Issues of Governance in Spatial Planning

1. Issues of Governance in Spatial Planning Prepared by Roberto Rocco Chair Spatial Planning and Strategy TU Delft SpatialPlanning &Strategy

2. SpatialPlanning &Strategy

3. Consolidation of objectives in Spatial Planning around the notion of sustainability: • Deliver sustainable and fair futures • Increase public goods • Redistribute gains • Increase life chances and prosperity

4. We have some directions (Spatial) Justice+ (Social, Economic and Environmental) Sustainability + (Intervention/Design of) Governance

5. ‘Enhanced’ Sustainability “For sustainability to occur, it must occur simultaneously in each of its three dimensions” (economic, social and environmental) Larsen, 2012 jump

6. goal is to create conditions for the full realization of human potentials, through healthy, sustainable and fair environments” Human Rights Education Associates “Sustainable development” http://www.hrea.org/ ©Ronald Vogel “The main

7. objectives, planners and designers are inserted in and must understand complex systems of governance ©Ronald Vogel In order to achieve those

8. Our hypothesis

9. Our hypothesis Understanding and designing governance helps enhance social sustainability because it might warranty ‘procedural justice’ (Fainstein).

10. Our hypothesis Understanding and designing governance helps enhance social sustainability because it might warranty ‘procedural justice’ (Fainstein). Ultimately, it may also deliver better results in terms of adequacy of solutions, acceptance and implementation of plans.

11. What’s Governance Again? * relating to an ideal standard or model. ** also may be understood as ‘how it happens in practice’

12. What’s Governance Again? Normative* dimension * relating to an ideal standard or model. ** also may be understood as ‘how it happens in practice’

13. What’s Governance Again? Normative* dimension X * relating to an ideal standard or model. ** also may be understood as ‘how it happens in practice’

14. What’s Governance Again? Normative* dimension X Descriptive** dimension * relating to an ideal standard or model. ** also may be understood as ‘how it happens in practice’

15. The Normative Dimension: Governance

16. The Normative Dimension: Governance Civil Society

17. The Normative Dimension: Governance Civil Society Private Sector

18. The Normative Dimension: Governance Private Sector Civil Society Public Sector

22. The Normative Dimension: Governance Private Sector Civil Society The great sectors of society (civil society, public sector and private sector) ought to be in positive tension, where they simultaneously apply and receive pressure from other sectors. In doing so, they keep each other in check and avoid overrunning each other. The problem with this model is that not everyone has an equal voice or power to express his or her views. Public Sector

23. Networks of coalitions Civil Society Private Sector Civil Agents form networks of coalitions between sectors and within sectors towards objectives Public Sector Public Sector

24. Networks of coalitions Civil Society Private Sector Civil Agents form networks of coalitions between sectors and within sectors towards objectives Public Sector Public Sector

25. Networks of coalitions Civil Society Private Sector Civil Agents form networks of coalitions between sectors and within sectors towards objectives Public Sector Public Sector Spatial Planners and designers are inserted in networks (and bureaucracies).

26. Governance refers to the emergence of a ‘policy making style’ dominated by cooperation among government levels and between public and non public actors and the civil society. Papadopoulos, 2007 ©Ronald Vogel And the descriptive dimension

27. Changes in governing (& planning) Emergence of a particular style of governing where there must be sustained co-ordination and coherence among a wide variety of actors with different purposes and objectives from all sectors of society. Papadopoulos, 2007

28. A territorial-legal component Civil Society Private Sector Civil Public Sector Public Sector

29. A territorial-legal component Civil Society Private Sector Civil Public Sector Public Sector

30. A territorial-legal component Civil Society Private Sector Civil Public Sector Public Sector State (the rule of law)

31. The rule of law The rule of law provides the framework for the Public sector, the Private sector and the Civil society to exist in certain forms and in certain relationships with each other.

32. What’s governance again? State (the rule of law)

33. What’s governance again? State (the rule of law) Values and nomrs (informal institutions)

34. Common values and norms (informal institutions)

35. Common values and norms (informal institutions) Explains behaviours like patronage, nepotism, corruption, ingrained practices and traditions as well as and how networks are formed

36. ‘Involves a large number of decision-making arenas, differentiated along both functional and territorial lines and interlinked in a nonhierarchical way’ jump Eberlein and Kerwer, 2004 ©Ronald Vogel Multilevel governance

37. Networked governance Policy making and implementation is ‘shared’ by politicians, technocrats, experts, dedicated agencies, authorities, semi private and private companies, the public, NGOs, etc which constitute NETWORKS of policy and decision making across levels, territories, mandates, etc.

38. Some decisions are taken....

39. Some decisions are taken.... Across Sectors

40. Some decisions are taken.... Across Sectors Across Adminis trative bounda ries

41. Some decisions are taken.... Across sectors of society Across Sectors Across Adminis trative bounda ries

42. Some decisions are taken.... Across sectors of society Across Sectors Across Adminis trative bounda ries Across levels of govern ment

43. Multilevel Governance Ward (ellects the members of the Court of commons) City of London Corporation (borough) Greater London Authority English regions England United Kingdom European Union

44. Multilevel Governance Ward (ellects the members of the Court of commons) City of London Corporation (borough) Greater London Authority English regions England United Kingdom European Union

45. Networked decision-making City of London Corporation Primary decision making Court of aldermen 121 committees in 2012 72 outside bodies Lord Mayor + 2 Sheriffs Court of commons Elected by livery men (108 livery companies) Elected councilors by residents, landowners, land leasers (25 wards with different number of elected councilors)

46. Networked London Assembly (25) Primary decision making Court of aldermen 121 committees in 2012 Elected by residents of London Elected by 14 constituencies + 11 from a party list fire Standing orders Mayor of London police History, tradition, uses and customs Greater London Authority transport Governance European Union Great London Plan Lord Mayor + 2 Sheriffs Elected by 108 livery companies Court of commons Directives and conventions that have subsequently been enacted into UK legislation and influenced the development of the thinking behind the Government's policies, like the Groundwater Directive and the Environmental Impact Assessment Directive, for example. Elected in 25 wards by residents and landowners 72 outside bodies UK Parliament UK local authority legislation House of Lords (powers are limited) Lords Temporal (Appointed) Lords Spiritual (Appointed) House of Commons MPs (Elected) Queen (advised by Prime Minister) jump These include global treaties, such as Kyoto and strategies for dealing with the influences and effects of climate change and for integrating sustainable development into the EU's environmental policies as a result of major conferences, including the World Summit on Sustainable Development. International protocols

47. Multilevel governance in emerging cityregions Urbanisation in the Randstad, 1950 Urbanisation in the Randstad, 2010

50. Policy formulation and implementation Networks involving: • public actors (politicians and administrators) in different decision levels • • • • • technocrats economic agents interest representatives (civil + corporate) other stakeholders experts (e.g. planners)

51. New forms of steering complex governance networks Deliberation Bargaining Compromise-seeking

52. Instead of... blueprints Pruitt-Igoe, Saint-Louis Missouri, 1950s. Source: http://pichaus.com/pruitt-igoe-public-housingdevelopment/

53. Why network governance?

54. Why network governance? 1. decisions with strong output legitimacy

55. Why network governance? 1. decisions with strong output legitimacy 2. the content is more appropriate

56. Why network governance? 1. decisions with strong output legitimacy 2. the content is more appropriate 3. better accepted by target groups

57. Why network governance? 1. decisions with strong output legitimacy 2. the content is more appropriate 3. better accepted by target groups 4. technically more adequate and politically more realistic decisions

58. Designing governance will make your plan and design better

59. Diagram by Shuying Yu, Beijing, China, 2010

60. our democracies? ©Ronald Vogel But what are the challenges of governance for the quality of

61. ©Ronald Vogel Now we will explore challenges presented by governance in detail

62. Main issues

63. Main issues 1.Hollowing out of the State

64. Main issues 1.Hollowing out of the State 2.Accountability deficiency

65. Main issues 1.Hollowing out of the State 2.Accountability deficiency 3.Representation and visibility

66. Main issues 1.Hollowing out of the State 2.Accountability deficiency 3.Representation and visibility 4.Decoupling of the realm of politics

67. Hollowing out of the State The networked nature of governance structures have been triggered by ideologies that endorse the minimal state

68. they are ultimately the result of the increasing complexity of our societies and of their embeddedness in complex spatial settings ©Ronald Vogel But we think that...

69. the core of discussions on networked governance ©Ronald Vogel Accountability is at

70. Accountability

71. Accountability refers to the attribution of responsibility and mandate, and the possibility of check by other parties involved.

72. Accountability refers to the attribution of responsibility and mandate, and the possibility of check by other parties involved. In network governance, it is difﬁcult to attribute responsibility and mandates and ultimately difﬁcult to hold anyone accountable (the problem of many hands)

73. Accountability For agents to be held accountable, they must be identiﬁable as accountability holders and they must belong to arenas where there is a possibility of sanction

74. For elected ofﬁcers, we might think that elections are the ultimate test of accountability: the hanging sanction is the non-reelection Photo source: Reuters/Toby Melville Politics

75. But... In networked governance structures, the role of elected ofﬁcials is often not central in the decision making process

76. we shouldn’t narrow the issue of accountability to that of democratic control Grant & Keohane, 2004 ©Ronald Vogel Moreover...

77. Other forms of (necessary) accountability in policy making and implementation Fiscal Legal Administrative

78. Weak visibility Decisional procedures in policy networks are often informal and opaque (as this facilitates the achievement of compromise)

80. Politics of problems (problem solving politics) oriented towards a backstage network of knowledge and decision-making ©Bloomberg Businessweek ©Shepard Fairey Politics of problems X politics of opinion

81. Politics of problems (problem solving politics) oriented towards a backstage network of knowledge and decision-making Politics of opinion is the traditional politics in the media, party struggles and ideological assertions ©Bloomberg Businessweek ©Shepard Fairey Politics of problems X politics of opinion

82. Citizens as accountability holdees

83. Citizens as accountability holdees Citizens should be the ultimate holdees of democratic accountability...

84. Citizens as accountability holdees Citizens should be the ultimate holdees of democratic accountability... ...but in reality the public is not the only judge of governmental performance and in many instances citizens can not sanction agents that are responsibly for policies that affect them directly (e.g. IMF, European Union, etc.)

85. Transparency Transparency induces the accountability holders to provide justiﬁcations for their actions, but there are no guarantees that accountability holdees can apply sanctions Publicity is a necessary condition for democracy but not a sufﬁcient one

86. Multilevel aspects make competencies fuzzy Complex structures cutting across decision levels (e.g. federal states, emerging city-regions, but also the EU, IMF, World Bank, etc) Entails cooperative intergovernmental relations, but the formal division of competencies is often fuzzy (e.g. EU)

87. Diluted responsibility Networks dilute responsibility among a large number of actors (the problem of many hands)

88. Transparency & coupling Policy networks must be (re)coupled to public representative bodies that are able to regulate service provision or policy implementation and which provide the tools for identifying accountability holders and also tools for sanctioning them Policy networks must be re-coupled with the public arena

90. Composition of policy networks Policy networks are largely composed of bureaucrats, policy experts and interest representatives, who are often only indirectly accountable to citizens and sometimes only accountable to their peers (other experts)

91. Peer accountability In governance networks, public accountability is often replaced by peer accountability Durable cooperative interactions between actors are expected to generate self-limitation, empathy and mutual trust, but also mutual black mailing and excessive reliance on reputation and trust

92. Peer accountability... often dwells in one single world view, denying that there are other kinds of knowledge that are relevant President Kennedy visits NY World Fair, Photo source: http://ilongisland.com/Robert_Moses_Long_Island.htm

93. We must step out of the dominant paradigm White Heterosexual Western Male Technocrats anything but... Robert Moses Image source: http://www.newmuseum.org/blog/view/ideas-city-istanbul-or-how-to-obtain-a-building-permit-for-central-park

94. The problem of the ‘non-expert actor’ refers to the Foucaultian idea that knowledge is the property of certain groups, while other groups do not have their knowledge recognized as valid

95. All this means that spatial planners must adopt a different attitude towards plan-making and implementation. They need to perform new roles...

96. THEN All knowing

97. THEN All knowing rt Moses Robe http://www.newmuseum.org/blog/view/ideas-city-istanbul-or-how-to-obtaina-building-permit-for-central-park

98. THEN All knowing rt Moses Robe http://www.newmuseum.org/blog/view/ideas-city-istanbul-or-how-to-obtaina-building-permit-for-central-park

99. THEN All knowing Verena woman is a yo planne ung r rt Moses Robe http://www.newmuseum.org/blog/view/ideas-city-istanbul-or-how-to-obtaina-building-permit-for-central-park NOW Mediator

100. Role playing game based on Karina Sehested’s Urban Planners as Network Managers and Metagovernors (2009). the Great Planni ng Game co@tude ail: r.c.roc Rocco em d: Roberto ©All Right s Reserve Spatial P nni &Slaate ng tr gy lft.nl Elabor at Robert ed by Chair S o Rocco patial P lanning and Str ategy, TU Delf based t on a te xt by Karina Seh Univer sity of ested Copen hagen Click here to see the great planning game on the web

101. to clarify and strengthen the democratic anchorage of network forms of governance ©Ronald Vogel Challenge (for planners?)

102. Participation makes governance more effective

103. Participation makes governance more effective • Strengthens democracy

104. Participation makes governance more effective • • Strengthens democracy Improves legitimacy

105. Participation makes governance more effective • • • Strengthens democracy Improves legitimacy Builds support and understanding for actions

106. Participation makes governance more effective • • • • Strengthens democracy Improves legitimacy Builds support and understanding for actions Likely to deliver more effective results

107. Participation makes governance more effective • • • • • Strengthens democracy Improves legitimacy Builds support and understanding for actions Likely to deliver more effective results A strong argument for participation is that knowledge is constructed in communication. It would be therefore unethical and unintelligent to impose top-down solutions that do not take into account the knowledge of stakeholders.

108. References ALBRECHTS, L., HEALEY, P. & KUNZMANN, K. R. 2003. Strategic Spatial Planning and Regional Governance in Europe. Journal of the American Planning Association, 69, 113-129. EBERLEIN, B. & KERWER, D. 2004. New Governance in the European Union: A Theoretical Perspective. Journal of Common Market Studies, 42, 128. FAINSTEIN, S. 2010. The Just City, Ithaca, Cornell University Press. PAPADOPOULOS, Y. 2007. Problems of Democratic Accountability in Network and Multilevel Governance. European Law Journal, 13, 469-486. RHODES, R. A. W. 1996. The New Governance: Governing without Government. Political Studies, XLIV, 652-667. SALET, W., THORNLEY, A. & KREUKELS, A. 2003. Metropolitan Governance and Spatial Planning, London, Spon Press. SEHESTED, K. 2009. Urban Planners as Network Managers and Metagovernors. Planning Theory and Practice, 10, 245-263.

109. Thanks for watching & listening! With special thanks to Ronald (Daedalus) Vogel from Bremen, Germany, for the use of his pictures. You can see Ronald’s pictures at: Daedalus (V) In Flickr.com or www.daedalus-v.de/english Should you have any questions, please contact r.c.rocco@tudelft.nl And visit our BLOG www.spatialplanningtudelft.eu Challenge(the(future This is Ronald

110. Thanks for watching & listening! With special thanks to Ronald (Daedalus) Vogel from Bremen, Germany, for the use of his pictures. You can see Ronald’s pictures at: Daedalus (V) In Flickr.com or www.daedalus-v.de/english Should you have any questions, please contact r.c.rocco@tudelft.nl This is Ronald And visit our BLOG www.spatialplanningtudelft.eu SpatialPlanning &Strategy Challenge(the(future