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English Planning and Governmentality: the Case of the London Legacy Development Corporation Cecil Sagoe

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English Planning and Governmentality: the Case of the London Legacy Development Corporation Cecil Sagoe English Planning and Governmentality: The Case of the London Legacy Development Corporation Cecil Sagoe Submitted for the degree of PhD in Geography at University College London. 1 Declaration I confirm that the work presented in this thesis is my own. Where information has been derived from other sources, I confirm that this has been indicated in the thesis. 2 Abstract This thesis investigates how contemporary English planning operates as a system of governmentality. It explores what policy agendas, what rationalities of governing, and which governance actors have shaped the London Legacy Development Corporation’s (LLDC’s) housing and regeneration plans for London’s Olympic area. In doing so, the thesis discusses how English planning’s structural technologies and statutory spaces of governing currently operate to shape the production of local-level plans. Crucially, the LLDC’s planning process offers an important opportunity to observe in real time the structuring impacts of the English planning system on a Local Plan production process. This thesis adopts a broad conceptual approach which draws from Foucauldian literature, critical approaches to neoliberalism, relational approaches to multi-level governing, the regulatory capitalism discourse, and critical pragmatism. To gather research data, a multi-method approach was employed comprising process observation, participant observation, planning document analysis and interviews. This thesis presents three key findings. Firstly, that English planning has structured the LLDC into privileging economic growth goals, market-based criteria, the role of the private sector, financial considerations, and technocratic forms of governing within their housing and regeneration plans; although this thesis discusses other policy goals and rationalities of governing that have also shaped the LLDC’s plans. Secondly, that English planning’s structural technologies of governing, and statutory spaces within the LLDC’s planning framework, have empowered governance actors who are privileging these policy goals and rationalities of governing to exert chief influence over the LLDC’s housing and regeneration plans. Thirdly, that governance actors who are challenging these policy goals and rationalities of governing, and seeking to privilege social justice goals and principles, have had marginal influences on the LLDC’s plans. Bringing these findings into conversation with this thesis’ conceptual framework, the argument is developed that in the arena of local-level planning English planning currently operates as a system of neoliberal governmentality. Key words: LLDC, governmentality, English planning, neoliberalism, social justice, housing, regeneration, community. 3 Contents Abstract ...................................................................................................... 3 Contents ..................................................................................................... 4 List of figures .............................................................................................. 9 List of tables ............................................................................................. 11 Abbreviations ........................................................................................... 12 Acknowledgements .................................................................................. 14 Chapter one: Introduction ........................................................................ 16 1.1 Research aims and scope .................................................................................. 16 1.2 Research questions and arguments .................................................................. 26 1.3 Thesis structure ................................................................................................. 29 Chapter two: Conceptualising English planning as a system of governmentality……. ................................................................................. 32 2.1 Introduction ...................................................................................................... 32 2.2 English planning, neoliberalism and social justice ............................................ 35 2.2.1 Conceptualising governance and English planning ...................................... 35 2.2.2 Planning under neoliberalism ...................................................................... 38 2.2.3 Planning for social justice ............................................................................. 42 2.3 Governmentality and the English planning system ........................................... 45 2.3.1 Conceptualising the ‘how’ question of governance: Foucault and governmentality ........................................................................................... 46 2.3.2 English planning and multi-level governing ................................................. 48 2.3.3 Rules-based planning within England .......................................................... 52 2.4 Community participation in planning ............................................................... 56 2.4.1 Community: A contested but meaningful concept ...................................... 57 2.4.2 Community participation in planning: Limitations and possibilities ............ 59 2.5 Conclusion ......................................................................................................... 67 Chapter three: Methodological approaches to exploring planning within the LLDC’s boundary…… ................................................................................. 72 3.1 Introduction ...................................................................................................... 72 3.2 Research design: Case selection and research participants ............................. 72 3.2.1 Selecting case studies and research participants ........................................ 72 3.2.2 Case studies and research participants ........................................................ 73 3.2.2.1 The production of the LLDC’s Local Plan ........................................... 73 4 3.2.2.2 Studying the planning of new neighbourhoods within the LLDC’s planning boundary ............................................................................. 76 3.2.2.3 Studying the planning of existing neighbourhoods within the LLDC’s planning boundary ............................................................................. 78 3.2.2.4 Planning for Gypsy and Traveller accommodation within the LLDC’s boundary ............................................................................................ 80 3.2.2.5 London-wide case study .................................................................... 81 3.3 Methodologies for exploring housing and regeneration planning within the LLDC’s boundary ................................................................................................ 82 3.3.1 Combining methodological approaches ...................................................... 82 3.3.2 Principles of an ethnographic approach to data collection ......................... 83 3.3.3 Principles of action research ........................................................................ 85 3.3.4 Ethical issues encountered within my research ........................................... 88 3.4 Research methods and data analysis ................................................................ 92 3.4.1 Research methods ........................................................................................ 92 3.4.1.1 Process/participant observation ........................................................ 92 3.4.1.2 Planning document analysis .............................................................. 93 3.4.1.3 Interviews .......................................................................................... 94 3.4.2 Data analysis ................................................................................................ 95 3.5 Reflections on my research process .................................................................. 97 3.6 Conclusion ......................................................................................................... 99 Chapter four: National, metropolitan and local policy goals shaping the LLDC’s housing and regeneration plans .................................................. 101 4.1 Introduction .................................................................................................... 101 4.2 Planning and regeneration history of London’s Olympic area ........................ 104 4.2.1 Planning and regeneration history of London’s Olympic area prior to London 2012............................................................................................................ 104 4.2.2 The LLDC’s establishment .......................................................................... 116 4.3 The policy goals filtering vertically through the planning system................... 121 4.3.1 The policy goals lying at the heart of the NPPF ......................................... 121 4.3.2 The NPPF and planning for social and ‘affordable’ housing ...................... 122 4.3.3 Planning for social and ‘affordable’ housing in The London Plan .............. 126 4.3.4 The NPPF and planning for Gypsy and Traveller accommodation ............. 132 4.3.5 The London Plan and planning for Gypsy and Traveller accommodation . 135 4.4 The policy goals travelling horizontally through the planning system............ 136 4.4.1 Newham
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