ARCH7004

Planning and Development Control

Module 2

Planning Hierarchies and Planning Instruments

1.0    Introduction

In this module we will examine the role of planning instruments and how they assist in decision making for land use and development. Because of the nature of the course and  its  relevance for  bushfire  protection, we will  use  bushfire  examples  as  case studies, wherever it is relevant.

In Module 1 we briefly examine the role of legislative hierarchies. This included the role of Acts and regulations. Of particular interest in this module is the role of planning instruments  and  any  hierarchies  that  operate  in  relation  to  their  status  and  any supporting documents (e.g. development guides).

Legislation  regulating  plan  making  and  development  control  can   be  somewhat complicated. Historically, environmental laws were seen as separate from the planning system, however, demands for greater efficiency in Government and certainty for developers has lead to a greater integration of environmental laws with planning laws. This includes legislation for the protection of threatened species, native vegetation and natural resource management, pollution control and natural hazard management (eg flood plain and bushfire) being linked to land use decision making and development control.

Although all States have adopted their own environmental planning legislation, this Unit will most often refer to New South Wales arrangements. Environmental planning legislation is however, based upon similar principles throughout Australia and readers should become familiar with the particular legislation in their own State. Where there are important differences, the modules will aim to highlight significant differences. Hopefully, you have started to address assignment 1, set out in the Learning Guide.

1.1 Planning & Environmental Law

In module 1 we explored a little about the history of planning law and in particular the role of the Local Government acts in establishing control over planning and building.

When we consider environmental planning and planning law, we can be forgiven to assume that there might be one overall and encompassing piece of legislation that deals with planning.

However, planning law has evolved in such a way, that we now have several pieces of legislation that addresses a range of planning issues. However, the term planning legislation  is  somewhat  limited,  and  we   increasingly  refer  to  the   processes  of environmental planning law which can fall into the following categories:

•    Environmental planning and protection which may be further divided into

subgroups including land use planning, environmental impact assessment, pollution control, waste management or hazardous industries;

•   Conservation of natural and cultural assets;

•    Resource allocation; and

•    Development arrangements for public and private infrastructure.

And remembering that these Acts most likely operate at the State/Territory level with some Commonwealth legislation also being enacted.

In New South Wales the following examples of legislation are considered to have a substantial planning law provisions:-

•   Environmental Planning and Assessment Act 1979 (EP&A Act) which is the principle planning legislation;

•   Heritage Act 1977;

•   Local Land Services Act 2013;

•   Biodiversity Conservation Act 2016;

•    Threatened Species Conservation Act 1995;

•    Water Management Act 2000;

•    Coastal Protection Act 1979;

Indeed most environmental pollution control and resource legislation relating to forestry, mining and fishing still have elements related to the legislated planning process.

1.2 What is the environmental planning system?

The environmental planning system includes:

•   the various Acts, regulations and model provisions;

•   the plans (planning instruments eg State, Regional, Sub-regional & local);

•   the process of plan making;

•   determination of development applications (and activities);

•   dispute resolution processes;

•   the relationship between levels of government, their powers and responsibilities;

•    public expectations and consultation;

•   the role of elected representatives, professionals, developers, and concerned participants in the decision making process.

2.0    Overview of the planning system

The   (NSW)   Environmental  Planning   and  Assessment  Act   1979   (EP&A   Act) commenced in September 1980. Since that time, numerous pieces of legislation (such as the Protection of the Environment Operations Act 1997 and the Threatened Species Conservation Act  1995)  have been enacted to bolster the  EP&A Act and several reviews of the Act have taken place to ensure that the planning legislation keeps abreast of contemporary planning issues.

2.1 Structure of the Environmental Planning and Assessment Act 1979 (NSW)

In NSW, the EP&A Act provides a system of environmental planning and assessment for the State. The Act establishes provision for planning instruments at the local, regional,  sub-regional  and  State  level,  development  controls,  the   operation  of construction controls through the BCA and the activities of public authorities or matters of State significance.

The objects of the Act are:

(a)  to promote the social and economic welfare of the community and a better environment by the proper management, development and conservation of the State’s natural and other resources,

(b)  to facilitate ecologically sustainable development by integrating relevant economic, environmental and social considerations in decision-making about environmental planning and assessment,

(c)  to promote the orderly and economic use and development of land,

(d)  to promote the delivery and maintenance of affordable housing,

(e)  to protect the environment, including the conservation of threatened and other species of native animals and plants, ecological communities and their habitats,

(f)  to promote the sustainable management of built and cultural heritage (including Aboriginal cultural heritage),

(g)  to promote good design and amenity of the built environment,

(h)  to promote the proper construction and maintenance of buildings, including the protection of the health and safety of their occupants,

(i)  to promote the sharing of the responsibility for environmental planning and assessment between the different levels of government in the State,

(j)  to provide increased opportunity for community participation in environmental planning and assessment.

(s1.3, Environmental Planning and Assessment Act 1979 (NSW)).

The Act is structured as follows

•    Part 1 Preliminary

•    Part 2 Planning Administration

•    Part 3 Planning Instruments

•    Part 4 Development Assessment and consent

•    Part 5 Infrastructure and environmental impact assessment

•    Part 6 Building and subdivision certification

•    Part 7 Infrastructure contributions and finance

•    Part 8 Reviews and appeals

•    Part 9 Implementation and enforcement

•    Part 10 Miscellaneous

2.2 Planning Instruments

In NSW planning instruments can be developed on different levels. Local councils may prepare local environment plans (LEPs). The Department of Planning may develop regional and state wide instruments including State Environmental Planning Policies (SEPPs). Both LEPs and SEPPs are statutory documents that play important roles in outlining the planning framework in NSW.

2.2.1 Local Environment Plans

LEPs are statutory documents prepared by local councils and approved by the NSW Government. They set out zoning regulations and development controls within a local government area (LGA).

Key Functions of LEPs:

•     Establish land use zones and permissible uses within each zone.

•     Set development standards such as height limits, floor space ratios, and lot sizes.

•     Provide heritage protections and conservation provisions.

•     Identify environmentally sensitive areas and apply development controls.

Application of LEPs:

•     LEPs apply to all land within an LGA and provide a framework for assessing development applications (DAs).

•     Councils prepare LEPs in consultation with the community and the NSW Department of Planning and Environment.

•     Amendments to LEPs require a formal planning proposal process, which includes public exhibition and state government approval.

A standard instrument in NSW is used in NSW to assist in guiding the development of LEPs. The Standard Instrument - Principal Local Environmental Plan is a template that ensures consistency and uniformity in the structure and content of LEPs across NSW. It provides a standard set of planning provisions that councils must use when drafting or amending their LEPs.

Key Functions of the Standard Instrument:

•     Ensures consistency in LEP structure across all LGAs.

•     Establishes common land use zones and definitions, making planning controls easier to interpret.

•     Provides a uniform regulatory framework for land use, environmental protection, and development assessment.

•     Simplifies the LEP preparation process for councils by providing a pre- established format.

Application of the Standard Instrument:

•     All councils in NSW must prepare their LEPs in accordance with the Standard Instrument.

•     It aligns local planning controls with state and regional policies.

•     Updates to the Standard Instrument reflect changes in planning policy and emerging issues.

Example of an LEP in force: Campbelltown LEP2015.

Part 3, Division 3.4 of the Act, provides a pathway for the amendment of LEPs through ‘planning   proposals.,    Planning   proposals   are   prepared   when    there    is    a required/desired change to an LEP (e.g. rezoning land). The planning proposal should explain the intended effect of and justification for the proposed amendment.

Further Reading: Making and amending LEPs | Planning

2.2.2 State Environmental Planning Policies

SEPPs are statewide planning policies made by the NSW Government to address specific planning and environmental issues beyond local government boundaries. They override or complement LEPs where necessary.

Key Functions of SEPPs:

•     Provide consistent planning controls across NSW.

•     Address state-significant issues such as housing, infrastructure, biodiversity, and climate resilience.

•     Facilitate the delivery of major projects and strategic development initiatives.

Application of SEPPs:

•     SEPPs may apply across multiple LGAs or the entire state, ensuring consistency in planning controls.

•     Some SEPPs, such as the SEPP (Housing) 2021, establish streamlined approval pathways for certain types of development.

•     SEPPs are regularly updated to reflect policy changes and emerging planning challenges.

Further Reading: https://www.planning.nsw.gov.au/policy-and-legislation/state- environmental-planning-policies

2.3 Other Plans

2.3.1 Regional Plans

Regional Plans are strategic planning documents prepared under the EP&A Act to guide land use and infrastructure planning at a regional level. They establish long-term visions   and   priorities   for   growth,   economic   development,   and   environmental sustainability.

Purpose of Regional Plans:

•     Provide a coordinated approach to land use, housing, transport, and environmental protection across multiple LGAs.

•     Align local planning efforts with state government priorities and investment strategies.

•     Support economic development and job creation through regional planning frameworks.

•     Address challenges such as climate change, biodiversity conservation, and population growth.

Legislative Basis:

•     Regional Plans are prepared under Division 3.1 of the EP&A Act.

•     They provide strategic direction for councils in preparing LEPs and other planning instruments.

•     The NSW Government, through the Department of Planning and

Environment, is responsible for preparing and updating Regional Plans.

Application of Regional Plans:

•     Regional Plans guide local councils in developing LEPs and planning strategies that align with broader regional priorities.

•     They influence decision-making for major infrastructure projects and investment in regional development.

•     Councils and state agencies must consider Regional Plans when assessing significant development proposals.

Further reading: https://www.planning.nsw.gov.au/plans-for-your-area/regional-plans

2.3.2   District Plans

District Plans are a subset of Regional Plans that provide more detailed strategic guidance  for  specific  districts  within  metropolitan  regions.  They  bridge  the  gap between broad regional planning and local environmental planning.

Purpose of District Plans:

•     Provide district-level strategies for housing, transport, employment, and sustainability.

•     Align with Regional Plans to ensure coordinated development across local government areas.

•     Support local councils in implementing Local Strategic Planning Statements (LSPS) and updating LEPs.

•     Facilitate infrastructure planning and economic growth at a district level. Legislative Basis:

•     District Plans are prepared under Division 3.1 of the EP&A Act.

•     They were previously developed by the Greater Cities Commission, which was dissolved in 2023, with responsibilities transferred to the NSW

Department of Planning and Environment.

•     They inform. and guide local councils when preparing LEPs and planning policies.

Application of District Plans:

•     District Plans apply to specific metropolitan districts, particularly in Greater Sydney and other key urban areas.

•     They influence land use planning, infrastructure development, and housing supply within districts.

•     Councils must consider District Plans when preparing LEPs, planning proposals, and strategic plans.

2.3.3   Development Control Plans

Development  Control  Plans  (DCPs)  are   non-statutory  planning  documents  that provide detailed guidance and development standards to support the implementation of LEPs.

Purpose of DCPs:

•     Provide detailed controls and design guidelines for land use and development.

•     Support the objectives and provisions of LEPs by outlining specific requirements for development applications.

•     Ensure consistency and high-quality urban design outcomes.

•     Address site-specific planning issues that are not covered in LEPs.

Legislative Basis:

•     DCPs are prepared under Section 3.43 of the EP&A Act.

•     They must be consistent with LEPs but do not have the same statutory weight.

•     Councils are responsible for preparing and maintaining DCPs in consultation with stakeholders.

Application of DCPs:

•     DCPs guide applicants, developers, and planners when designing and assessing development proposals.

•     They set requirements for building design, landscaping, access, parking, and environmental sustainability.

•     Councils use DCPs to assess development applications and ensure compliance with local planning objectives.

•     While not legally binding, DCPs provide essential guidance that is generally followed in decision-making.

2.4 Ministerial Directions

Section 9.1 of the EP&A Act allows the Minister for Planning to issue directions to public authorities or persons who have functions under the Act to exercise those  functions. The Minister may also make directions in relation to the preparation of LEPs and other matters.

Ministerial directions assist to ensure consistency with state and regional planning policies, guide the direction of LEPs and planning proposals and address specific land use and development priorities such as housing supply, employment growth or resilience. Councils must comply with ministerial directions.

Consider Local Planning Direction 4.3 Planning For Bushfire Protection. The direction (at the time of writing) applies to all local government areas in NSW when a planning proposal is being prepared that will affect or be in proximity to land mapped as bushfire prone land.

The Ministerial Direction requires that planning proposals in the instances stated above, have regard to Planning For Bushfire Protection 2019, introduce controls that avoid inappropriate development in hazardous areas and impose protections such as asset protection zones.

2.4 Integration and Hierarchy of Environmental Planning Instruments & Other Plans

•     LEPs and SEPPs operate within the broader NSW planning framework established under the EP&A Act.

•     Regional Plans provide overarching strategic direction for local planning and development.

•     District Plans bridge the gap between Regional Plans and local planning, ensuring district-wide coordination.

•     LEPs must be consistent with SEPPs and other strategic plans, including Regional and District Plans.

•     DCPs support LEPs by providing more detailed guidance on development assessment and urban design.

•     When inconsistencies arise, SEPPs generally take precedence over LEPs.

3.0    Further Reading

•   Chapter 5 - Statutory Planning, Planning Australia, 2nd  ed, Thompson and Maginn