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.     

Creative planning in Ireland: the role of culture‐led development in Irish planning

This paper attempts to close specific gaps in our understanding of practice and policy concerning culture, planning and development in Ireland. This is a nation in which the development and planning impacts of cultural policy are of increasing importance, yet the state of knowledge of policy and infrastructure remains underdeveloped. The paper begins by charting the evolution of culture‐led development in Western Europe over the last few decades, highlighting the emergence of culture as a central element in both economic and social development strategies. The paper then focuses upon Ireland, reviewing the nation's rich cultural and especially musical heritage, and the direct economic impacts of this. Detailing the successful mobilization of this heritage in search of tourism, the recent incorporation of culture into strategic planning and development initiatives, and the links between culture and development in Dublin, Cork and Galway, the paper concludes that Ireland is in a strong position to avail itself of the positive social and economic impacts of planning for culture and creativity.     

Linking polycentricity concepts to periphery: implications for an integrative Austrian strategic spatial planning practice

This contribution searches for a regional planning conception that allows for a mutual recognition and practical translation between strategies for urban regions and peripheries beyond separate urban and rural categories; taking the Austrian strategic spatial planning context as the example. For this, various notions of polycentricity are discussed and assessed with regard to periphery. The Austrian strategic spatial development concept ÖREK sets out a focused work programme with changing responsibilities and participation of actors. The objectives are targeted and the processes are implementation oriented. Amongst other topics, urban regional issues and peripheral, declining regions are worked on separately. A conceptually integrative, plan-like strategic instrument across the topics and for the whole of Austria is lacking. The ESPON notion of ‘inner peripheries’ is proposed as a complementary concept to the ESDP notion of polycentricity, helping to create a bridge between urban regional and periphery strategies. This has the potential to guide strategic planning practice efforts in Austria towards a yet missing strategic spatial plan for the whole of the country beyond urban and rural categories. Practice relevant conclusions related to the case of Austrian strategic spatial planning are drawn and a need for further, comparative research in a European context is identified.     

Territorial development,planning reform and urban governance: the case of Ireland’s second-tier cities

The increased emphasis within Europe on the role of second-tier cities has implications for the ways in which these urban centres are considered within national spatial planning strategies. In centralized, monocentric states such as Ireland, there has been a general ambivalence towards urban policy for cities outside the capital city, and historically, this has prevented the development of a strong, diversified urban hierarchy undermining prospects for balanced regional development. This paper examines the extent to which a new found emphasis on Ireland’s second-tier cities which emerged in the ‘Gateways’ policy of the National Spatial Strategy was matched by subsequent political and administrative commitment to facilitate the development of these urban centres. Following a discussion of the position of second-tier cities in an international context and a brief overview of recent demographic and economic trends, the paper assesses the relative performance of Ireland’s second-tier cities in influencing development trends, highlighting a comprehensive failure to deliver compact urban growth. In this context, the paper then discusses the implications of current development plans for the second-tier cities and proposals for Irish local government reform for securing compact urban development.     

Spatial planning in transition in Greece: a critical overview

Greece is a country undergoing major changes in its course towards recovering from the recession and meeting the desirable economic standards. Over the past years, a series of legislative acts have reformed not only the sectoral policies and guidelines for the development of the main economic sectors of the country, but also the spatial planning policy and system, which in the period of just two years (between 2014 and 2016) underwent a double reform (Laws 4269 and 4447). Planning procedures became more ‘favourable’ to investments and the market’s needs. However, despite this early shift towards a more flexible and neoliberal approach, competitiveness and economic growth have not yet been achieved, whilst spatial planning is still ‘on hold’, leading to further entrepreneurial hesitancy and to a further delay in meeting the State’s requisite economic goals. The paper aims to contribute to the ongoing discussion regarding the future of spatial planning in Greece, in view of achieving economic stability and prosperity. The paper concludes that a suitable spatial planning model for Greece should prioritize public interest and territorial justice, in a way that it will not asphyxiate or discourage private sector initiatives that are so needed for the economic recovery.     

A Framework for Sustainable Heritage Management: A Study of UK Industrial Heritage Sites

In 2002, the World Heritage Committee declared heritage to be ‘an instrument for the sustainable development of all societies’. The term ‘sustainable development’, however, is inscribed with a complex economic, environmental and social agenda that challenges contemporary World Heritage management practice. This paper draws on a content analysis of six industrial UK World Heritage Site management plans. The analysis focuses on the extent that each plan integrates four key sustainability dimensions. Findings indicate that the planning frameworks and collaboration processes in operation at each site ensure conservation of the historical physical fabric but limit the development of a sustainable local cultural economy. A sustainable heritage management framework is presented based on the adoption of a long‐term strategic orientation and extensive local community participation in decision making. The framework is relevant to other complex heritage sites such as historic towns and cultural landscapes.     

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.     

Borders,planning and policy transfer: historical transformation of development discourses in the Finnish Torne Valley

European Union spatial policies have become a key institutional context in which to study policy transfer processes in European border areas. These policies are, however, only the most recent part of these transformation processes which raises a need for more historically sensitive approaches. An historical perspective is important, since border regions are historical processes with particular path-dependent development trajectories and power structures. This paper aims to contribute to the discussion concerning the transformation of European border regions by looking at the policy transfer of regional development discourses in the Finnish Torne Valley. The study material consists of strategic development documents produced by the Finnish border municipalities and the municipal-based co-operation organizations from the 1930s to 2013. The examination, based on critical discourse analysis, shows that the transformation process is driven by national trends and the dominant planning discourse. Nevertheless, the particular border setting and local discourse on ‘united Torne Valley’ have also intertwined with political and economic processes during different time periods.     

Cultural planning in Ontario,Canada: arts policy or more?

Cultural planning is often explained as a strategic approach to urban cultural development; an approach that involves the ‘mapping’ and leveraging of a wide range of ‘cultural resources’ (arts, culture, and heritage). However, it is increasingly being questioned whether cultural planning is anything more than a fairly traditional arts policy with a different name. In particular, it has been observed in Australia that cultural plans usually fail to address more than arts sector concerns. The objective of this paper is to investigate whether this assessment applies to cultural planning practice in Ontario, the province at the forefront of the current ‘municipal cultural planning’ push in Canada. An examination of all cultural plans in Ontario’s mid‐size cities and interviews conducted with municipal staff members overseeing these initiatives shows that whereas several municipalities do follow an arts‐driven policy agenda, this is not the case with most mid‐size cities in the province.     

Camp evolution and Israel's creation: Between ‘state of emergency’ and ‘emergence of state’

This paper examines the central role of the camp in the early Israeli state period and its spatial and geopolitical evolution. Unlike official Israeli history, which presents the immigrant camps as an inevitable improvised response to the unexpected problem of mass immigration, I examine the camp as a strategic modern biopolitical instrument that allowed for the state's profound geopolitical changes and was itself altered according to them. The paper analyses the ways in which the camp facilitated the creation of Israel as a state formed by two seemingly contradictory, but in fact complementary, conditions: on one hand, a product of a chaotic ‘state of emergency’ and a form of ‘ordered disorder’ created by mass immigration, and on the other hand, a product of a comprehensive, tightly controlled modernist project combining physical planning and social engineering. This duality reveals the role of these immigrant camps, which were created both in Israel and abroad, as spatial ‘black holes’ which swallowed the contradiction between the radical geopolitical transformation and the rational self-image of the Israeli state-building project. The evolving and hybrid typologies of the camp in Israel's pre-state and early-state periods expose it as a versatile instrument, highlighting the need for informed spatial and geographical genealogies of the camp in order to illuminate its various transformations.     

Hard to miss,easy to blame? Peacelines,interfaces and political deaths in Belfast during the Troubles

As Northern Ireland moves further from the period of conflict known as the ‘Troubles’, attention has increasingly focussed on the social and material vestiges of that conflict; Northern Ireland is still a deeply-divided society in terms of residential segregation between Catholic nationalists and Protestant unionists, and urban areas are still, indeed increasingly, characterised by large defensive walls, known as ‘peacelines’, which demark many of the dividing lines between the two communities. In recent years a body of literature has emerged which has highlighted the spatial association between patterns of conflict fatality and proximity to peacelines. This paper assesses that relationship, arguing that previous analyses have failed to fully take account of the ethnic complexity of inner-city Belfast in their calculations. When this is considered, patterns of fatality were more intense within the cores or ‘sanctuaries’ of highly segregated Catholic and Protestant communities rather than at the fracture zones or ‘interfaces’ between them where peacelines have always been constructed. Using census data at a high spatial resolution, this paper also provides the first attempt to provide a definition of the ‘interface’ in clear geographic terms, a spatial concept that has hitherto appeared amorphous in academic studies and media coverage of Belfast during and since the Troubles. In doing so it embodies both the material and demographic aspects of social division in Northern Ireland, and suggests an urgent need to reappraise the true role of these forms of social boundary in influencing patterns of violent conflict.     

The ‘natures’ of planning: evolving conceptualizations of nature as expressed in urban planning theory and practice

Over the course of the past century, the idea of nature in the city has become increasingly intricate, evolving from being viewed as a refuge separate from the city to being understood as an essential component of dynamic urban systems. As such, attempts are currently being made to ‘re-nature’ cities to support local and global ecosystems, increase human well-being and address environmental issues such as climate change. While the literature has examined changing assumptions about society–nature relationships in planning, a dearth of knowledge exists relating to the changing conceptualization of nature’s relationship with the ‘city’ and how this has influenced how urban planning with respect to ‘nature’ has evolved in both theory ‘and’ practice. In this paper, we address this lacuna by tracing the history of the entwined relationship between nature and city planning. The conceptual framework developed from this review is subsequently employed as an analytical lens through which to investigate an illustrative case study of planning for nature in Dublin City, Ireland. The paper concludes by reflecting on how exploring the natures of planning provides scope for greater critical attention to what we do as planners when we seek to address the challenge of safeguarding nature through policy.     

Re-thinking non-core regions: planning strategies and practices beyond growth

ABSTRACT

Periods of ongoing growth in the economy and demographics have come to a halt for many European regions for various reasons, challenging their economic development prospects. Despite the heterogeneous nature of stagnation, decline, peripheralization or even stigmatization to be found there, these configurations ‘beyond growth’ have in common that short-term ‘fire-fighting’ policy approaches aiming to foster regional economic growth face some important limitations. We argue that this has to do, among other things, with the overall direction of established and orthodox planning approaches that are predominantly based on growth-oriented paradigms and implicitly or explicitly work with dichotomous categories such as core–periphery and metropolitan versus non-metropolitan spaces; these do, however, not capture local realities in these cases. Using the notion of non-core regions, we plead for conceptualizing non-core regions and their regional economic development trajectories in different ways: thinking ‘beyond growth’. Such alternative ideas should be informed by alternative understandings of growth, development and sustainability in order to influence theories and concepts, but also to support new approaches to planning practice. To this aim, we discuss non-core regions from a social constructivist perspective, elaborating some points of departure for conceptualizing and practising regional planning ‘beyond growth’.     

Evaluation of the spatial and economic effectiveness of industrial land policies in northwest Europe

This article stems from the discrepancy between the lack of attention paid to industrial land policy by academics and the predominant thought among elected representatives and development agencies, i.e. that industrial land policy plays a key role in the creation of growth and new jobs. The article begins with a reflection on the literature, which stresses the need to develop knowledge on industrial land policies. To help fill this research gap, we have developed an exploratory piece of research on the theme of their ‘spatial’ and ‘economic effectiveness’, on the basis of statistical analyses dedicated to seven countries. As regards ‘spatial effectiveness’, the results underline significant national differentials in terms of land consumption on the one hand, while highlighting the economic sprawl that affects France and Belgium on the other hand. As regards ‘economic effectiveness’, our results show that the impact of the development of economic estates on growth depends largely on regional contexts. In particular, the ‘intermediate regions’ in western Germany stand out as belonging to a specific context where land policies seem particularly effective from an economic standpoint. By contrast, the ‘economic effectiveness’ of industrial land policies requires readjustments in the Netherlands as well as in most ‘predominantly rural regions, close to a city’.     

Strategic planning for multicommunity rural development: Insights from Northern Ireland

This paper examines progress being made in the sphere of community‐led rural development in Northern Ireland. Multicommunity development practice carried out by the authors using a transactive model of strategic planning is reported. This case study is located in the borderlands of Ireland, in an area where contested traditions of culture and political allegiance are deeply rooted. The analysis explores, inter alia, the tensions associated with community group formation, the difficulties in winning consensus and how these problems were addressed, the origin and selection of projects, and the first steps towards implementation. By way of conclusion a number of key issues of arguably wider interest are identified: engaging in strategic planning, supporting multicommunity activity and forging new partnership arrangements.     

“Sometimes Climate Adaptation is Politically Correct”: A Case Study of Planners and Politicians Negotiating Climate Adaptation in Waterfront Spatial Planning

Today, spatial planning is expected to deliver climate adaptation and to manage, merge and balance various societal interests and priorities. To what extent proactive shaping of change is enabled by spatial planning practice is less explored. This paper illustrates how the ideals and ambitions of climate adaptation are manifested in waterfront spatial planning via a case study of Norrköping, Sweden. Based on interviews with spatial planners and politicians responsible for strategic urban development planning, our study identifies a divergence in ambitions, approaches and positions. In local development plans, the position taken has less to do with climate risk severity than with an area's perceived political and economic attractiveness. When perceived attractiveness is low, precautionary climate adaptation serves as a pretext not to develop, whereas high perceived attractiveness leads to negotiated pragmatism allowing continued waterfront exploitation. We also identify a fragmentation in spatial planning, with weak interplay between municipal comprehensive planning and local development plans, resulting in ad hoc, case-by-case planning. Furthermore, different planning actors are organizationally compartmentalized, creating unfortunate intra-sectoral silos. We conclude that the integrative, proactive and reflexive potentials of spatial planning to deliver climate adaptation have yet to be realized.     

The Importance of Context and Comparison in the Study of European Spatial Planning

The European Spatial Development Perspective (ESDP) was agreed in 1999 at Potsdam, Germany, as a non-binding framework intended to guide spatially significant policy-making at different spatial scales in order to achieve a more balanced and sustainable growth of the EU territory. This paper develops a conceptualization of the nature of transnational planning frameworks such as the ESDP and presents a framework for the investigation of the application of their policy orientations in the spatial planning systems of European states. It is argued that investigations of the application of transnational spatial development frameworks like the ESDP and the ‘Territorial Agenda of the European Union’ document adopted by EU member states in 2007, need to be sensitized to the diversity of territorial contexts in which these apply, and that a contextualized and comparative approach is therefore essential in evaluating their influence in Europe's varied territories.     

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.     

Planning for Rural Housing in the Republic of Ireland: From National Spatial Strategies to Development Plans

This paper examines the role of spatial planning as a policy framework for managing rural housing within an integrated territorial development strategy. The paper focuses on the Republic of Ireland, which provides a useful case for analysing spatial planning and rural housing relationships, due to the State's recent shift towards spatial planning (formalized with the publication of the Irish National Spatial Strategy), as well as the level of housing construction that has been observed in an increasingly post-productivist countryside (triggered by counter-urbanization flows, increased affluence and demands for second holiday homes, etc.). The paper reviews all policy instruments that have been used to manage rural housing at various scales (from national strategies to local level development plans). It is argued that while spatial planning adopts an integrative vocabulary, as policy moves down the spatial scale hierarchy, multi-dimensional spatial goals are implemented through traditional, narrow land-use regulation. This often leads to rural housing being addressed in isolation from its wider social and economic context, disconnecting housing from wider rural community issues and ultimately failing to deliver a coordinated and coherent spatial policy for managing rural settlements.     

Gender,work and technology in the information workplace: from typewriters to ATMs

We consider the relations between gender and technology in the workplace, focusing on clerical work in the information workplace, especially the finance and insurance sector. Our goal is to excavate a ‘hidden history’ of how clerical work and the artifacts which sustain it have been understood and deployed under different cultural and economic circumstances. We employ an analysis of technosocial relations developed in Science and Technology Studies in which meanings about ‘technology’ and ‘society’ are mutually constitutive, changeable, and in need of maintenance in order to sustain their conceptual coherence. By drawing on examples from the USA and Canada, we argue that at various points over the twentieth century particular office technologies became ‘feminized’, or associated with characteristics coded as feminine, as a means of shaping spatial practice and social relations in the workplace.