Strategic Urban Planning Industrial Area Development in the Netherlands, to Direct Or to Interact?

STRATEGIC URBAN PLANNING INDUSTRIAL AREA DEVELOPMENT IN THE NETHERLANDS, TO DIRECT OR TO INTERACT? Ph.D. committee prof.dr. W.H.M. Zijm University of Twente, chairman prof.dr.ir. H.J. Grootenboer University of Twente, secretary prof.dr. G.P.M.R. Dewulf University of Twente, ¯rst promotor prof.dr. A.M.J. Kreukels Utrecht University, second promotor dr. W.D. Bult-Spiering University of Twente, assistant-promotor prof.dr.ir. J.I.M. Halman University of Twente prof.dr. J.T.A. Bressers University of Twente prof.mr.drs. J.T.P.M. Troch University of Twente prof.dr. W.G.M. Salet University of Amsterdam prof.dr.ir. R.E.C.M. Van der Heijden Radboud University Nijmegen Copyright © 2005 by R.S. de Graaf All rights reserved. No part of the material protected by this copyright notice may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage and retrieval system, without the prior permission of the author. ISBN 90-365-2260-9 Author email: [email protected] STRATEGIC URBAN PLANNING INDUSTRIAL AREA DEVELOPMENT IN THE NETHERLANDS, TO DIRECT OR TO INTERACT? PROEFSCHRIFT ter verkrijging van de graad van doctor aan de Universiteit Twente, op gezag van de rector magni¯cus, prof.dr. W.H.M. Zijm, volgens besluit van het College voor Promoties in het openbaar te verdedigen op donderdag 24 november 2005 om 16.45 uur door Robin Sacha de Graaf geboren op 22 februari 1977 te Nijeveen Dit proefschrift is goedgekeurd door de promotoren: prof.dr. G.P.M.R. Dewulf prof.dr. A.M.J. Kreukels Assistent-promotor: dr. W.D. Bult-Spiering Preface This dissertation is about strategic planning. Strategic planning holds the view that the success of projects depends for a great deal on the contribution of several stakeholders. This refers not only to the development of industrial areas in The Netherlands, but also applies to this Ph.D. research. Many 'stakeholders' have contributed to this research and have made it possible for me to ¯nish it success- fully. For this I want to thank friends, family, colleagues and others who have helped and supported me with my Ph.D. project. First I want to thank my supervisors, prof.dr. Geert Dewulf and prof.dr. Ton Kreukels for their enthusiastic support, their helpful criticism, and for their believe that I would be able to ¯nish this project. I also want to thank dr. Mirjam Bult- Spiering as assistant supervisor, but also for being a mental coach in di±cult times. I particularly acknowledge the ¯nancial support received from the Development Agency East Netherlands (Oost NV). Oost NV partially ¯nanced this Ph.D. research for four years. By doing this, they showed much con¯dence in a successful ending of this research and illustrated its value for society. Special thanks go to Ton Beune, Toon van Asseldonk, Theo FÄollingsand Liane van der Veen who had been the driving forces behind the funding. Further thanks go to the people I have interviewed for their willingness to invest time in this research. In particular the project leaders because they have provided me the opportunities to evaluate the projects they are responsible for, have given me access to various documents and have taken the time to check my draft reports. I also want to thank my family, friends and Ph.D. colleagues of the Department of Construction Management & Engineering, for their support, useful advise, lunch walks, squash games, and so on. My colleagues all want to be named in the preface as a return for checking my writings, so here they come: Arjen, Anneloes, Albertus, Jasper, Inge, Mieke, Marnix, and Erwin. 3 Special thanks go to Peter van der Scheer for checking chapter three and four of the thesis and to Gerard Rauwerda and Linda de Graaf for joining me on stage as Paranymphs. Finally a special word of thanks goes to Marjan. You are always very supportive, especially in di±cult times, and you have always reminded me that my Ph.D. project is only one thing in life. Together with you, the future looks bright! Enschede, September 2005 Robin de Graaf 4 Summary Research background This research is about developing new industrial areas. Developing new industrial areas is not without problems because they have a large impact on the living envi- ronments of many di®erent people. For the planning team that is responsible for the development, it is di±cult to interact with all the di®erent people and organizations and to consider their various and often conflicting interests and values. Careful management is needed to develop a product that performs well in the eyes of all these stakeholders. Nowadays, there is a tendency to involve stakeholders in the planning process to improve performance. The idea is that planners develop plans with the stakeholders instead of developing plans for them. However, little is known how interaction influences performance and little knowledge is avail- able that is based on substantial empirical evidence. This research contributes to that knowledge. It is an exploratory research that explores possible relation- ships between interaction and performance (process and product performance) by conducting in-depth analyses of Dutch industrial area developments. The main research question is formulated as follows: "How does interaction in the planning process influence process and product performance?" Basic concepts The ¯rst element in this research question is 'interaction'. It addresses the interaction in the planning process between the planning team stakeholders and between the planning team and non-planning team stakeholders. Interaction is de¯ned with the use of a ladder of interaction, which is developed by PrÄopper and Steenbeek (1998). The ladder shows the degree of influence that stakeholders can get; moving up the ladder, the degree of influence increases, and moving down, it decreases. The facilitative, co-operative, delegating and participative degrees of this ladder are characterized as 'interactive styles of policy making'; the other styles (consultative, open, and closed) are 'non-interactive'. The second element in the research question is 'planning process'. A strategic planning model is developed to describe the planning process. This model is based on strategic planning 5 in the business sector and is adapted to make it suitable for the study of industrial area developments in The Netherlands. The strategic planning model stresses the interaction with the stakeholders and states that performance needs to be de¯ned and measured in stakeholders' terms. The third element in the research question is 'performance'. The research makes a distinction between process and product performance. It holds the view that stakeholders who are involved or a®ected by the planning process or its outcomes are the ones who need to de¯ne and judge performance. Therefore, process and product performance are in fact perceived process and product performance, which is a di®erent way of de¯ning performance than in most other researches. Main points of departure Several decisions have been made at the start of the research. The ¯rst decision has been to study the plan-making phase of the planning process because studying the planning process in an early phase makes it possible to consider not only decision taking, but also decision making. Moreover in the plan-making phase most interaction takes place. The second decision was to carry out two data collection moments, one at the beginning of 2004 and one at the end of 2004. In the period between these data collection moments, the planning process is monitored. This was done to get insight into the dynamics of processes. The third decision was to interview several di®erent types of stakeholders. These are: the project leader (often from municipality), the political leader (often from municipality), Provinces, Water Boards, business interest organizations, citizen interest organizations, en- vironmental organizations and other relevant planning team organizations. This has been decided because the success of the planning process should not only be de¯ned from the perspective of one dominant stakeholder, but also from the perspective of other stakeholders. The fourth decision is related to the research strategy. A useful research strategy to ¯nd answers to the research question is found in the method for building theories from case study research. This method is developed by Eisenhardt (1989) and is a eight-step method of developing theory based on cases. In this research the cases were industrial area developments in The Netherlands. Each case has been studied in-dept to become familiar with each case as a stand-alone entity (within-case analysis) and the cases have been compared to each other (cross-case analysis). Within-case study analysis The within-case analysis starts with a description of the basic spatial character- istics of the industrial area that is developed. Several sources of information have been used (e.g. project plans, draft zoning plans, minutes, websites and so on). The second part of the within-case analysis describes the main stakeholders, the 6 degree of interaction with each of the stakeholders and the arguments for these degrees of interaction. The third part analyzes the relation between interaction and performance. This data is collected through interviews with the stakeholders, because they de¯ne and judge process and product performance. In the within-case analysis, a distinction is made between analyzing static and dynamic relations. Static relations are the relations between interaction and performance in each of the two data collection rounds. The word 'static' is chosen because this part of the cross-case analyzes the relation between interaction and performance as if the process is frozen in each data collection moment.

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