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Spatial Planning for the City-Region

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Spatial Planning for the City-Region spatial planning for the city-region Using Leeds 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 Liverpool, Manchester, Central Lancashire, Leeds, Yorkshire and Humber sub-areas identified by Sheffield, Humber, Tees Valley, 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 Yorkshire and the Humber, 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.
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