The performance of spatial planning within a complex area development

1. 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 P5 presentation 12 – 4 – 2011 Dept. Of Urbanism

2. Presentation structure The legitimacy and performance of the Dutch spatial planning practice Case introduction Theoretical focus Empirical testing • Conclusions and recommendations on planning practice 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 02

3. Case introduction Spoorzone Delft (Adapted from De Jong Luchtfotografie, 2010) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 03

4. Case introduction A dualistic project (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 04

5. Spoorzone Delft Project area (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 05

6. Spoorzone Delft Towards implementation 2008: implementation phase “everything has been agreed upon, From now its only a matter of fine-tuning while executing” (Bijleveld, 2010) (BestemmingsplanSpoorzone Delft, 2006) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 06

7. Spoorzone Delft Planning challenge • However, today: • Dissatisfied stakeholders • Disagreement on expected results • Unfeasible plan • Delays and a new planning challenge 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 07

8. Spoorzone Delft Crisis the cause of conflicts ? A lack of adaptive capacity to respond to meaningful developments 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 08

9. Theoretical focus Goal of planning 2. Context of planning Suitable planning in the context of area development Role of planning 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 09

10. Goal of planning Towards legitimate public action Social world: dynamic biased viewpoints ‘material outcome’ Planned effects and externalities ‘Mobilized bias’ Through practices of power exertion “Knowledge & action” (Friedmann, 1987) (Author’s illustration) • “Planning is a techno-ethical challenge…” • (Forester, 1989) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 10

11. Context of planning Dutch traditional planning culture (Author’s illustration) • Technocratic planning tradition • A positivistic planning approach Planning • “Comprehensive integrated approach” • (Hajer and Zonneveld, 2000) Steering • “The Dutch planning profession pays very limited attention to the • societal and political context in which planning is to take place” • (Kreukels, 1997) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 11

12. Context of planning Top down planning exercise (Author’s illustration) State controlled planning Legitimized by the representative Capacity of a sovereign state public • Inefficient operability • Undesirable developments • Unrealistic ambitions private people 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 12

13. Context of planning Ontological dynamics (semi) Public State sovereignty Collective Individual Cross-sectoral interdependency Private market (Adapted from Jonge, 2007) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 13

14. Role of planning Integrating planning to deciding (Author’s illustration) Interactive collaborative steering: Governance “The performance of planning” (Faludi, 2000) Planning • Planning practice could focus attention, influence bias and mobilize directive action • Faludi, 1979; Forester, 1989; Fischer, 1993; Healey, 1997; Oxley, 2004 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 14

15. Planning paradigm Area development (Author’s illustration) National Pose conditions Provincial Municipal Co-produce plans Civil society Private sector • “The government should formulate objectives; not solutions” • Wolting, 2006 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 15

16. Empirical testing Spoorzone Delft Nature of the project 3. • Planning mechanism • Initiation • Mobilization • Public collaboration • Cross-sectoral collaboration Inconsistencies in planning operability 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 16

17. Nature of the project The railway viaduct in Delft Railway viaduct was constructed in 1965 Local nuisance Urban spatial fragmentation Obstructive curve in railline the viaduct was conceived as necessary evil (Author’s illustration; photo source: Engel, 2007) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 17

18. Initiation Rail-21 1987: A proposed railline duplication by the NS (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 18

19. Mobilization A wider perspective 1993: Urban development perspective “The greater the ambition, the higher the amount of required actors will have to be” klijn, 2004 list of requirements: 1600 homes 50.000 m2 office space (Adapted from www.palmbout.nl) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 19

20. Public Collaboration A dualistic comprehensive focus Ministry of V&W ‘Bereikbaarheidsoffensief Randstad’ Delft Delft Delft Delft Delft Ministry of VROM ‘Nota Ruimte 5’ Region Haaglanden Ballast Nedam Province Z-H (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 20

21. Public collaboration Masterplan Functions (Author’s illustration, adapted from Delft, 2003) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 21

22. Public collaboration Masterplan Functions (Author’s illustration, adapted from Delft, 2003) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 22

23. Public collaboration Masterplan Building heights (Author’s illustration, adapted from Delft, 2003) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 23

24. Public collaboration Masterplan Non-negotiable alignment (Author’s illustration, adapted from Delft, 2003) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 24

25. Public collaboration Masterplan Implementation plan (Author’s illustration, adapted from Delft, 2003) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 25

26. Public collaboration Masterplan ‘Spoorzone Delft’ was to be executed conform the regulation as set within the masterplan (Delft, 1999) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 26

27. Cross-sectoral collaboration Institutional arrangement Urban development Railway tunnel Municipality Ministry V&W Conditioning Conditioning Approving Integrating OBS ProRail - ? - Negotiating Contracting Civil Society OCSD Does this governance landscape allow for a legitimate and effective course of decision-making ? Crommelijn NS Poort Ballast nedam (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 27

28. Cross-sectoral collaboration dualistic friction Urban development Railway tunnel Municipality Ministry V&W Conditioning Conditioning Approving Integrating OBS ProRail - ? - Negotiating Contracting Civil Society OCSD 80 million value capturing Crommelijn NS Poort Ballast nedam (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 28

29. Cross-sectoral collaboration Intrinsic steering (Author’s illustration) Masterplan OBS Municipality Civil society OCSD Land-use plan 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 29

30. Cross-sectoral collaboration Centralized steering (Author’s illustration) Masterplan OBS Municipality Civil society OCSD Land-use plan 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 30

31. Cross-sectoral collaboration Land-use plan 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 31

32. Cross-sectoral collaboration Beeldkwaliteitsplan (Delft, 2009) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 32

33. Cross-sectoral collaboration Conflicts Urban development Railway tunnel Municipality Ministry V&W • too narrow solution spaces for further optimization and anticipation; Conditioning Conditioning Approving “The planning operability has a lack of adaptive capacity to respond to meaningful developments which marks contemporary urban life” (Slagmolen, 2010) Integrating OBS ProRail • Symbolical reassuring participatory activities; - ? - Negotiating Contracting Civil Society OCSD Result: An unfeasible plan Crommelijn Conflict NS Poort Ballast nedam 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 33

34. Cross-sectoral collaboration Regaining steering competence Municipality Ministry V&W OBS ProRail Civil Society OCSD Crommelijn NS Poort Ballast nedam (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 34

35. Cross-sectoral collaboration A positivistic planning discourse ‘a predictable future’ A B (Adapted from Govaart, 2011) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 35

36. Cross-sectoral collaboration A post-positivistic planning discourse ‘the acknowledgement of uncertainty’ A responsive alternative A B (Adapted from Govaart, 2011) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 36

37. Cross-sectoral collaboration Towards a wider institutional embedding Municipality OBS Civil Society OCSD NS Poort Ballast nedam (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 37

38. Conclusions and recommendations 4. Conclusions • Recommendations • Planning context • Planning tools • Planner’s conduct 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 38

39. Conclusion Towards an integrated outcome (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 39

40. Conclusion Discursive conflict on decision-making Area development ideal Intrinsic steering Reality of practice Control and hierarchy National National Provincial Provincial Municipal Municipal Civil society Private sector Civil society Private sector (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 42

41. Conclusion The performance of planning 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 40

42. Conclusion Discursive conflict on planning (Author’s illustration) The public and private sector operate under very distinctive principles. A mixed type will not be stable (Simon, 1990) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 41

43. Recommendation 1 Shaping the planning context Integrality has its limits Municipality Ministry V&W Urban development Railway tunnel OBS ProRail (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 43

44. Recommendation 1 Shaping the planning context Municipal Legitimacy Efficiency Civil Society Private Consumer orientation time (Author’s illustration) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 44

45. Recommendation 2 Planning tools for urban management 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. 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 45

46. Recommendation 3 The argumentative turn in planning 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) 1. Introduction 2. Theory 3. Testing 4. Conclusions and recommendations 46

47. Thank you (Author’s illustration)