Changing public accountability mechanisms in the governance of Dutch urban regeneration*

Contemporary urban planning dynamics are based on negotiation and contractual relations, creating fragmented planning processes. On the one hand, they trigger technocratic forms of governance, which require the ‘legal instrumentalisation’ of planning in a piecemeal approach ensuring legal certainty. On the other hand, these processes require flexibility to enable easy, fast and efficient forms of implementation due to the increasing involvement of private sector actors in urban development. This article unravels the influence of these conflicting dynamics on the fundamentals of urban planning practices by focusing on changing public accountability mechanisms created through contractual relationships between public and private sector agencies. Dutch urban regeneration has demonstrated changing governance principles and dynamics in the last three decades. Representing instrumental and institutional measures, we connect accountability mechanisms to these changes and argue that they ‘co-exist’ in multiple forms across different contexts. This article embeds this evolution in wider theoretical discussions on the changing relationships between public and private sector actors in urban governance relative to the changing role of the state, and it addresses questions on who can be held accountable, and to what extent, when public sector actors are increasingly retreating from regulatory practices while private sector actors play increasingly prominent roles.     

Sport facility development: municipal capital and shutting out the private sector

Regime theory provides a framework for exploring changes in development patterns and internal dynamics of growth coalitions. Academic debates on sport and urban development have focused on large American and European markets, where such venues are increasingly led by urban regimes that aim to leverage public goals through private investment. Based on a detailed qualitative analysis of four projects in three major Israeli cities, this work examines a different typology of sport venue development – ‘public regime’, which operates in a small market context. The Israeli public regime neither allows the private sector to assume central roles in the design, development and operation of venues nor does it stimulate real estate development anchored by the venue. The assumption that professional sports is not a viable business in small markets is used to justify the public monopoly that regards the venues as public amenities, legitimizing the lack of strategic and business plans, producing benefits for the local political elite but doing little to stabilize professional sport and secure economic returns for the public. The more affluent city of Tel Aviv demonstrates a breakout from a pure public regime, where public control is retained but more business-oriented considerations are incorporated.     

International competition,urban governance and planning projects: Malmö, Birmingham and Lille

In recent years competition between European cities has increased. This article looks at the implications for planning projects in the context of changes in urban governance. Growth machine and urban regime theories are introduced and three case studies explored in detail. Plans and development projects resulting from the arrival of the Oresund bridge in Malmö are examined. In Malmö, public planning is being bypassed in favour of local corporatist objectives and this experience is compared to the approaches developed in the strongly competitive cities of Birmingham and Lille. International comparison reveals the national distinctiveness of the responses to competition. In Birmingham there has been a local political reaction to the economic development‐led city centre strategy, but British central‐local relations restrict the ability of the city to change course. Developments in Lille reflect an integrated public sector approach to the development and marketing of the city and its region. In the three cases social and environmental issues have been raised but the imperatives of competition remain dominant.     

The Seattle Commons

This study looks in depth at the politics, planning, and policymaking involved in the attempt to create a new “urban village” close to downtown Seattle. Beginning in 1991 with a small group of citizens who shared a vision of a major in-city park, the Seattle Commons project gradually became transformed, as result of different interests and political agendas, into an urban village with a major park at its core. This study analyzes these competing interests, the public private leadership roles, the process of organization-building, and the marshaling of opposition that characterized the Commons planning effort during its initial years.     

Spatial Strategic Planning in the Stockholm Region—Discourses on the Space-economy and Growth Factors

This article analyses strategic spatial planning for city regions. The analysis uses a strategic development plan for a region as an example and is intended to contribute to discussion about the role of politics and the state in economic structures and processes. The objective was to define the types of discourses in the Stockholm plan. Norman Fairclough's (Analysing Discourse, New York, Routledge, 2003) methodological framework for analysing texts in social research was an important source of the study design. The analysis focused on assumptions in the text and the compatibility of these with different concepts of dynamic development and economic growth in city regions. These concepts were city as clusters, city as interconnection, city as milieu and city as symbol. Outcomes of the analysis showed that the strategic development plan for the Stockholm region stresses large-scale international economic activities and specialized cluster activities, but it marginalizes other activities. In the context of city regions comprising a multiplicity of actors and activities, such a one-sided approach may hinder broad economic development. A more nuanced representation of the urban economy in strategic planning is called for.     

Public–Private Plan Development: Can Early Private Involvement Strengthen Infrastructure Planning?

Private parties, who are usually involved in later stages of design, construction and maintenance, can potentially strengthen the early plan-making stages of infrastructure planning. They can bring in knowledge, expertise and experience to help address complexity in planning. Such early private involvement can be accommodated through several models for which experiences in Dutch infrastructure planning practice differ. In this article, we assess the potential of early private involvement for strengthening infrastructure plan development by examining evaluative studies and conducting interviews with public and private actors involved in four early private involvement models in Dutch infrastructure planning: market consultation, early design contest, market reconnaissance and unsolicited proposal. We conclude that in order to unlock the potential of early private involvement government needs to incorporate incentives for creativity, reward private involvement and strike a balance in the setup of the investigated models between conceptual freedom for private solutions and transparent public guidance in preconditions and regulations. Early private involvement could, thus, provide opportunities for conceptual creativity and innovation and opportunities for public–private collaboration, which can strengthen plan development.     

‘A NEW SEASON FOR PLANNING’: URBAN GARDENING AS INFORMAL PLANNING IN ROME

This article investigates the relationship between urban gardening and planning by building upon the results of field research on gardening initiatives in the city of Rome, Italy. The work is aimed at suggesting that, while often associated in geography and planning literature with urban informality practices (e.g. accidental city or self‐made urbanism), urban gardening actually presents the character of a distinctive form of people's interaction with urban space, here defined as “informal planning”. This includes practices that are intentionally put forward by local dwellers with the intention of urban space planning and organizing public life in the absence of legal definition, guidance and funds provided by public authorities or the private sector. Urban gardening cases in Rome exemplify the emergence of informal planning and show how, by questioning the counterplanning tradition that understands urban gardening as an antagonist spatial practice opposing institutional planning, informal planning can open up collaborative possibilities. A new mode of interaction between citizens' agency and the formal planning initiatives of local administration can lead to creative solutions to address some of the problems associated with the neoliberal transformation of the city space, most notably the decrease in public space and its deterioration.     

URBAN NETWORKS AND GOVERNANCE IN CITY‐REGION PLANNING: STATE‐LED REGION BUILDING IN NANJING CITY‐REGION,CHINA

During the transition towards a more market‐oriented economy and entrepreneurial governance, local authorities have attempted to create new cross‐jurisdiction regional entities to enhance their competitiveness through making city‐region plans or regional strategic plans in China. This article analyses the process of region building in China through a case study of Nanjing city‐region. We argue that region building is a state‐led regional project in China, not a spontaneous process. City‐region planning has played a legitimacy‐seeking role in the construction of new regions. Based on the discourse provided by the city‐region plan, associated city networks are being created as a mechanism for plan implementation and regional coordination. This signals that regional planning is entering the stage of regional institution building. By assessing the capacity of regional institutions, we argue that the newly‐emerged regional institutions or urban networks have facilitated regionalization in terms of the increasing involvement of non‐state actors, the formation of regional coherence and identity and the enhanced inter‐city co‐operation. However, it is still difficult to establish effective regional governance due to competing local governments, the arbitrary political leadership and the fragmented planning functions.     

Learning policy—the contextual curtain and conceptual barriers

Many European states are now giving attention to strategic planning as a means of coordinating and democratizing local government. The UK government is not alone in seeing some form of ‘community planning’ as a means of promoting closer sectoral integration in policy‐making and service delivery while also encouraging public participation. This suggests scope for comparative research to inform lesson drawing, especially from Norway, which has been rolling out kommuneplan at the municipality level since 1985. Cross‐national lesson‐drawing is hazardous, however, given the different legal, political and cultural traditions which make policies ‘work’ in particular local settings. In this article these difficulties are acknowledged and ethnographic research is used to explore further problems in lesson‐drawing, especially the very different ways in which concepts of participation and integration are given meaning in particular national contexts. Through comparative ethnographies of community planning processes in Asker Municipality, Norway, and South Lanarkshire Council, Scotland, remarkable similarities are revealed in the language and objectives of the planning documents in each setting, but show that this belies important differences in the relations between administrative and political domains, in the governing role of plan statements, and in the underlying theories of democracy.     

Enrolling the Private Sector in Community Development: Magic Bullet or Sleight of Hand?

The role of the private sector in international development is growing, supported by new and evolving official programmes, financing, partnerships and narratives. This article examines the place of the private sector in ‘community development’ in the global South. It situates corporate community development (CCD) conceptually in long‐standing debates within critical development studies to consider the distinct roles that corporations are playing and how they are responding to the challenges and contradictions entailed within ‘community development’. Drawing on field‐based research across three different contexts and sectors for CCD in Fiji, Papua New Guinea and South Africa, the article suggests that caution is required in assuming that corporations can succeed where governments, non‐governmental organizations (NGOs) and international development organizations have so often met with complex challenges and intractable difficulties. We argue that four specific problems confront CCD: (a) the problematic ways in which ‘communities’ are defined, delineated and constructed; (b) the disconnected nature of many CCD initiatives, and lack of alignment and integration with local and national development planning policies and processes; (c) top‐down governance, and the absence or erosion of participatory processes and empowerment objectives; (d) the tendency towards highly conservative development visions.     

Flexibility in Planning and the Consequences for Public-value Capturing in UK,Spain and the Netherlands

In the 1960s, flexibility was often seen in planning literature as a negative feature, whereas today it is perceived by planners and policy-makers as a positive asset to cope with the challenges of growing complexity, opportunism and diversity in cities. The discussion seems to rest between two approaches. While planning should be flexible to facilitate a non-linear and multi-layered decision-making system, implementation should not be too flexible as the public sector might lose the controlling power and the private sector might gain increasing influence in urban development. This paper uses empirical data from case-based research on British, Spanish and Dutch urban regeneration projects, and provides an analysis of the effects of an important feature of flexibility on public-value capturing. Public-value capturing is the level at which public bodies manage to make developers pay for public infrastructure—infrastructure provision, public roads and space, public facilities and buildings, affordable and social housing—and eventually capture part of the economic value increase. This important aspect of flexibility is the level of certainty about future development possibilities before negotiations between developers and local planning bodies take place.     

Uganda's Flower Farms and Private Sector Development

The European Union's (EU) pledge to assist private sector development (PSD) in the African, Caribbean, and Pacific (ACP) states is a key pillar of its bilateral trade relationship with former colonies. It is this ostensible support to PSD that allows the EU to contend that its pursuit of market opening in ACP countries under Economic Partnership Agreements (EPAs) is not detrimental to human well‐being in low‐income countries, in spite of risks of import flooding and EU monopolization of emerging sectors. This article explores the legitimizing ‘development’ rationales of EU PSD frameworks from the perspective of stakeholders in a strategic site of private sector activity in the ACP grouping. Specifically, it explores Europe's PSD agendas from the standpoint of investors, managers and workers in Uganda's cut‐flower sector, which is domestically seen as one of the sectors most likely to bring economic benefits to Uganda. Based on interviews with stakeholders in the industry, the article explores whether actors in this business sector concur with the underlying ‘pro‐poor’ rationales of Europe's PSD framework and whether Europe is seen as a meaningful partner in this prioritized site of private sector activity.     

Engendering urban planning in different contexts – successes,constraints and consequences

Cities are rapidly transforming into complex places which traditional approaches to urban planning have difficulties to deal with. The new EU- and UN-urban agendas still lack gender-awareness concerning the supportive infrastructure of everyday life that enhances the opportunities for both women and men with different backgrounds and orientations to muddle through in the complex daily contexts. I argue that, in addition to mainstreaming gender equality as a top-down endeavour, there is a need for an expansion of engendering urban planning, which requires different ways of dealing with varying types of planning from the gender perspective. The aim of the article is to present and discuss the results of an explorative study with qualitative methods which has tested with examples a framework for engendering urban planning in different contexts. These are (1) Gender mainstreaming comprehensive urban planning (Vienna); (2) Gender-sensitive advocacy planning (Barcelona); (3) Gender+ self-organizing around urban planning & development (Helsinki); (4) Gender-aware co-governance with public, private, people-partnerships (Athens). The results corroborate the argument but lead to a new one concerning the engendering of new approaches, such as Expanded urban planning that might alleviate dealing with complexities.     

Making waves: The Royal Navy's management of invention and innovation in steam shipping, 1815–1832 1

Abstract

This paper explores the sources of invention and innovation in steam shipping, the distribution of funding and risk between the state and the private sector, and the Royal Navy's management of innovation, during the experimental period of steam power's adoption at sea. It identifies two intersecting channels through which steam‐related innovations reached the Royal Navy. First, “packages” of innovations were embedded in the marine engines that were commissioned by the Navy from private engine‐making firms. Secondly, the Navy was spontaneously offered a gamut of ideas and inventions, which varied enormously both in potential importance and in degree of development. Although the mechanisms for dealing with these two channels were different, the end result was much the same ‐ in minimizing both the expense and the risk borne by the public sector. It was principally the private sector that was funding scientific and technological development in this sphere. Recognizing its own lack of expertise and consequent hazard, the Navy Board was developing a systematic yet flexible method of assessing steam‐related inventions ‐ which appears to have served it well.     

When Strategic Plans Fail to Lead. A Complexity Acknowledging Perspective on Decision-Making in Urban Development Projects—The Case of Kortrijk (Belgium)

Nowadays, cities formulate long-term strategies to address the challenges and opportunities they face. Numerous strategic plans or planning instruments are developed for this purpose. In this article, we would like to examine the role, impact and relevance of these types of plans in decision-making processes concerning urban development projects (UDPs) in the Flemish Region of Belgium. To what extent do strategic plans succeed in capturing and steering the complexity of spatial interventions in contemporary urban contexts? We argue that a complexity-acknowledging perspective provides a more realistic and adequate view here by seeing strategic plans as only one among many elements in the set of tangled inter- and intrastrategic processes which together determine UDPs. A comparative and qualitative case study was carried out in the city of Kortrijk. The decision-making of three UDPs was studied thoroughly. Interviewing key actors and analysing policy documents helped us to (re)construct the complex decision-making processes and to stipulate the meaning of all involved formal plans and planning tools.     

Confidence Building in Local Planning and Development. Some Experience from Norway

Can local confidence building and cooperation strengthen local communities and have a positive influence on local development? This is the main question in this article. In the first part of the article the conditions for confidence building, mobilization, self-development and self-confidence in local planning are presented. A planning process called strategic and mobilizing planning which is built on these conditions is described. This planning or development process is drawn as an infinite spiral with an increasing 'radius'. As examples of such local confidence building and mobilization processes the cases of 'Nordvest Forum' and 'Cooperation in Haram commune' are presented and discussed. Nordvest Forum is a collaborative activity owned by competing companies in the region, which have recognized that they have a common problem related to recruitment and training of leaders. This has lead to new activities and new cooperation especially related to management training and cooperation. The collaboration between private and public institutions in Haram is an example where common challenges for companies and community were recognized. This process started as a concrete activity regarding recruitment of skilled workers with participation from a few but nevertheless important persons in the private and public sectors. The learning and confidence developed as a result of this cooperation lead to new and broader activities concerning the future of the community with many more participants. In the conclusion some practical advice is given for community planning and confidence building, informed by the theoretical discussion and the empirical examples in the article.     

Mind the gap: Town planning and Manchester's local railway network: 1947–1996

This article uses Manchester as a case study to explore post‐war relationships in Britain between local rail networks and urban form. During this period, Manchester's rail network has been severely rationalized with only limited investment in new infrastructure, although local services have been underpinned by public subsidy. During the 1950s and 1960s, there was little formal land use planning policy with regard to the rail network, but in the late 1970s strategic policies crystallized which sought to steer major activity generators to nodalities generally well‐served by public transport. However, these policies were undermined in the 1980s by Thatcherite deregulation. The early 1990s has seen more positive trends with the opening of Manchester's light rail line and the development nationally of policies aimed at creating more sustainable urban form through synergy between local rail networks and urban development. But there is evidence of counter‐trends and the whole future of the rail system has been thrown into doubt because of rail privatization. Conclusions are drawn that focus on the need for changes in the institutional arrangements for transport planning and strategic town planning through the creation of a strong regional tier of government, as found in other EU countries.     

A cooperative spatial future for RheinRuhr

As is the case with other metropolitan regions, there are claims that the emerging functional urban region of RheinRuhr needs to develop a cooperative spatial future. This article explores the underlying difficulties in seeking to move forward in regional cooperation and strategic regional development for RheinRuhr. At present, no clear shift can be observed from traditional land use planning and local development approaches towards more strategic planning for the whole urban region. There are still many obstacles to be overcome. Nevertheless, strides have been taken in the direction of improved cooperation. A dense and functionally overlapping (sub)‐regional associationalism seems to be one step towards future city‐regional governance and possibly government. An evaluation is reported of two new innovative modes of structural and regional policies, namely the Regional Conferences and the IBA Emscher Park Planning Company; their impacts on regional policy‐making structures are reviewed. A discussion on more recent approaches to regional cooperation follows. It is argued that, in the long term, as a multi‐regionalized space, RheinRuhr requires some kind of coordinator and moderator and new practices of regional planning and management. The future development of a RheinRuhr metropolitan region requires further steps to be taken towards strategic planning by the Land government as well as a deepening of the level of institutionalization. Some ideas are put forward on how the elaboration of a spatial Leitbild for RheinRuhr could be initiated and supported.     

Barcelona—fast forward? City entrepreneurialism in the 1980s and 1990s

Since 1979 the city council of Barcelona has sought to guide the city's destiny by a variety of methods, most powerfully by securing the 1992 Olympic Games candidacy, but also by means of two strategic planning exercises, begun in 1988 and 1992. These strategies are examined within their political and economic contexts in order to understand how they relate to changes in Spanish and Catalan politics, in global/local economic shifts and in thinking on city guidance. Significant differences in the three phases of city promotion are identified. It is concluded that strategic planning within the context of the intense spatial economic competition of the late 1990s may be even more difficult for Barcelona than was its drive up to 1992.     

DETERMINANTS OF IMMIGRANTS’ ENTRY TO HOMEOWNERSHIP IN THREE NORDIC CAPITAL CITY REGIONS

The extent of homeownership among immigrants may be seen as an indicator of integration and as a determinant of ethnic residential segregation. Studies have shown differences in the determinants of homeownership between immigrants and natives, indicating that variation in homeownership is not only a function of differences in economic resources. These studies have largely focused on Anglo‐American contexts, using mostly cross‐sectional data. We apply survival analysis methods to analyse the determinants of entry to homeownership in the capital regions of three Nordic countries – Denmark, Finland and Sweden – utilizing longitudinal individual‐level register‐based datasets. We find that differences in entry to homeownership between natives and different immigrant groups cannot be explained by differences in socio‐economic background factors. We also find differences in the effects of these factors. Effects of income are generally weaker among non‐Western immigrants and immigrants are less responsive to changes in household composition. The share of non‐Western immigrants in the neighbourhood is only weakly related to entry to homeownership, while immigrants and natives living in public rental housing tend to be slightly less inclined to move to homeownership. Weaker income effects among immigrants, weak effects of ethnic segregation and the importance of the public rental sector differentiate our results from earlier findings. Weaker income effects may indicate that uncertainty about the future also affects middle‐income immigrants. Differences between the three contexts in housing markets and policies do not seem to matter much, although the results indicate that difficult access to the private rental sector may push immigrants to homeownership.