NR is also a multidimensional concept. It is characterised by its complexity and, fluidity and it may involve a large number of agents interacting in a formal and/or informal way. Further, it has a strong sense of spatiality as it reaches worldwide, taking different shapes in different parts of the world (Soderbaum, 2003).
Historically, when analysing the growth of a region, the focus was made in economic drivers leaving behind a large list of social, environmental, and even political issues (Rannie and Grobbelaar, 2005). However, due to the challenges and needs of the current era and because of the increasing willingness - or need - to achieve sustainable planning (Kozlowski & Peterson, 2005) we are witnessing a slow change in regard to regional planning.
Indeed, NR per se counts on implementing holistic approaches when planning in order to get more sustainable outcomes. In other words, NR considers the inclusion of environment, social and economic issues when planning in a specific region, especially among those regions that are less favoured (Morgan, 2005). NR is a new kind of region management supporting the creation of strong networks that allows the interaction of environmental, social and economic concerns (Peterson et al, 2007). Moreover, Morgan (2005) stated that every agent involved directly or indirectly with regional issues has a role to play in the achievement of this goal. Nonetheless, it is worth considering that ‘there is no clear and accepted view of just what NR consists of’ (Rainnie and Grant, 2004, pp.9). Therefore it is not easy to define it with strictness. In fact, the term of ‘region’ is elusive by nature (McLeod, 2001).
In this particular case, the theory of NR would be use to evaluate the South East Queensland Report Water Supply Strategy (SEQRWSS) - Stage 2 Interim Report. As Peterson et al (2007) stated, SEQ represents a good case for assessing the implementation of NR theory in practice, as it is a booming region presenting some typical effects of poor planning.
- DISCUSSION
- Why the strategy was developed
This strategy was developed in response to several challenges. First, the fact that population growth in the region is increasing the demand for water resources, generates a need to attend the growing needs of human settlements. Secondly, the economic growth of the region, which is the largest in the country, also demands more water allocation for industry and commercial purposes. Finally, climate changes have also contributed adding pressure on the decision makers as it has altered the rain patterns and floods as well (Brisbane City Council, nd)
Indeed, the current drought has exposed the vulnerability of historical approaches to water use and it represents a twofold challenge for the region, diversify the water supplies and optimize the current and future consumption (Queensland Government, 2006 SEQRP). The current management and levels of consumption are simply not sustainable. That is why it is crucial to figure out new ways of ensure more efficient management and use of water with the final objective of ensuring high livable conditions for future human settlements (Queensland Government, 2006b).
Taking into account that water is not only a limited and valuable resource, but also a basic need for development; this strategy intends to consider the whole water cycle process and its effective management (Queensland Government, 2006). It is all about sustainability. The aim of the strategy is to balance water demands and supplies in the region in order to ensure the use of this limited and valuable resource for future generations.
2.2. Who developed the strategy?
The strategy has been developed and implemented as a partnership between the Queensland Government and the 18 councils which comprised the South East Queensland Regional Organization of Councils (Queensland Government, 2006a). It was the intention of the authorities to develop a strategy which was coordinated and consistent with other strategic plans released relatively recently. Plans such as: SEQ Regional Plan, SEQ Infrastructure Plan and Program, Regional Drought Strategy, Queensland water Plan 2005 – 2010 (Queensland Government, 2006b).
2.3 What are their objectives?
The main objective of this strategy is to accelerate the provisions that should be taken in SEQ region in order to ensure the sustainable consumption of water resources. Moreover, the objective of the strategy is also to provide advice to the respective authorities (Council of Mayors & Queensland Government) in regard to the new strategies that may help increasing the supply and distributions of water resources in the future (Queensland Government, 2006a).
These objectives were stated under three stages:
- short term (2005 -2009); are basically contingency measures to approach the current drought
- medium term (2010 – 2020)
- long term (2021 – 2050)
* The medium and longer term objectives are not defined yet, as the Final Report is still under revision.
In addition, to ensure that the objectives will be achieved, the project adopted two planning approaches: First, ensure that the water is going to be used efficiently and effectively - best management practices. Second, ensure that the water demands will be attended by having the appropriate infrastructure
2.4 What governance and institutional arrangements have been established to implement and monitor the strategy?
‘An Executive SEQ Infrastructure Implementation Steering Committee was established to oversee the implementation of projects identified in the Interim Report. The committee is jointly chaired by the Coordinator-General and the Director-General of the Department of Natural Resources and Mines and includes local governments and water service provider representatives’ (Queensland Government, 2006a). In addition, an Implementation Plan was developed in order to address a balance between water supply and demand, as well as to manage future water sources opportunities.
Nevertheless, there is an absence of formal monitoring. No formal or explicit arrangements were exposed through the Interim Report and no authority was named in charge of this duty. This shows a lack of consistency between what is stated and what is put in practice.
- CRITICAL ANALYSIS
At this stage this paper will discuss and assess some aspects of the SEQRSWW under the key principles of New Regionalism. Wheeler (2002) pointed five key principles for NR, these are:
- NR focuses on specific territories and place making
NR supports regional planning and smart initiatives under a spatial focus. This means that nowadays growing regions are no longer clusters or static ‘structures’ as they were considered in the 19th and early 20th centuries (Wheeler, 2002). Rather, it is an open, dynamic and even extroverted system (Soderbaum, 2003).
The SEQ Region – where the strategy is developed – presents all the characteristics of a modern booming region. It is growing and present several points of development like: Gold Coast, Brisbane or Beaudesert; and although these points are located in different geographic areas, they shown good levels of identity with the SEQ Region. In fact, there had been several initiatives in the region to improve water use efficiency through the implementation of plans, Acts and rural initiatives, with good results (Peterson et al, 2007).
However, in the SEQRWSS scenario, different water service providers make difficult to coordinate investments in regional water infrastructure. Currently water management is operated under several schemes and each stakeholder has a different perception of what is right. They also have different needs and/or interest. This is a major issue as the nature resources availability rarely aligns with local government boundaries. There is an urgent need to have an equitable approach in order to satisfy the general needs of all the sub-regions (Queensland Government, 2006a).
The current state of institutional arrangements constrains the possibility of achieving an equitable distribution of water resources. Moreover, the fragmentation of responsibility affects the creation of a uniform plan to attend water supplies as well.
- NR tries to address problems created by the growth and fragmentation of postmodern metropolitan regions
NR adopts a dispersed nature to respond to the current problems of regional landscape (Wheeler, 2002). The goal of NR is to offer the appropriate environment to build social capital and deal with the problems of the current century: social inequities, environmental harm, traffic, placelessness, among others (Hall 1998).
Nowadays, SEQ is the fastest growing region around Australia but at the same time it is suffering from the effects of a severe drought. As a logical consequence the demand of water supplies will increase, generating scarcity and a higher demand for this resource. To face this problem it is necessary to have a clear strategy and an integrated approach between all the agents affected.
The SEQRWSS demonstrates good practices through some decisions as it has a commitment to meet regional, urban and industrial water needs. However, it failed in addressing rural participation. Despite the fact that there is a scope to address some rural water supply problems, rural participation is not widely considered within the strategy, therefore the integrated approach that this strategy should have is partly lost due to this missing.
Supposedly the final report of the strategy will investigate options to improve rural water supplies. Nevertheless, so far, rural areas are neither considered in a clear way, nor included in the implementation plan of the strategy. This fact may affect future intends to build partnerships.
Fig 2. Queensland Drought Situation at May 2007
Source: Drought Situation Monitor –The Long Paddock
Found in: LongPaddock.qld.gov.au
- NR takes a more holistic approach to planning that often integrates planning specialities such as transportation and land use as well as environmental, equity and economic goals.
Currently, the growth of a region is not anymore measure only under economic terms. NR has embraced a holistic perspective, where the challenge is to achieve good planning practices, this is, development with a strong sense of balance between environment, equity and economy (Campbell 1996). Caring for healthy catchments and waterways for instance is what caring for environmental values mean, and when a region grows in terms of population and urban development, this should be the critical approach to take into accounting order to ensure a sustainable living.
However, there is a gap between the rhetoric and the current practices in SEQ. Apparently the region intends to keep the current levels of economic growth. The question here is, is this approach really taking into account a holistic perspective or is it just business as usual? The increasing demand of water due to an increasing population, plus the changes in rainfall patterns due to climatic changes, are adding pressure to the water challenges in the region, and authorities are aware of that. Further, according to recent assessment, the region will need to be augmented by 2021; otherwise it will be impossible to maintain the same high standards of living (Queensland Government, 2006a). Thus, dramatic and proactive actions need to be undertaken to ensure the future water supply of the region and this is what the SEQRWSS is trying to meet.
Nevertheless, the strategy is aware of this pessimistic future scenario, and it is currently undertaking a number of actions to manage these issues. SEQRWSS took a holistic approach as it includes environmental, social and economic costs/benefits when deciding its actions. The SEQRWSS is trying to:
- diversify the supply: desalination, recycling, rain water tanks, groundwater extractions;
- ensure that current consumption is regulated and carry on efficiently
These measures denotes an holistic approach as the strategy intends to maintain the high standards of living (social concern), ensure the supply for commercial and industrial purposes (economic concern), and put a limit to future development of island groundwater in order to avoid environmental harm (environment concern).
On the other hand, the Report stated that the strategy has been developed and implemented as a partnership mainly between the Queensland Government and the 18 councils which comprised the South East Queensland Regional Organization of Councils (Queensland Government, 2006b). This paper considered that this partnership was dominated by the public sector (Geddes, 2000) and as many other stakeholders participate in the process, they should be also formally included within the report. Although some community consultation was done, it was not highlighted adequately through the Interim Report. It is necessary to avoid any form of exclusion; in fact, NR is by nature inclusive (Wheeler, 2002). Figure 2 reprrsents all the key stakeholders that should be formally considered in the process .
Fig 3. Key Stakeholders interacting through the SEQRWSS
- NR emphasizes physical planning, urban design, and sense of place as well as social and economic planning;
This principle is focus in the growth of regions and its management. It stated that regions need to establish proper areas for growing, have some sort of limitations, and define strategies to manage this growing as well (Peterson et al, 2007).
The Interim Report stated several approaches to face the water scarcity in the region. They could be divided in terms of:
- management of current sources of water supply: catchments water distribution
- build of new infrastructure: new dams
- contingency plans: groundwater supplies, desalination
- housing improvements: dual flush toilets, water efficient shower heads, etc
- diversify the sources of water supply: recycling water, desalination.
This list of options was evaluated and they will be used according to the context needs (level of drought). Nonetheless, do these approaches represent truly sustainable measures, or are they just reactive actions to the current issues? We think that they are a mix of both. Short term objectives need reactive and fast approaches. On the other hand, other approaches may be more ambitious in terms of timeframes and investment requirements but they are also necessary in order to ensure sustainable outcomes.
- NR often adopts a normative or activist stance
NR has a normative nature and is based in statements containing principles of regional development (Wheeler, 2002). Visioning also plays an important role in NR as it offers a north for regional development (Peterson et al, 2007).
The SEQRWSS has been developed under a long term vision and in coordination with other strategic planning documents, in order to avoid inconsistency or incompatibility. The other plans considered are: SEQ Regional Plan, SEQ Infrastructure Plan and Program, Regional Drought Strategy, Queensland Water Plan 2005 – 2010 (QLD GVT, 2006). The potential long term objectives of the Interim Report have been stated until 2050, demonstrating a willingness to approach sustainable practices.
- RECOMMENDATIONS
After assessing the alignment of the SEQRWSS with the NR key principles, this paper suggest three recommendations:
1. There is a lack of monitoring. The Interim Report does not specifically address any form of monitoring plan for the strategy. The aim and objectives of the strategy are clearly stated, but it seems like the authorities in charge of the strategy underestimate the importance of monitoring as a tool to achieve constant improvement.
However, the Interim Report used the term ‘ensure’ and it might be inferred that this term was used to express follow up. Nonetheless, no formal and express intention of monitoring was found in the strategy. This paper supports the idea that without monitoring the Report loss its main purpose in terms of environmental outcomes, as there is a lack of interest in assessing the impacts done while development is undertaken.
2. It is necessary to consider the inclusion of a rural perspective. The Interim Report does not specifically address the broader rural water issues across the region. It is important for these areas that decision makers understand and respect the environmental values of the rural boundaries within SEQ. This will support the development of real holistic and integrated approaches.
3. There is an urgent need for institutional arrangements. The current state of institutional arrangements constrains the possibility of achieving an equitable distribution of water resources as the responsibility is fragmented among several agents. Indeed, the planning and coordinated investment of water infrastructure is operated by different water service providers.
That is why it is so important to build healthy partnerships as they may help to avoid this fragmented approach. Partnerships may also help to achieve environmental outcomes as the agents may share their environmental values and include them when planning.
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