Neighbourhood Planning in Practice (Concise Guides to Planning) - Hardcover

Parker, Gavin; Salter, Kat; Wargent, Matthew

Hardcover

ISBN 10: 1848222831 ISBN 13: 9781848222830

Publisher: Lund Humphries Publishers Ltd, 2019

Synopsis

Neighbourhood Planning (NP), introduced by the Localism Act of 2011, is the right for communities to decide the future of the places where they live and work. This book examines the experience of neighbourhood planners, analysing what communities have achieved, how they have done so and what went well or badly. Comparing NP with other forms of community planning and highlighting the main lessons learned so far, it acts as a navigation tool for people already involved in neighbourhood planning, as well as those contemplating participation.

About this title

About the Author

Gavin Parker is Professor of Planning at the University of Reading. Kat Salter is a Doctoral Researcher at the University of Reading, a former civil servant,  and a planning adviser with Planning Aid England. Matthew Wargent is a Post-Doctoral Research Fellow at University College London.

Excerpt. © Reprinted by permission. All rights reserved.

Neighbourhood Planning in Practice

Concise Guides to Planning

By Gavin Parker, Kat Salter, Matthew Wargent

Lund Humphries

Copyright © 2019 Gavin Parker, Kat Salter and Matthew Wargent
All rights reserved.

ISBN: 978-1-84822-283-0

Contents

Foreword, 
Preface and Acknowledgements, 
Chapter 1 Introduction, 
Chapter 2 What is Neighbourhood Planning?, 
Chapter 3 Communities and the Planning System, 
Chapter 4 Relationships in Neighbourhood Planning, 
Chapter 5 Stages of Neighbourhood Planning, 
Chapter 6 Challenges in Neighbourhood Planning, 
Chapter 7 Opportunities and Ideas for Neighbourhood Planning, 
Chapter 8 Reflecting on Neighbourhood Planning, 
Chapter 9 References, Resources and Further Information, 
Glossary, 

CHAPTER 1

Introduction

* * *

1.1 Aims of the book

The book is aimed at citizens and also professionals who want to learn more about how Neighbourhood Planning operates and how to navigate the process more effectively. Therefore in addition to citizen-planners, this book should be useful for professional planners in local authorities and those working as consultants, who are often central to what are inevitably 'co-produced' Neighbourhood Plans. We use the term co-production to refer to the way in which Neighbourhood Plans are created, with partners working collaboratively to successfully reach the completion of the Plan and hopefully to see Plans being implemented. At its best, this process involves sharing knowledge and capacity to produce Plans that have a range of beneficial impacts on neighbourhoods.

Thus the book is written primarily for those interested in or already involved in Neighbourhood Planning in England, as formally enabled by the Localism Act (2011), the Neighbourhood Planning Act (2017) and the associated Neighbourhood Planning regulations. Hence when we refer to 'Neighbourhood Plans' the focus is on Neighbourhood Development Plans (NDPs). If we are making reference to something other than this policy vehicle then it is made explicit in the text.

We have tried to write this book in such a way that it is accessible; however, it is not jargon-free. There are a number of technical terms used in planning that citizen-planners will need to be aware of. Where technical language is unavoidable we have sought to explain the terms involved in order to develop awareness and ensure a working knowledge of the wider operating environment of Neighbourhood Planning. A Glossary is included at the back of the book to explain such jargon and frequently used terms. We have also provided some critical insight for those who wish to consider the research and theory that underpins the practice and issues tackled here (see Chapter 9, Section 2). We have also sought to break down many of the elements so that lists of key points are deployed to aid reference. On occasion we highlight in bold some of the critical statements that citizen-planners really need to absorb.

We feel it is necessary to point out that this book is not a technical guide about how to write a Neighbourhood Plan as there are other sources that provide such guidance (for example, Locality's widely read Neighbourhood Planning Roadmap Guide). Instead we provide the information to ensure that communities can navigate and embrace the ethos, spirit and possibilities of Neighbourhood Planning. This involves forming a realistic appraisal of the challenges involved. To achieve this balance we have developed three core themes that recur in the chapters that follow. These are:

• Neighbourhood Planning is negotiative: it should feature 'community-led negotiation' about the content and orientation of Neighbourhood Plans as well as ongoing relationships with other interested parties;

• Neighbourhood Planning requires integration: it must mediate between local and strategic concerns, local and expert knowledge, and sometimes the opposing forces of communities and the state – in other words, it is part of a wider system;

• Neighbourhood Planning is a space of possibility: it can be used to deliver community aspirations, added-value (for the planning system) and innovation, and can be the basis for further public participation, possibly providing a challenge to orthodox planning.

This book aims to explain Neighbourhood Planning in practice, drawing on experience of the planning system morewidely and specifically on our experience of Neighbourhood Planning in England over the past eight years and the inherent challenges involved.

Thus while the book develops a detailed explanation of Neighbourhood Planning, we also feel that a broader understanding about how Neighbourhood Planning is shaped by higher-level plans and the involvement of other stakeholders is essential learning for citizen-planners and we have sought to assist the reader in developing such contextual awareness (Chapters 2 and 3). Recent experience indicates that citizen-planners who conceive of Neighbourhood Planning as an exclusively inward-looking exercise, instead of one that acts to bridge local and strategic concerns, will miss progressive opportunities and also often fail to secure the aims they seek. Therefore if communities avoid a more outward-looking sensibility, they are likely to run into problems and be left with a weaker Plan. As such, Neighbourhood Plans cannot be produced without developing an awareness of the roles and possibilities of partnering with others.

This echoes the aims of the book, which can be summarised as seeking to:

• Highlight the key issues involved in progressing a Neighbourhood Plan;

• Provide an overview of the wider planning processes that impact on Plan production;

• Explain the roles, relations and skills needed with others in Neighbourhood Planning;

• Establish ways of overcoming the challenges typically involved in Neighbourhood Planning;

• Provide information, resources and examples that will help set up readers on their journey to become 'critical' citizen planners.

It is important to recognise the difficulties involved when participating in planning and this book is designed to enable a critical mindset that will help citizen-planners anticipate challenges and, if necessary, adjust their outlooks accordingly. Therefore, we want to provide an appreciation of the likely challenges involved in order to provide citizen-planners with every chance of securing their aims and improving their local neighbourhoods. Experience has shown us that citizen-planners can often utilise the spaces of governance that are opened up by Neighbourhood Planning and use the new powers under the banner of localism, to secure at least some of their communities' desires.

It is important to stress that the book has been written during a period of uncertainty regarding the full impact of Brexit on some aspects of policy and regulatory requirements, particularly that which is conditional on EU regulations. Hence all such regulations we mention are inevitably subject to change. In reality this backdrop of conditionality or contingency is a fact of life in planning and there are plenty of other factors of change to be aware of, which are highlighted here.

Ultimately the process of completing a Neighbourhood Plan comes down to negotiating with other stakeholders such as local government, local landowners and housing developers. It is important to establish what the community wants and be mindful of other stakeholders' interests. Neighbourhood Planning in Practice sets out how citizen-planners can make the most of this opportunity to participate in local democracy, and we hope that a critically supportive stance will be helpful.

* * *

1.2 What is Neighbourhood Planning?

In 2010, the UK Government introduced a new statutory power for communities to produce a land-use planning document for their area, known as a Neighbourhood Plan. This was then enshrined in the Localism Act (2011) and later on modified by the Neighbourhood Planning Act (2017). Subject to meeting a series of criteria known as the Basic Conditions (see Glossary and Chapter 6), such Plans form part of the statutory development framework against which future planning decisions are assessed. The advent of these new citizen-led planning powers stemmed from a desire to utilise the knowledge, skills and time of local people rooted in their community. The rationale was succinctly expressed by the then Department of Communities and Local Government (DCLG) in 2012 as:

... in recent years, planning has tended to exclude, rather than to include, people and communities. In part, this has been a result of targets being imposed, and decisions taken, by bodies remote from them ... and introducing Neighbourhood Planning addresses this.

The then newly formed Liberal Democrat–Conservative UK Coalition Government wanted Neighbourhood Planning to be central to a new planning system, one 'rooted in civic engagement and collaborative democracy', with a desire for people to become more involved in local decision-making and featuring greater citizen engagement in the planning system – in short to share control. These were rather grand (and not entirely new) aspirations and the rhetoric at the time was used deliberately to attract the attention of local residents and encourage them to embark on a Neighbourhood Plan.

Since those early days, all those involved in undertaking and researching Neighbourhood Planning have recognised the possibilities and effort involved as well as the inevitable limitations and constraints. Indeed questions still remain concerning the conditions placed on community inputs into the planning system and their ability to effect change.

Figure 1.1, overleaf, sets out in simple terms some of the possible benefits and likely drawbacks of Neighbourhood Planning that we will address in the book. Of course not every citizen-planner will have the same experience with their Plan, but after nearly a decade of practice, these issues are the ones that recur most often.

In short the aim of this book is to help secure more of the advantages whilst minimising the effects of the disadvantages. As we will explain in Chapters 2 and 3, there has been a feeling that the challenges involved in successful Neighbourhood Planning were downplayed, as was the traditionally adversarial nature of much planning activity and resultant development. Nonetheless thousands of local communities and citizen-planners continue to take up the challenge and indeed have begun to reap benefits. It is this sense of enthusiasm that has driven the writing of this book, the main purpose of which is to help new citizen-planners navigate the process, achieve their aims and ultimately improve their built and natural environment. Our research has shown that Neighbourhood Planning involves significant learning for almost everyone involved and if this book can assist in this process then it will have done its job.

* * *

1.3 What does it mean to be a citizen-planner?

In the past there have been more limited opportunities for communities to participate in the planning system. For the first time, Neighbourhood Planning offers communities the right to produce a statutory planning policy document that reflects the views of the community and which should be used to determine planning applications.

In a sense anyone can become a citizen-planner, however to become effective and legitimately involved in Neighbourhood Development Planning, there are rules and processes to be followed. In Parished areas the Plan must be initiated by the Parish or Town Council (although anyone may be on the Steering Group – see Glossary). In non-Parished areas a Neighbourhood Forum must be set up; this requires 21 signatories drawn from a representative spectrum of local residents. At present the large majority of Neighbourhood Planning groups are in Parished areas, which are predominately rural areas. It can be more challenging to organise and agree the Forum composition and the neighbourhood boundary in non-Parished/urban areas (see Chapters 4 and 5), and time and patience may be needed to proceed through those steps.

Previous experience has shown that engagement with planning can be frustrating and attempts to address the so-called democratic deficit between community inputs and subsequent planning decisions have typically yielded unsatisfactory results. At the heart of this lies the question of control over the nature of citizen participation – who is involved, whose needs are catered for, and what priorities are recognised. Therefore, effective citizen-planners must ask themselves several important questions:

• What is it that we want as a community for our neighbourhood (and what tools are best suited to these aims)?

• What do we need to understand better (and what skills and resources are needed at each stage)?

• What knowledge, skills and resources are at our disposal (and where might additional knowledge, skills and resources be accessed if necessary)?

• How do we integrate the above into the making of the Plan?

These may seem like simple questions but it is important to reflect on them in order to identify gaps in understanding, skills or resources. For example, are there elements of the community whose views are not fully understood? What additional funding could the community obtain? Does the community have enough capacity (including time, skills and knowledge) to secure its aims? Are there useful contacts or networks that the community might draw on?

Thinking about these questions as early as possible is central to rooting the Neighbourhood Planning process in the wishes of the whole community and avoiding delays later in the process. Most communities, however small, will contain a variety of opinions and perspectives: it is therefore vital to reflect on the nature and variety of the community. This might include community leaders and existing groups (such as residents and housing associations or amenity societies) but also those whose voices are not often heard. It is vital to consider whether compromise is required, and which aims need to be adjusted or retained. This may also involve consideration of who we think about when reflecting on 'the community', and where certain relationships require proactive nurturing and methods of inclusion.

As we established in the previous section, Neighbourhood Planning involves a collection of interested parties and is therefore negotiative. What we mean by this is thatNeighbourhood Planning should feature 'community-led negotiation' about the content and orientation of the Plan whilst remaining aware of how this affects others. Neighbourhood Planning practice has revealed that in many ways community-led planning involves a series of community-led negotiations, and so the concept of negotiation is a central theme of this book. As strong as individual convictions may be, no one can succeed without the help and support of others, and so negotiation must be central to the identity of any citizen-planner.

In this spirit, it is important to think about the significance of the Neighbourhood Plan in symbolic terms, as well as a document made up of technical planning policies. Although the Neighbourhood Plan is a statutory document, it is worth remembering that it forms an important part of the negotiation of local decision-making and the way that it is written, organised and presented may prove a useful bargaining chip in future deliberations and decisions. In other words, citizen-planners should remember the emphasis on community led planning and the need therefore for the community to lead negotiations and to be prepared to fight a particular corner, as well as being pragmatic about what can be achieved in local political settings. Indeed Neighbourhood Plans may be narrow or broad in scope to suit the specific conditions, resources and priorities of an area and so the challenges involved in preparing and implementing the Plan can vary.

This leads us to the second theme of this book: integration. To become a successful citizen-planner means not only reflecting on local concerns and knowledge, but also thinking about where these fit, or can be integrated into strategic concerns and with 'expert' forms of knowledge. More specifically, it also means considering how the Neighbourhood Plan will work in the wider planning system. This reflects how we see citizen-planning as part of a wider system where two worlds – local/strategic and community/state – are combined and more or less successfully integrated. In practice, to become a citizen-planner, it is necessary therefore to think about the concerns and perspectives of others – such as local government planners or local landowners – to understand the best way to secure community wishes.

Recognising the concepts of negotiation and integration is therefore central to becoming a citizen-planner. These two concepts are also required if communities are to utilise our third theme: seeing the overall process as a space of possibility, and attempting to innovate where appropriate. This is to say, that there is room to experiment in the Plan, to secure community aims that may not have been possible in the past, or to take responsibility for local development or local services that were previously controlled by private interests or local government. We return to this theme and give some concrete examples in Chapter 7. It is also worth remembering, as will be discussed further in Chapter 2, localism is largely about an ongoing negotiation between central government on one side and local government, communities and citizens on the other.

These three themes – negotiation, integration and spaces of possibility – may appear abstract, but as we aim to show they are central to becoming a citizen-planner. We hope that through the course of this book, readers can return to these themes and reflect on them as they are absorbed and understood alongside the details of Neighbourhood Planning. This requires us to be alert to how the ethos of Neighbourhood Planning, as originally conceived, was ostensibly about promoting community control. In practice Neighbourhood Planning has featured community-led, citizen-informed, co-produced effort. This presents an interesting dilemma as communities also need to liaise and learn about the formal planning and associated technical know-how that is deployed throughout the planning process. This may lead to tradeoffs as individual groups are presented with choices on how to maintain the integrity of their efforts as communities while also ensuring their Plan reflects and aligns with the broader context.

(Continues...)

Excerpted from Neighbourhood Planning in Practice by Gavin Parker, Kat Salter, Matthew Wargent. Copyright © 2019 Gavin Parker, Kat Salter and Matthew Wargent. Excerpted by permission of Lund Humphries.
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Edition details

• Publisher: Lund Humphries Publishers Ltd
• Publication date: 2019
• Language: English
• ISBN 10: 1848222831
• ISBN 13: 9781848222830
• Binding: Hardcover
• Number of pages: 160