The performance of spatial planning within a complex area development

Learning to anticipate the spatial strategy formation in the face of conflicting interests at ‘SPOORZONE DELFT’

Alan Kazzaz Dept. Of Urbanism12 – 4 – 2011P5 presentation

Presentation structure

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 02

The legitimacy and performance of the Dutch spatial planning practice

Empirical testing

Theoretical focus

Conclusions and recommendations on planning practice

Case introduction

Case introductionSpoorzone Delft

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 03

(Adapted from De Jong Luchtfotografie, 2010)

Case introductionA dualistic project

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 04

(Author’s illustration)

Spoorzone DelftProject area

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 05

(Author’s illustration)

Spoorzone DelftTowards implementation

2008: implementation phase

“everything has been agreed upon,From now its only a matter of fine-tuning while executing”

(Bijleveld, 2010)

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 06

(Bestemmingsplan Spoorzone Delft, 2006)

However, today:

Dissatisfied stakeholders

Disagreement on expected results

Unfeasible plan

Delays and a new planning challenge

Spoorzone DelftPlanning challenge

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 07

Spoorzone DelftCrisis the cause of conflicts ?

A lack of adaptive capacity to respond to meaningful developments

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 08

Theoretical focus

2.Goal of planning

Role of planning

Context of planning

Suitable planning in the context of area development

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 09

Goal of planningTowards legitimate public action

“Knowledge & action”(Friedmann, 1987)

“Planning is a techno-ethical challenge…” (Forester, 1989)

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 10

(Author’s illustration)

‘material outcome’Planned effects and externalities

Social world:dynamic biased

viewpoints

‘Mobilized bias’Through practicesof power exertion

Context of planningDutch traditional planning culture

“The Dutch planning profession pays very limited attention to the societal and political context in which planning is to take place”

(Kreukels, 1997)

“Comprehensive integrated approach”(Hajer and Zonneveld, 2000)

Technocratic planning traditionA positivistic planning approach

Planning

Steering

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 11

(Author’s illustration)

Context of planningTop down planning exercise

public

peopleprivate

State controlled planningLegitimized by the representative

Capacity of a sovereign state

Inefficient operability

Undesirable developments

Unrealistic ambitions

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 12

(Author’s illustration)

Context of planningOntological dynamics

Statesovereignty

Cross-sectoralinterdependency

(semi) Public

Private market

Collective Individual

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 13

(Adapted from Jonge, 2007)

Role of planning Integrating planning to deciding

Interactive collaborative steering: Governance

Planning

Planning practice could focus attention, influence bias and mobilize directive action

Faludi, 1979; Forester, 1989; Fischer, 1993; Healey, 1997; Oxley, 2004

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 14

(Author’s illustration)

“The performance of planning”(Faludi, 2000)

Planning paradigmArea development

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 15

National

Provincial

Municipal

Private sector Civil society

Pose conditions

Co-produceplans

“The government should formulate objectives; not solutions”Wolting, 2006

(Author’s illustration)

3.Nature of the project

Inconsistencies in planning operability

Planning mechanism Initiation Mobilization Public collaboration Cross-sectoral collaboration

Empirical testingSpoorzone Delft

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 16

Nature of the projectThe railway viaduct in Delft

Local nuisance

Urban spatial fragmentation

Obstructive curve in railline

the viaduct was conceived as necessary evil

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 17

Railway viaduct was constructed in 1965

(Author’s illustration; photo source: Engel, 2007)

InitiationRail-21

1987: A proposed railline duplication by the NS

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 18

(Author’s illustration)

MobilizationA wider perspective

1993: Urban development perspective

list of requirements:1600 homes50.000 m2 office space

“The greater the ambition, the higher the amount of required actors will have to be”klijn, 2004

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 19

(Adapted from www.palmbout.nl)

Public CollaborationA dualistic comprehensive focus

Ministry of V&W

‘BereikbaarheidsoffensiefRandstad’

Ministry of VROM

‘Nota Ruimte 5’

DelftDelft

DelftBallast Nedam

DelftRegion Haaglanden

DelftProvince Z-H

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 20

(Author’s illustration)

Public collaborationMasterplan

Functions

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 21

(Author’s illustration, adapted from Delft, 2003)

Public collaborationMasterplan

Functions

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 22

(Author’s illustration, adapted from Delft, 2003)

Public collaborationMasterplan

Building heights

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 23

(Author’s illustration, adapted from Delft, 2003)

Public collaborationMasterplan

Non-negotiable alignment

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 24

(Author’s illustration, adapted from Delft, 2003)

Public collaborationMasterplan

Implementation plan

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 25

(Author’s illustration, adapted from Delft, 2003)

Public collaborationMasterplan

Public actor Contribution (x million)

Ministry of V&W € 272

Ministry of VROM € 75

Municipality of Delft € 45

Province South Holland € 30

Region ‘Haaglanden’ € 11

Betterments from area developments € 80

Total € 513

‘Spoorzone Delft’ was to be

executed conform the

regulation as set within

the masterplan

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 26

(Delft, 1999)

Cross-sectoral collaborationInstitutional arrangement

Urban development Railway tunnel

Ministry V&W

ProRail

Municipality

OBS

Ballast nedamNS Poort

OCSDCivil Society

Crommelijn

Conditioning Conditioning

Contracting

Negotiating

Approving

Integrating

- ? -

Does this governance landscape allow for a legitimate and effective course of decision-making ?

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 27

(Author’s illustration)

Cross-sectoral collaboration dualistic friction

Urban development Railway tunnel

Ministry V&W

ProRail

Municipality

OBS

Ballast nedamNS Poort

OCSDCivil Society

Crommelijn

Conditioning Conditioning

Contracting

Negotiating

Approving

Integrating

- ? -

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 28

(Author’s illustration)

80 million value capturing

Cross-sectoral collaborationIntrinsic steering

OBS

OCSD

Municipality

Masterplan

Land-use plan

Civil society

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 29

(Author’s illustration)

Cross-sectoral collaborationCentralized steering

OBS

OCSD

Municipality

Masterplan

Land-use plan

Civil society

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 30

(Author’s illustration)

Cross-sectoral collaborationLand-use plan

Variable ParameterHomes Market housing 214.000 M 2 g.f.a. 1315 homes

Social housing 15.000 M 2 g.f.a. 210 homes

Offices City council 29.000 m 2 g.f.a.

Private 25.000 M 2 g.f.a.Parking (semi)

Underground2834 places

Surface 600

Building Volume

Height 3 to 5 floors/block (accents up to 9 floors)

Gross Floor Area 283.000 m2

Facades Front façade preconditionedBack façade variable

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 31

Cross-sectoral collaborationBeeldkwaliteitsplan

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 32

(Delft, 2009)

Cross-sectoral collaborationConflicts

Urban development Railway tunnel

Ministry V&W

ProRail

Municipality

OBS

Ballast nedamNS Poort

OCSDCivil Society

Crommelijn

Conditioning Conditioning

Contracting

Negotiating

Approving

Integrating

- ? -

too narrow solution spaces for further optimization and anticipation;

Conflict

Symbolical reassuring participatory activities;

Result:An unfeasible plan

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 33

“The planning operability has a lack of adaptive capacity to respond to meaningful developments which marks contemporary urban life”

(Slagmolen, 2010)

Cross-sectoral collaborationRegaining steering competence

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 34

Ministry V&W

ProRail

Municipality

OBS

Ballast nedamNS Poort

OCSDCivil Society

Crommelijn

(Author’s illustration)

Cross-sectoral collaborationA positivistic planning discourse

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 35

A B

‘a predictable future’

(Adapted from Govaart, 2011)

Cross-sectoral collaborationA post-positivistic planning discourse

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 36

A B

‘the acknowledgement of uncertainty’A responsive alternative

(Adapted from Govaart, 2011)

Cross-sectoral collaborationTowards a wider institutional embedding

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 37

Municipality

OBS

Ballast nedamNS Poort

OCSDCivil Society

(Author’s illustration)

4.Conclusions and recommendations

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 38

Conclusions

Recommendations

Planning context Planning tools Planner’s conduct

ConclusionTowards an integrated outcome

(Author’s illustration)

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 39

ConclusionDiscursive conflict on decision-making

National

Provincial

Municipal

Private sector Civil society

National

Provincial

Civil societyPrivate sector

Municipal

Area development idealIntrinsic steering

Reality of practiceControl and hierarchy

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 42

(Author’s illustration)

ConclusionThe performance of planning

Planning phase Power division Plan PerformanceMobilization Centralized municipality NS: rail-21

Palmboom’ s visionBusquet’s vision

Well

Public collaboration Inter-level public sector, Municipality and V&W most centralized

Busquet’s masterplan Moderate

Cross-sectoral collaboration Cross-sectoral dispersed, land-use plan Weak

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 40

The public and private sector operate under very distinctive principles. A mixed type will not be stable

(Simon, 1990)

ConclusionDiscursive conflict on planning

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 41

(Author’s illustration)

Recommendation 1Shaping the planning context

Urban development Railway tunnel

Ministry V&W

ProRail

Municipality

OBS

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 43

Integrality has its limits

(Author’s illustration)

Recommendation 1Shaping the planning context

Municipal

PrivateCivil Society

Consumer orientation

Legitimacy Efficiency

time

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 44

(Author’s illustration)

Recommendation 2Planning tools for urban management

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 45

Planning tools:

‘Seduction-by design’ planning approaches fail to perform in complex decision-making arrangements;

There is a need for learning-oriented planning tools which are to make variables and parameters within urban space explicit in order to facilitate relational clarity on the current situation and to provide a referential frame for negotiation if the current situation is desired to be changed.

Recommendation 3The argumentative turn in planning

1. Introduction 3. Testing2. Theory 4. Conclusions and recommendations 46

Planner’s conduct:

The argumentative turn in planning (Forester, 1989, Fischer, 1993)

Planning in the context of complexity requires contextual-sensitive communicative skills to confront the diversity of (sectoral-bound) value patterns towards a shared commitment and a collective focus for action.

“Planning with all your senses” (Stein, 2005)

Thank you

(Author’s illustration)