Europe exposed: mapping the impacts of EU policies on spatial planning in the Netherlands

National laws, local traditions and practices largely define which spatial planning policies are pursued and how they are carried out. Still, like many other policy areas, an unmistakeable process of Europeanization is underway in planning. On the one hand, informal bottom-up Europeanization is occurring through the increasing interaction between scholars and practitioners and by the growing body of spatial information and analyses available at the European Union (EU) level. On the other hand, formal top-down Europeanization occurs when EU policies – competition, economic development, agriculture, nature protection, air quality, etc. – impact domestic spatial planning systems, policy and practice. In this study, we investigate this second kind of Europeanization, using the case of the Netherlands as an example. Specifically, we construct a map revealing the location of EU sectoral policy using six distinct impact types. We observed that many policies overlap and various inter-sectoral tensions (horizontal coordination) are present. The empirical analysis moreover revealed, in line with recent theoretical literature on multilevel governance, that domestic policies and practices, particularly at the national level, determine the way European policies affect planning. This finding has implications for all member states, but particularly those whose national planning is undergoing fundamental reform.     

THE EUROPEANIZATION OF REGIONAL DEVELOPMENT: LOCAL STRATEGIES AND EUROPEAN SPATIAL VISIONS IN NORTHERN FINLAND

By exploring the Europeanization of current practices of regional spatial planning, this article sets out to demonstrate the evolution of the European integration project. Specifically, by creating spaces of engagement to which the local and regional actors are “forced” to adapt, the emergence of European spatial planning has made planning practices at the regional level more complex and complicated. As such, the present study contributes to the current understandings of Europeanization by exploring the European integration process through the geographical conceptualizations of space and scale. These conceptualizations are used to illustrate the multidimensionality, complexity and subtlety of the geographies of Europeanization. The empirical investigations show that regional and local spatial policies are strongly engaged – both explicitly through the “technicalities” and implicitly through the “mentalities”– to the spaces of Europeanization. The engagement affects the effectiveness of sub‐regional spatial planning by promoting mismatches between the strategic frameworks and the material practices of the policy. Overall, the article illustrates that the geographies of Europeanization are continuous processes, which take place – often unrecognizably – in manifold discursive and material practices in various geographical contexts.     

Spatial Planning in the Baltic States: Impacts of European Policies

Baltic societies have been transformed rapidly since the beginning of the 1990s, whereas planning institutions and organizational cultures in the Baltic States have only changed rather incrementally despite various national and European pressures for reform. As a consequence, the extent of Europeanization of spatial planning has been limited in the Baltic region, and the effects of cohesion and structural policy measures have been quite modest. This paper focuses on these changes in spatial planning in the Baltic States and is divided into three main parts. The paper begins by describing the historical and cultural context of spatial development in the Baltic States. Second, it discusses processes of Europeanization of spatial planning in the specific context of the Baltic States, and third, it considers whether these processes may be leading to policy convergence in the region.     

New Spatial Patterns and Territorial–Administrative Structures in the European Union: Reflections on Eastern Europe

Abstract

Spatial patterns and territorial–administrative structures in Eastern Europe are a mix of historical?territorial path-dependencies influenced by the current path-creating policies. Since the early 2000s, the European Union (EU) policies, practices and challenges have concerned also Eastern Europe. This article discusses spatial patterns and territorial–administrative structures in theory, illustrates their practices and presents scenarios for their future in the EU contexts. The Europeanization of spatial policy and planning and the territorial–administrative structure harmonization are the key current trends. The transposition and implementation of the EU spatial policy mechanisms and practices in Eastern Europe are influenced by contextual path-dependent legacies and the uncertain long-term future of the EU. Conditionality as governmentality and relational regions open new perspectives to territorial dynamics in the EU and Eastern Europe.     

An Anatomy of Spatial Planning: Coming to Terms with the Spatial Element in UK Planning

“Spatial planning” is a phrase that now resonates throughout many planning systems across the globe. It is being used as a label to describe pan-national, regional, strategic and even aspects of local planning processes. Within the UK, spatial planning is being utilized alongside, or even in place of, more traditional phraseology associated with planning, such as “town and country planning”. It is being used by a range of institutions of the State, professional groups and academic commentators to describe the processes of planning reform, modernization, policy integration, and strategic governance that politically are now required to make planning fit for purpose in the 21st century. The precise meaning and definition of spatial planning remains difficult to pin down, as does its origins within the UK. This paper attempts to dissect the various components of the spatial planning phrase and set out the meaning and origins of the term in the UK context. It covers re-territorialization, Europeanization and integration origins of spatial planning thinking and provides a conceptual, rather than practical, debate on the anatomy of spatial planning, situated within ongoing processes of institutional transformation, through the lens of governance and distinctiveness in state policy development.     

Planning Culture—A Concept to Explain the Evolution of Planning Policies and Processes in Europe?

Abstract

This article examines the complex relations between spatial planning and its cultural context (including the specific socio-economic patterns and related cultural norms, values, traditions and attitudes). To be able to analyze the extent to which spatial planning adapts to external pressures such as Europeanization, a “culturized planning model” with the three dimensions “planning artefacts”, “planning environment” and “societal environment” is used. It can be observed that the “harmonization” of spatial planning practices can result from external pressures such as EU regulations as well as (horizontal) collective learning processes. However, “harmonization” does not necessarily result in convergence. Adaptational pressures such as Europeanization often result in the customization of existing structures, frames and policies (“planning artefacts” and “planning environment”) but do not fundamentally change the underlying core cultural traits (“societal environment”). These cultural traits are quite resistant to change and help maintain a diversity of planning cultures and policies in Europe.     

Regional and transnational spatial planning1: problems today,perspectives for the future

This introductory contribution presents some results of the EURBANET project, dealing with European urban networks in the framework of the INTERREG IIC programme of the North‐western Metropolitan Area (NWMA). This project was conducted between 2000 and 2001 by researchers of Delft University of Technology, the University of Glasgow, the University of Dortmund, the Catholic University of Leuven and the University of Nijmegen. The central objective of the EURBANET project was to explore the role of polynucleated urban regions in the reinforcement of the competitive strength and quality of life in the NWMA, as a contribution to transnational spatial planning in the NWMA. Four polynuclear urban regions are involved: Randstad Holland, the Flemish Diamond, the RheinRuhr Area and Central Scotland (Glasgow‐Edinburgh region). One of the conclusions is that it is necessary to move between scales: from the European Union to national spatial policies (and vice versa), between national policies and regional spatial policies and between regional and urban spatial policies. At each scale, specific demands for spatial planning policies in polynuclear urban regions are becoming increasingly relevant. This is a challenge for spatial policies and policy domains like infrastructure policy, transport policy, housing policy, economic and environmental policy. We present an analysis of how polycentricity has become central to recent discussions on European and north‐west European spatial and economic planning. We launch a spatial network approach to integrate spatial policies. These wide perspectives contrast heavily with the current less satisfactory practice of spatial planning on the level of urban networks and transnational governance.     

Green infrastructure under pressure. A global narrative between regional vision and local implementation

This paper focuses on green infrastructure planning in three different regions, namely, the Ruhr in Germany, the Capital Region of Denmark and Greater Manchester in the UK. We investigate planning cultural research heuristics and propose a conceptual refinement of existing planning cultural research and approaches. We use framing and storytelling to show how societal beliefs and cultural assumptions are consolidated as spatial frameworks that guide planning practice. Theories of spatial governance describe how spatial frames are mediated, accepted and changed through institutionalized structures. We present arguments from urban design and implementation research to illustrate how planning ideas materialize. The empirical material presented in this paper shows how cultures of green infrastructure planning operate in diverse spatial contexts and that a dynamic perspective is useful for understanding how planning cultures develop and change over time.     

The Role of an Area-oriented Approach in Achieving Environmental Policy Integration in the Netherlands,and its Applicability in Bulgaria

An integrated approach to environmental policy and urban spatial planning has not yet been adopted by many local administrations in Europe. However, such integration is likely to provide a more streamlined planning process that incorporates environmental measures in the physical development of urban areas. In this paper, we argue that among many local governments there is already a growing wish to apply environmental policy integration (EPI) principles in spatial planning in an effort to achieve better quality of life in the cities and to preserve natural resources. Within Europe, most attempts to develop EPI approaches can be found in western countries, while efforts to find integrated approaches to the urban environment and spatial planning in Eastern Europe are in their infancy. The main reason for this is that most of the post-communist countries are still addressing the challenge of reconstructing their political, social, and economic systems. In this research, we analyse and compare policy practices for EPI in urban planning in the Netherlands and Bulgaria. We first discuss the Dutch area-oriented policy approach, which has gained popularity during the last decade as a means of integrating environmental qualities in urban land use plans. We then go on to analyse the effectiveness of specific area-oriented methods developed and applied in Rotterdam, and define their applicability in the planning practice of the local authorities of the city of Burgas in Bulgaria. The main conclusion of the study is that the degree of effectiveness of an area-oriented policy is dependent on the impact of specific success factors. Despite the differences between Rotterdam and Burgas in terms of the presence of these success factors, we assert that the area-oriented policy approach applied in Rotterdam can be transferable, and can be adapted to the specific local circumstances in Burgas and used as an instrument for integrating EPI into urban land use planning.     

Measuring Regional Cohesion Effects of Large-scale Transport Infrastructure Investments: An Accessibility Approach

Transport infrastructure is considered one of the main policy instruments to achieve the cohesion goal, although the inclusion of cohesion effects in assessment methodologies is scarce and uneven. Although most cohesion studies are constrained to the analysis of regional disparities in economic indicators, this approach can be broadened to include other regional performance indicators. One of these indicators could be accessibility measures, from the point of view that accessibility, representing a competitive advantage of locations, constitutes a “desirable good” closely related to the welfare of each region. This paper suggests using changes in the spatial distribution of accessibility as a proxy to assess regional cohesion effects of transport infrastructure investments. However, as the conclusions taken depend heavily on the formulation of the accessibility measure, we recommend computing a set of accessibility indicators and analysing their results in a complementary way. The proposed methodology is tested by assessing regional cohesion effects of the large-scale road and rail transport infrastructure investments carried out in Spain in the period 1992–2004. The results obtained show that cohesion has improved for the road mode, while regional disparities have increased for the rail mode. This paper identifies the main factors driving this final cohesion effect and explores the strengths and weaknesses of the different accessibility indicators that were considered. The approach suggested in this paper has the potential to be applied in transport planning processes, and may eventually complement existing strategic assessment methodologies.     

Towards a Framework for Cooperation: Spatial Public Diplomacy on the Island of Ireland

Abstract

European spatial planning arguments advocate a blend of strategic thinking, coordination and related initiatives to promote and secure territorial cohesion. These ambitions embrace a set of normative agendas around economic, social and environmental convergence, competitiveness, policy coordination and efficient infrastructure provision across space. In practice, territorial management then involves devising interventions across inter-connecting scales of governance which comprise complex agency relations, differentiated places and defined communities. In transnational contexts, attempts to foster appropriate spatial governance arrangements and relations across sovereign borders necessitate re-crafting planning and development cultures and service delivery practices to advance territorial cohesion. Transnational working necessarily involves cooperation across an extended range of institutions, interests, influences and potential actors. This paper examines attempts to secure bi-lateral commitment to a joint planning framework for the two distinct territories on the island of Ireland. Specifically, it traces the formal and informal activities involved in the development of the 2013 Framework for Cooperation between the Republic of Ireland and Northern Ireland. Informed by ideas of cross-border regionalism, it discusses the necessary spatial public diplomacy involved in the social reconstruction of strategic spatial planning to improve policy coordination and cross-border working.     

European developments in strategic spatial planning

Strategic spatial planning which takes an integrated approach to the development of a territory seemed to go out of fashion, but now there are signs that it is being re‐established. This paper explores these developments using case studies from 10 European countries. The analysis uses an ‘institutionalist’ approach, which examines how the ‘agency’ of spatial planning practices responds to the ‘structure’ of contextual forces, at the same time influencing that structure. The ‘driving forces’ which are influencing strategic spatial planning are investigated, as are two aspects of the changes in spatial planning: institutional relations and policy agendas. The conclusions are that—at least in the case studies—there is a movement in the institutional relations towards horizontal articulation, territorial logic, and negotiative forms. Policy agendas too are changing, becoming more selective and using new conceptions of space and place. Those institutional developments, however, are not necessarily being translated into territorially‐integrated policy (as distinct from functional/sectoral policy). That translation appears to require simultaneous re‐framing of relational resources (trust, social capital), knowledge resources (intellectual capital), linked to strong mobilization efforts (political capital). The cases considered varied significantly in how far that had been done. Where it had, strategic spatial plan‐making practices were playing a key role in developing institutional territorial integration and re‐invigorating territorial identities.     

Social sustainability tool for assessing land use planning processes

The aim of this paper was to develop a social sustainability tool to clarify what social sustainability means in land use planning processes. The tool was developed through a robust research process covering a large amount of scientific literature and built environment sustainability assessment tools. To assess how the developed tool works in practice, we used it as a coding system for the assessment of social sustainability in a case study from Finland. The case study includes the master planning process of a medium-sized city and the legal framework guiding it. The theoretical contribution of the paper lies in creating a holistic tool for the assessment of social sustainability in planning processes. This study also provides a strong practical contribution, as it goes beyond theoretical definitions to the pragmatic level by providing exemplary measures to be used in designing and implementing processes. Therefore, this paper is a valuable source for those stakeholders (for example planners, developers and policymakers), who struggle with the issue of the successful implementation of social sustainability practices, and it will help them to benchmark their processes against the themes found in the tool.     

Europeanization as Discontinuous Adjustment: A Düsseldorf Court's Impact on Land Development Practice

Within the Single European Market, rules govern the procurement of public works contracts and concessions. While recent judgments by the European Court of Justice indicate that these rules could have a considerable impact on future land development planning, there has not yet been widespread Europeanization of local land development practice. In Germany, however, the Oberlandesgericht in Düsseldorf (OLGD) has ruled that European public procurement rules must be followed in those cases in which the land sold forms part of an urban development plan. This has had a significant impact on German practice, with the number of official publications of tenders for land sales by German local authorities increasing from 3 in 2006 to 100 in 2008. This paper analyses the arguments that have been put forward by the OLGD and their impact on practice. We also reflect on how Europeanization as the application of European legislation in urban planning contexts not only constitutes a form of supranational intervention in local practices, but also depends on local agencies drawing on European-level powers in order to have an effect.     

Strengths and weaknesses of accessibility instruments in planning practice: technological rules based on experiential workshops

Accessibility instruments can play a valuable role in urban planning practice by providing a practical framework for exploring and testing relationships between land use and transport infrastructure. Despite many available accessibility instruments, they are still not widely used in planning practice. This paper explores the background of this problem by examining the findings of a EU-funded study on the usability and usefulness of existing accessibility instruments. The study applied 16 instruments in local planning contexts according to a standardized process protocol. The outcomes of these so-called experiential workshops were analysed through a standardized measurement protocol, which included participant observation along with pre- and post-workshop practitioner questionnaires. This broad investigation presents a rich analytical tool for understanding how different types of accessibility measures, spatial resolutions of output and levels of comprehensiveness affect usability and usefulness. Based on this we propose 10 technological rules that (a) can be used directly in practice to improve usability of accessibility instruments and (b) can provide hypotheses to be examined in further academic studies. Our results suggest that instead of striving for the ultimate accessibility measure, it would be more effective to identify which measures could successfully serve different user needs in accessibility planning.     

Talk to the hand: strategic spatial planning as persuasive storytelling of the Loop City*

The paper analyses how the spatial vision of the Loop City for the Øresund Region has played an important persuasive role in legitimizing and mobilizing local and national political support for a light rail link along the outer ring road in the Greater Copenhagen Area. The paper discusses the persuasive power of spatial concepts and supportive storylines in bringing transport infrastructure projects onto the national policy agenda. In conclusion, the paper calls for critical attention to the rationalities underpinning practices of persuasive storytelling in contemporary strategic spatial planning.     

A Preliminary Critique of the Best and Good Practices Approach in European Spatial Planning and Policy-making

“Good practices” are found everywhere, particularly in European policies. They are usually taken for granted as familiar events in daily life. For actors involved in policy-making, it seems quite natural to produce, disseminate and use repertoires of good practices. This article discusses this phenomenon, arguing that “good practices” are one of the main tools in Europeanization processes, particularly for the European idea of “good governance”. Analyses of the Interact, Interreg and Urbact programmes of production of good practice repertoires lead to an examination of a number of characteristics of “good practice”: as a kind of regulation through sense-making processes, as a standardization tool in order to compare and measure performances in different situations, as an object of self-reflection and constitution of communities of practices, as a strategic representation and as an advocacy device.     

GUERRILLA WARFARE IN THE PLANNING SYSTEM: REVOLUTIONARY PROGRESS TOWARDS SUSTAINABILITY?

This article extends Qviström's (2007; Geografiska Annaler: Series B, Human Geography 89 (3): 269–282) ideas concerning “landscapes out of order” within a re‐discovering and re‐imagining of spatial planning theory and practice. Taking the viewpoint that planners and decision‐makers order and manage space in prescribed and constrained ways, the article argues that this can hinder innovative practices which have the potential to deliver significant societal and environmental benefits. Using case studies from permaculture and guerrilla gardening, we illustrate how planning practice can be rooted in confrontation and legal challenge rather than with more positive and inclusive approaches, as is envisaged within spatial planning theory. Clearly, the ways in which such initiatives intersect with the planning system raise important questions about joined‐up policy across scales and sectors, and the ability of planning to be a proactive vehicle of environmental and social change. Our findings confirm that spatial planning theory is largely “disintegrated” (Scott et al. 2013; Progress in Planning 83: 1–52) from much contemporary planning and environmental practice and wider discourses of sustainability. This suggests an urgent re‐examination of the spirit and purpose of planning to embrace and promote the new even where they challenge established orthodoxy and planning order.     

Hegemonic power relations in real practices of spatial planning: the case of Turkey

There is a wide gap between planning ideology and planning practice in some regimes. In planning practice, contextual differences and traditional practices affect urban spatial configurations and their related societal dimensions, and also influence the legislative and administrative systems that dictate the process and production of the built environment. This is linked to situations where hidden practices and power relations among key actors may limit democratic participation in the planning process and challenge ethical practice. This paper focuses on the emerging traditions of planning practice in Turkey. We argue that by understanding the role(s) of the key actors in the process and investigating approval processes in detail, it can become evident that planning ‘on the ground’ is often tokenistic and circumvented by hegemonic power relations and tactical actions. These latter in turn side-step a requirement for democratic participation and encourage a ‘loosening’ of planning ethics.     

Physical planning in an era of marketization: conflicting governance perspectives in the Swedish Transport Administration

Planning of transport infrastructure in Sweden has undergone successive legislative changes as well as neoliberal corporatization and marketization reforms in recent years, with a general aim to increase efficiency and effectiveness. This paper presents planning practitioners’ experiences of far-reaching marketization of physical planning practice in line with a strategy within the Swedish Transport Administration (STA) to become a ‘Pure Purchaser’. The strategy implies that all practical planning work should be carried out by procured consultants. The paper follows a qualitative, explorative approach based on document studies and interviews with practitioners actively involved in carrying out physical planning of road and rail investments. The concept of ‘modes of governance’ is applied to highlight and analytically interpret differences in perspectives on efficient and effective governance as expressed in the planning legislation, and the STA marketization strategy, respectively. The empirical results make evident that the recent marketization reforms are generally perceived as strongly and negatively affecting the efficiency and effectiveness of planning practices while also circumscribing professional discretion. The study highlights the importance of specific organization and management perspectives as explanatory factors in studying efficiency and effectiveness of planning practices.