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The Power of Planners in Municipal Rural Planning

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The Power of Planners in Municipal Rural Planning The power of planners in municipal rural planning A case study of planners’ acting space in strategic planning for villages Master’s thesis Clara Dybdal & Emilie Mignon Urban planning and management Aalborg University 4. June 2021 The Technical Faculty for IT and design Urban Planning and Manangement Rendsburggade 14 9000 Aalborg http://www.plan.aau.dk/ Title: The power of planners in municipal rural planning - A case study of planners’ acting space in strategic planning for villages Project: Master’s thesis Project period: February 2021 - June 2021 Project group: Clara Dybdal Emilie Mignon Supervisor: Rasmus Nedergård Steffansen Number of pages: 82 Appendices: 6 Finishing date: 4-6-2021 The content of the report is freely available, but publication (with source reference) may only take place in agreement with the authors. Preface This thesis is made by two master students in Urban Planning and Management from Aalborg University. This is the final desertion of the master program, and devised in the period of February 2021 to June 2021. First of all, we would like to thank our supervisor, Rasmus Nedergård Steffansen for thorough, competent and helpful supervision. Further, we would also like to thank all the planners who participated in out interviews, which provided this thesis with important and valuable insight in the danish planning practice anno 2021: • Line Hesselholt Hansen, planner in Hjøriing municipality • Mette W. Georgakatos, planner in Hedensted municipality • Helle Lorentsen, planner in Viborg municipality • Karl Johan Legaard, head of planning department in Viborg municipality • Peter Sepstrup, planner in Vejle municipality • Søren Nellemann, planner in Vejle municipality • Helen Carter, planner in Norddjurs municipality • Kisa Lindgaard, team leader in Norddjurs municipality All of the interviews has been conducted in danish and can be found attached as a sound- file. English translation of the key points and quotes will occur throughout the analysis. References will follow the Harvard method, meaning that they appear with [Surname, year] throughout the thesis, and are listed alphabetically in the bibliography by the end of the thesis. Different sources with same author and year will additionally appear with a letter differentiating them. Sources with no reference year will a appear with ’n.d.’ for no date. Figures and tables will be numerated in relation to the chapter and the order in which they are presented in the given chapter. Clara Dybdal Emilie Mignon Page iii of 84 Abstract Shrinking villages are getting increasingly more attention in planning, as one of the major challenges in planning today is the growing demographic changes, which is creating a distortion between the rural and the urban. Denmark is no exception to these changes, and in 2019, a new addition was integrated into the Danish Planning Act requiring all municipalities to start planning strategically for the development of villages and rural districts as a part of their municipal planning. To help the municipalities, a method was suggested by the association Realdania, with a focus on quantitative mapping and measuring civil strength through extensive and continuous involvement, though with a lack of guidance on more specifically how to do it. There are many arguments for doing participation in planning processes, but deciding on the right process for the specific situation is difficult because it revolves around people and their preferences, relations, actions and social reality. The planners’ choice of involvement in the process of strategic planning for villages is investigated in this thesis in the light of the possible field of actions the planner is equipped with, with the aim of answering the following research question: How does the acting space of the planner lead to different barriers when involving the local communities in the strategic planning process of a village? The problem is approached from the point of critical realism through a comparative case study of five planners in five different municipalities who have been working on their strategies for the development of villages. The main theory will be Grange’s theory of acting space. The planner’s acting space consists of three elements: authority, ability and identity, and these elements will form the basic elements in the analytical framework for the case study. Further, Kühn’s theory on dealing with conflict in planning processes will be used to understand the approach the planners take to the planning process and their own role in it to contextualise their acting space. Through the analysis, it is clear that the five planners have chosen quite different approaches to working with the new legislation with varying efforts towards meeting the new demands and different choices for involvement throughout the process. The planners face different barriers in their authority and ability mainly through the political and financial situation of their municipality, but these barriers mostly restrict the product, not the planners’ choice of involvement. The findings point towards the planners’ identity being determining for their choice of involvement, as there is a very clear link between the planners’ motivation and identity and the planners choice of process and involvement. What seems to determined their choice of involvement is not the methods of Realdania, but a mix of the planners’ own identity and the available resources. The planners mainly facilitate the involvement from the point of their own identity and motivation, but the available resources is considered when choosing the type and amount of involvement. Page iv of 84 Contents Abstract iv 1 Introduction1 2 Strategical planning for villages3 2.1 Growing understanding of shrinkage ...................... 3 2.2 Shifting the political agenda........................... 6 2.3 The Realdania Method.............................. 8 2.4 Involvement of the civil society ......................... 9 2.5 Research question................................. 11 3 Research design 12 3.1 Approach to problem............................... 12 3.1.1 Critical realism.............................. 12 3.1.2 Case study ................................ 14 3.2 Methodology ................................... 15 4 The role of the planner 18 4.1 The planner’s approach to involvement..................... 18 4.2 Shaping the role of the planner ......................... 19 4.3 Grange’s theory of acting space......................... 20 4.4 Analytical framework............................... 23 5 Case selection 27 5.1 Hjørring Municipality .............................. 27 5.2 Hedensted Municipality ............................. 27 5.3 Viborg Municipality ............................... 28 5.4 Vejle Municipality ................................ 28 5.5 Norddjurs Municipality ............................. 29 6 Methods 30 6.1 Literature review................................. 30 6.2 Document analysis................................ 30 6.3 Interviews..................................... 31 6.3.1 Data analysis............................... 34 7 The choice of involvement and acting space of the planners 36 7.1 The set-up of the analysis............................ 36 7.2 Planner A from Hjørring municipality ..................... 36 7.3 Planner B from Hedensted Municipality .................... 41 7.4 Planner C from Viborg municipality ...................... 45 Page v of 84 Mignon & Dybdal Contents 7.5 Planner D from Vejle Municipality ....................... 52 7.6 Planner E from Norddjurs Municipality .................... 56 7.7 Comparison of cases ............................... 61 7.7.1 Choice of involvement and handling of conflict ............ 61 7.7.2 Barriers in authority........................... 62 7.7.3 Barriers in ability............................. 63 7.7.4 The identity of the planners....................... 64 8 Have the acting space affected the involvement? 66 8.1 The planners approach to the legislation.................... 66 8.2 Barriers in the involvement ........................... 68 8.3 The planners’ political awareness........................ 70 8.4 What determined the choice of involvement?.................. 72 9 Conclusion 75 Bibliography 77 A Interview guide 83 Page vi of 84 Introduction 1 Shrinkage is getting increasingly more attention in planning, as its current state is unsustainable and calls for a rethinking of how villages should develop towards a viable future (UN-Habitat, 2008; Rieniets, 2009; Raugze et al., 2017; Hospers and Reverda, 2019; Coppola, 2019). The reasons for the occurrence of shrinkage are multifaceted and happens on a global plan as a result of urbanisation and neoliberal politics, which challenges the existence of many villages (UN-Habitat, 2008). Shrinkage is not a new phenomenon but is the other side of urbanisation. Migration to the cities started with the industrial age creating jobs, mostly in the urban areas, and this movement has seemingly not stopped since. This has led to the so-called urban millennium we are in today, where more than 50 % of the world’s population lives in the cities. “Because industrialisation has triggered an accelerated expansion of cities, which has exceeded all our historical experience, we have almost forgotten about the opposite side of urbanization”(Rieniets, 2009) Shrinkage is largely seen as a failure and an indicator of bad life quality since people move away, which challenges the change of this development. This is somewhat true since most cities shrink due to a lack of those services and jobs
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