What it Takes to Make and Implement Strategic Spatial Plans?
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This document summarizes a presentation about strategic spatial planning processes in European urban regions. It discusses research on how strategic spatial planning contributes to urban region development, and the goals of the CONCUR project which aims to analyze how strategic spatial plans and policies affect land change. The presentation outlines the theoretical model and operationalization tools used in the CONCUR project. It also provides an overview of the state of research on governance dimensions of strategic spatial planning and identifies gaps. Finally, it discusses case study selection and the data collection and analysis methods used in the CONCUR project to understand governance arrangements, funding mechanisms, power configurations, and their role in strategic spatial plan making and implementation.
What it Takes to Make and Implement Strategic Spatial Plans?
- 1. Eduardo Oliveira UCL, MIDLAND project team Whatit Takesto MakeandImplementStrategicSpatialPlans? A Cross-Case Comparison between Nordic and UK Urban Regions
- 2. In this presentation Critically debate the governance dimension of strategic spatial planning processes in European urban regions Hamburg How strategic spatial planning contributes to the development of urban regions (2016-2020)
- 3. About WSL Is part of the ETH-Zürich (Swiss Federal Institute of Technology) domain
- 4. About the CONCUR project Research gap Land-change science has devoted little attention to spatial planning in urban landscapes despite the widely accepted premise that spatial planning affects urban land change. Spatial planning often originate and act on local and regional scales while land change models targets up to global scales Spatial planning is context- sensitive, while land-change modelling aims at generality.
- 5. 5 is to analyse and clarify how strategic spatial planning processes and spatial policies at the urban-region level affect land change. Overall objective About the CONCUR project Lyon, 2016
- 6. Test applicability of theoretical model Test usefulness of operationalization tools Bucharest Austin, Texas Test Aim 1: measuring spatial information contained in strategic plans (e.g., maps, spatial diagrams). Aim 3: Identifying the main supra-regional conditions (e.g., political; economic) Theoretical model Aim 2: Identifying key governance arrangements in strategic spatial planning Zürich Operationalization tools 2016 2020 Aim 4: Developing a systematic application of the theoretical model in the context of land chance modelling About the CONCUR project
- 8. Is about setting frameworks and principles to guide the location of development and physical infrastructure. Spatial planning consists of a set of governance arrangements for developing strategies and plans (Healey, 2006). Spatial planning strategies provide a forum in which actors e.g. policy-makers, business rep., NGOs envisioning/create visions about the future & how to get there (Haughton et al., 2010). (Healey et al., 2007) State of the art
- 9. Most of the available studies focus on governance and… Theoretical conceptualization Soft spaces Neoliberalism, spatial justice, political condition Specific geographical areas such as natural parks, river basins Specific projects/programmes such as European capital of culture, EU funding State of the art
- 10. Davoudi et al. (2008) focus on the governance in relation to the involvement of actors. Stead (2014) examines how multilevel governance approach is used and understood in European policy debates. Allmendinger et al. (2015) focus on governance in soft spaces i.e. territories with fuzzy boundaries e.g. supra-regional partnerships . Schmitt, P. & Van Well (2016) focus on defining governance in strategic projects. State of the art
- 11. Little attention has been paid to the role of governance in strategic spatial planning processes i.e. plan-making and plan- implementation. Research gap
- 12. Spatial governance (e.g. Tewdwr-Jones, Allmendinger, 2006) Regional governance (e.g. Albrechts, Healey & Kunzmann, 2003; Foster and Barnes, 2012) Metropolitan governance (e.g. Salet, Thornley & Kreukels 2003) Evolutionary governance (e.g. Beunen, Assche & Duineveld, 2015) Urban governance (e.g. Brenner, 1999) Urban land governance (e.g. World Bank) Multispatial Metagovernance (e.g. Jessop, 2016) Territorial governance (e.g. Schmitt & Van Well, 2016) Conceptual positioning
- 13. Formal and informal processes through which • Governmental institutions (regional governments); • Non-governmental organizations (environmental NGOs); • Profit-oriented interest groups (real estate agents; developers; retail companies etc.); • Educational institutions (universities; research institutes); • Citizens (individually; grassroots groups); Joining forces, procedures and tools: • To share interests and knowledge; • To identify and set key priority areas of intervention; • To scrutinize the available resources (financial; natural); • To make decisions regarding spatial planning; Working definition: territorial governance (e.g. Schmitt & Van Well, 2016a; Mäntysalo, Kangasoja & Kanninen, 2015; Legacy, 2010; Davoudi et al., 2008; Healey et al., 2006).
- 14. Working definition: strategic spatial planning Strategic spatial planning is a social process (Healey, Khakee, Motte & Needham, 2006) through which a range of actors from diverse institutional settings come together to develop strategies and projects for the management of spatial changes (Kunzmann, 2013; Healey, 2009). The final and main output of this process is a plan that stipulates an overall and long-term development strategy for the urban region.
- 15. Spatial dimension: urban regions Multi-functional territories composed of a core urban area and a surrounding area with fuzzy boundaries that have statutory meanings or are the result of governance arrangements and multi-level government cooperation. Oslo- Akershus Regional plan 2015-2030/50
- 16. Dublin Spatial dimension: urban regions
- 17. Strategic spatial plans Established practice in many European (e.g. Stockholm), North America (e.g. Toronto) and Australasian (e.g. Melbourne; Pearl Delta River region, China) urban regions
- 18. Example: The Finger Plan of Copenhagen
- 19. What it Takes to Make and Implement Strategic Spatial Plans?
- 20. The two phases overlap in practice Plan-making phase i.e. the preparation or designing phase of strategic spatial plans Plan-implementation phase i.e. the translation of the principles and intentions of a plan into tangible actions at the ground e.g. housing settlements new commercial facilities reinforcing transportation maintaining green infrastructure It takes two phases (Hersperger et al. 2018; Oliveira and Hersperger, 2018; Gradinaru and Hersperger, 2018; Healey 2009; Albrechts, Balducci and Hillier 2017).Lyon
- 21. Case Study Selection Sufficient representation of the range of spatial planning systems, traditions and cultures in Europe (ESPON, 2007; EC, 1997) A variety of territorial governance arrangements and institutional settings (Nadin, Smas, Schmitt & Cotella, 2016; Le Galès, 2002) A range of times at which strategic spatial planning was introduced at the urban-regional scale, from earlier to more recent; A variety of visual representations of planning intentions, (e.g., maps or diagrams) included in the plans (Dühr, 2007).
- 22. Multi-case study approach In-depth interviewing with regional planning experts e.g. practitioners and academics 3 interviews per case; 90 minutes per interview; +/- 6000 minutes of discussions; Data collection Document content analysis: Strategic spatial plans; Development strategies; Territorial visions; Planning legislation. Workshops
- 23. Part I: Overall Part II: plan-making and -implementation Part III: land use change Data collection
- 24. Identifies the common ground in which a strategic spatial planning processes unfolds Power configurations Funding mechanisms Governance arrangements (Oliveira and Hersperger, 2018) Negotiations Interest groups involvement Multi-level cooperation Common findings
- 25. 21 urban regions seem to converge in terms of governance components,interactions and planning themes,and vary mainly in terms of the importanceof the components(…).”
- 26. Plan-making Plan-implementation Making and implementing SSP in urban regions (Hersperger et al. 2018; Oliveira and Hersperger, 2018; Gradinaru and Hersperger, 2018; Hersperger et al., 2019).
- 27. Cross-Case Comparison between Nordic and UK Urban Regions
- 28. Who and what Cardiff City Council: Strategic Development Plan for the Cardiff City Region 2016 The Strategic Development Planning Authority for Edinburgh and South East Scotland: Strategic Development Plan 2016 Danish Business Authority: The Finger Plan 2015 for Greater Copenhagen Helsinki-Uusimaa Regional Council: Regional Land use Planning for Helsinki- Uusimaa Region 2019 Akershus County Council: Regional Plan for Land Use and Transport in Oslo and Akershus 2015 Stockholm County Council: Regional Development Plan for the Stockholm region RUFS 2010
- 29. Governance arrangements Nordic urban regions Main governance arrangement Roles of the main governance arrangement Main planning theme object of discussion Copenhagen Multi-level government coordination and consensus building. Safeguarding meaningfulness and the common good during plan making and plan implementation. Intra-regional railway transport system, housing developments and employment land. Helsinki- Uusimaa Negotiations involving municipalities in the urban region. Supporting the achievement of joint decision-making and collectively thinking regional challenges within sustainability principles. Intra-regional transportation network and green infrastructures. Oslo-Akershus Coordination involving city/regional council and consensus. Facilitating mutual agreements between municipal political leaders. Expanding the transportation network. Brownfield regeneration for housing and jobs. Stockholm Negotiations involving private interest groups and municipalities in the region. Setting up plan implementation priorities and supporting collective decision-making on specific Housing developments Expanding the intra-regional transportation network.
- 30. UK urban regions Main governance arrangement Roles of the main governance arrangement Main planning theme object of discussion Edinburgh Negotiations involving private interest groups throughout the planning process Securing infrastructure provision as compensation for being granted a planning permit or a specific land allocation for housing development. Housing and employment land, including the location of retail facilities Cardiff Negotiations involving private interest groups and municipalities mainly on plan making Supporting the execution of area-specific projects on transportation, housing, retail, green infrastructures and leisure facilities. Reinforcement of transportation network. Housing allocation and various economic activities. (Oliveira and Hersperger, 2018; Oliveira and Hersperger, underreview ) Governance arrangements
- 31. Nordic urban regions In contrast, in the UK urban regions Multi-level government cooperation and consensus building over regional interests Transportation network; Housing developments Brownfield redevelopment. Negotiations involving private interest groups on setting up and implementing area-specific projects Infrastructure provision New housing developments Location of retail facilities Governance arrangements
- 32. Urban region The role of funding mechanisms in strategic spatial planning processes Copenhagen Supporting the extension of the public transport system as well as maintenance of green infrastructures and public spaces and leisure facilities. Helsinki- Uusimaa Effectively aligning plan implementation to the real needs at the ground level within a specific timeframe. Oslo-Akershus Supporting plan implementation and moving it forward. Stockholm Supporting the implementation of local development plans which meet the guidelines of the strategic plan. Edinburgh Supporting the implementation of large infrastructures projects. Cardiff Supporting the implementation of infrastructures, reinforcement of public transportation and housing development mainly through projects. Funding mechanisms
- 33. Nordic urban regions In contrast, in the UK urban regions Municipalities have stronger financial and decision-making capacity when compared to UK. Municipalities try to be proactive in setting up partnerships with other municipalities and private interest groups to find ways of funding specific planned interventions. Scarce financial resources mean that strategic spatial planning processes are highly dominated by private actors and thus plans tend to be implemented through area-specific strategic projects. Supporting enterprise and business growth also infrastructure provision e.g. primary schools CC0 licensing CC0 licensing Funding mechanisms
- 34. Private interest groups such as housing builders play a chief role throughout the strategic planning process CC0 licensing Nordic urban regions In contrast, in the UK urban regions Environmental NGOs; grassroots movements - put more pressure on the regional authorities charged with strategic planning tasks to Reducing commuting times/better transp.; Maintaining public spaces/recreational areas; Securing sustainable ways of development. Power configurations
- 35. Negotiation-based strategic spatial planning processes Increasingly persuasive power of businesses interests in strategic planning practice (findings in line with Daly, 2016; Olesen, 2014; Van Assche, Duineveld and Beunen, 2014; Olesen and Richardson, 2011) Concur with recent critical reflections on the neoliberalization of strategic spatial planning.
- 36. Lesson on negotiation Negotiation is the one process able to set up priorities for plan making and plan implementation by balancing public and private interests. How to better negotiate during SSP processes Preparing a set of realistic expectations and a range of possible outcomes; Behaving with honesty and transparency; Communicating openly all issues at stake; Being willing to compromise and adapt to circumstances. The way negotiations in Helsinki- Uusimaa unfold could be given as an example.
- 37. Interest groups are those pursuing the interests they represent by avoiding conflict with the public good and following the principles established in the strategic plan. Lesson on the involvement of interest groups The way interest groups take part in the process of plan implementation in Oslo-Akershus as an example.
- 38. Funding mechanisms when clearly established, meaning they have clear goals and planning themes they will contribute to the effectiveness of strategic spatial planning processes. Lesson on funding mechanisms Nordic urban regions as example
- 39. Power configurations must be critically considered in plan implementation. It is necessary to secure transparency and legitimacy of the negotiation process. This can be done by documenting every discussion during negotiations. Lesson on power configurations The cases of Oslo-Akershus and Helsinki-Uusimaa could also be given as positive examples of how to balancing public vs private interests.
- 40. Plan-making output Oliveira, E. and Hersperger, A. (2018) Disentangling the Governance Configurations of Strategic Spatial Plan-Making in European Urban Regions. Planning Practice & Research. Oliveira, E. and Hersperger, A. (2018) Governance Arrangements, Funding Mechanisms and Power Configurations in Current Practices of Strategic Spatial Plan Implementation. Land Use Policy, 76, 623-633. Plan-implementation outputs Hersperger, A.M.; Oliveira, E.; Pagliarin, S.; Palka, G.; Verburg, P.; Bolliger, J.; Grădinaru, S., (2018) Urban land-use change: the role of strategic spatial planning. Global Environnemental Change, 51: 32-42. SSP and land use change Hersperger, A.M.; Oliveira, E.; Pagliarin, S.; Palka, G.; Grădinaru, S., (forthcoming) Understanding Strategic Spatial Planning to Effectively Guide Development of Urban Regions. Cities. Oliveira, E. and Hersperger, A.M. (2017) Overcoming Resource Scarcity by Implementing Strategic Regional Plans through Urban-Regional Development Projects: A European Perspective, Conference Proceedings from ASEOP Annual Congress 2017, 11–14 July, Lisbon, Portugal.
- 41. From CONCUR/Europe to MIDLAND/Mozambique Serious policy gaps and inconsistencies between policies; the absence of an overarching National Land Use Policy is the most salient example; The territorial planning policy and law provide ingredients for how to handle planning but different subject matter policies and laws (energy, forest and tourism policy) are shaping the overall land use policy; Lack of formal and non-formal institutional capacity to implement the territorial planning law and policies in its present context Planning regulations fall short of providing more precise and practical guidance on how to use these tools to achieve a series of objectives; Low percentage of plans that are effectively implemented after being conceived; Activities being implemented which are often conceived outside the plan, and which may ignore or contradict the plan’s proposals, norms, prescriptions and proscriptions; Drop the quantitative targets and to avoid, at all costs, the unconditional outsourcing of the plans to consultants; (Norfolk De Wit , 2009; Norfolk & Liversage, 2014; Monteiro, 2016)
- 42. Thank you