LEARNING FROM DUTCH CITIES

TEN

Photographs courtesy of Andrew Armes, Paul Evans, Nicholas Falk, Bob WestCase study of Borneo courtesy of Building for Life/CABE (Commission for Architecture and the Built Environment)

Report written by Nicholas Falk and edited by Esther Caplin

Copyright URBED/TEN Group2005

URBED19 Store StreetLondon WC1E 7DH

Tel. 020 7436 8050www.urbed.com

CONTENTS

Participants page 3

Map of the Netherlands page 4

LEARNING FROM DUTCH CITIES page 5 Overview page 5Amsterdam page 10Rotterdam page 14Almere page 18

RESPONSES FROM PARTICIPANTS page 22SOME LESSONS page 24

Appendices: APublicParticipation page 29BAmsterdamDocklands page 34CBorneoSporenburg,Amsterdam page 36DRotterdam–Colossusof theWaterways page 40EAlmere,Holland:ExpandingaNewTown page 42FFactFile page 43

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PARTICIPANTS

TENTEN is a small group of senior local authority officers who meet on a regular basis to share ideas andtoexchangeknowledgeonachievingurbanrenaissance.Whatlinksthemarecommonconcernsandadesiretogainspaceforblueskythinking.Inoveralltermstheywishtoexplorehowtousethepowersavailabletothemtoeffectchange;discovertechniquesforfacilitatingchange;anddeveloptheirroleasurbanimpresarios.

Aspartof its2004-5programme,TENorganisedavisittoagroupof majorDutchcitiesintheRandstad(ringcity)todrawlessonsonachievingsustainableurbangrowth.

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Participants in the Study Tour

Andrew Armes Headof DevelopmentandDesignMiltonKeynesCouncil

Esther CaplinAdministratorTEN

Paul ClarkChief Planning OfficerLondonBoroughof Redbridge

Marc Dorfman Directorof RegenerationLondonBoroughof Ealing

John EastHeadof PlanningandTransportLondonBoroughof Southwark

Dr Paul EvansStrategicDirectorof RegenerationLondonBoroughof Southwark

Dr Nicholas FalkDirector,URBED(UrbanandEconomicDevelopmentGroup)

David HackforthHeadof PlanningandTransportationMiltonKeynesCouncil

David Hennings AssistantChief Executive(Strategy)LondonBoroughof Haringey

Shifa MustafaAssistantDirectorof PlanningandEnvironmentalControlLondonBoroughof Haringey

Andrew Wells Director,SustainableCommunitiesDirectorateOffice of the Deputy Prime Minister

Bob WestKing’sCrossProjectLondonBoroughof Camden

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The Netherlands

Learning from Dutch Cities

OVERVIEW

UsefullessonscanbelearnedfromHolland,whichhashadasimilarcultureandhistorytoBritain,andwhichmorethananycountryhashadtodealwiththechallengesof livinginarelativelysmallarea,some360by200kilometres.Asmuchof thebuildinglandhasbeenman-made,therehasbeenaparticularrespectforplanningandHollandhasbeenintheforefrontof movestowardstheEuropeanSpatialDevelopmentPerspective.LikeBritain,thereisamajorconcernoverwherethenewhousesneededtocopewithfallinghouseholdsizearetogo.

Dutchtownsandcities,suchasAmsterdam,RotterdamandAlmere,provideexcellentmodelsforhowtocreatemoresustainablecommunities, and how to spread the benefits of townandcityrenewal.BritainhasmuchclosersimilaritiestotheNetherlandsthanitdoes,forexample,toNorthAmerica,duetoitslongindustrialandimperialhistory.Alsomostpeopleliveindenseconurbations,andtherearesimilarchallengesintermsof copingwiththecar,andsavingnaturalresources.Therehavealsobeenhighlevelsof immigration,andnearlyhalf thepopula-tioninbothAmsterdamandRotterdamnowcomefromabroad,creatingsimilarissuesintermsof socialcohesion.HowevercitiesarenotonlymuchmoreproductivethancomparableBritishcities,suchasLeedsorBristol, with significantly higher levels of GVApercapita,buttheyarealsomuchfairer,withlowerdisparitiesinincomesandeducationallevels,andthereisamuchwiderchoiceof socialandaffordablehousing.

Joined up thinkingWithfewclearboundaries,andarelatively

smallpopulationof Dutchspeakers,Hollandismuchmoreintegratedwiththerestof NorthernEurope,andthishasboostedeconomicdevelopmentandinnova-tion.Alsowithlimitednaturalresources,thecountryhashadtobemorefrugalandinventiveinapplyingtechnologytomeet-ingurbanneeds,forexamplemakingthemostof windandwaterandconservingfuel.Therehasbeenalongtraditionof civicindependence,andinvestmentinthepublicrealmandinfrastructure.Finallytheytendtothink‘interconnectedly’andhavelongbeenexponentsof ‘joinedup’thinking,ratherthan engaging in interprofessional conflicts. ApaperbyLordRichardBest(Appendix A)stressesthegreateremphasisputonbuildingconsensusthroughtheuseof intermediarieslikearchitecturecentres.

Positive planningHeavilydamagedinthelastWorldWar,theDutch,alongwithneighbouringNorthernEuropeancityregions,havebeenleadingthewayinpromotingtheideasof ‘compactcities’and‘polycentriccityregions’,whichinspiredtheEuropeanSpatialDevelopmentPerspective.Throughpositiveplanning,andpubliclyledpartnerships,theyhaveshownhowinvestmentininfrastructure,consensusbuilding,andhigherdensityandmixedtenurehousing,canproducecitiesthatarelivingplaces,energyconscious,andiconsforgoodurbandesignandmodernarchitecture.However,likeBritishcities,theyalsofacecontinuingthreatsfromthelossof better-off peopletotheperipheralareas,particularlysmallerhistorictownsandvillages,thechallengeof maintainingthecompetitivenessof centresagainstsprawl-ing‘edgecities’,andveryrealproblemsof achievingsocialcohesion,buildingmorehomes,anddealingwithpressuresfordevelopmentinthegreenbeltor‘GreenHeart’.Thedifferenceisthattoamuchgreaterextenttheyseemtohaveturnedthevisions,andrhetoric,intotangibleresults.

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Neighbourhood managementEventhoughhouse-buildinglevelshavefallen,theyarestill50%higherthanBritishlevels,andnewdevelopmentsaregenuinelymixed,withlittleobviousdistinctionbetweenunitsforsaleandforrent.Thesecretliesinacombinationof asharedvisionorcommonculturethatseescitiesasmajorpublicassets,awillingnesstoworkasteams,bothacrossprofessions and sectors (in part reflecting theso-calledPoldersmentalityof unitingtokeeptheseaout),mechanismsforinvestinginthepublicrealmanditsmaintenance,andarelativelyclasslesssociety.Thereisalsoacarefulbalancebetweenthesocialcontrolneededtomakedenseneighbourhoodswork,andareasof freedom,includingnotonlythefamouscoffeehousesandRedLightDistrict,butalsothemanypeoplewholiveonboats,orwhohavesmallhutsonallotmentsnearoneof thedrainageditchesontheedge.

Architectural innovationTherehasbeenastrongtraditionof innovationcomingfromthepublicsector,with35%of housingbeingpubliclyowned,risingto60or70%inthecities.Housingassociationsarebeingrequiredtoraisetheirfinance privately, but this is not presenting aprobleminviewof therangeof housingtheyprovide.Housingandplanningareseenascloselyrelated,andtherehasbeenatradi-tionof buildingcitiesinconcentricrings,linkedbypublictransporttonewcorridorsof development.Architectshaveplayedaleadingroleinthinking,andthestrongtradi-tionof autonomouscitieshasencouragedlocalinnovationwithinanationalframework.

Design excellence Dutchtownsfeelveryattractive,notjustbecauseof theextensivecanalsystem,butalsobecausethestreetsaresowell-proportioned,withmanymorefourstoreybuildings,withlargewindows.Thehistoriccoreshavebeencarefullyconserved,andtraffic has been largely tamed.

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Insteadof tryingtoseparateoutdifferentuses,mixedusezoneshavebeenpositivelyencouragedthroughcarefulplanning.Com-petitionsareusedtoselectdesignanddevel-opmentteams,butwithinbriefsthathavebeendrawnupbythelocalauthority,oftenusingconsultants.Thereismuchlessprofes-sional infighting, and this makes it easier for teamstoproduceschemesthatreallywork.

Environmental responsibilityThemainkeytotheattractivenessof thecentres of Dutch towns is the way traffic hasbeenhandled.ThoughcarownershipishigherthanintheUK,usageisactuallyless.Inpartthisisbecauseof thesuperbpublictransportsystems,whichtieallof Hollandtogetherwithveryfrequentandcomfortableservicesinmoderntrains.Butwhatreallymakesthedifferencewithinthetownitself isthemuchgreateruseof bicycles,probablythehighestinEurope.Peoplecanownasmanyasfourdifferentbikes,andthishasbeenencouragedthroughmeasuressuchasbikelanes,bikeracks,changingfacilitiesandshowersinplacesof work,andfewroundabouts.Bikesareparticularlybeneficial where many people live several milesfromthecentre.Asmanyas30%of tripsinHollandaretakenbybicyclecom-paredwith3%onaverageinBritain,eventhoughtheweatherisnotverydifferent.

Developmenthasbeenfocusedonlocationswithhighstandardsof accessibilitybypublictransport.Plannershavesoughttoavoidexcessivecompetitionfromoutof townsitesbycontrollingtheamountof parkingallowed.Thishasbeendonewithinanationalpolicyforparkingstandardslinkedtolevelsof accessibility.Asanexample,thenewdevelopmentof apowerstationsiteinGroningenonlyallowshalf aparkingspaceperapartment.Moreparkingisallowedaroundrailwaystationstoencouragepeopletochangetopublictransport,andto

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promotehigherdensitydevelopmentthere.Muchmoreuseismadeof carhire.

Withinresidentialareas,therehasbeenalongpracticeof creatingHomeZonesorWoonerfswherestreetshavebeenmadesafeforchildrentoplay.Childrengetthemselvestoschoolwhichprovidesastrongsocialisinginfluence, and saves parents having to spend timedrivingchildrenaround.

Social well-beingAsinEngland,therehasalsobeenatenden-cyforwealthierfamiliestoleavethecityforruralareas,thoughthereisnowanincreasingenthusiasmforlivinginthecity.Hencethereisaconcerntopromotecohesionthroughspatialaswellaseconomicpolicies.

Mostpeopleliveinapartmentblocks.Inthepastsome80%of thesehavebeeninthesocialsector,andrentedout.Majorchangesarenowunderwayto‘privatise’half thehousingstock,withtheroleof thelocalauthoritybecomingmoreof acatalystfordevelopment.Withinsocialhousing,rentsarelinkedtoincomelevels,andcanbenohigherthanathird,hencehelpingtoensureawidespreadof peoplelivingclosetoeachotherandkeepinghousingcostsdown.TherehasnotbeenthesamestigmaassociatedwithrentingorpublichousingasinBritain.

Apartmentsaregenerallymuchmorespa-ciousthaninBritain,andinpartthisisdueto highly efficient construction processes. Mostblocksarebuiltusinganingeniousconcrete‘tunnel’structure.Thisisformedveryquicklyonsiteandprefabricatedelementslikebathroomscanbeeasilyadded.However,theyaregenerallycladintradition-almaterialslikebrickorstucco,sothattheydo not stand out, as British system built flats usedto.Theapartmentsareoftenmanagedbyhousingassociations.Thepublicspacesarekeptsecureandarewell-lookedafter.

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Withthesupplyof housinglandbeinglarge-lycontrolledbythelocalauthority,housingdevelopershaveputmoreeffortintoproduc-ingbetterproducts.Aninterestingdifferencehasbeenthewaysomeof thelargesthousebuilders are linked to financial institutions. (AnexampleistheINGGroup,nowin-volvedinMiltonKeynes.)Withaninterestinbothcontrollingconstructioncostsandalsogeneratingcontinuingrentalincome,amoresophisticatedapproachtohousingdevelop-menthasresulted,wherenewproductsap-pealtoamuchwidermarketthaninBritain.

Thoughthereisamuchmoreliberalattitudetosoftdrugs,drugtakingisinfactmuchlessextensivethaninEngland.Asaresult,crimelevelsarealsolower.Streetsfeelsafebecausetherearefarmorepeopleonthepavements,andfarlessaggressivebehaviour.

Collaboration between townsAfterthelastwar,Hollandhadtoinvestheavilyinrebuildingitsbombedcities,andinmodernisingitsindustry.Localauthori-tieshaveplayedanimportantrole,andasinBritainnow,therehasbeenadivisionintoregionsorprovinces,aswellascountiesandmunicipalities.However,therehasbeenagreaterrelianceonregionalplanningthroughgroupsof townsworkingtogether.ExpertsfromHollandhavebeenleadingproponentsof theideaof EuropeanSpatialDevelop-mentPerspective.Therehasbeenarespectforcollectiveactionandmunicipalautonomy,linkedtocarefulresourcemanagement.TheDutchrecognisetheinterrelationbetweenaccessibility,locationof investment,qualityof life,andeconomicperformance.Theneedtomaintainacomplexdrainagesystem,hasledtostrongcollaborationbetweendifferentagencies,andlittleof theideologicalcon-flicts over the role of the public and private sectors.Whiletherehasbeensometraditionof voluntaryaction,ithastendedtofocusontheneedsof disadvantagedgroupsratherthan fighting development proposals.

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AMSTERDAM

AmsterdamwasHolland’slargestindustrialcity,aswellasbeingaworldcityasfarastourismisconcerned.SoinadditiontoencompassingthelargesthistoriccoreintheWorld,italsocontainshugeformerindustrialareas,suchastheoldEasternHarbour,withsitesliketheformerShellRefinery, just across a wider river from the heartof thecity.ItliesonlyanhourfromtheHagueandRotterdambytrain,andtogetherwithUtrechtandsmallerhistorictowns,formspartof theRandstadorRingCity,oneof themostsuccessfulurbanconurbationsin the world. The findings of research, for exampleCompetitive European Cities: where do the Core Cities stand?,showshowtheDutchspatialandeconomicplanningstrategyhaspaidoff.Theregenerationof theEasternHarbourarea,whichwasthesubjectof aboattourbymembersof TEN,providesaniconicmodelforhowtodevelopnewformsof housingandmixedcommunitiesonformerindustrialandisolatedwaterfrontsites.AnoverviewbyJonRowlanddrawssomelessonsforBritain(Appendix B).

Productivity WithGDP/percapitaandproductivitylevelssome50%higherthanthesimilarlysizedBritishcitiesof LeedsorNewcastle/Tyneand Wear (though significantly below the levelsof HamburgorParis),bothAmster-damandRotterdamofferinterestingmodelsforhowtoadapttoeconomicchange.Ratherthanrelyingonhighemploymentrates,asforexampleintheThamesValleycountiesof Berks/Bucks/OxfordshireorBrussels,theyhave succeeded in attracting firms with high levelsof productivity,andthathencecanpayhigherwagerates.Thisisparticularlyobvious in the huge office parks around Schiphol Airport, and the office towers of Rotterdam.Thedecisionof Shelltoretaintheirlaboratoryfacilityemployingsome1,200 on their refinery site, and turning it

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into their world research centre reflects the company’sviewthathighlyliveableandwell-connectedcitiesarethebestplacestoattractandretainthemosttalentedstaff,whorepresenttheirmaincapitalforthefuture.SimilarlyRotterdamisnotonlytheworld’slargestportbutisalsothemainEuropeancentreforlogistics.HollandalongwithSwedencontinuestohaveahealthyheavycommercialvehiclemanufacturingindustry,andindustryprobablyhasahigherstatus.

Theirsuccessinexploitingthemaindriversof economiccompetitiveness:innovation,connectivity,andaskilledworkforce,hasbeenacrucialfactorinHolland’srelativesuccess.Amajorstudyof Amsterdam’sexperiencepublishedin2000,Amsterdam: the Major Projects,emphasisesthat‘To meet European competition, Amsterdam must enter into alliances with other cities in the Dutch Randstad and indeed throughout Western Europe…. The four major Dutch cities – Amsterdam, Rotterdam, the Hague and Utrecht – have already united in the “Delta metropole” project aimed at enabling the Randstad to develop into an urban agglomeration of European significance.’Thisisnotonlymorefar-sightedthananythingyettoemergeinEngland,butisrootedinwhatisrealisticallyattainable,giventheirstrategiclocation.

Livability Continentalcitieshavesucceededinretainingtheirattractivenessasplacesforawiderangeof groupstolive.Amsterdam: the Major Projectspointsoutthat‘If the structural upgrade is to be successful, the physical renewal of in-dividual buildings, public spaces and amenities must go hand in hand with social and economic renewal.’Some40,000newhomesareplanned,andthepopulationisrisingasfastasLondon’s,inpartbecauseof thegrowthof highereducation,butalsoduetoimmigration.TheAmsterdamplan identifies the key goals as ‘accessibility, sustainability, multiple land usage and mixed functionality, public space and the quality of life’.Hencethetaskisseenasbuilding

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betterneighbourhoods,notjustnewhousing.Mostof thepopulationareusedtolivinginrentedhousing,withasubsidyproportion-atetoincomelevels,sothereislittleof thestigmaassociatedwithrenting,asinBritain.Thenewschemesseektocreateagreatermixof tenureswithoutanyobviousdistinc-tion.Cleverideashaveincludedputtingstudents on the fifth floor of new blocks of flats without lifts, and having a multiplicity of architectsdesignunitswithinoverallmaster-plans. A case study of an influential high-densitydevelopmentof BorneoIslandhasbeenproducedbyCABE(Appendix C).Costshavebeenkeptdownbyusing‘TunnelCon-struction’methodsonlargerblocksinwhichaconcreteshelliscastwithinaframework.

NewdevelopmentsinvolvemuchnarrowercarriagewaysthaninBritain,withnoclutterof signsorlines,andwithmorespaceforparkingandcyclinginstead.Tenmajorhousingassociationsaccountforthebulkof construction. Major financial institutions, liketheINGBank,havesetupdevelop-mentandpropertymanagementsubsidiaries.Significantly ING are developing the old Shell Refinery site through a sub-lease from theCityCouncil,whichhasprovidedthemwiththesecurityneededtoacquirethesitefromShell,andtherearepenaltyclausesinthecontracttoensurethatdevelopmentisnotdelayed.Hencebothpublicandprivatesectorsworktogetherinaproperpartnershipgovernedbytheequivalentof theLandlordandTenantAct.

ConnectivityBicyclesruleinHollandandtheratioof privatecarstopublictransportandbicyclesinAmsterdamis55:25:20.ThoughthereisbyBritishstandardsarelativelygoodpub-lictransportsystem,withcloseintegrationbetweentheairport,theinter-cityrailsystem,andthesuburbantrainandtramservices,priorityisbeinggiventoupgradingthemstillfurther.Developmentof anewunderground

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lineandamassiveinterchangearoundtheCentralrailwaystation,startedwiththeconstructionof amultistoreystructureforparking7,000bikes.ThoughtheABCpolicyforrelatingparkingstandardstopublictransportcapacityhasnotquiteworkedoutasplanned,duetorivalrybetweenauthori-tiesinattractingjobs,therearestillmuchhigher levels of office development around majortransportnodes.Thepost-warsuburbsarealsobeingrenewed.Controlsonpark-ing,forexamplethecontinuingreductioninthenumbersof spacesinthecitycentre,arelinkedtothedevelopmentof newneigh-bourhoodsaroundneworupgradedstations.

Governance DutchcitieslikeAmsterdamhaveplannednotonlyattheneighbourhoodlevel,butalsoatthecityregionlevel,tomakethepolycentricgrowthmodelwork.Over80%of thelandwithinthemunicipalityisownedbythecity,whichgivesitakeyroleinpromotingdevelopmenteventhoughlocalauthoritiesraisearelativelysmallproportionof their own finance. The Amsterdam DevelopmentCorporationbringstogetherthecityestatedepartmentanditshousingdepartmentinanagencythatcanbuildlong-termpartnershipswithdevelopers.Mayorsappointedbythegovernment,ahighlypositiveplanningsystem,andaproportionalrepresentationsystemmeansthatthereismuchlessdoctrinalandorganisationalchangethanintheUK,andagreaterchanceforlearningfromexperience.Similarlytheprivatesectorisusedtoworkingwithleadershipcomingfromthelocalauthority.Masterplansconsiderarangeof options,andtheresultingchoiceisexpressedintermsof aseriesof designguidelines to allow for a degree of flexibility. Considerableuseisalsomadeof Architec-turalCentresandotherintermediariestohelpbuildconsensus,andthesubjectof citiesandarchitectureistakenmuchmoreseriouslythaninBritain.

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ROTTERDAM

Largelydestroyedthroughbombing60yearsago,RotterdamlikemanyEnglishcitieshasalsohadtocopewithalegacyof uglypost-warcommercialbuildings,andpoorblocksof housing,alongwithmuchstrongercompetitorsintermsof cultureandtheknowledgeeconomy.Thecity’srenaissancestartedintheearly1980swithprojectstomakethemostof itswaterfront,includinganiconicblockof cubehouses,thathelpedputthecitybackonthemap.Havingconsideredproposalsfromanumberof well-knownarchitect-planners,thecityappointedanewDirector,whospenttwoweeksbrainstormingthecitywithherstaff,tocomeupwith30projectsaimedatmakingthemostof thecity’shiddenassets.ShethensecretlycommissionedafamousDutcharchitectplannertocomeupwithanewmasterplanfortheKopVonZuid,anotoriousolddockarea.Publicsupportforthekeyideas,includinganexcitingnewbridge,haveledontoaseriesof innovativearchitecturalprojects.

Productivity Backinthe1980sRotterdamfeareditcouldnevercompetewiththeHagueorAmsterdam,butinfactithassucceededinbringing new office employment into the heartof thecitycentre.Whereasbeforethewarsome80,000peoplelivedinthecentre,todayonly28,000do,butthereare80,000jobs,manyintheheadquartersof majorpublicandprivateorganisations.LikeAmsterdam,thecityhassucceededinprovidingaclearsenseof direction,backedupwithsuitablesites,andhasmadethemostof itspivotalpositionatthemouthof theRhine.Insteadof wastingresourcescoveringovertheshoppingcentre,thecityhasremodelleditscentre,andmadethemostof newleisurefacilitiestocreatealinkedseriesof publicspaces.Fodor’sguideprovidesusefulbackground(Appendix D).

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Livability Rotterdamnotonlylostpopulationtotheedgesasaresultof thewar,butalsohasseenawiderangeof immigrantgroupsreplaceitstraditionalwhiteworkingclasspopulationinsome areas. In turn this has led to conflicts atneighbourhoodlevel,whichthecityhassoughttoaddressthroughaninnovativeprogrammecalledOpzoomeren,afterthefirst street where it was tried. The basic idea istochallengeresidentstotakeresponsibilityfortheirownenvironment.Athreestageprogrammeusesfacilitators,backedbythepoliceandsocialworkers,tonegotiateagreementsstreetbystreet.Afteraninitialdiagnosticphase,itstartswitheffortstogetpeopletoknowtheirneigh-bours,throughstreetpartiesthatcelebratediversity.Theythengoontodeveloprulesof ‘urbanetiquette’.Asocialcontractusestheincentiveof themunicipalityputtinginsomeinvestment,forexamplenewstreetnames,inreturnfortheresidentstakingresponsibility.Since2000,theprogrammehasalreadyoperatedsuccessfullyinover700of some2,400streets,focussingonneighbourhoodsknowntobeunsafe.Thereisatargetof agreeingsocialcontractsin150streetsby2006.Underlyingtheapproachistheideaof a‘ladder’forsocialcohesion,rangingfromaggressionatthebottomtoself controlatthetop(seepage19).

Anotherinnovationhasbeenthedevelopmentof aseriesof highriseapart-mentblocksthatareprovingverypopularwiththenewknowledgeworkers.Thoughtheresidentialpopulationisstillonlyathirdof whatitwasbeforethelastwar,thegrow-ingpopulationishelpingtomakethecityfeelsaferandmoreattractiveatalltimes.

Connectivity Rotterdamhasinvestedinahighqualitytramsystem,andalsoanundergroundrailwaywithseverallinesstretchingover80miles.Anewtramlinewasbuiltinadvanceof themajor

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developmentof theKopvonZuidarea,toassistthearea’sregenerationandencouragetheuseof publictransport.ParkandRideon the periphery also helps keep traffic down inthecentre,andthroughroadshavebeenturnedintoboulevards.Anoticeabledifferenceoverthelast20yearsistheextensivepedestrianisednetwork,whichpermeatesthenewwatersidedevelopments,creatingamemorableplacetovisit.Rotterdamisimprovingitsconnectivitystillfurtherwithamajorprojecttoupgradetheareaaroundthemainrailwaystation.

AswithotherDutchcities,thereisagreatstressoncommunications,withalargeandsophisticatedshopfrontvisitorcentre,usingtechniquessuchasVirtualReality.

Governance AkeyelementinRotterdam’srenaissancehasbeentheirentrepreneurialDirectorof Development.Thecityhassoughttolearnfromthebestof practiceoverseas,andforexamplecontributedtothe1988HighburyInitiativeinBirmingham,andistwinnedwithShanghai.Thereisafocusonneighbourhoodmanagementaswellasstrategicplanning.Considerableusehasbeenmadeof architecturalcompetitionstogetinnovativebuildingsthatarealsoaffordable,giventherelativelylowrentallevelsthatthecitycanachieve.

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The Opzoomeren model for neighbourhood management

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ALMERE

Almereisthelargestof theDutchNewTownsandisexpectedtogrowfromitscurrent250,000toover400,000inhabitants.Onlyhalf anhourbytrainfromAmsterdam,ithasbeenbuiltaroundaseriesof newstationsalongtherailwaylinetoprovideagrowthpointonlandreclaimedfromthesea.Theaim,likeMiltonKeynes,is to create a town that is relatively self-suffi-cient,butatpresentmostpeoplestillcom-muteoutforjobs.

Thecityisexpandingalongtherailwayline,toaplanthathasbeendevelopedwiththeneighbouringauthorities(seeJohnBest’spaper–AppendixE).Thetownisbuiltatrelativelyhighdensities,butwithinaspaciousgreenframework,andhasprovedapopularplaceforyoungfamiliestobringupchildren.

ProductivityThestrengthof Amsterdam’seconomy,andtherangeof otheremploymentcentresthatcanbereachedeasily,meanthatAlmerehasnotsufferedfromalackof jobs.Theoriginalaimwastohaveonly10%workingoutside,and50%of thejobsinthecityaretakenbypeoplecommutinginfromoutside.Newemploymenthasbeenprovidedinthepublicservicesneededtoserveagrowingtown.Some offices have been attracted by the availableworkforce,andthereareover125foreigncompanies,and70mediacompanies,plusaWorldTradeCentre.

Thegenerallyhighstandardsof Dutcheducation,withamuchhigherproportionof people finishing their education, and speakingseverallanguages,hasgiventheurbanconglomerationarealboost.TheCityCentreisbeingremodelledtoaplanbyinternationalarchitectRemKoolhas,withastressonmakingitmuchmoredistinctive.

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Livability Thoughitlacksahistoriccore,thetownhasbeendevelopedasaseriesof sixdistricts,eachwithalargenumberof neighbourhoodsaveragingsome4,000residents,withtheirownschools,shopsandmeetingplaces.Thepopulationisstillrelativelyyoung.Thecitywas influenced by the Club of Rome reports, andtheneedtosavenaturalresources(unlikeMiltonKeynes!).Thereisastressoncreatingdistinctiveplaces,andforexampleinoneneighbourhoodthedifferentstreetblockshavebeenpaintedindifferentpalettesof colour.

Newdevelopmentsarebeingbuiltathigherdensities,butwithlargegreenspacesandlakesbetweenthem.36%of thetotal61,500acresareaisgivenovertoagriculturalland,makingitaverygreenandbluecity,withmorewaterthanRotterdam.Whenthelandwasreclaimedsixtyyearsago,astartwasmadeongrowingaforest,tohelpprotectpeoplefromthewind.AlongwithSustainableUrbanDrainageSystems,andrichlyplantedfrontgardens,thereisasenseof livingclosetonature.Thedistinctivecharacterof thenewhomescomesfromtheapplicationof carefullyworkedoutDesignCodes,andmasterplansthatintensifydevelopmentaroundpublictransportcorridors.Apolicyof ‘sharedsurfaces’meansthatrelativelylittlespaceisgivenovertoroadsinresidentialareas,andparkingiscarefullydesignedtoseparatehousesfromthestreet.Thereisastressonharmonyandtheuseof colour,andresidentsareaccustomedtoconform.

Thereare13differentneighbourhoods,andthedistrictwevisitedhassome50,000citizensof which35%arenonDutch.InterestinglyinareasthatwouldstrikeBritishvisitorsasverysuccessfulthereareconcernsaboutlevelsof participationincommunitylife,and‘affectionforthearea’,whicharecloselymonitoredsothatcorrectiveaction

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canbetakenbeforeaproblemarises.Indicatorsincludeparentinvolvementinschools,security,childhealth,andmobility.Inthe1970speoplemovedeverythreeyears,butthishassloweddownashousebuildinghasfallen.Aproportionof socialhousingisbuiltintoalldevelopments,andsomeendupwithahigherproportionif thereisalackof buyers.Overallabouthalf thehomesareowneroccupied,andthedensityisaboutonefifth of the average for Dutch cities, though newdevelopmentsarebeingbuiltataround60dwellingstothehectare.Thepriorityisseenasgettinghouseholdstoidentifywiththeirneighbourhoodandchildrenwiththeirschools.

ConnectivityThoughAlmereisessentiallycarbased,thereis a first class bus system running at relatively highspeeds,asstopsarespaced6-800metresapart.Dedicatedgradeseparatedcyclewaysareprovidedthroughoutalongsidetheroads.Peopletypicallycyclefor3-4kmbutnotthe10kmfromtheedgetothecentre,soagoodbusservicelinkingupwiththetrainsisseenasessential.Thestopsbecomethenodesaroundwhichsocialfacilitiesaretobeconcentrated.

As well as the five railway stations, another oneisplannedtolinkupwithafewthousandnewhouses.Thesuburbsaredesignedaround‘sharedsurfaces’whichhavereplacedtheHomeZone(orWoonerf)asthemodelforhowtodesignlivingplaces.Thoughthereareinevitabletensionsbetweentransportengineers,plannersanddesigners,theyspeakthesamelanguageandworkasateam,co-ordinatedatdistrictlevel.Governance Strongpartnershipsareseenasessentialasnooneorganisationcandoitall.Eachpartof thecityhasacitymanager,whosejobistocoordinatedailyservices,andalsotointegratethesocialandphysical,

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includingdevelopingnewvision.Thejobinvolvesrespondingtoincidentsandalsolookingattrends,andtheytrytobuildupnetworks,andtopromotecollaborationwithcompanies.Theplanningof Almereispartof thesub-regionalspatialframework,whichensuresthatneighbouringauthoritiesarerepresented.Therearethreeplansconcernedwithphysicalstructure,infrastructure,andsocialdevelopmentandrenewal.Thekeyobjectivesaretosecureabetterbalanceandgreaterdiversityof population.Asthemunicipalityownsmostof theland,ithasahighdegreeof control,butisdependentonlandsalesandgovernmentgrantsforfundingtheinfrastructure.Asanexample,thenewstation,whichhasbeenbuiltaspartof thenextphaseof development,hasonlybasicplatforms,anditwillbeuptothemunicipalitywhetherandwhentheydevelopfacilitiesonoraroundthem.

ThereismuchclosercollaborationorteamworkingbetweenthedifferentprofessionsthanwouldbeusualinBritain.SimilarlythereareneighbourhoodteamsunderaCityManagerresponsibleforensuringthatnewresidentsareabsorbedintothecommunity,andthatalltheservicesfunctionwell.Asignificant achievement was the idea of creatinganewforest,which50yearsagowasseenasmad,butwithalotof careandpatienceisnowaprotectedlandscape.Thefundamentalvisionistocreateacitythatisbothharmoniousandsustainable.

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Responses from Participants

Participantscommentedonthemainimpactsthatthestudytourhadforthem.

‘A different culture and way of living, that cannot easily be replicated – re: modern architecture re: using space differently re: ceding control to local authorities re: supporting mixed/public transport’

‘How very sensible the Dutch are and how we manage to make everything so very complicated and difficult with the result people give up before they have even tried. I still cannot get over Rotterdam deciding to put the elevated railroad below ground. If I tried to phrase this more sensibly I would say: the lack of a common sense of purpose between public agencies in the UK and, especially, in transport the dead hand of rigid cost benefit analysis…. We only measure them in terms of journey times, which would mean Rotterdam’s project would have been dead before it started.’

‘As ever the willingness of the Dutch to take risks ... and then mitigate and manage the risk … as demonstrated by both Borneo Sporenburg and the Rotterdam agenda over the last 20 years.’

‘Building in more space for creative process and ideas – the 2 week planning awayday in Rotterdam; the architect-designed street in Amsterdam. We need to create more space for innovation.’

‘An accepted culture of modern style ... probably the product of a long engagement with the issue …. But the new individual build area could easily be seen as a descendant of the typical Amsterdam street.’

‘Individual architect designed homes within a framework of plot sizes and storey heights looked very good. Couldn’t we do this in Milton Keynes?’

‘A lower cost base and more rented property... which gives scope for innovation.’

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‘Water everywhere .... Obvious but it influences so much including the acceptance of shared space. Let’s capitalise even more than we do. (But not always ahead ... it was a bit like Docklands 1990 in places and some of the design was more routine.)’

‘Straight lines can work .… With flat land being made new they are uncompromising about the logic of layouts, with variation coming from simple devices rather than twee space-wasting twiddles.’

‘The public sector role in major development proposals. The local authority is always the key landowner and has control through ownership. This allows them to deliver quality. Hence the community seems better able to cope with new approaches to design than e.g. in London. This could be because the public sector delivers it there.’

‘Land Ownership used as a lever on redevelopment, particularly in Amsterdam.’

‘Time and money spent on presenting to the public and to business on a permanent basis pictures of where cities are going, e.g. through architecture shops.’

‘The way in which they had high ambitions for Rotterdam and managed to get it regenerated. It is similar to UK cities, and was partly redeveloped by British architects.’

‘High quality of strategic coordination and project management and architectural and urban design skills in local authorities to the extent that this is well respected by the private sector.’

‘What impressed me was the timescale in which Rotterdam were planning their city programme – it covered about 40 years. Given how long certain transport projects take in the UK we run on much shorter time frames and therefore limit what we can shape. By my experience few authorities manage to hold to much more than 10 year timescale – and that’s being optimistic.’

‘Opzoomeren – a new experience ... the Rotterdam Street initiative was a very interesting approach to dealing with disrespect, not going the route of banning hoodies, but putting people into streets and neighbourhoods and giving them time to develop things themselves … a fantastic result with limited resources ... and replicable.’

Some Lessons

ThoughDutchtownsandcitieshaveevolvedquitedifferentlyfromBritishequivalents,thereareanumberof lessonsthatcanbedrawnfromtheirexperiencesincethelastwar:•Hollandhasconcentratedonrebuildingitseconomyafterthewarbymakingthemostof itsstrategiclocation,andlinkswithadjoiningcountries,suchasGermanyandFrance.

•Byrebuildingitstownsandcitiesinwaysthatarehighlylivableandwell-connected,ithashelpedtomakethecitycentresmorevibrantandeconomicallysuccessful.

•Thedifferencesinthewaythecentreslook reflects a different approach to workingtogether,andalsoadifferentattitudetotowns,whichareseenasmajorcultural,socialandeconomicassets.

•ThechallengesthatinducedDutchpeopletocollaborateincreatingabetterenvironment,alsonowapplytomanyBritishtownsandcities,andsoitmaybepossibletotransfermoreof theirthinkingtotheUK,particularlytoLondonandtheSouthEast.

Learning from Dutch citiesDutchcitieslikeRotterdamandAlmereofferanumberof ideaswhichcouldbeusedtoimproveplanninginBritain.Theserelatetofive factors that URBED believes lie behind regenerationthatimprovestheprospectsof peopleandplacestogether:

1 Connectivity: Spatialplanningisconcernedwithsecuringpolycentricgrowth,andinvolvescollabora-tionbetweenneighbouringauthoritiestocreateaclearframeworkfordevelopment.Economiclinksarereinforcedbyhigherlevelsof investmentinintegratedandhigh

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qualitypublictransport.Pedestriansandcyclistsaregivenpriorityintownandcitycentres,anddevelopmentisconcentratedwhereaccessibilityishighest.

2 Choice:Landsupplythroughlocalauthorityowner-shiporacquisitionof mostdevelopmentlandisusedtoreinforcenationalandsub-regionalplans.Thoughtherehasalsobeenashifttowardssuburbanliving,thegreaterroleof housingassociations,withrentalslinkedtoearnings,makesformorebalancedcities,withagreatersocialmixatblocklevel.Socialmixhasalsobeenencouragedbybuildingattractivehighdensityhousinginformerindustrialareason the waterfront, and gentrification does notseemtobeseenasathreat,possiblybecausetherehasbeenamuchhigherbuildingrate.

3 Character: Designqualityhasbeenpromotedthroughagreateruseof masterplans,designbriefs,architecturalcompetitions,andtheprovisionof ArchitectureCentresinalmosteverycitytoimprovecommunicationsandthelevelof debate.Asaresultinnovationinthedesignof facadesandhouselayouthasbeencombinedwiththecreationof highlywalk-ablestreets.

4 Cohesion:Serviceprovisioniscoordinatedataneighbourhoodlevel,withanemphasisonsecuringfullparticipationfromeveryoneinactivitieslikeparentteacherassociations.Socialcontrolisalsousedtoencouragegoodcitizenshipinmaintainingtidystreets,andpublicspaceisvaluedmore.

5 Collaboration AbovealltheDutchshowushowtodevelopbetterplacesthroughclosercollaboration,betweenprofessions,organisations,andsectors,whichweneedtocopyif wearetobuildtrulysustainablecommunities.

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APPENDICES

APublicParticipation-Lord Richard Best

BAmsterdamDocklands-Jon Rowland

CBorneoSporenburg,Amsterdam-Building for Life/CABE

DRotterdam–Colossusof theWaterways-Foder

EAlmere,Holland:ExpandingaNewTown-John Best FFactFile-Foder

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Appendix A PUBLIC PARTICIPATION

IntroductionTheBuiltEnvironmentandTransport(BET)Panel’sPlanningtheFutureTaskForcehasestablishedtwosubgroups.ThisreportcomesfromthePublicParticipationSubGroupwhichvisitedGroningenandAmsterdamon25/26/27June2000.OurhopewasthatalookatthesceneinHollandwouldgiveusaglimpseof apossible,better,futurefortheUK.Thisreportsetsoutourimpressionsandconclusions.

OverviewPublicparticipationintheplanningsystemraisesthesameissuesintheNetherlandsasintheUK.Inbothcountriesthereisarecognitionthatgreatercitizenawareness,andtheextensionof democraticprocesses,requiresthoseplanningnewdevelopments–particularlymajorinfrastruc-tureprojects–toengagewithlocalcommunitiestoamuchgreaterextentthanintimespast.Moreextensive consultation, participation and involvement brings the hope that conflict can be reduced, differingviewscanbereconciled,hassleanddelaycanbeminimised.

Butequally,thereareconcernsinbothcountriesabouttimescalesbeingextended,aboutpressuregroups exerting disproportionate influence, and about the quality of decision-making being dumbed-downnotimproved.

Bothcountriesfacethesameissuesof localantagonismandpoliticalmanoeuvringwhichcanmakeithardtoreconcilethewiderpublicinterestwiththeobjectionsof thosemostaffectedbybiginfrastructureprojects–likeanewairport(orextraterminal)oramajornewrailwayline.

InHolland,asintheUK,theseissuesarebeingaddressedfromthetopdown–withcentralandlocalgovernmentsseekingtobelessdistantandpaternalisticintheirplanningprocesses–andfromthebottomupwithenvironmental,amenityandneighbourhoodgroups,andindividualcitizens,becomingmorevocalandmoresophisticated.

OnlyatthemarginscanitbesaidthattheNetherlandsshowsusthefuture.Bothcountriesaregrapplingwiththekeyquestionsforsimilarreasonsandwithsimilaroutcomes.Indeed,tosomeextentthetraditionof theactivecitizenisstrongerinpartsof theUK;manyinHollandhavepassivelyacceptedahigherdegreeof Statedecision-takingthanwemighttolerate.Andintermsof howtoconsultandengage,thevarioustechniqueswediscoveredinGroningenandAmsterdamwouldnotbeground-breakingintheUK.

Butdespitethesesimilarities,weunearthedagooddealof evidencethatthelevelof commitmenttotheprocess,andthelikelihoodof success,maywellbegreaterthanformanyequivalentUKexercises.

Whydoes“participativeplanning”–“interactivepublicdebate”–appeartobemoreeffectiveintheNetherlandsthanintheUnitedKingdom?

Cultural DistinctionsAsalways,theUKseemstobepositionedsomewherebetweenmainlandEuropeandtheUnitedStates.Withoutgoingtotheextremesof America’slaissez-fairecapitalismandminimalistwelfareprovision, we find ourselves nevertheless a more privatised, unequal and entrepreneurial society thantheDutch:

•LifestylesinHollandaremore“collective”,withahighproportionof Amsterdamhomesbeinginsocialhousing(despitehigherlivingstandardsandfewerpoorhouseholds),withmanymorecommunal,publicopenspaces,withmoreextensiveuseof publictransportand,of course,of bicyclesratherthancars;•Morelandisintheownershipanddirectcontrolof localauthoritiesandStateinterventioninrelationtolandisentirelyacceptable.Historically,landownerswereoftenforeigners(whetherfromOrange,France,orSpainorAustria);andtraditionallytherichandpowerfulhavenotinvestedincountryestates.Thecreationof somuch“man-madeland”,thelong-standing dependency on government for handling floods, tides (and, later, the effects of global warming?),andtheabsenceof exceptionallybeautifulcountryside,allmaketheDutchless precious about land ownership. (Is it the case that an almost completely flat country finds extensivenewhousebuildinglessobjectionablebecauseitislargelyinvisible?Withouthills,developmentonthemcannotbeseenfrombelow,norcandevelopmentbewitnessedbylookingdownfromthehillsabove!)•Urbanismisalongtradition:relativelyhighdensityapartmentlivingremainscommon-placeforthebetter-off;theruralidylldoesnotbeckonforsomany;willingdependencyonthebicyclereducesinterestinmovingout;urbanextensionsareregardedasgoodfortheenvironment–ratherthanathreat–becausetheyproducetherevenueforenhancingnaturalhabitats;•DespitemakingsimilarmistakestotheirUKequivalents,localauthoritieshavenothadtheirpowersemasculatedandtheirfundingslashed.Thepublic–withmanyhesitations–retainsfaithingovernmentalplanning;strongcitymayors/chief executiveshaverealpower.Theirmunicipalities,therefore,remaincentraltorealdecision-makingaboutwhathappensintheirareas;•The(alleged)reductionincompetenceof ourlocalauthorityplannersisnotnecessarilymatched in Holland: broadly-based urbanists can find fulfilment working within local councils, thereby sustaining the quality that gives the public confidence in their decisions;•Anditisstillacceptable(eventhoughitmaybecomelessso)fortaxationtobeatmuchhigherlevelsthanfortheUK.Centralandlocalgovernmentcantakelargescaleplanningdecisionsandmakethemhappenwithoutdependencyonprivatesectorcapital.

Thesechanges–fundamentalbutpossiblywaningasglobalisationandtheculturalonslaughtfromfurtherWesttakesitstoll–seemtomakethetasksof achievingmoresuccessfulpublicparticipationandmoreproactiveplanningrathereasierintheNetherlandsthanintheUK.

Can we learn anything?Ratherthanlearningnewtricks,exposuretotheDutchscenemayreinforceourcurrentviewsonthemostsensibleparticipativearrangements.Butpossiblytheymayalsoencourageustodomorefrequentlywhatwenowdoonlyoccasionally.

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I. The purpose of participative planning TheDutchseemratherclearerthanusonwhatpublicparticipationisintendedto achieve.Theaimsare:toavoidsimplisticconfrontation;toseelessusemadeof “theemotionalcard”;toensurethatanyprotagonistsunderstandmoreclearlywhatare thepointsof disagreement;toenablethoseinvolvedtoseethewholepicture/context, fromitsmanyperspectives.Itisnotexpectedthatenhanceddiscussionwillalwayslead toconsensus;anditisacceptedthatkeypartieswillleavethetablewhereno further compromisesarenegotiable.ButtheprogresstodateinHollanddoes indicatethatgreaterandmoreinteractiveengagementwiththerangeof affected partiesmakesforlessconfrontation,forhigherqualitydebate–irrespectiveof whether agreement is achieved – and a greater likelihood of more people being satisfied with theoutcome.

II. National Agreement HollandisjustcompletingitsconsultativeexerciseonanewNationalAgreementto covertheperiodupto2010(withthepossibilityof modestchangeseachyearin thelightof changingcircumstances).Thearrangementsbeginwithpublicationof a PreliminaryPlan–beforetheformal,legalprocessbegins–withencouragementforall viewstobeaired.

Toassistinthisprocess,therelevantMinistriesemployedtheInstituutvoorPublieken Politiek(IPP),theDutchCentreforPoliticalParticipation,fundedbytheMinistryfor AdultEducation.TheIPPsecured20,000completedquestionnairesfollowing newspaperadvertisingandselectivemailings.Itsoughttobypassthecampaigning bodies and get the views direct of individual citizens. A sample survey confirmed that the feedback fairly reflected a fair cross-section of opinion.

III. Structure Plans ConsultationisbecomingmuchmorewidespreadinrelationtotheplansatCounty/ Citylevels.OrganisationsliketheGroningenInstituteforArchitectureandUrbanism –oneof 38suchinstitutions–wereengagedtoarrangelocalmeetings,usemodelsand videos,putforwardalternatives/optionstostimulatedebate.

IV. Project Consultation Forsmallplanning/urbandecisions–e.g.onissueslikecreationof anundergroundcar parkorselectionof aschemeforredevelopingadowntownsite–realdevolutionof decision-making is taking place in specific cases. Since the big player in Holland is so oftenthemunicipality–notprivatesectordevelopers–exposingthepoliticianstolocal opinioncanbemoredirectlyeffective.

Formajorinfrastructureprojectsrequiringgreatersophistication,theDutchmaybe achievingalittlemorethanweare.Thereisrecognitionthatalthoughtheprocessesof participationarelikelytoaddan.extrayeartothedecision-makingtimescale,ittakesan averageof 17½yearstoreachdecisionsonmajorprojects:sofarmoretimeisbeing spentinresolvingdisputesbetweendifferentdepartments,anddifferenttiers,of governmentthanintheconsultativeprocedures(which,if deployedsuccessfully,may endupsavingtime).

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V. Partnership Models AcademicstudiesintheNetherlandshaveledtotheestablishmentof anumberof key principleswhicharebeingpromulgatedasthebasisforsuccessfulpublicparticipation policymaking.Thecornerstoneisamodelof partnership–betweenthemunicipality,the communityandthedeveloper–operatingonthebasisof: • a separation of roles to avoid confusion and conflicts of interest; •adivisionof thetaskssothatparticipantsownadistinctpartof thewhole; •synchronisationof contributions,sothateventsneednothappeninsequence, buttogether; •anunderstandingof thestrategiesandobjectivesof eachparty; •clarityontheliabilitiesandrisksforeachparticipant; •integrationof transport/infrastructure/environmental/otheraspects:giving equalprominencetoeach,notallowingonetodominatetheprocess; •alwaysprovidinganumberof variants/options/alternatives,neverjustone,to allowrealchoice.(NB:ThetraditionalDutch“poldermodel”alwaysworkswith a single plan. Participation is passive and confined to making small adjustments to compensatefornegativeeffects.Thenewerpartnershipmodelwhichreplacesthis concentratesonparticipantschoosingthemostpromisingof anumberof alternatives.) • bringing together all the financial considerations – value, capital cost and revenue implications–overalifecycle(notconsideringonlyshorttermgainsandcosts); •ascribingamonetaryvaluetoallingredients,evenmoreintangibleones.(E.g. “Howmuchareyoupreparedtopaytokeeptheoldchurch?”) • applying cost-benefit analysis to ensure value-for-money.

In conclusionArewelookingintoourownfuturewhenobservinghowthingsaredoneintheNetherlands?

It is possible that – however much they may dislike it – the opposite may be true. The Dutch may find thepenetrationof amoreprivatisedculture–withmoreowneroccupation,moredesireforpersonaltransport,greaterscepticismof Stateinstitutions,andtaxationmoreatUKlevelsthantheirowntoday–allmakesplanningforthepublicgood,andinvolvingthewidercommunityindecision-making,moredifficult.

But,equally,itmaybetruethattheshiftintheUKoverthelast20yearstowardsamoreindividualistic,private-sector,anti-local/centralgovernmentapproachiscreatingitsownreactions:thependulummaybeswingingback,if onlyalittle,towardthemorecollectiveculturewewerepursuinginthepost-wardecades.If so,sincetherearelessonsforustolearnfromourfailuresinthatera,theDutchexperiencemayhelpustoshapeournewdestiny:•Weneedtoreinforcethemessagethatplanningdecisions(includingformajorinfrastructureprojects)requirethelegitimacy,credibility,authorityandacceptabilitywhichcanonlybeachievedif thegeneralpublicisinvolvedand“owns”theoutcomes;• Central government (and our Regional Development Agencies/Government Regional Offices) need torecognisethatthisprocessmustbeginatthenationallevel,involvingadebate–nodoubtconductedatleastinpartthroughthenewsmedia–ontheprinciplesbehindfuturedevelopmentpolicies;

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•Techniquesareneededtoincludeinthatexerciseindividualcitizenswhoarenotpartof organisedgroups;• Despite the lower profile of our local authorities, it is at the level of the municipality – and the individualneighbourhoodwithinit–thathigherlevelsof interestwillbeachievedbecauseof theproximityof thecitizentotheactualdevelopmentproposal.Itisherethattimewillbeneeded(butwillbewellspent)engagingindividualsaswellasthelobbyingorganisationswhencanvassingopinions(andalwaysensuringthatthepublichasthechancetochoosefrommorethanoneoption);•Withprivatesectoroperators–companiesundertakinginfrastructureschemes,andmajordevelopers–beingmoreprominentininitiatingandpursuingdevelopmentof allkindsintheUK,wemayneedtodrawlessonsfromHollandonthepartnershipmodelsthatworkbest.Insteadof ourlocalauthoritiesandourlocalcommunitiessimplybeingreactive–mostofteninanegativeway–weneedtoseehowtheycanengageconstructivelyinsettingtheparametersforprivatesectoractivityandinparticipatingwiththeprivatedevelopersinpartnershiparrangements;•FarmoreextensiveusethantodaycanbeexpectedfortheInternetwhich,atleastforthemoreactivecitizenwithbasicITskills,willspeeduptheprocessesof engagement;•Deploymentof intermediarybodies–whethercomingattheissuefromtheperspectiveof AdultEducation(incitizenshipanddemocracy),liketheIPP,orfromabasicinterestinsupportingpublicparticipationinurbanprocesses,likethelocalInstitutesforArchitectureandUrbanism(withtheircentralbody)–seemcriticaltogalvanisingparticipationinHolland.If theUKistomakeastepchangeinthequantityandqualityof publicparticipationitwillneedtoinvestincomparableinstitutionshere;•Trainingforprofessionals–planners,architectsandthoseinthenewdisciplinesof urbanism–needstoembracethedimensionof participationandtheextraskillsitimplies.Thisnewworldalsomeans a cultural shift for some national and local government officials – and their politicians – who need to learnthetechniquesforlistening,forlettinggo,fortakingmoreof ariskinactinguponthefeedbackfromthepeoplemostaffectedbyplanningdecisions;•And,regrettably,takingquestionsof publicparticipationseriouslyprobablymeansspendingmorepublicmoney–supplementedasappropriatefromprivatesources–toallowthisapproachthelevelof time,professionalinputandstatusitdeserves.

Onewayoranother,theUKmustcopewithdevelopmentonasubstantialscale–whetherinmajorinfrastructure schemes or necessary development on greenfield sites – over the years ahead. If these processesarenottoleadtoconstanttensions,frustrations,politicalupsetsandbruisingconfrontations,weneedtodobetterinengagingourcitizensintheplanningprocesses.TheDutchcannotgiveusthesilverbulletthatwillendourproblemsbuttheycanshowusthatitpaystoachievemoreclarityof pur-pose,morepersistenceandprofessionalisminpursuingtheprocessesof participativeplanning.

Richard Best, Planning The Future: Public Participation Draft Report To The Foresight’s BET Panel, 2000

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Appendix B AMSTERDAM DOCKLANDS

Withtheincreasedinterestinhighdensityhousing,Hollandprovidesasourceof inspiration.JonRowlanddescribesrecentschemesinAmsterdam’sdocklands.

Thinkof housingdevelopmentinthiscountryandtheknee-jerkreactionbringstomindvillagegreensandmarketsquares.Itmightalsobringtomindthegardensuburbsof theearly20thcentury.

Thinkof waterfronthousingandthereactionisnottoodifferent.Oneonlyhastolookattheearlyhousinginthedocklandareaof suchcitiesasLondonorCardiff.Theresponsetotheopportunitiesprovidedbywaterfrontsiteswasconfused.Someexamplestriedtore-createtheseruralformsinurbanenvironmentsthroughtheuseof standardhousetypedwithaddedmaritimeelements.Warehousesprovidedthebasisforanewlifestyletotheextentthatasabuildingtypetheycreatednewopportunities.

Thishasbeenchanging.WehavelookedtoAmericaforwaterfrontinspiration.TheresultshavebeendevelopmentslikeChelseaHarbourormorerecentlyMonteVetro.NowwiththeincreasedinterestinhighdensityhousingtheEuropeanexperiencehasbe-comethefocusof ourattention.Inparticu-laritishousinginHollandthatprovokesthemostinterest.

Whilstwemaystillbestrugglingwithouremotionalresponsetotheruralidyll,theDutchhaveremainedrational.If youwonderwhathappenedtoGeorgianandVictorianterracedhousing,theyarealiveandwellandbeingre-interpretedincontemporarytermsinAmsterdam’sdocklands.

ProjectsintheOosrelijkHavengebied–theEasternHarbourareasof thecity–areproceedingapace.Thecloseworkingpart-nershipbetweenpublicauthoritiesandtheprivatesectorhasenabledsome8,000housesandapartmentstobebuiltinthelasttenyears.Thepublicsector,oftenthelandowneris able to set out the design and financial termsforthedevelopment–allowingtheprivate sector to bring finance and developmentexpertisetothetable.

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SowhatcanwelearnfromtheAmsterdamexperience?Wellapartfromtheideaof openingupthemarkettoindividualsratherthandevelopers–andrevisitingtheideaof plotlands,threeaspectsarerelevanttotheUK:

PartnershipTheroleof thelocalauthorityaslandassembler,andthatof theprivatesectorasdeveloper.An‘open-book’ system operates that allows the City Council to monitor the financial performance of thedevelopmentasitisdesignedanddeveloped.

MasterplanningTheimportanceof themasterplanistoshapedevelopment.Integratedtermsof landscapedesigners,architects,plannersandengineersestablishthedevelopmentethos.Thatspiritisexemplified in the form of urban housing in which the Dutch excel. Part of that ethos inverts our Britishattitudessothatourconcernaboutprivacyistransformedintoapositiveapproachtoneighbourliness, health and safety regulations to community and self-responsibility; traffic orientateddevelopmenttopedestrianfriendlyenvironment.

Urban Design GuidelinesStrong guidance on materials, height, massing, landmarks sometimes prescriptive, but flexible enoughtocreateacanvasforimaginativeandinnovativeresponsestoaverysimpleandwellunderstoodurbanform–theterracedhouse.

Jon Rowland, SUN DIAL Waterfront Edition, Spring 2003

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Appendix C BORNEO SPORENBURG, AMSTERDAMReproduced from Building for Life/CABE

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Appendix D ROTTERDAM: COLOSSUS OF THE WATERWAYS

Asacitywithfewremnantsof itsfabledpast,Rotterdamenjoysafuturethatisperhapsthebrightestof allcitiesinHolland.GonearethedaysbeforeWorldWarIIwhenthecityfatherswouldcommissionastatueof apaintmanufacturerbutrefusetoclearawaythegrimjungleof itscommercialcore.OnMay14,1940,thetaskwasdoneforthembyNazibombs,whichsweptawaysome30,000homes,shops,churches,andschoolsinthecourseof afewbrief hours.Tothesurpriseof thosewhodidn’tknowthevigourandhardheadednessof theRotterdamDutch,anewcityof concrete,steel,andglassaroseinthe1950sand‘60s,phoenixlike,fromtheashesof itsdestruction.Andtoday-withsomeof themostimportantbuildingsof thebeginningof the21stcenturycontinuingtorise-somepunditsbelievethatwereitnotforthedevastationof WorldWarII, Rotterdam might never have become the dynamic and influential world port it is today.

Sometimeago,RotterdamceasedtobesimplyaDutchcity.Thankstoitslocationonthedeltaof twogreatriversystems,theRijn(Rhine)andtheMaas(Meuse),andtheenormousEuropoortandNorthSeaprojects,ithasbecomethelargestseaportintheworld.Throughitsharbors-andtherearemany-passmoretonsof shippingeachyearthanthroughallof Francecombined.Newindustrysettledin(whichtheRotterdammersgreatlywelcomed:“Thequestionisnothowlargeratankerthechannelwillallow,”oneexecutivewasquoted,“butratherhowdeepyouwantustodredgeitsoyourshipcangetthrough”),followedbynewpopulations.Aftertherepairof theharboursin1952,therewasanincreasingdemandforlabour;sorecruitssettledinfromItaly,Spain,Greece,Turkey,andMorocco,followedinthe1970sbyCapeVerdeansandNetherlandsAntilleans.Thewealthgeneratedbyindustryledtonewcultureandarchitecture,withtheabsolutelatestinfuturisticdesignnowstuddingthecityscape.Today,Rotterdamandmodernarchitectureare so intrinsically intertwined that the one goes a long way toward defining the other. This architecturalrenaissancewascappedwhenRotterdamwasnamedEurope’sCulturalCapitalin2001,leadingtoayearlongpartyof exhibitions,theatre,music,poetry,anddesign.Galleries’andmuseums’ profiles were raised, ground was broken for even more modernistic edifices, and art journalshailed“Manhattan-on-the-Maas”asthestandard-bearerof architectureof the21stcenturyandapowerstationforideasaboutthelookof tomorrow.

Butpost-modernarchitectureisonlyoneof theattractionsof theMaasstad,orCityontheRiverMass: the regular traveller will also find much else to satisfy. Visit the urban waterfront along the MaasRiverandadmiretheregenerationunderway,withvarietiesof watersidecafesandrestaurants.Window-shopthroughantiquesmarkets.DiscoverwhattheMuseumparkhastooffer,thecity’sculturalaxisrunningstraightdowntheWestersingel,fromCentraalStationtoKopvanZuid.Shopindesignerboutiques,orchoosetoexploreChinesedepartmentstoresonWestkruiskade.Takealookatavant-gardegalleriesonWittedeWithstraat,Binnenweg,andDelfshaven.RappeldowntheEuromast.Rotterdamhasayoung,urbanculture,withsomeof thehottestnightlifearound-justcheckoutthehipstersatclubssuchasNow&Wow.Inotherwords,don’tbesurprisedtolearnthattechno-rockwasborninRotterdam.

Thecitydividesitself intofourmainsectorsbutdoesn’treallyhaveacentraldistrict;forallintentsandpurposes,thatissimplyashoppingareathesedays.TheKop van ZuidandEntrepot districtsareonthesouthsideof thebridge.Here,famousarchitectssuchasSirNormanFosterandRenzo

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Pianoaredesigninghousing,theatres,andpublicbuildingstocompletethearea’stransformationintoamodernandluxuriouscommercialandresidentialdistrict. Delfshaven, Oude Haven,andLeuvehavenareoldharbours,butthat’sjustwherethecomparisonstops.Inparticularlycharming Delfshaven you’ll find a harbour so narrow it looks like a canal, lined with gabled houses datingbackcenturiesandcreatingaclassicDutchscene.TheOudeHaven,ontheotherhand,issurroundedbybuildingsnotmorethan20yearsold,someof which,liketheBlaakRailstationandKijk-Cubus,areamongRotterdam’smostphotographedbuildings.Museumparkisknownastheculturalheartof thecity,becauseitishometofourmuseumsandborderedbyaSculptureTerrace;youcanmuseum-hopfromcollectionsof giantanimalskeletonstocityhistorytoGoldenAgeart.(Incidentally,if youplantovisitalotof museums,itisalwaysworthbuyingaMuseumJaarKaart[MuseumYearCard],orMJKforshort;thispassgivesyoufreeentrytomorethan440museumsthroughoutthecountryforayearandfreeentryto15inRotterdam,andisavailableonshowingyour passport at VVV offices and participating museums for €25.)

LikeAmsterdam’s,Rotterdam’snameistakenfromariver-inthiscasetheRotte,whichemptiesintotheMaasatthispoint.Thecity’sbirthextendsbacktothe10thcentury,when,despitetheconstantthreatfromthesea,asmallgroupof earlyRotterdammerssettledontheRottebanksalong a small stream running through the boggy, peaty area. The settlement flourished, but it was notuntiltheGoldenAge(1550-1650),whenHollandwasaworldpower,thatthecitybecameacentreof trade,hometoboththeUnitedEastIndiaCompanyandtheWestIndiaCompany.Thecity’sreallyspectaculargrowthdatesfrom1870whentheNieuweWaterwegwascompleted,a17-km-long (11-mi-long) artificial channel leading directly to the sea.

Extract from Fodor’s Holland, 2004

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Appendix E ALMERE, HOLLAND: EXPANDING A NEW TOWN

ContextAlmereisthepremierNewTowninHolland,andformspartof agroupof townswithMiltonKeynesthathasbeensharingexperiencethroughInterreg.Createdoutof apolderonthecoastafewmilesnorthof Amsterdam,Almerehasgrowntomorethan160,000with60,000jobsin25years,andhassufferedfromthenegativeimageof beingadormitorytown.Aswellasusingdifferentapproachestothedesignandconstructionof houses,HollandhasbeentheleadingforcewithinEuropeinthedevelopmentof sub-regionalspatialplansandtheEuropeanSpatialDevel-opmentPerspective.Itthereforeprovidesaninterestingsourceof inspirationforBritain,withanumberof Anglo-Dutchcompanies,andasimilarhistoryof havingoncebeenanimperialpower.

Strategic plansWithverylimitedlandtobuildoninthecrowdedRandstadtregion,thegovernmentandtheregionwantAlmeretogrowto400,000insteadof theoriginaltargetof 250,000.Thismeansbuildingsome3,000homesayearupto2005andthereafter2,000homesayear,andwillnecessitatemajorinvestmentsinnewformsof transportafter2010.RemKoolhaashasdrawnupamasterplanforintensifyingthecitycentre,withanewhigherdensityshoppingandentertainmentcentre,aswellasahighrisebusinesscentrenexttoanenlargedcentralstation.

The2010StructurePlanisalsoconcernedtodiversifytherangeof housesandjobs,whilereinforcingthe‘greenandblue’frameworkof woods,lakesandponds.Nineadditionalplanshavethereforebeendevelopedincludingproposalsforthebetterutilisationof waterandimprovingaccessibility.Keyfeaturesaretheideasof ‘GatewaytotheRandstadt’,‘GreeneryintheRandstadt’and‘Self RelianceintheRandstadt’.

Thecompletionof theoriginalplan,withsixdistinctquarters,willbereinforcedbyurbanextensions,includinglowdensityurbanisationinagreensettingornearwatertocreatemorediversity.Thereisaconcerntomodernisetheexistingtowntosecurecoherencebetweentheoldandthenew.Greatervarietyisintendedtostrengthenthe‘drawinthechimney’.

Organisation The process is being coordinated through the Future Almere Project Office concerned with implementing the Delta Metropolis urbanisation plan. Hence the Project Office comesundertheDepartmentof HousingRegionalDevelopmentandtheEnvironment(VROM),butwiththeparticipationof otherministriesandalsoandtheprovincesof NorthHolland,UtrechtandFlevoland,aswellasthemunicipalitiesof AlmereandAmsterdam.

Theiraimistoestablishan‘IntegralDevelopmentPlanforAlmere’,whichwillculminateinalong-term management agreement. The first step was signing the ‘Future Almere Starting Covenant’ in April2003.ThepartiesrecognisethatAlmereisagoodlocationforgrowth,andthat‘developmentarrears’insocialandaccesstermsshouldbeeliminated.AtthesametimeAlmereisworkingontheAlmerePlan,linkingvariousstrategicprojects,asocialstructureandspatialframeworkplans,with2003‘TownManifesto’createdthroughadialoguebetweenthecouncilanditscitizens(whichpresumablyprovidesthevision).HoweveritistheconcordatbetweenalltherelevantagencieswhichisprobablythemostimportantinnovationasfarasBritishplanningisconcerned.

Based on material provided by John Best, November 2003

From Foder’s Holland, 2004

Appendix F FACT FILE

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