Improving Planning SupportImproving Planning Support

The use of planning support systems in The use of planning support systems in spatial planningspatial planning

Guido Vonk, Henk Ottens, Stan Geertman, Paul SchotGuido Vonk, Henk Ottens, Stan Geertman, Paul SchotGeo-Information – Environmental SciencesGeo-Information – Environmental Sciences

Utrecht UniversityUtrecht Universityg.vonk@geo.uu.nlg.vonk@geo.uu.nl

ContentsContents• IntroductionIntroduction• Theoretical approachTheoretical approach• MethodsMethods• ResultsResults

– Instrumental quality approachInstrumental quality approach– User acceptance approachUser acceptance approach– Diffusion approachDiffusion approach

• InterpretationInterpretation• ConclusionsConclusions• RecommendationsRecommendations

What is spatial planning?What is spatial planning?• Planning is the activity that connects knowledge to Planning is the activity that connects knowledge to

action in the public domain” (Friedman, 1987)action in the public domain” (Friedman, 1987)

• Spatial planning concerns issues of land useSpatial planning concerns issues of land use

• Many kinds of knowledgeMany kinds of knowledge(tacit, explicit, experience, formal, informal etc.)(tacit, explicit, experience, formal, informal etc.)

• Mix of content, process, contextMix of content, process, context

analysis action

Planning and complexityPlanning and complexity

• Planning is very complexPlanning is very complex– multi objective and multi dimensional (Hall, 1975)multi objective and multi dimensional (Hall, 1975)– amount and diversity of informationamount and diversity of information– political and power related aspects (Forester, 1989)political and power related aspects (Forester, 1989)– organize communication with stakeholdersorganize communication with stakeholders

Demand for support!Demand for support!((e.ge.g. Van Rooy et al, 2004; Dammers et al, 2004, Stillwell et al, . Van Rooy et al, 2004; Dammers et al, 2004, Stillwell et al,

1999)1999)

Planning Support SystemsPlanning Support Systems• GGeo-informatieo-informationon technolog technology basedy based instruments; instruments;

• For storage and retrieval, visualization, communication, analysis and/or For storage and retrieval, visualization, communication, analysis and/or modelling of modelling of planning information;planning information;

• Usually within a Usually within a software packagesoftware package with a with a shared user interfaceshared user interface

• DedicatedDedicated to support those involved in planning to handle the to support those involved in planning to handle the complexitycomplexity of their planning tasksof their planning tasks

• Examples:Examples: Environment Explorer, UrbanSim, CommunityViz, Index, Environment Explorer, UrbanSim, CommunityViz, Index, MaptalkMaptalk

ProblemProblem• Ample supply of PSSAmple supply of PSS

• But PSS are in general not widely used in spatial planning But PSS are in general not widely used in spatial planning practicepractice

• While planners do demand support to handle complexity of While planners do demand support to handle complexity of planningplanning

PSS Planning Practice

Why PSS for support?Why PSS for support?

• Common motive:Common motive: belief in technology and rationality belief in technology and rationality• Common objection:Common objection: policy process too dynamic for technology, policy process too dynamic for technology,

society too complex for rationalizationsociety too complex for rationalization

Better motives for PSS:Better motives for PSS:• Human cognitive capabilities are limited Human cognitive capabilities are limited (e.g. Simon, 1958)(e.g. Simon, 1958)

• Empirical studies show an important role for rational analytical Empirical studies show an important role for rational analytical methods in policy in general methods in policy in general (e.g. Amara et al, 2004)(e.g. Amara et al, 2004)

• Many communicative planning processes fail due to problems Many communicative planning processes fail due to problems with knowledge handling with knowledge handling (e.g. In ‘t Veld, 2001)(e.g. In ‘t Veld, 2001)

• PSS support communicative and rational aspects of planningPSS support communicative and rational aspects of planning

Research AimResearch Aim::

• To find explanations for the relatively small degree of To find explanations for the relatively small degree of application of PSS in spatial planning practiceapplication of PSS in spatial planning practice

• Based upon this, make suggestions that could Based upon this, make suggestions that could enhance application, assuming that the use of PSS enhance application, assuming that the use of PSS could improve spatial planningcould improve spatial planning

Theoretical approaches to the problemTheoretical approaches to the problem

Instrumentbenadering

Communicatiebenadering

kwaliteit diffusie

PSS Planningspraktijk

Gebruikersbenadering

acceptatie

Instrumentapproach

Communicationapproach

quality diffusion

PSS Planning practice

Userapproach

acceptance

Research questionsResearch questions

• Which Which instrumental qualityinstrumental quality related factors hamper related factors hamper practical application of PSS in spatial planning practice?practical application of PSS in spatial planning practice?

• Which factors explain the limited Which factors explain the limited acceptanceacceptance of PSS in of PSS in spatial planning practice?spatial planning practice?

• Which factors explain the limited Which factors explain the limited diffusiondiffusion of PSS in of PSS in spatial planning practice?spatial planning practice?

MethodsMethods

– WorldwideWorldwide Web-based Surveys Web-based Surveys among experts among experts• 90, resp. 30 respondent90, resp. 30 respondentss

– Interviews Interviews andand survey survey among intended users among intended users• 43 Planners, geo-info specialists, executives 43 Planners, geo-info specialists, executives ofof provinces provinces

– Literature survey for system developer viewsLiterature survey for system developer views• 58 PSS 58 PSS involvedinvolved

Instrument approach: qualityInstrument approach: quality

Which Which instrumental qualityinstrumental quality related factors hamper related factors hamper practical application of PSS in spatial planning practice?practical application of PSS in spatial planning practice?

Instrumentbenadering

Communicatiebenadering

kwaliteit diffusie

PSS Planningspraktijk

Gebruikersbenadering

acceptatie

Instrumentapproach

Communicationapproach

quality diffusion

PSS Planning practice

Userapproach

acceptance

TheoretiTheoretical specificationcal specificationof the instrument approachof the instrument approach

Instrument quality: Instrument quality: Task-technology-user fitTask-technology-user fit(Goodhue&Thompson, 1995)(Goodhue&Thompson, 1995)

Planning task PSS-technology User

fit? fit?

• Instrument quality of PSS needs improvementInstrument quality of PSS needs improvement::– Supply does not match demandSupply does not match demand (a (addvanced vs vanced vs simplesimple))– Usefulness and Userfriendliness of advanced systems now insufficientUsefulness and Userfriendliness of advanced systems now insufficient

PSS Planning practice

PSS in general applied infrequently because:

Results

User approach: acceptanceUser approach: acceptance

Which factors explain the limited Which factors explain the limited acceptanceacceptance of of PSS in spatial planning practice?PSS in spatial planning practice?

Instrumentbenadering

Communicatiebenadering

kwaliteit diffusie

PSS Planningspraktijk

Gebruikersbenadering

acceptatie

Instrumentapproach

Communicationapproach

quality diffusion

PSS Planning practice

Userapproach

acceptance

TheoretiTheoreticalcal specification user approachspecification user approach

AcceptanceInfluence factors

Properties of:•Instrument•User•Organisation•Social environment•External environment•Facilitation

Awareness

Consideration

Evaluation

Decision

Usage

acceptance process

Technology Acceptance Model(Davis, 1986; Frambach&Schillewaert, 2002; Rogers, 2005)

• AcceptAcceptanceance of of PSS PSS in planning practice is limitedin planning practice is limited::– Many different factors hinder acceptanceMany different factors hinder acceptance– Little Little awarenessawareness of the existence and potential of PSS of the existence and potential of PSS– Little Little experienceexperience with application of PSS with application of PSS– Little Little intentionintention to start using PSS to start using PSS

PSS Planning practice

ResultsPSS in general applied infrequently because:

Communication approach: diffusionCommunication approach: diffusion

Instrumentbenadering

Communicatiebenadering

kwaliteit diffusie

PSS Planningspraktijk

Gebruikersbenadering

acceptatie

Instrumentapproach

Communicationapproach

quality diffusion

PSS Planning practice

Userapproach

acceptance

Theoretical specification communication Theoretical specification communication approach approach (Crossan et al, 1996)(Crossan et al, 1996)

• DiffusiDiffusionon of PSS hampered:of PSS hampered:– PSS PSS are difficultly taken up by planning organizationsare difficultly taken up by planning organizations– Bottom-up diffusiBottom-up diffusionon of PSS is most promising but often of PSS is most promising but often blockedblocked– MiscommunicationMiscommunication GI-specialists - planners GI-specialists - planners– Mainly Mainly management supported strategiesmanagement supported strategies, fear of ICT investments, fear of ICT investments

PSS Planning practice

ResultsPSS in general applied infrequently because:

InterpretationInterpretationRefinement of the problemRefinement of the problem

PSS in general

Planning practiceInforming PSS

Analyzing PSS

Communicating PSS

Previousresearch

Currentresearch

PSS in general

Planning practiceInforming PSS

Analyzing PSS

Communicating PSS

Previousresearch

Currentresearch

InterpretationInterpretationPSS usage modelPSS usage model

ConclusionsConclusions• Differences in degree of PSS usage:Differences in degree of PSS usage:

– Informing PSS are rather widely usedInforming PSS are rather widely used– Communicating PSS are less widely usedCommunicating PSS are less widely used– Analyzing PSS are hardly usedAnalyzing PSS are hardly used

• Primary causes for less widespread usage are:Primary causes for less widespread usage are:– lack of experiencelack of experience– lack of awareness of existence and potentiallack of awareness of existence and potential– lack of instrumental qualitylack of instrumental quality

• Secundary causes for less widespread usage Secundary causes for less widespread usage are:are:– hampered acceptancehampered acceptance– hampered diffusionhampered diffusion

RecommendationsRecommendationsUsage recommendations:Usage recommendations:• More attention is needed for the More attention is needed for the application environmentapplication environment instead of technology drive instead of technology drive• The application environment should incorporate characteristics of the The application environment should incorporate characteristics of the learning learning

organizationorganization

Development recommendations:Development recommendations:• Incremental developmentIncremental development of PSS, expanding from applications that are already used of PSS, expanding from applications that are already used• DedicationDedication to planning tasks and users e.g. through flexible toolboxes to planning tasks and users e.g. through flexible toolboxes• Enhanced Enhanced communication and cooperationcommunication and cooperation with users in PSS development with users in PSS development

Research recommendations:Research recommendations:• Study Study best-practicesbest-practices of PSS usage of PSS usage• Study Study benefitsbenefits of PSS usage of PSS usage• Develop a Develop a planning modelplanning model for PSS supported planning for PSS supported planning

DiscussionDiscussion

Why PSS IIWhy PSS II• Empirical studies show that rational analytical methods do have an Empirical studies show that rational analytical methods do have an

important role in policy in generalimportant role in policy in general (Amara et al., 2004; Caplan, 1979; Merry, (Amara et al., 2004; Caplan, 1979; Merry, 1995). Rational analytical knowledge can provide explanations with quality 1995). Rational analytical knowledge can provide explanations with quality and permanence.and permanence.

• Experiences show that many communicative planning processes suffer Experiences show that many communicative planning processes suffer from:from:– excessive use of power;excessive use of power;– uncritical use of experience knowledge;uncritical use of experience knowledge;– insufficient attention for planning as a learning process;insufficient attention for planning as a learning process;– insufficient use of scientific knowledge;insufficient use of scientific knowledge;

often leading to ineffective plans, strong criticism towards governments and often leading to ineffective plans, strong criticism towards governments and demands for more evidence-based policiesdemands for more evidence-based policies

Why PSS IIIWhy PSS III

• Communicative planning methods tend to Communicative planning methods tend to overestimate human cognitive capabilities to handle overestimate human cognitive capabilities to handle societal complexity ad hoc in communicative societal complexity ad hoc in communicative processes. Most people can only deal with only three processes. Most people can only deal with only three or four variables at a time, through only one or two or four variables at a time, through only one or two iterations. To compensate, decision makers typically iterations. To compensate, decision makers typically assume simple cause/effect relationships, rather than assume simple cause/effect relationships, rather than multiple interactions; simple and independent systems multiple interactions; simple and independent systems instead of strongly interlinked systems; and no time instead of strongly interlinked systems; and no time delays in the system (De Geus, 1988; Lyons, 2005). delays in the system (De Geus, 1988; Lyons, 2005).

MethodsMethods• Developer perspectives Developer perspectives literature survey literature survey

– 58 systems58 systems– Scored on intended planning task, information function, userScored on intended planning task, information function, user– Main sources: Brail&Klosterman 2001, Geertman&Stillwell 2004Main sources: Brail&Klosterman 2001, Geertman&Stillwell 2004

• User perspectives User perspectives group interviews group interviews & quick scan & quick scan– 43 employees of 12 Dutch regional planning organizations43 employees of 12 Dutch regional planning organizations– 12 interviews with 2-4 interviewees, 1½ hr per interview12 interviews with 2-4 interviewees, 1½ hr per interview– Planners, geo-info specialists, executivesPlanners, geo-info specialists, executives

• Expert perspectives Expert perspectives worldwide web-survey worldwide web-survey– 90, resp. 30 respondent90, resp. 30 respondentss– Open questions Open questions and closed questionsand closed questions– On the current status of PSS technology, its potential and on On the current status of PSS technology, its potential and on

bottlenecks blocking the potential from being achievedbottlenecks blocking the potential from being achieved