.
Attribute 6.1
Please outline and describe the methods used to determine future land requirements.
This may include but not be limited to analysis and modelling of secondary or primary
sources of data and scenario planning.
Please provide supporting evidence.
Response 6.1
The ACT has an evidence-based approach to managing the supply of land. A range
of information sources, such as market research and analysis, demographic and other
statistical trends, and community and industry advice, are brought together and
assimilated to provide detail on the amount of land that is in the supply pipeline and
how that relates to the projected demand.
The information, where possible, is averaged to take out any peaks and troughs.
Adjustments to the program are informed by this information then matched to current
release programs by geographic area. If required, action is then taken to bring
forward or put back the timing of land releases to accord with market conditions.
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An important input to appreciating future demand is advice received during various
consultation processes. A range of sources are available from the general community
and industry groups to that provided by a Residential Advisory Group which has been
convened specifically for this purpose.
Following completion of demand analysis, work is undertaken to review the forward
land supply pipeline. This results in a land release program that, in turn, is used to
prepare a planning and infrastructure work program. This further informs the funding
process for recurrent and capital works items.
As the detailed estate planning proceeds, the expected yields are further refined.
Design and environmental considerations are key impacts for these processes.
The starting point for the estimation of future land requirements is the ACT Population
Projections. The current ACT Projections cover the period 2007 to 2056 while the
projections for suburbs and districts are for 2007 to 2019.
From the projections estimates are derived of the increase in households over the
projection period. Based on trends in dwelling approvals, dwelling commencements
and Australia Bureau of Statistics Household and Family Projections estimates are
made on the likely share of land demand for single and multi–unit dwellings and how
much of the demand is likely to occur in greenfields and in established areas.
The estimation of the supply of greenfields land is based on the land approved in
structure plans refined by approved concept and estate development plans.
Within this longer term context four year land release programs are prepared by the
Department of Land and Property Services. The programs cover residential,
commercial industrial and community land. The commercial programs are based on
assessment of the supply and demand for offices (derived from PCA Office market
Reports) and the supply and demand for office space based on the Commercial
Centres and Industrial Areas Floor space inventory (prepared by ACTPLA) and The
ACT Retail Model. The industrial releases are based on sales of industrial land and in
the context of and Industrial land supply paper prepared by ACTPLA.
See the Indicative Residential and Commercial Land Release Program 2010-11 to
2013-14 for the ACT Government for further information.
Attribute 6.2
Please outline and describe the methods used to determine the capacity of existing
developed areas and possible future development areas. This should include a
consideration of a range of constraints (for example, land suitability, flooding, heritage
or environmental values) and external forces on supply and demand of land.
Please provide supporting evidence.
Response 6.2
Existing Developed Areas
The Territory Plan identifies the land use policies applying to land within the ACT. In
existing areas, these land use policies are the result of planning and development
assessment undertaken over decades to allocate land uses. These assessments have
included areas subject to flooding, infrastructure, environmental and heritage
assessments.
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Since the urban consolidation policies were introduced in Canberra in 1993 as part of
the Territory Plan, regular assessments have been made of the infrastructure capacity
in areas identified for redevelopment. The areas identified for redevelopment have
predominately been areas with residential policy that are close to major transport
routes (e.g. Northbourne Avenue) and near centres.
The most recent of these is these is the City Area Infrastructure Capacity and
Catchment Study (2005) undertaken for ACTPLA by Cardno. This investigated the
impact of anticipated redevelopment in the City Area and surrounding suburbs on
existing utility infrastructure, to identify infrastructure upgrading requirements and
preliminary costs.
The study area included City, Acton, Reid, Braddon, Turner and part of Ainslie (or
about 50 per cent of North Canberra). The study found that the stormwater drainage,
gas and sewer networks (with the exception of the need to upgrade emergency wet
weather facilities and water supply infrastructure) would require only minor upgrading
to accommodate the additional redevelopment. Additional electricity capacity would be
required to accommodate the redevelopment with 50 to 80 new sub-stations, 11 high
voltage feeders and an upgrade to the Civic Zone Substation.
While the analysis needs to be extended especially to other parts of north Canberra
and to South Canberra it suggests that only minor physical infrastructure upgrading
may be required to accommodate additional demands generated by redevelopment. A
previous study found that the infrastructure costs of infill and redevelopment were
appreciably less than greenfields development. Additional work is required in relation
to the redevelopment impacts on road capacity and parking generated by
redevelopment.
To attain a general indication of the possible spare capacity in existing infrastructure,
ABS Census estimates of population and dwellings over time and school enrolment
trends have been utilised.
The amount of redevelopment occurring is monitored. An example of this monitoring is
the level of redevelopment occurring in the RZ3 and RZ4 areas along Northbourne
Avenue.
Case Study Fourteen: Building an Evidence-Base via Infrastructure Studies
Earlier infrastructure studies included:
ACTEW Engineering Division (1989) Inner Canberra Urban Consolidation – Study of Hydraulic
Services Infrastructure which found that urban consolidation would impose costs associated with
upgrading of hydraulic services but these were negligible when compared with the cost of
redressing deficiencies already existing.
The Bill Guy and Partners Pty Ltd (2001) Infrastructure Capacity study in the ACT related to the
Future Housing Options in North Canberra prepared for the then ACT Department of Urban
Services, Department of Planning and Land Management identified similar findings that
augmentation of hydraulic services would be required. Sewer and stormwater service
augmentation was already required to meet present (2001) design standards.
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The SMEC (2001) South Canberra Infrastructure Capacity Study prepared for the then
Department of Planning and Land Management indicated the level of augmentation of hydraulic
services required to accommodate increased dwellings and population.
The Bill Guy and Partners Pty Ltd (2003) Review of Infrastructure Planning for Sullivans Creek
Catchment prepared for the then ACT Departments of Urban Services and Planning and Land
Management – identified augmentation of hydraulic networks required, with the conclusions
favourable to redevelopment and development scenarios, no significant constraints were
identified.
Attribute 6.3
Please outline the method and approach to determining the appropriate balance of
brownfield, infill and greenfield development in the capital city. In providing this, please
outline how the approach relates to the nationally significant policy issues outlined in
criteria four [particularly 4.1(a) and 4.1(i)] and five.
Response 6.3
The Spatial Plan strategic directions identify a target of 50 per cent over 15 years
within 7.5km radius of Civic to increase urban intensification. Since 2004 this has not
been happening to this extent. The four year land release program balances land
availability with financial returns to government.
The future land release programs for brownfield, infill and greenfield estates is
prioritised through the analysis of housing demand, the employment distribution and
likely demographic and social changes.
Over the last 15 years, 60 per cent of new dwellings have been in greenfields areas
with multi units averaging about 45 per cent and ‘other’ dwellings 25 per cent. The
growing demand for ‘other’ dwellings reflects in part the changing demographics plus
the increased availability of higher density housing in inner Canberra, which has also
contributed to a reversal of the population decline that had been occurring since the
1970’s.
ABS projections indicate that to 2031 most growth will occur in 1 and 2 person
households. This, plus factors such as rising water and energy, transport, heating or
cooling costs, could result in additional dwelling preference towards higher density and
a greater diversity of housing types.
North and South Canberra, given their amenity reflecting their centrality and
employment opportunities, have higher average property prices than other Canberra
districts. Redevelopment policies have contributed to an increase in average land
values in these districts, but increasing the overall supply of housing has contributed
to a lower average property price than would have otherwise been the case.
The areas in North Canberra that have undergone the greatest increase in dwellings
between 1996 and 2006, Braddon and Turner, also had a reduction in the number of
single parent families and an increase in rents greater than the Canberra average over
this period. They also had lower car use than the other areas of Canberra as a result
of their proximity to Civic, the largest employment node in Canberra well served by
public transport.
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The needs of many lower income households in Canberra are addressed through the
provision of social housing, which in Canberra is close to twice the national average.
A challenge remains, however, to ensure lower income households have housing
opportunities in the more accessible parts of Canberra. The smaller size of Canberra
and the centres network partially reduces the locational disadvantage of lower income
households in the ‘fringe’ areas of Canberra.
Attribute 6.4
What processes are in place to bring about a sequenced approach to land release in
brownfield, infill and greenfield areas to meet future housing, employment and other
needs?
Response 6.4
The ACT has two major greenfield development fronts, Molonglo and Gungahlin. The
land release program includes a relatively even distribution of supply of land between
these two development fronts. The balance will vary depending on the composition of
demand. Land release in existing urban areas focuses around group, town centres
and in the CBD. These releases increase viability of these centres and assist in
concentrating residential development in close proximity to employment and transport
nodes.
Attribute 6.5
What mechanisms and monitoring programs does the capital city strategic planning
system have to:

release and re-zone land consistent with the sequenced tranches?

deal with alternative or ‘out of sequence’ applications?

deal with changes in the assumptions underlying the planned approach and
sequence?
Response 6.5
The Territory Plan has large areas zoned for residential development with Future
Urban Area overlay. The principles and policies for the development of the land are
set out in separate documents referred to as a structure plan, which are part of the
Territory Plan.
The ACT is in the unique position of being the primary landholder and therefore has
absolute control over land release and rezoning of land that ensures that there is
significant capacity in the “bank” of land it holds for residential development. This also
allows considerable flexibility to deal with changes to assumptions underlying the
planned approach and sequence.
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Attribute 6.6
How does the capital city strategic planning system plan for the change of use or
disposal of surplus government-owned land, taking into account the land use needs
identified in the objectives of the planning system?
Response 6.6
The ACT Planning and Land Authority can vary the Territory Plan by rezoning surplus
Government land should it be required to meet planning objectives. Kingston
Foreshore and East Lake are two major redevelopment sites where underutilised land
was rezoned to meet the high demand for residential housing near employment areas.
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Chapter 7 Criterion Seven: Investment
Priorities and Frameworks
Capital city strategic planning systems should clearly identify priorities for
investment and policy effort by governments, and provide an effective
framework for private sector investment and innovation.
7.1 Context
A robust priority setting process is central to the ACT Government’s strategic planning
system.
The ACT Government sets and revises its own priorities for investment and policy
effort annually. This process is guided by the Government’s long-term vision and
objectives for Canberra, and is informed by strategic service and asset planning of all
agencies.
This reflexive process ensures that priorities:

are focused on outcomes - on achieving sustainable improvements in
wellbeing for the ACT;

are supported by sound analysis and evidence; and

can be assessed against a range of competing or complementary options.
Government priorities are set early in the financial year, guide agency operational
planning and the allocation of resources through the budget process. Final priorities
are then publically expressed in the ACT Infrastructure Plan and the Budget. The
Government has committed to strengthening this process by developing and
implementing best-practice guidelines for strategic service and asset planning, and by
releasing an annual ACT Government Statement of Intent.
The ACT Government is also committed to facilitating private sector investment and
innovation. The framework supporting this commitment is outlined in the
Government’s economic plan, Capital Development.
Capital Development is founded on the ACT Government supporting an economy
conducive to private sector investment, through prudent fiscal management, high
quality service delivery, and appropriate regulation. Building on this foundation is a
range of targeted business and industry programs and partnerships which aim to
actively support business investment and innovation.
In addition, the Government works cooperatively with the private sector in planning
and managing its own capital program, and has mechanisms in place to facilitate
complex private and community sector property development projects.
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7.1.1
Links with other criteria
7.1.1.1 Integration (criterion one)
The ACT Government’s priority setting process allows agencies and the Government
to identify opportunities to coordinate and integrate Government activity, and ensures
a consistent and complementary set of priorities.
7.1.1.2 Hierarchy of plans and nationally significant infrastructure (criteria two
and three)
Government priorities are aligned with long-term plans and objectives and with the
strategic service and asset plans of agencies, and reflect nationally significant
infrastructure and policy issues.
7.2 Attributes of consistency
Criterion Seven. Investment priorities and frameworks – selfassessment
Capital city strategic planning systems should clearly identify priorities for investment
and policy effort by governments.
Attribute 7.1
What are the current priorities for investment and policy effort by governments?
Please outline how these priorities were determined (note that these should be
consistent with the content and directions established to address criteria 3, 4, 5 and
6).
Response 7.1
Current priorities for government investment and policy effort include:

increasing the supply of affordable housing;

re-engineering the health system to serve the needs of the next decade and
beyond;

developing an integrated, sustainable transport system;

meeting the challenges of climate change;

improving urban amenities;

investing in public service infrastructure; and

providing for the growth of the city and its economy.
These and other investment and policy priorities are detailed in the ACT Infrastructure
Plan, and the annual budget papers.
Priorities are determined during the annual priority setting process, and are refined
during the subsequent budget process.
Consideration of priorities is informed by strategic service and asset planning by all
agencies.
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In determining priorities, key considerations include:

alignment with the Government’s vision and longer term objectives;

emerging trends;

demographic analysis and projections;

fiscal capacity;

community feedback; and

the national policy agenda.
The ACT Government has committed to strengthening its strategic service and asset
planning framework, to ensure a robust, evidence based priority–setting process.
Attribute 7.2
What are the methods of financing for these projects?
Response 7.2
Methods of financing are determined on a whole of Government basis, rather than at
individual project level.
The Territory is currently forecast to borrow up to $450 million to finance the
Infrastructure Investment Program, the remainder of funds is being sourced from the
Territory’s Unencumbered Cash.
Consideration of alternate sources of financing and delivery is currently being
investigated for 3 major projects:

Government Office Accommodation;

Student Accommodation at Reid; and

Enhancing Data Storage Capacity.
Future projects over the $50 million threshold will also investigate options for delivery
through alternate procurement methodology as required by the national best practice
policy and guidelines for PPPs.
Attribute 7.3
What are the priorities for further investigation and/or policy work?
Please outline how these priorities were determined.
Response 7.3
Future priorities for government investment and policy effort include:

addressing the challenges of a growing and ageing population;

developing a more coordinated, cooperative approach to cross-border service
delivery, and planning for the national capital;

continuing to strengthen the government’s performance and accountability
framework; and,

building public sector capacity to deliver government priorities.
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Other future priorities are detailed in the ACT Infrastructure Plan, and the
Government’s Mid-Term Report.
Future priorities are determined as per the process outlined in Section 7.1.
Attribute 7.4
What mechanisms, processes or plans does your capital city strategic planning
system have in place to facilitate effective private sector investment and innovation?
Response 7.4
The Project Facilitation Section within the Department of Land and Property Services
(LAPS) facilitates complex private and community sector property development
projects. These strategic projects promote and increase the level of investment within
the ACT, and further enhance economic growth and overall public amenity. All direct
sales of land to the not-for-profit and for-profit sectors are managed by LAPS, as are
land transfers to ACT Government agencies.
The ACT Government delivers a funded private sector investment attraction program.
The program focuses on the key industry sectors of ICT, defence technology and
clean ‘tech’. The program comprises general marketing communications support, the
extension of trade missions to overseas investment audiences, participation in major
events such as World Expo, and leveraging business migration processes. The ACT
Government also works closely with Austrade and its National Investment Facilitation
arm.
The ACT is a knowledge based economy. It has the most educated population in
Australia, and is home to four world class tertiary institutions and national research
institutions, and has significant ICT, defence, strategic thinking and government
sectors. Education and knowledge are competitive advantages of the ACT. The ACT
Government is committed to leveraging this advantage, and facilitating investment and
innovation in the education sector, through targeted programs and partnerships.
Some of these initiatives are outlined in Capital Development and ACT Skills Future.
Attribute 7.5
Please articulate why these mechanisms, processes or plans are an effective
framework for private sector investment and innovation.
Response 7.5
Many of the strategic projects facilitated by LAPS result in the delivery of important
economic and social infrastructure required for the ongoing wellbeing of our
community and long term sustainability of our city.
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Case Study Fifteen: Promoting Private Sector Investment and Innovation
The ACT’s strategic planning system provides an effective framework for private sector
investment and innovation and is largely aligned with Commonwealth policy and program
approaches. As a small city-state, the ACT has worked closely with Australian Government
to better develop capability and resources, as well as maximise baseline efforts. Specific
examples include:

Membership on the National Investment Austrade Board;

a Memorandum of Understanding with Austrade on export and investment
facilitation support;

programs on business innovation integrate closely with major Australian
Government initiatives such as Commercialisation Australia; and

the co-funding of innovation investment programs with the local business
community and the research sector to ensure private sector relevance and
leadership.
Attribute 7.6
How does your jurisdiction determine which infrastructure initiatives should involve the
private sector?
Response 7.6
In the ACT all major government appropriated infrastructure projects are delivered by
private sector project managers, construction and engineering firms and civil works
companies – however, projects are financed through Government sources.
The Territory’s infrastructure program is generally financed through Unencumbered
Cash, which is maintained through the Territory strong balance sheet. The Budget
currently anticipates a future borrowing program for capital of up to $450 million.
In line with the National PPP Guidelines, the Territory also explores whether any
public infrastructure projects with a capital investment over $50 million could be
delivered through alternate procurement methodology including PPPs.
The Territory is exploring opportunities to enter into partnerships with the private
sector to deliver several substantial projects that are progressing into the planning and
design phase, including:

the Government Office Accommodation Building Project;

Enhancing Data Storage Capacity; and

Student Accommodation at the Reid Campus of the Canberra Institute of
Technology.
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Chapter 8 Criterion Eight: Urban Design
and Architecture
Capital city strategic planning systems should encourage world-class
urban design and architecture
8.1 Context
Canberra is recognised internationally as one of the world’s great planned cities. The
Griffin Plan established Canberra as a ‘Garden City’ with an urban amenity of the highest
order. With the emergence of climate change and peak oil as central planning issues,
however, the low-density of Canberra’s urban form has created significant challenges.
The ACT is now seeking to address these by establishing a more compact, low carbon
emission city.
Canberra has been shaped by planning authorities with differing roles. The National
Capital Authority is charged with maintaining the amenity of key features of the city
reflecting its role as national capital.
The ACT Planning and Land Authority’s mission is to plan for Canberra’s needs as a
vibrant and growing city in its own right that serves as the hub of the broader Australian
Capital Region. The ACT Government considers that in the wake of the recent review of
the National Capital Authority, there are opportunities for improving the relationship
between the Territory and the Commonwealth’s planning roles.
The ACT has set high standards for the design and functionality of its urban design and
architecture. The ACT is the first jurisdiction to introduce 6 star energy ratings for private
housing. In 2010, an ACT Government Architect was appointed to advise the
Government, inspire industry, and generate a desire for excellence in the ACT.
The Government continues to evolve its planning processes to support the development
of quality design and architecture in Canberra.
8.1.1
Links with other criteria
8.1.1.1 Nationally-significant policy issues (criterion four)
Canberra’s attractive urban form and amenity, and good road infrastructure have been
important elements in drawing new residents to the ACT, along with a strong economy,
thereby supporting a growing population.
The ACT Government is reshaping a more compact urban form to address emerging
national issues, such as efficient transport systems and the need for a reduced the
Territory carbon footprint.
8.1.1.2 Effective frameworks for investment and innovation (criterion seven)
The appointment of the ACT Government Architect was in part to inspire private sector
innovation in architectural design. The development at Eastlake of an exemplar project in
urban redevelopment also aims to foster excellence in sustainable planning and design.
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8.2
Attributes of consistency
Attribute 8.1
How does the capital city strategic planning system encourage urban design and design
excellence to be considered across all relevant decision making processes, polices and
projects?
(Examples may include: a government architect, advisory council, etc.)
Please provide details and supporting evidence.
Response 8.1
The ACT Government provides ACTmapi as a web-based tool for viewing maps and
geographic information for the Territory, including a range of planning information. It
allows the user to view, interact with and query a range of different types of information in
graphic form.
As stated earlier, the ACT’s strategic planning system has the benefit of being
hierarchical and therefore the principle of subsidiarity applies. This flows from the
matters of national significance in the National Capital Plan, through to the Canberra
Spatial Plan and then into more detailed studies for structure plans, concept plans, estate
development plans and master plans.
The ACT Planning and Land Authority exists as a statutory authority for the purpose of
making a number of decisions in relation to development. In particular where complex
projects exceed certain thresholds, a Major Projects Review Group is convened to peer
review recommendations of assessing officers, which is further reviewed by the
Authroity’s Executive Policy Committee.
When master plans are undertaken by different government agencies, they typically set
out to achieve an improved or distinct standard of design for the public domain, which
may involve lighting, landscaping, infrastructure, urban furniture, pedestrian linkages, mix
of land uses, traffic management arrangements and the like.
Some elements of these projects which are the subject of Government decisions, are
typically provided to the community for comment and will inevitably be subjected to
budget processes.
Case Study Sixteen: Encouraging Innovation and Excellence in Urban Design
The ACT Government has recently appointed an ACT Government Architect to encourage
innovation and excellence in urban design. The ACT Masters Builders and Boral Excellence in
Building Awards also support these goals by recognising outstanding projects from the ACT
region’s residential builders, commercial builders, civil contractors, architects, designers, subcontractors, suppliers and associated professionals.
The engagement of the private sector in high standards of urban design can be varied,
depending on who is involved, the nature of the project and often its location. Some
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recent examples would suggest a new level of interest in investing in design excellence
at the high end of the development spectrum.
Attribute 8.2
What mechanisms or processes does the capital city strategic planning system have in
place to encourage world-class urban design from the city level to a precinct level?
Response 8.2
Given that determining what world-class urban design is could be up for debate, the
ACT’s city planning system seeks to engage in improved design through establishing the
principles for development at an early stage in the planning process.
Much of this is undertaken through the cascade of structure plans through to estate
development plans in the case of Greenfield developments, or with master planning and
planning studies for infill or public domain projects.
These principles are not necessarily prescriptive, but take the form of place making
guides, so that at the City scale for instance, the Canberra Spatial Plan seeks to ensure a
more compact city. This is motivated by a desire to ensure that Canberra is designed in
a fashion that:

responds to a set of environmental imperatives;

achieves an improved social economy that will depend on better connectivity to
services;

facilitates the development of effective relationships to public open space and
transport; and

improves the design of buildings to provide for enhanced solar access, as an
example.
By virtue of the ACT Government controlling land supply from its initial planning through
to release and development, it has other mechanisms such as development contracts
and deeds of agreement to achieve certain design outcomes, which are then
subsequently assessed through the lease administration and development assessment
processes.
In the ACT, the National Capital Authority also has a capability in certain locations, to
require a range of design outcomes. This can be both spatial and at a development
level, most specifically through development control plans that are then administered by
ACTPLA.
Attribute 8.3
What mechanisms or processes does the capital city strategic planning system have in
place to encourage world-class urban design and architecture for appropriate locations?
Response 8.3
In some circumstances, such as the City Centre, detailed design requirements for lighting
through to urban furniture have been established to facilitate a distinctive and cohesive
finish to the public domain. This has been undertaken in conjunction with removing
prescriptive elements of the Territory Plan that restricted innovation in building design
and the use of materials and colours, best exemplified by what is now occurring in City
West and the ANU ExChange project.
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In the case of Kingston Foreshore, the LDA has prepared a master plan that has in turn
had features of its design requirements either built into the Territory Plan or applied
through contracts of sale.
A preferred approach, however, under the new structure of the Territory Plan, is to
achieve these more specific requirements for a location, by way of a Precinct Code,
informed by a master plan or equivalent exercise that has undergone engagement with
the community and industry. Some recent examples include in the established Dickson
and Kingston Group Centres.
Alternatively, at a larger scale, place-making principles can be established through
guideline documents that are available to coordinate outcomes between public and
private sector developers.
Where the private sector is the owner of land and initiating redevelopment, a similar
expectation for comprehensive planning documents that feature design outcomes is
encouraged both for the Territory Plan Variation process or development assessment, as
can be seen in the case of Woden Green and Macquarie Hostel.
8.3
Other comments
Exemplary design is not easily incorporated into planning systems, particularly at the
development assessment level, because the analysis of the design of individual
development proposals can be very subjective and does not lend itself well to
prescriptive measures. On the other hand, the trend to rule or Code based assessment
has the potential to lead to mediocrity in design as a result of encouraging an approach
based on the lowest common denominator.
This can weaken the case for higher density and infill development, particularly when
there may be limited community support for such development, further eroded in the face
of poor design outcomes.
Effective city planning systems can nonetheless facilitate good development outcomes
through providing an environment:

conducive to design excellence, through principles such as those that might be
found in an urban design protocol or within master plans for defined locations;

through leadership, particularly by public sector projects and incentives; and

rewarding best-practice within the private sector.
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Chapter 9 Criterion Nine: Governance
and Implementation
Capital city strategic planning systems should provide effective
implementation arrangements and supporting mechanisms, including:
a) clear accountabilities, timelines and appropriate performance
measures,
b) coordination between all three levels of government, with
opportunities for Commonwealth and Local Government input,
and linked, streamlined and efficient approval processes
including under the Commonwealth Environment Protection and
Biodiversity Conservation Act 1999,
c) evaluation and review cycles that support the need for balance
between flexibility and certainty, including trigger points that
identify the need for change in policy settings, and
d) appropriate consultation and engagement with external
stakeholders, experts and the wider community.
9.1 Context
The ACT Government’s strategic planning system is effective because it takes an
integrated view of the entire management cycle, not just planning, but delivery, reporting
and evaluation. This breadth supports clarity of direction, coordinated and effective
implementation, transparent governance and performance reporting, and a focus on
continuous improvement.
While the ACT Government already has a robust performance and accountability
framework, it appreciates the dynamic nature of public administration, and the need for
continuous improvement. Accordingly, the Government has recently reviewed its
performance and accountability arrangements, and committed to a program of
improvement. This includes implementation of an ACT Government Evaluation Policy,
refining the suite of government performance indicators, and developing best-practice
guidelines for strategic service planning.
The ACT Government recognises the importance of ongoing engagement with the
community. It has invested in a review of whole of government consultation and how this
could be improved. The Government also recently engaged the Canberra community in
a ‘conversation’ on the ‘Canberra we need in 2030’.
The consultation process canvassed how Canberra could respond to emerging capital
city strategic planning issues identified by COAG.
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9.1.1
Links with other criteria
9.1.1.1 Integration within and across governments (criterion one)
Accountability and implementation mechanisms encourage an integrated, acrossgovernment approach to service delivery.
9.2
Attributes of consistency
Criterion Eight. Governance and implementation –
self-assessment
Capital city strategic planning systems should provide effective implementation
arrangements and supporting mechanisms, including (a) clear accountabilities,
timelines and appropriate performance measures.
Attribute 9.1
How does the capital city strategic planning system assign responsibility for the
implementation of plans, policies, projects and/or initiatives? Does this provide a clear
basis for accountability?
Response 9.1
Mechanisms by which the ACT Government assigns responsibilities for its plans,
policies, projects and initiative, include:

Legislation ─ For example spatial planning roles and responsibilities are in place
under the Planning and Development Act 2007. In addition, Ministerial and
Departmental responsibilities are detailed in Administrative Arrangement Orders.

Cabinet Decisions ─ Cabinet agrees implementation responsibilities when it
considers its policies and plans.

The annual priority setting process ─ Government priorities are assigned to
Ministers, which then flows to Chief Executives.

Formal agreements between agencies, and contracts with external parties.

Inter-departmental Committees ─ these committees discuss and assign
operational responsibilities both within departments and across-government.
Together, these mechanisms provide a sound basis for accountability. During the recent
review of performance and accountability arrangements, the ACT Government identified
the opportunity to strengthen processes for assigning responsibility where plans and
priorities rely on co-operation across government. To address this opportunity, the
Government agreed to developing a formal framework for working across government.
This work will commence in 2011.
Attribute 9.2
What mechanisms of accountability does the capital city strategic planning system have
in place to ensure assigned responsibilities are being met?
Response 9.2
Accountability mechanisms include:

Legislative Assembly review of annual reports and the budget papers;
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
independent audit of financial statements, accountability indicators in the budget
papers, and government performance;

regular implementation reporting to Cabinet;

central agency monitoring of implementation;

public reporting, including annual reports, and progress reports against key
plans, such as the Canberra Plan; and

performance agreements, between Chief Executives and Ministers, Senior
Executives and Chief Executives, and agency officers and managers.
These mechanisms span the range of accountability, of the Assembly to the Public, the
executive to the Assembly, Chief Executives to Ministers, accountability within
departments, and across government.
As stated in its Performance and Accountability Framework, the Government expects
that suitable accountability arrangements will be applied to all government activities.
Characteristics of sound accountability arrangements include:

specific and clear objectives and responsibilities;

balanced accountability for outcomes and processes;

provide flexibility to manage and adapt to changing circumstances; and

no perverse incentives.
Attribute 9.3
Does the capital city strategic planning system designate timelines for the implementation
of plans, policies, projects and/or initiatives?
Are these timelines publicly available?
Response 9.3
Yes ─ Responsible agencies develop detailed implementation plans for ACT Government
plans, policies, projects and initiatives. These plans designate timelines.
Timelines for implementation are generally made public, within the policies and plans
themselves, in the annual budget papers, and in media announcements.
An example of this is the release of a 4-year Indicative Residential Land Release
Program each year.
Attribute 9.4
Does the capital city strategic planning system employ performance indicators/measures
to track the rate and effectiveness of implementation and report these publicly? Please
outline what these are as well as any associated reporting, review and adaptation
mechanisms for the system.
Response 9.4
Yes ─ The ACT Government employs a range of performance indicators to track the
effectiveness and efficiency of government activity. Indicators cover the spectrum of
performance from the long-term progress of Canberra, to the achievements of the ACT
Government, the contribution of each agency, and agency operational performance.
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At the highest level, the Measuring our Progress website tracks the progress of Canberra
as a society, against 28 long-term progress indicators. The website is aligned with the
Government’s seven strategic objectives stated in the Canberra Plan. The indicators
include nationally significant policy issues such as greenhouse gas emissions,
educational benchmarks and social inclusion.
ACT Government policies and plans specify performance indicators which are reported in
periodic progress reports.
Agencies are required to identify strategic and accountability indicators in the annual
budget papers. Strategic indicators relate to the outcomes agencies are working
towards. Accountability indicators focus more on operational performance – the quantity
and quality of agency outputs and services. Progress against these indicators must be
reported in annual reports. In addition, accountability indicators are audited by the ACT
Auditor General.
Strategic and accountability indicators are reviewed annually as part of the budget
process, with the assistance and guidance of ACT Treasury.
A number of opportunities to improve performance indicators across government were
identified as part of a recent review of the ACT Government’s Performance and
Accountability Framework. This included improving the integration between indicators,
alignment with external reporting requirements, and consistency across time and
between agencies.
To address these opportunities ACT Treasury is currently updating its guidelines for
developing appropriate performance indicators. In addition, the Chief Minister’s
Department is undertaking a comprehensive review of strategic indicators, to ensure the
set of indicators are balanced and efficient, are aligned with Government objectives and
are consistent.
Capital city strategic planning systems should provide effective implementation arrangements
and supporting mechanisms, including (b) coordination between all three levels of government,
with opportunities for Commonwealth and Local Government input, and linked, streamlined
and efficient approval processes including under the Commonwealth Environment Protection
and Biodiversity Conservation Act 1999.
Attribute 9.5
How does the capital city strategic planning system’s goals and objectives align with the
goals of other levels of government?
Response 9.5
a) Local Government
Not applicable as the ACT Government is responsible for both Territory and municipal
government functions.
b) Commonwealth Government
Section 11(2) of the Australian Capital Territory (Planning and Land Management) Act
states that the Commonwealth, a Commonwealth authority, the Territory or a Territory
authority shall not do any act that is inconsistent with the National Capital Plan.
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The National Capital Plan provides an overarching framework for the planning and
development of Canberra, particularly in the context of its national capital significance
and the ACT's planning framework sits beneath this without being inconsistent.
c) Cross-border issues if applicable
See Chapter 5 for further discussion in relation to the surrounding region.
Attribute 9.6
Explain the mechanisms used by the capital city strategic planning system to engage
other levels of government in the preparation and implementation of plans, policies,
projects and/or initiatives.
Response 9.6
a) Local Government
Not applicable as the ACT Government is responsible for both Territory and municipal
government functions.
b) Commonwealth Government
The Commonwealth Government, particularly the National Capital Authority, is
considered a key stakeholder in policy and project development and are consulted as a
matter of course.
In some instances, such as draft variations to the Territory Plan, the Planning and
Development Act (at section 61b(i)) explicitly requires that the National Capital Authority
be consulted in relation to the proposed variation.
c) Cross border issues if applicable
See Chapter 5 for discussion in relation to the surrounding region.
Attribute 9.7
How does the capital city strategic planning system manage the impact of the activities of
other levels of government and their responsibilities within the city?
Response 9.7
a) Local Government
Not applicable as the ACT Government is responsible for both Territory and municipal
government functions.
b) Commonwealth Government
The designation of land under the National Capital Plan clearly identifies where the
National Capital Authority has administrative responsibility for land. The balance of land
remains the administrative responsibility of the Territory.
This division of responsibility is established in the Australian Capital Territory (Planning
and Land Management) Act and reinforced in the National Capital Plan and the Territory
Plan.
Both governments have a responsibility to consult with the other as a key stakeholder in
relevant policies and projects.
c) Cross border issues if applicable
See Chapter 5 for discussion in relation to the surrounding region.
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Attribute 9.8
Explain how the capital city strategic planning system provides for a streamlined and
efficient approvals process including development approval processes, and processes
under the Commonwealth Environment Protection and Biodiversity Conservation Act
1999.
What aspects of the system make the approval process streamlined and efficient?
Response 9.8
The planning approvals system of the Australian Capital Territory is track-based in
accordance with the Development Assessment Forum’s Leading Practice Model for
Development Assessment. The system provides five (5) tracks: prohibited; exempt;
code; merit; and impact.
The ACT provides for a considerable level of exempt development, as well as rules and
criteria for merit Development Applications. Where a proponent complies with a rule, the
extent of third party appeal is limited.
For impact track Development Applications the ACT has entered into a Bilateral
Agreement with the Commonwealth so that, in certain circumstances, a proponent need
only prepare one EIS that covers both local and national matters.
Refer to Response 4.1 for more information on the Bilateral Agreement.
Capital city strategic planning systems should provide effective implementation
arrangements and supporting mechanisms, including...(c) evaluation and review cycles
that support the need for balance between flexibility and certainty, including trigger points
that identify the need for change in policy setting.
Attribute 9.9
Explain what mechanisms the capital city strategic planning system employs to evaluate
and review the impact of plans, policies, projects and/or initiatives (this may include the
identification of trigger points to undertake review).
What are the formal review mechanisms used by the capital city strategic planning
system to adjust policy settings?
Response 9.9
The ACT Government is committed to regular review and revision of its plans and
supporting activities, to ensure they are effective and efficient, and to account for
emerging issues. The main elements of the ACT’s framework for review and evaluation
are:

policy and program evaluation by agencies;

whole-of-government evaluation of policy and expenditure;

feedback from the community; and

external review by the Legislative Assembly and Auditor-General.
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Agency Evaluation
Self-evaluation is a fundamental requirement for continuous improvement. For this
reason, agencies are expected to critically evaluate their own activities on an ongoing
basis.
This is guided by the Government’s Evaluation Policy and Guidelines discussed in Case
Study 17 following.
Whole-of-Government Evaluation
In general, the central agencies, Treasury and CMD, are responsible for coordinating and
monitoring evaluation activity across government. More specifically, the Chief Executives
of Treasury and CMD Chair an Expenditure Review and Evaluation Committee. The role
of this Committee is to:

examine the appropriateness, effectiveness, and, in particular, the efficiency of
agency programs, functions and activities;

identify possible cost savings, more effective service delivery methods, and
opportunities for better co-ordination of activities; and

report these findings to the Government for consideration in developing the
annual budget.
Case Study Seventeen: ACT Evaluation Policy and Guidelines
To strengthen evaluation activity across government, the ACT Government has developed and
recently released ACT Evaluation Policy and Guidelines (the Evaluation Policy).
The Evaluation Policy requires that all agencies prepare an annual Agency Evaluation Plan,
which includes strategies to build agency evaluation maturity and a schedule of planned
evaluations. The first Plans will be prepared in 2011.
The Government expects agencies to take an holistic approach to evaluation, aiming to build
evaluation maturity over time by:

fostering a culture of evaluation;

building evaluation capability and developing the expertise, systems and structures to
conduct evaluations;

planning to evaluate, by embedding evaluation into policies and programs, and
coordinating evaluation activity;

evaluating strategically, by prioritising and scaling evaluation activity in accordance
with an assessment of materiality, risk and complexity;

conducting evaluations to a high standard, and from an overall perspective of
sustainability; and

making evaluation count by communicating results and acting on recommendations.
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Community Feedback
The views of the community guide the ACT Government in reviewing, refining, and
reprioritising services. Accordingly, agencies are expected to remain engaged with their
target clients, and the broader community, particularly through evaluation processes.
Methods of engagement include:

satisfaction surveys;

live feedback mechanisms, such as telephone hotlines or email; and

community consultation forums.
External Review
Government activities are also subject to external review by a range of bodies. These
include:

the Legislative Assembly;

the Independent Auditor General; and

Australian Government bodies such as the Productivity Commission.
The Government takes these processes very seriously. This is the foundation of
Government accountability and the findings and recommendations of the Assembly and
Auditor-General, for example, provide another perspective on possible ways to improve
Government performance.
Capital city strategic planning systems should provide effective implementation
arrangements and supporting mechanisms, including (d) appropriate consultation and
engagement with external stakeholders, experts and the wider community.
Attribute 9.10
How does the capital city strategic planning system ensure ongoing processes of
consultation and engagement with external stakeholders, industry, experts and the wider
community, in plan-making, implementation and review?
How is this consultation incorporated into plan-making, implementation and review?
Response 9.10
Community Consultation
The ACT Government is committed to engaging the Canberra community in the
development and delivery of government policies, programs, public works and services.
Guidelines for planning, conducting, using and evaluating community engagement are
set out in the ACT Government Community Engagement Manual. A key principle of this
Manual is that there is not a one-size-fits-all approach to community engagement.
Rather the appropriate approach will depend on the size of the issue, the level and
diversity of community interest, and the resources and time available. The ACT Manual
is currently being updated to reflect developments in this field.
The ACT Government maintains a Community Engagement website to help inform the
community about engagement processes and ensure participation. The website includes
links to the ACT Government Community Engagement Manual, current community
engagement processes, and development applications.
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Case Study Eighteen: Canberra 2030: Time to Talk
Canberra 2030: Time to Talk is a major community engagement program the ACT Government
has just completed. The focus of the engagement was discussing the significance of a growing
population, identifying the impacts, trade-offs, potential opportunities, and through this, the
priorities for urban development policies.
The objective of the program is to inform government policy and ensure integration between
land use, transport and environmental planning. Key issues for discussion included:

urban form;

housing choice and affordability;

the transport network – its cost and the importance of accessibility for social equity;

water security;

environmental responsibility;

liveability – social diversity and safety; and

infrastructure – including the level of social services, and the cost of creating and
rehabilitating civil and built infrastructure.
This engagement program is a key element of the ACT Government’s evaluation of the
Canberra Spatial Plan. This evaluation, in turn, is pivotal in setting out how the ACT will
achieve COAG’s agreed strategic planning principles.
Further details on the engagement program, which is now closed, are available at
www.Canberra2030.org.au. A report on the outcomes of the consultation will be available in
mid-January 2011.
Statutory Planning
Under its legislation – the Planning and Development Act - one of the ACT Planning and
Land Authority’s (ACTPLA) statutory functions is to provide opportunities for community
consultation about planning decisions. It is also required, under the Act, “to educate
people and promote understanding of the planning process”.
In relation to its consultation processes, ACTPLA has published a specific community
engagement guide – A guide to Community Engagement and Consultation.
In brief, ACTPLA consults with a wide range of stakeholders. As well as the general
public, ACTPLA regularly consults ACT community councils; industry groups such as the
Master Builders Association, Housing Industry Association and Property Council of
Australia; professional groups such as the Royal Australian Institute of Architects and the
Planning Institute of Australia; ACT Government and Commonwealth agencies; other
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interest groups, such as those with environmental or social interests, for example the
Conservation Council ACT Region and Canberra; and the ACT Council of Social Service.
ACTPLA also convenes an Industry Monitoring Group, which comprises the Master
Builders Association, Housing Industry Association and Property Council of Australia as
well as relevant ACT Government agencies to discuss emerging policies relevant to
industry.
The consultation is incorporated into plan-making, implementation and review in a
number of ways. Matters for consultation include:

Development Application notification (statutory requirement);

Variations to the Territory Plan (statutory requirement);

Technical Amendments to the Territory Plan (statutory requirement);

Environmental Impact Statement consultation (statutory requirement);

development and review of planning policies and strategies (in accordance with
community engagement protocols); and

development of Structure plans and Concept plans (statutory requirement).
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Conclusion
The ACT Government has a sound strategic planning framework. It is a framework that:

has been developed and refined over time in line with principles of strategic
planning best-practice;

is designed to address the unique challenges of planning for the national capital
within a dual planning system;

continues to successfully deliver high-quality services to the ACT community;

has evolved in response to emerging intergovernmental, administrative,
demographic, and policy issues; and

is aligned with the national criteria for capital city strategic planning systems.
An overview of the ACT Strategic Planning Framework is at Appendix B.
Notwithstanding the strength of the ACT’s strategic planning framework, the Government
recognises that such frameworks must not be static. Rather these frameworks must
evolve and be refined, particularly given the dynamic environment of public
administration.
The ACT Government is committed to such evolution and continuous improvement. It
has clearly demonstrated this commitment through the recent review of the ACT
performance and accountability framework, and the program of reforms flowing from this
review. Improvements to date include:

launch of the Measuring Our Progress website, which tracks the progress of
Canberra using 28 indicators;

enhanced infrastructure planning processes, including release of the first ACT
Infrastructure Plan in 2010; and

the release of the ACT Government Evaluation Policy and Guidelines as part of
the Government’s reviewed Performance and Accountability Framework in late
2010.
Future priorities to further strengthen the ACT’s strategic planning framework include:

Developing a best-practice strategic service planning framework for the ACT.
This will involve agencies preparing Strategic Service Plans, which will help align
agency services with Government priorities and long-term objectives, and outline
service delivery standards and delivery options, changes in demand, emerging
challenges and opportunities, and risk management strategies.

Implementing an enhanced strategic asset management framework. This will
involve agencies preparing Strategic Asset Management Plans which will help
align asset management with service delivery objectives and Strategic Service
Plans, and outline strategies to improve the planning, delivery, management, and
disposal of assets. Service plans and Strategic Asset Management Plans will
also be designed to feed into longer-term infrastructure planning.

Strengthening the Government’s annual priority setting process.

Completing the evaluation and update of the Spatial Plan.
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
Implementing outcomes of Canberra 2030: Time to Talk through the Chief
Executives’ Strategic Planning Committee. This will involve strategy and
coordination of policy development across areas such as the evaluation of the
Spatial Plan, integrated transport and climate change initiatives.
The ACT will continue to critically review and improve its strategic planning framework, to
ensure it can deliver better services to the community and achieve its vision for the ACT.
The Government sees the CRC review of capital city strategic planning as an opportunity
to re-assess our own planning, and to reinforce and help guide the ACT’s existing
program of improvement.
Accordingly, the ACT Government looks forward to working with the CRC as it develops
its report and recommendations.
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Further Reading & References
The Canberra Plan: Towards our Second Century
http://www.cmd.act.gov.au/policystrategic/canberraplan
The Territory Plan 2008
http://www.legislation.act.gov.au/ni/2008-27/current/default.asp
The Canberra Spatial Plan
http://apps.actpla.act.gov.au/spatialplan/introductory/index.htm
The Sustainable Transport Plan
http://www.tams.act.gov.au/move/sustainable_transport/sustainable_transport_plan_actio
ns
ACT Planning Strategy
http://www.actpla.act.gov.au/tools_resources/legislation_plans_registers/plans/planning_
strategy
Capital Development: Towards our Second Century
http://www.cmd.act.gov.au/__data/assets/pdf_file/0005/119723/capital-development.pdf
Building our Community: Canberra Social Plan
http://www.cmd.act.gov.au/policystrategic/socialplan
The ACT Government Infrastructure Plan 2010
http://www.cmd.act.gov.au/__data/assets/pdf_file/0019/133165/act-govt-infrastructureplan.pdf
Implementation Report on The Canberra Plan: Towards Our Second Century, June 2010
http://www.cmd.act.gov.au/__data/assets/pdf_file/0009/154566/ar2010.pdf
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The Integrated Transport Framework
http://www.tams.act.gov.au/move/sustainable_transport/integrated_transport_framework
The National Capital Plan
http://www.nationalcapital.gov.au/index.php?option=com_content&view=article&id=372&I
temid=260
Weathering the Change: The ACT Climate Change Strategy 2007 – 2025
http://www.environment.act.gov.au/climate_change/weathering_the_change
A Light Rail System for the ACT
http://www.tams.act.gov.au/move/light_rail
2010-11 Infrastructure Investment Program
http://www.treasury.act.gov.au/budget/budget_2010/files/paper3/15capwor.pdf
Quarterly Infrastructure Program Progress Reporting
http://www.treasury.act.gov.au/documents/Capital%20Works%20Program/200910%20Capital%20Works%20Program%20-%20June%20Outcome%20Report.pdf
ACT Indicative Land Release Programs 2010-11 to 2013-14
http://www.laps.act.gov.au/__data/assets/pdf_file/0009/135486/Indicative_Land_Release
_Program_2010-11_to_2013-14.pdf
Planning Minister’s Statement of Intent 2010
http://www.actpla.act.gov.au/__data/assets/pdf_file/0020/16850/SOPI_2010_web.pdf
ACT Sustainable Future Program
http://www.actpla.act.gov.au/topics/significant_projects /change/sustainable_future
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ACT Information Development Plan 2008 – 2011
http://www.cmd.act.gov.au/__data/assets/pdf_file/0007/114856/act-idp.pdf
ACT Skills Future
http://www.cmd.act.gov.au/__data/assets/pdf_file/0003/119721/ACTskills-future.pdf
See Your Business in Canberra – Australia’s Capital
http://www.business.act.gov.au/__data/assets/pdf_file/0003/197067/See_Your_Business
_in_Canberra_English_lores.pdf
Canberra 2030: Time to Talk
www.Canberra2030.org.au
ACTmapi
http://www.actmapi.act.gov.au/
ACT Triple-Bottom-Line Assessment Tool
http://www.cmd.act.gov.au/__data/assets/pdf_file/0008/119735/TBL_annualrpt.pdf
ACT Population Projections: 2007-2056
http://www.cmd.act.gov.au/__data/assets/pdf_file/0010/119719/act-populationprojections-2007-2056.pdf
ACT Population Projections for Suburbs and Districts: 2007-2019
http://www.cmd.act.gov.au/__data/assets/pdf_file/0007/119734/suburb-populationprojection.pdf
Measuring our Progress website
http://www.measuringourprogress.act.gov.au/
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ACT Budget Papers
http://www.treasury.act.gov.au/budget/index.shtml
Planning and Development Act 2007
http://www.legislation.act.gov.au/a/2007-24/default.asp
Australian Capital Territory (Planning and Land Management) Act 1988
http://www.austlii.edu.au/au/legis/cth/consol_act/actalma1988526/index.html
ACT Affordable Housing
http://www.actaffordablehousing.com.au/
7th Legislative Assembly for the ACT: Mid-Term Report
http://www.chiefminister.act.gov.au/uploads/ot/Mid%20Term%20report_final.pdf
ACT Community Engagement
http://www.communityengagement.act.gov.au/
ACT Planning and Land Authority: A Guide to Community Engagement and Consultation
http://www.actpla.act.gov.au/__data/assets/pdf_file/0007/12589/Community_engagement
_guide.pdf
A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
97
List of Appendices
Appendix A
Urban Form Analysis: Canberra’s Sustainability Performance
Appendix B
An Overview of the ACT Strategic Planning System
A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
98
A Review of the ACT Strategic Planning System: Submission to the COAG Reform Council
99