low carbon resilient urban future

8/6/2019 Low Carbon Resilient Urban Future

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A low carbon and

resilient urban future

An integrated approach to planning for

climate change

Prof Barbara Norman

Urban and Regional Planning

University of Canberra


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A L ow C arbon and R es ilientUrban F uture

A Discussion Paper on an IntegratedA pproac h to P lanning for C limate

Change

Professor Barbara Norman

Urban and Regional PlanningUniversity of Canberra

July 2010

Paper prepared for the Department of Climate Change and Energy Efficiency


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Commonwealth of Australia 2010

ISBN 978-1921298-81-3

This work is copyright. Apart from any use as permitted under the Copyright Act

1968, no part may be reproduced by any process without prior written permission

from the Commonwealth. Requests and inquiries concerning reproduction and

rights should be addressed to the:

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Or posted at: http://www.ag.gov.au/cca

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Commonwealth provides no warranties and makes not representations that the

information contained is correct, complete or reliable. The Commonwealth

expressly disclaims liability for any loss, however caused and whether due to

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Editing by Biotext, Melbourne

Page layout by Biotext, Melbourne
http://www.ag.gov.au/ccahttp://www.ag.gov.au/cca


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Contents

Acknowledgements.............................................................................................................3

Acronyms and abbreviations ............................................................................................5

Executive summary ............................................................................................................7

1 Introduction .........................................................................................................11

1.1 Context ......................................................................................................11

1.2 Purpose of the discussion paper ................................................................13

1.3 Approach to the discussion paper .............................................................13

2 Australian initiatives on urban planning and climate change .........................15

2.1 National initiatives ....................................................................................15

2.2 State, regional and local initiatives ...........................................................18

2.3 Initiatives by the insurance industry and the builtenvironment professions ...........................................................................21

3 Barriers to planning for climate change ............................................................23

3.1 An emerging field of professional expertise .............................................23

3.2 National urban planning policy .................................................................23

3.3 Risk and liability .......................................................................................24

3.4 Financing and governing the transition .....................................................25

4 International initiatives on urban planning and climate change ....................27

4.1 United Kingdom ........................................................................................28

4.2 European Union ........................................................................................30

4.3 Canada .......................................................................................................33

4.4 United States .............................................................................................34

4.5 Asia-Pacific region ....................................................................................36

4.6 C40 Cities Climate Leadership Group ......................................................37

5 National engagement in urban policy and climate change ..............................39

5.1 Strategic urban policy ...............................................................................40

5.2 Integrating planning processes ..................................................................41


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5.3 Governance, regulation and leadership .....................................................41

5.4 Research and skills training ......................................................................42

5.5 A national agenda for urban policy and climate change ...........................43

5.6 Role of the Australian Government ..........................................................44

6 Conclusion ............................................................................................................49

References .........................................................................................................................51

Appendix 1 ........................................................................................................................57

Appendix 2 ........................................................................................................................59


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Acknowledgements

I wish to acknowledge the support and advice of Jo Mummery and her team from

the Department of Climate Change and Energy Efficiency (DCCEE), and Professor

Bruce Thom, University of Sydney. I would also like to thank the valuablecontributions by the participants in DCCEEs February roundtable on Urban

Planning and Climate Change. Information is also drawn from theNational Climate

Change Adaptation Research Plan: Settlements and Infrastructure.


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Acronyms and abbreviat ions

ACTU Australian Council of Trade UnionsADAM Adaptation and Mitigation Strategies project (European Union)

ADC Australian Davos Connection

AHURI Australian Housing and Urban Research Institute

ARK National Programme for Spatial Adaptation to Climate Change (Netherlands)

COAG Council of Australian Governments

DEWHA Department of the Environment, Water, Heritage and the Arts

DCCEE Department of Climate Change and Energy Efficiency

EU European Union

IPCC Intergovernmental Panel on Climate Change

NCCARF National Climate Change and Adaptation Research Facility

NYCPCC New York City Panel on Climate ChangeOECD Organisation for Economic Co-operation and Development

PEMSEA Partnerships in Environmental Management for the Seas of East Asia

PIA Planning Institute of Australia

SDC Sustainable Development Commission (United Kingdom)

TAFE Technical and Further Education

VROM Ministry for Housing, Spatial Planning and the Environment (Netherlands)


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Execut ive summary

To reduce the impacts of climate change on settlements and infrastructure, it is

critical to develop appropriate mitigation and adaptation responses. The Australian

Government is taking a national approach to climate change mitigation andadaptation, including in urban areas. A range of measures have already been

identified, such as:

revising, renewing and enforcing building codes to take account of changingclimatic conditions

introducing more consistent planning measures (eg planned retreat, dunemanagement, building designs, regulation of new structures)

managing urban growth in climate sensitive areas through zoning andregulation.

We need a suite of measures to build more resilient urban settlements andcommunities, including urban planning and management responses. Internationally,

new ways of designing cities to reduce greenhouse gas emissions and to develop

climate change adaptation plans are being developed at the national and city level.

This discussion paper raises issues about the challenges of increasing urbanisation

and climate change, and seeks to present a more strategic approach to settlement

planning in Australia for climate change. It focuses on cities and explores the issues

and the barriers to change. The impacts of urbanisation and climate change bring

with them opportunities to rethink how we can manage future urban growth.

Current Australian initiatives in planning for climate change are outlined, to provide

a benchmark for further action. The paper describes some key international

initiatives from the United Kingdom, the European Union, Canada, the United

States and the AsiaPacific region. The Australian Government, particularly the

Department of Climate Change and Energy Efficiency, in partnership with others,

can make a significant contribution in facilitating the transition to a low carbon and

resilient urban future.

The rapid growth of our capital cities and regional urban growth centres, combined

with climate change and evolving climate scenarios, is a very dynamic context in

which to effect change. There is a need to facilitate appropriate actions at the

national, state and territory, regional and local levels. To identify the actions

required, it is important to define the barriers to planning for climate change inAustralian cities and major urban centres.

This paper highlights four barriers to implementing climate change policy in our

rapidly growing urban centres:

a lack of professional skills in urban climate policy

an absence of a national urban policy framework that integrates climate changeconsiderations

risk and liability issues that may arise from the impact of climate change on thebuilt environment

significant policy challenges for financing and governing the transition to a lowcarbon and more resilient urban form.


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Each of these barriers are developed further within the paper, to explore the

institutional and regulatory reforms that may be required.

Examples where climate change considerations have been incorporated into urban

policy within Australia and internationally are explored in the body of the paper.

The Australian case studies include examples of initiatives at the national, state and

territory, regional and local levels. Mitigation and adaptation programs of the

Department of Climate Change and Energy Efficiency, together with recent

decisions by the Council of Australian Governments on strategic urban planning

and disaster resilience, frame the current national action on climate change and

cities. At the state, territory and local levels, specific climate change plans for large

urban centres and capital cities are growing in number. However, these are one-off

initiatives that could be framed within a more integrated approach across

governments.

International examples provide alternative approaches to cities and climate change

many show the advantages of improved links between national and local action,

both in policy terms and projects on the ground. The approach set out in the United

Kingdoms Planning for a Sustainable Future: White Papercould be considered inAustralia, as could the approach taken by the New York Climate Change Panel and

the New York City Plan (PlaNYC).

These examples of climate change policy and cities highlight a number of climate

change considerations for Australian urban policy. The initiatives explored in this

paper show that many countries are moving rapidly to national approaches to

climate change and cities. Recently in Australia, there has been a move towards

developing urban policy at the national level this needs to be integrated with

national objectives on climate change.

At the state, territory and local levels, opportunities exist to develop current urbanand environmental planning processes to incorporate climate change mitigation and

adaptation policies. Cities are being built every day the challenge is to identify

strategic interventions that can be made to effectively integrate climate change

policy in urban and regional planning systems. The whole-of-council approach by

the Gold Coast City Council is a good template for consideration.

The paper also discusses the importance of leadership and innovation, and

investment in research and skills development in the field of urban climate change

policy. Because urban research funding is relatively minor in Australia and the field

of climate change policy (particularly adaptation) is relatively new, there is a

significant gap in research and innovation for cities and climate change. This needs

to be addressed so that decision makers are supported appropriately.

The paper seeks to define national considerations in relation to climate change and

cities. For the purposes of promoting discussion, it outlines a possible national

agenda in urban policy and climate change. Such an agenda is inherently

interdisciplinary and will inevitably involve a range of government departments and

agencies at all levels. The broader context must be understood so that the roles and

responsibilities of each contributing agency can be defined clearly.

The paper concludes by exploring potential contributions by the Department of

Climate Change and Energy Efficiency, in partnership with other agencies, to

facilitate the transition to a low carbon and resilient urban future, including:

developing national climate change and urban growth outcomes


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facilitating education and research in planning for climate change

contributing to the implementation of the Council of Australian Governmentsdecisions on strategic urban planning and disaster mitigation.

The issue of climate change and growing cities is interdisciplinary and inter-

sectoral. In Australia, we need to connect urban and regional planning, climate

change mitigation and adaptation, and emergency management. The quality of thepartnerships developed between government, nongovernment, business and

industry, the training sector and the community, are critical. The Australian

Government can play a strategic and important leadership role in linking these

groups to facilitate the implementation of national climate change objectives.


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1 Introduct ion

Two major global phenomena urbanisation and climate change require a new

emphasis on the planning of Australian settlements and a new partnership between

the three levels of government in Australia. The intersection of these challenges inour cities presents significant threats and opportunities in tackling climate change.

As a recent Organisation for Economic Co-operation and Development (OECD)

paper states: Cities are part of the climate change problem, but they are also a key

part of the solution (Kamal-Chaoui and Robert 2009:3). Furthermore, how cities

develop matters to the delivery of a low-carbon, climate resilient future, and it will

also determine the feasibility of sustainable economic development across the

OECD and worldwide (Corfee-Morlot et al 2009:8).

1.1 Context

Climate change poses significant threats to the physical infrastructure and social

fabric of our towns and cities. Settlements and infrastructure will be affected by

changes in climate conditions, including extreme weather events. Climate change is

likely to result in increased damage to buildings (eg concrete joints, steel, asphalt),

energy services, telecommunications, transport structures (eg roads, railways, ports,

bridges) and water services (Thom et al 2009).

The 2009 Victorian bushfires and the high temperatures in Adelaide at the time

provide an indication of possible fatal consequences of extreme weather events.

Coastal settlements and infrastructure will be especially vulnerable to the effects of

climate change sea-level rise, increased air and sea surface temperatures,

increased storm intensity, ocean acidification, and changes to rainfall and runoff.

Sea-level rise will cause increased coastal inundation, erosion, loss of wetlands andsalt-water intrusion into freshwater sources, with impacts on infrastructure, coastal

resources and existing coastal management programs.

It will be critical to develop appropriate mitigation and adaptation responses to

reduce the impacts of climate change on settlements and infrastructure. The

Australian Government is taking a lead role in a national approach to mitigation to

reduce greenhouse gas emissions. Attention is now turning to possible adaptation

responses, or a mix of mitigation and adaptation measures, in relation to cities.

A range of measures have already been identified, including revising, renewing and

enforcing building codes to take account of changing climatic conditions,introducing more consistent planning measures (eg planned retreat, dune

management, building designs, regulation of new structures), and managing urban

growth in climate-sensitive areas through zoning and regulation. However, there

remains much to be done and the process will present opportunities, especially in

the implementation of adaptation responses and the promotion of shifts in the

behaviour and expectations of urban, regional and remote populations. As stated inBusiness Week:

Perhaps the greatest design opportunity the economic stimulus can give us isfor green and sustainable design to become an automatic and essential part of

the architecture of new buildings, not just an added extra (Schubert 2009).


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The 2010 Intergenerational ReportAustralia to 2050: Future Challenges highlights

significant population growth projected to reach 35.9 million in 2050 (Australian

Government 2010:5). Most of this growth will occur in our cities and will place new

demands on infrastructure, housing, and water and energy supply. The Australia

Government through the Council of Australian Governments (COAG 2009)

recognises the future challenge of creating sustainable cities in the context of

urbanisation and climate change, and has begun a process of national urbanplanning reform:

The Australian Government is committed to creating cities that are productive,

liveable, and sustainable. By 2012, each capital city will have a strategic

planning system that addresses housing affordability, tackles urban congestion,

deals with climate change and meets important national criteria (Australian

Government 2010:13)

The pressures of increasing urbanisation and climate change, combined with

projections of significant increases in population for Australia, necessitate a

transdisciplinary approach to urban growth management climate science,

emergency management, urban and regional planning, city design, governance, and

economic and social policy. Although the focus of this paper is on climate change

and cities, it recognises the multidimensional nature of the policy issues involved.

In this context, the paper seeks to define the positive contribution that national

climate policy can make in creating more sustainable cities.

The process of urbanisation is a long-term trend in Australia. Over 80 per cent of

Australians live in urban settlements. More than 86 per cent of the population lives

by the coast. The growth of Australian capital cities continues to be significant, with

metropolitan Melbourne expecting to reach five million by 2030 (DPCD 2009). The

Australia State of the Environmentreports in 1996, 2001 and 2006 expressed

concern about the impact of the continued expansion of the major capital cities and

the urbanisation of the coastline. In relation to human settlements, the State of theEnvironment Report 2006(DEH 2006:18) concluded in part that:

population growth and urban expansion, particularly in coastal areas and capitalcities, are placing increasing pressure on the environment

the design of urban areas has a significant impact on their efficiency andenvironmental impact and some progress has been made towards recognising

this fact in new developments, but the legacy of past urban and building design

will continue to impact on the environment.

The State of the Environment Report 2006recommended a strong policy response

of strategic urban planning:

Much urban environmental progress can be achieved by adopting strategies

that reduce the harmful impacts of unsustainable consumption on the

environment and nationally recognising that urban form and liveability have apowerful influence on human settlements. The development and

implementation of an Australian Government policy on cities would provide

leadership and guidance to the other two levels of government, as well as to

developers, producers and consumers so as to achieve a common approach to

the creation of sustainable settlements (DEH 2006:4).

Climate change has brought a significant new dimension to the urban problem.

Sea level rise, rising temperatures and projected more extreme weather events

(Pachauri and Reisinger 2007) are some of the significant future impacts on cities.The economic, social and environmental costs of extreme weather events in 2009


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have highlighted some of the policy challenges. Extreme heatwaves, severe

flooding and devastating bushfires have had substantial impacts on urban and

regional communities. Although these specific events may not be directly

attributable to climate change, they provide some insight into challenges that urban

settlements may face in the future.

Building more resilient urban settlements and communities will require a range of

adaptive measures, including urban planning and management responses.

Internationally, considerable action is occurring at the city level to examine new

ways of designing cities to reduce greenhouse gas emissions. Similarly,

international research is occurring on planning for adaptation to accommodate the

impacts of climate change that are already predicted to occur; for example, sea level

rise. Australia is no exception and Australian governments at all levels are

supporting a range of initiatives to strengthen local and regional understanding of

the impacts and the mechanisms to climate-proof urban settlements.

1.2 Purpose of the discussion paper

The purpose of this discussion paper is to provide some insight into the challengesof increasing urbanisation and climate change. It presents a more strategic approach

to settlement planning for climate change in Australia. The paper focuses on cities,

and explores the issues and the barriers to change. It recognises that the impacts of

urbanisation and climate change also bring opportunities to rethink how we manage

future urban growth.

Current Australian initiatives on planning for climate change are outlined here to

provide a benchmark to build upon for future action. Key international initiatives in

the United Kingdom, European Union, Canada, the United States and the Asia

Pacific region are described. The outcome of this discussion paper is to suggest the

contribution the Australian Government and in particular the Department of ClimateChange and Energy Efficiency (DCCEE) could make to facilitate the transition to a

low carbon and resilient urban future.

1.3 Approach to the discussion paper

This discussion paper is designed to stimulate discussion on the critical issue of how

we respond to the twin challenges of urbanisation and climate change in Australia:

Chapter 1 outlines the purpose of the paper and its approach to the twinchallenges of urbanisation and climate change

Chapter 2 provides examples of Australian initiatives in planning for climatechange, to establish a benchmark for developing a more integrated approach

Chapter 3 identifies barriers to change in urban growth management in thecontext of climate change

Chapter 4 provides insight into international initiatives in responding tourbanisation and climate change, to inform the national policy agenda

Chapter 5 identifies a role for the Australian Government and DCCEE tofacilitate a new approach that addresses the challenges of planning for

urbanisation and climate change, and suggests a way forward.

Incorporating climate change considerations into city form and structure is a task

that is multisectoral and interdisciplinary. It will involve the urban design

professions, government, industry, and the building and construction sector. It is


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also multijurisdictional and will involve the nations capital cities and the growing

conurbation (where larger and smaller cities and towns are merging to form

continuous urban development) on the eastern seaboard, involving more than one

state.

Implementing national climate change policy through all eight of the Australian

urban planning systems will require the engagement of all levels of government,

ranging from national infrastructure planning to local adaptive planning responses.

This discussion paper concludes with a possible pathway forward for responding to

climate change when planning and rebuilding Australian urban settlements.


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2 Austral ian ini t iat ives on urbanplanning and cl imate change

The remit of DCCEE is to coordinate Australias response to climate change

nationally, with the involvement of all levels of government. The urban planningand design of Australian cities has, in the past, been regarded as a state or territory

and local government responsibility. However, recently (in December 2009) the

Australian Government re-engaged directly with national urban and cities policy,

due to significant decisions made by the Council of Australian Governments

(COAG), including:

establishing a set of national criteria for future strategic planning of capitalcities (Appendix 1)

a related statement on national disaster resilience (Appendix 2).

As the science of the Intergovernmental Panel on Climate Change (IPCC) developsfurther on climate change and Australian cities continue to grow, the question is

what role can the Australian Government have in partnership with state, territory

and local governments to provide a more strategic approach to settlement planning

for climate change?

Some Australian initiatives on urban planning and climate change

Council of Australian Governments and planning ministers decisions on national

urban reform (from December 2009)

House of Representatives Inquiry into Climate Change and Environmental

Impacts on Coastal Communities (October 2009)

Department of Climate Change and Energy Efficiency programs on coastal

vulnerability, local adaptation pathways, integrated assessment of settlements,

national climate change research and planning for climate change capacity

building

Australias Solar Cities program

Infrastructure Australia (established under the Infrastructure Australia Act 2008)

and the Major Cities Unit

the Victorian Climate Change Green Paper(June 2009)

the South East Queensland Climate Change Management Plan Draft for PublicConsultation (July 2009)

the Climate Change Strategy 20092014, Gold Coast City Council

various capital city urban planning and climate change programs

2.1 National initiatives

Australia has a long tradition of urban planning that has benefited the quality of

urban planning and design of Australian settlements. The new challenges presented

by climate change have significant implications for the future design of cities and

towns. Future strategies will involve a mix of mitigation and adaptation measures,and will involve all three levels of government.


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Planning for climate change is now a global issue, and many nations are developing

urban policy responses to climate change. On the issue of urban growth

management, the Australian Government has established Infrastructure Australia to

provide a national approach to planning, funding and implementing the nations

future infrastructure needs. The Major Cities Unit provides advice to the Australian

Government and Infrastructure Australia to identify opportunities where federal

leadership can make a difference to the prosperity of our cities and the wellbeing oftheir residents (DITRDLG 2009).

Some of the key initiatives in Australia are provided here, although this is not

intended to be a comprehensive list. Rather, it demonstrates that a wide range of

governments and nongovernment organisations are engaged in this field of public

policy, which is expected to grow along with increasing urbanisation and impacts of

climate change.

Climate change is a cross-sectoral issue and will at some stage involve nearly every

government agency. However, at the national level, key government departments

include:

Department of Climate Change and Energy Efficiency

Department of Prime Minister and Cabinet

Treasury

Attorney Generals Department

Department of Environment, Water, Heritage and the Arts (DEWHA)

Department of Infrastructure, Transport, Regional Development and LocalGovernment (DITRDLG)

Department of Families, Community Services and Indigenous Affairs

(specifically housing policy).

DCCEE is the lead coordinator of national government action on climate change,

with a focus on mitigation and adaptation. DCCEEs overall approach is threefold:

...reduce greenhouse pollution in Australia in the short and long term, work with

the international community to develop a global response that is effective and fair

and prepare for the climate change that we cannot avoid (DCCEE 2009).

In relation to urban settlements and climate change, there are several relevant

DCCEE initiatives, including:

the coastal vulnerability program

the local adaptation pathways program

the integrated assessment of settlements subprogram

national climate change adaptation research on settlements and infrastructure

the climate change adaptation skills for professions program, including forurban planning and design professionals.

DEWHA has a wide range of programs on sustainability and human settlements,

including energy efficiency for housing and commercial buildings, urban transport

and renewable energy. A key example for urban planning and climate change is the

Australias Solar Cities program. These contribute significantly to DCCEEs broadclimate change mitigation and adaptation-related goals.


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Australias Solar Cities

Australias Solar Cities is a program designed to assist communities explore and

demonstrate new approaches to generating and delivering energy to urban and

regional settlements. In 2009, there were seven designated solar cities Alice

Springs, Blacktown, Central Victoria, Moreland, Perth and Townsville. The program is

currently funded until 2012 (DEWHA 2009).

www.environment.gov.au/settlements/solarcities/index.html(accessed June 2009)

The decisions of Infrastructure Australia and the work of the Major Cities Unit will

influence the future design and shape of Australian settlements. Mitigation and

adaptation measures for urban and planning change will need to be an integral part

of the agenda. Both initiatives indicate a renewed interest at the national level in

Australian cities. In addition to the COAG decisions of December 2009, the Local

Government and Planning Ministers Council (LGPMC) has also resolved to

develop a national urban policy, and to take a intergovernmental approach to the

question of urban planning and climate change (see LGPMC Communiques, Mayand October 2009).

1

Alongside these Australian Government programs, major Commonwealth

parliamentary inquiries have also recommended a more strategic approach to

settlement planning, including considerations of climate change. These include the

House of Representatives inquiries:

Sustainable Cities 2025 (in 2005)

Sustainability for Survival: Creating a Climate for Change (in 2007)

Climate Change and Environmental Impacts on Coastal Communities (in 2009).

Climate Change and Environmental Impacts on Coastal Communities (2009)

Recommendation 16

The Committee notes that major initiatives relating to climate change adaptation risk

assessment and infrastructure are currently in progress. Given that much of

Australias infrastructure is in the coastal zone and the particular threats facing the

coastal zone from climate change, involving significant socioeconomic costs, the

Committee recommends that the Australian Government ensure there is a

comprehensive national assessment of coastal infrastructure vulnerability to

inundation from sea level rise and extreme sea level events

A report on theInfrastructure 21 Summit Infrastructure 21: From

Incrementalism to Transformational Change (ADC 2009) was prepared by the

Australian Davos Connection with contributions from a wide range of

constituencies. The report confirmed the need for a more integrated approach to

infrastructure and urban planning and the significance of planning for climate

change. In considering Transforming Australian Cities for a more sustainable

future, it recommended a new approach to city design supported by a more

nationally consistent planning framework enhanced by a national spatial plan (ADC

1 www.lgpmcouncil.gov.au/communique/
http://www.environment.gov.au/settlements/solarcities/index.htmlhttp://www.environment.gov.au/settlements/solarcities/index.htmlhttp://www.environment.gov.au/settlements/solarcities/index.html


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2009:21). The need to transform our cities through a more integrated approach to

urban transport was a major recommendation in the December 2008Report to the

Council of Australian Governments by Infrastructure Australia (Adams and Loader

2009).

2.2 State, regional and local initiatives

Climate change is already a major national issue. Urban planning for Australian

cities is also becoming a national issue. Climate change plans have been developed

for several capital cities, and state and territory governments are at various stages of

incorporating climate change into state and metropolitan urban planning. These are

a range of leading initiatives in connecting climate change adaptation and mitigation

with urban and regional planning.

There is still considerable work to be done in translating these plans from policy to

on-the-ground implementation. A future strategy might be to provide targeted

funding programs to facilitate the implementation of national policy at the local

level. This would be particularly useful where successful implementation can

provide tangible case studies that other jurisdictions can learn from.

Victorian Climate Change Green Paper

The VictorianClimate Change Green Paperplaces significant emphasis on the

potential for planning and infrastructure decisions to improve water and energy

efficiency (DPC 2009:40). It argues that the structure and form of Australian cities

will have a direct impact on climate change.

The paper focuses on incorporating both mitigation and adaptation measures into

the urban planning system. This includes reviewing urban planning processes, urban

design and infrastructure provision (including retrofitting the existing builtenvironment), increasing the resilience of urban form and providing relevant

evidence-based ongoing research into adapting our built environment and

infrastructure. It is also argues for increasing professional and industry skills, and

wider community capacity to adapt to climate change. This process will require an

integrated approach to city planning.


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South East Queensland Climate Change Management Plan

The South East Queensland Climate Change Management Plan Draft for Public

Consultation (DIP 2009a) is a regional action plan containing draft actions to

implement the climate change policies of the South East Queensland Regional Plan

20092031. It is ambitious in addressing the significant climate change impacts for

the region. The draft plan highlights the impacts of sea level rise and storm surge,

reduced water availability and increased temperatures (DIP 2009:9).

As in the Victorian green paper, a mix of mitigation and adaptation measures is

proposed, which can be undertaken to make the transition to a more low carbon and

resilient urban future. A suite of actions is based on two themes: reducing

greenhouse gas emissions, building resilience to natural hazards and adapting to

climate change. Mitigation measures are proposed for urban transport, energy

efficiency, renewable energy and community awareness. Adaptation measures

include managing coastal hazards and extreme weather events, and building

resilience through awareness and behavioural change.

This draft plan confirms the increasing awareness that influencing the planning anddevelopment of our cities will require a range of measures across portfolios

(transport, environment, urban planning, housing, energy, water). The regional

approach is a model of how to integrate these measures and effect change.

Sustainable Sydney 2030 and Melbourne 2030

The Planning Institute of Australia (PIA) National Awards for Planning Excellence

provide an indication of emerging best planning practice in Australia. The

Presidents Award in 2009 was jointly awarded to the Cities of Sydney and

Melbourne for their most recent capital city plans Sustainable Sydney 2030 (City

of Sydney 2008) and Future Melbourne Community Plan (City of Melbourne2008). Both plans adopt a triple bottom line approach to city planning and

development encompassing economic, environmental and social considerations

including the theme of planning for climate change.

The City of Melbourne (see box) provides a particularly comprehensive approach

from strategy to policy to action.

City Melbourne: a comprehensive approach to planning and climate change

Award winning Future Melbourne Community Plan (2008) andwiki (www.futuremelbourne.com.au)

City of Melbourne Climate Change Adaptation Strategy(April 2009, adopted

June 2009)

Aims to become a zero net emissions city by 2020

Retrofitting 1200 existing commercial buildings by 2020 in the 1200 Buildings

program


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Figure 2.2 Northern Green Faade, Melbourne City Council Chambers - 6 star environmentalCouncil Chambers for Melbourne City Council. Photo courtesy of Ronstan Tensile Architecture

Far North Queensland Regional Plan 2025

The PIA Planning Ministers Award went to the draft Far North Queensland

Regional Plan 2025, developed by the Queensland Department of Infrastructure andPlanning. This is now a major non-metropolitan plan with a strong focus on urban

planning and climate change (DIP 2009b).

Gold Coast City Council Climate Change Strategy 20092014

The Gold Coast City Council Climate Change Strategy 20092014 is one of the

most comprehensive local plans for climate change. It takes a strategic approach to

climate change mitigation and adaptation, by addressing five key areas

(GCCC 2009):

governance and leadership

research

advocacy and awareness

infrastructure

planning and regulation.

Specific actions of the strategy include reviewing the corporate governance

framework, incorporating risk mitigation and adaptation, and incorporating climate

change considerations into local transport plans. Other measures are to amend

design standards for council infrastructure and to construct all new council

buildings to a standard that is better than the Australian Greenhouse Building

Rating of 5 stars.


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By taking a whole-of-council approach, the Gold Coast City Council has

demonstrated the extensive impact of climate change will have on the Gold Coast

and provides a template for other local governments in Australia.

2.3 Initiatives by the insurance industry and the built environmentprofessions

The insurance industry is understandably concerned with the impacts of climate

change, particularly in relation to extreme weather events. The Insurance Council of

Australia has prepared a reportImproving Community Resilience to Extreme

Weather Events (ICA 2008) that focuses on two strategies:

risk management of the built environment

policies and human behaviours that underpin community resilience to extremeweather events.

In the report, the Insurance Council of Australia recommends that governments

implement:

risk-appropriate land use planning legislation harmonised across the states toprevent inappropriate development on land subject to inundation

a southerly expansion of cyclone and wind storm-related building codes tocounter the predicted southerly expansion of severe cyclones

harmonised legislation across all states requiring mandatory disclosure of allknown and predicted risk data by state and local governments to property

purchasers during property conveyance and title search processes (ICA

2008:17).

A very significant increase in urban development has occurred in some Australiancoastal environments in recent decades.

Townsville 2009


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The insurance industry supports a strengthening of the relationship between

emergency management and the planning and design of urban settlements. This key

issue was raised in the submissions to the 2009 House of Representatives Inquiry

into Climate Change and Environmental Impacts on Coastal Communities and the

2009 Victorian Bushfires Royal Commission.

The parliamentary inquiry released its final reportManaging Our Coastal Zone in a

Changing Climate in October 2009, which included a number of recommendations

in relation to climate risk and insurance (Recommendations 1923).2

Although these major inquiries are specific to the coast or bushfires, patterns of

urban settlement and predicted urban growth rates mean that there will be an

increasing number of people living in high-risk areas. This includes the urban

periphery of capital cities, rapidly growing coastal urban areas (eg Mandurah, Surf

Coast, Gold Coast) and some regional growth centres (eg Geelong and surrounds).

These are now

subject to government consideration. The 2009 Victorian Bushfire Commission

initially focused on emergency response issues, but in 2010 is moving into the

broader issues of land use planning.

Built environment professional organisations, including the Planning Institute of

Australia (PIA), the Royal Australian Institute of Architects and the Institution of

Engineers, have all recognised the need for members to upgrade design skills for

planning for climate change; for example, PIA conducted a series of training

workshops on planning and climate change in 2006 and 2007. There is already an

identified shortage of trained urban planners and engineers within Australia that

needs to be addressed in the context of growing cities and climate change. The

design professions are working together on these issues and host an annual meeting

with the Australian Parliament (Built Environment Meets Parliament).3

2www.aph.gov.au/house/committee/ccwea/coastalzone/report.htm

3 See www.bemp.com.au


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3 Barr iers to planning for cl imatechange

Transforming our major cities for climate change is a challenge that will take 10 to

15 years or more to implement. The complexity of rapidly growing capital citiesand regional urban growth centres, combined with climate change and evolving

climate scenarios makes for a very dynamic context to effect change. It is

imperative that we begin implementing mitigation and adaptation strategies for

Australian cities. Significant action is already occurring at the city and state level, as

discussed in Chapter 2.

DCCEE is keen to continue contributing to the facilitation of appropriate actions at

the national, state, regional and local levels. First, it is important to define the

barriers to planning for climate change in Australian cities and major urban centres.

3.1 An emerging field of professional expertise

The design and redesign of urban centres for climate change is an emerging field of

professional expertise and research. Urban and regional planning and urban design

are well-established fields in which considerable work is being done internationally

and locally on climate change mitigation and adaptation.

Innovation and one-off projects are being sponsored by capital cities and in some

cases large national corporations (eg Clinton Foundation, Rockefeller Foundation) .

The insurance sector is focused on possible liabilities, particularly from more

frequent and intense extreme weather events. As a step to foster research in this

important area, the Australian Government has established the National ClimateChange and Adaptation Research Facility (NCCARF), which is preparing national

research plans including one on settlements and infrastructure (Thom et al 2009).

These initiatives are important contributions and demonstrate leadership; however,

broader dissemination and uptake of this knowledge is critical to effecting change.

Such change will require collaboration and new partnerships between government,

industry and the university sector. We need to facilitate innovation and

understanding to improve the uptake of climate change mitigation and adaptation

strategies in the planning and development systems.

3.2 National urban planning policy

A significant barrier to planning for climate change in Australia is the lack of a

national urban policy framework. However, national urban policy is being

developed by the Cities COAG Taskforce and the Major Cities Unit at

Infrastructure Australia. Key policy issues include:

public transport

affordable housing

economic productivity

climate change (mitigation and adaptation).

Historically, urban and regional planning in Australia has been managed by state

and territory, and local governments. At times, the Australian Government has


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assumed greater responsibility in relation to cities, notably under the governments

of Chifley (Commonwealth State Housing Agreements), Whitlam (urban area

improvements), and Hawke and Keating (Building Better Cities), and the Rudd

government has recently announced that the Australia Government will take a role

in urban management, based on three future challenges:

building productive cities with efficient transport and communications

networks

building affordable, liveable city communities

building sustainable cities (Rudd 2009:8).

These three challenges are developed further in the COAG Communiqu from

7 December 2009. Specifically, the issue of capital city strategic planning systems

is addressed along with the related areas of housing, climate change and emergency

management for extreme weather events (COAG 2009b). All of these critical policy

areas contribute to the overall theme of this report.

The outcome from the COAG meeting on 7 December 2009 was an agreement to

apply national criteria for capital city strategic planning to re-shape our capital

cities (Appendix 1). The same meeting also agreed to a national disaster resilience

statement that recognises the role of government to include developing and

implementing effective, risk-based land management and planning arrangements

and other mitigation activities (Appendix 2).

A continuing barrier to planning for change is the lack of horizontal and vertical

integration of urban policy, between different agencies and non government bodies

and between different levels of government a national urban policy could

provide this integration. The COAG agreements provide a foundation for achieving

more effective coordination. Population projections for Australia to 2050, which

estimate growth of 14 million people (Australian Government 2010), andconsequent urban growth, require a national perspective on urban settlement. A

national urban policy should provide a major platform for incorporating climate

change adaptation and mitigation policies into state and territory, and local urban

policy, thus in cities. The next challenge is to build a stronger partnership with

industry, and better links between urban and regional planning and the emergency

management sector, to ensure effective on-the-ground implementation.

3.3 Risk and liability

Impending risks and liabilities of climate change are of particular concern to the

insurance sector and local governments. The extreme weather events of 2009 and2010 (bushfires, floods, heat stress) have raised the issue of risk and liability in

relation to land use planning and how we plan and regulate for climate change in

(and on the edges of) major urban centres.

Recent public policy responses to projected sea level rise from the

Intergovernmental Panel on Climate Change predictions (IPCC 2007) are an early

indication of possible change in the regulatory environment for land use planning.

For example, the new statutory planning provision for sea level rise in Victoria

states:

Plan for sea level rise of not less than 0.8 metres by 2100, and allow for the

combined effects of tides, storm surges, coastal processes and local conditions,


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such as topography and geology when assessing risks and impacts associated

with climate change. (VCC 2008:38).

This policy is to be reviewed as scientific data become available.

Barriers to change are twofold:

Planning law in Australia is relatively static, with town planning legislation ineach state and territory reviewed on average every 10 years and metropolitanstrategies every five years.

There is no connection between developments in climate change science and theday-to-day decision making that influences land use activity in cities and

regions.

Urban and regional planning (both strategic and statutory) must be reviewed to

incorporate planning for climate change. As a start, the Local Government and

Planning Ministers Council (LGPMC) asked the Australian Local Government

Association (ALGA) to prepare a report on practical issues facing local

government in dealing with climate change (LGPMC 2009).

3.4 Financing and governing the transition

A barrier to planning for climate change is how to fund the building and rebuilding

of cities and major urban centres. This is relatively new challenge, but it needs to be

integrated into urban and regional planning processes. For example, actions by the

insurance sector may have significant impacts on investment decisions, with

consequences for urban form and location.

The combination of significant population growth and demographic change

(Attorney-Generals Department 2010) will affect growth patterns of our cities.

Population growth may also necessitate increased urban growth in inland regional

centres, given the predicted impacts of climate change, but potential urban growth

centres have not yet been identified. Planning for future urban growth will need to

address critical issues such as water supply and energy, as well as social and

economic factors such as employment opportunities and the provision of health

services and education.

Financing structural change towards a low carbon and resilient urban future will

require the incorporation of climate change mitigation and adaptation responses into

key investment decisions. The building and construction industries, and research

organisations, need to enter the discussion, so that we can better understand possible

levers to shift existing practices towards more climate-sensitive outcomes. Newurban governance arrangements may also be required to manage the increased level

of risk and uncertainty.

There are debates going on currently about planning for coastal climate change (eg

House of Representatives Standing Committee on Climate Change, Water,

Environment and the Arts). All levels of government must be involved in financing

and governing planning for climate change. We need a clear delineation of

responsibilities and a suite of tools and incentives to implement new urban forms

and reduce barriers to planning for climate change.


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It is clear that urban planning for sustainable cities will be a major factor in

reducing emissions and adapting to climate change. Developed and developing

cities are vulnerable to the impacts of climate change and the examples show that

responses are possible at the national and local levels where these are integrated

and mutually reinforcing there is a strong foundation for change.

4.1 United KingdomThe United Kingdom has a national approach to urban planning and climate change.

The Planning Act 2008 (UK) provides the framework for a national spatial

planning system. Under the Act, the government of the United Kingdom can make

national planning statements. (The Act has recently been amended to enable the

government to make national policy statements on matters such as renewable

energy). It also provides for the establishment of an Infrastructure Planning

Commission to make decisions on applications for nationally significant

infrastructure projects.5

The Planning Act 2008 (UK) stems largely from the 2007 Barker Review of Land

Use Planning

6

We need to reduce emissions of greenhouse gases to meet the challenge of

climate change and use our natural resources wisely. At the same time we need

to support economic development so that we can generate high quality jobs in

the context of rapid globalisation. We also need to build more houses so that

people can afford decent homes. And we need to put the right infrastructure inplace to meet our needs for travel, energy, water and public services (UK

DCLG 2007a, Foreword).

and the Planning for a Sustainable Future: White Paper, whichstates the future challenges for the urban planning system:

This quote covers the range of competing policy priorities for urban and regional

planning systems, including climate change mitigation and adaptation.

The Office of Deputy Prime Minister (UK) published the Planning Policy Statement

1: Delivering Sustainable Developmentin 2005 (UK ODPM 2005). This was

followed by the Planning Policy Statement: Planning and Climate Change -

Supplement to Planning Policy Statement 1 (UK ODPM 2007) and the Planning Act

2008. National planning policy in the United Kingdom identifies as key roles for

urban planning, helping to:

secure enduring progress against the UKs emission targets, by direct influenceon energy use and emissions, and in bringing together and encouraging action

by others

deliver the Governments ambition of zero carbon development

shape sustainable communities that are resilient to and appropriate for theclimate change now accepted as inevitable;

create an attractive environment for innovation and for the private sector tobring forward investment, including in renewable and low-carbon technologies

and supporting infrastructure;

5 See infrastructure.independent.gov.uk6

See Reform of the planning system

www.communities.gov.uk/planningandbuilding/planning/planningpolicyimplementation/


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capture local enthusiasm and give local communities real opportunities toinfluence, and take, action on climate change (UK ODPM 2007:9).

Subsequently, two more relevant national planning policy statements were released

the Planning Policy Statement 25: Development and Flood Riskand thePlanning Policy Statement: Eco-towns A supplement to Planning Policy

Statement 1. These planning policy statements supplement earlier statements by

addressing specific challenges for the built environment: increased inundation and

low carbon urban development.

The United Kingdom also adopted a set of nationally agreed shared sustainable

development principles to guide future decision making for all levels of

government. This landmark initiative to address climate change consisted of five

principles:

living within the environment

ensuring a strong, healthy and just community

achieving a sustainable economy

using sound science responsibly

promoting good governance.

Reinforcing this approach, the Royal Town Planning Institute has made seven

commitments on climate change:

promote behavioural change

adapt existing places

work towards responsive legislation and policies

improve current practice celebrate best practice

compile a compendium of best practice

develop climate change education and skills (RTPI 2009).

The United Kingdom has also established the Sustainable Development

Commission (SDC), which is responsible for providing independent advice on

sustainable development to the Prime Minister, the First Ministers of Scotland and

Wales and the First Minister and Deputy First Minister of Northern Ireland.7

The progressive work by the City of London is a good case study of urban planning

and climate change. Commencing with an award winning London Climate Change

Adaptation Strategy 2008, the City of London has more recently undertaken the

City of London Carbon Footprint project to determine the carbon footprint of the

City of London. In the Executive summary, the project report begins with the

statement that Climate change is the biggest environmental challenge facing the

world today, particularly for the worlds major cities, often cited as consuming

A

priority for the SDC is to apply the five principles of sustainable development

agreed to by the Government of the United Kingdom (including Northern Ireland)the Scottish Executive and the Welsh Assembly.

7 www.sd-commission.org.uk


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more than 75%of the worlds energy and being responsible for 80% of greenhouse

gas emissions.8

The draft Climate Change Adaptation Strategy for London (GLA 2010) is

groundbreaking in that it tackles the social, economic and environment aspects of

climate change, and, in a very practical way, documents possible courses of action

at the local level within a broader national framework. Key issues identified for

London include managing flood risks, managing water resources, managing heat

risks and air pollution and managing ground conditions. The City of London is

reviewing local urban planning policies and controls to ensure that they support the

implementation measures for adaptation (City of London 2010).

The Mayor of London released theLondon Plan: Spatial Development Strategy for

Greater London Consultation draft replacement plan in October 2009:9

London has to be ready to deal with a warmer climate, and one likely to be

significantly wetter in the winter and drier during the summer. We also have to

play our part in making sure the extent and impacts of future climate change

are limited. Action taken now and over the period covered by the new Plan

will help reduce what has to be done for the years after that (GLA 2009:21).

United Kingdom initi atives on urban planning and climate change

Planning Policy Statement 25: Development and Flood Risk(2010)

Planning Policy Statement: Eco-towns A supplement to Planning PolicyStatement 1 (2009)

Planning Policy Statement: Planning and Climate Change - Supplement to

Planning Policy Statement 1 (2007)

Planning Policy Statement 1: Delivering Sustainable Development(2005)

Establishment of the Sustainable Development Commission

The London Plan: Spatial Development Strategy for Greater London

Consultation draft replacement plan (October 2009)

The draft Climate Change Adaptation Strategy for London (2010)

The City of London Carbon Footprintproject and report

The City of London Climate Change Adaptation Strategy (2010 update)

4.2 European Union

The European Union (EU) has long taken a leadership role in strategies addressing

spatial planning and climate change. Under the EU, it is now a requirement that

national spatial plans tackle climate change, including the planning systems. As

stated by the President of the European Commission, Jos Manuel Duro Barroso:

action on the economy or action against climate change is a false

dichotomy. These economic and environmental challenges must be tackled

together. Indeed, they are part and parcel of a strategy of smart, sustainable,

8 www.cityoflondon.gov.uk/NR/rdonlyres/CAA2442E-9825-401B-9D17-32DB163D83E4/0/SUS_CarbonFootprintreport.pdf9 www.london.gov.uk/shaping-london/london-plan/docs/london-plan.pdf


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low carbon growth. Low carbon growth must be the hallmark of the post-crisis

economy.10

The European Union has looked at cities and climate change through the EU

Sustainable Development Strategy (renewed and adopted June 2006),

11which is an

overarching strategy for all EU policies which sets out how we can meet the needs

of present generations without compromising the ability of future generations to

meet their needs.12

climate change and clean energy

It covers a range of interrelated matters, including:

sustainable transport

sustainable consumption and production

conservation and management of natural resources

public health

social inclusion, demography and migration

global poverty.

The most recent paper on climate change adaptation by the EU is the White Paper

Adapting to Climate Change: Towards a European Framework for Action (EU

2009a). The White Paper presents the framework for adaptation measures and

policies to reduce the European Unions vulnerability to the impacts of climate

change.13

It also draws upon a range of national adaptation strategies already in

place in Denmark, Finland, Germany, France, Hungary, Netherlands, Spain,

Sweden and the United Kingdom. In June 2009, the Council of the European Union

welcome[d] the Commission White PaperAdapting to Climate Change: Towards a

European Framework for Action as a basis for developing a more strategic

approach to adaptation with the aim of having a European adaptation strategy in

place from 2013 (Section 2).14

The following three examples are EU projects stemming from the EU overarching

strategies about urban planning and climate change. First, the National Programme

for Spatial Adaptation to Climate Change (ARK), coordinated by the Ministry for

Housing, Spatial Planning and the Environment (VROM) in the Netherlands builds

upon the National Spatial Strategy to address the impacts of climate change. The

program states that the overlap between climate-related and spatial planning issues

is giving rise to important new questions and challenges relating both to risks and

opportunities (VROM 2007:1). ARK is concerned with climate proofing of Dutch

spatial planning focusing on the following questions:

The same meeting specifically referred to theimpacts of climate change on urban planning, infrastructure and spatial planning

and stressed the need for cross-sectoral approach (Section 3).

what are the nature and scope of effects that can already be observed and effectsthat are expected to occur?

what spatial issues does this raise?

how can these spatial issues be tackled?

10www.europa-eu-un.org/articles/en/article_8829_en.htm

11 register.consilium.europa.eu/pdf/en/06/st10/st10917.en06.pdf12 ec.europa.eu/sustainable/welcome/index_en.htm13

ec.europa.eu/environment/water/adaptation/index_en.htm14 www.europa-eu-un.org/articles/en/article_8822_en.htm


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what technical, administrative, economic and social dilemmas do we encounterwhen we attempt to solve these spatial issues (VROM 2007:ii)?

TheNational Spatial Strategy for Ireland 2002 2020 is also concerned with

limitations on greenhouse gas emissions in the context of the [Irish] National

Climate Change Strategy, measures to support sustainable agriculture, and

initiatives to address the impact of transport on the environment in the wider

context of providing a coherent national planning framework to achieve a better

balance of social, economic and physical development supported by more effective

planning (IDEHLG 2001).

Second, the European Green Capital Awards is a tangible program where cities are

evaluated against a list of environmental criteria and one city is selected as the

European Green Capital of the year. The program brings together urban planning

and climate change challenges. The first winner of the European Green City for

2010 is Stockholm and Hamburg has been selected as the winner for 2011. The EU

states that the winner had a track record of integrated urban management, credible

green credential and ambitious plans for the future (EU 2009b).15

Third, the ADAM project (adaptation and mitigation strategies), which ran from

2006 to 2009, was funded by the European Commission. Under the project, 24

European research institutions examined strategies for climate change mitigation

and adaptation, and assessed and developed climate change policy options (ADAM

2009).

The award

provides an incentive for cities to be recognised for their achievements insustainability and gives a positive marketing image for subsequent investment.

The final report of the ADAM project draws a number of important conclusions. It

emphasises that effective climate policy involves a portfolio of both adaptation and

mitigation activities (ADAM 2009). More specifically, in relation to urbanplanning and climate change, the report concludes that scenario planning can be

very useful in assessing potential synergies and tradeoffs in more detail (e.g.

climate impacts on bio-energy; integrated urban planning; hydropower). The

important point emerging from this research is to confirm the importance of

involving stakeholders (including urban planners) in any adaptive management

process for capacity building.

European init iatives on urban planning and climate change

European Green Capital Award (from 2010)

European Commission White Paper Adapting to Climate Change: Towards aEuropean Framework for Action (2009)

The ADAM project (20062009)

EU Sustainable Development Strategy (renewed and adopted June 2006)

National spatial plans and national adaptation strategies (eg the Netherlands)

15 ec.europa.eu/environment/europeangreencapital/docs/apply/jury-report_2010_2011.pdf


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During 2009, the Canadian Government launched the EQuilibrium Communities

Initiative to provide financial, technical and promotional assistance to sustainable

community projects selected through a national competition to showcase the

talents and innovation of Canadian residential developers, planners, designers and

municipalities. 19

energy

It is a joint project of the Canada Housing and Mortgage

Corporation and Natural Resources Canada. Six neighbourhood development

projects selected through the competition will be judged on:

land use and housing

water, waste water and storm water

transportation

natural environment

financial viability.20

The EQuilibrium Communities Initiative is a good example of a nationally funded

cross-sectoral project aimed at developing professional skills and excellence,delivering benefits to local communities and increasing resilience to climate change.

Canadian initiatives on u rban planning and climate change

Building Resilience to Climate Change in Human Settlementsprogram (2009)

EQuilibrium Communities Initiative (2009)

Sustainable Development Strategy 20072009

From Impacts to Adaptation: Canada in a Changing Climate 2007

Sustainable Development Act 2008

4.4 United States

On 27 July 2010, President Obama placed climate change clearly on the national

agenda in the United States with a proposed climate change bill; however, this has

not yet been accepted into legislation. The report Global Climate Change Impacts in

the United States previously outlined a range of climate impacts and the

interrelationship with population growth and urban settlements:

Climate change will interact with many social and environmental stresses.

Climate change will combine with pollution, population growth, overuse of

resources, urbanization, and other social, economic, and environmentalstresses to create larger impacts than any one of these alone (Karl et al.

2009:101).

The report makes ten key findings, two of which are particularly relevant to urban

planning and climate change:

coastal areas are at increasing risk from sea level rise and storm surge(Finding 6)

climate change will interact with many social and environmental stresses(Finding 8).

19www.ecoaction.gc.ca/equilibrium-eng.cfm

20 www.cmhc-schl.gc.ca/en/inpr/su/eqsucoin/index.cfm


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These findings are just as relevant in Australia; they confirm the need to develop

much stronger links between urban planning and climate change. Importantly the

report calls for a rethink of urban planning as a result of climate change:

The movement of populations into harms way creates a rising baseline of

insured losses upon which the consequences of climate change will be

superimposed. These observations confirm a recurring theme in this report: the

past cannot be used as a basis for planning for the future (Karl et al.2009:105).

Global Climate Change Impacts in the United States documents a range of case

studies throughout the United States, placing a significant emphasis on urban

planning policies and processes to deal with the impacts on infrastructure and

development of climate change, including urban heat stress and sea level rise. It

concludes that there is a substantial gap between the available information about

climate change and the development of new guidelines for infrastructure such as

housing, transportation, water systems, commercial buildings, and energy systems

(Karl et al. 2009:156).

In the United States, urban planning and climate change are being specifically

addressed at the city level. The New York City plan (PlaNYC)21

and the New York

City Panel on Climate Change (NYCPCC) are examples of serious attempts to bring

the issues of urban planning and climate change closer together. The New York

example provides a possible template for a more integrated approach to planning for

climate change. The PlaNYC Progress Report 201022 foreshadows the release of the

comprehensive Climate Change Adaptation in New York City: Building a Risk

Management Response .23

The NYCPCC was established during 2008 as a key recommendation of PlaNYC.

With the financial support of the Rockefeller Foundations Developing Climate

Change Resilience program, the New York City Council has established a panelincluding a wide range of stakeholders to prepare a climate plan of action for the

city. Its first major report- Climate Risk Information focuses on future risks to city

infrastructure (NYCPCC 2009). In its opening statement, the report states that

Climate change poses a range of hazards to New York City and its infrastructure.

These changes suggest a need for the city to rethink the way it operates and adapts

to its evolving environment.

The City of Chicagos Chicago Climate Action Plan is another example that has

been inclusive in its approach, focussing on five key areas:

energy efficient buildings

clean and renewable energy sources

improved transportation options

reduced waste and industrial pollution

adaptation. 24

21 www.nyc.gov/html/planyc203022 www.nyc.gov/html/planyc2030/downloads/pdf/planyc_progress_report_2010.pdf23

Click through from www.nyc.gov/html/planyc2030/html/downloads/download.shtml24 www.chicagoclimateaction.org


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There are a number of programs within the Chicago Climate Action Plan, many

involving urban planning. The City of Chicago has prepared a guide outlining the

experience of preparing its climate action plan Chicagos Guide to Completing

an Energy Efficiency and Conservation Strategy (City of Chicago 2009).

These city climate change plans are indicative of a range of projects occurring

throughout the United States at the local level. The connection between urban

planning and climate change is integral to implementing these plans and the work

being done at the national level. Links between these two levels of government is

critical to achieving long-term change. The United States climate change bill is

generating broader discussion on how to incorporate national measures into

citywide urban measures, to help deliver the national objectives of climate change

mitigation and adaptation.

United States initiatives on u rban planning and cl imate change

White House Office of Urban Affairs 2009

United States climate change bill 2009

Global Climate Change Impacts in the United States report 2009

New York Panel on Climate Change 2008

PlaNYC (from 2009)

Chicago Climate Action Plan (from 2006)

4.5 Asia-Pacific region

In the Asia-Pacific region, a considerable number of national or city-specific,

projects have been set up with particular focuses on the impacts of sea level rise,

extreme weather events, desertification and the planning for urbanisation andclimate change. There are too many to be summarised here. International

organisations, such as United Nations agencies and the World Bank, are involved,

which indicates the importance of urbanisation and climate change in the Asia-

Pacific region, where cities are expanding rapidly as evidenced in the United

Nations State of Worlds Cities 2008/2009: Harmonious Cities (UN-HABITAT

2009a) and State of Worlds Cities 2009/2010: Bridging the Urban Divide (UN-

HABITAT 2010).

At the international level, the World Bank with partners including the Organisation

for Economic Co-operation and Development (OECD) and UN-HABITAT hosted

the urban research symposium Cities and Climate Change: Responding to anUrgent Agenda in 2009 to better understand climate change and cities. The

symposium focused on five research clusters:

understanding and measuring how cities impact, and are impacted by, climatechange

planning efficiently and effectively to increase the resilience of cities

improving management, coordination, and planning of cities to meet climatechange challenges

understanding how and why cities respond to climate change

understanding and reducing vulnerability of urban populations to climatechange.


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At the regional level, the UN and World Bank are supporting a range of initiatives

to better understand the impact of climate change on communities and to develop

mitigation and adaptation measures. Partnerships in Environmental Management for

the Seas of East Asia (PEMSEA) is one such initiative, which is an example of

regional cooperation in Australias immediate region, PEMSEA has built up shared

knowledge and experience in the Southeast Asia-Pacific region on integrated

coastal management through partnerships between governments, agencies andacross a range of sectors. In the past, PEMSEA has focused on the environmental

challenges of coastal management, but now is also interested in planning for climate

change. This is not surprising given that most urbanisation is occurring on

coastlines.

PEMSEA organised the East Asian Seas Congress 2009 with the theme:

Partnerships at Work: Local Implementation and Good Practices in the Philippines

in November 2009. At the congress, the third PEMSEA Ministerial Forum

Adaptation to Climate Change through Integrated Coastal and Ocean Management

focused on increasing ecosystem resilience. The Manila Declaration, signed by

Cambodia, China, Korea, Indonesia, Japan, Lao, Philippines, Korea, Singapore,

Timor-Leste and Vietnam, resolved in part to recognize that our region needs toenhance its capacity building efforts in order to adequately reduce the risks posed

by climate change to sustainable development (PEMSEA 2009). Such agreements

by neighbouring nations are relevant to developing Australian policy responses,

particularly in relation to adaptive planning for low-lying urban areas in the Asia-

Pacific region.

Although land use systems in the Asia-Pacific region are generally different to

Australian urban planning systems, there are opportunities for shared knowledge

and understanding on these critical issues. There are also avenues for Australian

engagement in programs, such as participation by Australian firms in the carbon

neutral sustainable city Dongtan, near Shanghai in China.

Asia-Pacific initiatives on urban planning and c limate change

Manila Declaration at the East Asian Seas Congress 2009 on adaptation toclimate change through integrated coastal and ocean management 2009

World Bank urban research symposium Cities and Climate Change: Respondingto an Urgent Agenda 2009

United Nations and World Bank funding programs on climate change and

communities

Partnerships in Environmental Management for the Seas of South East Asia(PEMSEA)

Dongtan near Shanghai, China, a carbon neutral sustainable city.

4.6 C40 Cities Climate Leadership Group

C40 Cities Climate Leadership Group is a network of large cities including

Melbourne and Sydney committed to addressing issues of climate change. It is

supported financially by the Clinton Climate Initiative.


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Key initiatives of C40 Cities include:

the Carbon Finance Capacity Building program with a three-year objective ofraising awareness and examining how carbon finance activities could work

effectively at a city level

the Climate Positive Development Program, initiated to meet the dualchallenge of rapid urban growth and climate change by setting a new global

benchmark for leadership in large-scale urban development

the Clinton Climate Initiative City programs to help C40 cities create andconsume energy more sustainably.

The C40 Cities group hosts C40 Large Cities Climate Summits for mayors, senior

staff and business leaders from major cities. In Copenhagen, at the UN Climate

Change Conference in December 2009, the City of Copenhagen hosted the

Copenhagen Climate Change Summit for Mayors with cooperation from C40 Cities

and ICLEI Local Governments for Sustainability.

Sydney 2008


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5 Nat ional engagement in urban pol icyand cl imate change

The examples discussed in previous section provide an insight to international and

national experience on urban planning for climate change, with a wide range ofapproaches. The challenge is to identify the contributions that climate change

policies can make to building more sustainable and resilient cities in Australia.

As discussed elsewhere in this paper, urbanisation and climate change are two

major global challenges for national policy, as evidenced by the 2010

Intergenerational Report on demographic and population growth (Australian

Government 2010) and the outcomes of the Climate Change Conference 2009 in

Copenhagen. They present significant policy challenges for a sustainable urban

future, but also significant opportunities to make the transition to a low carbon and

resilient urban future.

This section draws upon the discussion from the previous sections barriers to

planning and possible policy responses, Australian and international initiatives in

urban planning and climate change to outline a possible pathway for the

Australian Government on planning for climate change and cities. A particular

focus is the role the Australian Government can play in facilitating planning

responses at all levels of government, and with industry and the community.

Australia is one of the most urbanised nations in the world (DEH 1996, 2001, 2006)

and the impacts of climate change are projected to affect major urban areas. Given

the high levels of engagement by global organisations and leaders, and the range of

activities already occurring at the state and local level, the Australian Governmenthas the opportunity to provide the critical connection between the global and the

local, to build an effective bridge to facilitate action on planning for climate change.

In reviewing some of the international and Australian experiences discussed in this

paper, a number of key points emerge:

National policy frameworks for both urban settlements and climate changeplanning exist, and many countries have the equivalent of a national sustainable

development strategy (United Kingdom, European Union, Canada, United

States)

A combination of mitigation and adaptation strategies are necessary for

managing climate change and cities.

Urban planning needs to be better connected with emergency management toplan for more extreme weather events.

New locations for urban development need to be identified, to accommodate thepossible relocation of existing urban communities after extreme weather events

and to accommodate the pressures of urban growth in existing metropolitan

areas. A national settlements policy would place Australia in a better position of

preparedness in the event of disaster.

Many global organisations and governments at all levels are engaged inidentifying and funding programs so that urban and regional planning systems

are better equipped to respond to climate change.


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There is increasing global and regional cooperation in sharing knowledge andlearning between nations and cities (eg C40 Cities, PEMSEA, UN-HABITAT,

Clinton Climate Initiative).

Professional and industry training is required to develop skills to meet thedemands of building carbon neutral and more resilient built environments.

Best practice programs and projects should be funded to demonstrate andrecognise innovation, particularly at the regional and local level (eg EU Green

Capital City awards, national awards, funding by philanthropic organisations,

DCCEE Local Adaptation Pathways Program).

The Australia Government has an important role in providing a strategic approach

to settlement planning for climate change. This paper raises some discussion points.

Many are not new, but have been recommended in various forms over the last

decade of national inquiries into urban policy, cities and climate change. Issues are

also been raised around the growing body of research on coastal development and

climate change, and the need for a national approach to climate change and coastal

communities (G

low carbon resilient urban future

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