I have been hearing and reading a lot about the Greater Sydney Commission’s (GSC) Our Greater Sydney 2056: A metropolis of three cities – connecting people Plan for Sydney.
As the title says, the core idea trifurcates Greater Sydney into three “cities” *
- Eastern City/ Sydney/Harbour City,
- Central City/Parramatta/River City,
- Western City/Aerotropolis/Parkland City.
In one very important sense, these are all Greater Metropolitan Sydney. In another legal sense, the “City of Sydney” is a legally-defined ‘local government area’ including the most famous bits and surrounding areas. There are many legally-defined cities (local government areas) in greater Sydney, and these get periodically redefined by the state government to which they genuflect.
Now I am sure in part the use of the word “City” is a rhetorical device, to find some way to combine the vast area of the West into a coherent thing. But absconding with the word “City” to mean neither the integrated metropolitan Sydney nor the local government areas does violence to the language and creates confusion where clarity is desired. The word “region” is overused and indeterminate, but surely there is another word here. I like “Quarter” but that implies 4 parts, at least to the purists, or “Borough”, but someone can figure this out. New York and London have ‘boroughs,’ perhaps that is what makes a world-class city.
The idea of three “cities” (or even “boroughs”) may seem innocuous, but if not carefully unpacked and dismembered, it risks becoming like the lines on the map of transport plans decades ago which inevitably get realised, and eventually find itself as yet one more layer of government, or a replacement for existing local government areas and increasing the remoteness of the ever less-local local government.
While there are maps showing these regions, it is unclear what actually differentiates them along the continuum of urban development. Arguably, a park-belt separates the West from the Center, and that would seem an almost natural boundary, but if you look closely at the map, it splits the western city from itself. The only thing that differentiates the East and the Center is orientation to a primary node of activity (Parramatta or Sydney), and that is so overlapping as to be not very meaningful. Nor is orientation systematically defined, and even if it were, it is subject to change with the economic fortunes of each core. Moreover, there are many activity centers located throughout each of the “cities”.
While the eastern and central cities of Sydney and Parramatta have core central cities, in addition to numerous local activity clusters, the West is a core-less cluster of cities.
Planners imply the void will be filled in the west will by the planned Western Sydney Airport at Badgerys Creek (on which a lot seems to hang), and the surrounding Aerotropolis of rental car vendors, cheap hotels, sex shops, establishments serving quickly prepared food, and warehouses. An airport is a decidedly non-urban land use, even if the terminal is city-like in perverse ways. The airport is shown looming large on the map, larger than the existing Sydney Airport, which in all but area it will be smaller and less important than for decades to come.
The West, with an airport smack dab in the middle seems a network or cluster of activity centers more than a single coherent thing deserving the label “city”.
The definitional argument is intimately related to the idea of the “30-minute city” wherein a majority of people (say 70%) have commutes less than 30 minutes. Ensuring people can reach more things in less time is the correct planning goal of accessibility. And today, most people in Sydney have a 30 minute or less one way commute (be careful of means vs. medians here, there is a long tail), but as the city grows, this becomes harder and harder to achieve as people seek out better matching opportunities farther away, and there is more growth away from the center. All else equal, entropy dictates commutes will on average get longer not shorter as metropolitan areas grow. People will adjust their homes and jobs.
For Sydney to remain a 30-minute city, and more importantly, for Western Sydney to achieve this, many more jobs must relocate westward, or be created in the western region. (Or people just stop commuting as much, or transport connections become much faster.) This is one of the points of the plan. If the plan is successful, and jobs do materialise in the west, most Western Sydney residents would not need to commute east for jobs.
Identity: West vs. East
Planning doyenne and the Chief Commissioner of the GSC, Lucy Hughes Turnbull, said Wednesday November 15 at an Industry Briefing: Planning the future of transport and land use in Greater Sydney and Regional NSW, that the Western city comprises “Campbelltown, Liverpool, Penrith, et cetera”.
I would be unsurprised to find those who live in the town of “Et Cetera” view it differently.
To my outsider eyes, the West really seems to me to be a collection of disparate areas that might eventually conurbate into a continuum of suburbia with traditional existing centers as nodes of activity. But is the “West” really the identity people will have? Won’t they say I am from Blacktown, or I am from Sydney instead of I am from Western Sydney (Western City/Aerotropolis/Parkland City) or whatever name wins out? I suspect they will go for local (Blacktown) or global (Sydney) recognition rather than I am from Aerotropolis, or the Western City, or the Parkland City or any other sub-metropolitan, supra-municipal objectifier.
For instance, in American Major League Baseball, the Los Angeles Angels/California Angels/Anaheim Angels eventually became the Los Angeles Angels of Anaheim. Not the Orange County Angels, nor the Eastern LA Angels. (And Los Angeles c. 1955 is probably the best American analogy to Sydney, the populations and geographies are similar, with San Francisco c. 1980 next best.) The “Greater Western Sydney” Giants, an Australian-Rules sportsball team, plays in Spotless Stadium at the Olympic Park, which is East of Parramatta. Will they eventually be renamed the Parramatta Giants, or the Sydney Giants of Greater Parramatta/Olympic Park?
Identity matters. As can be seen from the results of the Gay Marriage Plebiscite, people of Western Sydney have, on average, different political opinions and social values from the East, or most of Australia. But these political preferences don’t align cleanly with the Western/Central/Eastern City.
Other Matters: West vs. East
Addressing local needs matters. Housing is less expensive out west, but travel costs are higher since commutes are longer.
Building connectivity matters. The west is much more auto-reliant than the east, and will remain so largely independent of public policy. That’s what the land use dictates. The land use won’t change much, as that’s what the transport system enables. This is largely locked in through a decades long process of mutual co-evolution. Even as they rise with population growth, the densities of the west will remain lower than the east.
The first figure shows three transport hubs (presumably transit hubs, though out west this might not be the case in an important way), that are anchors of an interlocking hub-and-spoke system. These three hubs are identified as the centers of the cities. Well Central Station, is not, despite it’s name, Central to Sydney CBD, it is at the edge. This may evolve over time as the CBD marches south. Parramatta station similarly is at the southern end of the local business district. And I can’t imagine too many people walking around Aerotropolis after exiting the station there. It’s early days at Badgerys Creek, but this is little better than a crayon drawing, and building transit to serve the vast wasteland of an unbuilt airport is likely to be a hard sell when there remain so many existing real needs and areas of much higher transit potential in the eastern parts of Sydney.
Encouraging economic development out west, at the expense of losing some economies of agglomeration in the east, is important for spatial equity and transport, if not efficiency, reasons.
E Pluribus Unum
Arbitrarily dividing Sydney into three (or more) cities doesn’t seem especially helpful, even as a framing device, and results from the kind of remote thinking to persuade distant decision-makers rather than an organic expression of how people self-associate. It’s how marketing and economic development officials think.
Instead the job of a Greater Sydney Commission is not to exacerbate the already existing divisions, and keep the westerners out of the east, but to unify, to forge One City, One Sydney.
* What is a City?
We can start with the etymology. Wiktionary writes:
From Middle English cite, from Old French cité, from Latin cīvitās (“citizenry; community; a city with its hinterland”), from civis (“native; townsman; citizen”), from Proto-Indo-European Proto-Indo-European *ḱey- (“to lie down, settle; home, family; love; beloved”). …
So a ‘city’ is a community, a place where people settle. It is also larger than a town. The actual dictionary definitions are vague, as are the way people use the words. In the US, a city generally is a legally-defined municipality which is large and has more legal authority than the surrounding unincorporated area, and more than smaller towns or townships. So the more appropriate term might be ‘urban’ area. `Urbs’ is just a Latin word for city:
From Middle French urbain, from Latin urbanus, from urbs (“city”).
The US Census, which needs to operationalize these things says:
The Census Bureau first defined urban places in reports following the 1880 and 1890 censuses. At that time, the Census Bureau identified as urban any incorporated place that had a minimum population of either 4,000 or 8,000, depending on the report. The Census Bureau adopted the current minimum population threshold of 2,500 for the 1910 Census; any incorporated place that contained at least 2,500 people within its boundaries was considered urban. All territory outside urban places, regardless of population density, was considered rural.
The Census Bureau began identifying densely populated urbanized areas of 50,000 or more population with the 1950 Census, taking into account the increased presence of densely settled suburban development in the vicinity of large cities. Outside urbanized areas, the Census Bureau continued to identify as urban any incorporated place or census designated place of at least 2,500 and less than 50,000 people.
Urbanized areas and urban clusters form the urban cores of metropolitan and micropolitan statistical areas, respectively. Each metropolitan statistical area will contain at least one urbanized area of 50,000 or more people; each micropolitan statistical area will contain at least one urban cluster of at least 10,000 and less than 50,000 people. Metropolitan and micropolitan statistical areas represent the county-based functional regions associated with urban centers (hence, the generic term “core based statistical areas”).
Other statistical agencies undoubtedly have similar definitions.
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