spatial planning for the city-region

Using as a case study example, Dave Counsell and Graham Haughton look at spatial planning for the city-region, focusing on integration between different tiers in the planning hierarchy

Recent years have seen a number of new policy scales for spatial and economic governance being proposed by government policy documents. Examples include meta-regions such as the Northern Way and Midlands Way, the Sustainable Communities Plan growth areas and housing market renewal areas, and the (re-)emergence of city-regions. The city-region in particular has received considerable political and media attention. After the North East voted in a referendum against having an elected regional assembly, some key lobby interests began to align themselves with the idea that city-regions might be the way forward for devolution in England. With the powerful Core Cities Group of eight English local authorities seeking to position large provincial cities higher up the national agenda, city-regions have been much talked about.1 This article looks at spatial planning in the Leeds city-region. Its focus is on integration between different tiers in the planning hierarchy, ranging from new ‘meta-regions’ such as the Northern Way to local action area strategies. It begins by looking at how an emerging city-region Above scale is being inserted into the policy hierarchy, but in an inconsistent way alongside existing Northern Way city-regions ‘administrative’ sub-regions. It then explores Source: www.thenorthernway.co.uk how plans at different policy scales relate to each other and to delivery, drawing on more than 20 Communities Plan seemed to be planning only for interviews with regional policy-makers and decline in the North, not growth. To counteract stakeholders conducted between 2004 and 2007. such accusations, leading players in the North West, Yorkshire and Humber, and the North East City-regions, sub-regions and sub-areas were invited to put together a strategy for the While Leeds had been engaged in work on its ‘Northern Way’, covering all three regions. city-region for a number of years, more Led by the regional development agencies substantive action followed the release of the (RDAs), the resulting strategy was at heart about Northern Way Growth Strategy.2 The Northern increasing economic competitiveness across the Way had been set in motion initially by national North. Its main innovation was in suggesting government as it sought to quell the concerns of that this could best be achieved by recognising northern politicians that its Sustainable cities as the drivers of economic growth, leading

248 Town & Country Planning August 2007 to a decision to focus attention on eight city-regions – Table 1 , , Central Lancashire, Leeds, Yorkshire and Humber sub-areas identified by , Humber, , and Newcastle. These individual strategies were initially defined with fuzzy boundaries, so it was not entirely clear what lay within and outside each city- Strategy Identified sub-areas region.3 The eight city-regions were presented as drivers of economic growth in the North, and as equals Northern Way Three city-regions: Leeds; – although in practice the Leeds-Manchester axis is Sheffield; Hull and Humber widely recognised as the principal driver of growth. Yorkshire and Four sub-regions: North As the Northern Way is not a spatial strategy, its Humber Regional Yorkshire; South Yorkshire; West spatial ambitions were to be achieved through the Economic Strategy Yorkshire; Humber three regional spatial strategies (RSSs), a method (RES) that proved somewhat contentious. In , the RSS was already well-advanced Yorkshire and Seven sub-areas: Leeds city- when the Northern Way growth strategy was Humber Regional region; South Yorkshire; Humber published, and concerns were expressed about its Spatial Strategy Estuary; York; Coast; Vales and status and the extent to which its proposals would (RSS) Tees links; Remoter rural stand up to scrutiny at an RSS public examination.4 One interviewee commented: ‘Some parts of the sense that three principal regional policy government have argued that the role of Regional documents divided Yorkshire and Humber into three Spatial Strategies is to implement whatever the different sets of sub-divisions (see Table 1 above). growth strategy is... and the growth strategy is set The make-up of the Leeds city-region in the by the Northern Way pan-regionally... but we have Northern Way has itself evolved and, out of argued that they also have a role in testing the necessity, become firmer as it translates into a growth strategy. No-one is really sure whether the development programme. Nevertheless, some evidence base is going to stand up to public differences still remain between the Northern Way scrutiny!’ (Regional planner, 2004.) and draft RSS definitions of the Leeds city-region, in When the draft RSS for Yorkshire and Humber addition to the overlaps already mentioned. The RSS was eventually published in December 2005,5 it identifies a city-region with a population of took on board concerns about the status of the 2.7 million, covering the five local government areas Northern Way, while at the same time recognising of West Yorkshire (Bradford, Calderdale, Kirklees, the role of city-regions as key economic drivers: Leeds, and Wakefield), the whole of the Barnsley ‘The plan is a key delivery vehicle for the Northern and York local authority areas, plus parts of North Way Growth Strategy. It provides an opportunity to Yorkshire, including Selby and parts of the Craven test, refine and develop the Northern Way approach and Harrogate districts. The Northern Way, on the to ensure that competitive and sustainable other hand, refers to a city-region with a population economic growth is beneficial to the whole region. of 2.8 million people which covers the whole, not The plan reflects the direction of the ‘Northern Way’ part of the Craven and Harrogate districts.6 which seeks to realise the potential of city-regions, A number of issues arise out of this apparently as the main motors of economic growth...’ inconsistent approach to the sub-region/city-region Interestingly, while recognising the importance of scale, not least of which are questions about the city-region approach, by dividing the region into governance and how to co-ordinate the spatial ‘functional’ sub-areas the Yorkshire and Humber planning sub-areas in the draft RSS with the city- RSS chose not to reproduce directly the three city- regions of the Northern Way and the four sub- regions identified in the Northern Way. This is a regions used in the Regional Economic Strategy to pragmatic response to concerns when the Northern guide investments by Yorkshire Forward (the Way was published about its lack of attention Yorkshire and Humber RDA). towards areas lying on the edge of or outside the Interviews conducted during 2006/07 suggested defined city-regions. that regional stakeholders recognised these So while the draft RSS does identify a Leeds city- problems and were seeking ways to address them. region, it also identifies additional sub-areas, including For example, a formal joint committee is being a York sub-area, which overlaps with the Leeds city- established by the 11 local authorities which lie region’s boundaries. The overlap with York, and also wholly or partly within the Leeds city-region as with South Yorkshire, is curious as it adds a degree defined in the draft RSS. Most importantly, in 2007 of continuing fuzziness to what are otherwise much Yorkshire Forward committed itself to moving ‘harder’ boundaries than those shown initially in the towards city-regional boundaries by 2009 for its Northern Way. These overlaps were seen by some of future investment planning.7 those interviewed to add an additional complication At the time of our interviews, there was a to a situation that was already somewhat unclear, in widespread feeling that sub-region/city-region

Town & Country Planning August 2007 249 boundaries represented a considerable and continuing The relationship between RSSs and local challenge for policy-makers. One local planner noted: development frameworks is defined in statute, and ‘In addition to this we now have the Northern Way... while there is some continuing confusion caused by we have city-regions emerging... both from the the fact that in some cases the two tiers of plan are original Core Cities ambition... the interface in the being prepared in parallel, these snags should draft RSS between the sub-regions and city-regions... eventually be resolved as respective plans go through and what this might mean in terms of governance... the public examination process. More difficult, To put it politely, it’s very busy at the moment... but perhaps, will be integrating spatial plans with the it does seem to be slightly un-co-ordinated...’ investment programmes of the economic (Interview, 2006.) And a city-region investment development and regeneration agencies, especially planner observed: ‘The whole sub-regional landscape with the boundary differences between ‘functional’ has been a barrier to effective city-region working... city-regions in the RSS and Northern Way and And one of the ways we are now trying to address ‘administrative’ arrangements currently used by that is through developing governance arrangements Yorkshire Forward for its regional investment planning for the Leeds city-region...’ (Interview, 2007.) purposes. Recognising this issue, in 2007 the board of Yorkshire Forward resolved to move towards city- Better integrated policy? regional boundaries by 2009 for its future At the regional scale, the principal institutions in investment planning, albeit with some concern Yorkshire and Humber (Yorkshire and Humber about how to address areas which lie outside them. Assembly, Yorkshire Forward, and the Government This was a cause of concern for some of the Office for Yorkshire and Humber) have aspired to interviewees, as expressed by a regional stakeholder: integrate policy in the different regional strategies and ‘I don’t get the sense that there’s much integration programmes. A high-level policy document, Advancing between the LDF scale and sub-regional investment Together,8 is reflected in all key regional strategies, planning processes... It’s pretty much different sets of and each of the individual strategies includes a people working on different agendas... from different section indicating how it aligns with the others. parts of the local authorities.’ (Interview, 2006.) Attempts to better integrate regional policy were One of the difficulties in co-ordinating spatial reflected in the comments of people interviewed, plans with investment programmes concerns particularly those directly involved. A regional timescales – RSSs and LDFs take a long-term view, assembly representative argued persuasively that: have legal status, and therefore have to go through ‘[We] are now more integrated... due in part to the a lengthy process of public consultation and fact that this year we had the review of three scrutiny. Most government investment and strategies at the same time... Regional Economic regeneration programmes, on the other hand, focus Strategy, Regional Spatial Strategy and Regional on the relatively short term and are not subject to Housing Strategy... and we did things like having a the same degree of public scrutiny. common text on Advancing Together... So they are As noted by one local planner: ‘One of the much better integrated than they were... and I think priorities in Leeds is for regeneration of the city, and that will improve when we take over housing there are many pieces of regeneration work going responsibility.’ (Interview, 2005.) on... some of which involve spatial planning issues The draft RSS also talks about producing a delivery and some of which do not... they’re all about plan that will ‘bring together the RSS/LDF and the housing renewal. And to some, of course, the LDF investment programmes of the Sub-Regional is seen as a long-winded process holding up Investment Programme [of the RDA], Sub-Regional regeneration activity on the ground...’. (Interview, Housing Partnership, Local Transport Plan Partnership 2006.) And a city-region investment planner told us: and the City-Region Development Programme...’ (p.76). ‘We’re trying to join them up as much as possible... This is a more ambitious target, proposing to bring but because of different timescales it’s been difficult together the RSS and local development frameworks for one to properly inform the other. In future (LDFs) with delivery programmes administered by a revisions of RSS it’s hoped we can integrate the range of other regional and local bodies. Despite City Region Development Programme and RSS continuing contention about governance arrangements together better than they are...’ (Interview, 2007.) and boundaries, the city-region/sub-areas were viewed The difficulties of integrating spatial plans with by the Regional Assembly as a bridge between regional various local and national government sectoral and local policy in the Leeds city-region: ‘The sub investment plans can perhaps be best observed at area approach provides an effective bridge to local the local neighbourhood scale. One of the local planning strategies, helping to link through the Plan, as development documents in Leeds is a draft action a Regional Spatial Strategy, with Local Development area plan for the Aire Valley, a key regeneration area Documents... Similarly the sub area approach also where new commercial and residential development provides a more specific basis for prioritising and has been constrained for a number of years by guiding investment across the Region.’ 9 inadequate transport infrastructure. How do policy

250 Town & Country Planning August 2007 documents such as the Northern Way and the RSS economic and transport strategies, and in the case of address delivery of development at such a local scale? the Northern Way. While the same As the Northern Way investment strategy takes a local partner bodies are involved in all these policy sectoral rather than a spatial approach to economic streams, the personalities are frequently different, regeneration, it does not directly address the Aire putting an onus on integration not only between tiers Valley initiative, although in appendices it identifies of policy, but also between different sectoral interests. the Aire Valley as a key regeneration area, together Add to these difficulties the lengthy timescales with road and public transport improvements associated with the preparation of spatial plans, the needed there. The draft RSS also identifies the Aire uncertainties of outcome associated with public Valley as a ‘sub-regionally significant economic and scrutiny of RSSs and LDFs, and the problems of housing regeneration opportunity which will require governance and boundaries referred to earlier, it is major infrastructure investment’ (p.80). On the other perhaps not altogether surprising that integrated hand, the people interviewed who were involved at spatial planning remains a policy aspiration rather the local scale in the regeneration of the Aire Valley than a reality. New initiatives such as multi-area struggled to find links into higher-level strategy agreements might help resolve some of these documents and were apparently unaware of issues, but it is much too early to comment on their deliberations on these documents. effectiveness. A local regeneration officer commented: ‘I don’t • Dave Counsell is a Research Fellow and Graham Haughton is know anyone who knows what the Northern Way is Professor of Human Geography in the Geography Department of about. We know the Northern Way’s there... that Hull University. This work was funded under ESRC grant number something’s happening... Yorkshire Forward have RE-000-23-0756. Further details, including working papers, can picked up that Aire Valley could be important to that be found on www.hull.ac.uk/geog/research/GFH1.htm – one, because it’s a significant regeneration area, and, Notes two, in terms of its location [in the M62 corridor]... So 1 See, for instance, the section in the IDeA website we’re bang on it but... You keep reading about it... and relating to the city-region debate, at www.idea- there’s an occasional conference... but I’ve yet to meet knowledge.gov.uk/idk/core/page.do?pageId=4730940 anybody who can really tell me what the Northern Way 2 Moving Forward: The Northern Way. First Growth is really, really about. From an Aire Valley perspective, Strategy Report. North West Development Agency, [for] some of the challenges that we face, particularly One North East, and Yorkshire Forward, 2004. in relation to transport, the Northern Way could w: www.thenorthernway.co.uk/ potentially be significant, but we’re not clear how 3 For further detail, see D. Counsell and G. Haughton: ‘New spaces of governance: the Northern Way’. we can actually plug into that.’ (Interview, 2006.) Regional Review, 2005, Vol. 15 (1), pp.5-6 Concerns were also expressed about the 4 For further details, see D. Counsell and G. Haughton: effectiveness of the RSS in dealing with regeneration- ‘Advancing together in Yorkshire and Humberside’. based initiatives, reflected by the following comments In M. Tewdwr-Jones and P. Allmendinger: Territory, from a local planner: ‘So this new plan [RSS] has this Identity and Spatial Planning. Routledge, 2005 policy on growth areas... and we didn’t see the policy... 5 Regional Spatial Strategy for Yorkshire and Humber: It assumes there are growth areas... across our area... Consultation Draft. Yorkshire and Humber Assembly, but growth doesn’t occur in this way now. It did when 2005, p.27 we were developing green belt land, and when 6 The Development Programme. The Northern Way, Jun. 2005. w: www.thenorthernway.co.uk/ planners were planning... but since we are now downloaddoc.asp?id=17 (a second version published developing brownfields, it’s very scattered. So yes, on the Northern Way website in September 2006 – there are targeted areas where we know there will along with appendices setting out visions for be growth... such as the Aire Valley... But most of the transport and beginning to introduce more of a areas we are focusing on are regeneration projects... ‘Northern Way’ spatial vision for the Leeds city- and they are not growth areas... There doesn’t seem to region – keeps the same boundaries) have been any dialogue there... they’ve been working 7 See www.yorkshire-forward.com/asset_store/ document/corporate_plan_annex_b_improvement_ on it for three years... and yet the plan that goes out plan_141043.doc doesn’t have any detail in it....’ (Interview, 2006.) 8 Advancing Together: The Vision and Strategic These comments in part reflect the rapidity with Framework for Yorkshire and Humber. Yorkshire and which the city-region agenda is unfolding in Leeds, Humber Assembly, Government Office for Yorkshire with more information recently emerging about what and Humber, Yorkshire Forward, 2005. it might mean in delivery terms.10 Nonetheless, the w: www.yhassembly.gov.uk/dnlds/Advancing% concerns raised here reinforce what has been said 20Together.pdf many times about the difficulties of integrating 9 The Yorkshire and Humber Plan Examination in Public: Background Paper 1 – The Core and Sub Area spatial planning with delivery of spatial development. Approach.Yorkshire and Humber Assembly, 2005, p.12 Neither RSSs nor LDFs are essentially delivery 10 See www.northernway.co.uk/page.asp?id=179 for the vehicles – delivery is often achieved through different September 2006 updates of the Leeds City Region policy streams, such as those linked to regional Development Programme

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