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European Planning Studies<br />
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Understanding the Reorientations and<br />
Roles of Spatial Planning: The Case of<br />
National Planning Policy in Denmark<br />
Daniel <strong>Galland</strong> a<br />
a Department of Development and Planning, Aalborg University,<br />
Aalborg, Denmark<br />
Version of record first published: 04 May <strong>2012</strong><br />
To cite this article: Daniel <strong>Galland</strong> (<strong>2012</strong>): Understanding the Reorientations and Roles of Spatial<br />
Planning: The Case of National Planning Policy in Denmark, European Planning Studies, 20:8,<br />
1359-1392<br />
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European Planning Studies Vol. 20, No. 8, August <strong>2012</strong><br />
Understanding the Reorientations and<br />
Roles of Spatial Planning: The Case of<br />
National Planning Policy in Denmark<br />
DANIEL GALLAND<br />
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Department of Development and Planning, Aalborg University, Aalborg, Denmark<br />
(Received October 2010; accepted January 2011)<br />
ABSTRACT Spatial planning commonly adopts a diversity of functions and logics in contributing to<br />
the handling of growth and development. Being influenced by an array of contextual driving forces<br />
that result in specific institutional practices and policy agendas, spatial planning seems to be<br />
constantly reoriented in terms of its purposes and reasoning. This article sets out to explore the<br />
diverse orientations and roles that spatial planning has assumed in Denmark over a 50-year<br />
period. In doing so, the article examines the evolution of national planning policy by means of a<br />
multi-disciplinary framework comprising analytical concepts drawn from planning theory, state<br />
spatial theory and discourse analysis. Based on an in-depth study, the article then attempts to<br />
qualify, illustrate and synthesize the diverse roles that spatial planning has assumed in Denmark<br />
throughout that timeframe. The article concludes that spatial planning initially assumed a<br />
steering role, which has been either supplemented or substituted by balancing and/or strategic<br />
roles over the course of the past two decades. As a whole, this case is thought to contribute to<br />
current discussions regarding how spatial planning is shaped in different parts of Europe.<br />
Introduction<br />
Since the 1990s, scholars have argued that the orientation and practices of spatial planning<br />
throughout Europe have changed in relation to its traditional role (Healey et al., 1997;<br />
Hajer & Zonneveld, 2000; Albrechts et al., 2003). A common argument has been that<br />
the conceptual logic and the institutional mechanisms of spatial planning shift as a<br />
result of the constant pressure that a series of economic, socio-cultural and political<br />
driving forces exert upon them (Healey et al., 1999; Albrechts et al., 2003). This line of<br />
reasoning has developed in accordance with the awareness that spatial planning has<br />
moved to operate away from its innately regulatory and managerial modes towards<br />
more strategic ones (Salet & Faludi, 2000; Albrechts, 2004). However, such driving<br />
Correspondence Address: Daniel <strong>Galland</strong>, Department of Development and Planning, Aalborg University,<br />
Fibigerstræde 11, Aalborg 9220, Denmark. Email: dgalland@plan.aau.dk<br />
ISSN 0965-4313 Print/ISSN 1469-5944 Online/12/081359–34<br />
http://dx.doi.org/10.1080/09654313.<strong>2012</strong>.680584<br />
# <strong>2012</strong> Taylor & Francis
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forces seem to only account for recent shifts informed by studies undertaken at the level of<br />
the city and city-region during short timeframes. In addition, current planning debates<br />
appear to leave aside the combination of roles that spatial planning could potentially<br />
assume.<br />
In attempting to explore the different orientations that spatial planning adopts throughout<br />
larger spatial and temporal frames, this paper takes on a multi-disciplinary approach<br />
comprising three analytical stances—institutionalism, economic geography and political<br />
science. In doing so, a framework is proposed by pulling together specific notions<br />
drawn from planning theory (Healey et al., 1999; Albrechts et al., 2003), state spatial<br />
theory (Brenner 2004, 2006) and discourse analysis (Hajer, 2003), and the interplay that<br />
several of their variables exhibit with regards to how and why spatial planning evolves.<br />
By delving into the case of national planning policy in Denmark, the aim of the paper<br />
is therefore to address the different roles that spatial planning has taken up as a result<br />
of its several development reorientations since the 1960s.<br />
The first section of the paper provides a general overview regarding the traditional role<br />
of spatial planning in European countries. It then moves on to discuss the changing character<br />
and emerging roles of spatial planning. Secondly, the paper describes the main mechanisms<br />
and factors that comprise the above-mentioned multi-disciplinary framework. The<br />
third section presents an in-depth analysis concerned with the evolution of national planning<br />
policy in Denmark from its origins until the most recent shifts. It addresses the condition<br />
and shifting orientations of national planning reports, legislation and other spatially<br />
relevant policy during the past 50 years. Based on these three sections, the paper proceeds<br />
to qualify, illustrate and synthesize the diverse roles that spatial planning seems to have<br />
adopted in Denmark throughout that period. Finally, the paper offers some concluding<br />
remarks.<br />
Spatial Planning Systems and Policies Under Change<br />
Steering: The Traditional Role of Spatial Planning<br />
Several planning systems in Europe, particularly those in the Nordic countries, have been<br />
traditionally organized via formal and hierarchical top-down structures wherein national<br />
policies have been meant to guide lower territorial scales (CEC, 1997). As a result, the traditional<br />
role of spatial planning at the national level in such contexts has been to guide<br />
spatial development by means of policy instruments throughout different tiers of government<br />
wherein planning practice is undertaken. As a policy tool, then, national spatial planning<br />
aimed at allocating public sector investment and social welfare resources between<br />
regions (CEC, 1997, 1999).<br />
These hierarchical arrangements and the traditional function of national planning can be<br />
portrayed as an outcome of post-war welfarist models, where the public sector was meant<br />
to “...undertake, manage and regulate development in line with a generalized and unitary<br />
conception of the ‘public interest’ (and) ...acted as a ‘provider’ of a coordinated stable<br />
framework for the making of development investment decisions, as well as a provider of<br />
serviced land and development” (Healey et al., 1997, p. 11). In Denmark, planning mechanisms<br />
as depicted until recently seemed to resonate with such systematic attributes.<br />
In practice, this was carried out through a planning system based on the principle of
Understanding the Reorientations and Roles of Spatial Planning 1361<br />
framework control (rammestyringprincip), which meant that plans at lower levels must not<br />
contradict planning decisions made at higher levels (CEC, 1999, p. 17).<br />
Spatial planning agendas in European settings have conventionally focused on land-use<br />
allocation, its geographical distribution, growth management and improving quality of<br />
settlements (Healey et al., 1999, p. 348). Such agendas have commonly resulted in an<br />
array of overlapping policies and practices, such as population balance between urban<br />
and rural areas, regulation of land-use and development, urban and regional economic<br />
development measures, development of transport infrastructure and coordinating the<br />
spatial impacts of other sectoral policies, amongst others (Tewdwr-Jones, 2001, p. 16).<br />
To a considerable degree, spatial planning in Denmark aligned with most of these policies<br />
until new agendas emerged during the 1990s and 2000s.<br />
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The Shifting Nature of Spatial Planning: The Emergence of Balancing and Strategic<br />
Roles<br />
Throughout their existence as a cross-sectoral policy field and practice occurring within<br />
and across different territorial levels, spatial planning systems and policies across<br />
Europe have been subjected to change and adaptation resulting in a diverse array of institutional<br />
forms and ways of performing (CEC, 1997; OECD, 2001). An important shift<br />
relates with the way in which spatial planning has moved to operate away from its innately<br />
regulatory and steering modes towards more strategic ones. The “strategic turn” that<br />
emerged during the 1990s has portrayed spatial planning both as an innovative placemaking<br />
activity and a relational process for decision-making (Healey et al., 1997;<br />
Albrechts et al., 2001; Healey, 2007). In this sense, strategic spatial planning can be understood<br />
as “...a socio-spatial process through which a vision, action and means for<br />
implementation are produced ...” (Albrechts, 2004, p. 747), thereby entailing how cityregions<br />
or metropolitan areas could potentially develop.<br />
Shifts regarding the nature of spatial planning such as the above imply that this domain<br />
has increasingly become more differentiated. This is often observed in terms of its shifting<br />
agendas and objectives. In parallel to this strategic turn, spatial planning underwent important<br />
policy shifts influenced by the sustainable development agenda introduced by the<br />
Brundtland Commission in the late 1980s. Based on the premise that limits should be<br />
placed on growth, this agenda stressed the need to undertake radical political shifts to<br />
facilitate the simultaneous pursuit of economic prosperity, environmental quality and<br />
social equity. Since then, spatial planning has also assumed the role of contributing to<br />
foster a better environment while promoting business development objectives throughout<br />
national territories.<br />
While these sustainability-oriented shifts certainly came to supplement the defined<br />
steering and strategic positions of spatial planning, it is convenient for the sake of this<br />
paper to ascribe them a “balancing” character. Seen in this light, the “balancing role” of<br />
spatial planning emerges when the policy domain becomes rather differentiated as compared<br />
to the predominant social welfare objectives conducted through steering capacities.<br />
This role would then consist of introducing new policy agendas, most notably those<br />
dealing with environmental concerns and new forms of economic development. Beyond<br />
the incorporation of these topics, the balancing role also adopts a mediating posture.<br />
This is exemplified through the integration of seemingly conflicting policy objectives.<br />
Moreover, the balancing role could also be perceived as part of the “reinvention” of
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spatial planning as a policy domain, particularly in times of transition between its steering<br />
and strategic roles.<br />
Strategic spatial planning has been widely described and explored elsewhere by several<br />
authors and an extensive explanation of its contents is beyond the scope of this paper.<br />
However, for the sake of understanding the strategic role of spatial planning in Denmark,<br />
it is worth highlighting the following characteristics. Strategic spatial planning is founded<br />
on a visionary appreciation of the “spatial” or spatial development per se. Strategic<br />
visions and frameworks tend to emphasize place qualities, often promoted by spatial relations<br />
of territories (Albrechts, 2004). In doing so, national and regional spatial plans from across<br />
Europe have incorporated spatial concepts in recent years, some of which draw from or are<br />
inspired by the European Spatial Development Perspective (ESDP) (CSD, 1999). In practice,<br />
the strategic role seems to emerge when more thorough and coherent spatial logics are put<br />
forward. This occurs, amongst other cases, when trying to make urban regions more competitive,<br />
when attempting to coordinate public policy or in creating territorial relationships<br />
(Healey, 2004). In this sense, strategic spatial planning is characterized by complex urban<br />
and regional dynamics and territorial governance processes (Healey, 2006).<br />
Based on the above shifts, the dimensions of spatial planning have continued to change<br />
at different levels in diverse European planning systems. As a result, a more comprehensive<br />
and diverse set of policies, practices and responsibilities beyond land-use planning or<br />
spatial coordination are currently being addressed. In view of that, spatial planning could<br />
be characterized as a mixed policy domain that includes former regulatory approaches as<br />
well as newer and more complex processes dealing with aspects of strategic governance,<br />
policy integration and planning reforms (Haughton et al., 2010, p. 2). This situation arguably<br />
entails a complex evolutionary process in which spatial planning principles and concepts<br />
continue to progress in a more strategic way while aligning with ideas and interests<br />
that differ widely from their original ventures.<br />
To better understand the contents and praxis of these three spatial planning categorizations<br />
(i.e. steering, balance and strategic), the following section suggests an analytical<br />
framework aimed at exploring how and why spatial planning policy evolves.<br />
Approaches to Analyse the Evolution of Spatial Planning Policy<br />
How does spatial planning evolve? Through what means can we better understand why<br />
spatial planning tends to adopt different roles in handling growth and development? In<br />
attempting to answer these questions, this section suggests a framework comprising<br />
three different theoretical stances. First is an institutionalist approach that views the evolution<br />
of spatial planning as a function of contextual driving forces, which in turn generate<br />
new institutional capacities, relations and policy agendas (Healey et al., 1997, 1999;<br />
Albrechts et al., 2003). This approach has been developed by scholars who have aimed<br />
at understanding the strategic turn of spatial planning. Second is an economic geography<br />
standpoint that delves into the interplay between different parameters of state spatial selectivity<br />
(Brenner, 2004, 2006). Altogether, these parameters comprise an analytical tool to<br />
explain how spatial planning evolves over time. Finally, there is a political science perspective<br />
that draws on discourse analysis (Hajer, 2003) to elucidate how policy vocabularies<br />
and storylines shape spatial planning concepts.<br />
Figure 1 provides an overall synthesis of the different concepts and approaches that<br />
comprise these theoretical stances. Analytically, the three approaches are assumed to
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Figure 1. Analytical framework for understanding the evolution of spatial planning and the roles that<br />
it adopts in accordance with particular development orientations.<br />
supplement one another. As a whole, the argument of the framework is that the synergy of<br />
these different conceptual approaches could contribute to the better understanding of the<br />
processes through which spatial planning policy evolves. The value of such framework<br />
relies on its attempt to ultimately qualify and illustrate the different policy orientations<br />
upon which spatial planning adopts particular roles. The specificities of these approaches<br />
are subsequently described and applied thereafter to the case of national planning policy in<br />
Denmark.<br />
Driving Forces Shaping Spatial Planning<br />
As discussed above, the changing logic of spatial planning can be explained by the assertion<br />
that its practices and hierarchical structures shift as a result of the constant pressure<br />
that a series of economic, socio-cultural and political driving forces exert upon them.<br />
As such, these forces could be regarded as the key motives behind the strategic turn of<br />
spatial planning in Europe (Albrechts et al., 2003, p. 115). Table 1 outlines the main<br />
reasons that lie behind the reorientation of spatial planning.<br />
In accordance with this logic, Healey et al. (1997, 1999) argue that new institutional<br />
capacities and relations, as well as new policy agendas emerge as outcomes of contextual<br />
driving forces. The generation of new institutional capacities can be illustrated by emerging<br />
processes of stakeholder interaction that are based on horizontal articulation, territorial<br />
and collaborative logics as well as negotiative forms between policy sectors (Healey<br />
et al., 1999, p. 344). This notion is clearly linked with the argument stating that new<br />
forms of governance and territorial policy integration are being created in response to<br />
the new global positioning of city-regions (Albrechts et al., 2003). The emergence of
1364 D. <strong>Galland</strong><br />
Table 1. Synthesis of contextual driving forces causing that spatial planning practices<br />
change (based on Healey et al., 1999, p. 342, and Albrechts et al., 2003, p. 115)<br />
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Economic<br />
Re-structuring of production relations<br />
Global positioning of city regions through “competitiveness” agendas<br />
Widening of economic relations from local networks towards global relationships<br />
Rules applied by the EU (e.g. EU regional development funds)<br />
Fiscal stress of governments and the consequent search for partnerships to increase investment<br />
capacities<br />
Environmental<br />
Ecological vulnerabilities and environmental constrains on economic growth<br />
Concern for quality of life and environmental consciousness<br />
Political<br />
Decentralization of governance functions and new forms of governance and government<br />
reorganization<br />
Changes in financing local governments (need for budget sharing)<br />
Political/cultural emphasis on regional and local identity and cohesion<br />
New modes of territorial policy integration<br />
Discourses and practices of a trans-European spatial planning policy community<br />
new (national, regional or local) policy agendas containing a language of urban and<br />
regional economic competitiveness is similarly linked to such positioning and also to<br />
discourses of a trans-European spatial planning policy.<br />
These contextual driving forces seem to offer valuable insights in addressing why spatial<br />
planning changes. However, they seem to only account for recent shifts, particularly those<br />
mainly taking place during the 1990s. Apart from being constrained by a short timeframe,<br />
the ideas of new institutional capacities and policy agendas essentially draw from cases<br />
undertaken at the level of cities or city-regions. As the wider spatial and temporal<br />
dimensions of spatial planning cannot be fully embraced by these driving forces alone,<br />
an economic geography perspective is taken in attempting to further qualify the different<br />
roles the spatial planning has assumed over longer timeframes.<br />
Parameters of State Spatial Selectivity<br />
The term state spatial selectivity finds its origin in state spatiality, which can be understood<br />
as a process that is “...actively produced and transformed through socio-political<br />
struggles at various geographical scales” (Brenner, 2004, p. 456). As such, state spatial<br />
selectivity can be understood as a phenomenon where “each historical formation of<br />
state institutions and policies tends to privilege particular spaces, locations or scales<br />
within a given national territory and to neglect, marginalize or exclude others” (Jones,<br />
1999, cited in Brenner, 2004, p. 456). Brenner (2006, p. 97) suggests the following parameters<br />
of state spatial selectivity, which are determined through the changing forms of<br />
state spatial organization within a given territory (i.e. the organization of state space)<br />
and by the ways in which states may attempt to influence the geographies of uneven<br />
development within their territories (Table 2).<br />
According to the description above, parameters (a) and (c) correlate with each other<br />
insofar as both relate to a scalar articulation of state policies and institutions among different<br />
levels of political–economical organization within a given territory. Parameters (b)
Understanding the Reorientations and Roles of Spatial Planning 1365<br />
Table 2. Parameters of state spatial selectivity (adapted from Brenner, 2006, p. 97)<br />
(a) Centralization versus decentralization, which contends either the drive to concentrate state<br />
operations at the national scale or the inclination to transfer regulatory tasks to sub-national levels;<br />
(b) Uniformity versus customization, which asserts either the promotion of levels of service<br />
provision and bureaucratic organization throughout an entire territory or the promotion of such<br />
services and arrangements in specific places or zones within a territory;<br />
(c) Singularity versus multiplicity, which sustains either privileging a single dominant scale as the<br />
main level for socio-economic activities or the distribution of such activities among multiple<br />
spatial scales;<br />
(d) Equalization versus concentration, which emphasizes either spreading socio-economic assets and<br />
public resources as evenly as possible across a national territory or the agglomeration of such<br />
assets and resources in specific locations, places and regions within a territory<br />
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and (d) are similarly correlated albeit in relation with the territorial articulation among<br />
different types of juridical units or economic zones. Moreover, parameters (a) and (b) correlate<br />
with modes of spatial organization, while parameters (c) and (d) correlate with<br />
modes of spatial intervention.<br />
In line with this understanding, different configurations of state restructuring have<br />
emerged in western Europe since 1960, which correlate with particular forms of state<br />
spatial (urban-regional) regulation and state spatial selectivity (Brenner, 2004, 2006). 1<br />
Forms of urban-regional regulation refer to the scale at which spatial strategies are<br />
being generated, while forms of spatial selectivity relate to the promotion of specific<br />
spaces, locations and scales through spatial strategies.<br />
The above parameters of spatial selectivity seem to offer important insights not only<br />
with regards to addressing why spatial planning has been prone to shift, but also in accordance<br />
with specific periods of state restructuring (Brenner, 2004). In this sense, the reorientation<br />
of spatial planning can also be understood from the standpoint of economic<br />
geography through the outcomes that these selectivities tend to generate. To supplement<br />
these parameters as well as the contextual driving forces described above, the next subsection<br />
explains how discourse analysis could be used to pinpoint policy agendas and the concepts<br />
that emerge from them.<br />
Discourse Analysis as Means to Identify Policy Orientations<br />
In Denmark as well as in several other European countries, national (spatial) planning<br />
policy has been lately concerned with visions about how the national territory should<br />
develop in terms of the qualities of urban and rural areas as well as the natural environment.<br />
Such policies therefore comprise particular spatial representations and objectives<br />
elaborated by state planning actors. In this sense, it can be argued that policies rely on discourses<br />
that are founded on diverse development orientations or rationales.<br />
Hajer and Versteeg (2005) define a discourse as “...an ensemble of ideas, concepts and<br />
categories through which meaning is given to social and physical phenomena, and which is<br />
produced and reproduced through an identifiable set of practices” (p. 175). According to<br />
Hajer (2003, p. 103), a policy discourse analysis can be pursued through the study of three<br />
layers. The first layer refers to the analysis of storylines, which comprise statements (e.g.<br />
metaphors) that synthesize complex narratives (ibid., p. 104). Storylines can be portrayed<br />
as a channel whereby actors try to impose their view of reality on others, suggest certain
1366 D. <strong>Galland</strong><br />
Table 3. Layers of policy discourses (adapted from Hajer, 2003, p. 104)<br />
(a) Analysis of storylines: Statements that bring together previously unrelated elements of reality;<br />
(b) Analysis of policy vocabularies: Sets of concepts that structure a determined policy developed ad<br />
hoc by policymakers;<br />
(c) Epistemic figures: rules of formation that underline theories and policies but are not formulated in<br />
their own right.<br />
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positions and practices, and criticize alternative ones (Hajer & Versteeg, 2005). The<br />
second layer relates to the analysis of policy vocabularies, where policymakers set out<br />
to determine specific concepts in structuring a particular policy discourse (Hajer, 2003,<br />
p. 105). In recent years, for instance, conceptual innovations such as “urban corridors”<br />
have been common not only in Danish national planning policies but also elsewhere<br />
throughout western Europe (e.g. in The Netherlands). Finally, the last layer comprises<br />
the analysis of epistemic figures, which “...refer to the regularity of the thinking of a particular<br />
period” (Hajer, 2003, p. 106). In the case of Denmark, as it will be explained in the<br />
following sections, the framing of terms such as “equal development” or “balanced development”<br />
shows, respectively, the influence of welfarist and sustainability thinking in<br />
different spatial planning policies throughout the past decades.<br />
Discourse analysis can thus be portrayed as an analytical tool to understand the rationalities<br />
behind the arguments that are being used by different policies. The analysis of<br />
policy discourses is relevant to our analytical framework in the sense that it can contribute<br />
to offer more precise views regarding the meanings behind specific policy contents and<br />
conceptualizations. In this sense, the exploration of discourses concerned with national<br />
planning policy could further facilitate the process of understanding the roles of spatial<br />
planning and thereby complement the analytical capacity provided by the above driving<br />
forces and spatial selectivity parameters (Table 3).<br />
The Genesis and Evolution of National Planning Policy in Denmark<br />
This section describes the evolution of national planning policy in Denmark from its<br />
origins until the most recent shifts. It addresses the condition and changing character of<br />
national planning reports, legislation and other spatially relevant policy during the past<br />
50 years. In doing so, the section firstly discusses how spatial planning policy emerged<br />
and analyses its original scope and aims. It then moves on to examine how policy gradually<br />
evolved by stressing its underlying orientations and characteristics. The most important<br />
features of national planning reports are thereby exposed in terms of contents to further<br />
elucidate orientation shifts. As a whole, this section constitutes the basis for a subsequent<br />
discussion regarding the roles that spatial planning has played during different stages of<br />
development in Denmark.<br />
The Foundations of National Planning in Denmark<br />
The Danish planning system is founded “...in the tradition of understanding the necessity<br />
for functional cities and the regulation of land-use” (CEC, 1999, p. 18). Its original scope<br />
is rooted in forms of physical planning aimed at the regulation of towns and the zoning of
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urban districts. The first Town Planning Act in Denmark was passed in 1925, followed by<br />
new Acts in 1938 and 1949. The 1938 Planning Act, a town planning by-law (byplanvedtegt),<br />
was limited to the regulation of towns, while the 1949 Act (byreguleringsloven) provided<br />
urban development plans (byudvikilngsplaner) to control urban sprawl and preserve<br />
open country areas (Gaardmand, 1993; CEC, 1999).<br />
The first planning initiative above the urban level in Denmark can be traced back to a<br />
regional planning exercise for the Greater Copenhagen Area (Egnsplan for Storkøbenhavn)<br />
that delivered the well-known Finger Plan (Fingerplanen) in 1947. Although this<br />
plan never attained a legal status, its original foundations have played a major role in<br />
the urban development of the region ever since. The Finger Plan basically projected the<br />
growth of Copenhagen outwardly along five corridors (fingers) in the direction of<br />
nearby towns. Each corridor comprised a settlement positioned in function of a suburban<br />
railway network and a radial road network. This effort represented the first planning<br />
attempt to address matters such as traffic infrastructure, industry sites, housing areas<br />
and environmental aspects from an integrated perspective (Gaardmand, 1993) (Figure 2).<br />
The need for more comprehensive planning in Denmark arose during the mid-1950s<br />
when the country faced a series of unprecedented challenges and side effects product of<br />
its rapid economic growth and its changing industrial structure. Some of these consequences<br />
comprised urban sprawl, industry requirements for additional land, an increasing<br />
demand for summer cottages and a decline in living conditions for a considerable part of<br />
the population (Elbo, 1981). This situation led to establishing a series of planning law<br />
reforms during the mid-1960s (CEC, 1999).<br />
Figure 2. The 1947 Finger Plan for Greater Copenhagen (Regional Planning Office, 1947, front<br />
cover).
1368 D. <strong>Galland</strong><br />
On top of the above issues, there was a distribution concern that soaring economic<br />
growth was being experienced mainly in the east of the country while other regions<br />
were considerably lagging behind. Population distribution also turned into an issue<br />
given the high migration rate to Copenhagen and some eastern towns in Jutland (Jensen<br />
& Jørgensen, 2000). The notion of an “unbalanced Denmark” (det skæve Danmark)<br />
then emerged and turned into a debate reaching political and planning landscapes<br />
(Christoffersen & Topsøe-Jensen, 1979; Gaardmand, 1993; Jensen & Jørgensen, 2000).<br />
A demand to push for local development under a regional planning approach seemed<br />
then to be the more adequate path towards addressing such an imbalance.<br />
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The 1960s: Dealing with an “Unbalanced Denmark”<br />
Initial discussions about national planning (landsplanlægning) became imperative in<br />
addressing the consequences of imbalance and inequality. An initial proposal put<br />
forward by Kaufmann in 1959 suggested that a national growth hypothesis be based on<br />
a “star-city plan” (stjernebyplan) (Gaardmand, 1993) (Figure 3, left). Kaufmann’s hypothesis<br />
showed signs of concern regarding unbalanced development:<br />
Over the next decade, a growing population, economy and culture will accumulate in<br />
a few places in the country. Should we ignore or work against this development, we<br />
will lose power and money. Should we follow it, it may become influential and will<br />
benefit the whole country. (Kaufmann, quoted in Christoffersen & Topsøe-Jensen,<br />
1979, p. 251, author’s translation)<br />
The generation of Kaufmann’s hypothesis gave way to the establishment of a National<br />
Planning Committee (Landsplanudvalg) inspired by a Dutch model (Elbo, 1981). The<br />
Committee generated a Zone Plan for Denmark in 1962, which proposed areas for<br />
urban and industrial development, environmental preservation, summer housing and agricultural<br />
production (Figure 4). Moreover, a more thorough elaboration of the star-city plan<br />
Figure 3. Star-city plan (left) and the “Great H” motorway system (right) (Gaardmand, 1993, p. 79).
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Understanding the Reorientations and Roles of Spatial Planning 1369<br />
and the projection of a motorway system throughout the country known as “the great H”<br />
(det store H) strengthened the idea of more equal territorial development (Gaardmand,<br />
1993) (Figure 3, right).<br />
In 1966, the Landsplanudvalg Secretariat (Landsplansekretariatet) published a key<br />
document entitled “Regional Planning and Regional Divisions” (Region Planlægning<br />
og Region Inddeling) wherein specific cities and towns were assigned an urban settlement<br />
pattern (bymønster) based on national or regional service functions (Landsplanudvalget<br />
Sekretariat, 1966). Being influenced by Central Place Theory (CPT), such urban pattern<br />
supposed a new spatial concept that would then become a stepping-stone towards an imminent<br />
municipal reform in 1970. CPT was originally put forward by Christaller in Germany<br />
during the 1930s. The theory aimed at explaining the spatial arrangement of urban centres<br />
based on service provision and how they positioned themselves in relation to one another<br />
over the territory. It assumed that such centres followed a hierarchical order, which determined<br />
how they were distributed in terms of distance and size. In doing so, each centre<br />
Figure 4. Zone Plan for Denmark in 1962 based on diverse land-use areas (Elbo, 1981, p. 293).
1370 D. <strong>Galland</strong><br />
supplied particular types of goods, forming levels of hierarchy whereby activities were<br />
located in function of the presence of urban services (Christaller, 1966). 2<br />
Furthermore, while a national plan as such had been neither prepared nor pursued at the<br />
time, the creation of a planning ideology based on equality had already begun taking shape<br />
in political settings. The rationale behind Kaufmann’s hypothesis and the series of planning<br />
exercises carried out through the 1960s implied a need to achieve a more even<br />
spatial distribution of economic growth throughout the country. These efforts can be<br />
characterized as indicators signalling “...the spatial expression of the welfare state”<br />
(Jensen & Jørgensen, 2000, p. 31) and thereby the imminent birth of national planning<br />
in Denmark. However, it was not until the following decade that national planning as<br />
such would become institutionalized (Figure 5).<br />
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The 1970s: The Consolidation of National Planning and the Principle of Equal<br />
Development<br />
Denmark underwent a structural reform in the 1970s that resulted in the reconfiguration of<br />
the administrative division of counties and municipalities. Before 1970, Denmark was<br />
divided into 86 boroughs and over 1300 parishes contained within 25 county council districts.<br />
Parishes were found to be quite limited (in terms of territory, civil servants and<br />
population) in handling local tasks effectively while the urban extension of many boroughs<br />
had spread outside their formerly demarcated boundaries. Amongst other issues, this fact<br />
led to a structural reform that created 14 counties and 275 municipalities in 1970 (Ministry<br />
of the Interior and Health, 2002).<br />
A core idea behind this reform was that every new municipality embraced a single town<br />
and its hinterland following the “central place” settlement pattern, whereby the largest<br />
Figure 5. National centres (left) and regional centres (left) ca. 1965 based on 16 and 9 different<br />
service functions, respectively (Landsplanudvalget Sekretariat, 1966, pp. 64, 67).
Understanding the Reorientations and Roles of Spatial Planning 1371<br />
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town in every given municipality took a central place position to provide the remaining<br />
towns and villages with access to basic and more specialized services (Illeris, 1984;<br />
Ministry of the Interior and Health, 2002). This approach clearly substituted the former<br />
land demarcation that showed a sharp distinction between the urban and the rural.<br />
The structural reform gave way to the legal consolidation of national planning and<br />
opened up the discussion towards establishing a hierarchical urban pattern in the<br />
country. The implementation of the planning law reforms from the 1960s yielded the<br />
Urban and Rural Zones Act in 1970, the National and Regional Planning Act in 1973<br />
and the Municipal Planning Act in 1977 (CEC, 1999). The 1973 Act became the first statutory<br />
policy at the national scale, implying that counties should submit regional plans to<br />
national authorities. For this purpose, the new Danish planning system at the time introduced<br />
the principle of framework control (rammestyringprincip), by which plans at<br />
lower levels could not contradict those at higher levels (CEC, 1999). The first national<br />
planning report put forward by the Ministry of the Environment (1975) stressed the<br />
need to address the consequences of unbalanced economic growth and population distribution.<br />
Subsequent national planning reports in the 1970s were framed along the same<br />
lines of redistribution outside the country’s main urban centres.<br />
The principle of equality or equal development (ligelig udvikling) was adopted, which<br />
implied that decentralization was required to meet the developmental needs of more peripheral<br />
regions. This basically meant a better access to public and private services that<br />
would have otherwise remained in larger urban centres. In doing so, a regional policy framework<br />
was established to allocate funds for disadvantaged areas (Elbo, 1981). Reimbursement<br />
schemes were replaced by block grants and financial equalization schemes<br />
(between the more- and the less-developed municipalities) during this period. The creation<br />
of a new administrative configuration similarly enabled the possibility of economies of<br />
scale and further savings (Ministry of the Interior and Health, 2006) (Figure 6).<br />
The Ministry of the Environment (1979) published an influential report regarding the<br />
future urban settlement pattern of Denmark. This report (Rapport om det fremtidige<br />
bymønster) was prepared by The Central Planning Agency (Planstyrelsen), which was<br />
created in 1975 under the authority of the Ministry of the Environment. Planstyrelsen<br />
became the successor of the National Planning Secretariat, when planning matters<br />
changed from being under the authority of the Ministry of Housing to being under the<br />
Ministry of Environment. Moreover, the report implied an initial step towards assigning<br />
towns and cities a level in the urban hierarchy by proposing the creation of regional<br />
and municipal centres. To attain the label of any specific urban centre, settlements were<br />
to meet a series of functional indicators based on services and minimum population<br />
bases. These requirements would allow the provision of such goods and services in a<br />
way that people accessed them as near as possible while their production and distribution<br />
still remained profitable for suppliers. The application of the urban settlement pattern<br />
concept would potentially deliver several kinds of national, regional and local urban settlements,<br />
an approach that was thought to determine the future urban pattern of Denmark for<br />
several years (Ministry of the Environment, 1981).<br />
In sum, the 1970s saw the rise of coordinated forms of planning that became legalized<br />
and institutionalized. Planning was advanced as an essential system to implement welfare<br />
ideas through the equal distribution of resources. The social democratic ideology of equality<br />
that advocated for distributed economic development became the founding mechanism<br />
of the national planning apparatus in Denmark.
1372 D. <strong>Galland</strong><br />
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Figure 6. Special and general areas in Denmark (Elbo, 1981, p. 291).<br />
The 1980s: From Equality to Diversity<br />
A salient planning feature during the 1980s was the official designation of a hierarchy of<br />
urban centres. The strong welfare orientation of the previous decade became spatially<br />
defined in the 1981 national planning report wherein national centres (landsdelscentre)<br />
were appointed by the state at the same time as counties and municipalities nominated<br />
various forms of regional and local area centres (egnscenter and områdercenter), respectively.<br />
3 The use of an urban hierarchy approach can be seen as an implementation tool<br />
aimed at translating economic growth into territorial planning, thereby securing and<br />
enabling equal resource distribution throughout the whole country. This undertaking<br />
would then allow the population to get access to necessary goods and services regardless<br />
of type of settlement they chose to live in (Figure 7).<br />
The principle of equal development consistently remained in all the national planning<br />
reports throughout most the 1980s. However, the emphasis on equality shifted in terms<br />
of how to go about attaining it. The new centre-right government (a liberal-conservative<br />
coalition) that ruled in Denmark from 1982 to 1993 played an important role in the way<br />
to reframe and understand equal development. For instance, already in 1984 the national<br />
planning report stressed the need for changing development tendencies:
Understanding the Reorientations and Roles of Spatial Planning 1373<br />
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Figure 7. The urban hierarchy settlement pattern of Denmark focusing on national and regional<br />
centres (Ministry of the Environment, 1981, p. 34).<br />
New means are required to redress the imbalances in the weak regions (...) County<br />
councils are meant to uphold regional objectives. (Ministry of the Environment,<br />
1984, p. 4, author’s translation)<br />
County councils had now been allocated the role of handling imbalance. This slight shift<br />
in discourse and the transfer of equal development responsibilities onto the regional level<br />
marked an inflection point as to how equality was to be perceived by national planning<br />
thereon. The homogenization process undertaken by spatial planning in combination<br />
with regional development policy, which resulted in a more equal territorial and social distribution<br />
seemed to have come to an end as unemployment rates in national centres<br />
(mainly Copenhagen) continued to be on the rise (Jørgensen & Tonboe, 1993). The character<br />
of national planning thus began turning away from equal development and more<br />
towards modernization and internationalization.
1374 D. <strong>Galland</strong><br />
The larger cities have increasingly been able to detect that problems become more<br />
complex and more difficult to solve by known means. The most notable is that the<br />
larger cities have been hit hard by unemployment during the last 10 years. Unemployment<br />
is now above the national average. Therefore it is important that these<br />
cities engage in promising business policy. (Ministry of the Environment, 1987,<br />
p. 10, author’s translation)<br />
The last national planning report of the decade pointed towards a major and radical shift<br />
in Danish national planning. The 1989 report entitled “The Danish regional picture now<br />
and in the future” (Det regionale Danmarksbillede nu og i fremtiden) depicted how the<br />
country was to develop on a geographically differentiated basis, stressing the new challenges<br />
to be faced when entering the Single European Market and the need for adopting<br />
an international position. The report was clearly strategic, as it served as a preamble for<br />
subsequent national planning reports.<br />
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It is the government’s view that the earlier form of development pursued by the<br />
nationwide goal of equality is outdated. The future must be guided by regional<br />
political activities that have diversity. Attention must be given to harnessing the<br />
development potential of the regions to strengthen Denmark’s position internationally.<br />
(Ministry of the Environment, 1989, p. 5, emphasis added, author’s translation)<br />
The diversity goal takes its point of departure in the government’s liberal ideology and<br />
its agenda to reform distribution policy resulting on the push to stimulate private and local<br />
solutions rather than the former public and national ones (Nielsen & Olsen, 1990). Moreover,<br />
diversity seemed to reflect the national government’s desires towards promoting<br />
deregulation and changing its sectoral foci (Jørgensen & Tonboe, 1993). This can be illustrated,<br />
for instance, by the shift away from manufacturing to tourism and transport. The<br />
shift from equality to diversity was similarly influenced by the change in focus within<br />
regional policy in Western Europe, which in the 1980s shifted from regional balance to<br />
regional development programmes.<br />
In the 1980s, national planning discourse was influenced by the neoliberal climate<br />
that swept most of the West. The Keynesian welfare state policy was challenged<br />
under the slogans of de-centralization and modernization. (Jensen & Jørgensen,<br />
2000, p. 34)<br />
It was the view of the government by the end of the decade that the expansion of the<br />
manufacturing industry and population growth had become more equally distributed<br />
within Denmark as a result of policy measures that were adopted during previous years.<br />
As a result of this perception, the need for regional support to sustain peripheral areas<br />
was no longer necessary. This position asserted that pursuing equal development<br />
through a hierarchy of urban settlements would rather imply little diversification<br />
amongst Danish regions and thereby an obsolete strategy for regional development.<br />
Therefore, in support of the new diversity and internationalization agenda, the liberal–<br />
conservative coalition government established Copenhagen to be the metropolitan<br />
centre upon which the country would rely on to meet its redefined national goals<br />
(Ministry of the Environment, 1989, p. 34). This assertion was equally sustained by the
Understanding the Reorientations and Roles of Spatial Planning 1375<br />
growing awareness of Greater Copenhagen’s significant economic decline and high unemployment<br />
rates.<br />
In sum, national spatial planning in the 1980s underwent a transition period that, to<br />
some extent, lacked a defined and consistent pattern. While the beginning of the 1980s<br />
saw the culmination of a long-term planning exercise that was carefully advanced for<br />
several decades, the end of the 1980s witnessed the rise of a competitiveness-based<br />
approach to engage in development. This shift signalled the possibility for spatial planning<br />
to adopt an entirely different role influenced by neoliberal thinking.<br />
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The 1990s: Appropriate Development and Europeanization<br />
Spatial planning in Denmark underwent a drastic reorientation both in its contents and processes<br />
during the 1990s. By highlighting “integration” as its main keyword, the 1990<br />
national planning report entitled “The contribution of planning to a better environment”<br />
signalled an imminent policy shift that emphasized the need to integrate environmental<br />
considerations into all decisions (Ministry of the Environment, 1991, p. 6). More<br />
notably, however, Danish national planning policy placed strong emphasis on the<br />
spatial restructuring of the country through the promotion of urban competitiveness<br />
with a European orientation. Based on the planning law reforms, a single Planning Act<br />
was amended by Parliament in 1991, which came into force in 1992 (CEC, 1999,<br />
p. 19). The strategic influence put forward by the 1989 national planning report can<br />
already be perceived in the Act’s first chapter:<br />
This Act especially aims towards: appropriate development in the whole country and<br />
in the individual counties and municipalities, based on overall planning and economic<br />
considerations .... (Ministry of the Environment, 1992)<br />
While the term “appropriate” can lead to rather ambiguous interpretations, the most<br />
obvious one can be easily inferred to match the liberalization and competitiveness<br />
agendas and tendencies in European urban planning at the time (Amin & Thrift, 1995;<br />
Healey et al., 1995; Newman & Thornley, 1996). Along these lines, the 1992 national<br />
planning report “Denmark towards the year 2018” introduced new spatial considerations<br />
based on promoting the Øresund region as the leading urban region in Scandinavia while<br />
positioning Copenhagen at centre stage under a European focus. In addition, there is a<br />
focus on placing other Danish cities “as a force for development” by linking them to international<br />
transport axes. In this sense, Denmark’s four largest cities were projected as urban<br />
regions with transnational relationships, while smaller urban regions were promoted as<br />
areas with specialized international potentials (Ministry of the Environment, 1992)<br />
(Figure 8).<br />
Based on the concept of national centre, the report suggests that networks between<br />
smaller cities and towns at the national and regional level can strengthen the competitiveness<br />
potential of Danish cities in Europe. This is a clear example of a former spatial<br />
concept being adapted to the new agenda for international development put forward by<br />
the government.<br />
The 1992 (national planning) report is the first example of urban networks introduced<br />
in spatial planning policy (...) where 3 or 4 cities of almost the same size
1376 D. <strong>Galland</strong><br />
are trying to network and specialize under no hierarchy. So one might say that the<br />
new urban pattern is to adopt a more networked approach. (Nielsen, 2010a,<br />
Planner, Spatial Planning Department, Ministry of the Environment)<br />
The cities in Denmark should increasingly direct their attention towards Europe<br />
and consider their development potential in an international context. All of<br />
Denmark has a stake in striving towards simultaneous development in: Greater<br />
Copenhagen and the Øresund region, the international metropolis; the large cities<br />
in Denmark: the largest urban regions with substantial transnational relationships;<br />
and smaller urban regions with specialized international potential. (Ministry of<br />
the Environment, 1992, p. 26)<br />
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The spatial structuring of Denmark in the future Europe depicted in this national planning<br />
report was thus characterized by market-oriented and polycentric growth agendas.<br />
This development reorientation was evocative of an entirely new way of understanding<br />
spatial planning as a whole. However, despite this emerging trend, important national<br />
regulatory measures were also implemented for the time being. For instance, a national<br />
Figure 8. Spatial development perspective in the 1992 national planning report “Denmark towards<br />
the year 2018” showing theDanishcities from an international perspective. Emphasis is placed on<br />
Copenhagen and the Øresund as the leading urban region in the Nordic countries (Ministry of<br />
Environment, 1992, p. 15).
Understanding the Reorientations and Roles of Spatial Planning 1377<br />
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planning directive aimed at safeguarding the coasts was introduced in 1991 and<br />
implemented as an amendment to the Planning Act in 1994. Another relevant amendment<br />
to the Act was the establishment of retail trade provisions in 1997, which banned largescale,<br />
out-of-town retail development (Sørensen, 2004). Both amendments resulted in<br />
the creation of national planning directives, which became legally binding for regional<br />
and local authorities.<br />
The 1997 national planning report “Denmark and European spatial planning policy”<br />
confirmed Denmark’s position in European planning policy. It focused on three main<br />
policy areas: a balanced and polycentric urban system; equal access to infrastructure<br />
and knowledge; and the development and protection of natural and cultural heritage<br />
(Ministry of Environment and Energy, 1997, p. 13). Environmental impact assessment<br />
as a method was introduced by this report, thereby placing environmental sustainability<br />
at the core of individual policy decisions. These objectives also matched the evolving<br />
work and agendas of two major international programmes—the ESDP and the Vision<br />
and Strategies around the Baltic Sea (VASAB)—in which Denmark played an important<br />
role. Notably, new spatial concepts stemming from the ESDP were adopted and merged<br />
with the spatial logic at the time (Figure 9).<br />
Also in this report, the original idea regarding urban networking became more solidly<br />
defined in the form of so-called urban clusters, wherein several town and city networks<br />
were proposed following a bottom-up approach. 4 It was highlighted that such networks<br />
could potentially adopt a “national centre status” to generate a better geographical equilibrium<br />
(Ministry of Environment and Energy, 1997, p. 56). Cooperation and coordination<br />
became the catchwords to consolidate urban networks into national centres. While this<br />
report stressed that the conditions for commercial and industrial development were to<br />
be guided by globalization and international competition, it was still based on the old<br />
pattern of urban hierarchy. This meant that local and regional planning functions remained<br />
unchanged. However, to implement major projects and to promote particular trends in<br />
specific locations, the national scale made an increasing use of national planning directives<br />
(Enemark & Jørgensen, 2001).<br />
A new spatial development position at the national level was thereby perceived not only<br />
through the emphasis placed on globalization in the 1997 national planning report, but also<br />
Figure 9. The integration of former and newer spatial notions in the 1997 national planning report<br />
“Denmark and European Spatial Planning Policy” (Ministry of Environment and Energy, 1997,<br />
pp. 56–57).
1378 D. <strong>Galland</strong><br />
in the promotion of business development at the core of spatial planning as highlighted in<br />
the draft version of the 1999 national planning report.<br />
Both in Denmark and abroad there is a tendency for economic, political and cultural<br />
influences and increased globalization to result in greater decentralized involvement,<br />
which creates new cross-border contacts and decision-making structures.<br />
(Ministry of Environment and Energy, 1997, p. 11)<br />
Spatial planning can play an active role in promoting business development.<br />
Some counties and municipalities in Denmark are already making this happen.<br />
(Ministry of Environment and Energy, 1999)<br />
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The 2000s: Balanced Development and Differentiation<br />
The beginning of the century brought along a new planning orientation that went beyond<br />
internationalization and the establishment of a comprehensive urban system with Copenhagen<br />
as the crucial economic and geographical core for development. The 2000 national<br />
planning report “Local identity and new challenges” set out the idea of pursuing regional<br />
development and spatial planning upon the basis of a new collaborative fashion geared<br />
towards cross-sectoral ambitions and partnership structures. National planning throughout<br />
the first half of the 2000s took again on the notion of balanced development albeit this time<br />
in accordance with a rather different frame:<br />
Closer interaction between business development and spatial planning can both<br />
strengthen strategies for business development and ensure spatial planning is<br />
more dynamic and oriented towards the future (...) Balance can be based on the geographical<br />
development of business. (Ministry of the Environment and Energy, 2000,<br />
pp. 6, 8; emphasis added)<br />
While building upon the European spatial recommendations established earlier and in a<br />
new attempt to pursue balance, the first Danish national planning report of the decade was<br />
also explicitly oriented towards spatial economic development and regional policy. Particular<br />
emphasis was placed on new cross-sectoral interactions with the transport and<br />
environment sectors whereby the government’s Industrial and Urban Policy Committee<br />
played an important role. Another example was the close cooperation between the Ministry<br />
of Environment and the Ministry of Trade and Industry. The latter produced two<br />
reports, “The Danish business policy” (Ministry of Trade and Industry, 1998) and<br />
“Report on regional business policy in Denmark” (Ministry of Trade and Industry,<br />
2000), which correlate with the 2000 national planning report in their scope.<br />
The implementation of the alluded balanced development led to the consolidation of<br />
two more national centres based on polycentricity, namely, the Triangle Area and the<br />
Midwest Region. The former urban hierarchy terminology was still in use as illustrated<br />
by the term “national centre” and its adaptation to the new European phrase “city<br />
network”. The fact of establishing such centres in the Jutland peninsula can be interpreted<br />
as an attempt to make up for the sole emphasis placed on Copenhagen and the Øresund<br />
during previous years (Figure 10).<br />
In 2003, a new national planning report entitled “Balanced development in Denmark—<br />
What needs to be done?” highlighted the need to employ spatial planning as a tool to attain
Understanding the Reorientations and Roles of Spatial Planning 1379<br />
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Figure 10. The 2000 national planning report “Vision for 2025” showing national centres and their<br />
zones of influence (Ministry of Environment and Energy, 2000, p. 15).<br />
balanced development. In doing so, an agenda on cooperation and regional development<br />
was particularly advanced, including issues such as the need to secure flexible regions<br />
while developing new partnerships to uphold regional growth. The notion of flexibility<br />
was put forward from the perspective of transcending administrative boundaries.<br />
The aim is to promote growth and sustainable development in each region by starting<br />
with the region’s strengths, special qualities and competencies and the local and<br />
regional objectives and strategies ... Improving the balance of development in<br />
Denmark requires new initiatives. This requires new forms of partnership and<br />
attempts to create a new basis for regional development. (Ministry of the Environment,<br />
2003, pp. 5, 9)<br />
The report reframed former spatial concepts in consideration of the new business development<br />
agenda. For instance, the term “national centre” was rephrased into “national<br />
centre regions” to denote the multiple services that these larger areas could potentially<br />
offer to businesses. Moreover, the report drew attention to promoting business clusters<br />
in areas that evidently did not match the boundaries of counties and municipalities.<br />
Maps of this kind reflected an increasing need to define new spatial logics at the national
1380 D. <strong>Galland</strong><br />
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Figure 11. Spatial development viewed in terms of national centres and business clusters (Ministry<br />
of the Environment, 2003, pp. 7, 9).<br />
level that could adequately fit the growth-oriented agenda of the liberal-conservative<br />
coalition government at the time (Figure 11).<br />
The last radical shift in Danish spatial planning was linked to the enactment of a new<br />
local government reform. Effective 1 January 2007, this structural reform brought along<br />
a radical reconfiguration of the political and administrative map of Denmark. The previous<br />
271 municipalities were merged into 98 larger units, while the former 14 counties were<br />
abolished and transformed into 5 administrative regions. An important outcome of this<br />
reform was the creation of larger municipalities by increasing their number of inhabitants. 5<br />
In terms of planning practice, the reform implied that the former counties’ tasks and<br />
responsibilities were transferred to both national and municipal authorities. The new municipalities<br />
acquired responsibilities for town and country land-use planning while the<br />
Danish Ministry of the Environment created seven environmental centres scattered in<br />
different parts of the country to ensure the realization of national planning interests<br />
(Ministry of the Environment, 2007). 6 In turn, the new regions were left with no<br />
decision-making authority as to what regards planning matters (<strong>Galland</strong>, forthcoming). 7<br />
Being considerably influenced by the structural reform, the 2006 national planning report<br />
“The new map of Denmark—Spatial planning under new conditions” clearly positioned<br />
itself in accordance with globalization. The report thereby stressed the need to renew<br />
spatial planning as a prerequisite to pursue the growth and competitiveness demands<br />
posed by such a development trend. In responding to these challenges, the report highlighted<br />
two metropolitan regions (circled in the map below): to the right, Greater Copenhagen<br />
and the Øresund region (including the north-eastern part of Zealand), and to the left the<br />
Eastern Jutland region, consisting of multiple cities along a single urban corridor. This<br />
outcome can be interpreted as Denmark’s new attempt towards creating stronger and functional<br />
urban regions to allow the country to compete in a globalized world (Figure 12).<br />
The 2006 report adopted a new development orientation based on differentiated spatial<br />
planning. The idea was to make use of spatial planning as a platform and strategic tool to<br />
pursue local development in accordance with regional strengths and potentials. In doing<br />
so, five new “settlement regions” were put forward strategically. These regions included<br />
the two metropolitan regions mentioned above plus the region of Zealand, as well as
Understanding the Reorientations and Roles of Spatial Planning 1381<br />
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Figure 12. Settlement and geographical features of Denmark’s new five administrative regions,<br />
illustrated in the 2006 national planning report “The new map of Denmark” (Ministry of Environment,<br />
2006, p. 15).<br />
designated town regions and small-town regions. The differentiated spatial planning<br />
approach was thereby pointed towards new national priorities for each settlement<br />
region. These priorities have been followed up by state initiatives aimed at fostering dialogue<br />
between municipal and regional councils, and the Ministries. Strong emphasis was<br />
thus placed on the need to establish multi-stakeholder dialogue-oriented partnerships in<br />
every settlement region to generate ad hoc frameworks for development. In other<br />
words, the idea behind these new dialogue projects was to generate innovative strategies<br />
with a regional character through particular governance arrangements.<br />
The national priority for Greater Copenhagen was to ensure that spatial planning<br />
strengthened its international competitiveness. The state thereby put forward initiatives<br />
that promoted municipal and state mixed working groups to address development potentials<br />
in Greater Copenhagen (Ministry of the Environment, 2006). However, the creation<br />
of a planning directive (discussed below in this section) for the development of the whole<br />
area seemed to have lessened the continuity and impact of these initiatives. Furthermore,<br />
the national priority for Eastern Jutland aimed at establishing an overall urban structure<br />
and a coherent landscape between towns, while that of Zealand aimed at developing a<br />
well-functioning urban structure in relation to transport infrastructure. As of late 2010,<br />
the process of the Eastern Jutland initiative has not generated any specific strategy.<br />
However, in Zealand, the municipalities, the region and national authorities have all<br />
agreed to put forward a development vision where the region has been portrayed as a commuting<br />
hinterland for Greater Copenhagen (Nielsen, 2010b).
1382 D. <strong>Galland</strong><br />
The creation of settlement regions also implied that former spatial logics based on the<br />
urban hierarchy concept were totally discarded. This signalled the end of the hierarchical<br />
urban settlement pattern that had governed spatial planning in Denmark since the post-war<br />
era. The following quote shows the logic behind this relevant shift:<br />
Our research showed us that there was a growing settlement pattern in the east part<br />
of Jutland and in Zealand. Especially in Eastern Jutland it was clear that there was a<br />
more functional dependence—there was a sort of a “functional million city” from<br />
Randers to Fredericia. So we wanted to build on a discussion of how we could<br />
drop the urban hierarchy system. We found it old-fashioned (...) so now we<br />
could focus on the development of cities and the networks between cities.<br />
(Nielsen, 2009, Former Head of Planning, Spatial Planning Department, Ministry<br />
of the Environment)<br />
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Regulatory interventions during the 2000s significantly decreased as compared with the<br />
use of planning directives throughout the 1990s. However, an amendment to the Planning<br />
Act created an unprecedented national planning directive for Greater Copenhagen entitled<br />
Finger Plan 2007. Building on the finger city structure originally put forward in 1947, the<br />
directive was developed to regulate land use within the 34 municipalities that comprise the<br />
metropolitan region. This implied regulating areas for urban development and regeneration,<br />
new transport infrastructure corridors, green areas and recreational uses (Ministry<br />
of the Environment, 2007, pp. 14–15). Given its statutory nature, this directive yielded<br />
stronger legal instruments to counteract urban sprawl as compared to the regional plans<br />
that formerly guided the development of Greater Copenhagen. 8 As of today, no directives<br />
of the kind have been developed for any other urban area in Denmark.<br />
The 2010s: An Undefined Development Orientation<br />
The beginning of the decade has been marked by the publication of a new national planning<br />
report, which for the most part embarks upon the state of affairs of the country’s<br />
nature, its environment and issues such as climate and energy (Ministry of the Environment,<br />
2010). The report is not positioned with respect to any particular developmental<br />
tendency as former national planning reports were. Spatial planning aspects such as the<br />
settlement patterns and the national priorities emphasized in 2006 in “The new map of<br />
Denmark” are barely followed up. For instance, the two metropolitan regions that were<br />
projected back then are only mentioned in terms of environmental protection and some<br />
infrastructure upgrades. Neither visions nor specific strategies are presented in the new<br />
report. Most notably, overall, no maps are displayed for the first time in the history of<br />
Danish national spatial planning. Similarly, projections and potential implications about<br />
the current geographical situation of the country almost go missing. The report thereby<br />
clearly breaks away from the differentiated spatial reasoning of previous planning<br />
exercises.<br />
Several organizational changes that took place within the Danish Ministry of the<br />
Environment towards the end of the 2000s seemingly account for the above-mentioned<br />
policy shifts. Spatial planning tasks were transferred to a new entity created within the<br />
Ministry after the municipal reform, namely, the Agency of Spatial and Environmental<br />
Planning (By—og Landskabsstyrelsen). Notably, the Spatial Planning Department,
Table 4. Chronology of relevant policies influencing spatial planning at in Denmark the<br />
national level<br />
National planning policy<br />
Understanding the Reorientations and Roles of Spatial Planning 1383<br />
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1. Zone plan for Denmark (1962)<br />
2. Regional planning and regional divisions (1966)<br />
3. National and Regional Planning Act (1973)<br />
4. National planning reports (1975–1979)<br />
5. Municipal Planning Act (1977)<br />
6. Report on the future urban settlement pattern (1979)<br />
7. National planning reports (1980–1991)<br />
8. Planning Act (1992)<br />
9. National planning report (1992)<br />
10. Planning directive in 1994: Coastal directive<br />
11. Planning directive in 1997: Planning of retail trade<br />
12. National planning report (1997)<br />
13. National planning report (2000)<br />
14. National planning report (2003)<br />
15. National planning report (2006)<br />
16. Planning directive in 2007: Copenhagen Finger Plan<br />
17. National planning report (2010)<br />
which for years had been part of the central administration in the Ministry, was reduced to<br />
an office in this agency whose mandate mainly relates to the protection of nature and the<br />
promotion of environmental quality.<br />
In view of recent policy and institutional changes, national spatial planning in Denmark<br />
is likely to continue aligning with environmental sustainability agendas for the most part.<br />
Issues such as ecosystem protection and greenhouse gas emissions from transport will<br />
undoubtedly remain high on the Danish government’s agenda, particularly in times<br />
where climate change discourses are at centre stage. However, an apparent trade-off stemming<br />
from this scenario is that the sole focus on environmental matters could yield a deficit<br />
of comprehensive societal development policy. In other words, while this scenario implies<br />
that national planning stays put as a land-use planning instrument for specific sectoral planning<br />
policies (i.e. energy, nature conservation and water resources), it also contends that<br />
national planning ceases to deliver more integrated development strategies. Thus, by<br />
excluding social and economic development matters, this scenario suggests that decision<br />
makers currently perceive a lessened need for comprehensive spatial planning.<br />
Furthermore, regardless of the government in turn and the institutional arrangement in<br />
place, an alternative future scenario would consist of readopting strategic spatial planning<br />
policies and planning directives to bridge the gap that was left by abolishing comprehensive<br />
regional planning after the municipal reform. While it may still be too early to determine<br />
the magnitude of such a gap and the implications that it might deliver, the probable<br />
need for more functional physical planning in specific parts of the country would entail<br />
that national spatial planning policy regains clout in some years’ time.<br />
In closing this section, Table 4 summarizes the whole range of national planning policies<br />
that have been generated in Denmark since the 1960s. Based on these policy events and<br />
their underlying processes, the next section will attempt to describe the specific roles<br />
played by spatial planning in catering for development in Denmark throughout those years.
1384 D. <strong>Galland</strong><br />
Characterizing the Roles of Spatial Planning in Denmark<br />
The preceding section provided an in-depth explanation concerned with how national<br />
planning policy has evolved in Denmark from its origins. This section qualifies and<br />
relates such historical events back to the different roles that spatial planning tends to<br />
assume. It is argued that the traditional steering role of spatial planning was key in the<br />
development of the country throughout several decades, most notably during the 1970s.<br />
Moreover, it is shown that spatial planning has played balancing and strategic roles<br />
throughout different timeframes during the 1990s and 2000s. The last part of the<br />
section provides a synthesis that illustrates the existing correlation between spatial planning<br />
roles and development reorientations in accordance with the case of national planning<br />
policy in Denmark.<br />
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The Steering Role of Spatial Planning<br />
Resembling several other European countries, the traditional role of spatial planning at the<br />
national level in Denmark consisted of guiding spatial development by means of policy<br />
instruments implemented by different tiers of government (CEC, 1997, 1999). Hence,<br />
as a policy tool, national planning was conventionally aimed at allocating public sector<br />
investment and social welfare resources between Danish regions. The 1950s “unbalanced<br />
Denmark” discourse that derived from the escalating socio-spatial side effects of rapid<br />
economic growth experienced exclusively in limited parts of the country can be regarded<br />
as the main cause behind the institutionalization of spatial planning.<br />
During the 1960s, the steering role of spatial planning is illustrated by its land-use and<br />
spatial coordination tasks. Altogether, these functions generated physical planning exercises<br />
concerned with the reorganization of the national territory to achieve a more even<br />
spatial distribution of economic growth. Based on such plans and by means of an “equal<br />
development” discourse, spatial planning during the 1970s continued to address issues<br />
such as the equal distribution of socio-economic activities and investments, and the promotion<br />
of a uniform coverage of service provision throughout the whole country. In addressing<br />
specific inequality issues, the state acted as the provider of welfare services by seeking<br />
the even distribution of industry, population and infrastructural investments across<br />
Denmark.<br />
Furthermore, the establishment of ad hoc planning institutions, the consolidation of a<br />
national planning act based on the principle of framework control, and the creation of<br />
national planning reports are all indicative of the steering role of spatial planning<br />
during the 1970s. The decentralization of planning tasks to counties and municipalities<br />
generated by the structural reform is yet another steering example. Moreover, the urban<br />
hierarchy pattern upon which national, regional and local centres would later become<br />
established can be understood as the physical manifestation of the steering role.<br />
During the 1980s, spatial planning continued to adopt a steering role by focusing on equal<br />
development albeit this time under the responsibility of the counties. The destabilization of<br />
the state as the main actor in charge of political and economic coordination resembled what<br />
had occurred in other European countries during the 1970s. Even while the goal of equality<br />
became more difficult to attain due to pressing socio-economic issues, no major development<br />
reorientation was conceived at the national level. The role of spatial planning in
Understanding the Reorientations and Roles of Spatial Planning 1385<br />
attempting to manage development from its inception until the late 1980s is thus chiefly<br />
characterized by similar spatial selectivity mechanisms and policy discourses.<br />
As compared to these decades, the steering role of spatial planning considerably diminished<br />
from the 1990s onwards. The “diversity” discourse of the late 1980s coupled with the<br />
“appropriate development” one that originated from the Planning Act in 1992 signalled the<br />
birth of new spatial planning functions and thereby the creation of different roles. Since<br />
then, the steering role of spatial planning can be ascribed to the implementation of national<br />
planning directives, which emerged as regulatory means to counteract urban growth.<br />
These comprise the Coastal directive of 1994, the Retail Development directive of 1997<br />
and, more recently, the 2007 Finger Plan directive for Greater Copenhagen. In this<br />
sense, by securing the implementation of national policy objectives in land-use planning,<br />
the steering role of spatial planning during the past two decades has contributed to complement<br />
the roles that replaced it.<br />
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The Balancing Role of Spatial Planning<br />
The balancing role of spatial planning is concerned with the integration of policy agendas,<br />
which basically stem from the sustainability discourse of the late 1980s. The substitution<br />
of the principle of equal development for that of diversity in 1989 signalled a major development<br />
reorientation and, potentially, a new role for spatial planning. This reorientation<br />
was evident in national planning policy when emphasis was placed on environmental considerations<br />
and the need to integrate them in decision-making processes.<br />
While the urban hierarchy pattern that guided territorial development stayed put, the<br />
balancing role considerably replaced the steering functions of spatial planning at the<br />
beginning of the 1990s. The balancing role was explicit in both the 1990 and 1992 national<br />
planning reports through the integration of conflicting objectives. In this sense, the former<br />
hierarchy pattern was adapted to fit both environmental quality and economic prosperity<br />
objectives. National and regional centres were promoted as cities with transnational<br />
relations and international specialties, respectively. At the same time, policies fostered<br />
the protection of coastal zones and determined large natural land areas of national<br />
significance.<br />
Similarly, in 1997, the balancing role continued to flourish through the fusion of<br />
Europeanization and sustainability agendas. Environmental impact assessments were set<br />
forth for every policy goal and strategy, while all development goals were portrayed in<br />
light of environmental sustainability. At the conceptual level, the blending of strategic<br />
spatial concepts (i.e. polycentricity) with former city hierarchy notions (e.g. regional<br />
and local centres) yielded new hybrid concepts such as urban clusters. Although these<br />
new concepts rather fall into the strategic role of spatial planning, this new way of thinking<br />
about territorial patterns and spatial intervention was importantly influenced by the<br />
integration of economic and environmental objectives and hence by the balancing role.<br />
Rather than promoting environmental quality, the balancing role of spatial planning in<br />
managing development during the beginning of the 2000s is characterized by the need to<br />
attain balance through business development. This is clearly illustrated by the national<br />
planning reports published in 2000 and 2003. As these two reports centre on balanced<br />
development, the common storyline is that business development should emerge at the<br />
regional level to attain it. This is illustrated by the promotion of inter-sectoral collaboration<br />
and cross-theme integration through new governance structures that facilitate com-
1386 D. <strong>Galland</strong><br />
petitiveness. In the terms of spatial selectivity, this storyline can be interpreted as a scalar<br />
readjustment that contrasts with the centralized approach of the previous decade.<br />
The balancing role of spatial planning is therefore evocative of how the sometimesconflicting<br />
ideological principles of sustainability and competitiveness can be<br />
simultaneously pursued at least through discourse. This situation can be ascribed to differentiation,<br />
where the market is portrayed as an instrument in itself to safeguard welfare.<br />
In closing, spatial planning has played a balancing role to varying degrees for the past two<br />
decades. The integration of policy agendas and the balancing of conflicting objectives sought<br />
by this role seem to have been stronger at the first half of both decades, right before the rise of<br />
strategic spatial planning. However, the balancing role has also been present throughout the<br />
latter half of the 1990s and 2000s through the integration of economic and environmental<br />
objectives in the former, and the increased focus on nature protection in the latter.<br />
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The Strategic Role of Spatial Planning<br />
The strategic role of spatial planning relates to innovative ways of thinking about territories,<br />
all of which go beyond traditional land-use planning and spatial coordination<br />
tools and mechanisms. This occurs, amongst other cases, when trying to make urban<br />
regions more competitive or in seeking to coordinate public policy in particular regions.<br />
In Denmark, spatial planning underwent a radical reorientation towards adopting a strategic<br />
role in 1992. This became evident in the country’s international positioning in the national<br />
planning report of that same year. The positioning of Greater Copenhagen and the Øresund<br />
region as the leading Nordic urban region was the clearest strategic outcome of the government’s<br />
economic competitiveness agenda at the time. This undertaking implied the reconcentration<br />
of economic capacities, advanced infrastructure and new urban developments in<br />
the area. Moreover, a new way of conceiving the spatial relations of the territory, both<br />
inwardly and outwardly, was sought by emphasizing the comparative advantage of city<br />
networks in function of a competitive Europe.<br />
In continuing with this spatial logic, the 1997 national planning report is similarly an<br />
example of the strategic role of spatial planning. In this case, spatial concepts such as<br />
“polycentric development” and “balanced spatial structure” were strategically adopted<br />
to promote the development of urban networks (between district and municipal centres)<br />
and to potentiate the existing national centres in attaining balanced development throughout<br />
the country. Cross-border planning cooperation was also relevant in portraying the<br />
Øresund as an international region. Thus, increased emphasis was placed in developing<br />
cooperation initiatives with Malmö and Skåne in Sweden to secure Copenhagen’s position<br />
as a European metropolis.<br />
Overall, several political, economic and environmental driving forces account for the<br />
shift of spatial planning towards adopting a strategic role in Denmark during the 1990s.<br />
Economically wise, the government’s competitiveness agenda, the widening of economic<br />
relations and the restructuring of production relations (taking into account the need for<br />
Danish cities to acquire new tasks in the international division of labour) seemed to<br />
have influenced the most. Politically, the discourses of a trans-European spatial planning<br />
policy community evidently influenced Denmark, not only in terms of spatial restructuring<br />
within the country, but also outwardly in connection with the Baltic and North Sea regions.<br />
Moreover, environmental driving forces such as the increased awareness to protect the<br />
natural environment and a general concern for a better quality of life influenced the
Understanding the Reorientations and Roles of Spatial Planning 1387<br />
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policy-making process at the time. The constant underscoring of environmental impacts in<br />
planning decisions is indicative of this influence.<br />
The strategic role was also adopted by spatial planning in the 2000s albeit under a different<br />
spatial logic. In line with the 2006 national planning report, the idea behind this shift<br />
suggested that spatial planning be used as a platform and strategic tool to pursue local<br />
development in accordance with regional strengths and potentials. In doing so, five new<br />
“settlement regions” were put forward strategically.<br />
The new territorial logic thereby implied giving up the urban hierarchy pattern as it<br />
clearly interfered with the new differentiated approach that focused on two metropolitan<br />
regions plus one commuting region. New spatial concepts drawn from the ESDP were thus<br />
adopted for these purposes. Firstly, Eastern Jutland is depicted as a “growth corridor” and<br />
thus projected as a functional conurbation where tasks are divided between cities. Secondly,<br />
Greater Copenhagen and the Øresund Region are portrayed this time in connection<br />
with Zealand and thus, arguably, as a “dynamic zone of integration”. This latter concept<br />
would contribute to enhance Greater Copenhagen’s competitiveness positioning, with<br />
Zealand being depicted as a commuting hinterland with a well-functioning urban structure<br />
in terms of transport infrastructure and a coherent labour market.<br />
Based on the above, the strategic role of spatial planning is conceived in two different<br />
ways as far as spatial concepts are concerned. In the nineties, still following an urban hierarchy<br />
logic, polycentricity and the balanced spatial structure concepts yield urban clusters,<br />
national centres and one international metropolis. In the mid-2000s, through a differentiated<br />
spatial logic and a new settlement pattern approach, the growth corridor concept<br />
yields a new metropolis while the dynamic zone of integration concept merges an international<br />
metropolis with a hinterland to strengthen its magnitude and scale.<br />
The strategic character of national planningpolicyincontributingtomanagedevelopment<br />
in the mid-2000s is thus characterized by a renewed positioning on competitiveness, This<br />
undertaking results in the establishment of new conditions for spatial planning as means to<br />
address the challenges of the government’s globalization agenda. In this sense, the urbanregion<br />
is evidently promoted as the dominant scale for socio-economic activities. The strategic<br />
role thereby seems to generate both centralization and decentralization outcomes.<br />
The former is illustrated by the promotion of Greater Copenhagen as a main scale for<br />
socio-economic activities, while the latter is perceived with regards to privileging a new<br />
growth pole in Jutland and also by delegating new planning responsibilities to municipalities.<br />
In sum, the promotion of these two metropolitan regions, the abolition of the regional scale<br />
and the increased usage of “competitiveness” terminology are illustrative of the strategic role<br />
that spatial planning has adopted in the most recent years.<br />
Discussion: Correlating the Roles and Reorientations of Spatial Planning<br />
The sections above show that three different roles emerge with regards to how spatial planning<br />
was pursued through national planning policy in Denmark during the past five<br />
decades. The above interpretation shows that while a steering role prevailed from the<br />
inception of spatial planning until the late 1980s, it has been supplemented to varying<br />
degrees or rather substituted by different roles during the 1990s and 2000s. The analysis<br />
showed that the balancing role of spatial planning was particularly evident during the<br />
beginning of the 1990s and 2000s, being mainly exercised through the integration of<br />
former and newer policy agendas and by mediating conflicting objectives. This role was
1388 D. <strong>Galland</strong><br />
Figure 13. Timeline showing the overall relationship between development reorientations (above)<br />
and spatial planning roles (below) and in accordance with the evolution of national planning<br />
policy in Denmark.<br />
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played not only while formal steering measures were being put into place (e.g. a single<br />
Planning Act and the creation of ad hoc national directives), but also during the establishment<br />
of strategic approaches. In parallel with the balancing role, the strategic role of<br />
spatial planning emerged in the course of the 1990s and then in the mid-2000s as a substitute<br />
of the former steering role.<br />
The recent transition towards strategic spatial planning in Denmark seems to resemble<br />
that of other European countries (e.g. The Netherlands or the United Kingdom) in the late<br />
1990s. However, unlike what may have occurred elsewhere, the Danish case also shows<br />
that regulatory-led planning instruments stay put, arguably as an attempt to control and<br />
counterbalance newer competitiveness-related strategies and agendas. This situation<br />
shows that spatial planning can simultaneously play steering and strategic roles in attempting<br />
to manage development.<br />
Figure 13 shows the existing relationships between spatial planning roles and development<br />
reorientations in accordance with the evolution of national planning policy in<br />
Denmark. The figure suggests that there is predominant role assigned to every particular<br />
development orientation in a given timeframe, notwithstanding that spatial planning could<br />
have also played other roles simultaneously. In this sense, not every major development<br />
reorientation after the 1980s relates exclusively to a unique planning role. For instance,<br />
the steering case of placing directives in the 1990s and in the late 2000s complemented<br />
the leading strategic role pursued at those times. The same could be said about the balancing<br />
role throughout the 1990s with respect to strategic spatial planning.<br />
Finally, in accordance with the latest national planning document, the analysis showed<br />
that there is an undefined development orientation as of the 2010s. This uncertain stance<br />
would initially suggest that none of the three roles of spatial planning as analysed above<br />
relate to it. However, as far as policy contents are concerned, the balancing role of spatial<br />
planning itself would most likely take the lead in the current decade.<br />
Concluding Remarks<br />
The example of national planning policy in Denmark was explored in this paper to show<br />
how spatial planning has assumed different roles in contributing to manage growth and<br />
development in the country throughout time. Based on a proposed multidisciplinary fra-
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mework, the article analysed the different orientations of national planning policy from its<br />
genesis until today. The study showed that the initial consolidation of the planning system<br />
in Denmark and its subsequent implementation were highly dependant on the steering role<br />
that spatial planning mechanisms and practices played in the course of their first three<br />
decades of existence. Moreover, the case also demonstrated that the major development<br />
reorientation of the late 1980s implied that spatial planning adopted a balancing role,<br />
which called for the integration of the sustainability agenda along with steering and strategic<br />
objectives, respectively. Together with the strategic role of spatial planning, this role<br />
has prevailed to varying degrees throughout the following two decades. Finally, the analysis<br />
confirmed that during most of the 1990s and also by the mid-2000s, spatial planning<br />
largely took on a strategic role, which resulted in the establishment of new conditions<br />
as means to address inter alia the challenges of the government’s globalization agenda.<br />
Furthermore, the case of Denmark showed that spatial planning roles are neither<br />
adopted exclusively nor independently from one another. In spite of the fact that a steering<br />
role was solely assumed during the first decades, recent experience has shown that different<br />
roles could be simultaneously adopted regardless of whether they do so in a supplementary<br />
manner or by entirely substituting a former role. In terms of spatial logics<br />
and conceptualizations, the study described how the former urban hierarchy pattern was<br />
linked to the general idea of achieving equal development. This logic was then supplemented<br />
by European spatial concepts concerned with territorial development. In aligning<br />
with a new competitiveness agenda, the urban hierarchy logic and the concepts<br />
ascribed to it came to be replaced by a differentiated planning approach and renovated<br />
spatial concepts that generated a new settlement pattern. Based on these facts, it can be<br />
concluded that shifts in spatial reasoning seem to be inherently linked with particular<br />
development trends that emerge over time. In this case, such tendencies were influenced,<br />
respectively, by national (societal) needs (1960s/1970s) and international growth-oriented<br />
agendas (1990s/2000s).<br />
In closing, the outcome of this case implies that national planning policy has importantly<br />
evolved in function of major economic development tendencies. Taken as a<br />
whole, this study could contribute to inform discussions regarding how spatial planning<br />
is shaped and undertaken in practice. The paper could similarly contribute to inspire<br />
further research that seeks to compare and contrast the orientations and roles adopted<br />
by spatial planning in different parts of Europe.<br />
Acknowledgements<br />
The author would like to thank Niels Østergård, Bue Elkjær Nielsen and Peder Baltzer<br />
Nielsen for providing in-depth insights concerned with the evolution of national spatial<br />
planning policy in Denmark. Two anonymous journal referees have provided very insightful<br />
comments and suggestions in an earlier version of the paper.<br />
Notes<br />
1. Based on his own analysis, Brenner (2004, pp. 479–480) views these configurations as forms of urban<br />
governance, which he classifies in accordance with historical formation periods: Spatial Keynesianism<br />
(early 1960s to early 1970s); Fordism in Crisis (early 1970s to early 1980s); Glocalization Strategies<br />
Round I (1980s); and Glocalization Strategies Round II (1990s and onwards). While a description of
1390 D. <strong>Galland</strong><br />
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these periods is beyond the scope of this paper, the parameters of spatial selectivity underlying them are<br />
useful to explain how spatial planning policy evolved in Denmark since the 1960s.<br />
2. To follow a hierarchical order, CPT takes on the concepts of threshold and range. Threshold is the smallest<br />
market area (in terms of the minimum required population) that is necessary for goods and services to be<br />
provided, while range is the maximum distance that consumers will travel to purchase goods and services<br />
(Christaller, 1966).<br />
3. Urban centres established in 1981 included the following: main national centre (i.e. Copenhagen);<br />
national centres (i.e. Odense and Århus); national centres under development (i.e. Ålborg and Esbjerg);<br />
regional centres (e.g. Frederikshavn and Sønderborg); regional centres under development (e.g. Hirtshals<br />
and Nibe); towns with regional business areas; towns with regional centre areas; and a number of smaller<br />
centre areas (Ministry of the Environment, 1981).<br />
4. Fredericia, Vejle and Kolding comprised the first potential cluster in the so-called Triangle Area. A second<br />
one comprised Herning, Ikast, Hostelbro and Struer in Midwest Jutland; and finally, an array of smaller<br />
towns constituted a third potential cluster, namely, the “Zealand Gate” (Ministry of Environment and<br />
Energy, 1997, p. 56).<br />
5. The Danish government explicitly specified a minimum requirement of 20,000 inhabitants per every<br />
created municipality. This threshold forced rural municipalities, rather than urban ones, to merge. The<br />
new political map of Denmark following the reform was the result of a bottom-up process where municipalities<br />
were free to merge under the condition that the 20,000 threshold was surpassed. In many cases,<br />
rural municipalities amalgamated amongst themselves. This basically meant that the three largest Danish<br />
cities (Copenhagen, Århus and Odense) and most municipalities comprising Greater Copenhagen<br />
remained the same.<br />
6. It is argued that both national and municipal planning became “strengthened”, with 1/3 of the tasks run by<br />
the former counties being passed on to the former and 2/3 to the latter. This calculation is made in accordance<br />
with the total number of civil servants who were actually transferred to such entities (Østergård,<br />
2010).<br />
7. The regions were basically created for health care administration. Their only planning responsibility consists<br />
of preparing regional development plans, which portray “visions” or suggestions for spatial development.<br />
Such plans must comply with business development strategies prepared by Regional Growth Fora.<br />
For a detailed account regarding regional planning shifts in Denmark, see <strong>Galland</strong>, forthcoming.<br />
8. The recently abolished Greater Copenhagen Authority (Hovedstadens Udviklingsråd) prepared the last<br />
regional plan for the area in 2005. The new 2007 directive largely builds on this plan.<br />
References<br />
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