Planning for States and Nation/States: A TransAtlantic Exploration

15th-16th October 2012 UCD Newman House, St Stephen’s Green, Dublin 2

DANIEL GALLAND & STIG ENEMARK

AALBORG UNIVERSITY, DENMARK DGALLAND@PLAN.AAU.DK

HTTP://PLAN.AAU.DK/~DGALLAND

PLANNING FOR STATES AND NATION/STATES: A TRANSATLANTIC EXPLORATION UNIVERSITY COLLEGE DUBLIN, NEWMAN HOUSE DUBLIN, IRELAND OCTOBER 15, 2012

THE DANISH NATIONAL SPATIAL PLANNING FRAMEWORK

1. CONTEXT AND HISTORICAL BACKGROUND 1. OVERVIEW OF THE DANISH PLANNING SYSTEM 1. STRUCTURE OF PLANNING/LAND-USE POLICY AND

GOVERNANCE 1. FACTORS SHAPING DANISH SPATIAL PLANNING 1. KEY FEATURES AND LESSONS

OUTLINE

DENMARK AT A GLANCE

43,000 km2

5.58 million inhabitants 1/3 living in Greater Copenhagen

66% agriculture 16% heathland 10% urban 7% water bodies

Copenhagen

Aalborg

Aarhus

Odense

HISTORICAL BACKGROUND THE FORMER DANISH PLANNING SYSTEM

National Planning Overall framework established through guidelines and directives

Regional plans Revised and published every 4 years

Municipal plans Revised and published every 4 years

Local plans Prepared since 1977

1970s - 2007 • “Matryoshka” system

• Classical-modernist conception of

political institutions (Hajer & Wagenaar,

2003)

• Territorial synchrony – demarcated organisational set-up (Hajer, 2003)

• Keynesian welfare national state

(Jessop, 2000)

• Planning as “…the spatial expression

of the welfare state” (Jensen &

Jørgensen, 2000)

• Socio-spatial logic: hierarchical urban settlement pattern

National

Regional

Municipal Local

1ST MUNICIPAL REFORM TERRITORIAL SYNCHRONY

Before 1970 After 1970

NATIONAL AND REGIONAL PLANNING

1981 1980 - 2005

DANISH SPATIAL PLANNING

EU Compendium of Spatial Planning Systems and Policies

• Danish spatial planning as a

“comprehensive-integrated” system based on the principle of framework control

• “… systematic and formal hierarchy of

plans from national to local level, which coordinate public sector activity across different sectors but focus more specifically on spatial co-ordination than economic development” (CEC, 1997, pp. 36-37)

Decentralisation of planning responsibilities - Local representative democracy responsible for local needs

- Combining responsibility for decision making with accountability

for economic, social and environmental consequences

- Providing monitoring and enforcement procedures

Comprehensive planning - Combining aims and objectives, land-use structure planning,

and land use regulations into one comprehensive planning

document covering the total jurisdiction

Public participation - Providing awareness and understanding of the need for

planning regulations in respond to local needs

- Legitimising local political decision making

THREE CORE PRINCIPLES

• Amalgamation of municipalities and abolition of the county level

• Process geared towards managerial efficiency and economies of scale, overlooking geographical criteria

• Rescaling of planning tasks and

responsibilities:

“Centralised - decentralisation”

(Andersen, 2008)

2ND MUNICIPAL REFORM (2007)

2ND MUNICIPAL REFORM (2007) PLANNING IMPLICATIONS

• The scope and performance of the planning system changed in terms of:

• planning conception • planning roles • spatial logics • development orientations • institutional

arrangements

(Galland 2012a, 2012b)

National Planning 12 Regional Plans 271 Municipal Plans 1200 Local Plans

Enforced National Planning 5 Regional ‘Spatial’ Development Plans 98 Municipal Plans 1200 Local Plans

THE NEW DANISH PLANNING SYSTEM

National Planning - National planning report

- National interests - National planning directives

Regional Development

Plans

Municipal Plans

- Planning strategy of the municipality

- Land-use planning for urban and rural areas

Local Plans

RegionalGrowthFora

Businessdevelopmentstrategies

1970 - 2007 Current

Outcome of 1st municipal reform

Outcome of 2nd municipal reform

National Planning Overall framework established through guidelines and directives

Regional plans Revised and published every 4 years

Municipal plans Revised and published every 4 years

Local plans Prepared since 1977

THE DANISH PLANNING POLICY FRAMEWORK

FORMER NATIONAL PLANNING REPORTS

(Ministry of the Environment, 1992)

FORMER NATIONAL PLANNING REPORTS

(Ministry of Environment & Energy, 2000)

FORMER NATIONAL PLANNING REPORTS

(Ministry of the Environment, 2006)

CURRENT NATIONAL PLANNING POLICY

- In 2012 - ‘Green focus’: Sustainable growth, climate and energy, ‘the open land’, DK in a Nordic context

- Less related with the differentiated, strategic spatial reasoning and framing of the former generation of plans (1992, 1997, 2000, 2003 & 2006)

- Instrument stating national (sectoral) policy interests and considerations

- The Minister has the right and obligation to veto municipal planning proposals that contradict national interests

2010 National Planning Report

State’s interests in municipal planning

COPENHAGEN FINGER PLAN NATIONAL DIRECTIVE

- Spatial development framework for the whole city-region according to the principle of station proximity

- Regulates land use in Greater

Copenhagen’s 34 municipalities - Four geographical zones:

- The core (the palm) - The periphery (the fingers) - Green wedges (between & across

urban fingers) - The rest of the urban region

REGIONAL ‘SPATIAL’ DEVELOPMENT PLANNING

- Visionary scope - Focus on regional

strengths for economic growth

- In accordance with

business development strategies

MUNICIPAL PLANNING

- Traditional/Statutory Land-Use Planning

- General structure - Guidelines for land use - Regulatory framework

for local planning

- Master/Strategic Planning of Cities and Suburbs

- Climate Adaptation Planning : Not fully integrated with municipal planning

LOCAL PLANS

- Serve as the legal basis for implementing any major development projects

- Main instrument to issue detailed

planning regulations and means for planning control through building permits

- Plans made available on the national

planning information system http://plansystemdk.dk

LOKALPLAN 10-075NORDKRAFT

AALBORG MIDTBY

AALBORG KOMMUNETEKNISK FORVALTNING

SEPTEMBER 2006

LOKALPLAN 1-1-104MUSIKKENS HUS

AALBORG MIDTBY

AALBORG KOMMUNETEKNIK- OG MILJØFORVALTNINGEN

MARTS 2010

INTERPLAY BETWEEN DEVELOPMENT ORIENTATIONS &

PLANNING ROLES

(Galland, 2012a)

FACTORS SHAPING AND RE-SHAPING SPATIAL PLANNING IN EUROPE

(Adapted from Albrechts et al,

2003)

KEY FEATURES SUMMARY

Plan-led system Strong means of development control; local plans provided prior to any major development

National steering Means of veto to safeguard national sectoral policies

Comprehensive local planning Policies, land-use planning and regulations in one document at the municipal level

Strong decentralisation Planning developed and adopted at local level; public participation ensured and no opportunity for appeals

KEY LESSONS

From “equal” to “appropriate” development From welfarism to neoliberalism

From framework control to “centralised decentralisation” Due to the abolition of the county level

Spatial planning regarded more as a cost than an asset At least since 2001

Towards “spaceless” national and planning Divergence from its comprehensive-integrated tradition

Less to do with spatial coordination

Loss of political clout Government support of other sectors has indirectly decreased the strategic spatial conception of planning at national and regional levels

FURTHER READING ON DANISH PLANNING

CEC (Commission of the European Communities) / Enemark, S. (1999) The EU Compendium of Spatial Planning Systems and Policies - Denmark, Luxembourg: Office for Official Publications of the European Communities.

Enemark, S. & Jørgensen, I. (2001) National-level planning in the Danish system, in National-level Planning

in Democratic Countries. An International Comparison of City and Regional Policy-making, (Ed.) R. Alderman, Liverpool: Liverpool University Press.

Galland, D. (2012a) Understanding the reorientations and roles of spatial planning: The case of national

planning policy in Denmark, European Planning Studies, 20 (8): 1359-1392. Galland, D. (2012b) Is regional planning dead or just coping? The transformation of a state socio-spatial

project into growth-oriented and spaceless strategies, Environment & Planning C: Government & Policy, 30 (3): 536-552.

Galland, D. & Enemark, S. (2012) The Danish National Spatial Planning Framework, Lincoln Institute of Land

Policy Working Paper Series. Galland, D. & Hansen, C.J. (2012) The roles of planning in waterfront redevelopment: From plan-led and

market-driven styles to hybrid planning? Planning Practice & Research, 27(2), pp. 203-225. Galland, D. & Enemark, S. (2013) When spatial planning becomes spaceless? The impact of structural

reforms on planning systems and policies, submitted to The Journal of the American Planning Association.

DANIEL GALLAND DGALLAND@PLAN.AAU.DK

HTTP://PLAN.AAU.DK/~DGALLAND

THE DANISH NATIONAL SPATIAL PLANNING FRAMEWORK