This is an essay written in combination by Jess Mulligan (Ready Steady Plan), Tom Robb (Canberra Local Man) and myself, as our final Planning assignment for the semester. I know it's long (3200 words), but hopefully it's worth a read.
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Canberra’s
planning past has limited its future development. The City Beautiful and Garden
City movements that inspired Walter Burley Griffin’s original designs for
Canberra are no longer relevant to contemporary planning theory. The lack of
realisation of Griffin’s original plans, the relationship of conflict between
Griffin and Australia, and the implementation of secondary planning models have
culminated in a confused city which lacks a distinct identity. To create an
engaged and forward thinking city, Canberra needs to establish a new planning
model, while still recognising its significant historical planning influences. The
Griffin Legacy serves as a reminder of the original ideals for Canberra, but
should not limit its overall development. Maintaining the Griffin Legacy means
respecting it but also acknowledging its weaknesses. Canberra is no longer
limited by the spatial bounds of Griffin’s design, and this should be reflected
in contemporary development of the city. If the plan cannot be adopted, then it
should be adapted to suit modern planning theory. By analysing these key
issues, we hope to discover the cause of the problem and propose new solutions
for creating a more dynamic and vibrant capital city; a city which represent
the Australian people and can be a national and global example.
Griffin’s
plan for Canberra relied heavily on geometry, which enhanced and emphasised the
prominent topographical features throughout the nation’s capital. The Garden
City and City Beautiful movements were clearly demonstrated in Griffin’s design.
It contained key elements such as grand boulevards, impressive public buildings
and strong axial arrangements, all identified by (LeGates and Stout, 1998). The
design was very sympathetic to the environment, demonstrated in the beautiful
illustrations by Griffin’s wife Marion Mahoney Griffin. The landscape soon
earned Canberra the title of the ‘Bush Capital’, which concurrently likened
problems with Canberra’s slow growth to that of a country town. The central feature,
the Parliamentary Triangle, was complemented by a large lake which separated
the Civic Sector from the Government Group. However, the lake was not fully
formed until 1963, with the damming of the Molonglo River by Scrivener Dam. The
delay of such a major part of Griffin’s design demonstrates the problems of
realisation surrounding Canberra. By this time the new ‘Y’ Spatial Plan was
beginning to emerge and Canberra’s boundaries would soon be stretched far
beyond the shores of Lake Burley Griffin. Despite this, the ideals of City
Beautiful persist, although planning theory has developed far beyond such a
physical determinist nature.
The
continuous growth of the Canberra region has had a significant effect on the
facilities and transport systems of Canberra. The city was designed and built throughout
the modernist-planning era, alongside the rapid expansion of private motor
vehicles. Therefore, Canberra has developed with the use of cars in mind,
reflected in the large arterial roads and freeways which bisect the city. Griffin’s
design proposed housing to be fronting parks and residential streets to have
walkable access to public transport (buses and trolley cars), that would run
along main avenues (ACTPLA, 2008). This shows strong commitment to transport-oriented
streets and suburbs. However, Griffin’s design was for a compact city of 75,000
people (NCA and ACTPLA, 2010). As Canberra has moved far beyond the original
bounds envisioned by Griffin, there should be scope to reconsider the
appropriateness of his Legacy. Unfortunately, many of the services in Canberra
do not adequately cope with the new spatial distribution. The urban growth
corridors associated with the Y Plan, while maintaining the green belt status
of the Garden City movement, prevent efficient public transport. The ACT
government has invested over $1 billion in transport infrastructure, programs
and services to support a cleaner, more sustainable Canberra (ACT Government,
2012). The government understands Canberra is at unsustainable levels of
automobile use and continues to promote more appropriate forms of transport,
including cycling and walking. Implementation of more modern rapid transit
systems, such as light rail, will assist Canberra to achieve a more creating
and forward thinking identity, while also improving functionality and
liveability.
The original
unique design for Canberra has since become an idea of the past. However, values
and ideals have significantly changed over time, reflected in the spatial
distribution of Canberra. The rapid population boom in the mid 20th
century was coupled with the increasing affordability of private motor
vehicles, created a pattern or urban sprawl. Canberra was not exempt from this
trend, reflected in the ‘Y’ Spatial Plan and its urban growth corridors, which
was to provide for a new population target of 250,000 (NCA and ACTPLA, 2010).
Although attempting to be true to Griffin’s vision, Canberra has transformed
dramatically and outgrown even the more contemporary ‘Y’ Plan. Again, this plan
represented a physical determinist way of thinking. Though it did facilitate
population growth, the contemporary spatial distribution represents a
population of 360,000 spread across an area equivalent to Greater London (Elton
Consulting, 2010). This clearly goes against Griffin’s
vision for a compact city. The Y Plan did not deliver a population of 500,000,
as predicted (NCA and ACTPLA, 2010), so the ACT Government has turned to
Griffin’s plan for new inspiration. Developments to the east and west of the
city centre, such as the Molonglo Valley, aim to increase Canberra’s population
around the Central National Area, which represents the Parliamentary Zone, its
surrounds and the main diplomatic areas (NCA and ACTPLA, 2010). Thus, it is clear
that previous planning solutions are unsustainable for future population growth
and density outcomes in Canberra.
Griffin’s
design suffered from in-adaptability due to its physical and environmental
determinism. The original design is famed for its strong geometric and axial
arrangements to enhance natural topographical aesthetics. While these design
principles look impressive on a map, they present spatial challenges at ground
level. This culminates in a seemingly disjointed city, with distinct districts
which seemingly lack appropriate pedestrian or other transport connections. The
movement itself was influenced by the grandeur of old-world European cities,
which presents its main problem; the City Beautiful movement was not forward
thinking. It was retrogressive, looking to the past to improve modern problems
of overcrowding and ad hoc development (Germann, 2010). The physical
determinism of the movement was designed for social control and prevents appropriate
human scale. Furthermore, the suburban ideal which Canberra represents was
formed primarily through the Garden City movement, envisioning greenbelts and
self-contained communities, creating a city sympathetic to its environment. However,
as previously stated, these greenbelts now serve to separate the districts of
Canberra and prevent efficient modes of public and private transport. Thus, the
two movements hailed as a solution to the urban crises of overcrowding and
ugliness has served to prevent the establishment of a significant urban
identity for Canberra.
The plan of
Canberra has transformed and evolved significantly. However, recently Walter
Burley Griffin’s plan has been overlooked and the Government, who have
introduced the ‘Y’ plan for the capital, now heavily regulate planning. The ‘Y’
plan essentially connects central business districts or town centres via
freeway links across the capital and this plan has been integrated primarily
because of the urban sprawl throughout the region. The remodeling and
rethinking of the Canberra plan has been a result of neglecting the Griffin’s
original design and attempting to combat issues that have occurred in the past,
predominantly population growth. Canberra needs to promote and encourage the
return of Walter Burley Griffin’s plan to be able to revitalise original plans
and visions for the capital. Canberra
has the potential to illuminate its atmosphere and revive livability. In turn this will establish an identity for
Canberra, not only as ‘the bush capital’ or the national capital, but an
authentic identity for its name meaning ‘the meeting place’.
Ultimately,
creating Canberra as a model for the City Beautiful movement seems
counterintuitive. The city was completely planned, and as such there was no
overpopulated and under-designed metropolis that needed improving, as was the
main ideal of City Beautiful (Germann, 2010). Australia needed a capital city, not a city alternative. The
process of developing the nation’s capital has been an awkward transition
through various planning models and theories. The contemporary planning
theories are contrasted with the Griffin Legacy, an ideal which was never truly
realised, but still maintained by the National Capital Authority. The
significance of Griffin’s plan, and the movements which influenced it, should not
be ignored. However, the conflict between old and new planning models
demonstrates a distinct shift in planning theory which proves the
incompatibility of past plans for Canberra. Approaching its centenary, there
must be a deliberate move towards a targeted plan for Canberra which represents
the needs of the future needs of city but also respects the designs of the
past.
The developments and changes of
communities can be a contentious issue no matter the socio economic status of
the neighbourhood. When an individual’s sense of place is challenged, conflict
often follows for all actors involved. A complex relationship between planners,
developers and the community has formed within the Canberra area often
resulting in conflict. The planner’s role is particularly important and
extremely challenging, often having to deal with multiple issues such as new
traffic challenges, character of the area and the future of the project. These
issues involve a range of strategies to create solutions involving social
policy, design and transport options (Forester, 1987). Canberra is no
exception. Conflict over planning models has already been demonstrated; however
opposition to new developments also occurs frequently.
Throughout
the original design process and ongoing construction of Canberra there has been
bureaucratic conflict. This has occurred between various agents, including
personal differences between Burley Griffin and King O’Malley, as well as the
continually changing agencies responsible for the planning of Canberra
(National Archives of Australia, 2012). Differing attitudes have arisen
regarding the responsibility for maintaining the structure and geometry of the
inner city. Between 1921 and 1924, the Federal Advisory Committee was
established followed by The Federal Capital Commission in 1925-1930.
Furthermore, 1938 - 1957 the National Capital Planning and Development
Committee was responsible, then between 1957 – 1989 it was the National Capital
Development Commission. After the ACT achieved self-government in 1989, the
National Capital Authority was established to maintain the Griffin Legacy. The
NCA is also responsible for preparing the National Capital Plan, which is
subject to constant review (National Capital Authority,
2011). Proposed amendments are considered when necessary, but all new
developments must maintain the character of the national capital. Thus, the NCA
is a powerful body able to control to future direction of planning in Canberra.
Griffin’s
plans have also undergone significant change due to political differences and
lack of financial resources. The original plans were challenged by then Home
Affairs Minister, King O’Malley who even appointed a review board to produce
another set of plans, which were a variation of Griffins. Finally, in 1913,
after Griffin lobbied against O’Malley, his board department board was
disbanded and Griffin was appointed Federal Capital Director of Design
and Construction (National Archives of Australia, 2012). Griffin held this position for three years,
against the criticism of many. After another variation of plans was created by
Griffin himself in 1915, he persisted with efforts to realise his vision,
however cost became a major issue. Most disappointingly, his extensive lake
scheme was rejected for a more affordable option (National Archives of
Australia, 2012). As in the past, many planning decisions are challenged that
propose changes to the existing Griffin plan. While the Parliamentary Zone
presents a distinct and often uncompromising challenge, other efforts for
development have been successful, though no less contentious.
The Gungahlin Drive Extension (GDE) was
a major roadwork program in Canberra. The controversial Extension saw opposition
from community groups, challenging the ACT Government and the National Capital
Authority (NCA) at the Federal Court. The Extension sought to continue to
arterial road networks conceived from the Y Spatial Plan (Figure 1) which relied
on private automobiles as the primary source of transport around the sprawling
capital (ACT planning and land authority, 2007). The population of
the northern Canberra had rapidly expanded and the Gungahlin region now
required efficient transport links to Civic and South Canberra. However,
Gungahlin was developed outside the original transit corridors, seen in the
purple region to the north of Figure 1. In 1991 the Joint Parliamentary
Committee on the ACT ratified the need for a new transport route (ACT Government, 2012). Its design, implementation
and feedback would become one of the most highly contested infrastructure
programs within the ACT.
Figure 1: The 1967 Y-Plan developed for Canberra
Save the Ridge Inc (SRI) has been the
major opposition for the execution of the GDE. They are a community-based
organisation that has a membership base of over five hundred persons, drawn
from 61 suburbs across the ACT. They objected to “the actions of the NCA in relation to decisions and planning for the
route of the Gungahlin Drive Extension” (Save the ridge inc, 2003) on grounds that
it would disturb the native flora and fauna along the Bruce/O’Connor Ridge to
the north of Black Mountain. SRI was also highly critical of the NCA with the
consultation program and their environmental assessments of the area. “It is not clear how the NCA consultants
arrived at their conclusions regarding the environmental assessment of the two
routes. The conclusions and accompanying figures in their report do not match
the limited reference sources relating to environmental impacts that the
consultants claimed they used and do not match other reports by environmental
and ecology experts” (Save the Ridge inc, 2003, p. 3)
SRI also accused the NCA of being biased
towards organisations in favour of the GDE and limiting SRI’s in the
consultation process. SRI stated “the
only stakeholders consulted by the NCA consultants, Young Engineers, were
proponents of the GDE” (Save the Ridge inc,
2003, p. 2). Such vocal opposition posed a significant problem for the
NCA and the ACT Government, who maintained active community participation
measures. Sherry Arnstein’s (1969) Ladder of Participation (Figure 2) notes the
consequence of ignoring citizen participation; it limits community involvement
and removes power from the citizens. Allowing citizens to have power enables
them to be deliberately included in the political and economic process, a
gesture SRI maintains was lacking from GDE planning stages.
Figure 2: Arnstein's Ladder of Citizen Participation
It
is often difficult to meet the needs to all stakeholders through the community
consultation process. Forester (1987) notes some problems with consultations in
conflicts with community groups. First of all, the community does not often
have the same understanding technical language as the planners or developers,
which causes confusion regarding the implementation of plans. Secondly,
community groups may not view the planners as their allies. This was clearly
evident with the GDE, SRI were highly critical of the NCA, and to a lesser
extent the ACT Government. Thirdly, it may be difficult in some cases to
identify who really speaks for the community, as some stakeholders may have the
capacity to voice their opinions louder than others. SRI had over five hundred
members of a well-formed organisation, which is a significant level of
opposition. However, it is hard to gauge the amount of residents that supported
the GDE, which is another example of the inequalities of citizen participation.
Ultimately,
the construction of the GDE went ahead. Despite conflict from the SRI, as well
as various structural problems, including a bridge collapse, the project is now
complete and provides an efficient transportation link to an increasingly
populated area of Canberra. The combined organisational power of the NCA and
ACT Government eventually overcome the grassroots opposition of the SRI.
However, the efforts of the SRI demonstrated a renewed interest in capital
works and the development of Canberra. The increasing scale of infrastructure
programs, coupled with moderate population growth means Canberrans must engage
with their city or face the consequences of inaction; a capital city which
develops without the much valued input of its residents. Thus, Canberrans must
engage with the right to their city.
The right to
the city is a concept first proposed by French social theorist Henri Lefebvre.
In his book Le Driot à la Ville (1968), Lefebvre describes
the concept as a “demand... [for] a transformed and renewed access to urban
life”. It formed as a reaction to increasing disenfranchisement of urban
dwellers and lack of faith with democratic solutions to problems. Lefebvre
theorised that people had become disengaged with urban life, and had rejected
their responsibilities to protect it. By acknowledging those responsibilities, Lefebvre
noted that people could take control their cities and create a more attractive
and engaging urban environment. Canberra is well positioned to do so.
Canberrans have the highest rate of adults holding Year 12 qualifications or
equivalent, and 25% of those people also held bachelor degrees, (Anderson, S.
2012). Canberra is also reported as having the highest median annual income, at
roughly $13,000 above the national average (McLennan, 2012). Such a high level
of education and annual income means Canberrans have a strong capacity for
action. There is a strong sense of capital in Canberra, both in the monetary
sense, but also through human capital. A highly educated population is more
likely to be aware of current affairs and engaged with their surroundings. However,
if residents separate themselves from the community because it becomes
disinteresting, there will be a lack of citizen participation and community
involvement.
A generational
distaste for Canberra persists amongst young people. In a survey undertaken by
the Youth Coalition of the ACT (Barry and Robertson, 2012), one of the top five
concerns for people aged 12 – 25 was ‘finding something to do in Canberra’.
Respondents were also concerned with the cost of living, and only 28% of respondents
believed young people were valued in the ACT community. This poses a
significant problem for Canberra. A vibrant city needs a vibrant young
population to drive creativity. If the cost of living in Canberra continues to
rise, the city will struggle to attract younger people. Attracting young people
is also increasingly important due to the increasing age of Canberra residents.
Time to Talk Canberra 2030 Outcome Report states that in the decade
from 2000-2010, there was a decline in the 0-14 age bracket, matched with an
increase in the 85+ age bracket (Elton Consulting, 2010). With a strong
university scene, Canberra is well positioned for young graduates, however, the
Outcome Report demonstrates more needs to be done to encourage those graduates
to stay in the city and raise a family and stop the trend towards an aging
population in the Canberra region. Thus Canberra must engage its young
population in order to meet the needs of this important age base which is
growing increasingly smaller.
Coming into
its Centenary, Canberra needs to create its own identity. The Australian
Capital must establish its place in Australia as a leading city across all
measures of living standards, including opportunities for creativity. As the
seat of the Australian Federal Parliament, Canberra has a significant role in
the decision making process. However, Canberra lacks influence beyond a
political level, and its political role is only one aspect of what a modern and
dynamic city should represent. Canberra’s development has been limited by such political
conflict. Constantly changing plans have competed with the Griffin Legacy to
create a complicated bureaucracy of government agencies and planning bodies.
Thus, he right to the city concept provides an avenue for change. By embracing
and engaging with new planning systems and community consultation
opportunities, Canberrans can improve their city. A highly educated and
relatively wealthy population means Canberra has a strong capacity to transform
the National Capital to a city reflecting the cultural and creative heart of
the Australia.
References
- ACT Government, 2012, Transport for Canberra, http://www.transport.act.gov.au/pdf/Pages_from_EDS_ACT_Transport_Policy_FA_final_web.pdf, viewed 20 November 2012
- ACT Government. 2012. Stage Two. Accessed at Gungahlin Drive Extension: <http://www.gde.act.gov.au> [Accessed 18 November 2012]ACT Planning and Land Authority. 2007. Why the new structure for Canberra? f<http://apps.actpla.act.gov.au/spatialplan/1_future/1C_new_structure/index.htm> [Accessed 18 November 2012]
- Arnstein, S. 1969. A ladder of Citizen Participation. Journal of the American Institute of Planners , p238-250.
- ACT Planning and Land Authority, 2008, Garden City Values and Principles, Available at <http://www.actpla.act.gov.au/__data/assets/pdf_file/0013/6700/gardencity_values.pdf> [Accessed 20 November 2012]
- Anderson, S. 2012. Canberra ‘the most educated’ by degrees, Canberra Times [online] October 26. Available at: <http://www.canberratimes.com.au/act-news/canberra-the-most-educated-by-degrees-20121025-288sq.html> [Accessed 20 November 2012]
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- Forester, J. 1987. Planning in the Face of Conflict. Journal of the American Planning Association , p434-446.
- Germann, S. 2010. The City Beautiful Movement, Examiner.com, [online] Available at: <http://www.examiner.com/article/the-city-beautiful-movement> [Accessed 21 November 2012]
- LeGates, R. T. and F. Stout, 1998. Modernism and Early Urban Planning. From: Early Urban Planning, 1870 – 1940. London: Taylor and Francis Group.
- McLennan, D. 2012. Capital wages still highest, growing fastest, Canberra Times [online] August 16. Available at: <http://www.canberratimes.com.au/act-news/capital-wages-still-highest-growing-fastest-20120816-24ac0.html> Accessed 20 November 2012
- National Archives of Australia, 2012. Walter Burley Griffin and the design of Canberra [online] Available at: <http://www.naa.gov.au/collection/fact-sheets/fs95.aspx> [Accessed 21 November 2012]
- National Capital Authority, 2011. The National Capital Plan. National Capital Authority, Canberra.
- NCA and ACTPLA, 2010. Molonglo Valley Suitability Study, Canberra: NCA and ACTPLA
- Save the Ridge Inc. 2003. Submission by Save the Ridge Inc. Canberra, ACT.