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Strategic Spatial Planning – a Case Study from the Greater South East of England

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Strategic Spatial Planning – a Case Study from the Greater South East of England The London School of Economics and Political Science Strategic spatial planning – a case study from the Greater South East of England David Church A thesis submitted to the Department of Sociology of the London School of Economics for the degree of Master of Philosophy, London, July 2015 2 Declaration I certify that the thesis I have presented for examination for the M.Phil degree of the London School of Economics and Political Science is solely my own work other than where I have clearly indicated that it is the work of others (in which case the extent of any work carried out jointly by me and any other person is clearly identified in it). The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without my prior written consent. I warrant that this authorisation does not, to the best of my belief, infringe the rights of any third party. I declare that my thesis consists of 60 973 words. 3 Abstract The aim of this thesis is to investigate, through the method of a case-study at two levels (development site and sub-region), the historical development of and current mechanisms used to deliver strategic spatial planning (large scale housing development). The theoretical underpinnings of strategic spatial planning are examined, including some key planning paradigms such as the ‘green belt’, ‘city regions’ and ‘spatial planning’. The key dichotomy of current policy – the ‘desire to devolve’ through localism and the counteracting ‘centralising tendency’ as expressed through urban containment policy is then discussed. The substantive element of the research is an examination of these policies in practice, through a case-study at two levels. The first level of the case study is a site-level forensic examination of the West of Stevenage development, first put forward in the early 1990s but which is currently in abeyance without a single home having been built. The second level of the case study is a sub-regional study of the issues facing those with tasked with implementing strategic spatial planning across three very different local authorities – Stevenage, Luton and North Hertfordshire. This element of the research has been carried out largely through the medium of qualitative interviews with senior planning professionals, senior local politicians and a senior executive at a Local Enterprise Partnership. One significant piece of quantitative research is also presented in the research: a highly accurate, Great Britain wide survey of land use based on up to date Ordnance Survey data. The research concludes by offering five suggestions to improve strategic spatial planning in a growth area like the wider South East of England (four practical, policy-related steps and one theoretical reconceptualising of the discipline). Thanks to my supervisor, Professor Fran Tonkiss, and to the interview participants for their time and insights. My love, as always, to Kristine. Thank you for all your love and support during the past seven years. 4 Contents Chapter 1 – Purpose and overview of research 1.1: Overview of research 7 1.2: Paradigms and planning doctrine 14 1.3: The ‘ugly sisters’: neoliberal planning and spatial liberalism 22 1.4: ‘Soft spaces’ and fuzzy boundaries: functional economic areas and city-regions 25 1.5: The desire to devolve: localism and strategic spatial planning 29 1.6: The centralising tendency: the role of green belts in strategic spatial planning 33 1.7: Power, planning and vested interests 43 1.8: Central-local relations and institutional scalar linkages 45 1.9: Strategic spatial planning and the housing question 52 1.10: Infrastructure: The role of transport in strategic spatial planning 60 Chapter 2 – Research methods 2.1: Introduction 66 2.2: Subjects and Procedures 66 2.3: Measures 74 2.4 Qualitative measures 74 2.5 Quantitative measures 75 Chapter 3 – Strategic spatial planning in the Greater South East 3.1: Introduction 77 3.2: The dismantling of the regional tier and the ascendancy of the sub-regional approach 79 3.3.1: The National Planning Policy Framework - Overview 87 3.3.2: The National Planning Policy Framework - The ‘duty to cooperate’ 94 3.3.3: The National Planning Policy Framework - The New Homes Bonus 98 3.3.4: Local Enterprise Partnerships 99 3.3.5: Community Infrastructure Levy (CIL) 106 5 Chapter 4 – Strategic spatial planning at the site level: The West of Stevenage proposals 4.1: Overview of the development process 109 4.2: The site 112 4.3: The local plans and their relationship to the Structure Plan 112 4.4: Main issues connected with green belt designation 113 4.5: Persimmon Homes takes legal action against Stevenage BC 118 4.6: Central government’s role in the Stevenage West proposals 120 4.7: Housing targets & ‘urban capacity’ 122 4.8: (Non) cooperation and planning doctrine 125 4.9: Main strategic transport policy issues 127 4.10: Site-specific transport issues 130 Chapter 5 – Strategic spatial planning at the sub-regional level: Stevenage, Luton and North Hertfordshire 5.1: Cross-boundary co-operation 136 5.2: Creative solutions to the strategic spatial planning conundrum 141 5.3: Using strategic spatial planning as a tool to achieve political goals 143 5.4: The ‘alchemy’ of turning historical trends into future projections 145 5.5: Cross-scalar governance relations 148 5.6: The new machinery of strategic spatial planning: LEPs, the NHB and CIL 150 5.7: Strategic transport issues 159 5.8: Other strategic infrastructure issues 161 5.9: Moral, ethical and professional issues associated with strategic spatial planning 163 5.10: The art of the possible: strategic spatial planning in the Cambridge sub-region 168 Chapter 6 – Discussion and Conclusions 6.1: Significant findings of the study 172 6.2: Suggestions for reform of strategic spatial planning in England 173 6 6.2.1: Unit of governance for strategic spatial planning 173 6.2.2: Development control 174 6.2.3: Urban containment 175 6.2.4: Infrastructure 176 6.2.5: Theoretical development of strategic spatial planning 177 6.3: Limitations of the research 178 6.4: Discussion and reflections on the research 179 Bibiliography 182 Appendix - the interview material 200 7 List of tables and figures Table 1 List of case-studies selected for further investigation 69 Table 2 List of interview participants and interview dates/locations 74 Table 3 Jessop et al’s (2008) original Territory, Place, Scale, Networks model 77 Table 4 Modified Territory, Place, Scale, Networks model as it applies to current research 78 Table 5 Ordnance Survey MasterMap analysis of Great Britain 170 Figure 1 The GSE, showing Greater London green belt and urbanized areas 70 Figure 2 The study area local authorities in relation to the GLA 71 Figure 3 The West of Stevenage site in relation to A1(M) 72 Figure 4 Ordnance Survey aerial image of the West of Stevenage site 73 Figure 5 LEP 2015 Growth Fund per capita spend 153 8 Chapter 1 Purpose and aims of research 1.1: Overview of research This thesis examines current approaches, placed within their historical contexts, to what has consistently been one of the most challenging aspects of urban policy in England: strategic spatial planning, through the medium of a case-study. This Chapter begins by examining the main theoretical concepts necessary for an understanding of strategic spatial planning (in the context of this research taken to mean significant housing development, along with associated infrastructure). The first of these broad concepts is the role of ‘planning paradigms’, such as the green belt, city regions and spatial planning within the ‘doctrine’ of the discipline. The overarching political and economic framework within which strategic spatial planning operates is then discussed, through the framing devices of neoliberal planning and ‘spatial liberalism’, which are more helpful concepts in an urban context than the catch-all container of neoliberalism. Important spatial manifestations of neoliberal planning, principally ‘Functional Economic Areas’ (FEAs) and ‘city regions’, characterised by Allmendinger and Haughton (2009) as ‘soft spaces’ with fuzzy boundaries are introduced before the core sections of the Chapter present the key dichotomy of the research: the incompatible political ideals of localism (‘the desire to devolve’) and urban containment (‘the centralising tendency’). Short sections on power, planning and vested interests and central-local relations in the context of strategic spatial planning complete the theoretical introduction to the research. The Chapter concludes by acquainting the reader with the substantive subject of the research: the role of strategic spatial planning in the housing question, and the critical, but often neglected, issue of the infrastructure necessary to support significant new development. Chapter 2 details the Methods employed in the research, employing the straightforward 9 and standard format of ‘Subjects and Procedures’. In essence, the research is a qualitative, interview based study of a case-study at two levels: a site-level study of a proposed greenfield development more than two decades in the making (and which has yet to see a spadeful of earth turned or a brick laid), and the wider sub-regional context of which the site forms but one part of the strategic spatial planning puzzle. After detailing the processes used to select the case study and the interview participants, the ‘Measures’ section sets out the practicalities of the interview process and the procedures followed to ensure the ethical integrity of the research, including obtaining consent to record and transcribe the interviews and the measures taken to preserve the appropriate level of anonymity of the participants. This Chapter concludes by introducing the one significant piece of quantitative analysis of the research: a highly accurate, Great Britain wide survey of land use using Ordnance Survey data.
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