Masters thesis of social science evaluating climate change mitigation and adaptation considerations in the victorian planning system, australia

Evaluating Climate Change Mitigation and Adaptation
Considerations in the Victorian Planning System,
Australia

A thesis submitted in fulfilment of the requirements for the degree of
Master of Social Science

Olusegun Yussuff
M.Sc. in Urban and Regional Planning, University of Lagos, Nigeria
B.Tech. in Urban and Regional Planning, Ladoke Akintola University of Technology,
Nigeria

School of Global, Urban and Social Studies
College of Design and Social Context
RMIT University
October 2019


Dedication
To God, the Father, Son, and Holy Spirit
To my late Dad, Honourable Justice R.Oladepo Yussuff

ii


Declaration
I certify that except where due acknowledgement has been made, this research is that of the
author alone; the content of this research submission is the result of work which has been
carried out since the official commencement date of the approved research program; any
editorial work, paid or unpaid, carried out by a third party is acknowledged; and, ethics
procedures and guidelines have been followed.

In addition, I certify that this submission contains no material previously submitted for award
of any qualification at any other university or institution, unless approved for a joint-award
with another institution, and acknowledge that no part of this work will, in the future, be used
in a submission in my name, for any other qualification in any university or other tertiary
institution without the prior approval of the University, and where applicable, any partner
institution responsible for the joint-award of this degree.
I acknowledge that copyright of any published works contained within this thesis resides with
the copyright holder(s) of those works.
I give permission for the digital version of my research submission to be made available on the
web, via the University’s digital research repository, unless permission has been granted by the
University to restrict access for a period of time.

Olusegun Yussuff
1 October 2019

iii


Acknowledgements
It would have been difficult for me to complete this Research Master’s thesis if not for the
considerable efforts and consistent support of some people who have made this significant
journey of my life possible. First and foremost, I would like to express my deepest gratitude to
my supervisors, Dr Melissa Neave, Associate Professor Susie Moloney, and Associate
Professor Andrew Butt, who provided remarkable support and guidance throughout my
research journey.
My most profound appreciation goes to Associate Professor Georgina Heydon, Dr Georgia
Garrard and Associate Professor Andrew Butt, who chaired my milestone seminars. In
addition, Professor Wendy Steele and Dr Brian Coffey were my independent assessors.
I am grateful to the administrative and academic staff in the School of Global, Urban and Social
Studies (GUSS) for their assistance in every aspect of my study. Most especially the Higher

Degree Research (HDR) Programme Manager, Associate Professor Georgina Heydon; your
support and assistance on my candidature came when I needed it most. Special thanks also go
to other staff, Jenni Morris, Cassie Coates and Clare Thompson. To my fellow HDR students
and friends, Leul Tadessel Sidelil, Sadaf Saeed and Louisiana Paganelli Silva. I cherish the
relationship we have built over this research period.
A special appreciation goes to my beloved wife, Dideoluwa Comfort and my two adorable
daughters, Tolunimi Avivah and Inimiloluwa Maranatha, for their unconditional support,
encouragement and understanding throughout my master’s thesis study journey.

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Table of Contents
Dedication ............................................................................................................................................... ii
Declaration............................................................................................................................................. iii
Acknowledgements.................................................................................................................................iv
Table of Contents.....................................................................................................................................v
List of Abbreviation ................................................................................................................................ix
List of Tables ...........................................................................................................................................x
List of Figures .........................................................................................................................................xi
Abstract ....................................................................................................................................................1
CHAPTER ONE: INTRODUCTION......................................................................................................3
1.1

Research Context ........................................................................................................................3

1.1.1 Background of the research ........................................................................................................................3
1.1.2 Is the Existing Planning Framework in Victoria, Australia Capable of Responding to Climate Change? 7

1.2 Rationale of the study ........................................................................................................................9

1.3 Research Purpose .............................................................................................................................10
1.4 Research Objectives.........................................................................................................................11
1.5 Research Questions..........................................................................................................................11
1.6 Study Scope .....................................................................................................................................11
1.7 Overview of Research Design .........................................................................................................12
1.8 Overview of Case Study ..................................................................................................................13
1.8.1 Background to Case Study .......................................................................................................................13
1.8.2 Policy Context of Case Study...................................................................................................................14

1.9 Structure of the Thesis .....................................................................................................................16
CHAPTER TWO: CLIMATE CHANGE AND THE LAND USE PLANNING CONTEXT: A
REVIEW OF LITERATURE ................................................................................................................17
2.1 Overview..........................................................................................................................................17
2.2 Planning for Climate Change...........................................................................................................17
2.2.1 Climate Change and Cities .......................................................................................................................19
2.2.2 Climate Change and Vulnerability Assessment .......................................................................................26
2.2.3 Mitigating greenhouse gas (GHGs) emissions through land-use planning ..............................................28
2.2.4 Adapting to Climate Change through land-use planning .........................................................................30

2.3 Integrating Climate Change Mitigation and Adaptation in Cities ...................................................33
2.3.1 Synergies, Conflicts and Trade-offs between Climate Change Mitigation and Adaptation ....................36

2. 4 Challenges to Planning for Climate Change Mitigation and Adaptation .......................................39
2.5 Plan Evaluation Research ................................................................................................................41
2.5.1 Evaluating climate change mitigation and adaptation in land-use plans..................................................45
2.5.2 Awareness-Analysis-Action (3As) Evaluation Framework .....................................................................46

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CHAPTER THREE: POLICY AND INSTITUTIONAL FRAMEWORK FOR LAND USE
PLANNING AND CLIMATE CHANGE IN VICTORIA ...................................................................51
3.1 Overview..........................................................................................................................................51
3.2 Framework for Climate Change in Australia...................................................................................51
3.3 Victorian Legislation, Regulatory Framework and Policy Context ................................................54
3.3.1 Key Planning Legislation .........................................................................................................................54
3.3.2 Planning Regulation and Processes ..........................................................................................................60
3.3.3 Policy and Strategies ................................................................................................................................71
3.3.3.1 Victorian Coastal Strategy 2014 .................................................................................................................... 71
3.3.3.2 Victoria's Climate Change Framework ......................................................................................................... 73
3.3.3.3 Victorian Climate Change Adaptation Plan 2017 - 2020 .............................................................................. 73

3.4 Institutional Structures for Managing Land Use Planning in Victoria ............................................73
3.4.1 The Minister for Planning ........................................................................................................................74
3.4.2 The Department of Environment, Land, Water and Planning..................................................................75
3.4.3 Local councils..........................................................................................................................................76
3.4.4 Victorian Planning Authority ...................................................................................................................76
3.4.5 Victorian Civil and Administrative Tribunal (VCAT) .............................................................................77
3.4.6 Planning Panels Victoria ..........................................................................................................................81

CHAPTER FOUR: RESEARCH DESIGN ..........................................................................................84
4.1 Overview..........................................................................................................................................84
4.2 Research Focus ................................................................................................................................84
4.2.1 Research aims ...........................................................................................................................................84
4.2.2 Research Objectives .................................................................................................................................85
4.2.3 Research Questions ..................................................................................................................................85

4.3 Research Framework .......................................................................................................................85
4.3.1 Conceptual Framework ............................................................................................................................85
4.3.2 Research Outline ......................................................................................................................................89

4.3.2.1 Assessing awareness of climate change ......................................................................................................... 89
4.3.2.2 Assessing understanding/evidence of risks and vulnerability ....................................................................... 90
4.3.2.3 Identifying actions in the local land use planning ......................................................................................... 91

4.4 Research Methodology ....................................................................................................................92
4.4.1 Case Study Research ................................................................................................................................92
4.4.2 Content Analysis Methods .......................................................................................................................94
4.4.3 Planning Quality Analysis ........................................................................................................................96
4.4.4 Evaluation Scoring Protocol .....................................................................................................................99
4.4.4.1 Scoring of indicators ...................................................................................................................................... 99

4.5 Research Methods..........................................................................................................................101
4.5.1 Sample Frame and Data Source .............................................................................................................101
4.5.2 Phase I: Assessing the State Planning Framework.................................................................................102
4.5.2.1 Sample Selection .......................................................................................................................................... 102
4.5.2.2 Research Design........................................................................................................................................... 102
4.5.2.3 Data Analysis ............................................................................................................................................... 103

4.5.3 Phase II: Assessing Local land use Implementation on Climate Change ..............................................103
4.5.3.1 Sample Selection .......................................................................................................................................... 103
4.5.3.2 Research Design........................................................................................................................................... 105
4.5.3.3 Data Analysis ............................................................................................................................................... 105

4.5.4 Phase III: Synthesising the findings .......................................................................................................105

4.6 Limitation of Research Design ......................................................................................................106

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CHAPTER FIVE: ASSESSING THE STATE PLANNING FRAMEWORK FOR AWARENESS AND
ANALYSIS OF CLIMATE CHANGE ...............................................................................................107
5.1 Overview........................................................................................................................................107
5.2 Objective 1: To assess the level of climate change awareness in the state and local planning policies
and regulation. .....................................................................................................................................108
5.2.1 Assessing the awareness of climate change in key planning legislation in Victoria .............................109
5.2.2 Assessing the awareness of climate change in the state planning regulation and policies. ...................111
5.2.3 Summary of awareness component ........................................................................................................114

5.3 Objective 2: To assess the level of understanding of risk and vulnerability in the state and local
planning policies, and regulation .........................................................................................................116
5.3.1 Assessing the analytical capability/evidence of risk and vulnerability assessment in the planning
legislation in Victoria ......................................................................................................................................116
5.3.2 Assessing the analytical capability/evidence of risks and vulnerability assessment in the state planning
policies and regulation.....................................................................................................................................118
5.3.3 Summary of Analysis component ..........................................................................................................120

5.4 Awareness and Analysis (AA) Planning Quality Evaluation (Breadth and Depth Scores)...........121
5.4.1 Overall performance of planning legislations ........................................................................................121
5.4.1.1 Indicator performance for awareness component in planning legislations ...................................123
5.4.1.2 Indicator performance for analysis component in planning legislations .......................................124
5.4.2 Overall performance of planning policies, strategies, and regulation ....................................................125
5.4.2.1 Indicator performance of awareness component for planning policies and regulation ................126
5.4.2.2 Indicator performance of analysis component for planning policies and regulation ....................127
5.4.3 Summary of the Awareness & Analysis (AA) Performance ..................................................................128

CHAPTER SIX: ASSESSING LOCAL LAND-USE IMPLEMENTATION AND ACTION ON
CLIMATE CHANGE ..........................................................................................................................129
6.1 Introduction ...............................................................................................................................................129
6.2 Overall performance of the planning schemes ..........................................................................................130

6.3 Indicators Performance of planning schemes ............................................................................................132
6.3.1 Indicator performance for Awareness component in local planning schemes .......................................132
6.3.2 Indicator performance for Analysis component in local planning schemes ...........................................132
6.3.3 Indicator performance for Action component in local planning schemes ..............................................133
6.4 Overall performance of the three planning schemes .................................................................................134
6.5 Summary ...................................................................................................................................................135

CHAPTER SEVEN: CURRENT ISSUES AND CHALLENGES .....................................................136
7.1 Overview........................................................................................................................................136
7.2 Level of Awareness of Climate Change in the Victorian Planning System ..................................136
7.3 Lack of analytical capability in the Victorian Planning System to address climate change issues
.............................................................................................................................................................138
7.4 Implementing Land-Use Mitigation and Adaptation Actions Across Levels of Government in
Victoria ................................................................................................................................................140
7.4.1 Land use mitigation action in Victoria's Planning System .....................................................................140
7.4.2 Land use adaptation action in the Victorian Planning System ............................................................... 141
7.4.3 Addressing integration of mitigation/adaptation in the Victorian planning system............................... 142
7.4.4 Addressing roles and responsibilities .....................................................................................................143

7.5 Chapter Summary ..........................................................................................................................145
CHAPTER EIGHT: CONCLUSION AND RECOMMENDATION FOR FUTURE RESEARCH ..147

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8.1 Overview........................................................................................................................................147
8.2 Summary of Research Findings .....................................................................................................148
8.2.1 Objective 1: To assess the level of climate change awareness in the State and local planning policies
and regulation. .................................................................................................................................................148
8.2.2 Objective 2: To analyse the level of understanding of risks and vulnerability in the state and local

planning policies and regulation......................................................................................................................150
8.2.3 Objective 3: To identify the implementable climate change actions in the local land use planning .....151

8.3 Current issues and challenges in the Victorian planning system ...................................................152
8.3.1 Awareness of the planning systems to climate change issues ................................................................ 152
8.3.2 Lack of analytical capability in the planning system to address climate change issues ........................153
8.3.3 Implementing land-use mitigation and adaptation actions across levels of government .......................154

8.4 Comments and recommendation ...................................................................................................157
8.5 Research Limitation .......................................................................................................................158
8.6 Future Research .............................................................................................................................159
REFERENCES ....................................................................................................................................161

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List of Abbreviation
AAA

Awareness-Analysis-Action

CCA

Climate Change Adaptation

CCA2017

Climate Change Act of 2017

CCMA

Climate Change Mitigation and Adaptation

CCM

Climate Change Mitigation

DELWP.

Department of Environment, Land, Water and Planning

DRR

Disaster Risk Reduction

GHGs.

Greenhouse Gas Emissions

IPCC

Intergovernmental Panel on Climate Change

PEA

Planning and Environment Act 1987

LGA.

Local Government Act 2020 (Vic)

LPPF

Local Planning Policy Framework

SPPF

State Planning Policy Framework

UNFCCC

United Nations Framework Convention on Climate Change

VCAT

Victorian Civil and Administrative Tribunal

VCCAP

Victorian Climate Change Adaptation Plan

VCS

Victoria Coastal Strategy

VPA.

Victorian Planning Authority

VPPs

Victoria Planning Provisions

VPS

Victorian Planning System

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List of Tables
Table 2.1: Major differences between climate change mitigation and adaptation…….28
Table 2.2: Interrelationship between mitigation and adaptation………………...….….30 – 31
Table 4.1: As evaluation framework designed for this study………………….........86-87
Table 4.2: Selection criteria for sample local council……………………………......92
Table 5.1: Planning instruments analysed in the State Planning Framework…………97
Table 5.2: Evaluation scores for planning legislations…………………….................110-111
Table 5.3: Indicator’s performance index for planning legislations………………… 113
Table 5.4: Evaluation scores for planning policies, strategies, and regulation….…....115
Table 5.5: Indicator performance for planning policies, strategies, and regulation….116
Table 6.1: Planning schemes evaluation scores……………………………….……...120
Table 6.2: Indicator’s performance index……………….……………………………122

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List of Figures
Figure 4.1: Components of research framework (Awareness-Analysis-Action) …………….77

xi

Abstract
To successfully address the risks of climate change in a coherent and coordinated
manner, both climate change mitigation (CCM) and climate change adaptation (CCA) policies
must be integrated into the governance and policy frameworks of regional (state) and local
planning systems. With mitigation set towards reducing the effects of climate change,
adaptation is about building adaptive capacity to reduce the vulnerabilities to climate risks and
impacts. However, CCA and CCM are commonly pursued separately, partially due to the way
they were initially framed as two approaches with different measures and priorities to address
the same problem (climate change), thereby creating an adaptation and mitigation dichotomy.
The consideration of climate adaptation and mitigation actions into land-use planning has been
identified as a process to simultaneously enhance the integration of both approaches. In turn,
this integration could better facilitate the development of strategies towards achieving
sustainable urban development. However, several barriers remain that hinder the integration of
climate change into land use planning.
This thesis examines the extent to which climate change mitigation and adaptation have
been addressed in land-use planning, drawing on empirical analysis of the Victorian planning
system. The research assesses climate change mitigation and adaptation measures in Victoria’s
key planning instruments and the state climate change framework through qualitative content
analysis to understand the current state of play in the state planning system. The research
employed a well-tested evaluation framework to analyse the Victorian land use planning
system using the Awareness-Analysis-Action (3As) framework to address four research
objectives. This research is structured into three phases. Firstly, the State Planning Framework
was assessed, focusing on essential state planning and climate change instruments to
1


understand the extent of consideration of climate change in the planning system and the level
of analytical capability the planning instruments have demonstrated to address the impacts of

climate change in Victoria. Secondly, three local planning schemes were selected and assessed
to understand the extent of awareness and analytical capability of climate change and what
local land use action on climate change is present at the local planning level. As part of this
study, both content analysis and planning quality analysis were used in which policy documents
were coded, analysed, and evaluated. The research employs plan evaluation research as a core
paradigm to understand the extent and level of climate change integration into Victoria's State
and local planning policies and regulations.
The final phase of this research discusses the current issues and challenges arising from
the State and local planning policies and regulations in Victoria, specifically, the findings from
the analysis of the contents of the State Planning Framework and the plan quality evaluation of
the three local planning schemes. The synthesising of the different analyses focused on
understanding where the planning legislation influences state policies and strategies, which
provides leadership and guidance for local planning policy framework in addressing climate
change issues. The findings highlight the need for improved integration between planning and
climate change legislation and policies, developing planning strategies that encourage synergy
between mitigation and adaptation and ensuring robust risk and vulnerability planning
informed by hazard mapping systems.

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CHAPTER ONE: INTRODUCTION
1.1 Research Context
1.1.1 Background of the research
The reduction of carbon emissions and the development of climate-resilient cities are
emerging as key goals for ensuring sustainable urban development (Grafakos et al., 2019).
Climate change and urbanization represent dual challenges for cities worldwide (Xu et al.,
2019). Future trends point to an increase in energy consumption and greenhouse gas emissions
in general (Xu et al., 2019), while the rapid urbanization of cities makes achieving future
climate targets more difficult (McPhearson et al., 2016). In addition, the compounding effects

of climate change and urban development are making cities increasingly vulnerable to extreme
climate events (Aerts et al., 2014; Birkmann et al., 2016; IPCC, 2012; Mechler & Schinko,
2016) and global warming is expected to exacerbate heat waves in urban areas, negatively
impacting public health (Founda & Santamouris, 2017; Mora et al., 2017; Shen et al., 2016;
Ward et al., 2016).
As a result, planning strategies that enable cities to minimize greenhouse gas (GHG)
emissions to mitigate climate changes while building adaptation to climate changes are crucial
for global urbanization (Hallegatte et al., 2016; B. Jones, 2017). Even though urban land use is
affected by carbon dioxide emissions and climate stress, land-use planning can significantly
mitigate climate change (Bulkeley, 2013). Although the link between the form of cities, CO2
emissions, and climate stressors/stresses is becoming increasingly clear, mitigation and
adaptation are rarely considered at the same time in research and policy. However, planning
and action should be an equal priority for mitigation and adaptation of climate change (IPCC,
2014; Pancost, 2016; Rosenzweig et al., 2010). Studies have consistently shown that urban
forms characterized by high densities, mixed land uses, and valuable transit connections and
3


accessibility can reduce vehicle travel and greenhouse gas emissions by the transportation
sector (Creutzig et al., 2016; Lee & Lee, 2014). Consequently, developing compact city designs
has become more common in recent years to limit sprawl, reduce automobile dependence, and
save on energy consumption and GHG emissions from transportation (Zhao et al., 2011). In
addition, an extensive body of literature has been published about the effects of urban form on
climate stress and associated adaptation strategies (Xu et al., 2019).
Several studies have established that the fundamental challenge in historical global
efforts to address climate change has been mainly about how mitigation and adaptation have
been mistakenly framed in both science and policy as two distinct, or disconnected approaches
for resolving the same problem, with limited regard for possible synergies, conflicts and tradeoffs between them (Biesbroek et al., 2009; Duguma et al., 2014a; Grafakos et al., 2019; HuangLachmann and Guenther, 2020; Klein et al., 2007; Klein et al., 2005; Swart and Raes, 2007a).
This has created what Biesbroek et al., refers to as the adaptation-mitigation dichotomy (2009),
wherein mitigation and adaptation approaches fail to be integrated into the development of

coherent and well-coordinated climate change policies across temporal and spatial scales
(Klein et al., 2007). Most institutional research and policy integration initiatives on climate
change have continued to operate like this. Their focus has been on either adaptation or
mitigation and has ignored any likely interactions between the two climate change objectives
(Di Gregorio et al., 2015a).
Climate change mitigation, as defined by the Intergovernmental Panel on Climate
Change (IPCC), is the 'anthropogenic intervention to reduce the sources or enhance the sinks
of greenhouse gases (GHGs) in the atmosphere’ while adaptation is the ‘adjustment in the
natural or human systems in response to actual or expected climate stimuli or their effects,
which moderates harm or exploits beneficial opportunities’ (IPCC, 2007, p. 869). Swart and
4


Raes (2007b) argue that these definitions enhance the dichotomy between the two approaches.
For instance, there was hope during the first years of establishing the United Nations
Framework Convention on Climate Change (UNFCCC) and the Intergovernmental Panel on
Climate Change (IPCC) that mitigation would be sufficient to resolve climate change and there
should be no need to push for robust adaptation strategies (Van Noordwijk et al., 2011).
Unfortunately, this has resulted in divergent mitigation and adaptation approaches being
adopted (Duguma, Minang, et al., 2014), and mitigation and adaptation have continued to be
implemented or considered independently of one another in both policy and research (Verchot
et al., 2007). In addition, many scholars and institutions have continued to address the two
approaches adopting different frameworks and methods (Ayers & Huq, 2009; Bajracharya et
al., 2011; Biesbroek et al., 2009; Cuevas, 2016; Picketts et al., 2014).
In terms of planning for climate change, current research and policy studies are mostly
dominated by either adaptation or mitigation considerations, rather than combining both
climate change objectives in an integrated manner. Examples of individual approaches include:
direction for mainstreaming adaptation (Kok & de Coninck, 2007); urban development (Farrell,
2010); mainstreaming adaptation in agriculture and water sector (Nambi & Sivapuram, 2011);
adaptation through development assistance (Sietz et al., 2011); adaptation into development

planning (Lebel et al., 2012); adaptation in the EU water policy (Brouwer et al., 2013);
development planning (Ayers et al., 2014); incorporating adaptation in local plans (Picketts et
al., 2014); climate adaptation as a multi-level governance agenda (Steele, 2014); local level
(Rauken et al., 2015); ecosystem service-based adaptation in municipal planning (Wamsler &
Pauleit, 2016); and donor-aided projects (Locatelli et al., 2015). Furthermore, a few studies
have considered the role of land use and urban planning in climate change, e.g., adaptation into
urban planning (Uittenbroek et al., 2013), the challenges of mainstreaming climate adaptation
5


in local land use planning (Cuevas, 2016), and planning and sustainable adaptation to rising
sea levels (Hurlimann et al., 2014). While all these studies contributed to the literature on the
integration of the climate change process and progress, considerable knowledge gaps remain
as research has revealed that neither of the climate change objectives on their own (i.e.,
mitigation or adaptation alone) can provide the practical strategies needed to achieve
sustainable urban development (Di Gregorio et al., 2015; Klein et al., 2005).
Recent studies supporting the need to consider both mitigation and adaptation together
have continued to emerge (Di Gregorio et al., 2015a; Duguma et al., 2014a; Göpfert et al.,
2018; Klein et al., 2005; Laukkonen et al., 2009; Ping Ngang et al., 2014; Shaw et al., 2014).
Klein et al. (2005) argued that it should no longer be debated as to which is the most important
between mitigation or adaptation in climate change since both are needed to reduce the
associated risks and achieve sustainable urban development. Shaw et al. (2007) also point out
that though there has been evidence of challenges to integrating climate change mitigation and
adaptation objectives in policy and research, it is necessary to consider both to achieve
genuinely sustainable development.
There is growing recognition that land-use planning can play a crucial role in
facilitating the integration of both climate change objectives by helping to reduce greenhouse
gas (GHGs) emissions (mitigation) and supporting the building of adaptive capacity to cope
with climate change (adaptation) (American Planning Association, 2011; Cuevas, 2016;
Davoudi, 2009; Friesecke et al., 2012; Hagen, 2016; Stern, 2006; Tang et al., 2009). Biesbroek

et al. (2009) and Swart and Raes (2007b) concluded that since climate change influences the
traditional administrative structures within which statutory land use planning is performed, it
can identify and bridge the dichotomies between adaptation and mitigation through strategic
land use planning practices. Nonetheless, several barriers remain that hinder the integration of
6


climate change and research aiming at this is limited. Several of these barriers are more
prominent in institutional contexts where land use planning occurs (Measham et al., 2011).
Among the institutional context, factors are uncertainty associated with climate change, lack
of information, resource shortages within institutional planning policies, and the relegation of
institutional responsibilities and objectives to the bottom rung of institutional priorities. For
instance, determining the successful analytical measures for climate adaptation remains a
challenge for urban planning as it responds to sea-level rise (Hurlimann et al., 2014). In
addition, the capacity to adapt to an ever-changing environment sustainably and reasonably,
ensuring the survival of planning institutions and communities at risk, is necessary for climate
change adaptation (Hurlimann et al., 2014).
The challenge of planning for climate change is both an imperative and an institutional
one. Planning responses to climate change requires a solid understanding of how institutions
identify, recognize, and respond to stressors. Climate mitigation and adaptation are
operationalised in this case as central tenets of planning governance through institutional
codification and implementation of policies and objectives (Matthews, 2013). It is argued that
the ability to undergo institutional change will determine whether the planning regime can
respond effectively to the imperative of climate mitigation and adaptation. The effect of
internal and external pathways and barriers to change on institutional change is further argued
to be highly determinant of a capacity for institutional change (Matthews, 2013).
1.1.2 Is the Existing Planning Framework in Victoria, Australia Capable of Responding
to Climate Change?

Considerations of climate change in the Victorian planning system

7


First, this study will investigate whether the Victorian planning system has sufficiently
considered climate change in its State and local planning policy instruments, or it is still
lacking. There is significant agreement among researchers(Kumar & Geneletti, 2015; Tang et
al., 2010; Xu et al., 2019) regarding the difficulty in integrating mitigation and adaptation
policies due to the uncertainties surrounding urban planners' knowledge of climate change
impacts and their understanding of the complexity of the interactions between mitigation and
adaptation policies. An assessment of climate change considerations in a Victorian planning
jurisdiction aims to identify the extent to which State and local planning policies account for
key drivers of climate change and their impacts in Victoria (Baker et al., 2012; Kumar &
Geneletti, 2015). The study considers climate change objectives and the amounts of greenhouse
gas emissions (GHG) and their impacts on climate variables within the Victoria planning
documents.

Evidence and understanding of climate-related risks and vulnerability

Secondly, the study assesses the level of understanding of climate change impact
assessment, risk-based planning and vulnerability assessment addressed in the Victorian
planning system. Based on prior studies (Laukkonen et al., 2009), adaptation capabilities and
vulnerability to climate change vary by planning jurisdiction. Given these reasons, Burton et
al. (2004) and Webb et al. (2013) note that planning regulatory frameworks should incorporate
vulnerability assessment into the planning process based on individual planning needs.
Therefore, this study investigates the evidence and understanding of the potential risks and
vulnerabilities to climate change within the Victoria's State and local planning jurisdictions.
Constraints on planning actions

8

The constraints on planning actions are basically due to the inability of Urban planners
and decision-makers to understand the effects of climate change and make appropriate planning
decisions: constraints arising from land-use adaptation and mitigation actions; institutional
constraints and constraints of developing an appropriate methodology for assessing the
integration of mitigation and adaptation and not either adaptation or mitigation measures.
While progress has been made in the climate change integration process at the international
level, appropriate knowledge is still lacking at the regional and local levels. The challenge lies
in developing methods and tools for implementing adaptation and mitigation simultaneously
(Landauer et al., 2015). In light of recent research on mitigation and adaptation to climate
change, this study aims to evaluate the integration of mitigation and adaptation of climate
change in urban land use planning. The action component in this study would examine the
extent to which climate change mitigation and adaptation considerations have been
incorporated into the Victorian planning system.

1.2 Rationale of the study
The research asserts that understanding climate change and the capability of the
planning institution to recognise and evaluate climate change is key to planning effective
mitigation and adaptation responses. However, to date, the critical components necessary for
providing evidence of the level of climate change consideration in the planning system, its
understanding of climate change related risks and vulnerability, and planning responses and
engagement in the climate change mitigation and adaptation framework in Victoria, Australia,
have not been clearly or purposefully used. Moreover, to improve the efficiency and
effectiveness of existing climate change mitigation and adaptation frameworks as outlined in
State climate change legislation, it is necessary to identify possible constraints and challenges
9


in Victoria's State and local planning frameworks. Thus, this thesis offers a comprehensive

approach to addressing these concerns through analysis of the State planning framework and
selected local planning schemes.

1.3 Research Purpose
This research aims to contribute to the existing body of knowledge on climate change
research, adding to the global effort to reduce the risks of climate change by assessing the
integration of climate change mitigation and adaptation actions into land use planning system
in Victoria, Australia. This work draws on existing research on plan quality evaluation and
climate change studies to understand the context, concepts, dimensions, and approaches
through which the integration of climate change mitigation and adaptation can be understood.
The study employs an existing evaluation framework to analyse the land use planning system
in Victoria, Australia (Elgendawy et al., 2020; Jhan, 2017; Kumar & Geneletti, 2015; Luers &
Moser, 2006a; Tang et al., 2009, 2010, 2012; UKCIP, 2003). The Awareness-Analysis-Action
(3As) framework asserts that understanding planning policy awareness of climate change, risks
and vulnerability; and planning actions and engagement can lead to effective mitigation and
adaptation policy planning (Kumar & Geneletti, 2015; Tang et al., 2010). However, to date,
the critical components for assessing current awareness of, vulnerability to, and stakeholder
engagement with climate change have not been explicitly utilised in the planning framework
in Victoria, Australia. As such, this study seeks to use this framework to better understand the
current issues and challenges associated with integrating climate change mitigation and
adaptation and the critical role land use planning plays in this ongoing process. The need for
this knowledge is critical given the growing impacts of urbanization and the increasing
vulnerabilities of human populations to climate change.
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1.4 Research Objectives
This research considered four research objectives designed to improve our
understanding of the extent to which climate change mitigation and adaptation have been
integrated into land use planning. These objectives include:

•

To assess the level of awareness of climate change in the Victoria State and local planning
policies and regulations.

•

To assess the level of understanding of risk and vulnerability considered in the State and
local planning policies and regulations.

•

To identify the climate change actions in the local land-use planning (planning schemes).

•

Synthesise the findings of the State and local planning policies to determine the current
issues and challenges in the Victorian planning system

1.5 Research Questions
The overarching research question for this study is: how have both climate change
mitigation and adaptation considerations been integrated into the Victorian Planning System?
In addressing this research question, the thesis focuses on two sub-questions:
Sub-question 1: To what extent are the current State and local planning policies and
regulations prepared to adapt, mitigate, and plan for climate change?
Sub-question 2: What are the gaps and inconsistencies in the state and local planning
policies identified in the above context?

1.6 Study Scope
The scope of this study is to understand how mitigation and adaptation actions have

been considered in the key strategic State Planning Framework and selected Local Planning
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Schemes in Victoria, Australia. The focus of this study is not to assess the interactions that
interplay between mitigation and adaptation actions or the implications of dealing with the two
climate change objectives separately. Rather, this study analyses whether the contents of the
state and local planning policy frameworks address both mitigation and adaptation
considerations and identifies the extent to which the Victorian planning system shows
preparedness toward the impacts of climate change. On the same note, climate change impacts
in Victoria are diverse and manifest in many ways, such as rising sea levels, droughts,
heatwaves, and floods. Therefore, this thesis narrows the analyses in this research to coastal
hazards and bush fire risks, which are the current urgent impacts in Victoria.

1.7 Overview of Research Design
This research draws on a conceptual framework established by different empirical
evidence and literature gathered from several case studies of plan evaluation. This research was
based on both qualitative data collection and analysis. As earlier stated, the research employed
a well-tested evaluation framework to analyse the Victorian land use planning system using
the Awareness-Analysis-Action (3As) framework to address the four research objectives. This
research is structured into three phases. Firstly, the State Planning Framework was assessed,
focusing on essential state planning and climate change instruments to understand the extent
of awareness of climate change in the planning system and the level of analytical capability the
planning instruments has demonstrated to address the impacts of climate change in Victoria.
Secondly, three local planning schemes were selected and assessed to understand the
extent of awareness and analytical capability of climate change and what local land use action
on climate change is present at the local planning level. This research utilised both content
analysis and planning quality analysis which involved the coding, summarising, and evaluating
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of policy documents across the first and second phase of this study. The research employed
plan evaluation research as a core paradigm to understand the extent and level of climate
change preparedness and integration in Victoria's State and local planning policies and
regulations.
The final phase of this research discusses the current issues and challenges arising from
the State and local planning policies and regulations in Victoria, specifically, the findings from
the analysis of the contents of the State Planning Framework (Chapter Five) and the plan
quality evaluation of the three local planning schemes (Chapter Six). The synthesising of these
chapters focused on understanding where the planning legislation stands in influencing state
policies and strategies, which provides leadership and guidance for local planning policy
framework in addressing climate change issues (Chapter Seven).

1.8 Overview of Case Study
1.8.1 Background to Case Study
This research consists of a case study of planning policy instruments in Victoria.
Victoria is one of the Australian state governments and territories that have been proactive in
setting an agenda on climate change, primarily implementing adaptation and mitigation policy
measures (Bulkeley, 2013; Fuenfgeld, 2013; Mercer & Jotkowitz, 2000; Moloney & Fünfgeld,
2015). However, recent evidence suggests that Victoria faces severe climate change risks,
including bushfires, sea-level rise (coastal erosion and inundation), extreme weather events and
increase changes to the rainfall patterns, floods and drought (Moloney & Fünfgeld, 2015). Also,
many challenges are associated with its growing population of 6.661 million people as of
December 2020, a figure that has made it the most densely populated state in Australia (ABS,
2020). These indices are influenced mainly by the increasing population growth of the
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Melbourne metropolitan region, making it the third fastest-growing region in Australia, as the
Victoria population growth is projected to hit 10.1 million people in 2051 (ABS, 2020;

DELWP, 2016). This growth has placed an increasing pressure on land use which subsequently
promote the generation of significant greenhouse gas (GHG) emissions in the atmosphere
(Bulkeley, 2013; C40 Cities, 2017).
1.8.2 Policy Context of Case Study
The state and the local governments are responsible for preparing and implementing
policies in Victoria. With the Department of Environment, Land, Water and Planning
(DELWP) coordination, the state government sets policies and priorities for development work.
This study assesses two types of policy documents: State Planning Frameworks and Local
Planning Schemes. In Victoria, the key piece of legislation providing the framework for the
planning system is the Planning and Environment Act 1987. Land use and development
objectives are articulated within the 79 local government councils through their individual
planning schemes. DELWP is responsible for planning and climate change issues (Eccles and
Bryant, 2011). Likewise, the Planning and Environment Act specifies the content of these
schemes, the process of amending them, and the administration of the planning schemes.
Subordinate legislation under the Act is the Victorian Planning Provisions (VPPs). The
Victorian Planning Provisions articulate comprehensive state-wide provisions, including zones
and overlays, to develop planning schemes. Local governments establish their Local Planning
Policy Frameworks (LPPFs) in the planning schemes, which define their development's vision
and municipal strategic direction. In addition to the Planning and Environment Act, some other
laws and policies affect the use of land and development (Eccles and Bryant, 2011). Among
them is the Building Act, 1993, Environment Effects Act of 1978, Heritage Act of 2017, Local
Government Act 2020, Subordinate Legislation Act of 1994, and Victorian Civil and
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