The Airport Assembled: Rethinking Planning and Policy Making of Amsterdam Airport Schiphol by Using the Actor-Network Theory
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The Airport Assembled: Rethinking planning and policy making of Amsterdam Airport Schiphol by using the Actor-Network Theory. ISBN 978 90 5972 715 1 Eburon Academic Publishers P/O Box 2867 2601 CW Delft The Netherlands Tel.: +31 (0)15 2131484 / Fax: +31 (0)15 2146888 [email protected] / www.eburon.nl © 2012 BART DE JONG. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without the prior permission in writing from the proprietor. Design by Pixelridder.nl THE AIRPORT ASSEMBLED: Rethinking planning and policy making of Amsterdam Airport Schiphol by using the Actor-Network theory. DE LUCHTHAVEN ALS ASSEMBLAGE: Het heroverwegen van planning en beleid rondom Amsterdam Airport Schiphol met behulp van de Actor- Netwerk theorie. (met een samenvatting in het Nederlands) Proefschrift ter verkrijging van de graad van doctor aan de Universiteit Utrecht op gezag van de rector magnificus, prof. dr. G.J. van der Zwaan, ingevolge het besluit van het college voor promoties in het openbaar te verdedigen op maandag 17 december 2012 des middags te 4.15 uur door Bart de Jong geboren op 2 maart 1981 te Oudenbosch Promotoren: Prof. dr. ir. L. Boelens Prof. dr. O. A. L. C. Atzema Co-promotor: W. L. Wissink Dit proefschrift werd mede mogelijk gemaakt met financiële steun van Schiphol Group. Preface 9 Part I: Introduction 11 Chapter 1 Introducing Amsterdam Airport Schiphol: 13 Airport development in a complex reality 1.1 The perceived policy deadlock of Amsterdam Airport 18 Schiphol 1.2 The approach: Actor-Network theory 25 1.3 Research objectives, questions and added value 29 1.4 How to read this book 32 Chapter 2 1906 – 2006: Ninety years of Schiphol policy debate: 33 From airfield to mainport 2.1 The pioneer phase: 1916-1945 34 2.2 The second growth phase: 1945-1967 42 2.3 The transition phase: 1967-1988 50 2.4 Rise and fall of the Dual Objective: 1988-2006 58 2.4.1. Formulating a new Schiphol law 58 2.4.2. Landside developments: the airport city and the 65 region 2.4.3. The Polderbaan and beyond 69 2.5 Conclusions 74 Part II: Towards a descriptive grid 81 Chapter 3 Introducing the Actor-Network Theory 83 3.1 The Actor-Network Theory 84 3.1.1 First Notion: a priori definitions are obsolete 85 3.1.2 Second Notion: all actors are equal 86 3.1.3 Third Notion: consider networks of 87 heterogeneous materials 3.2 Process of translation 88 3.2.1 Problematization 90 3.2.2 Interessement 92 3.2.3 Enrolment 92 3.2.4 Mobilization 93 3.3 ANT & criticism 95 3.3.1 Machiavellian criticism 96 3.3.2 Relativistic criticism 96 3.3.3. Symmetric criticism 97 3.4 ANT and policy making 97 3.5 Latour’s political program: some additional comments 101 3.6 Conclusions 103 Chapter 4 Getting the data right: 107 Translating ANT towards a research framework 4.1 Reconsidering agnosticism: 110 Introducing the prevailing practice 4.2 All actors are equal: 111 The difference between power in potentia and power in actu 4.3 Refining generalized symmetry: 112 Going beyond the symmetric criticism 4.4 Describing shared uncertainties: 114 How to explore controversies with Actor-Network Theory 4.5 Formulating a research framework 117 4.6 Gathering data 121 4.6.1. Analysis of documents and materials 121 4.6.2. Observational techniques 122 4.6.3. Open interviews 123 4.6.4. Methodological triangulation 125 4.7 Methodological Summary 125 Part III: Mapping Controversies: 129 the Alders Table case Chapter 5 The Alders Table: 131 Formulating the short term advice 5.1 First Controversy: 133 The difficult formation of the Alders Table. 5.1.1. Taking into account 133 5.1.2. Putting in rank order 139 5.2 Second Controversy: 147 Formulating the Alders advice about the short-term (<2010) 5.2.1. Taking into account 147 5.2.2. Putting in rank order 153 Chapter 6 The Alders Table: 159 Formulating the mid-term advice 6.1 First Controversy: 161 2+2 Runway Configuration 6.1.1. Taking into account 163 6.1.2. Putting in rank order 166 6.2 Second Controversy: 169 Broadening the assignment 6.2.1. Taking into account 169 6.2.2. Putting in rank order 177 6.3 Presenting the Alders advice for the mid-term 180 Chapter 7 The Alders Table: 189 Implementation 7.1 Idle reverse thrust 192 7.1.1. Taking into account 193 7.1.2. Putting in rank order 201 7.2 Radius-to-fix technique: CROS pilot 3b 202 7.2.1. Taking into account 203 7.2.2. Putting in rank order 208 7.3 Alternate route design for the Spijkerboor departure 212 7.3.1. Taking into account 212 7.3.2. Putting in rank order 217 7.4 Conclusions 222 Intermezzo: Assessing the outcomes of the Alders Table 225 Part IV: Presenting a normative grid 237 Chapter 8 Analysis: 239 From delegative democracy towards dialogical democracy 8.1 The Hybrid Forum 240 8.1.1 Dialogical space 240 8.1.2 Normative criteria for classifying dialogical 242 procedures 8.2 The Hybrid Forum and relational planning 245 8.2.1 Relational planning 247 8.2.2 Multiplanar theory of spatial planning and 248 governance 8.2.3 The actor-relational-approach 250 8.2.4 New perspectives on spatial planning: some 252 comments 8.3 Presenting a dialogical framework for planning and policy 254 making 8.4 Conclusions 256 Chapter 9 Recommendations and Conclusions: 259 Schiphol Assembled 9.1 Recapitulating research questions 1 – 3 260 9.1.1 Towards a descriptive grid 261 9.1.2 Mapping Controversies: the Alders Table case 264 9.1.3 Presenting a normative framework 265 9.2 Schiphol as dialogical space 266 9.2.1 Set concrete and accountable goals 267 9.2.2 Diminish the impact of politicizing science and 269 scientized politics 9.2.3 Planning as facilitator 274 9.3 Conclusions 277 Bibliography 279 Appendix A Alders Table members 287 Abbreviates 291 List of Interviewees 292 Nederlandse samenvatting 295 Preface This dissertation is dedicated to the three loves of my life: My wife Esther, who passed away too early and who I still miss intensely every day, my daughter Sterre, for giving me a reason to wake up every morning, and my new girlfriend Sanne, for showing me that the future can be bright again. I would like to thank Luuk Boelens, Oedzge Atzema, Gerlach Cerfontaine, Joop Krul, Maurits Schaafsma, Peter de Kruijk, all my former colleagues at Schiphol Group, all my present colleagues at the municipality of Haarlemmermeer and Menno Huys. Most of all I would like to thank Bart Wissink. Bart de Jong Utrecht, 2012 Part I: Introduction Chapter 1 Introducing Amsterdam Airport Schiphol: Airport development in a complex reality A rainy morning on 7 March 2012: in a small conference room at the main office of Schiphol Group – the limited liability company that owns the airport – representatives of the aviation sector, national, regional and local governments and inhabitants have gathered to discuss the forthcoming Alders Table. The Alders Table is a consultative body consisting of members of the public sector, the private sector and civil society, which, from 2006 onwards, has formulated recommendations concerning the future capacity of Schiphol in combination with hindrance-reducing measures. With reference to Schiphol, this was the very first time that such an agreement had been made between the aviation sector, governmental parties and the local inhabitants. 13 The most important item on the agenda for the next week is the implementation of ‘Continuous Descent Approaches’ (CDAs) at Amsterdam Airport Schiphol during the day regime.1 The day regime at Schiphol extends from 07.00 to 23.00. After 23.00, the more stringent night regime comes into operation. During the night, there is a fixed maximum of air transport movements (32,0002), while noise emissions during the night are scored higher than emissions during the day, and CDAs are already compulsory. All representatives have their own reasons for wanting CDAs to be implemented at Schiphol during the day: the aviation sector wants to implement CDAs as part of a new European air traffic management system and a stable operation, the inhabitants believe that a CDA is a great noise abatement technique, and the regional and local governments see CDAs as a means to create more spatial development opportunities on the ground. However, until that moment, government bodies and inhabitants alike had rejected all suggestions made by the aviation sector concerning the implementation of CDAs. Therefore, an independent consultancy – which does a lot of research within the Schiphol file – was asked to sum up the pros and cons of all three suggestions advanced between 2009 and 2012. The first suggestion stated that the implementation of CDAs between 22.00 and 23.00 would be feasible in 2009. The aim was to start on the Aalsmeerbaan (in Dutch, ‘baan’ means ‘runway’) and to extend the use of CDAs to the Zwanenburgbaan and the ‘noise-preferential’ Kaagbaan and Polderbaan3 (see figure 1.1). The inhabitants rejected this suggestion, as one of the agreements made had been to start with the implementation of CDAs on the noise-preferential runways. Furthermore, this would lead to more air transport movements on the Aalsmeerbaan, which the inhabitants regarded as undesirable. The second suggestion was made in the last quarter of 2011. Within this proposition, 24/7 standard instrument departures (SIDs)4 were introduced and the day and night regime, which had been effective until then, would disappear.