Summary. Recommendations on the Fifth Policy Document on Spatial Planning September 2001
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1 Summary Recommendations on the Fifth Policy Document on Spatial Planning September 2001
2 2 Introduction In December 2000 the Dutch Cabinet issued Part 1 of the Fifth National Policy Document on Spatial Planning, Making space, sharing space. 1 This is a strategic document, containing the principal options for the future spatial development of the Netherlands. The government asked the Dutch Social and Economic Council (Sociaal- Economische Raad, SER) to advise on a number of the document s main points. The fundamental purpose of the policy should be to promote the optimal allocation of land. Spatial quality, economic development potential, accessibility, and quality of life should jointly enhance the vitality of both urban and rural areas. To this end, development-oriented planning is required. The SER sees planning policy as having three corner stones: facilitating social and economic developments (users value), promoting the quality of land use (visual qualities), and monitoring future qualities (including sustainability) by carefully managing irreversibles. Decentralised approach, based on strata of space Enhancement of urban and rural vitality will require a decentralised, regional approach within a national framework. At regional level, the issue of quality will need to be addressed comprehensively. The best possible use of regional potential starts with what might be called the strata approach, in which three strata of space can be distinguished: the primary stratum (soil and the water system), the infrastructure networks, and the occupational patterns (for living and working). Each stratum conditions the next stratum up. This conditioning affects the choice of location and/or the design of functions in the stratum or strata above it. Water is making ever-increasing demands on space. The SER supports the new going with the flow policy, which is a natural consequence of the stratum approach. This policy is based on the idea that issues regarding safety, flooding, drought and fresh water supply should no longer be resolved by purely technological means. This new approach is clearly expressed in the order of priorities given in the Fifth Policy Document: better utilisation of the water retention properties of the land; increased water storage by increasing the area of surface water; and, finally, water drainage. In 1 A summary of this document has been published in English.
3 3 addition, the SER endorses the importance the Fifth Policy Document attaches to water functions in combination with nature, recreation, housing and the economy (especially agriculture), because this could have the effect of reducing the total area involved, while increasing the quality of land use. Incentive structure and cooperation The total area needed for the spatial requirements of the various functions (housing, industry, etc.) is greater than the amount of space available. This means that policy choices have to be made. The Fifth Policy Document highlights three intervention strategies in its spatial policy: (1) intensifying land use, (2) combining uses and (3) transforming spaces in cities and the countryside. Intensifying is a strategy which particularly affects urban areas: it includes pricing on market terms and the multifunctional use of space. Combining functions is an ideal answer to the spatial needs of rural areas. Finally, transforming spaces through restructuring is a strategy that can be applied in both urban and rural areas. The SER endorses the application of these intervention strategies, but questions whether they will be deployed locally in a sufficiently effective way. To make these strategies work at local level, the SER believes the incentive structure for municipalities as well as the collaboration between municipalities should be improved. Spatial planning should take place at the level where the most important external effects can best be internalised. According to the SER, cooperation between municipalities should be enforced by a carrot-and-stick approach. The carrot (financial or otherwise) could be created by integrating the policy schemes of the various government ministries. The stick would be administrative. Collaboration between municipalities should be made less optional by insisting that municipalities who want to build outside the built-up area first discuss and agree on this with neighbouring municipalities. The guiding principle here would be the SER ladder, a 3-step approach developed for determining the selective and appropriate use of land. The three rungs of the ladder are as follows, in order of priority: 1. Use the space which has already been designated for a particular function and/or could be made available after restructuring. 2. Do everything possible to increase the productivity of the land by promoting multi-functional use of space.
4 4 3. In the last resort, consideration should be given to extending the amount of land designated for a particular function. Towards a development-based approach to planning The SER sees the following issue as central to spatial policy-making: In what areas does Dutch society want what sort of dynamics in the near future, and how will it endeavour to achieve this? Answering this question calls for a comprehensive approach. The SER endorses the Fifth Policy Document s decision to adopt a developmentoriented approach to planning, which allows it to be open to social and economic dynamics and future-oriented. The Fifth Policy Document does not, however, develop this approach in detail. In its full report, the SER gives a number of pointers as to how this might work out in practice. For development-oriented planning to be effective, provincial and national frameworks are necessary, within which for specific areas (regions) open planning processes can develop. The development-based approach to planning provides an interactive link between spatial planning under public law, and local initiatives by private-sector parties, non-governmental organisations (NGOs) and individual citizens. The SER supports the basic principle underlying the Fifth Policy Document, as summed up in the phrase decentralise where you can, centralise where you must. The matters to be considered at national or provincial level need to be clearly defined. The Fifth Policy Document proposes to introduce a system of contour lines into its planning strategy. Green contour lines would be drawn around areas of special ecological, scenic, cultural or historical value. These areas would then be protected from the effects of building, infrastructure and intensive farming. The green contour lines would form part of the national parameters for development planning. The SER endorses this proposal. The Fifth Policy Document further proposes drawing red contour lines around all built-up areas in the Netherlands (including the necessary extensions already planned), in both town and country. Setting the red contour lines would be a compulsory task for provinces and municipalities. The functions of living and working would be allowed to develop within the red contour lines. Expansion beyond a red contour line would only
5 5 be allowed if it were proved, on the basis of the SER ladder, that the area within the red contour lines could not accommodate the building requirement for housing and employment. In the SER s view, it is important for municipalities to work together in identifying all the individual functions which are or have already been assigned to the various areas. In the course of their collaborative efforts, municipalities may deal with the allocation of a single function, or indeed with certain combinations, and the preconditions that go with them. When selecting locations for red functions, the SER ladder should be the guiding principle. The Fifth Policy Document proposes to make it compulsory for provinces and municipalities to demarcate the areas for the red functions. However, based on experience with comparable instruments, it has to be said that the contour lines approach brings both risks and opportunities, which will vary in significance depending on how they are worked out in practice. The SER emphatically advises against the red contour lines as developed in the Fifth Policy Document. In general, the SER feels that the risks incurred by the red contour lines approach heavily outweigh the opportunities it offers; the SER sees the red contour lines as a blunt instrument which is inappropriate for region-based planning. 2 In the SER s view, local spatial planning should essentially revolve around municipal cooperation with the permanent stakeholders. Any demarcation lines should be decided upon by municipalities working together. These lines can then be checked by provincial authorities against the national parameters and the relevant plans for land use. 2 This general rejection of the red contour lines is not shared by the members from the Stichting Natuur en Milieu (Netherlands Society for Nature and Environment) and the Vereniging Milieudefensie (Friends of the Earth, The Netherlands) in the preparatory SER committee. In their view, both the approach outlined above and the fifth policy Document s approach to the red contour plan offer too much flexibility. To start with, the red contour lines should be set tightly around existing built-up areas, including areas already designated for expansion. These tight contour lines would form the basis for inter-municipal planning. Changing the red contour lines would be subject to a stringent procedure.
6 6 The land which is not enclosed by red and green contour lines accounts for much of the surface area of the Netherlands. The Fifth Policy Document is inconsistent in noting at one point that this area also contains much that is of great scenic, cultural and historical value, while at another point characterising it as a target area for red area expansion. The SER feels that paramount importance should be given to the need for investment in the varied potential of the areas that fall between the red and green contour lines. This is as crucial to rural vitality as it is to the functions fulfilled for the urban population and industry. Scope optimisation and the openness of the development process For high-quality regional development, it is necessary to invest coherently in a variety of functions. These include functions which do not offer financial returns, such as nature conservancy and water management. To create added value, the scope of such investments needs to be optimised. That is, they need to be brought together to form a coherent package. This optimisation can be carried out along three dimensions: Space: Integrating profitable and less profitable activities or regions; Time: Determining the project s duration (planning, implementation and operation) and the degree to which it is future-oriented; Actors: Identifying stakeholders and actual and potential financial contributors. In principle, the development process should be open to all interested parties. Facilitating the input of citizens, NGOs and market parties in the early stages (whether or not through public/private partnership) requires the linking of public and private decision-making procedures. Having these processes run in parallel could streamline them significantly and thus create added value. It is a striking deficiency of the Fifth Policy Document that it lacks focus on both the interactive aspects of decision-making and the conditions for successful public/private partnership. Improving the quality of land use usually requires investment. The SER recommends that spatial planning should be more closely linked to investment in infrastructure. Scope optimisation could be achieved by market parties, NGOs and local authorities collaborating on a project envelope for an area on the restructuring list. This would include a balancing of the profits and costs of the various interrelated functions within the designated area.
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