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The Methodology of Regional Planning, the Case of The THE METHODOLOGY OF REGIONAL PLANNING, THE CASE OF THE GALIL, ISRAEL 1975-1986. THESIS SUBMITTED FOR PH.D. DEGREE AT THE LONDON SCHOOL OF ECONOMICS AND POLITICAL SCIENCE, THE UNIVERSITY OF LONDON. ORLY GILAT May, 1992. UMI Number: U062504 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U062504 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 Ti+cSs-fcS F 7o^i £ of POUTSCAL tH 9*Q. "* ^ >M?C *° *3.1lfc27^lk ACKNOWLEDGMENT I express sincere appreciation to Prof. Derek R. Diamond for his remarkable guidance and insight throughout the research. His faith in me and unconditioned assistance made this dissertation possible. Gratitude is expressed to Ms. T. Duchan for her contributing comments and invaluable information regarding the case study. Thanks go to Mr. Y. Friedman for his cooperation and useful information, and all those who provided me access to important data bases - particularly Prof. E. Katzir, the Rural Settlement Department of the Jewish Agency for Israel, Mr. A Eitan (Ministry of Treasury), Ms. D. Shalev (Central Bureau of Statistics), Ms. H. Peri (Ministry of Industry and Trade). Thanks also go to Dr. D. Morgenstern and Ms. P. Garner (Microage Computers LTD.) for their assistance in editing this dissertation. All the best to Ms. A. Yiannakou for being the best friend to share my efforts. To my family, I offer sincere thanks for your unshakable faith in me and your willingness to endure with me the vicissitudes of my endeavours. Orly Gilat May, 1992 2 ABSTRACT The "Achilles heel" of regional planning in the past has consistently proved to be the failure to achieve success in implementing plans. Most scholars acknowledge this reality, but disagree over its explanation, thus, the inadequate theoretical base for planning practice. The essential question behind this dissertation is: What makes decision-makers adopt and implement a given planing product? This concern is based on the perception of planning as a process that depends not merely on the plan's content and competency, but on the way planners choose to integrate their proposals into the decision-making environment within which they operate. Since a plan's approval does not necessarily imply its implementation, it is in the interest of planners to promote implementation. Accordingly, this dissertation proposes a methodological framework to guide planners in creating a highly implementable product. The framework encompasses three elements: the region, with its perceived relative condition guiding the determination of its expected future; the decision-making environment, and the potential to exercise different planning functions within it; and the planning approach which is forged into a strategic perspective that integrates planners' skills and imagination, creating a firm basis for guiding the integration of a planning product into a specific decision-making system, as a means to promote its implementation. The framework is tested through the examination of a particular planning experience in the Galil region of Israel. These two parts, when put together, enable planners to apply prevailing knowledge and skills so as to bridge the gap between plan-making and implementation. 3 ^ TABLE OF CONTENTS Page List of Diagrams ...................................... 8 List of Maps .......................................... 8 List of Tables ........................................ 8 PART I: INTRODUCTION Chapter 1: Overview .................................... 9 PART II: REGIONAL STRATEGIC APPROACH Chapter 2: The Regional System The "Region" Defined ................................... 23 Regional Analysis ...................................... 34 The Determinants of Regional Structure ................. 41 Conclustions ........................................... 52 Chapter 3: Seeking Long Range Change - The Decision Making Arena Introduction ........................................... 53 3.1 Resource Allocation Processes .................... 55 3.1.1 Elements permitting access to resources ..... 62 3.1.2 Forces promoting the realisation of potential access to resources ......................... 74 3.2 Integrating Determinants Into Planning ........... 92 3.2.1 The functional foundation of planning practice 93 3.2.2 Commitment within the planning process ...... 100 3.2.3 The case of long-run decision-making ........ 114 Conclusions ............................................ 122 5 Chapter 4: Turning Vision Into Practice - Regional Strategy . Introduction ........................................... 126 4.1 Regional strategy defined ........................ 127 4.2 The case for a regional strategy ................. 130 4.3 Boundaries of concern ............................ 136 4.4 The organisational context of regional strategy .... 143 4.4.1 The initiation and management of regional strategy .................................... 144 4.4.2 The role of planning function ............... 155 4.5 Strategic Break-Thrhough .......................... 171 Conclusions ............................................ 184 PART III: REGIONAL PLANNING - REALITY REVISITED Chapter 5: The Western Galil Introduction ........................................... 188 5.1 Delineation of Boundaries ......................... 193 5.2 Physical Structure ................................ 197 5.3 Demography ........................................ 200 5.4 The Settlement System............................. 202 5.5 The Economic System............................... 211 5.6 The Institutional Structure ....................... 216 Conclusions ............................................ 228 Chapter 6: Regional Development Plans Introduction ........................................... 238 The development of planning thought in the JAFI ........ 243 6.1 Segev development plans ........................... 246 6.2 Region 2000 development strategy .................. 256 Conclusions ............................................ 268 6 Chapter 7: Planners' Potential to Function Introduction ........................................... 281 7.1 The Written Planning Product ..................... 286 7.1.1 The choice of "partners" .................... 288 7.1.2 Relations with partner's official policy and presumed interests ..................... 293 7.1.3 Concreteness of proposals ................. 297 7.1.4 Distribution of costs ..................... 299 7.1.5 Timing of presentation .................... 301 7.1.6 Strategic perspective ...................... 303 7.2 Institutional Locational Characteristics .......... 309 7.2.1 The direct institutional context .......... 312 7.2.2 The indirect institutional context .......... 326 Conclusions ............................................ 349 Chapter 8: The Planning Experience In Western Galil - 1975-1986 Introduction ........................................... 353 8.1. The Planning Product - Western Galil Links ......... 358 8.2. The Planning Function - Decision Making Links ..... 371 8.2.1 Production of plans ......................... 373 8.2.2 Marketing the planning product ............. 379 8.2.3 Contribution to implementation ............. 389 8.3. Putting Potential to Use ......................... 403 PART IV: CONCLUSIONS AND PRACTICAL IMPLICATIONS Chapter 9: Conclusions ................................ 417 Appendices ............................................ 437 Bibliography .......................................... 457 7 UST OF DIAGRAMS 1. Commitment Under Risk Conditions .................. 112 2. Regional Strategy ................................. 179 1. The Jewish Agency For Israel ...................... 438 UST OF MAPS 2. Israel, Galil, and Western Galil .................. 189 3. Western Galil, Distribution of major land uses .... 196 UST OF TABLES 1. Israel - Spatial Distribution of Population ......... 439 2. Western Galil - Population Size (1987) ............... 440 3. Western Galil - Demographic characteristics .......... 441 4. Western Galil - List of Settlements .................. 443 5. Western Galil - Population Growth .................... 446 6. Western Galil Population - Relative Growth Trend ...... 446 7. Jewish Population - Distribution According to Type of Settlement .............. 447 8. Western Galil - Settlements' Volume .................. 448 8 Chapter 1: OVERVIEW This dissertation is concerned with the subject of regional planning; its task is to propose a planning approach that can lead to a highly implementable planning product, one with a potential for promoting actual actions. This area of concern is marked by its very rich base of theoretical positions and research studies grounded in a wide variety of social science disciplines. Indeed, the literature developed over the course of the past 40 years has much to offer to the understanding of different aspects of regional systems and planning functions - the way they are structured and operate, the means by which to analyse historical processes, and future prospects. Whereas during the 1950s and 1960s regional systems, planning processes, and
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