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Ruimte Voor Een Democratische Rechtsstaat Ruimte voor een democratische rechtsstaat Geschakelde sturing bij ruimtelijke investeringen Wouter-Jan Oosten Ruimte voor een democratische rechtsstaat Geschakelde sturing bij ruimtelijke investeringen Space for a democratic rule of law Connected steering at spatial investments Proefschrift ter verkrijging van de graad van doctor aan de Erasmus Universiteit Rotterdam op gezag van de rector magnificus prof.dr. S.W.J. Lamberts en volgens besluit van het College voor Promoties. De openbare verdediging zal plaatsvinden op vrijdag 9 september 2005 om 13.30 uur door Wouter-Jan Oosten geboren te Doetinchem. Promotiecommissie Promotor: prof.dr.ing. G.R. Teisman Overige leden: prof.mr.dr. E.F. ten Heuvelhof prof.dr. A.B. Ringeling prof.dr. V.J.J.M. Bekkers Copromotor: dr. V.M.F. Homburg Sociotext Press Den Haag Augustus 2005 Alle rechten voorbehouden ISBN 90-809584-1-7 Key words A B C D E Governance Hannah Arendt Henri Lefebvre Railway station Maritime-industrial cluster Policy network Participatory democracy Spatial investment High-speed train Port development Public-private Representative democracy Urban and regional Transport infrastructure Zeeland Partnership Citizen participation development Rotterdam Zeeuws-Vlaanderen Innovation Republic Urban and regional Ghent Cooperation Democracy theory geography Public administration Political theory Spatial planning Political philosophy Spatial development Philosophy of law Human geography Vitruvius Trefwoorden A B C D E Sturing Hannah Arendt Henri Lefebvre Station Maritiem-industrieel Beleidsnetwerk Participatieve democratie Ruimtelijke investering Hoge-snelheidstrein cluster Publiek-private Representatieve democratie Stedelijke en regionale Transport-infrastructuur Haven-ontwikkeling samenwerking Burgerparticipatie ontwikkeling Rotterdam Zeeland Innovatie Republiek Stedelijke en regionale Zeeuws-Vlaanderen Samenwerking Democratietheorie geografie Gent Bestuurskunde Politieke theorie Ruimtelijke ordening Politieke filosofie Ruimtelijke ontwikkeling Rechtsfilosofie Sociale geografie Vitruvius NUR 735 Inhoud Inhoud 5 Afkortingen 9 Verantwoording 10 Dankwoord 13 1 Complexe beleidsvorming 15 1.1 Moeizaam bestuur 15 1.1.1 Inleiding 15 1.1.2 Rationalisering 17 1.1.3 Samenwerking 18 1.2 Consequenties van complexe beleidsvorming 20 1.2.1 Bestuurskunde over complexe beleidsvorming 20 1.2.2 Legitimiteit 20 1.2.3 Representatieve en participatieve democratie 21 1.3 Onderzoeksvraag 21 1.3.1 Deelvragen 22 Noten 24 2 Methodologische verantwoording 29 2.1 Divergentie in wetenschap 29 2.1.1 Idealisme 29 2.1.2 Positivisme 30 2.1.3 Constructivisme 30 2.1.4 Kritische theorie 31 2.2 Positionering 32 2.2.1 Meerduidigheid van ruimtelijk-beleidsvorming 32 2.2.2 Ruimte als construct 33 2.2.3 Venetië als voorbeeld 35 2.3 Constructivistische methodologie 39 2.4 Reconstructie en analyse van empirische situaties 41 2.4.1 Selectie 41 2.4.2 Reconstructie en analyse 42 2.4.3 Bronnen 43 2.5 Besluit 44 Noten 45 3 Representatieve democratie 57 3.1 Democratische rechtsstaat 57 3.1.1 Voorwaarden voor democratie 57 3.1.2 Staat en rechtsstaat 58 3.1.3 Representatie 60 3.1.4 Profiel van de democratische rechtsstaat 62 3.2 Gegarandeerd en passief burgerschap 62 3.2.1 Passief burgerschap 63 3.2.2 Soevereiniteit 63 3.2.3 Sociaal contract 65 3.3 Besluit 66 Noten 66 5 4 Participatieve democratie 69 4.1 Republiek 69 4.1.1 Historische republiek 69 4.1.2 Contemporaine republiek 70 4.2 Noodzakelijk actief burgerschap 72 4.2.1 Actief burgerschap 72 4.2.2 Vrijheid en soevereiniteit 72 4.2.3 Pluraliteit en politiek handelen 73 4.2.4 Politiek en gemeenschappen 74 4.3 Besluit 76 Noten 77 5 Democratiemodellen in ruimtelijk-beleidsvorming 79 5.1 Representatieve democratie 79 5.1.1 Abstracte staat (cel 1a) 79 5.1.2 Centraliteit en hiërarchie (cel 1b) 80 5.1.3 Representatie door politiek ambtsdragers (cel 1c) 81 5.1.4 Invloedrijke politieke partijen (cel 1d) 82 5.1.5 Invloedrijke bureaucratie (cel 1e) 83 5.1.6 Gebruik van wetgeving (cel 1f) 84 5.1.7 Representatief-democratische ruimtelijk- beleidsvorming 85 5.2 Participatieve democratie 86 5.2.1 Vitale politieke gemeenschap (cel 2a) 86 5.2.2 Subsidiariteit en horizontaliteit (cel 2b) 87 5.2.3 Politieke participatie door particulieren (cel 2c) 89 5.2.4 Invloedrijke pressiegroepen (cel 2d) 90 5.2.5 Vitale civil society (cel 2e) 91 5.2.6 Gebruik van non-autoritaire instrumenten (cel 2f) 92 5.2.7 Participatief-democratische ruimtelijk- beleidsvorming 92 5.3 Verhouding tussen de modellen 93 5.3.1 Staat en gemeenschap (cel 3a) 93 5.3.2 Top en basis (cel 3b) 94 5.3.3 Ambtsdragers en activisme (cel 3c) 96 5.3.4 Politieke partijen en pressiegroepen (cel 3d) 98 5.3.5 Bureaucratie en civil society (cel 3e) 99 5.3.6 Wetgeving en non-autoritaire instrumenten (cel 3f) 100 5.4 Besluit 104 Noten 106 6 Ruimtelijke kwaliteit 117 6.1 Ruimtelijke betekenissen 117 6.1.1 Inleiding 118 6.1.2 Stedelijkheid en pluraliteit 119 6.1.3 Openbaarheid 121 6.2 Analyse van ruimtelijke kwaliteit 124 6.2.1 Activiteitendomeinen 125 6.2.2 Kwaliteitsdomeinen 129 6.2.3 Betekenisdomeinen 130 6.2.4 Geografisch nonet 131 6 6.3 Ruimtelijke ontwikkeling 133 6.3.1 Innovatie 133 6.3.2 Territorialiteit 136 6.3.3 Meervoudig ruimtegebruik 138 6.4 Besluit 139 Noten 141 7 Rotterdam Centraal 153 7.1 Inleiding 153 7.2 Posities en beleving van actoren 154 7.3 Procesverloop 157 7.3.1 Structuur 157 7.3.2 Planvorming 158 7.4 Werking van democratiemodellen 161 7.4.1 Representatieve democratie 161 7.4.2 Participatieve democratie 163 7.4.3 Verhouding tussen de modellen 166 7.5 Ruimtelijke betekenissen 171 7.5.1 Stedelijke betekenissen 171 7.5.2 Geografische domeinen 173 7.6 Besluit 176 Noten 177 8 Gent-Terneuzen 183 8.1 Inleiding 183 8.2 Posities en beleving van actoren 184 8.3 Procesverloop 186 8.3.1 Structuur 186 8.3.2 Planvorming 188 8.4 Werking van democratiemodellen 196 8.4.1 Representatieve democratie 197 8.4.2 Participatieve democratie 200 8.4.3 Verhouding tussen de modellen 203 8.5 Ruimtelijke betekenissen 208 8.5.1 Regionale betekenissen 208 8.5.2 Geografische domeinen 210 8.6 Besluit 213 Noten 214 9 Geschakelde sturing 227 9.1 Over de probleemstelling 227 9.2 Over de benadering van het bestuur 228 9.3 Over de benadering van ruimtelijke kwaliteit 229 9.4 Modellen van beleidsvorming 232 9.5 Ontmoetingen en confrontaties 235 9.6 Strategieën van geschakelde sturing 237 9.6.1 Inleiding 237 9.6.2 Juridische beginselen 239 9.6.3 Burgers en politici 240 9.6.4 Overheidsorganisatie 242 9.6.5 Ruimtelijk evenwicht 243 Noten 244 7 Bijlage A: Politiek handelen 247 A.1 Waarom politiek? 247 A.1.1 Inleiding 247 A.1.2 Biografie van Hannah Arendt 248 A.2 Politiek in de polis 249 A.3 Politiek als handelen van burgers 252 A.3.1 Republiek van burgers 252 A.3.2 Vrijheid en soevereiniteit in de republiek 253 A.3.3 Pluraliteit in de republiek 255 A.3.4 Politiek handelen in de republiek 257 A.3.5 Gemeenschappen van burgers 260 A.4 Besluit 262 Noten 262 Bijlage B: Participatie en inspraak van Rotterdam Centraal 269 Bijlage C: Enquête 274 Bijlage D: Geïnterviewde personen 276 Abstract 279 Literatuur 287 Biografie 323 Hoofdstuk 1 Figuur 1 Boekstructuur 24 Tabel 1 Governance types 28 Hoofdstuk 3 Tabel 2 Overzicht representatieve democratie 66 Hoofdstuk 4 Tabel 3 Overzicht representatieve democratie en participatieve democratie 76 Hoofdstuk 5 Tabel 4 Overzicht democratiemodellen 105 Hoofdstuk 6 Figuur 2 Openbaarheid 123 Figuur 3 Betekenissen van ruimtelijke kwaliteit 124 Tabel 5 Geografisch nonet 131 Hoofdstuk 7 Tabel 6 Structuur procesverloop Rotterdam Centraal 158 Tabel 7 Geografisch nonet voor Rotterdam Centraal 172 Hoofdstuk 8 Tabel 8 Structuur procesverloop Gent-Terneuzen 188 Tabel 9 Geografisch nonet voor Gent-Terneuzen 210 Hoofdstuk 9 Figuur 3 Betekenissen van ruimtelijke kwaliteit 230 Tabel 4 Overzicht democratiemodellen 233 Figuur 4 Geschakelde sturing 238 Bijlage A Tabel 10 Geografisch nonet en Hannah Arendts taxonomie 248 8 Afkortingen ABP Algemeen Burgerlijk Pensioenfonds Awb Algemene wet bestuursrecht B&W Burgemeester en wethouders BoN Bestuur op niveau BOR Bereikbaarheidsoffensief Randstad Bro Besluit op de ruimtelijke ordening BW Burgerlijk Wetboek BZK Binnenlandse Zaken en Koninkrijksrelaties CDA Christen-Democratisch Appèl CPB Centraal Planbureau dS+V Dienst Stedenbouw en Volkshuisvesting/Dienst Stedenbouw, Wonen en Verkeer EU Europese Unie EUR Erasmus Universiteit Rotterdam EZ Economische Zaken FES Fonds economische structuurversterking GSB Grote-stedenbeleid Gw Grondwet HSL Hoge-snelheidslijn HST Hoge-snelheidstrein ICES Interdepartementale Commissie voor de Economische Structuurversterking ING Internationele Nederlanden Groep IPO Interprovinciaal Overleg ISF Internationale Schelde Faculteit ISV Investeringsbudget stedelijke vernieuwing KAN Knooppunt Arnhem-Nijmegen KLM Koninklijke Luchtvaartmaatschappij LNV Landbouw, Natuurbeheer en Visserij/Landbouw, Natuur en Voedselkwaliteit LPF Lijst Pim Fortuyn LR Leefbaar Rotterdam MER Milieu-effectrapportage MHAL Maastricht-Hasselt-Aachen-Liège MIT Meerjarenprogramma infrastructuur en transport NIMBY Not in my backyard NIROV Nederlands Instituut voor Ruimtelijke Ordening en Volkshuisvesting NS Nederlandse Spoorwegen NSP Nieuwe sleutelprojecten PKB Planologische kernbeslissing PPS Publiek-private samenwerking ProSes Projectdirectie ontwikkelingsschets Schelde-estuarium PvdA Partij van de Arbeid Pvv Planwet verkeer en vervoer RET Rotterdamse Electrische Tram Rfv Raad voor de financiële verhoudingen Rob Raad voor het openbaar bestuur ROG Ruimtelijke Ordening en Grondzaken ROM Ruimtelijke ordening en milieu RPD
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