Planning in Divided Cities: Collaborative Shaping of Contested Space

321 Pages·2011·3.31 MB·English

by  Frank Gaffikin

Planning in Divided Cities:
Collaborative Shaping of
Contested Space
Planning in Divided Cities: Collaborative Shaping of Contested Space.
Frank Gaffikin and Mike Morrissey.
© 2011 Blackwell Publishing Ltd. Published 2011 by Blackwell Publishing Ltd. ISBN: 978-1-405-19218-7
Planning in Divided Cities:
Collaborative Shaping of
Contested Space
By
Frank Gaffikin
Institute of Spatial and Environmental Planning, School of
Planning, Architecture and Civil Engineering, Queen’s
University, Belfast
Mike Morrissey
Community Consultant
Thiseditionfirstpublished2011
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Gaffikin,Frank.
Planningindividedcities:collaborativeshapingofcontestedspace/byFrankGaffikin,
MikeMorrissey.
p.cm.
Includesbibliographicalreferencesandindex.
ISBN978-1-4051-9218-7(hardcover:alk.paper)1. Cityplanning–UnitedStates.
2. Cityplanning–NorthernIreland–Belfast.3. Urbanization–UnitedStates.
4. Urbanization–NorthernIreland–Belfast.5. Belfast(NorthernIreland)–Ethnic
relations.6. UnitedStates–Ethnicrelations.I. Morrissey,Mike,1946-II. Title.
HT169.U5G342011
307.1’216–dc22
2010049557
AcataloguerecordforthisbookisavailablefromtheBritishLibrary.
Thisbookispublishedinthefollowingelectronicformats:ePDF[9781444393187];
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1 2011
Contents
Preface and Acknowledgements vii
PARTI INTRODUCTION 1
1 Introduction 3
Setting the Scene 3
Outline of Structure andArgument 5
2 Conflict in theChanging City 13
Forms of Urban Division 19
3 Understanding the Urban 23
Farewell toKeynesian–Fordist Industrialism andWelfarism? 33
Globalisation andNeo-Liberalism 37
Urban RegimeTheory 40
Beyond the First Worldlens 43
Making Sense of the Debate 45
4 The Divided City 53
Introduction 53
Explanations of Division 58
Ethnicity andUrban Conflict 66
Ethno-Nationalist Contest 79
The Stateof Conflict andConflict intheState 82
5 Identity, Space,andUrban Planning 85
Identity andDiversity 85
Multiculturalism andCosmopolitanism 89
Spaceand itsContestations 96
Policyand Planning Responses to Diversity 105
6 Collaborative Planning andthe Divided City 115
Shiftsin Planning 115
The Role of Collaborative Planning 118
Development andDivision 132
PARTII CASESTUDIES 141
7 Development Amid Divisionin US Cities:
The Cases of Pittsburgh, Cleveland, andChicago 143
Introduction 143
Pittsburgh:History of Partnership? 146
vi Contents
Cleveland—‘mistake onthe lake’? 158
Chicago:the ‘spectacular’ City 168
Race andDivision 170
Divided City: Whose Regeneration? 181
8 Contested Space, Contested Sovereignty: The Case of Belfast 197
Introduction: An Unresolved Sovereignty Contest 197
Space andPolitical Violence 203
Residential Segregation and Spatial Deprivation After theConflict 209
Profiling Segregated Spaces 212
Segregation andDeprivation 215
Summarising the Divided City 219
Tackling Division andDeprivation: ADifficult Agenda 220
Community Cohesion andEconomic Austerity 222
Moving Forward: TheRole ofPlanning 224
Facing the Future 228
9 Between Sovereignty andPluralism: Other Divided Cities 231
Divided Country—Divided City:Nicosia 233
Divided Cities in Britain: Oldhamand Bradford 240
Promoting Community Cohesion in Oldham 242
Bradford: From Ethnic to Shared Space? 246
Conclusions 252
PARTIII CONCLUSION 255
10 Planning Amid Division: AWay Forward? 257
Introduction: The Formidable Task 257
TheParadoxes of Peace Building 258
Planning Shared Futuresin Divided Cities 260
TheParadoxes of Planning in Divided Cities 263
TheProblem ofCommunity 265
From Community Development toCommunity Capacity 266
TheRole ofPlanning in Narrowing Contest 270
Implications forPlanning, Governance,andCapacity 272
Final Considerations 275
Bibliography 279
Appendix:Methodology 315
Index 319
Preface and Acknowledgements
Certain terms dominate contemporary social discourse. Among these are:
globalization,diversity,governance,inequalityandsustainability,concepts
thatarecentraltoourconcernsinthisbook.Boththepaceandscaleofsocial
changeacross theworldarepronounced, asis their spatial imprintonplace
and community. This is most evident in large urban settlements. When it
comestoreversingthedebilitiesofde-industrializingwesterncities,therehas
been much debate about the efficacy of not only economic agglomerations,
flexibilities, and creative milieu, but also of social capital, networking, and
inclusive and integrated partnership governance. The relationship among
thesefactorsintheGlobalNorth’sresurgenturbanismismorecomplicated
and differentiated than usually acknowledged. Similarly, the massive urban
changeoccurringintheGlobalSouth,andtherelatedparlousstateofmany
impoverishedsluminhabitants,demandmultifacetedappraisal.Inbothcases,
socio-spatial transformations have generated new inequalities and disloca-
tions, and these have often intersected with old animosities centred on
ethnicity, religion, and nationality. Particularly when combined, the com-
bustible impact of such visceral forces tests the resilience of many cities in
today’sworld.
A central argument in this book is that urban planning and policy are
concernedwiththeshapingofsocialspace,andsuchspaceisattheheartof
manyurbanconflicts,particularlythosethatconnectissuesofterritoryand
identity. Thus, since these public interventions cannot be de-coupled from
thoserelatedtoconflictresolution,theyhavetodemonstratetheirrelevance
todeeplycontestedurbanism.Astheygrapplewiththedifficultlinksamong
inclusion, cohesion, and socio-economic well-being, their agenda has to
prioritise the building of community capacity and connectivity. But, it has
tostartwithacandidrecognitionofthesignificanceofspaceindividedcities,
andoftheimperativetoknitregenerationandreconciliationinthesearchfor
non-violent responses togrievanceandcontest.
Knowledgeproductionisacollaborativerather thansoloproject,andthis
bookowesmuchtotheideasandargumentsofmanycolleaguesinbothcasual
conversationandformalseminar.Includedintheseinfluencesarethestim-
ulating thoughts of friends in the Planning cluster at Queen’s University
Belfast.Inparticular,MalachyMcEldowney,KenSterrett,andBrendanMur-
tagh have been both informative and provocative guides over many years.
Other colleaguesatQueen’sUniversityhave alsocontributed theirappreci-
able scholarship, including Liam O’Dowd, James Anderson, and Dominic
Bryan.Widerafield,RalfBrandinManchesterUniversityandDavidPerryin
theUniversityofIllinois,Chicago,havebothinspiredus,andperspiredwith
us, in many joint research tasks. Beyond academia, many accomplished
viii PrefaceandAcknowledgements
people,withwhomwehaveworkedinthecommunity,voluntaryandpublic
sectorsovermanydecades,havehelpedshapeouranalysis,whileanchoring
our theoretical and conceptual edifices to ‘real world’ problems: Paul Swee-
ney,BrendanBoyle,DuncanMorrow,andJackieRedpath,tonamebutsome.
Finally,the supportand forbearance of our families have been invaluable.
Part I
Introduction
Chapter 1: Introduction
Outlines the core objective and key arguments, and summarises the key
pointsin each of the chapters.
Chapters 2–6
These chapters form the conceptual and theoretical framework: under-
standing the contemporary city and the nature of its conflicts, and the
specificrolethaturbanplanningandpolicycanplayinaddressingproblems
of division.
Chapter 2: Conflict in the Changing City
Explainshowtheurbanischanging—essentiallyhowtheglobalisbecoming
moreurbanandtheurbanmoreglobal,andtheimplicationofthesechanges
for conflict incities.
Chapter 3: Understanding the Urban
The key conceptual and theoretical debates in urban studies over recent
decades, and where this leaves our understanding of what is happening in
the urban arena ata global level.
Chapter 4: The Divided City
Varioustheoriesandinterpretationsaboutthenatureof’thedividedcity’and
why theremay be a proliferation ofsuchcontested cities in the future.
Chapter 5: Identity, Space, and Urban Planning
A more detailed look at the links between identity formation, cultural
collision,protectionistviewsofterritory,andurbanspaceinatransnational
andcosmopolitan context.
Planning in Divided Cities: Collaborative Shaping of Contested Space.
Frank Gaffikin and Mike Morrissey.
© 2011 Blackwell Publishing Ltd. Published 2011 by Blackwell Publishing Ltd. ISBN: 978-1-405-19218-7
2 PlanninginDividedCities:CollaborativeShapingofContestedSpace
Chapter 6: Collaborative Planning and
the Divided City
Giventhisspreadoftheurban,andgrowthofcityconflicts,whatistheroleof
planningand policy in addressing these divisions?
1
Introduction
Setting the scene
Thespatialfocusofthisbookisontheurban,thesettlementformwhichmost
ofhumanitynowinhabits.Whiletheconceptualfocusison‘dividedcities’,it
acknowledgesthatinonesenseallcitiesaredivided,inthattheir‘publics’and
stakeholdershavedifferentialaccessandvestedinterest,markedbydistinc-
tionsofclass,ethnicity,andgender.Accordingly,itdistinguishesbetweentwo
mainformsofurbancontestedspace.Oneiswheredisputeandantagonism
relatetoissuesofpluralism,andconcernrivalriesaboutimbalancesinpower,
welfare and status among distinctive social groups. The other kind is about
sovereignty, where there are similar pluralist disputes about equity, rights,
and social entitlement, but these are interwoven with an ethno-nationalist
conflict about thelegitimacy of the state itself.
AnexampleoftheformerexploredhereisChicago,adeeplysegregatedcity,
where race is a stark fault line in both the city’s historical narrative and
contemporary discourses, and has been persistently seminal in the configu-
ration of its social space. So, for instance, when people think of the black
Americanghetto,Chicagocomesreadilytomindasthehomeofitsepitome.
By contrast, Belfast typifies the second form of divided city. In a strange
contortion, they are both crucibles and instruments in the overall contest
about nationality in these troubled lands. Here, the manifesto of the com-
batantgroupthatclaimstobesubjecttosuppressionandconquest(Catholics/
Nationalists/RepublicansinBelfast)isnotmerelyconcernedaboutequityand
securitywithregardtothedominantgroup(Protestants/UnionistsinBelfast).
Rather,theirimmediateequalityagendacanbeinterpretedasatransitional
‘Trojanhorse’politicsunfoldingovertimeintothefundamentalobjectiveof
whattheyproclaimasaliberatedhomeland.Inshort,particularconflictsin
Planning in Divided Cities: Collaborative Shaping of Contested Space.
Frank Gaffikin and Mike Morrissey.
© 2011 Blackwell Publishing Ltd. Published 2011 by Blackwell Publishing Ltd. ISBN: 978-1-405-19218-7