This is an opinion piece by Kath Elliott, our Principal, who is also a Newcastle City Councillor - it shows how the lack of community engagement can pose significant risks to projects such as stalling or increasing costs and timeframes. Engaging with communities at the design or concept stage can mitigate these risks.
On 02 November 2019, the Herald reported that the City of Newcastle was calling for Expressions of Interest for the redevelopment of Newcastle and Merewether Ocean Baths by developers in return for long term leases.
This EOI process has come as surprise to the community, and independent Councillors. This raises the question of how Council is meeting its policy of open and transparent governance. Council adopted a community engagement policy in November 2018, including the principles of accountability, inclusiveness, transparency, commitment and responsiveness. The policy references Council’s 2030 strategic plan, in particular that Council “will provide opportunities for genuine engagement with the community to inform Council’s decision making”.
What does this mean for the two iconic ocean baths and how did we do? In developing or enhancing community infrastructure a well considered community engagement process is the first step. According to the International Association of Public Participation, (IAP2) process, Council should have identified the most appropriate method of engagement. This can range from informing the community about a project, consulting, collaborating, all the way to empowering them to participate in the decision-making. City of Newcastle references IAP2 in its policy and “abides by best practice principles developed by the IAP2.
Council also acknowledges that the IAP2 model of public participation is vales based, decision-oriented and goal driven.” IAP2 advocates that organisations assess impacts on communities and identifies the best way to engage with them, The crucial time for high impact community engagement is at the beginning of a project idea, such as the concept or design stage.
By any measure, City of Newcastle has not assessed the significant community interest in the ocean baths and undertaken engagement before an EOI process. Questions that should have been asked before undergoing the EOI phase include; What is the likely impact of any changes to the baths? What is the level of community interest? Who will be affected? How many users do we have and who are they? How can we engage the community in a discussion about changes at the baths? What are the most appropriate methods of engagement?
Council did not do that and now strong community interest in the project has been demonstrated in the online petition against the perceived privatisation of the baths and changes to community use. Best practice community engagement would have allowed the Council to have a meaningful conversation with the community prior to an EOI process, enabling community involvement in determining the best balance of public and private use, recognition of the key attributes that are important to the community and worth preserving, and gaining insight and ideas from the community about future plans.
This would have had the added benefit of bringing council and community closer together, generating a spirit of goodwill, and likely resulting in a better outcome with community support. The local community can be forgiven for thinking that any changes to the baths would have been sympathetic to its heritage and community values, as the Labor Councilors promised to refurbish the baths using council funds prior to the last Council election. Lord Mayor Nuatali Nelmes said then; “we will deliver $3million required to deliver much needed upgrades to public facilities and clear the way for future investment in the southern pavilion for place activation and small scale facilities like a café or restaurant. “
What we see now is a far cry from the original promise. Under the scope provided to developers, the historic open air changerooms at Newcastle will be demolished and replaced by a much smaller and less functional indoor facility. This represents just 2.5% of the 5,800m2 being offered to the developer. This is a fundamental change that ignores the heritage of the ocean baths precinct. Its time we practice what we preach, and work with our community in constructive and positive ways.
Council should defer the EOI Process and undertake a comprehensive engagement process with the local community. This would allow people who are most impacted to be heard and to contribute, and for Council to harness the collective wisdom, knowledge and ideas from our most valuable asset, our citizens. Councillor Kath Elliott is a community engagement specialist and regular swimmer at the Merewether ocean baths.