Spatial Planning and Opportunities for Children's Participation: A Local Governance Network Analysis

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This study examines children's limited participation in Belgian urban planning through a one-year case analysis using social network and multi-actor governance theories, revealing that developing dedicated advocacy networks can enhance children's influence on spatial planning decisions.

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Children, Youth and Environments 15(2), 2005 Spatial Planning and Opportunities for Children’s Participation: A Local Governance Network Analysis Hilde Lauwers Wouter Vanderstede Centre for Research on Childhood and Society Belgium Citation: Lauwers, Hilde and Wouter Vanderstede. (2005). “Spatial Planning and Opportunities for Children’s Participation: A Local Governance Network Analysis.” Children, Youth and Environments 15(2): 278-289. . Comment on This Article Abstract Although children and teenagers intensively use public spaces, they are often marginalized in local planning debates. In Belgium, like in other West-European countries, spatial planning policy is managed by an extensive set of judicial procedures and officially established participation moments. How can children be involved in these urban planning projects? For one year, we investigated the development of a local urban planning project in a municipality in Flanders to detect opportunities and obstacles for children’s participation and child advocacy. Our analysis of the planning policy was inspired by recent theories on multi-actor governance and social network analysis. These theories offer opportunities to grasp the multileveled and intricate structure of local policy and to identify not only the “usual suspects” but also the more hidden actors and events. This close reading convinces us that possible children’s advocates need to develop their own network of actors. If this network has a talent for translating children’s needs into spatial planning and can influence decision making, then children’s participation in spatial planning becomes attainable. Keywords: Belgium, children’s participation, planning policy, urban planning, spatial planning, policy network analysis© 2005 Children, Youth and Environments Spatial Planning and Opportunities for Children’s Participation… 279 Advocating for Children as Users of Public Space Although children and teenagers intensively use public spaces, they are often marginalized in local planning debates (e.g. Percy-Smith 2002, 78; Horelli 1998, 226; Matthews, Limb and Percy-Smith 1998, 198-199). In Belgium, like in other West-European countries, spatial planning policy is managed by an extensive set of judicial procedures and officially established participation moments. How can children be involved in urban planning projects? How can children’s direct experience of space have any influence on such an abstract and highly complex policy? The Centre for Research on Childhood and Society1 is currently undertaking research and actions in the field of children’s participation in spatial planning. To gain insights in local urban planning processes, we conducted a case study (Stake 2000; Gerring 2004; Yin and Campbell 1991) in a municipality in Flanders. For one year, we investigated the development of a local urban planning project in order to detect opportunities and obstacles for both children’s participation and advocacy for children (Lauwers and Vanderstede 2005). Governance and Network Analysis In Flanders, the responsibility for developing, designing and executing local urban planning policy: the council, the municipal executive, and the counseling body (the Local Town Planning Commission – LTPC). The policies are developed within the framework of specific regulations. First, the local authority develops a Spatial Structure Plan. Herein a broad, general spatial vision is developed and an action plan for projects is formulated. This action plan is gradually executed through the design of local Spatial Implementation Plans, each of which comprises a limited area like a neighborhood or an industrial estate. For each Spatial Implementation Plan, a strict procedure must be followed. Each stakeholder (like the town council, the LTPC, the regional government or the province) has a specific responsibility in the design of the plan. Because each stakeholder can alter and even reject a draft, there are usually several drafts made. Although official authorities design the policy, other actors who do not hold an official mandate, also influence policy and defend their interests with fervor. To identify all these stakeholders, we found inspiration in recent theories on multi-actor governance (Dowding 1995; De Rynck and Voets 2003; Arts and van Tatenhove 2002; Van Ark and Edelenbos 2003) and social network analysis (e.g. Hanneman 2001). These theories offer the opportunity to grasp the multileveled and intricate structure of local policy and to identify not only the “usual suspects” but also the more hidden actors and events. Policy making is thus considered not as an act of a central authority...

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De wortels van de Randstad. Overheidsinvloed en stedelijke hiërarchie in het westen van Nederland tussen de 13de en 20ste eeuw
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The starting point of this study concerns the origins of the polycentric nature of contemporary cities in the western area of the Netherlands, commonly known as ‘the Randstad’. Within the disciplines of planning and urban design the Randstad is considered a textbook example of a polycentric urban hierarchy. Yet, although quite a popular topic, very little is actually known about the driving forces that have given shape to existing urban hierarchies throughout the world. Moreover, the Randstad has also been dubbed ‘Holland’s paradox’ because of its assumed reversed evolution from a primate city hierarchy focused on Amsterdam in early modern times, to a polycentric hierarchy in the 19th century. Why do urban hierarchies change over time and which factors were decisive for the rise of the polycentric Randstad? This study consists of two parts and six chapters. Part I explores the determining factors of change within urban hierarchies. The first chapter gives an assessment of the usefulness of existing theory and ends in confusion: firstly, historiography turns out to be a medley of explanations that are heterogeneous and sometimes even contradictive. Secondly, comparisons of the long-term development of multiple towns are lacking, which makes it difficult to come up with a theoretical approach. In order to make such comparisons and ascertain the impact of certain factors on urban hierarchies over time, it’s necessary to look at the development of a group of towns over a long time-span. Therefore, in the second chapter, simple statistics are compared with existing theory and literature. To do so, demographic data for the nine towns of Amsterdam, Haarlem, Leiden, Delft, The Hague, Rotterdam, Dordrecht, Gouda and Utrecht were compared from their first appearance in the 13th century until the end of the 20th century by projecting their demographic hierarchy in a graph and on a map. In this manner explanations were measured on their applicability for the case of the Randstad. This explorative exercise results in both a description of long-term change in hierarchy in the Randstad and a theoretical approach. Long-term change in the urban hierarchy of the Randstad roughly proceeded in three phases. In the Middle Ages there was a polycentric hierarchy wherein the oldest cities, Utrecht and Dordrecht, were dominant. Although all towns in Holland grew rapidly in the 14th century, by the 1560s one of the youngest and smallest towns, Amsterdam, suddenly took the lead. In the second phase, between 1560 and 1795, a monocentric hierarchy developed with Amsterdam as a primate city. In this dynamic period, where many towns changed ranks, severe growth followed by shrinkage occurred simultaneously with sharpening inequality between towns. In the third phase, between 1795 and 2000, the hierarchy became polycentric once more, with a group of large towns taking the lead. 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During the Middle Ages a town’s competitive position could be stimulated with (1) international trade policy (safe conducts, trade agreements), (2) national economic policy (protectionist measures, staple- and minting policy), (3) exceptions of generally applied restrictions (town charters, toll exceptions), (4) distribution of governmental institutions, (5) donations of land property and kingly privileges, (6) granting of infrastructural concessions and awarding (7) urban autonomy. Heavy taxing and prolonged warfare were competitive disadvantages. In the early modern era (1) international trade policy, (2) distribution of governmental institutions and (3) infrastructural concessions were part of the toolkit. Heavy taxing was once more a disadvantage. During the modern era simulative measures were (1) funding of infrastructure, (2) industrial policy, (3) distribution of governmental institutions, (4) national spatial planning and (5) popular housing policy. 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The overall package moved from a rather versatile toolbox in the 13th and 14th centuries to an increasingly limited one in the early modern period. In the 15th and 16th centuries, a discernable trend towards diminishing the variation in competitive advantages sets in, resulting in a rather limited toolbox in the 17th and 18th centuries. After a short expansion of instruments in the first half of the 19th century and a subsequent phase in the second half of the same century, where the number of instruments again strongly declined, the 20th century once again showed a governmental toolbox of various nature. On the long term, infrastructure and the distribution of governmental institutions were permanently part of the competitive advantages-toolbox; although before the 19th century sovereign government virtually never initiated the construction of infrastructure. Throughout most of the investigated period international economic policy and taxing played a role. Local exceptions like town charters and urban autonomy were exclusively medieval phenomena while spatial planning and popular housing policy are only found in the modern period. During the Middle Ages exclusive competitive advantages and common measures were both applied. Almost all nine towns seem to profit from this, although Dordrecht was generally more privileged than others. From the 15th century on exclusive privileges gradually disappear and more collective measures are taken, from which Amsterdam seems to profit. In the early modern era, the overall majority of measures taken were collective ones aimed at the common interest of towns or the region. Nonetheless, somehow Amsterdam seems to have profited above average without exception. In the modern era so many ‘collective’ stimulating measures were taken that this resulted in rather different competitive positions spatially. The distribution can best be characterized as a continuous strive for balance. Looking at the distribution of competitive advantages, governmental activity was variable throughout the entire period. Lots of competitive advantages were distributed in the 13th, 14th, early 17th and early 19th centuries. Subsequently governmental involvement gradually increased and in the 20th century government had its hands full continuously. In sharp contrast, distribution in the 16th and in particularly the second half of the 17th and 18th centuries was rather sparse. Strikingly, other measures than instruments that were explicitly aimed at the towns’ interests show the biggest correlation with change in the demographic hierarchy as shown in chapter 2. In the Middle Ages structural warfare coincided with the marked rise of Amsterdam and recession in the others; tax pressure in early modern times correlated with the decline of towns with industrial profiles; and 20th century demographic decline related to building restrictions in modern times. In general, the governmental role to change in urban hierarchy can best be understood as a facilitative one. The abovementioned centers of gravity in the distribution of competitive advantages coincided with periods of economic expansion and demographic growth in towns. This was the case in periods of urban expansion in the 13th-14th centuries and the 17th century. Only in the 19th century did governmental action precede urban growth. Although side effects in general seem to have been decisive, there’s one marked exception to the rule. The head start of the three biggest towns, and the catching up of Rotterdam and The Hague, does correlate with the construction of (inter)national infrastructure and the distribution of governmental institutions between the 1850s en 1950s. This means that the rise of the polycentric Randstad, exceptionally, was created by conscious use of aimed governmental instruments! This study concludes with a striking hypothesis. Via the description of the governmental organization in each period, by accident attention is drawn to the fact that by bargaining over tax funds, towns themselves gathered political influence in the 15th and even power in the 17th-18th centuries. The rise of urban power coincides with stagnation in the distribution of competitive advantages and the disappearance of exclusive instruments out of the governmental toolkit. This, firstly, gave rise to the suspicion that, once in power, urban representatives preferably avoid the stimulation of opponents’ competitive positions. When combined with the fact that, after disabling towns financially and politically, sovereign government in the second half of the 19th century pursued a policy wherein they kept aloof of dominant Amsterdam and stimulated other large towns, a second hypothesis can be formulated. Could it be that the rise of the polycentric Randstad wasn’t coincidence, and that Holland’s paradox was the result of a deliberate reckoning with an old political elite?

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• Programme to integrate spatial planning and energy planning. • Creating strategic database for energy transition in spatial planning. • Applying strategic maps to harmonize district heating, mobility and spatial development. • Applying energy transition thinking for sustainable spatial planning. • Holistic implementation programme for scientific knowledge in local spatial planning. How we plan our towns, cities and regions is inseparably connected to energy demand, greenhouse gas emissions and the way how we can manage the transition to sustainable renewable energy systems. Therefore, we propose that integrated spatial and energy planning is an important part of energy transition and climate protection strategies. In this article, we discuss how the energy transition and spatial planning can be holistically integrated, and how this theoretical framework combining the factual findings of integrated spatial and energy planning and strategic concepts of spatial planning can be put into practice in municipal spatial planning. We demonstrate the applicability of the approach in an action research process in the Austrian Province of Styria involving the Government representatives, municipalities and spatial planners. The whole approach includes, as tangible outputs a strategic database, strategic maps, and a planning guidance for municipalities on the one hand, and a further education programme for planners and municipal decision makers on the other hand. Finally, the applicability, transferability and limitations of the approach are discussed. As the approach is not only established in Styria, but at the moment also put forward in two further Provinces so that we can, in total, cover about 63% of all Austrian municipalities with this approach, we also propose that this approach can serve as a role model not only for local and regional energy transition and climate protection policies around the world, but also for shaping third mission activities of universities.

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