“evaluering av plan- og bygningsloven” (evaplan2008) led ... · on-going research in...

Newregions,newplansNorskPlanmøte2016

Befolkningspoli8kkogboligutvikling–FNsNewUrbanAgendaiNorge

DanielGalland

dgalland@plan.aau.dk

Stavanger8November2016

ACKNOWLEDGEMENT

On-goingresearchincollaboraDonwithMariusGrønning(NMBU)withintheframeworkofProjectNo.3293“Evalueringavplan-ogbygningsloven”(EVAPLAN2008)ledbyNIBR

2

THEMESANDQUESTIONS

3

CopenhagenandOsloincomparison-  HowdoestheinsDtuDonalcontextofplanningdealwithametropolitan/

regionalplan?ReacDonstoandconcernsabouttheNUA-  HowcanweinterpretthegovernanceandplanningaspectsoftheNew

UrbanAgendaindealingwithregional/metropolitanspace?PlanningproblemswithnoclearsoluDons-  WhattypeofproblemsareNOTbeingsolvedbytheavailableinsDtuDonal

structuresandplanninginstruments?Howcanplannersgoaboutaddressingsuchissues?

NEWREGIONS,NEWPLANS…inthecontextofreformsoflocalgovernmentstructure…

4

ThecomparisonbetweenDenmarkandNorwayshowsquitedifferen8atedresponsestoadministra8vereformpolicies,andtherebyalsototheinstrumentalorientaDonwithin(metropolitan/regional)planning.

COPENHAGEN’SFINGERPLANIns8tu8onalcontext

•  Aproductofthemunicipalreform(2007)andofitsresul@ngcentralised-decentralisa@on.

•  Re-scalingofplanningtasksandresponsibiliDesandtheaboliDonofcounDesaswellastheGreaterCopenhagenAuthority.

•  Enactmentofthe2007FingerPlanstatedirec8ve.

•  SpaDaldevelopmentframeworkbasedontheregula8onofland-usein34municipaliDesthatmakeupanewlydefinedcity-region.

5

COPENHAGEN’SFINGERPLANInstrumentalcontent

•  Basedontwofundamentalprinciples:proximity-to-staDonandgreenwedges’preservaDon.

•  Urbanexpansionisphasedandzoned:Urbanre-development

–  InternalciDes(urbanregeneraDon)–  Ring3–Orbitalcorridorandnewlightrail–  TownslocatedatthefingerDps

Newurbandevelopment–  AlongthecorridorsandatthefingerDps–  SpecificareasintheinternalciDes

Areasforurbantransportanddistribu8onUniversi8esandindustrialandscien8ficparks

6

COPENHAGEN’SFINGERPLAN

7

COPENHAGEN’SFINGERPLAN

8

OSLO/AKERSHUSREGIONALPLANIns8tu8onalcontext

•  Aproductofthe2008PlanningandBuildingActbasedonajointcollabora@onbetweenOslocitycouncilandAkershuscountycouncil.

•  AregionalplanafempDngtoorganiseandcontrolurbanagglomeraDonspaDallythroughcollaboraDon.

•  Includes22municipaliDesandafemptstosecurethecoherenceoftheoverarchingstructure(e.g.transportnetworks),leavingotherthemestobetreatedatlowerscales.

•  AcontextwherelocalgovernancesDllhassignificantpoliDcalpoweronlanduseandcommunityplanning.

9

OSLO/AKERSHUSREGIONALPLANInstrumentalcontent

•  MakesuseofplanningprovisionsandobjecDons,topreventlocalauthoriDesandprivatedevelopersfromacDngagainsttheregionalplan’sguidelines.

•  Polynuclearurbandevelopmentinaimingtoevenlydistributegrowthbenefitsalongthe3regionalcorridors.

10

EMERGINGOUTCOMESANDCHALLENGES•  ThetwometropolitanspaDalplanspartlyconvergeontheirthemes,butcanwe

reallytalkaboutaScandinavianmetropolitanmodel?

•  AnincreasingdegreeofdivergenceassociatedwithinsDtuDonalcontexts,instrumentalcontentsandplanningprocesses

---

•  Whatrolesdodifferentactors(andplannersspecifically)playwithinthisstructuralreformprocess…

•  HowcanplannersrelatetotheinsDtuDonalstructurestheyareembeddedin?

11

NEWURBANAGENDA(NUA)EFFECTIVEIMPLEMENTATION

Ins8tu8onalcontext

A)BUILDINGTHEURBANGOVERNANCESTRUCTURE§85-§92

InstrumentalcontentB)PLANNINGANDMANAGINGURBANSPATIALDEVELOPMENT§93-§125

12

hfps://habitat3.org

CONCERNSABOUTTHENEWURBANAGENDA(NUA)

13

hfps://habitat3.org

EFFECTIVEIMPLEMENTATION?

§49WecommittosupportterritorialsystemsthatintegrateurbanandruralfuncDonsintothenaDonalandsub-naDonalspaDalframeworksandthesystemsofciDesandhumanseflements….TheNUA’splanningapproachisanestedhierarchyofspa8alplanswithna8onalplansframingthosebelowit.Implica8on:top-downfashion

CONCERNSABOUTTHENEWURBANAGENDA(NUA)

14

hfps://habitat3.org

EFFECTIVEIMPLEMENTATION?§97Wewillpromoteplannedurbanextensions,infill,prioriDzingrenewal,regeneraDon,andretrofijngofurbanareas,asappropriate,includingupgradingofslumsandinformalseflements…§98Wewillpromote(…)plannedurbanextensionsbasedon(…)compactness,polycentrism,appropriatedensityandconnec8vity…

But…throughmeasuresthattendtobelargelyregulatory:

§111WewillpromotethedevelopmentofadequateandenforceableregulaDonsinthehousingsector,includingbuildingcodes,standards,developmentpermits,landuseby-lawsandordinances,andplanningregulaDons…

CONCERNSABOUTTHENEWURBANAGENDA(NUA)

15

EFFECTIVEIMPLEMENTATION?

Olderideasofplanningoienresurface.Inthislight:Shouldplanningandplannersfirstconsiderrela8onsandprocessesbeforeobjectsandforms?

PLANNINGPROBLEMSWITHNOCLEARSOLUTIONS

16

Spa8alexpressionsofintra-urbaninequality

ThespaDalexpressionofstra8fica8onincontemporaryciDesisexplainedby:

-  SocialsegregaDonvs.spaDalsegregaDon-  SocialintegraDonvs.socialassimilaDon

-  SuburbanisaDon-  GentrificaDonanddisplacement

-  GhefoisaDon(asaspaDalexpressionofmarginalisaDon)

•  TheseprocessesmaferinsofarastheycreatehugedistancesbetweensocialstratawithinciDes.

•  Urbanformisperceivedbothasaspa8alexpressionofinequali8esandasafactorthatcontributestosharpenormaintainsuchinequaliDes.

WICKEDPROBLEMS

17

•  HavenodefiniDveformulaDon(e.g.poverty)•  HavemulDpleexplanaDons(eachrelatedtoasoluDon)•  Canbeseenassymptomsofotherproblems(e.g.suburbanisaDon)•  TheirsoluDonsarenottrueorfalse,butgoodorbad•  Theyhavenostoppingrule(i.e.newproblemsalwaysemerge!)•  TheirsoluDonshavenotulDmatetestofsuccess(difficulttoevaluatesoluDons)•  Everyproblemisunique(thereisnooneformula)•  TheirsoluDonsare“one-shotoperaDons”(alwayshavetostartallover)•  Theydonotallowonetobewrong(ethicalandpoliDcalconsideraDons)

(Rifel&Webber,1973)

PLANNINGIMPLICATIONS

18

•  ChallengingsomeofourassumpDonsaboutplanning,includingtheideathatlong-rangeplanningactuallysolvesproblems…

•  Someoftheissuesthatplannersarecalledupontoaddress,infact,havenosolu8ons(e.g.spa@alexpressionsofintra-urbaninequali@es)

-  Whatdoesthisargumentmeanforourunderstandingoftheplanningprocess?

-  Whatdoesitmeanforourunderstandingoftheplanner'srole?

WICKEDPLANNINGPROBLEMS

19

“...nowthat[the]rela@velyeasyproblemshavebeendealtwith,wehavebeenturningouraRen@ontoothersthataremuchmorestubborn.Thetestsforefficiency...arenowbeingchallengedbyarenewedpreoccupa@onwithconsequencesforequity.”

(Rifel&Webber,1973,p.156)