The politics of multi-scalar action in river basin management: Implementing the EU Water Framework Directive (WFD)

Scholars of environmental governance are increasingly intrigued by issues of scale. Efforts to institutionalise river basin management represent a pertinent exemplar, as they aspire to strengthen hydrological vis-à-vis political–administrative scales of governance. The EU Water Framework Directive (WFD) is one of the most ambitious policy initiatives worldwide to reconfigure water management planning around the hydrological scale of river basins. Whilst it is widely assumed that the WFD is rescaling water governance in Europe, few empirical studies have been conducted to ascertain how far this is the case, what scalar strategies and practices are emerging and to what effect. The paper addresses these open issues with a study analysing the multi-scalar actions of water authorities, water management organisations, local authorities and interest groups involved in implementing the WFD. It investigates how stakeholders are acting scalar from the local to the European scale and back to further their interests in the course of WFD implementation, focussing on the Wupper sub-basin in Germany. Drawing for conceptual insight on the human geography debate on the politics of scale and processes of rescaling, we demonstrate how all relevant stakeholders are increasingly working across scales to advance their interests but in very different ways, with different degrees of deliberation and to different effect. A typology of multi-scalar action is developed to interpret this diversity. The paper draws conclusions on how multi-scalar action is altering not only power relations between the actors but also the scalar configurations themselves.     

Public participation and local environmental planning: Testing factors influencing decision quality and implementation in four case studies from Germany

Public and stakeholder participation in environmental planning is often assumed to enhance effectiveness through improving the environmental quality of decisions and enhancing implementation. We draw on the literature on participatory environmental governance in order to derive key participation-related factors that are hypothesized to impact on decision quality and implementation. We then outline four cases of decision-making processes in local environmental planning in Germany, representing a variety of forms of public participation, and what we suggest can be seen as four different pathways to ‘success’ in participatory planning. The case studies, recounted on the basis of stakeholder interviews and secondary research, are subjected to a cross-case analysis in order to examine the influence of participation in each case. We consider how key participation-related factors played out across the cases, and assess both decision quality and implementation against counterfactual non-participatory, or less-participatory, scenarios. In moving beyond accounts of ‘what happened’, and considering how participation changed the order of things relative to ‘what would have happened’ under different scenarios, the research highlights how very different pathways may lead to ‘success’ in participatory environmental planning from the viewpoint of process organizers and planners sympathetic to environmental issues. We conclude that, given the significance of context and surprises, planners and process organizers must be open to different pathways to the successful conclusion of participatory planning processes.     

Wind power planning,landscapes and publics

Renewable energy is currently undergoing a renaissance. Efforts to achieve national targets that have announced forward invariably impact on the appearance of the physical landscape, and raise issues of spatial planning. Proponents of renewable energy—sometimes, planners themselves—have often taken the support of environmental NGOs and the wider public for granted, as they perceive renewable energy facilities to be ‘clean’, ‘green’ and a continuation of traditional technologies such as wind and water mills. But whilst large sections of the population in developed countries are indeed in principle in favour of renewables, in practice proposed facilities have often given rise to considerable public concerns.     

Implementing the water framework directive in Denmark – Lessons on agricultural measures from a legal and regulatory perspective

One of the major challenges in the implementation of the Water Framework Directive (WFD) is how to address diffuse agricultural pollution of the aquatic environment. In Denmark the implementation of agricultural measures has been fraught with difficulty in the form of delays and legal proceedings, despite an ambitious starting point. Why has the implementation of the WFD been so difficult? Based on an analysis of three core components (effectiveness, scale and legal issues) of three agricultural measures (riparian zones, reduced management of streams and catch crops), the paper argues that the legal and regulatory complexity of adopting mandatory land use related measures at the national level to achieve site-specific environmental objectives was underestimated in a top-down political process. The ambitious mandatory policy measures, which added to existing high regulation pressure, led to regulatory challenges, such as possible violation of private property rights raising questions about the actual environmental effects at local level. Consequently, political acceptability and legitimacy of the agricultural measures were undermined, resulting in a gradual withdrawal of the measures and a policy failure. It is argued that the adoption of more flexible measures to be implemented at the local level could have resulted in fewer difficulties from an economic and legal point of view as measures could have been applied where there was a clear environmental benefit, and possibly also at a lower cost.     

市县两级土地整治规程“制图标准”要点分析

研究目的：结合编制《市（地)级土地整治规划编制规程》和《县级土地整治规划编制规程》中“制图标准”部分,分析制图标准研制的技术路线和技术方法,阐释制图标准的服务定位、地图基本属性、内容体系、要素图式符号等主要技术观点。研究方法：文献资料法、比较分析法、专家咨询法。研究结果：制图标准是在深入分析市县两级土地整治规划和借鉴其他相关制图规范的基础上确定的,满足标准化工作的要求和目的,具有技术上的科学性、规范性、可行性和实用性。研究结论：制图标准的制定,规范了市县两级土地整治规划成果图件编制,深化了成果图件对土地整治规划思想的表达,保障了市县两级土地整治规划工作的有序实施,促进了市县两级土地整治规划成果图件的管理和应用。     

The struggle to achieve holistic landscape planning: Lessons from planning the E6 road route through Tanum World Heritage Site,Sweden

Since the EU introduced the European Landscape Convention (ELC) in 2000, the landscape has received growing attention in spatial planning and environmental impact assessments. To promote implementation of the ELC, the Swedish National Heritage Board proposed its Landscape Vision 2020, which addresses the goal of a ‘holistic landscape policy’. This study examined challenges and benefits brought by such a holistic approach to handling landscape protection/management within four issues in planning practice, namely cross-sector cooperation, local participation, integrating culture and nature, and bridging past and future. The analysis focused on a controversial road project passing through a World Heritage Site in Sweden. The results showed that the four issues were closely interlinked. In the case study, a new wave of cross-sector cooperation at authority level was observed, but it was also found to dominate the entire planning process and eventually limit the achievement of the other three issues. In conclusion, this study identified institutional culture and political context as key explanatory factors for understanding how the ELC and a holistic landscape view can be implemented in national practice.     

“This is what we did last time”. Uncertainty over landscape analysis and its procurement in the Swedish road planning process

In some European countries, landscape analysis has long been used in support of large-scale planning or major projects such as new trunk roads and mainline rail routes, in line with both the UN's Convention on Environmental Impact Assessment and the European Landscape Convention. Some countries, however, lack a regulatory framework for what should be analysed, how a landscape analysis should be conducted, or even how it should be procured. Sweden is one such country. The research project on which this article is based uses in-depth interviews with twelve key Swedish officials to consider landscape analysis issues in the planning and procurement of road and railway infrastructure. The findings point to the fact that skilled transport planners are not entirely comfortable with the current situation, and the way landscape analysis is handled in daily planning practice varies enormously. For example, nearly all the respondents believe that the way formal landscape analyses are procured is important, not least to ensure quality, yet at the same time they are rarely commissioned separately, even when this is explicitly stipulated by the regulations. There is no generally accepted notion of what ‘landscape’ might be, and the terms in which respondents describe the landscape do not correspond to the official landscape terminology as set down in the ELC.     

Deliberation or doctrine? Land use and spatial planning for sustainable development in Sweden

Spatial planning has been earmarked as an important tool for achieving sustainable development. In Sweden the important task of planning for sustainable spatial development and land use falls largely to the local authorities, since there is no official institute for spatial planning at a national or regional level. This article investigates local planning for sustainable development by analysing recent municipal comprehensive plans, which it is argued are a major instrument for this purpose. Although comprehensive plans are statutory, their design and content is very much at local discretion, and for the most part, not a rigid process governed from above. For this reason, a template analysis was used, where the template was built from the contents of the comprehensive plans, and not from a predefined understanding of what sustainability is or how planning for sustainable development should be done. What the findings reveal, however, is that there is not much deliberation concerning the meaning(s) of sustainable development, and, further, that the planning principles considered necessary to bring about sustainable development were not exclusively regarded as sustainable as such, but rather as part of a general ‘belief system’ about prudent planning—sustainable or not. It is suggested that, rather than rethinking planning, planners have internalized the concept of sustainable planning into the existing ‘belief system,’ and thus, the planning principles have become ‘sustainable’ by default.     

Agronomic considerations for urban agriculture in southern cities

Urban and peri-urban agriculture (UA) provide a significant contribution to the total food requirements of cities, especially in southern cities of the developing world. Increasing food production in UA is therefore a necessity for increasing the food security of the urban poor. Urban environments are inherently different from rural environments and these differences in environmental conditions are expected to impact differently on crop growth. This review describes agronomic issues that are unique to UA and identifies possible interventions to address them. The constraints that can significantly differ include temperature, air quality, solar radiation and climate. The growth-limiting and growth-reducing factors that affect actual production in UA include water availability, nutrient supply, soil degradation, pests and soil pollution. The interventions addressing these constraints require action at both field level, and municipal or regional levels. The food security of the urban poor will therefore require coordinated efforts and cooperation between the farmers who produce food and the planners and policy makers who manage the supporting systems such as markets, inputs and land registration.     

A systematic framework of location value taxes reveals dismal policy design in most European countries

Location values have long been recognized as an attractive instrument to raise municipal revenues. First, they increase fiscal efficiency and equability compared to traditional property taxes. Second, they can be used to enhance sustainable urban planning. The question of how to design a location value tax has long been discussed in various strands of literature, but there are few efforts to create multidisciplinary approaches. This lack of reconciliation hampers the discussion on optimal designs that includes all economic, social and environmental considerations. Here we combine literature on public finances, urban economics and value capture with that of sustainable urban planning to narrow this gap. We develop a framework to assess the design characteristics of location value taxes from a sustainability perspective, and apply this framework to assess current practices in Europe. The analysis reveals severe shortcoming in policy design in most European countries, although Denmark provides a more promising example. Nonetheless, location value taxes have a high potential for improving sustainable urban planning.     

Is spatial planning a collaborative learning process? A case study from a rural–urban gradient in Sweden

International and national policies stress the importance of spatial planning for the long-term sustainability of regions. This paper identifies the extent to which the spatial planning in a Swedish region can be characterised as a collaborative learning process. By combining qualitative interviews and systems thinking methods we analysed the main attributes of public-led spatial (i.e. comprehensive) planning in nine municipalities representing a steep urban–rural gradient in the Bergslagen region of Central Sweden. We show that the attributes of strategic spatial planning needed for collaborative learning were absent or undeveloped. All studied municipalities experienced challenges in coordinating complex issues regarding long-term planning to steer territorial development and help to solve conflicts among competing interests. Stakeholder participation was identified as a basic condition for social learning in planning. Together with stakeholders we identified the causal structure behind stakeholder participation in municipal planning processes, including main drivers and feedback loops. We conclude that there is a need for arenas allowing and promoting stakeholder activity, participation and inclusion that combines both bottom-up and top-down approaches, and where evidence-based collaborative learning can occur.     

Promoting planning for housing development: What can Sweden learn from Germany?

In the years 2006–2014, urban planning reform was seen as the major remedy against housing shortage in Sweden. The present government has the continuation of such reform on its agenda, but as of yet has made no proposals; instead, other housing policy measures have been introduced.In light of the uncertainty as to the future course of urban planning reform, possible future steps can be discussed. This article accordingly investigates whether German urban planning law and implementation could provide interesting reference points for discussion of further urban planning reform in Sweden, and if so, what parts of the German experience should be the center of attention.The article covers three aspects of German planning that influence the uncertainty, duration, and cost of residential planning as well as social goals addressed through planning: planning law, focusing on facilitated planning procedures of German planning law, measures taken in the organization of planning authorities to make development planning more efficient, and planning-related city demands for affordable housing.The conclusions encompass proposals for the further reform of the Swedish planning process in the form of a facilitated and accelerated development planning procedure for housing projects, as well as the introduction of private initiative in development planning. Further improvements to the organization and incentives of planning authorities are proposed. More research is required into municipal demands for affordable housing in the form of inclusionary zoning; such research should draw on the extensive international experience of such zoning, relating it to a Swedish pilot project.     

Biodiversity and Green Infrastructure in Europe: Boundary object or ecological trap?

The concept of green infrastructure is widely used in environmental planning, but so far it has no standard definition. Planners, conservationists and scientists tend to welcome the term because it can serve as a boundary object, providing links among policy makers, developers and different academic disciplines. However, the concept of green infrastructure creates risks for biodiversity conservation in its adoption. It can be used to water down biodiversity conservation aims and objectives as easily as it can be used to further them because of the different ideas associated with it and the multiple interests pursued. In this paper, we address such risks by looking, among others, at the European Union’s Green Infrastructure Strategy and we suggest how planners and conservationists might deal with its growing importance in environmental policy and planning to enhance its value for biodiversity conservation.     

Moving from vision to action- integrating ecosystem services in the Swedish local planning context

Policies and planning processes related to land use play an important role in maintaining and developing ecosystem services. The incorporation of ecosystem services into local plans is considered an indicator of the plan’s capacity to implement strategic action. This study provides a national overview of the incorporation of the ecosystem service concept in current municipal comprehensive plans in Sweden and explores the actions taken by three municipalities in Stockholm County to implement the ecosystem service concept in practice. A multi-method design was employed including a qualitative content analysis of 231 municipal comprehensive plans, a statistical analysis analyzing temporal changes from 2005 – 2017, and dialogue meetings with municipal practitioners from the three municipalities. We divided the level of integration to four categories, A (Advanced) - D (Not included). Overall, the integration of the ecosystem service concept has significantly increased in municipal comprehensive plans during the last decade. At national level, 23% of municipalities have explicitly mentioned ecosystem services, and within Stockholm County, 42%. The dialogue meetings with municipal practitioners revealed that the municipalities were at different stages of implementing the ecosystem service concept, with diverse actions being implemented for advancing practice. These included capacity building, participatory processes and development of thematic plans and operational documents. To support the future implementation of the ecosystem service concept from vision to action, both local and national initiatives are needed.     

Tourism development strategy or just brown signage? Comparing road administration policies and designation procedures for official tourism routes in two Scandinavian countries

This comparative study maps and explores planning and designation of official tourism, routes in two countries with quite similar planning traditions, responding to a deficiency in research, on tourism route planning and development. Based on personal semi-structured interviews with, public road planners and managers in Norway and Sweden, the paper illuminates establishment and, management of official tourism routes, with an emphasis on overall strategies, funding, and, stakeholder involvement. Results show that public road administration route planning procedures in, the two countries are quite different. In Norway, a top–down principle is basically employed, concerning initiatives and designation of routes. In Sweden, the principle is one of muddling through, giving street-level planners more opportunities for individual influence on route planning. Funding for, road stretches included in the Norwegian national route programme is earmarked, whereas Swedish, routes are financed from ordinary appropriations to the regional road administrations. In Norway, regular follow-up studies such as road user surveys are conducted. In Sweden, a dearth of, documentation of tourist interests and route assessments seemingly makes route development, susceptible in relation to regional road administrations’ economic priorities.     

Farmers’ perception of effective drought policy implementation: A case study of 2009–2010 drought in Yunnan province,China

Using a qualitative social research method at the local administrative level, this paper provides insight into the policy process in China and farmers’ perceptions of the effectiveness of policies implemented to deal with drought. Two villages in rural South-West Yunnan were purposefully selected for the study. The research started with the general assumption that China has a strong top-down hierarchal approach to policy processes and that funding dispersal is prioritised by the central government. However, the study found that funding proposals are prioritised for selection in a bottom-up, participatory manner from the local level. The study also found that farmers’ perceptions of the effectiveness of policy implementation were directly related to their past experience. Among the nine indicators used to measure the effectiveness of policy implementation at the local level, the farmers in the study area perceived access to roads as highly effective; water use efficiency projects, market demand, human mobility for jobs, and government funds as moderately effective; drought knowledge, community participation in planning, and governance structures as least effective; and the role of leadership as not effective. The study found that farmers’ adaptation at the local level is oriented towards short-term market rewards and income diversification. Farmers’ local-level adaptation is guided by government priorities and driven by their perception of tangible benefits. To ensure the effectiveness of policy implementation, long-term adaptation strategies, such as awareness raising, capacity building, watershed management, and source conservation need to be strengthened at the local level.     

Analysing the Agricultural Costs and Non‐market Benefits of Implementing the Water Framework Directive

Implementation of the Water Framework Directive (WFD) represents a fundamental change in the management of water in Europe with a requirement that member states ensure ‘good ecological status’ for all water bodies by 2015. Agriculture is expected to bear a major share of WFD implementation costs as it is compelled to reduce the emission of diffuse water pollutants. The research outlined here comprises interdisciplinary modelling of agricultural land use, hydrology and consequent water quality effects to consider both agricultural costs and the non‐market recreational use (and potentially non‐use) values that implementation of the Directive may generate. A theme throughout the research is the spatial distribution of the costs and benefits of WFD implementation, which is addressed through the use of GIS techniques in the modelling of agricultural land use, the integration of land use and hydrological models, and the estimation, aggregation and transfer of the economic value of the benefits.     

Policy making in London's transport planning

This article discusses several new traffic/environmental schemes proposed for London, and moves by feminist, consumer/worker and community groups to challenge conventional planning procedures. Continuous bus lanes, free or low public transport fares and pedestrianized areas are emphasized over private motoring, to result in lower traffic noise, congestion and accidents. The power of the UK's road lobby, the limitations of traditional professional planners and a lack of open debate are offered as explanations for the resistance of London's planners to enacting such schemes. The author concludes that central government policy of minimizing public transport subsidy and providing roads instead for private transport has led to hostility to more popular plans.     

Bridging the gap between research and planning practice concerning landscape in Swedish infrastructural planning

A number of government documents provide for the fact that the surrounding landscape is to be considered when any infrastructure is built in Sweden. However, only certain aspects of the landscape are dealt within the various types of documents involved in the planning process. There has been considerable research into landscape, both in Sweden and abroad; unfortunately, however, this research has not been utilized by infrastructure planners. This paper discusses the reasons for this gap between research and planning practice as regards landscape, as well as problems with current infrastructure sector efforts concerning the landscape. Furthermore, the paper proposes ways in which current working methods can be changed by improving knowledge of the character of landscapes, a matter that is a structural element of the European Landscape Convention (ELC).     

Water in the city: Green open spaces,land use planning and flood management – An Australian case study

With increasing worldwide recognition of the influence of urban development on the hydrological functions of water, there is growing pressure for urban planning to play a greater role in water resources management. Planning for green open spaces in particular can play an important role, as they support important ecosystem services, including those that assist in flood management. It has been argued that interconnected and strategically planned networks of green open spaces should be planned for early in land use planning and design processes, with consideration of water-related ecosystem values and landscape functions in concert with land development, growth management and physical infrastructure planning. Although there is growing recognition of the importance of green open space planning for water sensitive cities and supportive planning measures, there are few analyses of the actual inclusion of this recognition in plans and strategies, or the presence of related actions and planning mechanisms. This paper addresses this gap by comparatively analysing the approaches taken to regional green open space planning in three Australian capital city-regions. Findings indicate the acknowledgement of relationships between flood regulation and green open space planning and various associated planning mechanisms. However, there is limited explicit integration of flood management and green open spaces planning, and significant on-ground barriers to enabling this integration to occur given the legacy of past planning decisions and the lack of information to support implementation. The paper concludes with recommendations for further research to assist planning for green open spaces as an ally to ecosystem services relating to flood management.