HT

395

.A92Q34

1961

3

SOME OBSERVATIONS ON THE

RURAL-URBAN

INTERDEPENDENCE PROBLEMS

IN QUEENSLAND

BY

M. JUPPENLA TZ

DEPARTMENT OF ARCHITECTURE

Volume I 1961 Number 1

SON[E O-BSERVAl~ION~ ON ffHERURAL..URBAN

INTER.DEPENDENCE PR()BLE_MSIN QU-EENSLAND:

\/Vith particular reference to the Shire of Bowenand a method of procedure towards a rural-urban svnthesis

by

M. JUPPENLATZA.A. Dipl. (Land.), A.IU.B.A., S.P. Dip!. (Land.), A.M.T.P.L

Senior Lecturer in Architecture, University of Queensland

University of Queensland Papers

Department of Architecture

Volume Number

UNIVERSITY OF QlHSENSLAND PI{ESSSt. Lucia

7th July, Hl61

Wholly set up and printed in Australia byWATSON, FERGUSON AND COMPANY

Brisbane, Q.LO(H

TABLE OF CONTENTS

PART l.--SOME BACKGIWUND CIECUMSTANCES OF THE PROBLEM

A. Introduction

B. The Spheres oT Influence Affecting Queensland

C. The Nature of our Economic Systcm and Environment

D. The Inevitability of Planning in our Future Development

F Town Planning for l{ural Centres

F. Community Partieipation in the Planning Process

PART 2. -A RUEAL-UEBAN EXAMPLE IN QUEF~NSL;\ND

A. A Pattern for thc Settlement Expansion oJ Queenslal1(l

B. The Rural Assessment-A Simplified Prc)U~';s [or Hegional Analy.;is

i. Definitions of Regional Example

ii. Selection of the Jurisdictional Unit

iii. The Shire of Bowen: tl,C Essential Maps

a. Ph ysical Conditions

b. Human Impact on the Region

c. Economic f,'actors of the Hcgion

C. Urban Diag'nosis

i. An Example of the Importance of the lJrban En virons

ii. The Town Survcy·-Physieal

iii. The Socio-Economic Survey

lV. The Graphical Compilation of the Survey

v. 'rlw Urban Analysis

a. Graphical Sieve Method

b. Employment Trends

n. The Syntllcsis of the Rural-Urban Relationship

i. The Statistical Structnre of Communities

ii. The Prospect Tor Investment Opporhmity

iIi. Employment Opportunity ..

iv. An Example of Prediction for Urban Growth by the Statistical Method

E. Synopsis of the Observations

APPENDICES

5[)

7

8

10

12

2!l

2D

20

30

:J5

3il

3f;

:lG37

41

41

42

42

43

4444

4n4748

5fi

J\PPENDIX .A.

ApPENDIX B.

ApPENDIX C.

ApPENDIX U.

ApPENDIX E.i-\PPENDIX F.

ApPENDIX G.

ApPENDIX H.

ApPENDIX 1.

Extract from an address by Charles Abrams, Professor of Planning,Massachusetts Institute of Technology, Cambridge, U.S.A. at a U.N.Seminar on Regional Planning, Tokyo in 1958.Reg-ional Plann-ing Legislai'ion -in Under-deueloped A rea.s

A Simplified Land Use Colour Notation

Bowen Eegional H.esearch and Promotion Bnrean .. -QuarterlyReport of Exccnti ve

Bowen and District Age Structure of Commll11itv

Climate of Bowen

Bowen---List of Social Organizations and Amenitie3

Gross Densities of Brisbane Suburb3

"Economic Survey of Port Denison", E'conorm:c News, April-May,J953

/,0((/.1 Government A cts, 19:~fi-54·, Part X I, Section 30, para. :~

Gf

62

Gfi

Gfi

Gi)

72

LIST OF ILLUSTRATIONS

]. Major Rivers and Catchment Areas in Queensland

2. Selected Annual 1sohyets of Queensland

3. Cyclone Frequency throughout Queensland

4. Drought Frequency throughout Queensland

fl. Land of Closer Settlement Capability

Ii. Distribution of Major Economic Minerals

7. 7flo Etlective Temperature-Jan.-June·-Queensland

8. 7flo Effective Temperature--July- December·-Queensland

O. Settlement and Living Enviroument of Queensland

10. Existing Settlement Pattern throughout Queensland

11. Zones of Common Architectural Problems in Queensland

12. Development Sectors of Queensland deserving of comprehensive .study

13. Shire of Bowen: Soil and Mineral Characteristics

14. Shire of Bowen: Distribution of Known Economic Minerals

I fl. Shire of Bowen: Land Use Pattern

I Ii. Shire of Bowen: Potential Land Use and Settlement

17. Environs of Bowen: Physical Characteristics

18. Environs 01 Bowen: Soil Classification

10. Town Survey Proforma

20. The Land Use and Occupational Structure 01 Some ~;electe(l Queensland Towns(Tabl" I)

21. Comparative Land Use Tables for Selected Towns in America and Cyprus(Table 2)

22. Graph of Mean Land Use a.nd C1'O,s Densities for Selected Towns

23. Shire of Bowen: Impact of Regional Development on the Urba.n Centre

24. Shire of Bowen: Prediction of Town Crowth on a Statistical Basis

17

L8

Hl

20

21

22

21;

27

28

31

40

flO

"I

54

PART 1

SOME BACKGROUND CIRCUMSTANCES OF THE PROBLEM

IA. IntroductionThis paper is intended to be the first in a series, in which it is proposed to examine

the problems associated with creating a better human environment for settlementthroughout Queensland. It is the result of a study begun in l!)58 as a researchproject, and, though in itself it is not intended to be conclusive, it is intended toillustrate the direction in which much more intensive research work is needed,and at the same time to illustrate a method of procedure for carrying out such work.One of the findings of the study to date is that there is an absence of any quantitativeinformation on the problems of rural-urban interdependence.

In the economy of most shires or jurisdictional areas in Queensland there existsa vital physical and socio-economic link between the areas of the productive sourcesand the node or centralized community of the region. These factors subsequentlyreflect on the economy of the state. An exact knowledge of the factors of sucha relationship is a necessary prelude to any policy or action which could improvethe economy or way of living in the regions. In analysing the problems of theexisting rural-urban relationship in Queensland it is necessary to know somethingof the economic circumstances within which the towns and regions have grown,along with a knowledge of the existing spheres of influence and the influences fromother spheres which are likely to affect the future trend of development.

The study to date reveals the urgent necessity for strengthening the separateregional economies. It also appears that the challenges of distance and organizationare far too great for a laissez-faire competitive economy to achieve any form of con­tinuous and orderly advancement. Having in mind the human as well as theeconomic and physical factors which are still necessary to overcome the challenge offurther economic development of the rural areas of Queensland, it is important thata great deal of additional knowledge on the settlement supporting capacity and theinvestment opportunity throughout the state be made available. From this know­ledge, accurate and long term programs of action can be dmwn up. Members ofthe community, private organizations and the government all have a part to playin the implementation of such programs. There is no escaping the inevitabilityof planning, if a better rural-urban relationship is to be established. A vital com­ponent of any such program is the community involved. Experience in other partsof the world illustrates that community participation in regional or urban develop­ment programs can sometimes mean the difference between the success or failure ofthe project.

The following observations on the rural-urban problems existing in Queenslandat present are all of an introductory nature. It is hoped that much more detailedwork can be carried out in the future on selected areas in Queensland and selectedaspects of this study. As the problems of rural-urban interdependence in a giventerritory are essentially a consequence of the environmental economic circumstancesand administrative and political systems pertaining to that territory, it is deemednecessary to prelude these observations with an outline of some of the circumstanceswithin which Queensland is contained. The extent to which planning is used asan essential aid to om form of economic administration is also reviewed.

lB. The Spheres of Influence Affecting QueenslandIt has become commonplace for lecturers in aspects of economic development,

trade a:1c1 commerce, sociology or planning to prefix their comments with a review

6 M. JUPPENLATZ

of the demographic survey of the world, and in particular to focus their attentionon the mounting problem in South-East Asia. This paper makes no apology for notbeing an exception to that rule.

Before many more years paos, Australia must surely become involved with thehuman problems of the East. The statistical returns and predictions contained inthe United Nations Demographic Year Boole illustrate an increasingly dispropor­tionate population growth between Asian ,countries and Australia. In 1950 anestimated population of l,272 minion was being supported on 1.1 million sq. miles ofarable land in S.E. Asia. This population, on present trends, is growing to 2,210million persons by 1975. The contrast with Australia should be noted for the popula­tion of 9 million in 1950 is expected to rise to 14 rnillion over the same period on .8million sq. miles of arable land,l in addition to extensive areas suitable for grazingsheep and cattle.

By 1975 it is estimated that the urbanized population in centres of 20,000 andabove in Asia is expected to be 920 million,2 compared with the equivalent urbancentres in Australia of 8 million. This alone indicates the extent and scale of theeconomically developed and organized human centres where the minirnum subsistencerequirements must be made available. It also gives an indication of the patternsof communications which must also be established if the continuous and adequateflow of survival necessities is to be maintained in order to help preserve politicaland administrative stability.

In a world in which human and economic forces are beginning to generate suchpowerful motives of conflict, it can be justifiably asserted that any state which hasnot provided itself with a sound knowledge of its economic ability is not equippedto plan its own further economic development. Where facts and economic changescan be measured, planning for further settlement, increased production, trade andcommerce, is one method of contributing to the flow of survival necessities to countriesin need, expanding economies generally, and of helping to maintain political stabilityin those countries.

Queensland is particularly ill-equipped at the present time because there are noresources appraisal and analysis from which members of local authorities, privateinvestment groups or central government can compile plans for inducing closersettlement, increasing production and economically developing the regions of thestate. Many interested parties, at many different economic and administrativelevels, have a part to play in the implementation of developmental programs. Allsuch plans require the co-operation of many sectors of the community, all workingto their mutual benefit to increase the value of real production in Queensland andcreating a value of gross product more in keeping with the world environment whichis rapidly changing around us.

Tn Queensland 75 per cent of the towns3 have a population between 1,000 and5,000 and the population of many of these towns is almost static. A doubling oreven trebling of the population of Queensland in 25 years is infinitesimal comparedwith the population pressure growing up around us in the continent and islands toour north-west. On present trends, it will be many years before the countries ofS.E. Asia readjust their economic systems and advance enough technologically tomeet their own subsistence requirements. Therefore, with an ever increasing demandfor the necessities of slUvival foodstuffs, there is no reason why a technologically

.I. John Andrews, A uslralia's Resonrces and their Utilization (Commonwealth Oflice of Educa­tion, 1949).

:l. [lhiJip M. Hauser, ImjJlications of Population Trends for Regional a.nd Urban Planning inAsia. and the Far East, Seminal' on Regional and Urban Planning (United Nations Housing,Building and Planning Series, Nos. 12 and 1a [Tol<yo, Hl58]).

a. The term "towns" is used in this context to mean incorporated towns in Queensland wherepopulation ranges ±'rom 700-5,000, according to the Commonwealth Censns.

QUEENSL;\ND RUHAL-URBAN PROBLEMS

advanced state with such a small population need not substantially contribute torelieving the pressure of hunger and want in S.E. Asia.

From discussions with local government officials and councillors in Queensland4

it appears that many members of the councils of the shires and rural towns existin a cloud of apprehension as to their future. They have no policy or plan for theirown shire or district and at present remain in a state of complete uncertainty as tothe extent of support they are likely to bring unto themselves from either centralgovernment loan or the financial resources of private investment. Many of thesame councillors are sure that there is ample opportunity in Queensland for preparingregional development plans for projects which would be economically attractive todevelopmental investment groups and which would contribute substantially to thegross national product. The question is heard repeatedly from these people: "Whatmeasures can we take to bring the latent riches of the soil into economic circulation ?"

At the Sixth Australian Planning Congress, held in Brisbane in 1960, specialistsasked th.e question of the pattern of settlement established in the post-war yearsin Australia, "will it provide for healthy economically expanding communities ofthe future or will they be riddled with social disorder and economic frustration ?"It was conceded that as no quantitative study or measure of such trends has yetbeen made, and so little is still known about the likely trends, the question cannotbe answered.

le. The Nature of our Economic System and EnvironmentThe "economic problems of growth" in the world today are very much the

same irrespective of the basic pattern of administrative organization. They areall concerned with the application of the scientific method, the accumulation ofcapital, and increasingly, a more conscious control of economic forces by the stateto eliminate economic swings or fluctuations and to promote further growth."

The control of economic conditions is possible only through the conscious collec-­tive or social activity, unlike the process of natural selection which has governedthe control and deVelopment of all organic life without the collaboration of theindividual.

It was from the application of scientific method in the eighteenth centuryin Great Britain that the increase in production, commercial exchange, transport,and basically, all things purely economical led to a complete transformation in theconditions of life. Man thus began to accelerate his conscious efforts to control hisliving environment. Witb this effort came a gradual lessening of economic un­certainty and poverty.

Adam Smith in his "Wealth of Nations" propounded the principle of a com­petitive economy, with the government providing only a framework of police andjustice in which the economy of the country could grow. His contention was thatthe laissez-faire competitive method would ensure the most effective means ofutilizing the resources of the state, and produce the most rapid rate of progress.

A reaction to these conditions, which became in effect repeated periods o[progress alternating with severe depression, was felt throughout all Europe in themid-nineteenth century. It caused it complete rethinking and prediction of thesocial structure of the world. In Germany, Hegel, with his idealist dialeetiG', wasfollowed soon after by Karl Marx, with his dialectic materialism. Sixty years later,

4. North Queensland Local Government Association COlllerence --held at 1Ierberton---·lH59.Local Government AssociatiOIl of Queensland Conlerence----helcl in Brisbane---August, 1\)60,

;j_ Oration for the Queensland University Jubilee CelebratioIls---june, 1960. Sir RobertLowe Hall---Economic Adviser to .Her Majesty's Government.

8 M.jUPPENLATZ

I\ussian revolutionary leaders were to describe their classical exposition on scientificsocialism,

With the clarity and brilliance of genius, this work outlines the new worldconcept, consistent materialism, which also embraces the realm of social life,dialectics, as the most comprehensive and profound doctrine of development,the theory of the class struggle. 6

In France, in the mid-nineteenth centu'ry, the reaction was felt differently, andscbolars began to analyse the factors on which human progress depends from ahumanist point of view. .

Le Play established the trilogy of "folk, work play" as the basis on whichthe socio-economic structure of society could be analysed and from which positiveaction in keeping with the circumstances could be formulated. At the turn of thecentury, Patrick Geddes, a noted biologist who laid the foundations for sociology andhumanized town planning, virtually adopted this process, but modifIed and appliedit in the analytical form of physical, social and economic survey, analysis withinthe environmental circumstances, and the compilation of the plans, be it regional.town or village development: From his work in England, Cyprus and Inelia, avery systematic method of enquiry and synthesis of urban-rural relationshipsemerged.

Soon after the turn of the twentieth century we lind the competitive economicsystem propounded by Adam Smith which has become generally accepted breakinginto two distinct patterns; fIrstly, in Russia, a complete socialization of all economicprocesses coupled with the idea of human selection, rather after the plea of Malthussome 130 years ago. This process began with the idea of eliminating the competitivesystem altogether and thus eliminating what was considered to be the inherentinstability which it caused. This involved "absolute planning" from the statelevel, right down through every scale of communal and civic activity, until everyhuman being became a planned unit.

In 1935, in his "General Theory of Employment, Interest and Money", JohnMaynard Keynes pointed out that the economic fluctuations were caused by changesin the rate at which people spent their income, which tended to be cumulative ratherthan self-correcting. Therefore, if governments were to assume the responsibilityof maintaining stable economic conditions, it would be necessary for them to takemeasures which would act as a counterweight to the varying rates of spending ofthe countries concerned. His principles were becoming accepted in Britain soonafter his work was published, but since the 1939-45 war they have been almostuniformly adopted by most democratic governments to the extent that when theprivate sector of the economy has "overspent" and unemployment is increasing thegovernments endeavour to allocate capital funds for the purpose of increasing publicworks and ease the unemployment as much as possible. There is a diHerence in theextent to which some of the democratic governments exercise this principle. Thegovernments of Britain and America have taken much more control of the economyof their country than those of Canada or Australia, but the fact remains that theAustralian and Queensland governments have adopted the principles contained inthe general theory of ] ohn Maynard Keynes, and therefore any action towardsstimulating or eHecting the present rural-urban economic relationship will have tobe planned within this framework.

ID. The Inevitability of Planning in our Future DevelopmentThrough the application of the scientilic method, civilizations have advanced

considerably in the control of their economic circumstances. This has since been

G. 1I1arx-Engels (Moscow: Foreign Langnages Publishing House, 1950) 1.

QUEENSLAND RURAL-URBAN PROBLEMS

extended to include the physical as well as the social environment of their culture.Governments are now setting their own socio-economic standards, which becomethe targets to which all national effort is mobilized for the sole purpose of achieve­ment, and the face of the land and natural power are used to achieve these ends.

Most governments of the world today have adopted a uniform method ofcollating the statistical structure and trends of their national economy in such away that they can compare the vital factors of their standard of living with othercountries, and where the countries have not had a heritage of independent economicdevelopment, U.N. experts are frequently called in to set up the establishmentnecessary.

However, in a large capital-hungry state such as Queensland, where the magni­tude of the scale of development necessary to bring the value and volume ofproduction in line with world needs is so great that it is almost outside the rangeor scope of individual private enterprise, there is a case for asserting that the govern­ment could possibly attract more industry and investment capital into varioussectors of the state by having comprehensivlC physical and economic developmentplans prepared for each of the sectors. Within such programs of development, publicand private capital and organizations could work in co-operation to bring aboutmore fruitful economic returns from the resources of the state. This would auto­matically imply a comprehensive survey of Queensland's investment potential, i.e.,an up-to-date compendium of the known and proven resources of the state, aknowledge of the hierarchy of settlement throughout the land, the sociologicalaspects of present settlement, the human factors related to further settlement, thedistribution of labour force and location of existing employment opportunity, and acomplete appraisal of investment and development opportunity in the state. Thegraphical analysis, in the light of known economic or investment trends, and theobjective analysis of the survey information, are the logical steps which follow sucl\a study, and from these analyses developmental projects and regional plans can becompiled for any location or for any scale of operation.

Regional planning is a complex process, and the problems of economic and socialdevelopment need to be considered in their entirety. The region is the link betweenthe national and local community. It provides a suitable framework of referencefor a balanced integration of development projects of national significance and thosebased on local initiative. Urbanization, industrialization and regional planning areall closely linked problems of theory, policy and practice. Examined together andin their proper relationship, it is possible to provide some answers in the searchfor an expansion of development in rural areas and the decentralization of industryto such areas. There are devices for fulfilling such objectives, the best of which,as Charles Abrams describes, is persuasion. 7

The study to date reveals a need for a revision of urban land use policies, ifthe problems of migration, housing, land use and misuse throughout the state areto be resolved to provide a more rational pattern of development in relation toeconomic resources.

Industrialization is one of the more reliable means available for strengtheningthe economic basis of existing urban centres, i.e., high density of settlement, butwithout economic planning from a higher level it is a fluctuating means of employ­ment and can cause immense social and human suffering if a watching brief isnot maintained on all industrial activity of the state. Under the economic system·of Keynes, the more effective the watching brief the more knowledge, authority

7. See Appendix A--Extract from U.N. Seminar on R.egional Planning, Charles Abrams, \Pro­fessor of PJanning, Massachusetts Institute of Technology, U.S.A. lIeg·ional Planning Legis­lat1:oll in Under-developuZ Areas.

10 M. JUPPENLATZ

and finance which the state government controls, the more effective can the higheradministrative level be in positively stimulating productive employment as theeconomic environment begins to work to the detriment of such industries.

In a pioneering and economically developing state, such a planning method issocially and politically adequate, but in the long term development interests of thestate there is a notable advantage in having a complete and integrated program ofdevelopment, even to the extent of having ,physical plans prepared, to which allthe interests of the state are directed. The sole purpose of such plans is the creationof wealth from the latent resources, and thereby continually strengthening theeconomy of the state.

If the state is to help itself by creating more capital for the further developmentof itself, there is no escaping the inevitability of extensive fact-finding about itsown economic abilities, the necessity for analysing the information in a compre­hensive manner to reveal investment opportunities and the drawing up of plans forthe implementation of such projects at every administrative level involved.

IE. Town Planning for Rural CentresA "plan" is, simply expressed, a way of proceeding within an agreed policy

towards an objective. By the vague way in which the words town or regionalor master plans are used today in Queensland one could well draw the conclusionthat too little thought is given to the meaning and the purpose of the words "townplans" .

Planning can be oper~tive within very confined statutory limits, or confinedby fixed and known resources; there is tactical planning, operational planning, beit military, economic, political or commercial, and a whole list of purposes withinwhich planning is used or within which plans are prepared. The whole of this studyis being devoted to aspects of the use of planning towards establishing a rationalprocess of regional and urban development within the political, physical and socio-economic problems of Queensland. .

It is therefore important that an exact understanding of(a) the purpose and limits of the objectives,(b) the agreed policy for urban-regional development, and(c) the way of proceeding, both technically, administratively and statutorily,

be established before the preparation of the Town or Regional Plan begins.These opening comments have been necessary because it has become evident

from contact and experience with some of the local authorities during the courseof this study that insufficient thought has been given to the three items mentionedabove in the interpretation of the Local Government Act, 1936, Sec. 3:~. It isgenerally interpreted as restricting the local authority to concerning itself onlywith a simple Land Use Zoning Plan, which becomes statutorily binding on theinhabitants of the community. However, the Act is deliberately framed and wordedso as not to place any such restrictions upon "the plan", nor on the objectives of"the plan" nor on the manner of proceeding with it. s In this respect, the prepara­tion of a simple Land Use Zoning Plan with statutory ordinances supporting it,without a clearly defined master policy on the rural-urban relationship, can sometimescause severe embarrassment to the town and the local authority. This is par­ticularly so, and has often happened, where inadequate provision for unforeseendevelopment has been made, or conversely, if the hoped for growth of the town hasnot been nearly in accordance with the rate proposed in the fixed Zoning Plan. The

8. F'l~nctions of Local Government (Local Government Acts, 1936-54) :Part XI, Sec. 30, para. 3.Quoted in Appendix 1.

QUEENSLAND IWRAL-URBAN PROBLEMS II

customary Land Use Zoning Map as a town plan is useful from an administrativepoint of view, but it is not necessarily a direct measure towards encouraging theeconomic expansion of the community. Unlike the great metropolitan areas ofthe world, or the majorpolitan areas of the east coast of America, Queenslandtowns need a formula for "expansion planning", not restrictive or constrainingplanning.

If the local authorities are to ensure that their towns will grow in a controlledand orderly fashion in the best interests of the community as a whole, it is becomingincreasingly apparent that a fresh approach to the problem of town planning inQueensland is needed. The problem of the planner is essentially one of encouragingthe towns to grow in population, in economic strength and into an attractive humanenvironment for their inhabitants. The process is one of planned development andex;pansion based on local employment opportunities. State government can assistby giving encouragement to industrialists to establish themselves in these ruralcentres. This can be facilitated by working within an overall plan for decentrali7,a­tion, as is the practice in New South Wales and Victoria.

It is therefore argued that the present fixed Statutory Land Use Zoning Map,which is generally accepted as being the town planning measures to be _taken, isnot serving the best interests of the community, as it is not compiled on the basisof an accurate prediction of interdependent rural-urban function and development,ancl it is not necessarily based on or co-ordinated with an energetic communal-stategovernment action designed to stimulate the socio-economic growth of the districtwithin which the town is situated. Tow'll and regional planning in Queenslandshould proceed in anticipation of an expanding economy which continues to becompetitive. At present, there is general' confusion in the minds of members of thelocal authorities as to the direction in which their town planning should proceed,and there is suftkient justification for a complete reassessment of the town planneeds and process in Queensland. There is obviously a need in some centres for adiverting of administrative and communal energies devoted to the enforcement ofrestrictive zoning plans to creating and stimulating civic pride and developmentwithin an entirely new local government-communal framework, based on thenecessity to compile a "plan for urban expansion", rather than a paper plan forland use function only.

In the structure of a small town society where the people are still strugglingfor further economic strength and civic consolidation, the objectives of the planshould surely be considerably widened to invite more initiative from the people ofthe community to express themselves freely and not to constrain them. This isassisted firstly by the systematic analysis of the interdependence of the rural-urban-environment, secondly by the agreement upon a policy of

(i) encouraging the increase of employment opportunity based on indigenousresources and opportunities,

(ii) providing a transport and communication system which, based on theregional-urban development forecast, can lay the foundations for thesteady, unimpeded and less administratively confused process of urbangrowth,

(iii) providing all the economic, physical and social circumstances suitablefor the freedom of initiative and endeavour of the inhabitants,

and, thirdly, by reviewing the way of proceeding in the above directions by havingmore community participation in the search for the true knowledge of their immediateenvironment, by educating the community in the elements of civics, and by givingan enlightened public all opportunity to evolve and express the pattern and characterof the town they themselves select and would wish to emulate.

12 M. JUPPENLATZ

IF. Community Participation in the Planning Process

These notes concern the smaller Queensland towns, where self-help communitydevelopment is needed, rather than the planning of the metropolis, which is a mostcomplicated scientific, legal, technical and administrative problem. It can beappreciated that the larger a town becomes, the more complex are its problems,and the less "personal" and the more "personally abstract" the town becomes froma socio-economic point of view. '

One of the objectives when this particular study was begun was to examineways and means of stimulating the smaller towns to become actively interested inthe improvement and expansion of their own communities. Two experiments9 weretried, one of which concerned a town of 2,500 population whose inhabitants wereconscious of the possibility of an economically expanding future, and who, by them­selves, formed a Citizens' Development group to carry ont all the technical andplanning work necessary to further the growth of the town. A University repre­sentative instructed the Citizens' Development group in the manner in which theland use and socio-economic survey could most appropriately be carried out, andsuitable land use notations and the appropriate base maps were provided. Highschool students, Boy Scouts and members of youth clubs were recruited to do thefield work. The Citizens' Group was then left on its own to perfornl this work withall the further instructions of procedure. It was observed that in less than sixmonths the enthusiasm and activity had almost ceased to exist. It was deducedthat without the specialized leadership of a full-time Research and CommunityDevelopment Officer, one who was given the responsibility for carrying out thenecessary survey work, research and analysis, it was very unlikely that citizens wouldbe able to make any substantial contribution to scientific fact-finding and the personalrepresentation that are required for the purpose of community promotion.

The second experiment is one which has every appearance of being a successfulpattern, and one worth developing on a state wide basis. This concerns the shireof Bowen. A civic leader of the town at the time, Dr. Delamothe, who was Mayorof the town of Bowen, called upon the University to carry out the technical surveyand analysis work. A part-time voluntary Citizens' Committee was formed withmembers of the Town and Shire Council, trade unions, and several commercialinterests. Their duty was primarily to facilitate the university research workand to act as the liaison body for district information. Some time after the technicalsurvey work began, it became clear that some responsible body would be necessaryto receive the information, and carry it to a stage of further analysis, compilationof development projects, and liaise for the purpose of encouraging investment. Suchresponsibilities are normally outside the duties of the local authority, even thoughthey have a vital part to play in the planning process.

The proposal to re-establish the Citizens' Committee as a corporate body whichwould take on the above responsibility as a Regional Research and District PromotionBureau was submitted to the community. It was also argued that such a body, tobe effective, would require a full-time technical specialist to receive the pure academicsurvey and analyse information and compile very specific developmental and invest­ment proposals and, further, to devise means for their implementation.

Such a bureau would require finance, and, as no provision is made by thegovernment of Queensland for supporting such community development appoint­ments, the finance necessary for such an organization could only be forthcoming fromsubscriptions by interested persons of the community. Already a sum of £3,000per annum for the next five years has been guaranteed by members of the Bureau.

9. The field work for conducting research into the above problems was made possible by aresearch grant I'rom the University of Queensland, and by a contribution to the ResearchFund by the local authorities of the Shire of Wangaratta and the town of Bowen.

QUEENSLAND RURAL-URBAN PROBLEMS 13

When applications were called by the Bureau to fill the vacancy of a full-timeResearch and Promotion Officer, 15 applications were received, which indicates thatthere is a considerable number of persons interested in the challenges of such anappointment.

The Bureau as a community development organization was now equipped withthe support of-

1. the community,2. the local authority,3. the trade unions,4. the commercial and industrial interests of the town,5. political representation in the House of Representatives,6. the University of Queensland, and7. a full-time Research Officer, appointed by the Bureau itself.

After six months of operation the Chairman of the Bureau was able to providea report on its activity which illustrated how all the force and energy of a civicallyminded community could be marshalled into action. The chain of influence, andthe knowledge of the investment opportunity, are by no means advanced sufficientlyto cause the creation of a major industrial undertaking, but the progress towardsthis end can only be termed "outstanding". A copy of the published report of theChairman after six months' operation is included as Appendix C.

After the first six months of operations the members of the Bureau have cometo realize the full significance and absolute necessity of a rational and graphicallycompiled master plan, a master plan built up on

(a) the known and proven resources of the district, in which developmentopportunity and investment opportunity, along with a report on all therelated problems in achieving such objectives, are clearly and simplyoutlined,

(b) the estimated but unproven resources of the district, from which it canbe recommended that expenditure on detailed scientific investigation bystate or private enterprises is justified.

The pattern which the Bowen Regional Research and Promotion Bureau hasevolved appears to be a pattern which could be readily established throughout theother shires of Queensland for the purpose of town and district promotion. Suchpromotion is a fundamental action in the "planning process" for Queensland towns.It is suitable particularly for regions where the inhabitants are conscious of theeconomic expansion opportunities of their own districts. In the absence of anystate government machinery operating to carry out these regional resources surveysand analyses, the efforts of the individual communities must remain isolated andessentially competitive amongst themselves. On the conclusions of Adam Smith,more than 200 years ago, a competitive policy would stimulate the most rapid rateof progress and the best utilization of the resources of the various regions but it isimportant to acknowledge the consequences, "repeated and alternating periods ofprosperity and depression" which could easily follow without the support of govern­ment in guiding the growth of the towns and shires.

From the study it is suggested that the purpose of planning in Queensland isfor the local economic fluctuations to be predicted in both central and local offices,and by an authority who, in collaboration with community development organiza­tions and local authorities, has finance and power to guide and promote continuouseconomjc expansion of a town and region, the one being dependent upon the other.

PART 2

A RURAL-URBAN EXAMPLE IN QUEENSLAND

2A. A Pattern for the Settlement Exp,ansion of QueenslandIf the state is to expand economically in keeping with the changing environ­

ment of the world around us, a much greater economic return will have to be madefrom the latent resources of the state. This is going to mean much more settle-·ment; in fact, many new settlements, planned and built where settlement and ruralpursuits can be adequately supported:

H the architect is to play his proper role in designing and building houses,public buildings, or new towns, it is important that he is given the measure of theenvironmenta1 elements concerned with a reasonable standard of living for thevarious localities of the state. The architect-town planner will require to knowsomething of the standard of living and income which could be expected for theinhabitants in the various localities; whether the various districts will support closersettlement with cropping, and whether large towns could be expected to developwithin the settlement hierarchy of the various regions. The planners will alsorequire to know the further settlement probability in the various districts throughoutthe state. From an architectural design point of view the architect must be fullyinformed on the thermal conditions under which the people will have to live, forhis duty is to relieve environmental stresses through appropriately designedstructures.

In Queensland the problem of cyclones can very considerably affect the wholeof the design concept. A hot humid sector of the state in which cyclones can beexpected annuaUy is going to require an entirely different type of design from a cooldry sector where cyclone probability is only one in eight years.

The problem of drought also has a bearing on design of architectural structuresin various settlements, though not nearly so markedly as the cyclones. The houseshave to be designed to overcome structural problems induced by excessively dryatmospheres, and in some instances in Queensland particular attention has to bepaid to the design of the foundations because of the change in the behaviour ofsoils during periods of complete dehydration alternating with a state of saturation.There are many other factors of importance which would considerably affect thepattern of settlement, but the architect-town planner is concerned primarily withthose above.

By analysing these factors for the State of Queensland it is possible for thearchitect to establish the sectors in which common architectural problems are likelyto occur.

For the architect-town planner, the Sieve Method is probably the most reliablegraphical process available for regional analysis work. The method is to prepareseparate maps of the relevant information, each to the same scale and all on atransparent medium, and by placing the map of selected information over another,a graphical analysis for specific information can be prepared. The method can beused for any scale of planning analysis, be it state, regional or urban.

Queensland is a state of 670,500 square miles, extending from latitude 10° S.to latitude 2Ho S., i.e., a distance of approximately 1,300 miles north to south andapproximately HOO miles east to west at the most southern latitude. There is muchscientifiC work yet to be performed in Queensland before a really accurate assessmentand economic development potential can be established, but on the basis of the officialinformation available at present, a pattern on which further settlement and develop­ment opportunity depend emerges from sieving theabovementionec1 factors.

QUEENSLAND RURAL-URBAN PROBLEMS 1;")

Each of the accompanying maps has been prepared using official informationavailable at present, but there is much information which has yet to be made avail­able and plotted accurately for large-scale maps of Queensland. Therefore the finalanalysis maps showing the division of Queensland into the sectors of common archi­tectural problems, and the zones capable of higher population supporting capacity,are subject to correction as and when more accurate information becomes available.

Notes on Accompanying MapsIsohyets: The area defined on the moisture side of the annual isohyet of 20 in.

in Australia has been considered by some to be the area within which commercialcrop farming can be maintained, given suitable soils.

However, for the purpose of this paper, the 20 in. isohyet and above, as definedby the Meteorological Bureau, is accepted as demarcating areas suitable for cropping,given soil of appropriate quality for Queensland.

Soils: In 1959 the government of Queensland established a commission underthe chairmanship of Sir William Payne to report on problems of land settlementin Queensland. In the report submitted by the commission, a map was publishedto a small scale illustrating the areas considered suitable for closer settlement. Thisinformation is accepted as being adequate for the purpose of this paper.

Distribution of Minerals: The distribution of the major economic mineralsthroughout a region or a state, particularly if it includes immense deposits of coal,has an important bearing on the likely settlement and communication patterns andthe possible economic development of those regions. A small scale map publishedby the Geological Survey Office in 1956 is accepted. for th(~ purpose of this paper.

Effective Temperatures: Architectural design is considerably dependent uponthe existing thermal conditions in an area and the possible methods for the controlof those conditions to create comfortable living standards. In hot climates thedirect temperature or humidity readings do not. give an indication of "comfort"conditions or the temperature range within which the human body feels comfortable.In a study prepared in 1944,10 Professor Douglas H. K. Lee refers to four climaticelements affecting the human body which, to a certain degree, can be substitutedone for the other: radiation, temperature, humidity and air movement. The experi­ment.s of Professor Lee were directed towards establishing the range of atmosphericconditions over which people felt eomfortable.H The comfort zone established forAmericans shows that in winter 50 per cent of the subjects felt comfortable betweenthe temperatures of 63° F and 71 0 F and in summer 66" F and 75° F. It is inter­preted from Professor Lee's paper that the inhabitants of north Queensland areconditioned to higher temperatures, and therefore the average comfort temperature,derived from the effective temperatures, is likely to be higher in north Queenslandthan in America. For the purpose of this study it is conceded that if the comfortzone for the summer is 75° F (effective) in America, it will most certainly be acceptableas a comfort temperature for Queensland t.hroughout most of the year. ProfessorLee warns, however, that experiment is still necessary in north Queensland toestablish the optimum atmospheric conditions for such people.

From a nomogram established by the American Society of Heating and Ventilat­ingEngineers (A.S.H.V.E. Guide, 1932) using dry bulb and wet. bulb temperaturereadings along with t.he average prevailing air movement., the "effective temperatures"of 75° F for each month of the year were established for each locality in Queensland

10. Douglas K. Lee, Physiological Principles l.n Tropical Housing, with Especial Refcn/tcc toQueensland (Brisbane: IJniversity of Queensland Press, 1044) University or QueenslandPapers, Department of Physiology, Vol. I, No.8.

:I.L. The monthly effective teml)erature charts for Queensland were prepared by A. Lumley,Research Student, Dept. of Architecture, University of Queensland.

.16 M. JUPPENLATZ

maintaining a meteorological station. This information has been plotted in theform of isotherms for each month of the year from average temperature readingsextending over the past 50 years.

Cyclones: Though the incidence of cyclones throughout Queensland may notinfluence the pattern of settlement to any great extent, cyclones do constitute anarchitectural design problem. From a paper prepared in 1956 by A. T. Brunt andJ. I-logan on "The Occurrence of Tropical Cyclones in the Australian Region", amap has been prepared for Queensland showing the incidence of cyclone frequencyon the information recorded at present. This map is subject to correction if andwhen more scientific information can be made available.

Drought Frequency: Though droughts may not have too much of a directinfluence on architectural design, they are significant factors in studying the problemsof settlement. The drought frequency for Queensland, compiled by the Bureau ofIndustries and published in Economic News, July-August 1950, is included in theaccompanying series of Queensland maps which are being used as selective criteriafor establishing areas suitable for further settlement throughout the state.

Settlement and Living Environment of Queensland: For the purpose ofthis paper, it is asserted that archi tecture is a derivative of settlement and thearchitectural design is dependent upon the environmental factors within which thesettlement is contained.

For the purpose of establishing a standard of living ellvironment in Queenslandwhich can be used as a datum for the purpose of architectural design, the followinginformation has been selected (rom the maps and overlaid within the sieve process:

El1ective temperatures-mean of 75° I' for 6 months.Cyclone problems-cyclone frequency of 1 in a years.Land capability map--soils for cropping as illustrated in the Payne Report.Drought frequency---l in 8 years.Isohyet-20 in.

The analysis map depicts sectors of common problems or of similar environmentalliving conditions. For the purpose of defining the areas of common architecturaldesign problems the state is divided into the four environmental sectors, each ofwhich has its own distinctive characteristics:

(a) Coastal and sub-coastal lands of central and south-eastern Queensland.(b) Catchments of the south-western river systems.(c) The sparsely settled lands of north-western Queenslaml.(d) The north-eastern tropical coastal region.

The map showing the existing settlement pattern of Queensland and the mineraldistribution known at present has been superimposed upon the Settlement and LivingEnvironment Map in an endeavour to determine zones or sectors of Queensland whicharc deserving of much more comprehensive study, particularly for the purpose ofestablishing further investment and settlement opportunity, and for the preparationof regional development plans for their further economic expansion. From thisfurther sieve analysis, the following five main Development Regiolls of the stateare postulated:

1. The central pastoral districts;2. the northern highlands;a. the north-east coastal region;4. the east central river basin; and5. the south-east metropolitan region.For the purpose of illustrating a simplified regional analysis, a. definable juris­

dictional unit within the north-east coastal region, i.e., the Shire of Bowen, has beenselected as the example.

___11'_5 _

I

___J._III\L._

QUEENSLAND I<.URAL-UlmAN PEOBLEMS

Fig. l·--·Major Rivers and Catchment Areas in Queensland.

17

18 M. JUPPENLATZ

II::SO.~

\

Fig. 2---Selected Annual Isohyets of Queensland witll paths of unusual cyclones, 19'19-50,from information contained in a paper prepared by A. T. Brunt and J. Hogan in 195fJ, "The

Occurrence of Tropical Cyclones in the Australian Eegion".

QUEENSLAND RUEAL-URDAN PIWBLEMS lH

.----,---~- _ __o

EYERY 4 n.Af\~

A(TIVITY

EVERY 2 HARS

CYClON!:.

A(TIVITY

ACTIVITY EVU,y J ytAf\S

ACTiVITY EVU\Y 4 YEAf\S

-rI

iI) .~~

I ~/-_.. ..,,/....... 1--.'-... . ~.1-._.-._._._._._. __ ._._-_....1 I "-.v j

I[.M-e

CYCLONE. ACTIVITY

\

II

\\t',-\ClONl ACTIVIT

i ~"\~~~­

\\ flOOD lIABILI!Y DUE TO CYCLONIC AC ONl~ F.YE p"y 8 HARS

.'._ . __~- _.____ __ __..'P,,-o!"~."""'_"_"'''·KJ.''O'.,!_._ .._~">-."_~~.__. __ ~"'"

I '------~_~

\ "- '-\ ~

.1-.-._ .._'

Fig. 3---Cyclone Frequency thwughollt Queensland. Compilerl from inl'ormation contained ina paper prepared by A. T. Brunt aud J. Hogan in 1856. "The Occurrcnce of Tropical Cyclones

in the Alistralian Region".

20 M,JUPI'ENLATZ

\n 4 nu.l -------

o WINTON

\

0 JULIA

t D~OUG\H 11\ :.l :tE.U.s,.......----.---------'

\i\

~- --rIiIi-'-'-'-'-'1

IiII DIRRAN8ANDI 0~._._._._._._._._._._._._/

.J.L:.!>~_-----

~------

Fig. 4 Drought Frequency thronghont Queensland, from l;conomic News, Jlily-August, HJ50.

II· S

~---

QUEENSLAND HURAL-URBAN PROBLEMS 21

Fig. 5-- -Land of Closer Settlement Capability and areas suitable for Sheep. From a mapcontained in the Payne Report.

22 M. JUPPENLATZ

MeasuresCoal

"- ,\\

Known Distribution ofOther Economic Minerals.

'C:; Known

'""', \

I \

I \

I \\ \

\ \

/' \ \(~) \ \

\ \

') I "(.. J \

II\\. --"

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Fig. fi---Distribution of Major Econolnic Minerals and Coal Measures. From a mappublisheel by the Geologic;,j Survey Office.

QUEENSLAND RURA T,-URBAN 1'ROT3LEMS23

__ MAY

-­,.., APRIL

MARC}1/

"

II II

"........ "........... _--_..--,-

I,APY

Fig. 7-·Monthly [sotherms of 75"F effective temperature for Queenslancl--Janllary to June.Based on meteorological reports over the past 30 years.

M. JUPPENLATZ

Fig. 8· Monthly Isotherms of 75°F effective tempera-ture lor Queensland.. J111y to December.Based on meteorological reports over the past 30 years.

QUEENSLAND RlJRAL-lJI<BAN PI~OBLEMS 2G

---------------

-s

-,_ -; t t -f

I

\I• OAovc.H1 _~ flltOVt

\

----"'-

Fig. 9 Settlement and Living Environment of Queensland.

26 M. JUPPENLATZ

Each dot • 500 persons.

Circles show cities and towns Qf 1,000 or more

persons. and have areas proportionateto populations.

'Ill

..

1

I

I\

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\,I

III,III

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L -----;IIII,IL . _.---. --- _. ---- - --- ------.--.-/

•"'~'". ...... '. .... '

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Fig. 10---Existing Settlement Pattern throughout Queensland at the time of the Census,30th June, L!l54.

QUEENSLAND RURAL-URBAN PROBLEMS 27

28',

/I'S

28' 5

II' 5

I\ I

\ :\. "SPARSHY SETTLED\ NORTH·WIST QUEUUL.AHD "

\ "\ "'"\. "~/

. --- /\ ~ ~~~, /r.......... --........--- - ..... /-("

i '. \I CATCHMENTS OF THE SOUn-WEST II _M~ I1, "'~5-QC~'!:!l~---------_.J.----------

.- . ------- " COASTAl ANDI , rum· r.OA<TAL LAND'. \ OF ClNTIlAL 4ND\ \ SOunl- WT QUfEloULAHD

L.---·-, I\ I\ I

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\ )~-~-" ;L._.-.-·-·-----·-·- \/~

l'ig. J [--Zones of Common Architectural Problems.

28

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rUPPENLATZM ..

4EN1 CENTRA lRIYfR MSIN

Fig. 12 plchensiveI servmg or comh sectors ( e ep-tredsland, showmg tt eplans could be pr ,f Queen 1 pmen1 PlTIcnt Sectors °hlCh regional deve 0Deveo J study from wrcglOna •

QUEENSLAND RURAL-TJRBAN PROBLEMS 29

2B. The Rural Assessment. A Simplified Process for Regional Analysis2B. (i) Definitions of Regional Example

Charles Abrams outlines nine different variants which can be distinguished inthe unanalysed body of regional example:

]. a definable jurisdictional unit, such as a shire, state or province,') a larger metropolitan complex like the London or New York region,3. a group of municipalities trying to resolve their common problems in a region

through the creation of a new integrating unit,4. two or more states, cities or other bodies delegating some power over common

problems (water, ports, sewerage, parks, etc.) to a public corporation formedspecially for these purposes,

5. a section of a country where physiographical considerations make it desirableto plan the whole area affected by a project, such as harnessing of a river'spower,

6. an international waterway or other forms of power or transport which makeit desirable to effect a compact between two or more countries governingtheir use and benefits,

7. a new city, the building of which will necessarily affect the surrounding areaand therefore makes it desirable to control that area in the interests of morerational future growth,

8. an existing city with undeveloped land on its periphery, the future develop­ment of which may affect the city's economy or thwart its expansion,

9. a number of rural areas concerned with problems of Hood control, irrigation,water, transportation or other services.

Of the nine examples, and for the purpose of this paper, the definable juris­dictional unit has been selected for analysis purposes.

2B. (ii) Selection of the Jurisdictional UnitIn the future, as in the past, development of the districts and urban centres is

going to depend upon the initiative and influence of the individuals resident in thearea, along with the support of state and national governments. Though there areanomalies in the spheres of influence of some towns and the administrative regionencompassing the town, it is still a general rule throughout north and central Queens­land12 tha.t the people of a shire recognize their loyalty in commerce and socialaffairs to the town in which their local authority is situated. For the purpose oftown promotion or town planning, the final arrangements for any statutory purposesalways return unto the local authority, which is also known as the jurisdictionalu:1it, in the list of regional examples. From a statistical survey and public expendi­ture point of view, the jurisdictional unit is still the best defined region for thepurpose of carrying out regional survey and analysis work. Scientists, economists,and regional planners may well doubt the :iUitability of some boundaries of localauthorities for regional planning work on the grounds that they are not alwayscoinciding with natural economic regions or natural physical regions, and frequcl1tlythere is much merit in their observations. However, upon the completion of acomprehensive regional analysis, it is not impossible for the legislature to alteradministrative boundaries for the more economic functioning of a district, if thecase is sufficiently justified.

12. For characteristics of some towns sitnatcd on the Darling Downs, see R. S. Dick, P'iveTowns of the Briga10w Country of South-eastern Queensland, Goondiwindi---M'iles--Tara.-,­Ta1'OOI/'1.--Wandoan (Brisbanc: University of Quccnsland Prcss, 1960) University of Qneens­land Pavers, Department of Gcography, Vol. T, No, 1.

30 M. ] UPPENLATZ

When this research project into methods for implementing regional develop­ment first began in 1958, it was intended to embrace the whole of the Port DenisonRegion, i.e., No. 14 of the regions of Queensland established in 1944 for the purposeof encouraging decentralization. Before the project was very far established, it wasquite evident that the project. could be advanced more satisfactorily if attention waspaid only to Wangaratta Shire and the town of Bowen. The initiative was takenby the Bowen Town Council to support and,advance the work in collaboration withth" University. Since this work has b"gun, both the Shire and the town have beenofficially amalgamated into the one local authority of the Shire of Bowen, and totheir mutual advantage, constitute a single administrative area instead of one ruraland one urban, as originally planned for the purposes of the research project.

In an attempt to illustrate a process and a method of regional analysis andurban diagnosis which might be suitable for districts and towns in Queensland, theproblems of the region and those of the town are firstly dealt with as separate studies.The result of each section has a signifIcant influence, one upon the other, and it is,therefore, important that some affinity of method and terminology be establishedfor working. Mention has been made of the method of regional and urban surveywork evolved by Sir Patrick Geddesla , i.e., survey of physical, social and economicfactors, analysis from the synthesis of the three studies, and from this synthesis aplan is drawn up. This method has been adapted and applied to the Queenslandexample.

Of the two sections of the work, the one concerns the study of the physical,social and economic factors of the jurisdictional unit, i.e., the Shire of Bowen. Theexisting circumstances and a measure of likely economic development or furthersettlement opportunity of the Shire forms an important part of this work.

The second section requires the diagnosis of the urban problems by townplanners, urban geographers and urban sociologists. Experience in many partsof the world has proven that the town planning process is greatly facilitated ifmembers of the community are encouraged to participate in the planning diagnosisof the town.

2B. (iii) The Shire of Bowen--The Essential MapsIt has already been pointed out that the planner is essentially a collator of

every facet of information on which a successful plan depends and an analyser ofall this information within the limiting environment. The following maps are aselection from all those compiled for the Shire of Bowen. They have been compiledfrom publisbed sources of information and information gleaned from local knowledgeby the Research Officer for the Bowen Research and Promotion Bureau, Dr. J. M.Berceanu. Maps of equal scale were prepared, and the Sieve Method employed forthe purpose of analysis. [t is not the object of this paper to prove the validity ofthe information, but to illustrate the process of coUation and analysis of this infor­mation for planning, investment and further study purposes. The same methodcan be applied to all regions. 1t was considered important to examine firstly thefactors on which human habitation is most directly dependent in the rural scene,i.e., water, soils, c1imate. It was most fortunate that' the land research team ofC.S.I.R.O. had carried ont a land classifica.tion survey of a substantial part ofthe Shire, and a vital base map for further settlement analysis became possible.The Bureau of lnvestigation had carried out a soil classification for another sector,and after some interpolation the approximately equivalent classifIcations werecompiled and plotted.

13. See Section I.e. "The N"tL"'e or our Economic System and Environment."

QUEENSLAND RUEAL-URBAN PROBLEMS

PORT DENISON REClION, QUEENSLANDSOIL AND MINERAL CMRAcTERfSnCS

~ROM PUCLISHED SOURCES O~ INI'ORMATION

~~;JJ;:f;::;;/x,f1O:.J!::/J,~!I~rrcu~c.r /oR.a. Q"q' BV,(!MV OJ:' /NvHTlCwfnt:M,'

Fig. 13----Shire of Bowen: Soil and Mineral Characteristics.

31

eo 30

M. JUPI'ENLATZ

~\~.""""")''''~.

~II

~

0z«..J

'"~ffi

:J z ~0' ":r

~ ~\J

:<: i .~ ~0 g0 z

0 0 ~o

w ~ ",'i::c< . ji;

Z(;

~ ~0 z

'" 0

Z "li

w iil0

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1'....'-\

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1\\

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Fig. 14-·Shire of Bowen: Distribution of Known Economic Minerals.

QUEENSLAND RUEAL-UR13AN PROBLEMS

~ ~

" ~ Hi\1 J 1 ~,

.II8"'• < ! ~ ~~ (J

JI .b ~ \ ~,

HU~

d §~ H ' - ~~U~~ ill §~

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33

Fig.15-Shire of Bowen: Existing Land Use Pattern, showing possible maritime exploitation.

~z

~i

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11~1 III111111111 •\ .'

M, JUPPENLATZ

Fig, ] 6 ---Shire of Bowen: Potential Land USe and Settlement.

QUEENSLAND RURA.L-URBAN PROBLEMS 36

2B. (iii) (a) The Physical ConditionsThe first map and report in any regional survey are the lanel characteristics

on the surface, comprising a combination of(1) physical terrain;(2) water supply and hydrographic knowledge;(3) soil characteristics and potential use;(4) exact climatic data.

Such a study reveals the probable nature of the territory before mankind usedor misused the land. An analysis of the combined information by a planner wouldreveal objectively the pattern of natural settlement which the region could supporton rural pursuits. In this particular region there is little area available for agri­cultural pursuits, but this will be illustrated in the analysis. (See Fig. 13.)

The second factor on which settlement of land is encouraged is the availabilityof economic minerals. The Geological Survey Office can reveal all the informationwhich has been reported to date on minerals in the area, but there are very fewareas in Queensland which have been systematically covered by a prospecting teamto report the location and extent of minerals in the region.

From the geological map, areas likely to contain industrial or economic mineralscan be plotted, but this does not reveal the knowledge of exactly what is to be found.

For the Shire of Bowen, at the commencement of the research project, a mapwas compiled from the geological survey showing the location of the igneous contactrocks and sedimentary formations likely to contain minerals such as cupreous pyrites,gold, asbestos, limestone, etc. Soon after the full-time Research Officer was appointed,Dr. Berceanu formed a Prospectors' Association. Some preparatory training formembers of the community was organized by professional prospectors, who also joinedthe Association, and since that time teams of prospectors are now systematicallycovering the region at week-ends and in their own time. Within six months ofcommencement, some extent of the mineral wealth of considerable diversity andextraordinary richness has been revealed. Though few test drillings have been madeto measure the value of the deposits, the localities can at least be plotted to illustrate:

(a) areas deserving of thorough mineral survey;(b) lines of communications which could be laid to afford access to the

deposits after they have been proven in combination with furtheropening up of pastoral or agricultural areas.

These maps illustrate the feasibility of working a combination of variousfactors, such as coal, salt and limestone, three items in plentiful supply at Bowenwhich could form the basis of an extensive chemical industry if the organization,finance and marketing could be arranged. (See Fig. 14.)

2B. (iii) (a) Human Impact on the RegionIt is essential to examine the extent of land use existing in the region at present.

It is also important to know of any changes in land use over the past decades andthe reason for such changes. The visual and graphical method of plotting thisinformation is the most satisfactory, for the entire regional picture is seen in acomparative light. Coupled with this survey is the distribution of public amenities,schools, hospitals, communications, etc., available to both the populace existing andareas which could support more population. (See Figs. ]5 and 16.)

The region in question is predominantly cattle grazing with the isolated home­steacls situated beside a river or water supply with access to the remainder of thecattle property. The graziers are responsible for their own transport and ccm­munication.

M . .1UPPENLATZ

There is one town established on the coalfield, Collinsville, with a further settle­ment at Scottsville, but this is large enough to be considered under the UrbanSurvey.

2B. (iii) (c) Economic Factors of the RegionThe economic strength of the region rests at present on the cattle industry;

breeding, grazing and the meatworks, though the coal mines at Scottsville andCollinsville have a considerable employment capacity with the supply of coal toMt. Isa Mines and the State Coke Ovens at Bowen. * The State Railways Departmentvery considerably supports employment in the town of Bowen. The wharves ofBowen have an unfortunate reputation for unreliable working conditions, and there­fore very few except "meat ships" call at the port. The statistical survey ofemployment is contained in Appendix H.

Communication is at present served by a T.A.A. aircraft, three times weekly, amain North Coast rail service which arrives and departs at midnight, and a railmotorfor local service.

Economic surveys of the Shire of Bowen have been carried out by the Ministryof National Development and the Division of Industrial Development in Queens­land. A summarized review of an "Economic Survey of Port Denison", contained inEconomic News, April-May 1953, is contained in Appendix H for information.

This first fact-finding process involves the plotting of all the available informa­tion in graphical form on transparent maps. It comprises a factual statement ofwhat exists.

Before attempting a further analysis of the regional information, it is necessaryto examine the influence and structure of the regional node, i.e., the urbanized andadministrative centre for the region.

2C. Urban DiagnosisThe process of urban diagnosis is similar to the regional survey in that the

survey is carried out along the lines ofJ. physical characteristics of the town,

2. social environment of the community,3. economic conditions of the town,

except that the emphasis of study changes from the work of the field scientists andeconomic geographers, to the sociologist, the urbano-geographers and the architects,engineers, i.e., those more closely allied with conglomerates of social groups.

The analysis of the above survey material is carried out in direct relation to ther;gional setting, the immediate environs of the town, amI the statistical and surveyinformation collated about the town itself.

2C. (i) An Example of the Importance of Urban Environs

Before commencing work on the town itself, and, for the purpose of illustratingthe process by using the work carried out in Bowen, it will be observed that thenext scale of survey is within the environs of the town. The system of surveymatcl1es that employed for state or regional survey in that the terrain, the soils,water supply and micro-climate are related in the one study. In the case of Bowen,

*The State Coal Mine at ColJinsville and the State Coke 'vVorks at Bowell have been ollcredfor sale as a working concern by the Qneensland Government. Tenders for the purchase closedon .I 7th May, I nlH.

QUEENSLAND RUR.AL-UEBAN PROBLEMS 37

an accurate C.S.I.R.O. soil classification was readily available, but a contour mapof the environs of Bowen was not available. However, a plane-table survey wasquickly carried out as this is adequate for urban planning purposes to establishmain slopes and drainage lines. (See Fig. 17.)

In the case of Bowen, it was revealed that the good agricultural soil wasextremely limited, not only in the whole of its dependent region, but also in theenvirons of the town. The maps reveal that the town of Bowen itself is boundedon one side by a low lying area liable to tidal flooding, on the other side by saltpans (which constitute an important industry to the town), on the third side byPort Denison and the harbour, and on the fourth side by the first class soil areasuitable for market-gardens. (See Fig. 18.)

This raises an important policy matter, and one which is still being arguedthroughout the world: which comes first, land to house the people or land to feedthem. Britain in the post-war years had to resolve this vital question, for thewar time proved the vulnerability of a town or country which could not feed itselfwhen supply lines were severed. Irrespective of emergency procedures, Bowendepends already, and will probably depend more in the future, on the use of everyacre of good market-garden soil in the vicinity to support the town itself and theproposed industrial employment.

A planner would normally recommend protecting the soil and encouragingeither (a) a higher density of population within defined statutory limits, or (b) thefurther growth of Bowen in a suitable area reasonably adjacent to the existing town.

In this particular case there is a suitable area on the seashore, known as Queen'sBeach, which could absorb the increase in population, though a decision such as thisshould normally be left to the townspeople themselves to decide.

T'he Land Use Map of the environs of the town would illustrate the extent ofhuman settlement and use of the land compared with the opportunities for furtherLIse still available.

In direct relation with the Land Use Map is the Communications and TransportMap, which should graphically illustrate the volumetric flow lines of traffIC from theregion into or through the town centre for purposes of shipment, storage or processing.

2e. (ii) Town Survey-PhysicalHaving been informed on the regional environment and the characteristics of

the environs immediately adjacent to the built-up area of the town, the process ofsurveying and diagnosing the town begins. In an actual planning office there is noreason why the survey work of the region and the town cannot proceedsimultaneously, for the process in time requires that the analysis cannot be carriedout until the complete survey information is collated and graphically compiled.The analysis is wholly dependent upon the likely trends and influences of the regionupon the town, or upon other towns and cities and vice-versa.

Tlus requires firstly a contour map of no less than 5 ft. contours. The catch­ment areas, slopes for drainage, water supply, and all other engineering works,including road construction, are dependent upon an exact knowledge of the terrain.Areas liable to flooding, types and properties of the soil, particularly from a buildingfoundations point of view, existing forests or landscaping should all be carefullyplotted, if an efflciently planned works program is to follow. The compilation ofthe micro-climatic information now becomes particularly important, and must beread with the hydrographic information, the most vital point at issue being thewater supply. If, for instance, the population of Bowen was to increase to 10,000persons, and assuming its increase was dependent upon manufacturing and processingindustries, the daily water consumption rate per capita would be well in excess oflOO gallons per day, i.e., a daily supply of more than one million gallons would berequired.

38

IaII 17.0 +_l:tO-~OO

8 ICO- Go

eo- 40IIIIlMII 40- 20

.==: PLOoo P1. .... IN

M. JUPPENLATZ

~1~.At-:lD AJ'..IAL,YSI5 OF'

PORT DE}.,l]50N R£GION Nr" QeD

PHY"JGAL GHARAGTE:J>.TSTIGS-40 ClfAlNe TO I r~H

DAT£ 17- 3-195'9-[)~"""'ND"I A.Iiio.

Fig. 17-·--Environs of Bowen Town; Physical Characteristics.

QUEENSLAND RURAL-URBAN PROBLEMS 39

C.U ~,O. SOIL CLASSlfICATIOt-t

FI.O 00- PLAIH Gi'.OU P

HILL COUNTIl..'(

o '<0 ... ""~~-:'-.l

Fig. 18--Environs of Bowen Town: Soil Classification.

QUEENSLAND RURAL-URBAN PROBLElVIS

2C. (iii) Socio-Economic SurveyThe most satisfactory method of acquiring this information is by a house to

house visit by a local authority official, or possibly a Health Inspector, who wouldbe familiar with such details. This information is only part of a whole range ofqueries to be answered, such as age structure of families, employment structure offamilies, condition of housing and their materials, whether power, water, drainageor sewerage are connected with the house, distance of travel to work for occupantsof the house, and the number of habitable rooms.

A sample of an adequate type of proforma used for such a house to housesurvey is illustrated on page 40. It will be seen that if tbe "planning surveyor"plots the exact location of the interviewed householder on a Government SurveyOffice town map, with a code number against the "interview results" on the pro­forma, it is a relatively simple matter to plot the many items of the questionnaireeither in isolation or in composition fashion on maps.

On the other half of the form, should the site use not be residential, ampleopportunity is provided for the interviewer to give adequate details of the natureof the site use, from which can also be calculated the Floor Space Index, or theamount of site coverage, which the various buildings occupy. Also from thequestionnaire, the likely volume of traffIc which the building occupancy is likelyto generate can also be determined.

2C. (iv) Graphical Compilation of the SurveyFrom this survey it is advisable to have a separate map plotted on a transparent

medium, and all to the same scale, for each item. As a guide to the estimate oftime taken to carry out the survey, a social studies student engaged on the projectestimated that 20 minutes should be allowed for each property-holder interviewed.

The following survey maps of the town are then plotted for analysis purposes:14 Map]. The Land Use Map, using a simplified colour notation, based on the

eight categories of urban land use discLlssed under "Statistical Structureof Communities" (2D.i).

Map 2. Population Distribution Map, showing the density of persons in thevarious blocks.

Map 3. Age Distribution Map, illustrating at the time of the survey tlwdistribution of children below the age of 18 years, adults aged 18 to65, and 65 and over. In the "sieve" or analysis stage, this informa­tion is correlated with the distribution of the schools, the social andrecreational amenities, and the main traffic routes. Any sectionsillustrating the hazard of school children crossing main traffic routesshow up immediately.

Map 4. Distribution of Employment, and movement of employed to theirplace of work. From this map, any hazardous crossing of pedestrianwith commercial traffic flow is confirmed or seen in advance, andmeasures can be taken to overcome such problems. Coupled withthe graphical plotting of the information, a statistical table of employ­ment distribution in the town is prepared.

Map 5. Age and Condition of Buildings.This map is valuable in the planning stages, particularly in

establishing properties which are devcllued by reason of neglect ordilapidation, along with areas the use of which could be rezoned forthe better civic functioning of the town.

14. Sec Appendix B for description of Land Use Notation.

42 M. JUPPENLATZ

It is a common phenomena to find a concentric ring of dilapidatedhousing immediately around the built up central area, for, as thegrowth pattern of a town becomes effective, there is a cycle of rebuild­ing spreading outwards from the central area. The rebuilding processis usually after 50 years, and the properties immediately contiguouswith the centre are invariably built shortly after the beginning of thefirst rebuilding cycle. Therefore, without any conscious planningmeasures as decade overtakes decade, an expanding city will be con­tinually overtaking the concentric rings of dilapidated class of dwellingor development as the central area becomes more prosperous andexpands.

The age and condition map is usually valuab~e for the purpose ofrealignment of streets for the purposes of a plan. It is frequentlyfar less expensive on the civic purse to acquire old and dilapidatedbuildings for the provision of a new road than it is to purchase stripsoff the highly valued properties adjoining the existing main road, themajority of which properties have acquired their enriched value byvirtue of the main road in the first place.

Map 6. Public Services Map usually shows the extent of built up, kerbed andchannelled roads, sewerage lines, water and electricity connections,post~l services and train and bus routes, and the frequency of theserVIces.

Map 7. Distribution of Industries and the classification of such industries, alongwith the number employed at each industrial site. The factors oftraHic generation should also be plotted on this map.

Map 8. All Commercial Undertakings, including the Floor Space Index andSite Coverage. The latter is not nearly so important for towns with apopulation of less than 20,000.

Map 9. All Social Buildings, e.g., churches, clubs, parks, recreational andamusement buildings.

Map 10. All public utility buildings, e.g., Local Authority, State and FederalGovernment Buildings and undertakings.

Two other maps, independent from above, but equally important for planningpurposes, are:

11. The Iso-valuation Map, which can be compiled from sufficient spot values,illustrating the distorted yet concentric rings of property of equal value,radiating out usually from the high valued zones of the central area to theouter lower valued rings.

12. The Traffic Origin and Destination Map, showing the volume of vehicles, bypreference, traversing sundry routes throughout the town for their normalbusiness or social purposes.

2e. (v) The Urban Analysis(a) Graphical Sieve MethodProviding each of these maps has been prepared on a transparent medium, the

visual "sieve" method can be applied for the purposes of preparing separate analysismaps, each of which can illustrate any anomalies, problems and deficiencies, eitherin commercial, social or industrial undertakings in the structure or distributionthroughout the town.

For the purpose of preparing a long term development plan for the region andurban centre, the factors or trends of most consequence are those related to theC)ommunication, employment and age structure of the community.

QUEENSLAND RURAL-URBAN PROBLEMS 43

(b) Employment TrendsIt is advisable to compile the employment structure of the community within

the standard classifications of the Commonwealth Census, for in this way a directcomparison of trends in employment can be established and explained.

In the case of a similar survey carried out for a town in a rural regional settingin S.E. Queensland, (Kingaroy), the trends established from the differences of the1954 census and 1960 survey basically revealed the following, and this is apparentlya phenomenon frequently occurring in many Queensland towns in recent year s:

Rural employment declining as mechanization moves into the rural activity.It is not so much a question of the original rural workers opening up moreland, but a migration of the surplus workers to the town.

Manufacturing industries showed a substantial increase, particularly in assemblyand mechanical services. This is clearly in support of the continuedmechanization of the land.

Public utilities showed a lessening of employment.Building construction showed a marked lessening of employment. This could

sometimes indicate that the community was economically static at thetime of the survey, or, alternatively, that a large building program, e.g.,hospitals, schools, etc., which was in progress during the fi.rst census, hasbeen completed, and a large number of tradesmen has left the townl5

Transport and communication services; approximately the same number ofpersons employed in 1960 as in 1954.

Finance and Property lthe number of persons employed in allCommerce and Clerical these categories in 1960 was nearly halfPublic Authority and Professional fthe number of persons employed in 1954.Amusements and HotelsThis would tend to support the contention, as inferred from the number employed

in building construction, that economic expansion of the town was not prevailing.The number of empty and disused professional offices was further evidence of sucha contention.

From such an analysis, the local authority and the community have beforethem some indication of the trend of their economic problem. It might well bewithin their means to make efforts to overcome such problems.

The analysis of the Age Structure of the Community is equally important.In the survey of the same town, whose population is in the 1,000 to 5,000 range, itwas revealed that the average number of persons of each age dropped suddenly fromthe age of 18 years upwards. It is necessary to examine the census return of birthsfor the previous 18 or 20 years and examine any significant rise or fall in the birthrate for that time. If there was no significant change in birth rate. one can deducethat a migration trend of young persons of 18 years and over has already begunfrom the town. There are, at present, inadequate employment opportunities toabsorb the young people, and, without strenuous efforts on the part of the community,there is little foreseeable hope of the necessary employment opportunity beingprovided.

This can only mean a human and economic loss from the community to theexpansion of the metropolis, to which most of the young people migrate in searchof employment or other opportunities. It invariably means, and this is confinnedby the figures of the same survey, that there is an unbalanced distribution of

15. See also R. S. Dick, Va1,iati01'ls in th" Occupational St1'uctnre ol Central Places on the IJarhngDowns, Quee·nsland (Brisbane: University of Queensland Press, 19()1) University of Queens­land Papers, Department of Geography, Vol. f, No.2.

lV1. J lJPPENLATZ

dependant aged people and young school children who have to be supported in thecommunity.

Basically this same pattern was revealed in the age structure survey of Bowen,but the people of the Bowen community have taken measures to counteract thesedetrimental trends. The Employment Structure of Bowen will be discussed under2D. (iv). .

The distribution of social amenities and clubs, along with their club membership,is also a valuable guide as to the social cohesion of the communities. A survey ofthe social clubs in several towns in Queensland, particularly in the isolated com­munities with populations of 2,000 to 5,000, reveals that most Queensland towns enjoythe existence of an unusually high proportion of such clubs, all with considerablemultiple-membership. Bowen, with a population of approximately 3,500, supports33 social clubs16

2D. The Synthesis of the Rural-Urban RelationshipThe process so far has examined the significant information which should be

collated for regional analysis purposes and the graphical method which can be usedfor arriving at a clear analytical appraisal. For the Shire of Bowen, the existing andpotential economic opportunities of the region have been illustrated, within theinformation known at present, and quite separately the existing physical, socialand economic circumstances of the town have been plotted. From these studiessome of the problems or needs for maintaining a stable community in the futurehave been revealed. The next important stage in this process is the synthesis ofthe rural and urban analysis. In the case of Bowen, it is basically an examinationof the influence which the development of the region is likely to have on the futureof the town. It is asserted that the problems of Bowen are fairly typical of manyQueensland towns today, and therefore methods devised by the people of Bowen tosolve their problem will be applicable to many other towns throughout the state.

In many well developed regions, where the expanding economy has prevailedand is likely to prevail for many years to come, and where the growth of the towncan be expected to continue according to past trends, it is frequently convenient toarrive at the expected population for some particular time in the future by simplyprojecting the past population figures on a double logarithmic graph. In the caseof many Queensland towns, examination of the trends of "population change" fromthe past reveals that the simple graphical projection is not applicable, for many ofthe population figures have fluctuated considerably and in some cases have showna deliberate tendency to decline. This could be explained in a number of ways,some of which would confirm a declining population, and others, that the townboundaries have been changed. It is therefore proposed to examine the likelypopulation which could be rationally supported in the town by virtue of the employ­ment opportunity which the indigenous resources offer. This in turn is going torely upon the extent of investment opportunity which the region offers.

However, before examining the technical aspects of investment opportunity,and therefore the likely increase in employment, it is desirable to ascertain thestatistical structure of the community, both the existing structure and that whichcould be anticipated with the likely increase in investment and employment.

2D. (i) The Statistical Structure of CommunitiesMost elements of human behaviour, under given circumstances, can be antici­

pated, providing sufficient measurement of past performances can be made available,

Hi. A list of the social clubs 01 Bowen is illustrated in Appendix F.

Q OEENSLANDRURAL-URBAN PROBLEMS 45

Roma;

Bowen;

lVIt. Morgan;Ingham;

Atherton;

3,571

4,1.523,943

4,248

2,527

and the formulae of behaviour established. The success of the prediction dependsentirely on the method of measurement-as with the individual, so with the multipleof the individual, i.e., the town.

On the basis of (i) the statistical. structure of the employment distribution,(ii) the total population in relation to the area developed, and (iii) the distributionof the various land use functions of some selected towns, it is proposed to establishfor the average town in Queensland,

(a) the mean percentage distribution of the various categories of employ­ment which would provide for a balanced employment,

(b) the mean percentage distribution of the various types of land use whichwould allow an economic functioning of the town,

and (c) the rate at which a gross density of the settlement varies according tothe varying size of the settlement.

There are many examples of towns in Queensland where the earning capacityof the inhabitants of the town is insufficient to maintain the excessive layout andamenities established when the streets were first laid out. It is therefore desirable thatsome quantitative measure, particularly on land use and employment, be madeavailable as a guide for the many local authorities throughout Queensland.

The Statistical Table No. 1. concerns land use measurements and employmentstructure for the following selected towns of the state. Statistical Table No. 2shows the comparative figures for towns of similar character in Cyprus and America.The towns selected from Queensland are as follows:Population19,951. Bundaberg; a regional centre for the sugar industry in the south-east

environmental sector.6,961 Charters Towers; a historic and once flourishing mining town.4,464 Kingaroy; a regional centre for the South Burnett District·-depen­

dent -upon peanuts and dairying.a regional centre in the Maranoa District, dependent onwheat production and pastoralism.a mining centre for gold and copper.a sub-regional centre in north coast tropical environment--dependent upon the sugar industry.communication centre on the north coast, dependentupon meat and the Hailway Department.a regional centre on the northern tableland--dependentupon commercial crop production and dairy farming.

1,399 Biloela; centre of cropping and pasture in Dawson River Valley.725 Theodore; a government planned town on an irrigation project.

The gross density of approximately five persons per acre for most Queenslandtowns is possibly the lowest in the world, and immediately infers one of two things;either the inhabitants pay very high rates towards maintaining reasonably high civicstandards, including landscaping, sewerage, road surfaces, etc., or they do not payhigh rates and have low civic standards, with few civic amenities and hot, dusty,shadeless streets with little or no landscaping.

The towns with the higher densities have a much better opportunity for equatingthe number of rateable properties against civic expenditure on maintenance. How­ever, regional economic dependence upon the town can often mean an invisiblesource of income, e.g., the town can be the distribution centre for a rich wool pro­ducing area. In either case, the financial burden on the local authority for its civicimprovement can be relieved.

l\eference to Statistical Table No.2 on land use reveals that the gross densityfor selected towns in the English-speaking world for populations of less than 25,000

40 M. JUPPENLATZ

(and this is supported by the gross density of the various suburbs of Brisbane,see Appendix G) varies between 7 and 17 persons per acre.

It is unlikely that the gross density of Queensland towns could be raised to 10persons per acre without considerable disruption and cost but, on the premise thatinfluences were working towards increasing the population by virtue of employmentopportunity, it would be advantageous to urban economics to plan towards a higherdensity as the population grew, i.e., ranging between 5 persons per acre for popula­tions of 5,000 up to 13 persons per acre for populations of 20,000. These figures area reflection of the combination of the present gross densities of Queensland townswith overseas standards, as illustrated by the accompanying graph, which also showsthe mean land use distribution trend for towns of increasing population. (See Fig. 22.)

Land Use DistributionIn the post-war years in Britain, the Ministry of Town and Country Planning

agreed on seven basic land-use classifications, which, in themselves, contain all theactive functions required by inhabitants in the normal town:

l. Residential requirements.2. Commercial undertakings.3. Manufacturing activity.4. Storage.5. Transport and communication.6. Public utilities and professional services.7. Social, open spaces and recreational.

In recent years, another funetion has been added to the list, and that concernsunbuilt-on land sub-division. Land speculation must surely be one of the largestand most active investment transactions amongst the people in any country operat­ing under the competitive economic system. In any efforts at planning, controllingthe use of land imposes changes of commercial value, and in this respect subdivided,unbuilt-o,n land can become a problem in planning implementation. It is thereforedesirable to recognize it as an item of importance, and add it to the list of land useclassifications. I?

Analysis of the per cent measurements of land use for the various towns in thepopulation range of 1,000 to 20,000 reveals the following mean distribution ofclassifications which can be regarded as a datum against which to compare existingfigures.

StorageTransport and streetsPublic utility and professionalSocial, parks, recreationSubdivided, unbuilt-on

R.esidentialCommerceIndustry

percent of total land usewithin the developed area.

3022.5 (this figure can vary considerably accord-·ing to the function of the town).5 ditto30111014

2D. (ii) The Prospect for Investment OpportunityHaving plotted the infornlation known to date in the Shire of Bowen in a

graphical manner, it is now possible to "sieve" the regional information in relation

17. Appreciation is expressed to Professor J. MacDonald Bolmes, Professor of Geography,University of Sydney, who very kindly made available the land use maps of the varioustowns of Qneensland for the purposes of measurement.

QUEENSLAND RURAL-URBAN PROBLEMS 47

to the urban problems for investment and development opportunity. The focus ofattention in the region is taken by the multiplicity of minerals available in the area,(see Figure No. 14 on page 32). Minerals for all forms of industrial activity areat a premium in the world today, and are likely to be so for many years to come.

The directions in which systematic study should be made towards drawing upa series of investment proposals emerge from a thorough analysis of the informationavailable. Using the foregoing information as the example, the proposals fall intothe following distinct groups:

J. chemical industry based on coal, coke gas, salt and limestone;2. treatment of ores for industrial processes, e.g., kaolin, felspar, magnesium

carbonate and sulphur, ilmenite, fluorspar, iron oxide, talcum, silicon, etc.,for enamel industry;

3. leather and tanning from cattle;4. fish treatment quick-freeze, dehydrating, packing and canning;5. tomato, tropical fruits and chutney plant;6. brick and clay products;7. treatment of ores for bulk export;8. meat dehydration.The harbour facilities invite bulk terminals for commodities such as oil for

processing fuel and redistribution throughout the region.However, the Research Officer estimated that by utilizing the readily available

resources, e.g., in tanning and leather production, extension of meat works opera­tions, brick and clay manufacture, fish processing, tomato and tropical fruit canning,and a chemical industry based on coaJ, salt and limestone, the total number ofpersons employed in such manufacturing industries could rise from the present:figure of 264 to 820 persons. This makes no provision for a time within whichthe industries could be started, nor is any suggestion made at this stage on how theinvestment and development could be initiated, for this depends on communityinitiative, national and overseas capital available and government policy. It is asimple statement on what employment could be anticipated in manufacturingindustries by rationally using the known economic potential.18

2D. (iii) Employment OpportunityThe occupational structure of a town varies considerably according to the initial

or changing function of the town. The figures usually vary within a recognisableper cent range, but for the purposes of prediction the multiple function of rural,mining and manufacturing must be clearly defined, and read in conjunction witheach other. All the remaining facets of employment are variables dependent uponeach other, but usually conform to a uniform relationship.

For the purpose of illustrating an example, Bowen town has been selected.Consideration is taken into account of the proposed increase in the manufacturingemployment based on existing natural resources, i.e., employment opportunity beingraised to 820 persons from its present 264 persons.18 If this figure is accepted, it is

J.8. The Research Officer for the Bowen Regional Research and Promotion Bureau, Dr. J. M.Berceanu, estimated the increase in employment opportunity on the basis of enquiries fromoverseas companies for investment in each of the investment proposals listed under "TheProspect for Investment Opportunity". In February, 196J., approximately six monthsafter his appointment, Dr. J. M. Berceanu financed his own personal visit to Germany that hemight discuss the above-mentioned investment and industrial opportunities with financialand industrial leaders of that country. He reported on his return that he had receivedan encouraging reception. The subsequent enquiries from several financial organizationsin Germany following his negotiations confirm the effectiveness of his visit, and the genuineinterest they have for investment in Queensland. For further references, see the "QuarterlyI{eports of tile Burean", published in the Bowen Independent newspaper.

48 M. J UPPENLATZ

necessary to concede that a balance of the per cent distribution of all other mediaof employment be maintained to provide a stable and economically balanced com­munity and to support the manufacturing section 19

As the employment opportunity in the community proceeded towards maximumemployment available, one could expect the percentage of employed populationwithin the total population to reduce from its present 41.5 per cent, as less mothersand married women could justify retaining employment, when young men wereseeking employment.

This is the beginning of the town planning process, for the purpose of the planis to define the direction and the limits within which the town might grow, givensupport from all other influences on which the town's growth depends.

Town planning should be extended beyond the present zoning of land use underthe 1936 Local Government Act, Section 33, to embrace guidance on employmentand industrial development, for land use is irrevocably associated with all the facetsof employment in a town.

2D. (iv) An Example of Prediction for Urban Growth by the StatisticalMethod

The mean percentage relationship of the various facets of employment for someQueensland towns, and the percentage distribution of land use for towns within thepopulation range of 1,000-10,000 have been illustrated in Table 1, "Land Use andOccupational Structure of Selected Towns in Queensland". The following is sub­mitted as a method of prediction for establishing the estimated population of a townbased on employment opportunity, given anyone of the known employment figures. 20

Using Bowen town as' an example, and assuming that it will continue as a com­mercial and communication centre but will considerably increase employment inprocess manufacturing, the following illustrates the likely change of the percentageemployment structure, having in mind the normal employment structure of Queens­land towns.

Per cent of urban employmentNature of employment Existing ProposedManufacture .. 18 24Elec. and Pub. Utility 1.7 2Building Construction 8.5 12Transport and Storage 29.8 15Communication .3 1Public Authority and Prof. 11.5 14Finance and Property 1.8:2Commerce 16.8 L8Amusement and Hotel 9.0 10Others 2.6 2

The percentage for the number employed in manufacturing has been raised from18 per cent to 24 per cent. It is assumed that the occupational structure of thetown would become more predominantly manufacturing and would develop anoccupational structure similar to the town of Ingham in north Queensland, havingin mind the comparable factors of both Bowen and Ingham. With an expandingeconomy one would expect a further increase in commerce, public authority auc\

]9. See Land Use and Occupational Structure of Some Selected Queensland Towns, Table 1.20. The proposed occupational structure :for every town must vary within .Limits, according to

the nature of basic employment and other servicing responsibilities the towns might haveto their dependent districts.See also R. S. Dick, ap. cit.

QUEENSLAND R.URAL-URBAN 1}ll0BLEMS 4-9

professional, and an increased per cent employment has therefore been made withthese three forms of employment. A thriving, expanding community is obliged tomaintain a strong building force and it is therefore anticipated that the percentageemployed on building construction would increase from 8.5 per cent at present to12 per cent. The figure of 12 per cent employed in building construction in anylocal authority area is reflected in the statistical returns from other thriving andeconomically expanding towns in Queensland and from figures contained in an inter­national statistical analysis compiled by Colin Clark in his publication, TheConditions of Economic Progress. 21

The Research Officer for the Bowen District has already estimated that theemployment opportunities prevailing in the town, based on the utilization of theavailable indigenous resources, could support full-time employment of 820 personsin the manufacturing section of employment instead of the present 264. Acceptingthe figure of 820 persons employed in manufacture as being reliable, and the per­centage of the persons employed in the manufacturing group of employment as24 per cent of the total employed population, it is then possible to establish therequired urban work force as being 3,415. There is always a number of personsresident in an urban area whose place of employment is outside the urban limits andvice-versa. In the case of Bowen at present the Jigure cxceeds 15 per cent becauseof the large number employed by the Railway Department. As the population andemployment in Bowen are increased, this percentage would be reduced, for increasingmanufacturing industries would not necessarily require a corresponding increase inrailway employees. It is therefore advisable to add approximately a further 5 percent to the urban wOTk force for the number of persons living in the urban centrewho are employed outside its limits. For the purpose of this example, an arbitraryfigure of 5 per cent is suggested, though more investigation is necessary to determinea more exact figure.

By referring to the table of the Land Use and Occupational Structure of SomeSelected Queensland Towns, Table No.1, it will be noted that the percentage of thetotal population which is employed varies between 30 per cent and 45 per cent. Itis assumed that in the very initial stages of expanding employment opportunity inany small town, the percentage of total employed population will increase until theemployment opportunity attracts migrant workers at a steady rate. This migrationof workers would likely continue until the employment needs of the town weresaturated. It is assumed that as the manufacturing processes became establishedand consolidated, the economy of the town would begin to expand until it veryquickly reached a certain form of stability. In these conditions, young women andmothers would not find employment easily obtainable, and it could be expected thatthe total employed population would stabilize itself in the region of 37 per cent. 22

On the basis of 37 per cent of a total population employed being 3,585, that is,established urban work force plus 5 per cent for rurally employed, the total popula­tion of the town could be expected to rise to approximately H,500-10,OOO. Anyattempt at predicting a more accurate figure would be unrealistic.

Having some indication of the approximate population which could be antici­pated under normal circumstances in the economic development of the town, it isthen necessary to make an assessment of the area of land use which would beeconomically required to house the population in a proper civic atmosphere, i.e.,within an area statutorily designated for the purpose of preparing the town plan.The graph showing the mean distribution of land use for a selection of Queenslandand other towns shows, by a process almost of natural selection by the inhabitants

21. Colin Clark, The Condif'ions of Economic Progress (London: Macmillan & Co., 1951) pp.395-4-39.

22. The percentage of 37% of the total population comprising the work force is the averagefor the number of persons employed in the cities and towns other than the metropolitanareas in Queensland--Census of the Commonwealth, 1954-.

52 M. JUPPENLATZ

ACR,E5 OF DE:VE:L.OPE.D ARE:A

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ox 0 ccc

6 -- xBase Line - 6

Total developed area of town.Area in acres of lane! used for commerce and professional activities,social and recreational amenities, and industry.Area in acres of land used for streets and transport.Area in acres for land used for residential purposes.

QUEENSLAND .RURAL-URBAN PEOBLElVIS 53

of the towns, that a town of ]0,000 persons would probably function most economi­cally, in an urban economic sense, on a standard of a gross density of eight personsper acre. Therefore an area of 1,250 acres should be designated and planned toallow the expansion of the town to grow and consolidate in an economical pattern,rather than allow the growth of the town to spread in any direction and to anydistance. In the long-term policy, such a lack of control of land use could provevery costly for the supply of public services and amenities, and in practice hasalready proved to be a considerable problem for many towns. Reference to the samegraph illustrates the mean land use percentage relationship for the eight land useclassifications previously described. This land use table is as follows:

Residential 30 per cent~mm~~ 2Industry 2.5Storage .5Transport and streets 30Public authority and professional 11Social, parks, recreational .. 10Subdivided unbuilt-on land 14

(Note: The per cent or area of land US2 refers to the actual land use measuredand not to the administrative boundary or the division of local government areawithin which the town is situated.)

It is therefore recommended that in the preparation of the land use zoningplan, which is necessary to ensure the orderly and economic consolidation andexpansion of the urban centre, the above p.,rcentage land use relationship figurescould be adopted. Continuing to use Bowen Town as the example, this would thenmean that the following areas should be provided and functionally related by meansof a predetermined and efTIcient communication network within a statutory landuse zoning plan:

.981.04

.3640.93

Per centLand Use

28

11 13710 125]!J, 175

31.756.25

375

22.5

.530

Per centLand Use

30

Distribution of Land Usefor a Town Plan for

Bowen of 10,000 personsDeveloped

Area inAcres375

25

5.45 114.36 41

18.88 178

Existing Land UseDeveloped

Area InAcres266

9.39.93.8

390

ResidentialCommerceIndustryStorageTransport and streetsPublic authority and pro-

fessionalSocial, parks, recreationalSubdivided unbuilt-on land

100 909 ]00 1250

Figure No. 23 on p. 54 illustrates the manner in which all regional communica-·tions focus on Bowen Town, and the direction of the volumetric flow lines through theregion which could be anticipated if the resources were developed. It also illustratesthe volume of traffic, and therefore the standard of road construction which couldhe expected on the various roads, or directions in which new roads shoulcl he built,if the economic wealth from within the region is to be released.

Figure No. 24 on p. 55 illustrates graphically and proportionally the likelychange of the occupational structure of Bowen as and when it grew to a populationof 10,000. The diagram also shows the predicted cha'1gc of the town of Bowen in

54 M. JUPPENLATZ

;~ ;-: ~ ~

;;~~JZt "'~ :.

~I~g~ i~ ~~~

"I

1m"

,.~~~ i'; ~d

I>

!,~ S;:';; ~g

:" ~h ~ ~u':?

~\ ~i r'~, ~7;,

I

~I

Fig,23 . Shire of Bowen: Impact of Possible Regional Development on the Urban Centre.

5(j M. JUPPENLATZ

relation to all other settlements, and their predicted change over the same period.The above method for predicting the likely urban growth of towns, based on the

supporting capacity of local resources, has been devised specifically for the rural­urban problems which appear to pertain to Queensland, though it may well have anapplication in other parts of the world.

For the purpose of this study, Queen~land is defined as an under-developedcountry or jurisdictional unit of immense dimensions in which there is evidence ofmuch economic potential scattered throughout its lands. It is also conceded thatthe state supports only a scattering of population and settlement, held together bya skeleton communication network, compared with what should exist after a centuryof economic growth in a rapidly expanding world.

2E. Synopsis of the ObservationsIn a world of competitive economies, the Sterling Area is today, as it has been

in the whole of the post-war era, in need of increasing its strength economicaJJy.One method of achieving this end is to increase production and overseas trade in ascale in keeping with the rate of economic expansion of the world.

Queensland already makes a substantial contribution to the Sterling economy,but there is an opportunity for a much greater contribution if the many square milesof well-watered rich soil country and extensive deposits of economic minerals, whichare comparatively unworked, could be brought into use.

Queensland is in need of capital, population and further development, thefulfilment of any of which calls for a sound knowledge of the economic ability ofthe state and the provision of accurate and detailed plans within which privateindustry and investment, local government and state government can all con­tribute and playa part towards implementing. In this way the gross value ofproduction can be systematically increased, and settlement can be deliberatelycncouraged into areas capable of supporting more settlement and large urban centres.

There is, however, no compendium of the human, physical and economicresources of Queensland which illustrates not only the existing pattern of settle­ment and economic strength, but the potential areas of settlement and the estimateof their economic production.

Settlement is dependent upon employment opportunity, capital investmentand communication. It can be encouraged in several ways, one of which is byplanned decentralization from a central planning authority, or alternatively, byhaving community development organizations investigate their local employmentopportunity and systematically work towards encouraging investment and employ­ment in those activities. In either case, considerable survey of existing conditionsand the preparation of development plans will be required.

If the regions of Queensland which are capable of far greater economic outputthan is produced at present are to be developed, it is important that a fairly exactImowledge of the hierarchy of the settlement natural to those regions should becstablished. This calls for a quantitative measurement of the existing rural-urbaninterdependence and an examination of the economic ability of such regions. Itwill be necessary to study the likely change in the rural-urban relationship of thevarious regions, if the urban growth in Queensland continues at its present rate;or alternatively, the necessary reconstruction of the urban-rural relationship ifthe economy of the region is to be expanded on the basis of the local resourcesavailable.

Methods for establishing these facts have been well tried and proven in otherparts of the world, and an experiment in the application of a selected method to aI-egion in Queensland was attempted, using the Shire of Bowen as an example.

QUEENSLAND RURAL-URBAN PROBLEJV1S 57

The method involves two facets of study:(a) the graphical sieve method for plotting information,

(b) the statistical measurement of related factors for determining standardsand measuring trends.

The scale of fact fmding involves:

(a) The state-a classification of sectors having common environmentalcharacteristics.

(i) ClassifIcation of sectors which have similar problems associatedwith architecture and the environment for living.

(ii) Delineation of regions deserving of detailed study because of theapparent settlement and investment opportunity.

(b) The regions, either in part or in whole.The work at this stage is confmed to the survey and analysis of theregional information, and it is proposed that the work should be carriedout under the headings of

Physical geographical knowledgemineralsancl sub-strata.

Social settlement distributionprovision of amenities.

Economic the existing pattern of economic activity'unutilized economic opportunities.

(c) The towns--this work usually takes the form of urban diagnosis,which is also the survey and analysis of the physical, social, andeconomic circumstances of the town. From the experience of manytown planners, it has been found that it is important to encouragemembers of the community to participate as much as possible in the"diagnostic process".

This information can provide a clear picture of the past trends and the existingphysical, social and economic circumstances of the town and district. The surveyinformation from both the town and district is then available for combined analysis,and the influence of the one upon the other is recorded. "

This survey and synthesis process is one of the fIrst essential steps in the prepara­tion of a town and/or regional plan.

However, it is the "policy of action" involving the possible change in existingurban trends or regional pattern which usually constitutes the "Plan". The surveys,analysis, graphical plans, new ordinances and enabling legislation, and the admini­strative machinery devised to implement the "Plan" are only the means used tobring the policy into force.

This paper is primarily concerning itself with a method of proceeding towardsthe "policy of action".

The settlements of Queensland are still comparatively small compared withurbanized centres in other parts of the world. and a study of the problems of townplanning in Queensland carried out during the preparation for this paper revealsthat at least two different approaches are needed for towns in Queensland: the onebeing the pattern and administrative process which can guide and control the growthof an already rapidly expanding town without frustrating its economic growth, andthe other, the pattern and a campaign of civic action aided by state government,designed to assist in stimulating the growth of the towns where the results of thesurvey and analysis indicate that such action is both required and justified.

58 M. JUPPENLATZ

Tn either of the above approaches to town planning in Queensland, manyfactors must be analysed before the policy of action can be determined. Some ofthese factors include such analysis studies as the following:

the costs of urban maintenance in relation to the changing population andoccupational structure of the town,

tbe relative economics of varyiFlg gross densities of developed areas ordesignated areas for the town plans,

the methods available for increasing employment opportunities in thedistrict,

means of improving the transport facilities to assist in the economic func­tioning of the commerce or industry of the town,

the provision of the necessary recreational and public amenities for providinga better human environment and better social cohesion amongst theinbabitants.

The list of analysis studies comprises many more items, many of which emergefrom the survey work.

One of the first significant factors which should be determined before com­mencing any of the physical planning work is to estimate the population for whichthe policy of action is being prepared.

In large urban centres, particularly those which have been established for atleast a century, a common method adopted by town planners for establishing thepopulation figure for some prescribed date in the future is to plot the populationdecadal census figures for at least the past fifty years on double logarithmic graphpaper and project the mean trend line ahead to the prescribed date. Forecastingpopulation trends for a town beyond twenty years is usually regarded by townplanners as being too unrealistic to be of any practical value, because of the increasedlikelihood of unpredictable circumstances changing the trend.

The fluctuation of the size of many of the towns throughout Queensland andthe small size of so many of the settlements render the logarithmic graph method.of population forecasting unsuitable for use for most Queensland towns.

The method of forecasting a likely popUlation by attempting to assess theemployment opportunity which the local resources could support is therefore sub­mitted as a method which could be applied to some Queensland towns. It is closelyassociated with community participation for the purpose of stimulating the economicexpansion of the town or district, along with the preparation of regional develop­ment plans which show investment and employment opportunities throughout thetown and shire. This process makes no provision for establishing a time withinwhich the urban population would grow to the predicted figure, but it does providea target and a programme of development to which the human resources of thecommunity can be directed.

From a comparative study of the occupational structure of selected towns, it issubmitted that the occupational structure necessary to maintain a balanced com­munity can be established, Given: (a) the function which the town is intendedto serve (marketing, manufacturing, maritime storage, etc.), (b) the past trends ofgrowth, and (c) the investment and developmental opportunity, which should bestudied in relation to the prevailing economic environment for such development.

The method proposes that if the employment capacity for one of the occupationalclassifications can be estimated, the figure for the total employed population of thetown can be similarly estimated, because each of the occupational classificationsbears a direct relationship to the other.

The employed population of a town bears a relationship of somewhere between

QUEENSLAND JWRAL-URBAN PROBLEMS 69

30 per cent and 45 per cent to the total population (according to the level of employ­ment saturation of the town at a particular time, the age structure of the community,and the availability of female employees). The average for Queensland towns is37 per cent, though it is possible to arrive at a more accurate figure if the circum­stances of the town arc known.

Having established a figure from the above percentage relationship which couldbe accepted as the total population for the town if local employment opportunitieswere utilized, it is then important to designate the appropriate area on the mostsuitable land available, and within which the urban pattern could develop. Tl1earea of land necessary can be determined by applying the appropriate gross densityin persons per acre to the estimated total population. Most of the towns in Queens­land have been laid out on a grid system with a land subdivision pattern whichgives a gross density of five persons per acre. As the population grows, the cost.of extending and maintaining the public services and amenities increases, until therecomes a t.ime when the earning capacity of the town is incapable of maintaining agross density of five persons per acre economically. An attempt has been madeby a comparison between selected towns in Queensland, America and Cyprus toestablish a mean gross density which, under normal circumstances and under thetest of time, appears to be appropriate for t.owns ranging in size from 1,300 to 25,000,with particular application to Queensland towns.

Comparisons of the various land use classifications in selected towns in Queens··land, America and Cyprus indicat.e that a very detinite percentage relationshipexists between the different classifications. From these figures, a table of meanland usc distribution for t.he average town can be determined, and it appears thatit is possible to establish the deviation from the mean land use percentage figure,according to the influences of the function of the town.

From the above mentioned table of the percentage relationship of land useclassifications, the area required for each of the land use functions within thedesignated area for the town plan can be determinecL Tile location and relation­ship of t.hese areas is then plotted on a plan in accordance with est.ablished townplanning principles. These areas are usually plotted in t.he form of a plan showing"zones of permitted uses" , which also shows any intended change in the existinguse of the land in and about the town. This plan is frequently made statutory forthe purpose of implementation.

Unfortunately, it usually happens that. the "policy of action", on which membersof the local authority work to prepare th(;1r town plan, stops at the implementationof the zoning plan, and does not attempt. to go further and guide the architect.ureand buildings which will follow as a direct. result of the land usc zoning plan.The investment in architecture and building in any country is by far the greatest.investment in that count.ry, and it is therefore deserving of guidance if the bestuse is to be made of the opportunities which are offered. Civic dignity is not neces-­sarily reflected in a few scattered isolated public buildings, but in the groups ofbuildings and the street scenes as they are viewed by t.he populace.

The dilapidated buildings and the archit.ecturally untidy street scenes whicharc an integral part of many towns in Queensland, or parts of the towns, are ,treflection of the economically run-down condition of those towns. It is submittedthat the origin of this problem can be found in the absence of regional developmentplans, in which the inhabitants as well as the local authority have a part to play,and the absence of guidance in t.hese matters from central government.

Policies of action which have been drawn up for(i) t.he continuous economic expansion of a region, and

(ii) fully implementing town planning schemes for the towns in the region,

GO M. JUPPENLATZ

cannot be effective without the support of comprehensive planning legislation.I t would appear to be timely for a complete review of the existing legislation inQueensland which deals with any aspects of town and regional planning and economicdevelopment. It is to be hoped that from such a review a new and more com­prehensive act, designed to integrate all aspects of urban and regional developmentwithin an organized framework, would emerge to the profit and benefit of the stateof Queensland.

QUEENSLAND RURAL-URBAN PROBLEMS HI

ApPENDIX "A"

Extract from an address by Charles Abrams, Professor of Planning, Massachusetts Instituteof Technology, Cambridge, U.S.A., at a U.N. Seminar on Regional Planning, Tokyo, 1958,Regional Planning Legislation in Under-developed Areas.

Regional Planning today relies Oll anyone of a combination of devices for fuHilment ofits f~oals:

I. Persuasion: influencing enterprises to settle in a particular locality throngh reasoning,altruism or by an appeal to public spirit and its grati1ications.

2. Inducement: offering loans, snbsidies, honsing, land and other public aid or indulgence.

3. Compulsion: prescribing through zoning or directive orders the places where settle­ment is permitted and where forbidden.

4. Direct operations: purchase of sites with public funds, building of factories or otherinstallations by government agencies or private operation.

5. Public-private joint ventures in which government investment is made inprivate operations in return for which the public partner insists upon pre­scribing the conditions for industrial settlement as part of a bargain.

6. Planned inevitability: the plaeement of public, transportational or other .facilitiesand investments in so tempting a manner that it inevitably stcers the industrial movetoward the desired location.

The choice between laissez-faire and pl'e-emption and bctween reasonable, confiscatoryand compensable regulations calls for a difficult balancing of alternatives. When funds arelimited, subsidized expansion in one direction may sacrifice expansion in another and the choicebetween diversion of power from the local to the central levels may put at stake the pattern ofdemocratic decentralization, local efficiency and better citizen participation.

Introduction of regional planning process may be assisted to function by:

1. Up-to-date survey of potential projects (water conservation, transport, industry,etc.) and the development of an inventory of those nndertakings in which good sensedictates the making of regional arrangements.

2. Initiation of a few reliable undertakings which can have a constructively contagiousquality and serve as a pilot or inspiration for others.

3. Development of a pool of experts equipped to aid in planning, development and manage­ment of the enterprises.

4. The re-assessment of the role of private international investment and the enrolmentof private interest in the form of limited guarantees or otber inducements.

5. Provision of ample [unds~both loan and subsidies-~owhichwiH serve as an inducementto undertake the projects.

6. Eef1nement of the corporate, contractual, managerial and administrative mechanisms£01' building and operating big regional enterprises, in order to give proper representationto the nations concerned, effect a reasonable distribution o£ costs and dividends andwin the confidence of tbe participating agencies.

Regional development functions best when part of a broad national or state developmentprogram. The agency should include:

1.. A central organization of experts concerned with tbe economic planning of the countrywho would evaluate the nation's 11l11l1an and material resources and the bestmeans of utilizing them i.u the national welfare. Its work would embrace the properallocation of public expenditure for the development of agriculture (colonization,forestry, fi.sheries, etc.; village aid and rural development; water and power develop­ment, transport and communications, housing, industry, training and edncation;health, social weHare, labour and employment).

2. Provincial or regional agencies operating within clearly defined areas of competencefor the purpose of discharging central responsibility uncler the plan on a less centralizedprovinciaI basis.

3. Statutory authorities Ol' public corporations responsible for executing specificaJlj'designated programs of development.

4. Such lesser district administrative agencies as may be needed to help speed up some o£the developments at the local levels in accordance with a national plan.

5. Local self-government or village agencies working in co-operation witb nationaldevelopmeht units.

6. Such financing agencies and mechanisms as may be needed to help iinance tbe develop­ment. (Under certain circumstances, however, financing might be vested in theregional development agency.)

(,2 M. JUPPENLATZ

hldustrial D

Industrial AIndustrial BIndustrial C

ApPENDIX "B"

A S'intphfied Land Use Colour Notation.

A colour notation should be used for clarity of expression, and in this regard, plannershave come to adopt the following basic colours as equivalent to the eight land u.se categories:

:Residential Red-brownCommercial BlueIndustry PurpleStorage MauveTransport and streets YellowPublic Utilities Yellow with red outlineSocial RedParks and recreational Green.

For the various sub-sections of each of the main eategory colours, a variety of llatchingis available within the scope of the colour to designate the break-down, e.g., -

Industrial A -- purple border - light horizontal purple hatchingIndustrial B -- purple border heavy horizontal hatchingIndustrial C ---- purple border - - light vertical hatchingIndustrial D --- purple border --- heavy vertical batchingIndustrial E purple solid eolour.Garages and service stations: purple criss-cross hatching,

and the same principle can be used for other lanel use categories.

In this manner, tIle entire land use notation can be establisbed and still provide a simpleformula for visual interpretation. Each section can be furtber sub-divided in several slib­sections such as:

craft industries -- e.g., bakeries.light ---- non-nuisance industries, e.g., bicycle repair shops.

-=- light - uuisance or hazardous industries, e.g., chemical works,tanning.

heavy industry "-- non-nuisance and non-hazardous, e.g.,weavlng,or cloth making on a big scale.

Industrial E heavy industry -- nuisance or hazardous, e.g., munitions works.

The same sub-di vision can be em1)loyed for storage of commercial nndertakings.

ApPENDIX "C"

The Bow£II Independent--Friday, 6tll January, 1961.

BOWEN REGIONAL RESEARCH AND PROMOTION BUREAU

Quarterly Report of Execut'ive'

The following report was presented to the Quarterly Meeting of the Bureau on December20th by the Chairman (Mr. V. B. Jones).:

2Vleet-ings.-Regular fortnightly meetings of tile Executive have been held since the AnnualGeneral Meeting on the 2nd August, 1960.

Recently, because of the ever increasing volume of work,the Executive (lave been meetingweekly. Sub-Committees have also met frequently.

Finance.-The Treasurer will make a special report stressing the need Jor contributorsto continue their support in view of the appointment of the Bureau OffIcer, ane! the ever-increasingactivities of the Bureau.

Appointment of Bu.reau Officer.---The appointment of Dr. John Berceanu as Eesearchand Promotion Officer for a period of flve years from 27th June, 1960, was confirmed at a meetingof the Executive held on 13th December, 1960. in the performance of his duties Dr. Berceanuhas displayed great energy and enthusiasm aud has opened up many new avenues of researchand promotion both in Australia and abroad. Since July, 1960, he has interviewed at his ofhcein T.R.E.B. an average of at least nine persons daily every day of the week (including Sundays).He has done much to create a better civic spirit amI morale amongst the people of this area.IIis work is psychological as well as technical.

Surveys.--The local shopping survey is in the hands of a suh-·committee [or an analysisof its results. Information gathered from this report will later be made availablc to the Chamberof Commerce. .

35 m.rn.. ColriHr SI'ide C011'ljJet-ition.- --'Ihis competition closed last month and valuableprizes were won by several local residents. All the slides will be shown at the quarterly meetingtonight. Many of them are of excellent quality.

QUEENSLAND RURAL-URBAN PROBLEMS 133

Tmnsport.--(a) Bowen Aerodrome. After protracted negotiations, the Bowen ShireCouncil have taken over the Bowen Aerodrome on favourable terms.

(b) The launch "Hossack H" has been running a regular cargo service to the islands.

(c) The Bureau are also investigating the possibilities of further transport facilities.

Publ·icity.--Radio talks over 4QN and 4AY have been given from time to time by Bureaumembers and the Research Officer and fortnightly bulletins have been given to 4AY. The"Bowen Independent" has arranged publicity over 4QN and has rendered most valuable assistancein publicising the Bnreau's activities. Helpful publicity has also been given through the "Courier­Mail", "Sunday Mail", "Brisbane Telegraph" and "Truth" as well as in many other directions.It is safe to say that Bowen has never been so well publicised previously, as it has been duringthe bst six months.

lVIineralogical.--·-(a) Numerous samples of varions minerals have been scnt by individnalprospectors to the Mines Department for assay.

(b) Professor Greenwood of the University of Queensland is at present in the Collinsvillearea carrying out certain research work. The Bowen region is rich in a wiele diversity of mineralsand ores (at least 36).

(c) Investigation of some promising new Iron Ore Deposits is proceeding and sample;have been sent to the M.ines Department for assay.

(d) A Prospectors' Club has been formed and has numerous members, including experiencedprospectors from HOlne Hill, Proserpine and Collinsville. It meets regularly and has organisedField Days under the guidance of skilled prospectors. l'iIr. Matthews of Home Hill has beenmost belpful and has kindly eo-·operated in the work of training such prospectors. vVith so muchprospecting being done, our mineral resources are becoming ever more evident. Tbis clnb willspeed up the collection and collation of Mineral Ores and data.

(e) The Normanby area apparently has rich gold deposits but the gold is about 70 feetunder water and thc cost of extraction would be high. Other mineral resources there are beinginvestigated.

(1) Our Research Officer has had informal talks with representatives of Australian aneloverseas organisations who are interested in the pllrchase, in the near hlture, of valnable mineral.ores.

(g) Dlle to the BlI1'eau's activities, interested persons from the Bowen and Proserpineregion have been inspil'ed to form a Mining firm which commenced work a few weeks ago. Anothergroup of interested persons have associated to exploit Agricultural Limes in the region. Stillanother firm is being formed to create a small Light Industry by cutting and polishing Miner,,1Rock as a tourist trade item.

lndustries ...--(a) The application for registration of the newly formed Bowen ManufacturingCo-operative Society Limited has been lodged with the Registrar of Co..operative Societies inBrisbane and the local Member, Dr. P.R. Delamothe, O.B.E., M.L.A., has promised to do hisbest to expedite registration. Jj' registered promptly, the co· operative could commence itsbusiness operations before the end of March, .l96l.

(b) Mallgo processing was carried out for a brief period this year at Delta and it is proposedto make this a permanent seasonal enterprise.

(c) Confidential negotiations are now proceeding with a view to the establishment in theBowen area of several other industries.

(d) At the request of the Bureau. Mr. V. C. Gail', the newly-appointed Establishment andExpansion Officer 01 the Department of Labonr and Industry, will be visiting Bowen early inthe new year.

(e) Agr'icultural.--Dr. Berceanu has pursue,l informal talks in Bowen, Brisbane and Sydneywith representatives of major companies with a view to the establishment of Vegetable and FruitProcessing Plants at Bowen and the cultivation in this region of cotton, tobacco and grapes.

(f) Pastoral.--The problem is a complex one anel it necessitates the intervention and supportof Federal and State Government agencies as well as the activity of Merinda Meat vVorks andlocal graziers. The Bureau are working hard to bring about co-operation and (Ievelopment inthis regard. Education and research are already being conducted in the a.rea. Improvedpastures, cattle fattening and the introduction of Native Clover from Burma and new breeds ofcattle, must be fostered.

(g) Carbo-chemical.--Given a correct appreciation by tbe Government on current economictrends, at least 90 different secondary industries of this sort could be established in the Bowenregion, e.g., Synthetic Rubber, Carbide, Plastics and 1"11el Distillation Projects, etc., can beestablished on the Collinsville coa.lfields to process the coal and create a Secondary Industry forexport of goods. The Bureau have sought overseas technical advice on tbese possible enterprisesand the complex problems involved arc being closely studied.

64 lVI. JUYPENLATZ

(h) Fisheries.- --The Bowen region sea-waters apparently hold abundant marine life atdefinite commercial value. Tbe Bureau have conducted certain correspondence with overseasinterests and have recently authorised their Research Officer to undertake intormal investigationsto this end including interviews in Sydney with representatives of the overseas hshing industry.

(i) Small Light Induslries.---Tn general, the most appropriate and logical thing tor this areato do is to establish small light industries such as a Cloth Manufactllring Unit, Brick and GlazedEartl'enware Pipe -Narks, a Towel-making Factory, Gem-stone Cutting for Tourists, specialSmall Goods for tourist sale, Honey Processing Works, Artistic Terra--cotta "'Vorks, MonumentalStone cutting and Statllary ""Vorks, or a specialised :Foundry (for metal or glass work).

(j) Regular comprehensive reports on projected Industries have been prepared and sub­mitted to the Executive by Dr. Berceanu and the Bureau have collected considerable basicinformation concerning many industries.

Touris17!.·---ln the short-range the promotion of Tourism lllUSt be given No. .I priority inthe Bowen region, which, with its natural and beautiful beaches surrounding the town, couldwithstand any competition frolll elsewberc.

(b) However, to make Tourism a commercial proposition, the people of Bowen mustco-operate towards thc construction of first class accommodation for tourists-Hotels, Motelsand private seli-contained units must be up to Tnternationa.l standards. This demands a newand imaginative approach by the persons erecting such accommodation. Bowen cannot beplaced on the Tourist Bureau list until it has some first-class accommodation at its seaside resorts.

(c) Instructed by the Executive, tIle Research Officer had informal interviews with bankingand .Iinancl' bouses in Brisbane, Townsville and Sydney with a view to pnblicising the BowenTourist Trade potential and attracting investment. Certain large organisations and DevelopmentFinance Corporations were prepared to consider any sound proposition. Overseas (inancialinterests, as 'well, are open for nl'gotiations.

The urgent building of Motels at Bowen is a matter of the most vital concern for thedistrict and finance must in some way be made available, without delay.

(d) The Executive are following closely the plans for the construction of Motels at Queen'sBeach and HorsesllOe Bay. Bowen Motels pty. Ltd. hopes, within tbe next few months, tocommenel' building operations at the foot of Mount Gordon.

(e) The Syndicate which bas purchased land on the corner of Mnrroona Road and BeachAvenue has applied to the Licensing Commission for the removal of tbe licence of the Queen'sBeach F-Iotel from jts present site to the newly-purchased site above-mentioned. It is confidentlyexpected that snell removal win be approved and, if so, the Syndicate will spend about £75,000on the erection and furnishing of a Hotel and Motel on the new site.

(f) The Bureau have been pressing tbrough the Department of Harbours and Marine forthe construction of a small boat harbour in the area of Magazine Creek.

Thanks to the efforts of the Harbour Board and tbe local Member, Dr. P. E. Delamothe,the State Treasurer, Mr. T. A. I-liley, has induced the Goverument to approve, in principle, ofthe construction of such a boat barbour. Amongst other things, the scheme provides for acauseway through Magazine Creek, thus giving long-awaited direct access to Dafrymp.le Pointand Flagstaff Hill. It is expected to obtain an allocation from the I961-112 spending from theCommonwealth Aid Marine Fund to enable work to be commenced in tIle latter half of I9111.The Bnreau also desire to express their appreciatiou of the assistance given by the Shire Engineer,1\1r. George Davidson, in the formulation of this scbeme.

(g) In regard to tourism, it is necessary to have first-class accommodation, attractiveentertainment, transport aml adeqnate facilities. Mr. P. E. Gillett, the chairman of the sub­committee, has already submitted an interim report and should furnisb a supplementary andrevised report early in 19111, setting out certain concrete recommendations in the short-term andlong-term ranges.

The Bureau have been campaigning for the beautification of tbe town and, in particular,for the planting of suitable selected trees iu its streets.

P1'omolion Generally.--On instruction from the Execlltive, the Research Officer recentlyspent 10 working days in Brisbane and Sydney, out of which three full days were spent at theUniversity of Queensland working with Mr. Morris Juppenlatz and his aides, in research andco-ordination of data, aimed at the creation of a Master Plan for tbe Bowen I'(egion. The ResearchOfficer was two days in Sydney engaged in interviews for business and publicity purposes, andhad live days in Brisbane for like purposes. On ihis visit Dr. Berceanu worked many hoursevery day and interviewed at least 116 people.

From the foregoing, tlle Bureau can confidently expect significant progress in this regionin the New Year. The Bowen area is on the march and success is assured, provided an organisa­tions and residents of the Shire co-operate consistent.ly and enthusiastically in boosting Bowen.

M. JUPI-'ENLATZ

ApPENDIX u:B:"

CLIMATE OF BOWEN

The average Rainfall and Temperature in Bowen over a. 30 year period .. ~.-_ ...---- ---- -- ------_.

JanuaryFebruai'yMarchAprilJliIayJuneJulyAugustSeptemberOctoberNovemberDecember

Organizatioll

Average Hain£all(Monthly)

923 point:;R80ri0223909GIG97G78808G

117121

(01 nnually)3G.67 inches

ApPENDIX "rt"

-- ------ -c------ ---- --

Numbers

Average Mea.nMaximum Temp.

(Monthly)

88.()OF.87.88G.()84.180.17G.375.077.283.884.08G.688.5

(Annually)83.0"1".

Notes

Methodist Ch urch:Sunday Schoo] (Bowen)

" ,,(Merinda)Junior Boys' Club ..Junior Girls' Club ..Methodist Youth FellowshipCbristian EndeavourLadie~;' Guild

Presbyterian Church:Sunday School (Bowen)Bootooloo (S.S.)Qneen's Beach (S.S.)Delta (S.S.)Pathfinders ..Presbyterian Fellowship Assn.Evening Guild (Ladies)Day Guild (Ladies)

Church of England:Sunday Schoo]Barbarians ..Boys' Companions

Roman Catholic:Holy Name Soc.Nat. Cath. Girls' MovementSt. Vincent de Paul's Soc.Y 011llg Christian "Vorkers

UO2S28174S~?O

15

J202G24J360202514

502S12

40301220

H.eld Weekly

Fortnightly\VeekJvMontb'ly

Held Weekly

Monthly

(Mixed Croup)

Monthly

WeeklyMonthly

Assemblies of God (Queen's Beach)Sunday School 30C. A. .. 3S

'- --

QUEENSLAND InJRAL-UEBi\N PROBLEMS

1\ ppenclix "F"-continued

67

Organisation

Salvation Army

Seventh Day Adventists

Football

Tennis (Bowen T..Assn.)

V.igoro

Basketball

Table Tennis

National Fitness

Cricket

S \v im lTlin g

Bowen Choral Society

Bowen Town Band

Bowen Drama.tic Society

Town Library:School of Arts

Children's Library

Arb Council

Theatres:Tivoli (Mon.-Sat. except Tues.)Grand (Mon., Thurs., SaL)Summergarden (Queen's Beach)

('Wed., Thurs., Fri., Sat., Sun.)

Adult Education

Rotary International

.R.S.L.(Ladies Aux.)

Masonic Lodge

Buffaloes Lodge

OclclfeliolVs

Chamber of Commerce

Junior Cbamber oJ Commerce

Junior Farmers

Ruling R.urntin Club

Numbers

11 teamsc. 220

50

6 teams80

4 teams30

50

20

30

30

30

474

88D

25

400600"l300-400 J

J 200-300"l Sun. 400

IG

38

150

:lOO

25--30

100

50

25

40

Note:,

Rangiug from Seniors to School Teams

(Use 4 Courts)

'} Seniors. 2 Juniors

2 Seniors. 2 School

2. Seniors

(Weekly--il! Presby. Cll.)

(Weekly)

(Twice Weekly)

Very poor concln.··-·to be taken overby City Council

Free-· TCl'<vn Council

Branch/Qld. Arts Council

Run by same peoplc---sometimes showthe same program

Basket vVork--(Film evening once amonth)

Weekly

(2 lodges)-lYIonthly

I i ortnigl1tly

Fortnightly

Monthly

68 M. JUPPENLATZ

Appendix "F"-continued

Organisation

Legacy Contact Group

Show Committee

Bowen Junior Eisteddfod

Aero Club

Bowls:Bowen Bowling Club

Service Bowling Club

Queen's Beach Bowling Club

Golf Club

Sailing Club

Yacht Club

Gun Club

Rifle Club

Haventock Croquet Club

Boy ScoutsCubs

Girl GuidesBrownies

Marcbing Girls

Bowen Regiona.! Research and Pro­motion Bureau

Bowen Regional Prospectors' Club

Numbers

8

22

iIflO men,40 women:HO men140 women,40 men140 womenI

I 120

50-60

180

84

30

18

2050

30:H,

60

75

52

Notes

(alfiliated with T'ville)

2-day sbow--good quality

Under auspices of Bowen ChoralAnnual Event--Fri., Sat.

Part of Whitsunday Flight (3(Fortnigbtly Flying)

25 boats

(Known as Bowen Civic Club)

1 troop2 packs

1 company2 packs

5 teams (meet weekly)

ChurchesHotelsTennis CourtsRecreation OvalsSchoolsTheatresBilliard Tables

BOWEN ImCREA'rION AMENITIES

Schedule of Buildings5 Rest Rooms6 Public Halls3 Church Halls

1 Public Croquet Lawn2 (1 to Senior-RC.) Bowling Greens

2 Public Baths3or4

Total number of houses in Bowen---\l86.

I;1412]

Gross Density

~2UEENSI.}\NJ) IWl:\.AL-Ul<BAN I'](OULEMS

ApPENDIX "G"

GROSS DENSlTY OF BRISBANE SUBl1HBS

from Brisbane City Council.

Population

Gil

lEi. 9015.4214.0i513.0i511.84­1 1.80I J .77ll.491 I. I 111.599.G7

11.108.H)G.698.078.55

NonnanbyEast BrisbaneKedronCityNewmarketCllatsworth(~reenslopesEkibinvVinclso!"l-<:alingal~noggera

AscotMitchel tonGracevilleToo\vongMorningside

11,000I!,CJOO15,000G5,10012,00015,30013,900II ,2.50] 3,300

7,5:-'011,800J5,7008,:lOO7,i1509,250!J,fiOO

(348 acres722 acres

1067 acres4987 acres1013 acres

'1294 acres1181 acresfl70 acres

II \J7 acres(i51 acres

1220 acres1414 acreslO iiI acres10\J8 acres11413 acres1I.11 acres

AI'PEN I)!X "1-1"

1'01<'1' DENISON REGION

l,,'conomic News, April-May, 1\l53

(This is the Fourteenth In a Series 0/ Surveys 'of the Regions of Queensland.)

The region of Port Denison com.prises the Shires of Wangaratta anel Proserpine as well asthe 'I'own of Bowen. Bounded on tbe south by the T~egions of Pioneer and Central Highlands,on the west and north by the Region of Burdekin, Port Denison stretches along tlle east coastof Queensland from H..epulse Bay on the soutll to Upstart Bay.

Topographically the Region is divided into three basins by a series of mountain rangesrunning roughly N.W.-S.E. The Bogie and Clark Ranges separate the narrow coastal plainthrough which flows the Proserpine, Don and ElJiot Rivers from the Bowen River wl,ich drainsnorthward to the Burdekin. The Leichhardt Hange separates the Bowen River basin [rom thestreams which flow sOl1th and west to the Su Hor Ei vel', a sonthern tribn ta.ry 01 the Burdel)in.

The climate uf the region inflLtencecl by these topographical features, falls into three maingroups. The southern end of the coastal plain receives a reliable heavy Slllllll1er rain1alJ, which,allied with high temperatures, provides a favonrable cnvironment for sugar c,ene growing. Therest of the coastal area has a moderate slimmer rainfall ane! a e!ry, comparatively trostless winter,which favours the growing of vegetallles, particularly early tomatoes, for which Bowen is farnolls.l~ehind the mountain barrier the rai" falJ lessens sharply Ilntil at Mount McConnell on the westernbonIer! the allllual norm.al is only 21,5 lucIles,

BOWCll i!O 1/ii 1/:3Proserpine riO 1/J2Mt. McConn ell 17 G/8 4!ii

4 in. o in. 10 in.

7 1/+ 8/7 7/1017 I/O

.:1-.5 2/., :3/4 2D/ilO

Place Normal(ins.)

Summer Rainlall

Chances 01 lessthan·

20 in. 2[i in.

Nonna](ins.)

vVi"ter 1<<Liniall

Cl,ances of lessthan.. ·

~owen is the only climatological station in the area. It Itas a ma"im[lm temperatrire inJanuary of riS.O u

, ane! in Jilly of 7,1.8°; a minimum temperature in Jannary of 7;,.1° and 111 Jnlyof 07.4". The annual average ~) a.m. humidlt)' is (ill which proximih' to the sea keeps fairlyconstant. The mll1lber of wet clays annllalJv is fi6.

70 M, J UPl'ENLi\TZ

The soils 01 the region vary (rom undulating to hilly forest country with grey and reddishsoils to rugged mountainous country along the watersheds, In the valley of the Bowen Riverare stretches of black soil plains, The coastal plain consists of \'Vallum country interspersedwith patches of hilly and mountainous country which end abruptly on the coast, On the southernportion of the coastal plain is an area of black soil scrubs,

Irrigation by pumping :from streams and shallow wells is confined to the coastal plain,O:f the [,800 acres irrigated, over 1,400 are situated in the drier areas around Bowen in theWangaratta Shire,

~ .The primary production o:f the region falls into three distinct groups governed by topo­

graphy and climate, Sugar cane is grown in the Proserpine Shire where the average annualrainfall is weH over GO inches, Around Bowell, vegetables and mangDes flourish--·over 4,000

Primary Production

Item

SheepBeei' CattleDairy Cattle

Pigs

Sug~U' Cane CutStand-over CaneVegetables

194647 1950-51

Number Production Number Production

447 ] ,B20 lb, wool 321 900 lb, wool] 60,700 145,900

2,500 11,400 Ib~ cream 2,600 11,600 lb, creamJ 17,400 gals whole milk 116,000 gals whole milk

200 670

Acreage I'rodlLctioll Acreage Production

8,100 ilO,200 tons 10,000 205,200 tom4,SOO 6,6002,200 5,G60 tons 2,400 4,OilO tons

Total AreaCropped 15,SOO 1!1,800

tons o( tomatoes being produced annually in the area, In the hinterland particularly of theShire of Wangaratta, about 5 per cent o:f the State's beef cattle are raised, About 9,000 man­years of work are expended in the output of agricultural and pastDral products, and, as holclingsare improved, and the State's sugar output increased, more labonr will be needed,

I'actors of Proclnction

Area Fertilised (Acres)Snper-phospllate (Cwt,)Other Artilicial Fertiliser" (cwt.)Area Irrigated (acres)

PJoughs (all Lypes)Sugar Cane PlantersTractors, wheeledTractors! crawler

1\146-47 1950 51

'[,470 8,9701,880 B,310

IB,950 B1,2801,960 1,780

1,310 1,210270 260410 620

13 20

The State Government maintains almost 90,800 acres of Timber Reserves and 11S,000aeres of National Parks, From these reserves as well as from private source,;, over llm, snperfeet of hardwood logs and over Jill, snper feet o:f softwood logs were milled during 1951-52,

Population in the area, as shown in the ta.ble below, has increased by only l) per centsince the 1l);{3 cenciUS, and the wl101e of this increase kts been in the Town of Bowen,

QUEENSLAND RURAL-URBAN PROBLEMS 71

Local Authority

Town of Bowen ..Shire of ProserpineShire of \"1angaratta

Port Denison Region 11,477

Population as at~~

30-6-47

3,2763,6174,807

11,700

3,6603,9504,850

12,460

Apart from Bowen, the chief centres of population, with I !J47 Census populations givenin brackets, are: Proserpine (I, 7!J7) , Col1insville (1,786); Queen's Beach (46 I); Delta (293);Merinda (2G2) amI Scottville (24:J).

The UJ4.7 Census showed a total 01 4,8,,1 males alld 3,7:3" !emaIl'S agcll 15 years and over.Of these, 4,4lG or 91 per cent of the males and 711 or Ul.O per cenl of the lemales were inclucledin the, working population.

An industrial dissection of the male working popnlation shows that primary ill(lustry hasa lower proportion of employees than in 1!J33 whilst the proportion in sectJndary and tertiaryinclllstries has increased. Female proportions have been stable. .

Percentage of the Working PopUlation

Type of Industry .Males Females Total

1938 1947 193:3 1947 1!J33 1947

Primary 51.4 45.8 6.7 6,9 46.4 40.7Seconcbry IUJ 14,!J 5.8 6.4 11.2 13,7Tertiary 36.7 393 87.5 86,7 42.4 45.6

SectJndary indllstry in the Regioll is chieny concel'ned with the processing of primaryproduction. Nearly 70 per cent 01 the total factory employment is engaged in either the sugarmill at Proserpine (214 employees) or the meatworks at Merinda (307), In llc\dition, there areat Bowen, coke ovens and a salt evaporatioll plant. Other factories include 7 sltwmiUs.

Item

N LImber of FactoriesNnmber employed-­

MalesFemalesTotal

Valne of Ontput £,OOO'sValue of Production £,OOO's

1944,45

33

54028

15681,lU8

237

1947-48

315

54125

56G1,131

244

1960,51

41

70848

7512,U03

619

'J'he development o[ tourist resorts around \"Ihitsunday Passage (Hayman, Molle,Long,Dent and Lindeman Islands) has been responsible for some of the increase in tertiary employment.

Very little mining operations in respect of minerals other than coal are now carried outin the Port Denison Region. Dittmer Gold Mines, from 5,853 tons oj ore, produced $)31.4 fineoz, gold and 7,38 oz. silver dnring 1951, but owing to lack of linance, operations were ,mspencledin September 01 the same year. Mount Hector Battery treated some 40 tons of ore during 1951lor a return 01 12.78 fine oz. gold, Allnvial gold lrom Dredging Leasc No. 10 was treatcd at.Rntherford Battery and produced 79.47 line oz. gold in IU51.

A small amount of graphite·---28,6 tons, valued at £283 65. 3d,---and a small qnantity 01WolJram were also prodnced in 1951.

The State Coal Mine at Collinsvillc, produccd H8,627 tons or coal in 1!J52 comparcd withJl7,8:11 tons in Ulf>1. 1.11 Hlf>2 thc Bowcn Consolidated Mille produced 80,78!J tous, ab()LII 10,025Ions less than lire previous year.

72

second,lrvgirls ,tt

H.nral School and

'I'he coke ovens at Bowen used .j.a,ooo tOlb of tlus eual in producing 27,:H2 tons of cQk¢,a large proportion of which was sent to Mount La for the red~lction of ore there. A recentcontract for the supph of coke to N oumea should ensure the contll1ued sLlecess of the OV8ns.

The Nllrth Coast Hailway serves UH' coastal area uf tiJis Regiun and a branch line servesthe mines at Cullins ville.

Ontwanl rail traffic averaged about 2+0,000 tons annually elnring the four years eilded]nne, 1962, compared with 270,000 tons pre-war. eoal and coke and agricultural produce werethe chief cummodities transported and represented flO and 20 per cent respectively of the outwardfreight compared witlr G7 and 21 per cent respectively pre-war.

lnward raIl freight buth pre-war and during the last four ),ean averaged about 210,000hms annuall),.

N" ["'!ad transport services operate in tbe B.egion with the exception of a passenger serviceIIluch operates trom Mackay in Fiom;er H.egion to Cannonvale and serves the iJoliday resorts 111

the vVhitsundav Group.Bowen, the only port in the Region, is situated on the shores oJ Port Denison which is

one u1 the iilleoit and safest hiubours on the east coast of Australia. The average number ofvesseL entering the port annually was 80 witb an average total net tonnage of HiO,OOO annually,compared witb LiO with an average total net tonnage of 2GO,OOO annually pre-war. The totaltonnage of C'l1'gO dischiugecJ (oversea, Interstate and Intrastate) in the port a",'raged 4,000 tons(12,000 tons pre-war) and cargo shipped 87,000 tons (88,000 tons pre-war). Exports consistedchiefly of sugar, frozen meat and coal and coke.

Electricity is supplied from the Bowen Town Council pOller huuse to Bowen ancJ Queen'sBeach. Collinsville and Proserpine power houses are operated by the Shire Coullcils whilstMerinda is snppliecl from the l11eatllorks.

Water reticulation is provided in Ilowen, Queen's Beach, Merilicla, Pros<"1']line, Collinsvilleand Scottville.

A sewerage scheme is in operation in tire area of Bowen.

I n addition to primary educatiLlIJ which is available throughout theeducatioll is available at Bowen and Proserpine; and at a clenominationalBowen. Domestic science and COl11mercial Subjects are taught at Proserpineat Bowen.

Hospitals are l,stablished at BUllen, Collinsville and Proserpine. The nearest base hospitalis in Townsville.

JVIaternal, Child Welfare and I Jental Services operate fronlBowen.

'\PPE"iDIX "I"

UX'AL GOVERNMENT ACTS, l\laG-54,

Part X I, Sectrou ao, para. :3

The Local Authoritv shall have full power to make by-laws Jar promoting and Tlraihtaining'the peace, comfort, culture, education, health, morals, welfare, safety, convenience, food supply,housing, trade, commerce, and manufactures of the area and its inhabitants, and for the planning,development, anel embe11i8hment of tbe Area, and 1'01' the general good rule and Government:of the Area and its inhabitants, and for·the direction, administration. and control of the workingand bnsiness of the Government of the Area, and shall cause all such by-laws to be duly carriedinto effect.