Professional Documents
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Dec 10 JNL
Dec 10 JNL
December 2010
Vol. 79 l No. 12
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regulars features
510 Inside Stories 523 Participation in planning
Emma Vandore: Decentralisation Minister The Rt Hon. Greg Clark on
Reasons to be cheerful? how and why the Government aims to put local
communities in control of their own destiny through
513 Editorial the planning system
Continuing at the
forefront 527 National infrastructure – a plan for sustainable
development?
517 Planning World Tony Baden finds the National Infrastructure Plan
Peter Hall: unclear on how it will deliver sustainable
A railway network for development
the polycentric
metropolis 529 Dissecting the first stab at a National
Infrastructure Plan
520 Off the Fence Tim Marshall examines the positioning, tone and
David Lock: content of the National Infrastructure Plan
Planning crisis in
534 Still grappling with the rural housing question
Grotton (again)
Nick Gallent on the absence of convincing solutions
522 Writeback to the country’s rural housing crisis
538 Transport threats and opportunities
557 Going Local Stephen Joseph on the prospects for sustainable
David Boyle: travel under new funding regimes
Regulate the big, set
the small free 540 Derailing the transition?
Peter Lipman on how the shift from car-based to
560 Connections sustainable travel may fare under the policies of the
Paul Burall Coalition Government
542 Valuing and financing the public realm
Tony Baden and Tim Marshall on Pat Hayes on why the UK seems unable to emulate
the National Infrastructure Plan, on
our European neighbours’ achievements in the
pages 527-528 and 529-533.
Cover illustration by Clifford Harper. public realm
www.agraphia.com
546 Tracking the Mayor’s new London Plan
Martin Simmons on the progress of the Replacement
London Plan through Examination in Public
549 World cities and the challenge of change
Henry Abraham on lessons from China for the future
of London and its surrounding regions
553 Lessons from Lynch
Kevin Lynch’s The Image of the City offers lessons for
today’s place-marketers, says Gert-Jan Hospers
we create: ideas, knowledge, The first online database of international best practice
publications, campaigns, and case studies on climate change adaptation was
launched at the TCPA’s Annual Conference, ‘Plan and
independent policies Deliver?’, held in London at the end of November.
The database has been developed as part of the
we aim to: secure homes, TCPA-led EU Green and Blue Space Adaptation for
empower communities, and Urban Areas and Eco Towns (GRaBS) project by the
University of Manchester. It focuses on examples
deliver a sustainable future relating to green and blue infrastructure, considering
in detail the processes that have supported the
...through planning implementation of adaptation responses in a range
of urban areas across the world. The database can
be accessed free of charge.
TCPA membership Complementing the UK Government’s localism
agenda and radical devolution of planning powers to
The benefits of TCPA membership include: local authorities and communities, the database uses
● subscription to Town & Country Planning; worldwide examples at different scales to inspire
● discounted fees for TCPA events and conferences; and guide local action on tackling climate change.
● opportunities to become involved in policy- Rather than focusing on specific technologies, the
making; case studies identify and highlight key factors in the
● monthly e-bulletin; delivery of adaptation strategies that influence the
● access to the members area on the TCPA success of adaptation responses in different
website. locations – such as governance, stakeholder
relationships, political will, science and research.
Contact Brian Moffat, Membership Officer The GRaBS project has also recently launched a
t: (0)20 7930 8903 second expert paper, Participation in Climate
e: membership@tcpa.org.uk Change Adaptation, produced by the Amsterdam
w: www.tcpa.org.uk City District of Nieuw-West, one of the GRaBS
project partners. The paper explores the connection
TCPA policy statements, available between climate change impacts in urban areas and
how we can best involve communities in adaptation
as free downloads from the TCPA plans and their implementation.
website, at www.tcpa.org.uk
● Accessible and Sustainable Transport
● Accessible and Sustainable Retail
● Aviation
● Climate Change
● Green Belts
● Housing
● Housing Market Renewal
● New Towns and Town Extensions Further details about the GRaBS project are
● Planning and Sustainable Energy available from the GRaBS website at
● Strategic and Regional Planning www.grabs-eu.org, from where the online
● Residential Densities adaptation database and the project expert papers
● Urban Renaissance in England can also be accessed.
New Briefing Papers published by should address in improving the design of the
the TCPA scheme:
● the need for a genuine incentives scheme;
● the need for a higher level of incentivisation to
The TCPA has recently produced three new Briefing meet housing need;
Papers on areas of current policy development. The ● spatial inequality in the Bonus calculations;
papers provide summaries and analysis of ● alignment of the incentives scheme with good
consultation papers issued by the Department for forward planning;
Communities and Local Government (DCLG) on the ● encouraging and incentivising higher-quality
New Homes Bonus and on planning for new homes and places, not just more housing units;
schools development, and of the Scottish and
Government’s consultation on a Land Use Strategy ● clarification of the purpose of the incentives
for Scotland. scheme in the context of other schemes such as
CIL and planning obligations.
New Homes Bonus
The Coalition Government believes that the TCPA Briefing Paper 13 is available from the TCPA
current system for housing delivery does not website at www.tcpa.org.uk/resources.php?action
provide the right approach to incentivise =resource&id=961
housebuilding. As part of the Coalition Agreement
drawn up in May 2010, it has moved swiftly to Draft Land Use Strategy for Scotland
announce its intention to abolish Regional Getting the Best from Our Land: A Draft Land Use
Strategies, together with their regional housing Strategy for Scotland is the draft of Scotland’s first
targets, and to introduce a new incentives approach national Strategy for Land Use. It was produced as a
‘to provide incentives for local authorities to deliver requirement of Section 57 of the Climate Change
sustainable development, including for new homes (Scotland) Act 2009, which obliges the Strategy
and businesses’. The New Homes Bonus scheme to set out:
seeks to reward local authorities for improving ● Scottish Ministers’ objectives in relation to
housing delivery, in an approach which is seen by sustainable land use;
the Government as fairer and more effective. ● their proposals and policies for meeting those
The DCLG consultation paper New Homes objectives; and
Bonus. Consultation sets out details of a new ● the timescales over which those proposals and
‘powerful, simple, transparent, predictable and policies are expected to take effect.
flexible’ incentives scheme to encourage and
reward local authorities to deliver more new and The Scottish Government’s overriding purpose is
sustainable housing. The New Homes Bonus will to guide, support and inform all those involved in
reward local authorities for every additional new deciding how land is to be used, by setting out a
housing unit built (net additions) for six years at a vision and long-term objectives for an integrated
rate equal to the national average for the Council Tax approach to sustainable land use in Scotland.
band. The TCPA has commended the Scottish
The TCPA has welcomed the New Homes Bonus Government’s commitment under the Climate
scheme and believes that, if designed properly and Change (Scotland) Act and believes that the
delivered fairly, it should make a significant Strategy will be an important part of a portfolio of
contribution to efforts to deliver more and better- strategic documents to guide sustainable
quality homes. However, the the Association has development in Scotland and improve the resilience
also argued that the Bonus must be applied of people, communities and places to climate
transparently and fairly within a plan-led system, and change.
has expressed some concerns. The Briefing Paper The TCPA Briefing Paper 14, A Draft Land Use
(Incentives for Improving Housing Delivery – New Strategy for Scotland, sets out some key factors
Homes Bonus. TCPA Briefing Paper 13) sets out that would help to consolidate the Land Use
issues which the TCPA believes the Government Strategy into a robust strategic document. These
Reasons to be cheerful?
And what happens if NIMBYs hijack the system conferences were in the offing. Speaking of the
to block supermarkets or housing development urgency of getting any new system up and working
schemes? Greg Clark again chided this viewpoint as properly, she noted that we ‘don’t have time to wait
being overly glum, saying that the New Homes to provide the homes the nation needs and take
Bonus would overcome NIMBY resistance by action on climate change’.
offering councils incentive payments for each new Before the conference broke for lunch, Liberal
home built. Democrat peer Lord Matthew Taylor, Chair of the
However, the Minister offered no detail about the National Housing Federation and of the Rural
funding of the neighbourhood planning stage. TCPA Coalition, gave the keynote presentation on localism
Chief Planner Hugh Ellis had earlier questioned and housing provision. ‘Community planning can
whether the Government would make enough work,’ he said – but he questioned whether moving
resources available for community planning to be from ‘enforcement’ to the New Homes Bonus
successful, warning that it would be a mistake to let ‘bribe’ would win NIMBYs around. ‘It’s the wrong
communities be ‘led up the hill only to find that they answer to the wrong question,’ he said. ‘What
don’t have influence or resources’ to do what they NIMBYs are complaining about is often a real
had been promised. complaint,’ he said. ‘Frankly what’s at the end of the
Hugh Ellis had also questioned whether the New garden is [usually] not very nice; and it’s at the end
Homes Bonus would be new money or simply a of the garden.’
re-allocation of existing funding arrangements. If so, As the former MP for Truro and St Austell in
as others noted, regeneration areas in parts of the Cornwall, he said the answer is to plan to create
North which might struggle to secure housing neighbourhoods that ‘function as places’ – like a
growth could consequently lose cash. Cornish village.
As a parting gesture, the Minister dangled the Following the lunch interval, in a debate on
possibility that bodies like the TCPA might like to housing delivery under the new Government, Hyde
help neighbourhoods put together their plans. Housing Association Chief Executive David Eastgate
Most of the speakers from the panel and the floor worried that plans to incentivise more home
in the ‘Will the new planning system work’ session building by allowing housing associations to raise
which followed the Minister’s speech agreed that rents would not address housing need unless new
the planning system has room for improvement, ways of doing things were found. In London and the
although many agreed with the assessment of South East, where the biggest cost is the price of
Peter Studdert, Director of Joint Planning for the land, one answer would be to give housing
Cambridgeshire growth areas (standing in for the associations access to surplus public land, he said.
snow-bound Jenny Poxon), that the proposed Debbie Aplin, Managing Director of Crest
changes will entail at least ‘two years of chaos’. Nicholson Regeneration, argued that local
‘The devil is in the detail,’ said Geoffrey Piper, authorities should take more responsibility for
Chief Executive of the North West Business gaining support for development by engaging with
Leadership Team, reserving judgement. But Anna their community and promoting growth in their
Watson, a Senior Campaigner at Friends of the region. Councillor Barry Wood, Leader of Cherwell
Earth was ‘not very optimistic that we will see District Council, agreed that houses should be more
many more communities being heard’. than just ‘somewhere to kip’, and said that what he
TCPA Chief Executive Kate Henderson had earlier really wants is ‘to build a new and better England’.
opened proceedings by reminding participants how Two debates on climate change shaped the rest
seriously the Association took the first indications of of the afternoon session: one on whether localism
change, the Open Source Planning policy green can help us to adapt, and the other on the
paper, published by the Conservative Party before experience of working to adapt Manchester to a
the general election. The TCPA had organised a new climate. Noting that ‘money is tight’, Rob
series of five roundtable debates and had compiled Shaw, Director of Sustainability and Climate Change
a number of briefing papers on the future of at LDA Design, suggested that ‘we have to find
planning, which, in the words of several speakers, alternatives to central government funding’ when
have put the organisation at the intellectual forefront looking at sustainable design. As a light-hearted
of the debate on change. ‘We hit the ground aside, Trevor Cherrett, rural policy advisor to the
running, but we have to keep running,’ she said. TCPA, advised the really committed to take early
With the Decentralisation and Localism Bill then retirement, buy a mill, generate electricity, make
imminent, and a new national planning policy money from that, and grow their own vegetables.
framework in the works, more TCPA debates and Seema Manchanda, Service Director, Strategic
subscribe
TCPA-led EU Green and Blue Space Adaptation for
Urban Areas and Eco-Towns (GRaBS) project.
TCPA Chair Lee Shostak closed the conference by
vowing that the TCPA would continue with its core
business of ‘finding a way of making sure that the
planning system does its job properly, even as it’s
changing’.
To show that planners don’t need to be entirely
glum, the TCPA sought to raise spirits with port,
poetry and music at the end of the afternoon,
staging, with the help of Hugh Ellis, members of his
family and other volunteers, ‘Love, Life and Liberty’,
an event that aimed to reconnect us with past
struggles over land and the right to shelter. Starting
with the Diggers of the 17th century, the
performance celebrated the ideas, imagination and
radicalism of key figures in progressive reform, such
If not, then why not become a member
as John Ruskin, Ebenezer Howard, JB Priestley and
even Bruce Springsteen. of the TCPA or take out a personal
Inspired, the gathering trekked through the snow subscription?
to the centre of power, where the TCPA’s Annual
Reception was held on the Pavilion Terrace of the Each issue of Town & Country Planning
House of Commons. is packed with informed opinion; the
latest on policy thinking and guidance;
● Emma Vandore is a freelance journalist and budding
planner. With 15 years of reporting under her belt, latterly as and updates on recent news, projects,
head of the economic service for the Associated Press in and publications.
Paris, she is currently studying for an MSc in Spatial Planning
at the Bartlett School of Planning, University College London. For full details on TCPA membership
She can be contacted at emmavandore@gmail.com
and subscriptions, please contact: Brian
Moffat, Membership/Subscriptions
Officer, TCPA, 17 Carlton House Terrace,
London SW1Y 5AS
020 7930 8903
tcpa@tcpa.org.uk
be one major priority in a medium-term transport approved electrification as far out as Oxford and
strategy for the capital. The other, oddly, must be to Newbury, there is no reason why these too should
handle an astonishing failure in Crossrail as at not become outer Crossrail termini. But even that
present conceived. And the good news is that this will not be enough.
can be remedied – thanks to the wise decisions of The key is the second western branch, to
the last government, after a battle, to reserve the Heathrow. As now conceived, absurdly, it will simply
right of way for the line to be extended, eventually, replace the present stopping Heathrow Connect
east from Abbey Wood to Gravesend and west from service to Heathrow Central, not even serving BA’s
Maidenhead to Reading. Thus Crossrail can Terminal 5. And, equally absurd, there is Airtrack, a
eventually become the east-west equivalent of quite-separate proposal for an outer link from
Thameslink: a true regional railway, penetrating out Heathrow out towards Woking and to Reading via
into the Home Counties. Bracknell. Currently this proposal is running into
But even more is needed: not in the east, where massive local opposition around Staines, because it
the extended line will at last constitute the long- will inject extra trains on to a series of congested
planned Thames Gateway Metro (although here it level crossings. And, seen as a separate proposal on
badly needs a 400 metre link between Northfleet its own, it does not make sense. But it could be
and Ebbsfleet to create a major interchange with transformed in a way that would solve everyone’s
High Speed One), but in the west. problem at once.
This is because Crossrail suffers from a basic The key was outlined in last month’s column on
problem of geography: it links lines east of the High Speed Two: it is consultant Jim Steer’s
capital – out towards Essex and Kent, where proposal for a short new connecting line from the
historically a dense service of 12-car trains brought new high-speed line, north of Heathrow, via a new
huge commuter flows into the City of London – airport station (preferably located next to Terminal 5),
with the Great Western, which, lacking such traffic, on to join the main Portsmouth and Bournemouth
is symbolised by absurdly puny three-car units. The lines at Woking.1 Viewed from the high-speed angle
result will be that when Crossrail opens, half the alone, this short link would instantly generate what
trains will turn back at Paddington. Extension to I called High Speed 2.5: a new range of services
Reading will help – and, now the Coalition has from England’s South Coast to Heathrow, and then
Brent Romford
Cross North Circular
North Circular Wood busway
Harrow busway Green
Ilford
Ealing
CENTRAL DLR
LONDON Stratford-
Hounslow Woolwich
NLL
Richmond
Orbirail
Grove Park
Croydon Tramlink - Woolwich
NLL extension: busway
Richmond - extension:
Wimbledon Wimbledon Beckenham Junction
- Grove Park
Bromley
Kingston Croydon Tramlink
Left
Sutton
Croydon London Orbirail
NLL: North London
Line
Left
Jim Steer’s
proposed
Heathrow
interconnection
network
Source: The
Heathrow
Opportunity. High
Speed Rail in
Britain 1
on to the Midlands and North, and also – via a Swedes have done something similar with their
connection on to High Speed One – to Paris, Mälarbana north and west of Stockholm. Together
Brussels and beyond. with Thameslink running from Bedford and
That alone should justify its construction. But the Cambridge out to Brighton and Eastbourne, it
miraculous fact is that High Speed 2.5 would also would truly become the railway network for the
provide for a new range of Crossrail services from polycentric metropolis of 19 million people, which
Heathrow out to the west and south west, thus London and the South East have now become. It
helping to generate the massive west-of-London would be the lineal successor, a century later, to the
revenues that would balance Crossrail services and vision of Lord Ashfield and Frank Pick and Herbert
increase its long-term viability. Walker (yes, he) as they forged London’s transport
The further key to this is a new level of service, network – and a worthy successor too. And this
which we could call Crossrail Express. Heathrow time we could even get it all right – except that,
Express would become part of Crossrail, running beyond Woking, Crossrail Express too would fall
non-stop as now from Paddington to Heathrow, and prey to Walker’s ancient third-rail curse.
on to Woking, Guildford and Basingstoke. Fast
Crossrail services would also operate to Reading ● Sir Peter Hall is Professor of Planning and Regeneration at
and thence to Oxford and Newbury. In the longer the Bartlett School of Planning, University College London, and
run they might even run, via a new link at Old Oak, President of the TCPA. The views expressed here are personal.
up the West Coast Main Line to Milton Keynes and
Northampton. Note
This would be a regional metro on a scale never 1 The Heathrow Opportunity. High Speed Rail in Britain.
before seen anywhere, although the far-seeing Greengauge 21, Feb. 2010
questions put to them had not yet deterred bureaucracy and hostility that is sometimes
telephone callers. deployed against us. Something drives us to pay
It was demonstrated that the Government Office exorbitant membership fees to the RTPI when TCPA
did not know much about the development plan fees are only £48 and equally tax-allowable.
system, having had to send its planners to help But the humanity exhibited in this book is a
Mr Pickles in London because people there had humanity that we should hold tightly – we seek to
stopped talking to him. improve the conditions of mankind and the planet
It is disappointing to report that HRH Prince of we occupy. We are engaged in a wholesome
Wales felt unable to attend and speak on the endeavour, and in Grotton we have a mirror at which
subject of criticising things by Lord Rogers behind we can laugh loudly. An excellent present for a
the scenes. This was perhaps because his worried planner! Steve Ankers, David Kaiserman
Foundation had commercial consultancy and Chris Shepley should be Listed, or Scheduled,
assignments to complete, and a bid to consider for or both.
CABE’s £6 million budget (‘anything they can do we
could do, err, cheaper’). ● David Lock CBE came out as planner in 1970 and has been
The conference, and its fully illustrated and practising ever since. He hopes to be allowed to do it for real
in time to catch the next re-organisation of planning. He has
tiresomely documented report ,4 leaves us all better the 1979 Grotton Roadshow song ‘Stand by Your Plan’ on his
prepared for the onslaught of change we are now iPod. Really he does. ‘Sometimes its hard to be a planner,
experiencing. We are not surprised – the outcome dumty dumty dum...’
of the election had swung on Open Source
Planning, which had shown us the abyss that Notes
awaited – but the rudeness of the criticism from 1 It will be recalled that the typical local planning
Secretary of State Eric Pickles has been a bit of a authority budget for conferences this year is £437 plus
the tops off six family packs of Shreddies. The sum is
shock. We are also beginning to appreciate that his small because staff attending conferences now have to
illegal manoeuvres in trying to abolish regional take out a loan to be repaid once their salaries exceed
planning without an impact assessment prepared by £20,000 per annum, as well as through a ‘CPD tax’ that
a consultant were because he has few planners will appear as ‘Payroll Giving’ on salary slips
around him to tell him where the levers and buttons 2 D. Sulkie: Spatial Dispersion of Interconnection Clusters
of planning are really to be found. If there are any. within a Fuzzy Environment: A Case Study from
Grimethwaite. 1981, 1988 and 1992. ‘Unpublished and
unreadable to be honest’
3 S. Ankers, D. Kaiserman and C. Shepley: The Grotton
‘The humanity exhibited in Papers. RTPI, 1979, out of print and slightly foxed
4 Steve Ankers, David Kaiserman
this book is a humanity that and Chris Shepley: Grotton
we should hold tightly – we Revisited... Planning in Crisis?
Routledge, for the RTPI, 2010.
seek to improve the ISBN 978-0-415-54647-8, £19.99
writeback
High-speed rail reduce the need for flying. This is only valid for air
travel using current models of aircraft. I foresee that
air travel in the medium term will be by quiet, fuel-
Sir Peter Hall has caused me to jump once again efficient STOL aircraft that will not need huge
into the saddle of my favourite hobby horse (‘Thinkairports. Airships would be ideal, but they are
hub; think superhub’, Town & Country Planning, usually ruled out, for historical reasons.
November 2010). However, having said all this, I am delighted that
Planning should be principally concerned with Watkin’s Great Central could be revived. Its closure
movement – of people and goods – and not the by Beeching only serves to show the limitations of
ways by which that movement can be facilitated, his terms of reference. At least new railways should
i.e. transport. In a small, crowded island like ours,
not need the building of any more monumental
movement puts pressure on the environment and earthworks like Tring Cutting. Modern trains can
uses up precious space. Planning should aim to tackle steeper slopes than the Victorian steam
reduce the need for movement. locomotives.
Roads are probably the most profligate in the use
of space, especially if they are designed to take Dr Anthony J Cooper
high-speed traffic. Railways, in the broadest sense Thriplow, Cambs
of that term, come a close second, given that they
cannot provide a door-to-door service and have to
be served by generous car parking and feeder
services.
Improvements to transport links only encourage
more movement. Even road-builders now reluctantly
admit that new roads ‘generate’ traffic. This also
applies to the railways, once thought of as relics of
a Victorian past and now working beyond capacity.
High-speed railways linked to the existing system
will soon be working to capacity and will serve to
increase urban sprawl, leading, of course, to
demands for yet more ‘improvements’. The British
motorway system was provided with too many
interchanges, and there is a case for limiting access
to a high-speed rail network so that it is only used by
those passengers who would otherwise go by air.
I fundamentally disagree with Sir Peter. John
Ruskin was absolutely spot on when he waxed
furious at the building of a railway between
Bakewell and Buxton through his beloved Monsal
Dale which in his view only served to enable ‘every
fool in Buxton [to] be in Bakewell in half an hour,
and every fool in Bakewell at Buxton; which you
think a lucrative process of exchange…’. The
question needs to be put, again and again, ‘Is your
journey really necessary?’
And should we spend billions of pounds so that
passengers between Birmingham and Euston can
arrive 35 minutes earlier, when they will probably
spend those minutes in traffic jams getting to and
from the stations at each end?
It is argued that high-speed rail links across
Europe, connected to similar links in the UK, will
‘Planners have an awesomely I’m delighted to have the chance to talk about
these issues at the TCPA – for two reasons. One, its
important job to do’ manifesto recognises in its very first clause the
need for a planning system ‘based on widespread
And it is ineffective. The levels of housebuilding community engagement’. The TCPA has been a
last year were the lowest in peacetime since 1924. consistent champion of that principle, and a
Evidence suggests that commercial development is powerhouse of expertise on how it’s done in
suffering, and businesses say that the planning practice. Two, the TCPA’s great strength is that it
system is a barrier to growth. brings together all the different interests in planning
This Government has ambitious proposals to – community groups, developers, businesses and
make the system fit to meet the challenges of the more. It represents, at a national scale, the kind of
21st century. Above all, we want to change the coming together that we want to help happen in
philosophy behind local planning. We want to move local discussions about planning.
away from a system with significant elements of The Big Society means putting real power in the
imposition from above, to one with participation and hands of local people. It is based on the idea that in
involvement at its heart – not just warm words, or a very many areas of life people can make the best
Box 1
Four-stage approach to planning and prioritisation
‘1 The Government will agree a common set of long-term planning assumptions,
building on existing analysis, on the drivers of infrastructure demand in the future, including
expectations of future economic growth; the number of people using UK infrastructure; and
standard and legal obligations such as targets to reduce carbon emissions or for the quality
and reliability of services.
‘2 Infrastructure UK will work with Departments to translate these planning
assumptions into sectoral investment needs, taking account of cross-sectoral
interdependencies (such as the need for low carbon energy to support low carbon vehicles)
and the capacity of existing infrastructure to cope with additional demand or higher
standards. This will focus mainly on programmes, rather than specific projects and will cover
the action and investment needed across both the public and private sectors.
‘3 Infrastructure UK will aggregate investment needs across sectors, and analyse
them against a series of constraints including value for money for the UK as a whole
(including affordability to consumers and business), the availability and certainty of funding
from users or taxpayers, the level and type of financing that is required and its availability in
the market, the capacity of supply chains to design, build, maintain and operate the
infrastructure, environmental impacts such as the level of carbon emissions expected relative
to targets to reduce emissions, and the level of resilience that is required from infrastructure.
Infrastructure UK will also assist Departments in analysing similar constraints within sectors.
‘4 Infrastructure UK will work with Departments to advise relevant Ministers on the
action that is required where constraints are likely to be faced, such as more effective
management of demand to reduce the need for new infrastructure (for example through new
technology and innovations), deferring investment decisions to allow funding, financing and
supply chain conditions to improve before reassessing the decision to defer, and seeking
alternative funding sources (for example moving from public to private funding).’
Source: ‘Infrastructure planning and prioritisation’,4 note on the Treasury website, dated 3 Nov. 2010
about making long-term policy for each sector, within all growth tendencies and putting drastic demand
some sort of town and country planning framework? management at the core. There is no engagement
The answers must be a moderate yes – the New here with these key debates.
Labour approach to policy-making, which began to The plan is then modest in the description of work
take on a more analytical edge with the Barker and in progress on ‘enabling infrastructure development’,
Eddington Reports, seems to have carried through although this contains perhaps the most interesting
to this work, and brought with it a new
respectability for planning sorts of language.
However, this impression must be quickly modified. ‘It is as if this first document
The other root of the drive is in the public-private has had to be put together
partnership work, alongside the technologies beloved
of the Treasury – cost-benefit analysis, business from varying strands, very
plans, and prioritising by highest rates of return. This quickly... this is only an
drive also permeates the National Infrastructure Plan
document. It is as if this first document has had to
interim first try at a plan’
be put together from varying strands, very quickly.
The sort of approach which might have been sections. Here the plan considers a change in the
favoured by the engineers worried about resilience forms of economic regulation of the infrastructure
and long-term investment has been crossed with industries, discussing the merits of the regulatory
normal Treasury concerns about making these fields asset base model. This model, pressed by academics
safe for private sector investment. That means, as such as Helm, would shift the ground rules for big
the document and the 3 November addition make energy and water etc. companies, and change the
clear, that this is only an interim first try at a plan. way that Ofgem and other regulators work.
This, in my view, is the real core of needed state
Content reform, which will influence how far the state has
Equally, the content is a real mix. There is a grand the leverage to get the infrastructure companies to
confidence about the recital of the UK’s infrastructure invest in the right areas of low-carbon technology
needs and challenges. Some would say the challenge and maintenance/modification over the coming
is understated. The economist Dieter Helm decades – far more important than planning, used
suggested in 2009 a ballpark figure of £434 billion of as the whipping boy over the last decade.
investment needed just by 2020.5 Others would say Work is to continue in this area over the next year
that a completely new model is needed, challenging (see some of the reviews listed in Table 1), and we
Above
‘The demand pressures on rural housing cannot be shrugged off as intrusive and somehow artificial... We are therefore left
with a single battle to fight: against the view that constant griping against rural change can substitute for a sensible
response to the rural housing question’
need plus the inevitable influx of new households therefore left with a single battle to fight: against
that rural areas will face over the coming decades. the view that constant griping against rural change
Thirdly, this influx – mainly of commuting can substitute for a sensible response to the rural
households – is an important lifeline to rural areas. housing question.
Commuters bring investment and enthusiasm; they
also bring their families and have a clear contribution
to make to the future of the countryside. It is very ‘The Coalition Government’s
rare, especially in Southern England, to find parish
councils or other voluntary community groups that
answer is to empower local
do not have a big contingent of commuting or ex- communities, giving them a
commuting (and now retired) members.3 It is these Right to Build and a right to
types of residents who will be instrumental in
carrying local responsibility in the Coalition bypass normal planning rules.
Government’s vision of a Big Society. But there are (at least) three
And fourthly, there are the retired households,
regularly accused of buying into villages and major shortcomings in this
contributing to falling school rolls or heaping approach’
pressure on health care services. The idea that
such households simply up-sticks on their first day
of freedom from work and head out of town is There is an urgent need for additional
false. Most retired people in the countryside are housebuilding in and around many villages. The
in situ agers, who previously commuted back to Coalition Government’s answer is to empower local
work in the city and who sometimes raised children communities, giving them a Right to Build and a
locally. Alongside commuters, it is these older right to bypass normal planning rules. The required
households who will often play key community level of support for community schemes has been
leadership roles. reduced from 90% to 75%, and this is a surely a
So the demand pressures on rural housing cannot step in the right direction. But there are (at least)
be shrugged off as intrusive and somehow artificial. three major shortcomings in this approach.
They are all part of modern rural life and market First, the cards are stacked in favour of dissenting
processes, which confound attempts to pigeon-hole voices, who will seek to undermine support for
people as local or non-local or to decide which community build projects by harking back to
claims to ‘localness’ are most legitimate. We are demand pressures (‘if only these could be
‘managed’ then there would be no need to ‘despoil’ substantial advance towards its satisfactory
the countryside’ ). solution’.4 Nothing much seems to have changed.
Secondly, communities have a very partial view of Great scepticism surrounds the Government’s
the market and its future trajectory: a focus on local proposed Community Right to Build. This is its
needs will be blind to broader demand pressures; answer to the big supply question, and it appears
and who is to say that these should not be wholly inadequate.
addressed in local projects, for the long-term benefit
of the present and future community? ● Nick Gallent is Professor of Housing and Planning at
And thirdly, there is a danger that some University College London. His new book, The Rural Housing
Question (written with Madhu Satsangi and Mark Bevan), was
communities will set very tight, some might say published by the Policy Press in September 2010. The views
parochial, priorities. Recent work for Defra (the expressed here are personal.
Department for Environment, Food and Rural Affairs)
on rural housing priority and affordability3 has Notes
suggested that communities may seek to reward 1 The National Housing Federation reported that this
those local people who are deemed to have made high figure in the South West (compared with just 1,860
important contributions to community life, preferring in the South East) was due to the fact that ‘regional
to block schemes that might assist households house building targets had not been fully adopted and
whom community leaders judge to be less therefore local authorities had not had a chance to
challenge the figures’
deserving. Where will responsibility lie in this new
2 Affordable Housing: Keeping Villages Alive. National
sub-localism, and what checks will be in place to Housing Federation, 2010. This assumes that the
ensure that projects are well-reasoned and Federation’s figure of 93,000 for 2008 also increased by
equitable? 2.6% over the following 12 months
Clearly, there needs to be greater scrutiny of local 3 Research into Rural Housing Affordability. Colin
power and decision-making. There also needs to be Buchanan and Partners with Nick Gallent and Steve
a broader and longer view of the needs of rural Robinson, for Defra, 2010
communities (see Box 1). 4 W.G. Savage: Rural Housing: With a Chapter on the
The rural housing question, now most acutely After-war Problem. T.F. Unwin (published in 1919, but
penned in 1914)
expressed as the supply crisis that is felt in many
parts of the country, has rumbled on for decades. It
was observed back in 1914 that ‘the rural housing
problem is both an acute and an urgent one [but] it
is important to realise that we are really making no
Left
Much of the content of recent issues of Town & major road schemes are likely to go ahead. Road
Country Planning has been a lament over the new spending is concentrated on maintaining the current
Government’s sweeping away of the old world of network and on ‘active traffic management’ projects
regional planning, targets, performance to make better use of existing motorways.
assessments and so on, without any clear I should say that all this is in reference to England
replacement. But as the smoke clears from the – the devolved administrations are making different
Spending Review battlefield, the new order is a bit choices, and the Scottish Government has
clearer, at least in transport. announced a reduction in rail spending and an
First, you have to separate the Government’s increase in road spending, largely to pay for a new
rhetoric from the reality. The Transport Secretary Forth crossing. The Welsh Assembly Government, by
Philip Hammond has talked about ‘ending the war contrast, is cutting major road-building and retaining
on the motorist’, leading many to think that the support for smaller projects and rail re-openings.
Coalition Government’s priority would be road- Having said all that, the Spending Review, and the
building rather than public transport. In practice, decisions associated with it, bring various threats
however, the Spending Review has kept almost and opportunities for sustainable travel.
intact the previous Government’s rail spending
plans, including a restart of main line electrification Threats
from London to Oxford and Newbury and between The biggest loser in the Spending Review is likely
Manchester, Liverpool, Preston and Blackpool. to be local bus services. Bus Service Operators
Crossrail and Thameslink have also survived, if Grant is to be cut by 20% from 2012, but more
delayed slightly, with new trains to go with them. immediate cuts are already coming through as local
Tram extensions in Nottingham, Manchester and authorities look to deal with reductions in their
Birmingham are going ahead too, as, in the longer funding this year. Several councils are planning to
term, is high-speed rail. remove or reduce their funding for buses, leading to
By contrast, Highways Agency capital spending is withdrawal of evening and weekend services. This
down by over 50%, and very few local authority can only worsen next financial year, as transport
J Bewley / Sustrans
On launching the Tory manifesto before the general
election, David Cameron contrasted the ‘Big
Society’ with ‘big government’, and described a Big
Society as one in which ‘people ask not ‘who’s
going to make things better?’ but ‘how can I – and
how can we, together – make things better?’’
Although what this will mean in practice is still
emerging, some of the ideological principles that
underpin it appear to be that:
● state intervention and regulation which is meant
to promote social cohesion or capital can actually
corrode it;
● the voluntary/community sector is better placed
to improve society than is the state, and the Above
private sector can help to ensure that this is done Residents of Ellacombe Road in Torquay discuss design
efficiently; and options for their Sustrans DIY street
● there are no rights without a responsibility to
consider the rights of others. a right to decide on planning issues. None of these
core rights maps neatly into greater support for or
From this position flows the Coalition ownership over decisions relating to sustainable
Government’s desire to reform the public sector, transport. And further, the scale being mooted for
empower communities and bolster philanthropic ‘neighbourhood’ or community planning will not allow
action. In broad terms, all areas of public life are for coherent oversight of walking, cycling or public
being examined and grouped by considering three transport networks and services. The agenda seems
factors – ‘what the state can (or should) do for you’; to have much to say about buildings and services,
‘what we can do for ourselves’; and ‘what we can and very little to say about transport and streets.
do for others’. In practice so far, this has translated All of this is, of course, linked to the promotion of
into a rolling back of the state (including abolishing localism and the cutting of budgets. For those of us
many state agencies) and looking for solutions to seeking to promote and implement sustainable
social breakdown involving third sector and social transport, this brings with it both significant threats
enterprises in partnership with local public bodies, and some potential opportunities. The former
and particularly the private sector. To date, there include a strong likelihood that more locally-driven
appears to be a strong assumption that the private agendas could ignore wider societal goals, such as
sector will be led by the market to act in a socially acting on climate change and energy security.
involved and responsible way. Further, there appears to be an assumption at the
Communities will gain three core rights under the heart of the Big Society – for which there is very
Big Society – to buy (save), to bid, and to build. little supporting evidence – that if you make powers
Apparently the right to buy will enable communities available to people they will have the time and the
to save local facilities and services threatened with capacity to use them.
closure, the right to bid will be a right to take over Crucially, this whole agenda is likely to be
local state-run services, and the right to build will be associated with the removal of state intervention
Above
Copenhagen – has ‘a unique ‘offer’ as a place both to live in and visit, based on its human feel’
Over the last few years a small group of London- about the prospects of replicating these
based counterparts and I have taken annual trips to achievements in an English context.
look at urban regeneration initiatives outside the UK Why is it that we seem unable to renew the
– this year, taking in Copenhagen to see how a city urban realm as well as our European neighbours
is weaning itself off of car use, and Malmö to see do? And what, if anything, we can learn from them
really good-quality redevelopment of former and put into practice?
docklands. I have invariably been impressed with Part of the problem lies in the way that smaller
what I have seen, but have returned depressed commercial and retail operators have been squeezed
Left
New development
at Malmö’s
Western Harbour
interested in environmental sustainability – again a We will also struggle until such time as we
pleasant contrast to London Docklands confront our self-destructive addiction to the car and
developments which celebrate ostentatious learn to enjoy the presence of our fellow human
consumption and attract few visitors. beings on the train or in the bike lane, and to really
What we saw in both Copenhagen and Malmö value public open space and good design.
was development that was well designed and built A national government with vision could, of
to a high standard, because it was clear that the course, transform our cities and boost the economy
municipality valued these things and had the by creating a nationwide programme of cycle path
wherewithal to do something about it. We also saw construction and co-ordinated public realm
developments which created genuine public space improvements that would forever change the way
that people were encouraged to use. our towns and cities work – but one fears that
In three days in Scandinavia I don’t think I saw a vested interest and lack of radicalism will see us
single private security guard and only a couple of continue to spend our money on motorways and
police officers (and I was looking as the husband of nuclear submarines while our fellow Northern
a big Wallender fan) – perhaps a reflection of a Europeans create great places in which to live.
society at that is at ease with itself and whose
pattern of life and management of the public realm ● Pat Hayes is Executive Director, Regeneration & Housing, at
isn’t distorted by irrational fear of terrorism and Ealing Council. The views expressed here are personal.
crime.
The municipalities also had genuine powers to
raise finance and acquire land. This seemed critical
for, as in personal relationships, monetary
independence is key in being able to influence one’s
own destiny. They were not, as in the UK,
dependent on central government finance or
‘planning gain’ to create the public parts of new
developments.
Above
Is adequate attention being given to London’s role in the national economy and whether its continuing
substantial growth is compatible with the aim of ‘rebalancing’ the national economy?
period at least will see an unprecedented curtailment intended revocation of the adjoining Regional Spatial
of public expenditure, highlighting how and to what Strategies and abolition of regional planning bodies,
extent innovative forms of funding can be put in play. meaning that the Mayor will have no regional
The next matter of concern to the TCPA organisations beyond London with which to engage
concerned London’s national and wider regional on these issues. In this situation the Association
relationships. As a national organisation the TCPA argued that only the Government’s intended
was virtually alone in querying whether adequate National Planning Framework can address the
attention was given to London’s role in the national macro-issues between London and the wider
economy and whether its continuing substantial metropolitan region.
Left
During a visit to Shanghai this summer to advise the Heatherwick designed structure looked almost
Shanghai City Comprehensive Transport Planning edibly organic, with its long acrylic fronds, and
Institute (SCCTPI), I was struck by the city’s provided a showcase for 60,000 seeds from Kew’s
distinctive approach to rapid change, and by some biodiversity stores. However, the pavilion’s reported
lessons it may offer for the development of the £25 million cost would be most unlikely to have
London metropolitan region. been judged acceptable in the current climate, so
I took the chance to go to the Shanghai World perhaps it is as well that it is located at a safe
Expo (‘Expo 2010 Shanghai China’), situated on the distance from the UK.
banks of the Huang Po river in a previously little- The Expo’s daily visitor count of around 400,000
developed part of the city, which provided a clear (more than a year’s worth of the Millennium Dome
contrast between the Expo’s optimism, vivid colour, visitors every fortnight) was pretty much in line with
and scale of ambition, and the rather downbeat age local forecasts, but only a very small proportion of
of austerity I had left in the UK. Nevertheless, these visitors came from outside China, which was
patriotic feelings were encouraged by the great clearly a disappointment given the Chinese
popularity of the British pavilion – its Thomas authorities’ ambition for a global event to further
Above
Above
Dublin’s Temple Bar – an example of a Lynch ‘district’ with distinctive character that sticks well in people’s minds
For many urban planners The Image of the City,1 today’s city authorities relevant insights on place-
written in 1960 by the American planning theorist marketing.
Kevin Lynch, evokes feelings of nostalgia. It is a This article briefly reviews key features of the
book that most will know from introductory book and demonstrates its contemporary value,
planning courses, and, indeed, Lynch’s empirical illustrated by case studies from two European cities:
study on how people perceive the urban landscape Helsinki (Finland) and Enschede (the Netherlands).
has become a classic in the field of urban planning.
However, the fate of classic books is that they are The city’s ‘imageability’
often referred to, but seldom read. The question Lynch dealt with in The Image of the
But half a century after its publication, The Image City was simple: what comes to people’s minds
of the City is still worth revisiting. In recent times when they are asked about their home cities? For
cities have heavily invested in place-marketing in an this purpose he interviewed 30 people in Boston,
attempt to attract and keep visitors, inhabitants, and 15 people each in Los Angeles and Jersey City,
students and employers. In this respect, although asking them to describe the distinctive elements of
not written with that intention, Lynch’s book offers their city, comment on some pictures, and
Aalto. In 2009 the city was even designated World New ideas from an old book
Design Capital 2012. The Image of the City was intended as a book for
Thus the city’s marketers could easily select new urban planners. However, half a century later it is
pictures for Helsinki’s brochures – the city has far also a good read for today’s place-marketers. Lynch’s
more icons than just the Senate Square. empirical study on how people perceive a city in
The old industrial city of Enschede in the east of terms of paths, edges, districts, nodes, and
the Netherlands (population of around 155,000 landmarks offers useful starting points for modern
inhabitants) has had a rather poor image. place-marketing. Cities could make more use of
Traditionally, the Dutch associated this former these ‘image carriers’ in visualising their brand
textiles city with adjectives such as ‘boring’ and value. They can simply do the ‘picture postcard test’
‘industrial’. City-marketing had largely failed to and ask themselves: what built objects in the city
improve this perception, but in recent years are distinctive, and how can they be used to tell the
Enschede has been developing a more modern urban narrative? Thus a city can not only ‘prove’ its
image. brand, but also improve its image and its
Ironically, this change is rooted in a fireworks attractiveness to the outside world.
disaster that killed 21 people in May 2000. The
neighbourhood of Roombeek that was devastated in ● Gert-Jan Hospers is Professor of City and Regional
the catastrophe has been rebuilt in a revolutionary Marketing at the Radboud University Nijmegen and teaches
economic geography at the University of Twente, in the
way. Planning and participation methods in the vein Netherlands. The views expressed here are personal.
of urban thinker Jane Jacobs have been used, and
have helped to make Roombeek one of the carriers Notes
of Enschede’s new image. 1 K. Lynch: The Image of the City. MIT Press, 1960
The ‘district’ – in Lynch’s terms – has attracted 2 T. Banerjee and M. Southworth (Eds.): City Sense and
many visitors and much media attention. In 2007 City Design: Writing and Projects of Kevin Lynch. MIT
the municipality even won an award for its Press, 1990
innovative restructuring approach. 3 C. Landry: The Art of City Making. Earthscan, 2006
But Enschede has more ‘imageability’ than the 4 See S. Anholt: ‘Editorial: place branding: is it marketing,
Roombeek district. The new Van Heek Plein, a or isn’t it?’. Place Branding & Public Diplomacy, 2008,
Vol. 4 (1), 1-6, in which Anholt reports on the brand
redeveloped market square that functions as a value of Brussels
‘node’, has also helped to improve Enschede’s 5 A. Vanolo: ‘Internationalization in the Helsinki
image. The city government hopes that the Metropolitan Area: images, discourses and metaphors’.
Nationaal Muziekkwartier, a recently opened music European Planning Studies, 2008, Vol. 16 (2), 229-52
theatre, will grow into a famous ‘landmark’. 6 See several editions of the Atlas voor Gemeenten (for
Interestingly, however, the most distinctive image example 2006 and 2008), an annual comparative study
carrier of Enschede is overlooked in the debate on mapping the most important facts and figures of 31
how the city’s story can be communicated to the Dutch municipalities
outside world – namely Enschede’s ‘edge’, the clear
transition zone between the city and the green
nature that surrounds it. Recent studies show that
in no Dutch city of similar size can people reach the
countryside as quickly as in Enschede.6 This
suggests that it might be useful to map a city in
terms of Lynch’s framework and ensure that the
elements making up the place image are fully
exploited for the purposes of place-marketing.
TCPA
17 Carlton House Terrace
London SW1Y 5AS
www.tcpa.org.uk
Above
Civilising past mistakes And if you want to see how the site can be used,
you can do no better than look at the website
Of course, it is never too late to correct past www.liveability.info/index.html, which has been put
mistakes. This is nowhere better illustrated than on together by Peter and Lesley Brenner, who are
the Urban Advantage website, which uses photo- clearly very angry about the failures of planning in
editing software to show how bleak urban Tasmania.
landscapes can be transformed into ‘great urban Perhaps we need some of the Brenners’ passion
places’. This American site, which aims to create when considering the future of our towns?
‘photo-realistic visualizations that make
development visions palpably real and ● Paul Burall is Member of King’s Lynn & West Norfolk
understandable’, can be found at www.urban- Borough Council and a Board Member of the East of England
advantage.com/ Development Agency. The views expressed here are personal.
Cities That Don’t Cost The Earth is available from the TCPA, price £11.99 plus £2.00
postage and packing (£11.99 plus £6 postage and packing for overseas orders).
t: +44 (0)20 7930 8903 f: +44 (0)20 7930 3280 e: tcpa@tcpa.org.uk