When plans are used to no effect: Considering implementation performance of greater Brisbane’s compact activity centre policies

Abstract

Evaluations of plan implementation are typically conceived in terms of plan conformance (the degree to which outcomes align with planning intent) or plan performance (the degree to which decision makers apply the plan). In this research, we consider the relationship between performance–conformance by evaluating the implementation of compact activity centre policy in greater Brisbane. We examine two decades of changes to local land use planning regulations using content analysis, quantifications of permitted development intensity, and comparisons of actual land use changes with planned intent, to identify evidence of the use of metropolitan scale activity centre policy. We find that the activity centre policy performed well and was used as intended across the metropolitan area. However, despite strong performance, the policy conformed poorly in terms of achieving the expected outcomes. These findings highlight the importance of understanding plan implementation from both performance and conformance perspectives. While conformance evaluations are essential to connect planning intent to physical outcomes, understanding plan performance is also necessary to explain the results of conformance evaluations and whether conformance successes or failures were due to deficiencies with the plan itself or how the plan was used by key actors charged with its implementation.

We zoned for density and got higher house prices: Supply and price effects of upzoning over 20 years

“…Local governments determine the extent of each centre, and the location and intensity of any up zoning in response to the policy. Despite this lack of strict top down control, there is strong evidence that local governments have been changing their planning regulations to accommodate the state government's activity centre policies, particularly in terms of changes that up-zone land to permit higher residential densities (Limb et al , 2020c). These activity centres represent an ideal case to investigate the effects of zoning changes for infill development as they have been subject to two decades of consistent state and local government policy changes to encourage it, and consist of a variety of land use types and residential densities (Limb et al , 2020a).…”

“…detached dwelling, medium density dwellings, commercial and retail use, etc.) as well as current uses in each time period, with that planning information developed in (Limb et al , 2020c;Limb, 2019). We use this high resolution planning information to create a variable we call zoned capacity, which is the estimated number of additional dwellings able to be built on a site under current planning regulations.…”

Charting New Ground: Between Tactical Urbanism and Strategic Spatial Planning

“…Nonetheless, within the state-led planning paradigm, as Allmendinger and Haughton (2012, p. 90) point out, even widely used public consultation exercises to facilitate broad agreement may provide only "the superficial appearances of engagement and legitimacy, whilst focusing on delivering growth expedited through some carefully choreographed processes for participation which minimise the potential for those with conflicting views to be given a meaningful hearing". Implementation and the implications of such strategic spatial plans for real people in actual settings can therefore generate sometimes violent opposition (De Certeau, 1984;Lefebvre, 1992;Silva, 2016) and a glaring performance/conformance gap (Limb et al, 2020;Shahab et al, 2017). As an example, 'sustainable infrastructure' is mentioned in the OurSpace Vision, yet when 13 new cycleways were built that reduced the number of existing onstreet car-parks, the City Council was threatened with arson (personal communication, June, 2017).…”