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Masa Djordjevic First Annual Doctoral Conference of the Department of Political Science at CEU April 13-14, 2006
Systemic reforms from the socialist regime towards free-market democracies in the 1990s, produced a radically new context and challenges of collective action for the former socialist cities of Central Eastern Europe. New local public leaders, for the first time democratically elected, were lacking experience in running a fragmented capitalist city. The strategic planning paradigm and methodology entered the practice of city management in the Western European and American cities since the 1980s. It was transferred to the postsocialist cities by the international organisations assisting the reforms, and by the inter-city exchange of experience with Western city leaders and local administrators. One of the dominant aspects of the rationale for undergoing strategic planning is that, as an integrated policy making activity, it is an instrument for building effective local governance in order to overcome the collective action problem that cities face due to economic and political globalisation. The role of this paper is to explore the claim that strategic planning is an opportunity for transitional cities to move faster towards effective urban governance on the example of the city of Warsaw. The link between the institution building aspect of strategic planning and the effective institution building nature of governance processes will be explored through two dominant concerns of both the planning and urban governance literature: the ‘effectiveness’ concern and ‘public participation’ concern. The paper will explore the effects of political deliberations during the strategic planning process in Warsaw on the urban governing arrangement initially characterised as local government rather than governance. The main focus of the empirical research is on how implementation and public participation are dealt with and coordinated during the strategy elaboration. Three possible scenarios are suggested and tested.
Table of Contents
1 INTRODUCTION: STUDYING URBAN GOVERNANCE IN POST-SOCIALIST CITIES.....3 2 MAIN THESIS AND RESEARCH QUESTION...............................................................................5 3 CONTEXTUAL VARIABLES............................................................................................................8 3.1 SOCIO-ECONOMIC INDICATORS AND INTERNATIONALISATION OF THE CITY’S ECONOMY.....................................8 3.2 INTERGOVERNMENTAL RELATIONS...........................................................................................................9 3.3 WORKINGS OF THE LOCAL POLITICAL SYSTEM.........................................................................................11 3.4 THE ROLE OF THE CIVIL SOCIETY..........................................................................................................12 4 CHRONOLOGY OF PLANNING EVENTS...................................................................................14 4.1 FIRST ELECTION PERIOD 1990-1994....................................................................................................14 4.2 SECOND ELECTION PERIOD 1994-1998.................................................................................................15 4.2.1 Warsaw Development Strategy Until the Year 2010............................................................16 4.2.2 The Study of Conditions and Directions of the Spatial Development of Warsaw Capital City ........................................................................................................................................................21 4.3 THIRD ELECTION PERIOD 1998-2002...................................................................................................29 4.4 FOURTH ELECTION PERIOD 2002-2006.................................................................................................32 4.4.1 Strategy for the Development of the Capital City of Warsaw until 2020.............................32 4.4.2 Preparation of the new Study of conditions and directions for spatial development of the City of Warsaw ..............................................................................................................................38 5 CONCLUSION: CHARACTERISTICS OF THE POLITICAL PROCESS OF STRATEGIC PLANNING IN WARSAW...................................................................................................................39 5.1 THE NATURE OF THE STRATEGIC PLANNING PROCESSES IN WARSAW...........................................................39 5.2 EFFECTS OF THE STRATEGIC PLANNING ON THE LOCAL GOVERNING ARRANGEMENT........................................40 5.3 CONTRIBUTION OF STRATEGIC PLANNING TO THE DEVELOPMENT OF EFFECTIVE URBAN GOVERNANCE?..............43 REFERENCES......................................................................................................................................43
Introduction: Studying urban governance in post-socialist cities
Indeed, one of the key questions challenging students of governance is to clarify the role of government in the process of governance. Understanding this process requires an understanding of what drives institutional design and institutional change in the urban political milieu. (Pierre 1998: 6; emphasis is mine)
My basic interest behind undertaking research on the politics of urban planning in the post-socialist transitional city of Warsaw was to understand what drives institutional change in such an urban political milieu. Decentralisation and local democracy were introduced in Poland for the first time in 1990, and since then cities had to manage both the establishment and autonomous development of a local government system, and deal with immediate wider regional, European and global changes and challenges of operating in a constantly changing external environment. Being challenged on both fronts simultaneously – the first one more internal, local and national, the second more external and global – while learning the basic rules of the governing game was coupled with the challenge of managing policy transfer of discourses and methodologies brought about by international organisations and donors that entered Central Eastern Europe (CEE) in the beginning of the transition from the socialist regime. This radically new context of decentralisation of some government responsibilities to the local level and introduction of the free-market economy led to the fast proliferation of governmental and non governmental players in the everyday running and development decisions of cities. The growing body of literature in urban and local politics has been pointing at the development of local governance arrangements rather than local government in Western European and North American cities since the 1980s. The governance perspective stress the interdependence of a growing number of players in the process of governing cities, blurring the boundaries between the public and private sectors, and thus focuses on the continuous processes of interaction and coordination among actors operating at different institutional and sectoral levels in trying to meet economic, political and social challenges of cities (Rhodes 1997; Stoker 1998; Pierre 1998; Pierre 1999; John 2001; Denters and Rose 2004). My
starting assumption about the governing arrangements in post-socialist cities is that, contrary to this shift towards governance in Western Europe, the initial governing arrangement that was developing and expected to develop (by law-makers, local politicians and public at large) by mid-1990s in post-socialist cities of CEE was a local government arrangement rather than a form of local governance. The reason for this can be found in the strong emphasis on local democracy, local autonomy and values of decentralisation in the political discourse of initial democratic reforms in 1990 in CEE countries, in addition to the factors like no experience with the market economy and private sector actors at the city level, and weak organised interest representation of local social groups. Strategic planning paradigm was one among many new ideas, operating frameworks, methods and techniques promoted by international organisations taking part in the transformation processes in the region. Strategic planning, as a management technique used in the private sector since the 1960s, started being applied and adapted to the public sector in the 1980s for the purpose of envisioning development and guiding future actions of public institutions. It ca be defined as developing frames of reference for future action for the purpose of making the favourable development happen, contrary to being a blueprint for future product of development (Mastop 2000; see also Healey et al. 1997). It came as a reaction to the planning failures of the rational approach to planning, and to the challenges of economic competition and political fragmentation of cities. Due to the fact that so many cities around Europe and beyond have been undertaking strategic planning and management since the 1980s, strategic urban planning seemed to be a particularly useful and eventually indispensable tool for large and necessarily fragmented cities such as Warsaw to reconsider their position, problems and opportunities of development in the new national (intergovernmental), Central East European, European and global environment. Strategic planning paradigm brought about the awareness of the importance of institution-building, namely of the political aspect of urban planning for the purpose of achieving greater effectiveness of plans and greater participation of local stakeholders in the developmental interventions in the city. As such, it is widely viewed as a new policy arena and instrument for integrating policy-making at the city
fast proliferation of the new economic actors through the development of the business sector. various organised social and business interests in order to learn from them. and development of the civil society independent from the government sector. These cities were simultaneously faced with the introduction of the local government system. and involve them in securing the implementation of those programs. which is 5 . A strategic planning process can develop a greater degree of cooperation. and overcoming the collective action problem inherent to the processes of governing fragmented capitalist cities. the basic hypothesis is that strategic planning is an opportunity for transitional cities to move faster towards effective urban governance. In the same manner it can be a tool for involving local citizens. and a sense of mutual accomplishment. 2 Main thesis and research question Having this in mind. new economic conditions of a free-market economy opened to the economic globalisation. In this text I would like to explore the claim that strategic planning can help the city and its local authorities to deal more effectively with these problems and the resulting collective action challenges. This can be explained by a combination of contextual factors that influence the effectiveness of city governing and development processes in the 1990s in former socialist cities of Central Eastern Europe. It can also help linking the city with the wider regional environment.level. it has been difficult to build both effective local governance and government. involve them in the search for the best or most effective developmental programs that match strategic vision and goals. As a policy tool it can help envisioning the city as a collective actor and in that respect deal with urban fragmentation. In this context. strategic planning has a potential of increasing the internal institutional capacity of the local government system and building governance capacity of a network of local public and non-public actors. and strong local leadership for urban development. It can be a powerful exercise for accomplishing integration of the fragmented local public sector and its various policies. Depending on how implementation possibilities and public participation are dealt with during the strategic deliberations and decision-making on developmental priorities. collaboration.
and because of the widespread policy transfer of strategic planning ideas. presented to investors and visitors.particularly significant in the wider European context where the EU policies become an important factor.e. I suggest that strategic planning process can influence the local governing arrangement in three different ways: 1. A shift towards greater involvement of collective interest groups that can secure implementation of programs and projects due to their resources and capacity to influence various aspects of urban development. but also towards greater general public involvement and transparency of the process. towards a governance form? Or was it a step in a long learning process for local public authorities to strengthen the integration and institutional capacity of local government. How has the strategic planning process been organised and used? Has it been used to improve the capacity of the local public sector and local political leaders to deal with the wider society in steering urban development in a preferred direction? Has it involved changes in the institutional setting? Has it produced changes to the existing governing arrangement? Was the change directed towards improving governing capacity. 2. or rather consolidation of the already existing governing arrangement through consolidation of the political elite consisting of local politicians. To explore the effects of political deliberations and negotiations during the strategic planning process on the (development of) institutional relations of urban governance. A shift towards not only interest groups’ participation.e. how has the opportunity been used. I will analyse the developments in city of Warsaw since the beginning of the 1990s. No change can be detected. not governance? Or rather the product is just another document to be used in city-promotion. i. and what are its intended and unintended outcomes? These are important questions because of the big influence of the strategic planning paradigm in the planning and urban policy literature. 6 . The main research question of this paper is how strategic planning paradigm and methodology can affect the governing arrangement and governing capacity in a city. and never used? In general. 3. i. local public administration and planning experts within and beyond the local public sector. put on the website. improving local democracy.
This was also a method used to learn about the way effectiveness of the strategic plans was being understood and how implementation was being considered. Then the details of the ‘thick’ chronology of the planning and relevant political events and developments in the last fifteen years will be given. during the elaboration phase. elaboration. Attempts at securing implementation include looking for partners beyond the public sector. towards more business or non-profit sector involvement). intergovernmental relations. and lead towards greater public ownership of the strategic plan and planned interventions.or project-driven) and that can lead towards a change in the existing governing arrangement (e. I used two basic research techniques: analysis of various available written documents and semi-structured interviews with public officials and planning experts involved or observing the planning processes In the following sections. significance and expectations given to their involvement by those who initiated the process. political deliberations and negotiations. The case study is designed around a chronology and analysis of urban planning and major political events affecting the local conditions and capacity for building effective governance. for building up governance. on the other hand. working of the local political system and the characteristics of the civil society. and their role. and final approval of the main strategic document(s) and other relevant planning documents.e. I paid special attention to the identification of the actors involved in the strategic process. can improve the state of local democracy. i. the case of the city of Warsaw will be presented. Greater participation of citizens. namely socio-economic indicators. Important planning processes and 7 . Considering implementation during the planing process can be a particularly effective activity in terms of extending the institutional capacity for the implementation of objectives beyond the public sector. The main emphasis was put on the initiation.These three scenarios of how strategic planing process can influence local governing arrangements are based on the analysis of how implementation (the effectiveness concern or ‘making things done’) and public participation are dealt with and coordinated during the strategic deliberations and plan elaboration.g. It starts with the information and explanation of the context in which the city has been operating since 1990. It offers a possibility of building long-term coalitions (even if issue. if at all.
main conclusions on the characteristics of the political processes of urban planning in the city will be presented.000 EUR. 44% were active in retail. 8 . With its 1. In this polycentric national context.5% in 2005. a twodecade-long reconstruction process took place. 3. 3 Contextual variables Warsaw is the capital city of Poland. According to the European Cites 1 Warsaw total area is 517 km2. Number of passenger’s cars is 374 per 1000 city inhabitants. and 12% in manufacturing. Finally. It has been slightly loosing population since 1991. even 6 out of 42 above 500.000 people have been coming from the surrounding areas daily to work in Warsaw. The city’s working age population is 75%. In 2005 about 18% of the workforce worked in industry. 1 Unemployment rate was 6.5 million people. a country that has a polycentric structure of cities (with 42 cities above 100. It is situated both geographically and symbolically on the route between Berlin and Moscow. GDP per capita is about 14. More than 20 % of the city’s population has the university degree. 85% of the city was destroyed.7 million inhabitants it is one of the three biggest and only cities (in addition to Budapest and Prague) above one million inhabitants in the post-socialist region usually called Central Eastern Europe. 23 % in banking and finance including business services.000 inhabitants).3% of the Polish population live within the city of Warsaw. In the Second World War. 4. It is also the capital of the biggest country in the region.1 Socio-economic indicators and internationalisation of the city’s economy Warsaw is the centre of the agglomeration of more than 2. 98% of all companies registered in Warsaw are privately owned. compared to over 30% in 1989. Embarking on a market economy has meant a severe shock for Warsaw’s industry. Among them. three times below the national average. In 2000. After 1945.000 inhabitants. more than 30% of all companies in Poland with the foreign capital were located in Warsaw. but the estimate is that about 600.documents will be analysed in depth. It is about three times the national average. including the historical Old Town.
one more municipality was established achieving independence from the rest of the original municipality (the 1990 Warsaw Act allowed the separation). The disputes on how to improve it had begun already a few months after the first local elections [in May 1990]” (Buczek 2001: 6). the richest one had more than six times the income per capita than the poorest one. the structure of the Polish capital was obviously not a good one. in addition to the Executive Board of the capital City of Warsaw. 3. Warsaw came 20th out of 30 European cities in 2005 (up from 26th rank in 2002) as the overall score calculated on the basis of 12 different location factors. “These districts were very much different from each other (regardless from the obvious differences in physical shape of their development): the most populated had nearly nine times more inhabitants than the smallest one. and the Union consisted of eight municipalities until the end of the election term. 9 . where municipalities kept all right and responsibilities as any other gmina in Poland. All districts had their executive boards with mayors on the top. In the beginning of 1993. It created a large 2 The basic characteristics of this first local government system of Warsaw can be summarised quoting the words of a planning expert being the close observer and at one time participant in the City government. The City Council (of the Warsaw Union) was to elect the President of the Union (equivalent to the mayor) and 3 vice-presidents. This new law on the capital city established Warsaw as the Union of seven municipalities of Warsaw. All together 345 councilmen were elected for seven district councils (with extra 28 for the additional one. the eighth). For all who were interested in the problems of Polish local democracy. 4 of them constitute the Executive Board of the Union. In May 1990 the Law on the Administrative System of Warsaw or so-called Warsaw Act was passed after several much drafted versions.2 Intergovernmental relations In March 1990 the newly elected Polish Parliament passed the Local Government Act that started the decentralisation reform by introducing the basic until of local government (gmina in Polish). 2 In March 1994 the new Warsaw Act or the Law on the Organization of the Administrative System of Warsaw was passed by the Parliament.Monitor 2005 by Cushman & Wakefield/ Healey & Baker. The Union had no direct power over its seven municipalities. an annual survey of senior managers and board directors of 500 Europe’s top companies on the best places to locate business. The joint funds of their seven budgets were nearly as big as the budget of the City (in 1993). 28 (later 32) constituted the indirectly elected Council of Warsaw.
but experience has shown that municipalities tend toward self-interest” (Buczek 2001: 9). These eleven municipalities constituted the Union of Municipalities of Warsaw. The total revenues of the City were equal to 60 % of the total revenues of all 11 municipalities (in 1996). and the least populated municipality less than 1% of the population of the whole city. but with their own councils and budgets. Conflicts arise mainly between the City of Warsaw and the various municipalities. “Planning of physical development and general development strategy created conflicts as the city authorities became weaker than during the first term. Conflicts and jurisdictional disputes were generated mainly because the lack of a precise allocation of duties or financing principles. The division was based on a noble assumption that municipalities would act as parts of a whole (caring for their own interests and the city’s interests). 10 . as the city’s municipalities were established by partitioning a physically and functionally integrated entity. in practice this meant that the city of Warsaw had three administrative levels. the Centrum municipality was divided in 7 districts with no legal personality. and between the city and the Warsaw-Centrum Municipality. Conflicts also stem from the imprecisely defined scope of tasks to be performed by the City of Warsaw.central Municipality (Gmina Centrum with approximately 960. So. The Executive Board of the City consisted of the President of Warsaw and his three deputies. On the top of this. i. and introduce some changes at the county level (powiats) did not affect the internal structure of the city of Warsaw. Warsaw’s municipalities have the same authority that all other Polish municipalities have. The new Act created ten municipalities around the Centrum Gmina. of the city of Warsaw. This is problematic.e. The President of the Union is in the same time the mayor of the Centrum Gmina and as such is elected by the Council of the Centrum municipality and automatically becomes the President of the Union.000 people or 58 % of the whole city population). while municipalities became stronger (…) The main problem caused by such a structure of self-government was the lack of appreciation of common goals for the city as a whole. corresponding approximately to the pre-Second World War boundaries of the city of Warsaw (the land of this territory was nationalized in 1945). The new 1998 administrative reform of the country that introduced the regional level of government (voivodships). The smallest municipality had less than 2% of the territory of the city.
the mayor of Warsaw was to be directly elected for the first time since the beginning of decentralisation in 1990. an architect-planner as the first President of Warsaw or the city mayor. Instead. UW had 24. and Warsaw got the new. a coalition of rightist post-Solidarity parties) 40 seats in the City Council. and in March 1999. Pawel Piskorski from the centrist Freedom Union party (UW). For June 1994 local elections. 3. The whole Warsaw became one municipality with the powers of the county (powiat). Internal division on municipalities as defined by the Polish Constitution ceased to exist. the new mayor of Centrum Gmina. the new mayor of Centrum Gmina was elected by the gmina council. the new administrative structure was put in place: the city was divided on 11 municipalities with the Centrum Gmina as the biggest and wealthiest municipality. Another big change came from the 2002 amendment to the Law on elections for municipal councillors that introduced direct elections for mayors (presidents of municipalities) and regional governors (voivod). According to the new law. 2002 newly elected national Parliament (elected in September 2001 after the fourth general elections since the systemic change) passed the new and radically different Act on the Structure of the Capital City of Warsaw. the city is divided in 18 districts that have limited powers and resources. Marcin Swiecicki became automatically the President of Warsaw. 11 . SLD (post-socialist Alliance of the Democratic Left) had 37 seats. and AWS (Electoral Action Solidarity. Swiecicki stayed the city mayor until a short time after the third local elections in 1998.On March 15. The indirectly elected Warsaw City Council elected Stanislaw Wyganowski. and the new local elections immediately followed.3 Workings of the local political system In May 1990 first democratic local elections took place. young and politically ambitious President. after a political crisis. This new law came into force in October 2000. Thus.
It was confirmed by the election results: the new elected mayor was Lech Kaczynski. he stepped down as the President of Warsaw in January 2002. PO 13. central government appointed a commissioner to be at the top of the City administration until the new local elections in 2006. Political fragmentation of the City Council increased from 1998 to 2002 local elections (Swianiewicz and Klimska 2003). In December 2005.1% and in 2002 41. After the new radical administrative reform for Warsaw. in November 2002 for the first time a new mayor of Warsaw was directly elected in local elections. and the City Council was run by PiS and centrist PO. In the fall 2005. Kaczynski run in the presidential elections. and the Centrum Municipal Council elected a new Mayor for the central municipality. and Warsaw citizens punished national parties that were running the city and its municipalities throughout the 1990s. in 1994 local elections turnout was 28. On the same day. especially in Centrum Gmina. Piskorski chose to stay the President of Warsaw. the Polish Parliament separated the roles of the Mayor of the Centrum municipality and the President of the City of Warsaw.1%. LPR (League of Polish Families) 10.4 The role of the civil society 12 . Wojciech Kozak was chosen by the City Council as the new President of Warsaw until the next local elections in the fall 2002. in 1998 42. run by post-socialist SLD and centrist UW in the third election period. by the amendment of the Warsaw Act. SLD has 33 seats. The situation in Warsaw was extremely radicalised after the numerous scandals. and won in the second round. the fifth city mayor in four terms. and Selfdefence party 2 seats in the City Council. PiS 40.3% (Swianiewicz and Klimska 2003). populist right-wing leader of the newly formed and controversial Law and Justice Party (PiS). 3. In terms of the turnout at local elections for the Warsaw City Council. one of the vice-mayors.In 2001. when Kaczynski became the President of Poland. Being elected for the National Parliament. Piskorski stood for the national parliament in the general elections in 2001 on the list of the newly formed Civic Platform party (PO).
do not think of it as very important for their everyday lives. practical experience in community involvement is extremely limited in CEE countries (2005: 123). In his research on the public perception of local government in Poland in general. the issue here is not the strength of civil society as such. but do not care very much about local governments. where 88 per cent of local governments declared contracts with NGOs. In the same study. the representation of collective interests of various segments of the civil society is still weakly developed.4 As an illustration of the general Polish experience of the role of NGOs in local service delivery. CAOs in the Polish municipalities over 50.3 So. This is related to the extremely weak tradition of civil involvement in the public affairs in the socialist time.In spite of the fact that the number of NGOs in the CEE countries is growing. 4 In a study based on the survey of chief administrative officials. and prefer to stay almost entirely uninvolved” (Swianiewicz 2001: 219). in only 4% of larger municipalities in Poland respondents considered that citizens had a big influence in local decision-making. especially at the local level. in 69% there were requests for direct meetings between local officials and group of citizens. 3 13 . and in 25% only small influence (Pop 2005). it does not directly lead to better communication between citizens and local authorities. in 43% there were citizen’s petitions on various local issues. As Swianiewicz pointed out in the recent cross-national study of the complementarily of urban leadership and community involvement. but rather on the existence and quality of local interest representation in the urban setting. and it cannot be fast overcome.000 inhabitants (larger municipalities) reported than in about 41% of those municipalities there were public demonstrations concerning local matters. let alone the city of Warsaw. in 60% of municipalities local government decisions were challenged in a court or at a higher administrative authority. including Poland.3% of larger municipalities citizens had moderate influence. However. emphasis is mine). and in 63% municipalities civil society organisations submitted proposals on some questions of public interest. or even a step further to community involvement into the local decision-making processes. while 37 per cent of Hungarian municipalities also engaged in consultation with NGOs during local decision making” (Pawel 2005: 120. Swianiewicz pointed out that “this picture might be summarised as an sympathetic disengagement – most people like decentralisation. there is very little systematic research done on this aspect of the civil society and its capacity to engage in local politics. The growing number of NGOs does not directly translate into better representation of citizen interests in dealing with local authorities. This is even more evident in Hungary. only “about 44 per cent of Polish local governments contracted NGOs to provide some local services. in 5. Furthermore.
1 Chronology of planning events First election period 1990-1994 The regulations for spatial planning – in the form of the law on spatial planning – did not change in Poland in the first four years of transition from the socialist system. either of the Warsaw Executive Board or the Warsaw City Council” (Buczek 2001: 7-8). It meant that the basic logic and methods of planning kept in planning regulations remained the same as in the centrally planned economy after the initial introduction of the market economy. the Draft Development Strategy of the Warsaw Metropolis was elaborated by the end of May 1994. and in the resolution adopting the plan pointed out at the necessity of the strategic planning for Warsaw. 8 municipalities). though not formalised along any legally binding procedures.e. an urban planning agency Warsaw XXI) were established to produce extensive studies on the development of the city.4 4. (…) In relation to any previous experience concerning socio-economic planning. the public discussions and elements of participation were considerable. few new bodies independent from the city administration (e. The Warsaw leaders of the day were however aware to some extent of the weaknesses of this master plan. The 1984 Physical Planning Act was still effective until the new act in mid-1994 was passed. In September 1992 the Warsaw Council approved the General Development Plan for Warsaw: Warsaw XXI (or the master plan) which development was initiated in the autumn 1991. the Transportation Policy for the Capital City of Warsaw was prepared in the first election period under the leadership of the same deputy-mayor and approved by the new City Council in 1995.g. and the representatives of all municipalities (i. As the document was drafted shortly before the first local democratic government’s term ended. The outcomes of this very first strategic thinking process were “presented during a series of meetings involving the representatives of various political. As a result.5 Contrary to the fate of the first general strategic document. in addition to the Council of Warsaw. Initiated by the city’s deputy-mayor for urban development. social and cultural organisations. it was not formally accepted by any official resolution. 5 14 . professional associations and nongovernmental bodies.
In the meantime.4. the preparation of legally-required document of the Study for Warsaw started before a clear decision on whether or not a Warsaw Development Strategy is needed. In the same time. In March 1996 the competition for the Study for Warsaw was announced. the preparatory works on the city spatial development policy.e. the two documents had been coordinated during the preparation. and the final version of the Warsaw Development Strategy Until the Year 2010 has been approved and put into force by the Warsaw City Council about two weeks before the approval of the final version of the Study of the Conditions and Directions of the Spatial Development of Warsaw Capital 15 . between the announcement of the competition for the Study and the beginning of the planning work. More importantly in the long-run. the Study for Warsaw. i. Nevertheless. city authorities decided to start the strategic planning for the city once again. aborted all work on developing a strategic document for Warsaw. lacking any interest in such an endeavour. In May 1998 the Warsaw City Council approved the Warsaw Development Strategy. Eventually. it was still not known who would be the designers of the Warsaw Development Strategy. In May 1997 the preparation of the Warsaw Development Strategy until the year of 2010 started. the first post-socialist Spatial Planning Act and the Building Act were passed by the Parliament. Regardless of this. In mid-1996.2 Second election period 1994-1998 In July 1994. Warsaw city authorities decided to initiate the preparation of the new planning document defining a spatial development policy of the city as required by the new 1994 Planning Act and called the Study of Conditions and Directions of Urban Development of Warsaw. until 1996 the new City council (elected in 1994). the Warsaw mayor Swiecicki independently published and promoted his own strategy for Warsaw called Seven Priorities of Warsaw. the story about the Strategy preparation should come first. When the expert team responsible for the design of the Study for Warsaw started their work. 6 6 In terms of a logically expected sequencing of planning works. have already started. Preparing the city development strategy has not been a legally required activity for municipalities in Poland. The only exception in term of legal requirements was the City of Warsaw where the 1994 Act on the administrative organisation of Warsaw introduced the requirement to prepare a development strategy for the whole city. and in June the Study for Warsaw. the final preparatory works came about at the same time (during 1997 and early 1998). however. in terms of the sequencing having took place in reality. at the time when city authorities started thinking again about the preparation of the strategy.
negotiating with the authorities of each and every Warsaw municipality (knowing the tendency of a number of them towards independence from the City of Warsaw) during the preparatory phase would make the process troublesome and the finalisation impossible. it was clear that there was not enough time and that the final City Council discussion and approval must have been made before the end of the term. Finally.and not negotiated with Warsaw municipalities. and knowing well the conflict-ridden situation in the Warsaw local political arena. the process of the preparation of the Strategy will be presented first.2. The reason behind these conditions was that given the extremely short time remaining for the preparation of the Strategy. 16 . and finally gave up. on the basis of personal knowledge of available experts and personal connections of the City Board members and officials in the Land Development Department. one by one. there was no competition organised for selecting the expert team who would do the work on the Warsaw Development Strategy. Three different teams.e. However. though one should keep in mind that the commitment to the formulation of a city development strategy came after the preparatory process on the Study for Warsaw started.1. being aware of the previous failed attempts. The City authorities finally agreed with these conditions. were unsuccessfully asked to undertake the work.1 Pre-Preparatory Stage: selecting the chief planners In contrast to the selection of the expert team to prepare the Study for Warsaw. i. the potential choices were made internally.4.1 Warsaw Development Strategy Until the Year 2010 4. Instead. Marek Ziolkowski from Warsaw . They required that the Warsaw Development Strategy they were to prepare be an expert document . Therefore. the fourth attempt was successful.done by experts. Each of them took some time to decide. Although in January 1997 it was set up that officially the Warsaw City council should have been presented with the final version of the Strategy by the end of 1997. Two experts started the work in the beginning of City. until the end of the first half of 1998. the future designers put some conditions before accepting the offer. not politicians . of the fast approaching next local elections.2.agreed in February 1997 to undertake the preparatory work. and two future general designers of the Strategy – Prof. made initial inquiry. Alojzy Zalewski and Prof.
Since the consultation process for the Warsaw Strategy was not defined in the 1994 Act on Warsaw. defining strategic and operational goals and implementation tasks. This process can be divided in two phases: the planning works undertaken by two chief designers. cele strategiczne i operacyjne rozwoju Warszawy oraz zadania . 4. and defining the needs and investment priorities regarding technical infrastructure and potential financial sources” (Warsaw City Hall 1999: 18). preparing scenarios and forecasts of the city’s economic development. forecasting fiscal revenues available to local authorities.2 Preparation of the Strategy. It has been also published in a separate report The Conditions. The first stage consisted of “assessing the existing situation. namely the Study spelling out spatial development policy. and not being legally required for other Polish municipalities. consultation phase and final approval Since April 1997 until mid-May 1998 the elaboration of the Warsaw Strategy took place. Consultations took a form of the legally defined 17 Goals of Warsaw Development and Implementation Tasks (Uwarunkowania. and consultations though the opinion-giving process concerning the final version of the document to be presented for approval to the Warsaw City Council. the reports were sent to various institutions asking for written opinions. After each stage. The planning work itself. done primarily by two chief designers. which included analysing and assessing the structural transformations and tendencies in Warsaw’s socio-economic development between 1990 and 1996” (Warsaw City Hall 1999: 18). the designers and city officials involved in the preparatory process decided to follow the logic of the formally required procedure of public consultations when the preparation of similar documents is in question.1.2. Strategic and Operational realizacyjne).April 1997. An in-house team from the Department of Land Development was set to assist the chief designers in their work. was divided in two stages. The second stage consisted of “analysing and assessing the environment for Warsaw’s development. The outcome of this phase was published in the form of a report A Report on the State of Warsaw (Raport o stanie Warszawy) in November 1997.
one meeting with representatives of social and professional organisations and scientific institutions. The council chairman demanded a personal vote by council members in order to push for the document’s approval. mayors and officials of Warsaw municipalities and districts.procedure of formal opinion-giving. Strategic and Operational Goals of Warsaw Development and Implementation Tasks. and at the municipal level. As such the document went to the Warsaw City Council for approval on 25 May 1998. then professional associations. public companies. 4. the Chancellery of the Polish President. The Conditions. There is no motto. The document was sent to and written opinion expected from. no catch-phrase used to express 18 . at the central state level. spatial. administrative.3 Structure and characteristics of the urban development strategy The Warsaw Development Strategy Until the Year 2010 is a comprehensive attempt at exploring economic. from Warsaw municipalities and districts of the Warsaw Centrum municipality. chambers of commerce (Warsaw City Hall 1999: Introduction).2. several meeting were organised to discuss the drafts of two documents: meetings with municipal council chairmen. The final document of the Warsaw Development Strategy Until the Year 2010 is a synthesis of the outcomes of the two planning stages together with corrections made after the opinion-giving stage. Different municipal agencies. infrastructural and ecological potentials and weaknesses.1. the committees of the Parliament and the Senat dealing with local government and land development issues. In addition to written opinions. Eventually. the opinion-giving stage came about in April 1998. the City Council approved the strategic document. higher education and scientific institutions also received the draft document. the members of the Council of Ministers. social. when the draft of the document is sent to prelisted institutions and their written opinion is asked for. In the case of the second document produced in the preparation of the Warsaw Development Strategy. the members of the Parliament and the Senat coming from Warsaw. in the same time giving directions for the future preferable overall development of the city. The opinion was also asked from the Warsaw Voivodeship administration. and one meeting with the members of the Committee on Land Development of the Polish Academy of Science.
’ 7 A two-level set of strategic goals for future development of the city of Warsaw was formulated. and (5) Achieving harmonious development within the city as a whole. What comes next.’ The general directional goal is then followed by five main strategic goals.. (3) Creating conditions that would stimulate economic growth.) Warsaw’s position in various rankings mainly reflects the city’s potential. It was stated that all operational goals are equally important and no prioritisation was offered. scientific or cultural centre. except to become ‘a true European metropolis. further implementation efforts’ (Warsaw City Hall 1999: 126). Warsaw is classified among cities that may very well become first-class European centres (Prague and Budapest are other examples).. the improvement perceptions stem more from foreign experts’ positive assessments of Poland’s economic transformations than on concrete socio-economic development in the city itself (despite clear progress in recent years). and expected to be the first step towards implementation efforts as the next stage to follow up the preparation and approval of the Strategy document. economic. It is probably because these goals were already defined as ‘priority’ goals and ‘the most urgent of all urgent goals. were specific 7 The authors honestly point out that “Warsaw’s image abroad has improved in recent years. (. the authors stated. and the latter then operationalised further into seventy five implementation tasks. which will strengthen integration of the metropolitan area. However.. (2) Developing and improving the city’s transportation system and ensuring efficient communications links to elsewhere in Poland and points abroad. The city is not expected to become this or that particular type of a city. 8 Without giving priority to any of them.) no one expects Warsaw to soon become a European or world financial. The general directional goal. as illustrated by the city’s progress in recent rankings of European cities. ‘expressing statements of local governments’ intent regarding the city’s development’ (Warsaw City Hall 1999: 123). ‘which develop more detailed assumptions of the main directional goal’ (Warsaw City Hall 1999: 123) and are ‘the basic guidelines for future planning efforts and.. (. reads as ‘Warsaw as a European metropolis with a rapidly growing economy and a steadily increasing standard of living.’ As for implementation tasks. the Strategy sets up the following strategic goals (without ranking them): (1) Improving residential environment and the city’s attractiveness. they were formulated as the last conceptual step made in the planning work on the Warsaw Development Strategy. consequently. 8 Main strategic goals were further operationalised into sixteen operational goals. scientific and cultural organisations and institutions. (Warsaw City Hall 1999: 125-6) 19 . Its goal is to strengthen Warsaw’s (and its surrounding areas’) diversity and multifunctionality” (Warsaw City Hall 1999: 121).the vision of the future city. The Warsaw Development Strategy Until the year 2010 is not searching for a new role for the city. (4) Creating a proper environment for international economic.
The Strategy designers asserted that ‘investments in technical infrastructure should be the top investment priority’ (Warsaw City Hall 1999: 139). initiating cooperation not only within the City of Warsaw. Improving municipal administration and city-wide development management. economic and social conditions for encouraging selectively defined municipal [city] development” (Warsaw City Hall 1999: 154). adopting an effective information policy outlining the development strategy’s goals and methods. especially the improvements in the city’s transportation system. Warsaw municipalities and neighbouring municipalities belonging to the Warsaw Metropolitan Area.were all listed as missing conditions that hinder effective development of the city and. Creating right conditions for implementation of the Warsaw development strategy. In order to ‘make up for the past investment delays’ and to ‘eliminate development disparities’ in Warsaw. 9 20 .e. as most needed interventions towards improving the institutional capacity for implementation. and targeted at all interested parties. initiating and coordinating cooperation among the City of Warsaw. the authors emphasised. reactivating the role of the central state in helping city development . should involve: improving the efficiency of the city-wide administration.2.9 Among the mentioned implementation directions. the strategic document called for creating conditions for cooperation and coordination of development activities. creating a (longer-term) financial policy that promotes development and also use external sources of project finance (including loans. publicprivate partnerships).programmes and an integrated programme for implementing various implementation tasks. NGOs and local residents. selecting strategic solutions to certain development issues after conducting specific studies to assess proposed solutions’ effectiveness. organisational. as such. Warsaw Metropolitan Area). the transportation system development is called for with the greatest urge. state bodies.4 Giving directions for improving coordination of implementation efforts The authors of the Strategy until 2010 clearly pointed out that the market alone cannot achieve strategic goals of city’s development.1. but also within the Warsaw agglomeration (i. 4. developing concrete programmes for implementing specific tasks. “Local and central government bodies will have to coordinate efforts to create the right institutional. bonds.
2 The Study of Conditions and Directions of the Spatial Development of Warsaw Capital City According to the first post-socialist Physical Planning Law which came into force on 1 January 1995. self-interested behaviour of Warsaw municipalities that has led towards fragmentation in territorial management. The lack of clear definition and division of responsibilities between the City of Warsaw authorities and Warsaw municipalities. or any serious public discussion on the Strategy visible. most probably because of the fact that the whole methodology applied was focused on the experts’ generated evaluations.1. As one of the main close observers of the planning policy processes and a planning expert in Warsaw noticed. 4.5 An expert development strategy The Warsaw Strategy is clearly an expert-driven document engaging other expert agents and politicians only as much as it was needed and possible in the given circumstances. The other reason was that the Strategy was drafted on the basis of the expectation that the administrative structure of Warsaw will be improved rather sooner than later” (Buczek 2001: 17). Therefore.The functioning of the Warsaw administrative structure as introduced by the 1994 Warsaw Act is recognised as ‘a major hindrance to Warsaw’s development.2. there was not much of the expected feedback observed. the lack of coordination in planning and implementation efforts. and on coordination of municipal and sectoral development plans to enable an effective city-wide development. are all serious obstacles to effective development of the city towards a European metropolis status in future. the new administrative structure must be based on much greater cooperation of its various parts. coordination and supervision’ (Warsaw City Hall 1999: 92). expertise and goals rather than a wide public participation in an early stage of the planning action. each and every local municipality was required to produce and enact a document defining the spatial development policy of the municipality.2. especially planning. 4. It prevents the city from fulfilling basic administrative functions. “regardless of the efforts of the authors of the strategy and of the city authorities. That document was to be legally binding and to represent the basis on which detailed local 21 .
The Board decided that the competition will be organised and run by planning experts. as well as of social and commercial organisations.physical plans were to be prepared. The document in question is called the Study of the Conditions and Directions of Physical Development of the given municipality. In the beginning of the elaboration of the Study the City Board expressed their intention to organise the work on a model of wide participation. The study concept.1 The Preparation of the Study The process of elaboration of the Study and consultations concerning the final version of policy proposals and implementation tools lasted from the beginning of 1997 until May 1998. hopes and areas of conflict known through the organisations active in their midst. 4. and required from the City Board to complete the task by the end of the first half of 1998. The final decision was announced in December 1996. and a team from Krakow led by Prof. the Warsaw City Board decided to organise first a competition for the best Concept for the Study. By the end of 1995.2.2. and to entrust the winning team further elaboration of the Study itself. by the end of the term of the local government holding the office at that time The 1994 Physical Planning Act did not say anything on the choice of a team who was to prepare the Study.e. by the professional association of Polish urban planners called the Society of Polish Town Planners (TUP). In the case of Warsaw it was clear that the preparatory work had to be commissioned to an external group of experts since there was no in-house planners who would do the work themselves. will be presented widely in various circles to ensure that the professionals are joined in full participation by the city’s inhabitants. it was announced that: “[t]he work on the study will see the widest possible participation of the gmina authorities and those of Warsaw as a whole. and later the successive stages of the study. i.” (The Office of the Warsaw Capital City Board 1997: 109) 22 . In the words of the mayor Marcin Swecicki. who will make needs. i. The Warsaw City Council decided in June 1995 that the elaboration of such a legal document should start. Zygmund Ziobrowski was the winner.e.
the political and overall coordination and management of the preparatory work was put into the hands of a special steering committee established only for this purpose. Warsaw municipalities level. 11 The steering committee consisted of the following members: a member of the Warsaw City Board (i. It was agreed that the work would be divided in three general phases with regard to the cooperation with various governmental units and non-governmental agencies. 10 23 . during the negotiations on proposals and problems. the last draft could be finalised and sent to the Warsaw City Council for approval. and voivodeship level).was in charge of the expert work. based on a legally prescribed procedure of asking different institutions for written opinion on the draft of the Study. the director of the Department of Land Management.10 The division of responsibilities of the main agents/parties involved in the preparatory work was drawn up. representatives of Warsaw municipalities and districts of the Centrum municipality. The main designer of the Study . municipalities belonging to the Warsaw Voivodeship. The third phase was. however. agencies dealing with the conservation of historic monuments. The task of the first phase was to make the Study concept done by the team who won the competition discussed in detail with other governmental units and agencies (at the city government level. one of the vice-presidents of Warsaw) acting as the chairman of the committee. the rules for the organisation of the work were set up. and economic organisation/business associations. The task of the second phase was the negotiation of problems during the consultation with various agencies. Technical coordination was the responsibility of a special body under the Department of Land Development of the Warsaw City Board. associations of urban planners and architects.meaning consultative meetings with non-governmental agencies . the chairman of the Warsaw City Council commission dealing with urban development. enabling further information exchange and preliminary formulation of planning proposals. the so-called City Workshop for Spatial Planning and Development Strategy (a body of in-house planners helping the exchange of information between the external expert team under the main designer of the Study and different departments belonging to the Office of the City Board). The third phase was to collect opinions on the final draft. and the main designer of the Study (Mijeska Pracownia Planowania Przestrzennego i Strategii Rozwoju 1997). before the final approval vote by the Warsaw City Board and the City Council.the leader of the team which won the competition . However. Only after this formally required stage.11 In the second phase.was planned to involve five main groups: environmental associations.In the very beginning of the work on the Study document.e. the wide participation .
especially the neighbouring municipalities of the City of Warsaw. As far as the consultations with civil sector. Taking into account the administrative structure of Warsaw.2 Consultations/negotiations Throughout 1997 and the first half of 1998.2. public transportation. the consultations were held with the representatives of the Office of the Warsaw Voivodeship (regional level of public administration). the sewage system. Additional consultations were made with the planners working on the local physical plans being already in preparation by that time and commissioned by Warsaw municipalities. gas. depending on the infrastructure problem. NGOs and institutions dealing with environmental protection were consulted at one meeting. etc) that was to be recommended by the Study. scientific institutions and the business sector are concerned. The existing country-wide sectoral plans were discussed inasmuch as they were to affect the metropolitan area of Warsaw and help ease or solve the problems of the capital city.4. sometimes on the one by one basis. numerous meeting were held concerning the preparation of the Study. and then a group discussion 24 . few meetings with their representatives were held only in the final stage of the Study preparation. The designers consulted central government ministries and offices. sometimes in smaller groups of two or three municipalities. Warsaw municipalities were involved in the negotiation process from the very beginning and up to the very end of the consultations on the final draft. Numerous meeting between the designers and the representatives of municipalities were held. and negotiated the final proposals (concerning the road system. railway system. At the city-wide level numerous agencies (often in the form of public communal companies) dealing with technical infrastructure and communal services were consulted and in several rounds.2. a particularly important type of stakeholders in Warsaw development is represented by eleven Warsaw municipalities (gminas). and electricity supply. water. The designers and city authorities discussed the alternative solutions to the capital city structural weaknesses. In addition. Furthermore. the municipalities of the (at that time still existing) Warsaw Voivodeship were also invited for discussion.
Cooperation with the authorities at other levels. The discussions were focused both on particular issues and proposals. Though the preparation of two documents was done as two separate processes. and on the draft version of the document when the preparatory process was approaching the end. Finally. in June 1998. there was some coordination of the two documents in the selection of strategic objectives for future city development. 3. the Warsaw City Council approved the Study. Throughout the whole process of simultaneous expert work on the elaboration of the Study proposals and consultations/negotiations with various stakeholders external to the City authorities. The Study recognises four main groups of instruments belonging to this type: 1.and few commissions of the Warsaw City Council .especially the Commission for Strategy and Development. the decision-making process at the city level included numerous meetings with the City Board. 4.especially the Department of Land Development . and in the selection of the main developmental interventions proposed by experts. 2. The later discussion focused on the second working version of the Study and the participants were asked for their opinion (Zarzad Miasta Stolecznego Warszawy 1998: Appendix 1).2. primarily central government authorities. Further planning and making of concrete programmes for city development. authorities of the Warsaw municipalities and municipalities outside the city borders. especially of the city-owned land. and 4.3 Policy Instruments The authors of the Study identified two main types of the spatial policy instruments standing at disposal of the Warsaw authorities.was organised with the representatives of the scientific and research institutions.2. based on statutory regulations and led by the need for development management. The first consists of those instruments that belong to the domain of responsibilities of the Warsaw City authorities. Urban marketing. departments of the Office of the City Board . 25 . A few meeting between the team working on the Study and the team working on the Strategy for Warsaw until 2010 took place. business associations and foundations for regional development. Land management.
a phase to follow the approval of the plan. and further operational programmes determining investment priorities in various sectors of activity. According to the then valid law. 12 This second type of policy instruments came out of the 1994 Act on the Administrative Structure of Warsaw. the Spatial Development Plan for the Capital City of Warsaw. i.2.2. all further specification and operationalisation of proposals made in the Study were expected to be made in the time after its formal approved by the Warsaw City Council. Binding provisions represented an instrument of influence of the City of Warsaw authorities on the spatial policy of Warsaw municipalities. and were supposed to consist of guidelines for municipal authorities to follow in the process of preparation of local physical plans (as being the obligatory responsibility of municipal authorities). Thus.e. It is so because only Warsaw has been the Union of municipalities (gminas). financial schemes and action plans for implementation of public investments. The second type of policy instruments is represented by binding provisions for Warsaw municipalities. the Study for the city of Warsaw was meant to be “a set of guidelines encompassing the spatial policy of the city authorities with respect to the area of the Capital City of Warsaw and is considered an act of internal management” (Krajobraz Warszawski 1999: 20).4 Priority proposals for future city development As it was already indicated above. and all other large town in Poland have only one level of government. binding provisions were to form a (dominant) part of the city master plan. and as such existed only in the Warsaw spatial planning system. As such the Study is a comprehensive set of proposals concerning the improvements in the spatial structure of the city and its functioning. Binding provisions have been introduced in the 1994 Act on Warsaw as a tool of coordination of development throughout the city and a tool of city-wide control on the planning activities of Warsaw municipalities 26 .12 4. It meant that thinking and planning the implementation of proposed interventions was understood as a separate phase from the plan elaboration.The above mentioned first group of instruments includes the preparation of the Spatial Development Plan for the Capital City of Warsaw (which preparation was expected to follow immediately after the Study had been approved).
There is no vision-driven image of the future city expressed in a short sentence. (4) protection of the Warsaw Nature System. The idea was new in the Polish context of urban planning. 13 27 . The authors name three types of such spatial elements or areas: strategic areas. To mention only the first element.13 Since different Warsaw municipalities were characterised by a different mix of development potentials and problems. There areas would become key areas for private investment activities.1 Strategic areas: concentrating development efforts A novelty that the Study brought about lies in the way the elements of the spatial structure of the city are defined. The importance attached is based on the principle of concentration of pro-development activities in a limited number of areas throughout the city. and (5) protection of cultural and landscape values. These focal issues and proposals which follow define the developmental agenda set up by the Study for Warsaw. The reasoning behind was that a limited number of areas throughout the city.2.4. though some of them might also incorporate light production buildings.2. i.The general goal and five main strategic goals are the same as stated in the Warsaw Development Strategy Until the Year 2010. if attractively developed. and consequently of the whole city. The Study designers introduced new spatial categories that explicitly recognise and select spatial elements with pro-development potential. done previously under the same expert leadership as the Study for Warsaw. multifunctional belts and city gateways. in translating these goals into spatial development policy terms. Their development would require area-based management capacity. set up monitoring and special conditions to help investment process. The Warsaw City leadership accepted the idea. 41-46). The aim was to improve “basic proportions of the spatial structure of the city as a whole” (Krajobraz Warszawski 1999: 22). would provoke faster development of the city zones they belong to. establishing a developmental agency. housing and cultural functions. a mix of functions (Studium 1998: 35. For the further analysis I will select the first issue and present it in more detail. the Study focuses on five main issues: (1) improvements in the city spatial structure. 4. or rather when they were presented with the idea.e. Instead. no serious objections were put forward. It was first introduced in the Study for the city of Krakow. (3) technical infrastructure of the city. the areas finally selected have different sources of The idea of recognising and selecting strategic areas came from the main designer of the Study. (2) the city’s transportation system. strategic areas were planned to be primarily the areas of concentration of services.
Poludniowy (South) Railway Station. the Study authors urged and consequently expected the fast preparation of the city-wide master plan which would include binding provisions for Warsaw municipalities to follow in the preparation of local physical plans. how much does all this show political commitment to developing strategic areas as conceived by the Study authors? To have binding provisions proposed for The following choice of strategic areas was made: Warsaw’s New Salon.2. i.2.attractiveness and were seen as being able to develop a different mix of socioeconomic functions and architectural values. then they ultimately determined what can be and what cannot be built on a site. Since local physical plans. and Targowek Przemyslowy . However.14 4. 14 28 . after being ratified.4. All together twelve of them. Wilanow Centre. Lopuszanska. the authorities of the Capital City of Warsaw and the Warsaw municipalities” (Krajobraz Warszawski 1999: 26.15 Based on this expectation. This policy instrument was to cover rather management-related aspects of the development of these areas. and not be taken over by ad hoc development attempts. In order to complement this instrument of securing the realisation of the planned strategic areas. and how? As it was already stated. binding provisions.2 From an idea to political commitment? What has been done during the process of planning for the Study to secure the realisation of the idea of strategic areas? How was implementation considered. Studium 1998: 84). the Study also urged the preparation of action plans for strategic areas. It was also stressed that “Strategic areas and multifunctional belts should be the sites of mutual action on the part of [central] government authorities. starting with the specification of investment priorities. Warsaw City. represent a law on local spatial development. Poznan Gateway. Praga Centre. This was believed to be the best guarantee that the further development of areas chosen for strategic areas would comply with the original idea of such areas. 15 The expectation was that preparation and ratification of the master plan would secure the fast translation of the planned features for chosen strategic areas into the form of the local regulations of investment activities. the Siekierkowska Arch.e. if at all. the Study document offered proposals for binding provisions to guide Warsaw municipalities in establishing local land-use or zoning regulations concerning each and every strategic area (Studium 1998: 84-90). Gdansk Railway Station. Zeran Harbour. Skocznia.
was still used as the key policy document for issuing planning and building permits. In this manner of neglecting the policy work done by the previous government.16 16 The Centrum municipality was created by the 1994 Warsaw Act with the intention to avoid the effects of administrative fragmentation of this historically important are. and the selection of areas for strategic areas was done in consultation with them. Warsaw municipal authorities were informed about the proposal. in order 29 .these areas still does not guarantee the commitment to the idea of those who are and will be responsible for its realisation: city and municipal authorities and private investors alike. and the interest of private developers was visible. Nobody at first knew what this attempt was about. 4. However. When it was announced in October 2000. the representatives of investors or real estate agents were not consulted on this during the preparation of the Study document. new city authorities hardly paid any attention to the Strategy for Warsaw and its goals. “The first one was the draft of the so-called Warsaw Master Plan. new Warsaw mayor (and the mayor of the Centrum municipality) Pawel Piskorski announced the New Spatial Policy (NPP). the new municipality’s border covered the area that belonged to Warsaw of 1939. For the areas with central locations. the same area being nationalised by decree in 1945 after destruction of Warsaw in the Second World War. local physical plans for these areas have already been in preparation. primarily with potential stakeholders other than municipal authorities. regarding other areas . especially because it was rather a draft and no legal procedure for the discussion and its approval existed. there was no wider consultation.’ The other one was [at that time still] the draft of the Study of Conditions and Directions of Urban Development of the Centrum Municipality” (Buczek 2001: 17). it may have not appear necessary because these areas have been treated as having strategic importance since the beginning of the 1990s. Apart from some research done on the development potentials of these areas.3 Third election period 1998-2002 After the 1998 local elections. though amended in numerous occasions. The 1992 Warsaw master plan.those beyond prime locations. which was some kind of a followup on the selectively enriched ideas of the General Development Plan for Warsaw [master plan] of 1992 transformed into so-called ‘binding guidelines for the local physical development plans of Warsaw municipalities. Namely. it was based on two other drafted planning documents.
as a possibility prescribed by from the Warsaw Act. and treated them as law. accounted for 25% of the territory of modern Warsaw of the 1990s. city authorities under the leadership of the Mayor Piskorski decided to prepare a document stating the binding provisions for the gminas in deciding on their spatial policy. 30 . For instance. According to this amendment done by the national parliament. the City of Warsaw lost the power to make legally binding spatial policy in the form of the Study. despite the serious discrepancies between two documents” (Buczek 2001: 12). “It is important to notice that municipalities of Warsaw were conducting their own works on their studies (…) quite frequently without paying much attention to the content of the Study of the City. had a legal power to influence the spatial decisions of gminas. It was approved in mid-2000.17 Only city-developed binding provisions for gminas. 18 Among the most important problems of the spatial development policy for Warsaw that were asserted in the Warsaw Development Plan containing binding provisions. 57% of Warsaw inhabitants lived in this municipality while 72% of all jobs in Warsaw were located there. In an act of almost perverse change. only the Strategy was required. between the end of 1997-2000 the Centrum gmina undertook the preparation of the Study of Conditions and Directions of Urban Development until 2020 of the Centrum municipality.1998 Study for Warsaw could not act as the spatial development policy document because of the administrative structure of Warsaw that required and favoured gmina’s studies. it was pointed out that the lack of participation of government funds in the building of the necessary bypass routes and the metro system is affecting the likelihood of these development being implemented in the needed pace. which was much more favoured later by the authorities of Warsaw during the third term than the Study for Warsaw. and they started doing it on their own. This area. So. This change was introduced by the Polish Parliament’s amendment on the 1994 Planning law that was prepared almost simultaneously with the approval of the 1998 Study. Because of this situation. This Warsaw Development Plan Including Obligatory Guidelines for the Warsaw Municipalities in Preparing Local Spatial Development Plans was approved in the City Council July 2001. the power to influence gminas in their spatial development decisions through the Study was lost as soon as the Study was approved by the city Council. municipalities of the Warsaw Union were also entrusted to develop their own spatial development policies in the form of a Study of Conditions and Directions of Urban Development. minimal interest of the national authorities in the development of the capital city was also stated.18 This document to enable its reconstruction. The specific example of such approach is the work on the Study for Gmina Centrum. 17 Although the city of Warsaw now had a strategic development document and the document presenting its spatial development policy. For the city level authorities. in the period of 1994-2002 belonging to the Centrum municipality. The document also called for the modification of the legislation related to the system of local government in Warsaw.
After a long period of anti-Warsaw sentiments in the Parliament that were responsible for the lack of support for a radical reform of the Warsaw administrative system. namely binding provisions. Due to the system of legal obstacles that finally blocked almost any initiative coming from the City to influence developments at the level of Warsaw municipalities. and making Warsaw one municipality for the first time since 1990. by the end of the third term. Piskorski push the initiative in the national parliament to change the Warsaw Act. It means that until the beginning of 2006. Kozak was appointed as the new Warsaw Mayor. document has been used in making planning and building decisions. Before the binding provisions for gminas were originally approved in 2001. most of the development ideas of the city authorities remained as acts of good will only. Piskorski went to the national parliament after 2001 national elections. it still shows the constant interest of the city leadership then in office to do something favouring overall city development contrary to the fragmented actions of municipalities that were interested mostly in what happened within their borders irrespective of how it affected other Warsaw neighbourhoods. finally the structure of forces in the new Parliament enabled the new Act on Warsaw to be initiated. 31 . drafted and finally approved in March 2002 – all in a few months since the new national Parliament started its work. the old Study. even in terms of the officially preferred consultation process. since the new Study has not been officially approved yet.containing binding provisions became officially the new Study for the city of Warsaw as soon as the new Act on Warsaw was put in force (October 2002) abolishing old gminas. His deputymayor Mr. mayor Piskorski’s New Spatial Policy (NPP) remained a political vision for city-wide development with little real power over the investment and planning decisions of Warsaw municipalities Although used by Piskorski for his political ambitions aimed towards national politics rather than staying at the level of Warsaw city politics. though the document was never publicly discussed. no public consultation process took place. Finally. after his experience as the Mayor of Warsaw.
and for their implementation. it looked as if the city did not really know how to go on with the preparation process. The new law did not require the preparation of a general strategic document. The new Warsaw authorities were obliged to start the preparation of the new spatial policy document. Old 1998 Strategy until 2010 was not taken into any consideration when deciding on this new endeavour. failed to meet the new planning requirements. That was the argument put forward by the leadership around the new mayor Kaczynski.1 Strategy for the Development of the Capital City of Warsaw until 2020 4. and gaining the weak status of – have no planning power. corrupt. The Warsaw City authorities are responsible for all planning documents.4. the new Law on spatial planning and management was put in force. the 2001 binding provisions document turned into the Study for Warsaw after the introduction of the new administrative structure for Warsaw in 2002. contrary to the previous 1994 law. In July 2003. Kaczynski’s attitude when elected was “all before me was inappropriate. simply wrong”. In the words of a few interviewed experts. did the new City Council of the finally unified city government decided to initiate the development of the new strategic document. Only in the beginning of 2004.4. new mayor.4 Fourth election period 2002-2006 According to the 2002 Act on Warsaw. Under the management of the Office for Development Strategy and European 32 . 4. and joining the EU in just a few months – required a brand new strategic document for the city that was soon to become a new EU metropolis. 18 newly established districts – loosing the status of Warsaw gminas.1.1 Preparation of the Strategy until 2020 At first.4. including local area plans. New circumstances – new unified city administration. According to this new spatial planning law.
The formation and coordination of the expert team was entrusted to Roman Dziekonski. seeking their ideas about the city development.Integration. education. but not realised). They included an expert team from outside of city administration. was the deputy mayor in the first city government in 1990-1994 period. started with the presentation of some visions and projects coming from city 20 33 . transport. 8 groups were initiated to do different work on the drafting of the strategic document. and over a period of 6 months the team came up with an strategic document based on expert knowledge. sport activities. Another seminar was organised with the non-governmental organisations from the spheres of culture. He started the first strategic planning process in Warsaw that ended with no strategic document approved before the second local elections.19 He gathered a team of five experts from different fields. The management control was in the hands of the Office for Development Strategy. The task of another group was to do the groundwork on the diagnosis of the current situation in Warsaw called the Report on the state of city of Warsaw. cultural life. Yet another seminar was organised with students from different universities in Warsaw. and political life of the city.20 The reports were made after these 19 Dziekonski. but much of the work was also contracted to external experts in order to analyse different aspect of the social. Those early meetings. especially the first two with the business representatives and selected NGOs. and six interdepartmental groups dealing with different issues such as technical infrastructure. environment protection and tourism (consulting other sectors was initially planned. housing and other social issues. an urban planner by his background. Parallel to the work of these eight groups. mostly various chambers of commerce and some sectoral organisations. economic. and spatial structure of the city. the responsible office organised three seminars between June and October 2004 in order to collect opinions and learn further about the needs of social groups outside to the city hall. One seminar was organised with the representatives of business organisations. and was also responsible for the initiation and coordination of the preparatory work on the first transport strategy for the city approved in 1995 after the second local elections. a group working on the Report on the state of the city of Warsaw. established Warsawa XXI team of planners independent from the City. including the state of technical infrastructure and the financial resources available to the city authorities. environmental protection. All together these groups included about 20 city departments and 80 external experts contributing to different aspects of the preparation of new strategy.
being used as another input into the final drafting of the strategy. Presentations prepared by departments were based on the on-going work of six inter-departmental groups working towards the strategic document.three meetings with the representatives of various social groups. strategy. followed by the request for opinions from the invited audience. A survey on the opinion to the new strategic document for Warsaw was conducted during the one-month and a 34 .2 Approval stage: Formal process of opinion-giving and the final vote Until May 2005 the draft of the new strategic document was ready and a shorter version with many illustrations of proposed interventions was prepared for the public exhibition in the early summer. and some input from the project proposals being prepared for the application for the EU structural funds. 4.21 After this initial selection. Draft of the Strategy until 2020 was checked against the draft of the new Study document being in preparation. programmes and finally implementation tasks. city councillors.1. all eight groups finished their work. All those materials were put together. other interested organisations and interested public. By spring 2005. operational goals. This exhibition Warsaw of the Future was intended to show the strategy for city development to the wider public. 22 18. incoherent document of 3000 pages.” Discussions started within this office on the SWOT analysis.4. 21 Until 2020 in order to cover two programming periods for distribution of EU fund: 20072013 and 2013-2020. and submitted it to the Office for Development Strategy. At one point this was a rather long. In the words of a participant in this process. two meetings were organised for directors of all departments and some staff with the Warsaw Vice-Presidents. it looked as “all sectoral strategies different departments submitted were put together. selecting the vision.000 copies of the summary version of the draft document were distributes to the city districts. The purpose of those inter-departmental meetings with city political leader was to discuss what was more and what less important for the city and for various city departments. and goals for Warsaw until 2020. in order to make the final selection of goals.22 departments. Directors of two departments and representatives of two teams responsible for the preparation of these two documents met a few times in order to synchronise the content of two drafts and the proposed interventions. and to serve as a consultation process with citizens. Another set of meetings followed with city councillors (in several groupings of the various committees of the City Council).
1.As part of the further consultation process. Written opinions for the general public were coming to the City Hall throughout the summer and fall 2005. and these changes came as the result of the consultation process.24 Finally. and was elected the new Polish President in the second round. In the same time. two meetings were organised: one with the representatives of the business sector. and one with non-governmental organisations participating in the special meeting of the regular “Forum for Social Dialogue”.23 In the meanwhile. This document. This move was seen by many people as a self-promotional gesture in the Kaczynski’s campaign for the Polish President – using the Warsaw strategic document for his personal publicity. “some people from districts were involved in six interdepartmental groups [working on a selection of sectoral issues]. starts with a mission of city authorities and their vision for the half of the exhibition. The meetings were scheduled in the way that first the representatives from the city authorities gave presentations on a selection of issue. his party PiS won most of the seats in the national parliament. the third time that the approval of the Strategy until 2020 was on the City Council agenda. contrary to the 1998 Strategy until 2010. this time including the health care NGOs. and then comments were asked from the invited audience. The interested public was asked for written opinions. but we didn’t plan another meeting with them because they wanted to put many details [into the city’s strategic document]. The final version included some changes into the spring version of the strategy. 23 No consultation meeting was organised with the representatives from the district councils. No materials were given in advance so participants could not really prepare their reaction and make systematic and most important comments from their perspective. As one city official put it. 4. the final version of the strategic document was approved by the Warsaw City Council.000 copies and distributed as a special supplement of the daily newspapers Gazeta Wyborcza. and formed a minority central government. another summary version of the Warsaw Strategy until 2020 was reprinted in 120. 35 . all until the final approval of the document.” 24 In October. Warsaw mayor Lech Kaczynski run for the Presidential election in the fall 2005.3 Structure and characteristics of the urban development strategy This second strategic document – Strategy for Warsaw until 2020 – contains all the standard elements of a strategic document.4. on 24 November 2005.
is to achieve the highest possible level of satisfaction of residents’ needs and to place Warsaw among the most important European metropolises. broken down to twenty-one operational goals and seventy programmes for implementation. (3) to develop metropolitan functions strengthening Warsaw’s position on the regional. However.” The vision is followed by five strategic goals25.next fifteen years of city development. not at the level of operational goals and programmes. 25 (1) to improve the quality of life and safety of the residents of Warsaw.4 Coordination of implementation efforts The city administration claims that financial forecast was done for all tasks.a city with the soul. the expected financial sources listed. “the capital of the Republic of Poland. national and European level. 4. (4) to develop modern economy based on scientific knowledge research. 36 .g. the city of rich tradition. (2) to consolidate the residents’ sense of identity by preserving tradition. and the best time for implementation estimated.1.” The vision for the city is that “Warsaw of 2020 is an attractive. a city with the high quality of life. Multiyear financial plan was ready before the strategic document was finalised “so the parameters were known for the strategy”. but rather kept by departments. this was not published as a part of the strategic document. The city administration claimed that some prioritisation was done at the level of tasks. The list of tasks for the implementation of the strategic objectives includes many projects intended for EU funding that had already been in the process of preparation by different city departments during the drafting of the Strategy (e. developing culture and stimulating social activity. the city of significant standing among the most important European capitals. and (5) to achieve lasting spatial order in Warsaw. dynamically developing metropolis with a knowledge-base economy. modern. an important centre of European culture with well-organised public spaces . in words of a city official. the financial centre of Central Europe. The mission of the City of Warsaw. However.4. Warsaw of our vision is an open and accessible community. infrastructure projects like metro construction and tram lines reconstruction and further expansion. outside observers of the preparatory process were rather convinced that in fact ”the Strategy is not related to financial planning of the city” and that “no prioritisation of programmes and tasks was made” in the final stage.
The implementation of the Strategy rests with the individual city departments.5 Remarks The final document was about sixty percent based on the expert’s strategy document. A list of indicators for monitoring the change was not prepared together with the strategic document.4.26 Implementation of some listed tasks is not in the power of city authorities. Their intention is to revise the Strategy every year. but they expected that final financial feasibility and political feasibility will be done afterwards in the City Hall. more people can be satisfied – in the shortterm. PKW railway tracks and land in Warsaw). in the words of an official involved with the document through the preparation process.g. Contrary to the expert document for the new strategic document for Warsaw.revitalisation of the Krakowskie Przedmiescie street). programmes or tasks. “with a longer perspective of the strategic document. but will be prepared later. only needs to be updated and the full proposal developed.1. Expert team’s document contained a list of investments for every task they suggested. the final document did not include any prioritisation of either operational goals. “No EU funds for that [type of intervention] now. and more items in the basket. assessed the expected impact of the implementation of the projects. The Office for Development Strategy is responsible for monitoring the implementation efforts under the supervision of the Warsaw City President. but rather belong to the central government (e. 4. It looks rather as a comprehensive list of all projects already in preparation and those vaguely planned for. As an external planner told me. The rationale for including all these tasks into the city authorities’ strategic document was that “this is not the city government’s strategy but the strategy for the whole city”. but maybe in the future.” 37 . So we’ll be able to show that it’s already in our Strategy. They made a prioritisation of operational goals and tasks. and introduced indicators for monitoring implementation.” 26 It also included projects like urban regeneration in the Praga district on the right side of Wistula river that is waiting for the EU funding some time in the future if that type of regeneration projects become eligible for the EU Structural funds. or to the resources of the business sector.
and their significance for the preparation of the new Study was assessed. Public enterprises and general public were asked to comment existing developments in their area/sphere of interest. 38 .4. as the third phase. including sending written opinions. information about the preparation of the new Study was sent out to all local and regional public bodies. the work on the elaboration of the new Study was done by the Department for Spatial Development of the Chief Architect’s Office. The latest announcement put the expected time is May 2006. Public consultations. First. Simultaneously with the preparation of the first draft. Since then. The planning office needs to make a report on rejected opinions explaining why they were rejected. because all consulted parties were well-informed of the purpose of the document and its obligatory nature for the local area plans in preparation. the City Council made the decision to start the preparation of the new Study. and associated City Planning Workshop. according to the new Planning law. but in general there was no contracting out of work outside of the City’s public sector. asking for their opinion of what the Study should contain from their particular perspective. and participating at the public debates organised by the Chief Architect’s Office (all in 21 working day). have three main phases. The expected approval time was postponed several times. Then. that report goes as a supplement to the Study when it is passed to the City Council for approval. and only if all required opinions are positive. In April 2005. the first full draft of the Study was sent to all units of the city administration. five public bodies (including the regional governor and the marshal at the regional level) are legally required to give written opinion on the Study. All opinions and complains were put together.2 Preparation of the new Study of conditions and directions for spatial development of the City of Warsaw In September 2003. as required by the new spatial planning law. consultations with the general public are held. Second draft of September 2005 incorporated the comments on the first draft.4. and to all districts in order to check the facts and correct mistakes. Some sectoral elements of the Study were done by the sectoral experts. The response was good. the document can pass to the next phase when the written opinion of different organisations is required.
There were no legal guidelines on how to organise the process of preparation of general strategic documents. especially in the consultation phase coming at the end of the preparation process. Because of this. and 2004-06). Warsaw authorities undertook about three general strategic planning processes (1992-94. and consultations with actors outside of the strictly speaking city authorities. and 2004-05) with two of these attempts leading all the way towards the official approval of a strategic document. neither considering nor revising the product of the previous process. 1997-98.1 The nature of the strategic planning processes in Warsaw In the period from 1990 to the end of 2005. nor building up on it. there has been a tendency to imitate the procedures for spatial development strategic documents. the first two ended with the adopted official document. 2000-01. completely neglecting to reflect on the previous 1998 document Strategy until 2010. Understanding participation of other public bodies. In the same period. The Strategy until 2020 adopted in 2005. The first strategic document for spatial development had been mostly forgotten. there has been three strategic planning processes focusing on the spatial development policy for the entire city (1997-98. started being developed anew. citizens and organised interests through the framework of the official consultation process limited the involvement of the actors outside of the City Hall and the circles of contracted external experts in the preparation of strategic documents. while the second had an unexpected fate due to the radical change in the administrative structure of Warsaw and resulting political change in 2002. These three strategic processes were unrelated to each other. Public participation in the strategic decisionmaking processes was confused with consultations in the form of opinion-giving by a 39 .5 Conclusion: Characteristics of the political process of strategic planning in Warsaw 5. and the third waiting to be approved in 2006. each of them started as completely new endeavour.
The findings on the participation of different actors directly correspond with the evidence suggesting very limited consideration of the implementation prospect of the strategic goals and interventions during the planning process. Regional authorities were consulted only in the very last stage when almost final document was sent for their opinion.certain number of public bodies external to the City Hall administration and by interested citizens after the strategic directions have been almost fully decided upon. The Warsaw case demonstrates weak internal public sector integration. The national authorities were not directly involved in any way. 5. Potential private investors were hardly ever consulted in relation to particular implementation aims and suggested programs during the deliberations on strategic interventions in particular areas. and a limited involvement of external experts. It is especially poignant with respect to estimating real investment interests of private businesses that have control over much of the resources that can be invested in city development. deputy-mayors responsible for strategic development. and a small number of contracted external experts. Their involvement was limited to the sporadic meetings in the consultation phase. later the Chief-Architect’s Office). Elaboration of strategies during the preparation of strategic documents has been separated from the implementation phase: considering implementation was left for the phase after the official approval of the strategic documents by the City Council. mostly urban planners. in the best case they were only assumed. There was no direct participation of the business representatives and NGOs. The main actors in the general strategic planning processes and in spatial development planning were the two departments of the City Hall (Department for Development Strategy and European Integration and the Land Management Department. Assessments of the investors’ interests were hardly ever made.2 Effects of the strategic planning on the local governing arrangement 40 . The involvement of the municipal authorities (Warsaw gminas) existing before 2002 and Warsaw districts after 2002 was very limited. The empirical evidence shows that the strategic processes in Warsaw have been limited to city authorities.
and from the internal context of the existing institutional capacity of the local public sector to steer urban development in an integrated way. As contextual variables show. Only in 2002. equivalent to the city mayor. In terms of the three scenarios of how strategic planning processes can influence the institutional setting of the local governing arrangement – offered in the second section of this paper – my research findings suggest that strategic planning exercises in Warsaw brought about a limited consolidation of the local public sector and expert elite without any significant involvement either from collective interest groups or citizens. Obstacles to making a shift towards greater involvement of collective interest groups – both from the business and non-profit sectors – and towards greater involvement of citizens seems to be coming both from the general context of urban governance in this post-socialist city. which ended chaotic administrative divisions and frequent paralysing conflicts. were the main obstacles as far as the organisation of the public sector is concerned. as the consequence of the radical administrative reform for the city of Warsaw. the whole city became one municipality and county. a high degree of administrative and political fragmentation characterising intergovernmental relations between different level of government until the radical reform in 2002. with strong independence tendencies of the outer city municipalities (gminas) and weak coordination capacity of the city to set up and enforce an integrated set of policies and rules for the overall development of the whole city. and since 1994 it practically meant that the mayor of the biggest and central 41 . Warsaw had a particularly damaging administrative structure since the first Warsaw Act in 1990 over several new adaptations until a radically new administrative structure was introduced in the 2002 Warsaw Act.A general conclusion on the effects of strategic planning processes on the local governing arrangement in Warsaw is that there is a limited effect up to now. and practically no support for the other two. and associated instability of local political leadership. The President of Warsaw. The administrative structure directly influenced the instability of political leadership. Presented evidence shows empirical support for the first scenario. was elected by the City Council. It meant that local responsibilities were divided between two levels of government with unclear and often conflicting division of responsibilities and resources.
but rather to the political structures of the central district that elected him. Investors. the lack of understanding of the benefits of having societal actors involved 42 . individually or through business associations. there has been only limited development of organised interest groups or NGOs capable of representing in a well-informed and constructive way different social interests. general strategic planning and spatial development policies being the case in point. City-wide planning activities and development policies. were undertaken in such unstable and fragmented political conditions. On the one side. therefore. seem to communicate with city authorities only concerning particular development opportunities. especially from the business sector. On the other side. there has been weak organised representation of social interests. On the other side. As for the civil society. associations of business interests are still developing. and low genuine interest on the side of existing organised interests. Cooperation of any kind is very easily interpreted by citizens in post-socialist countries of CEE as corruption or clientelism (Swianiewicz 2001). remaining disinterested in taking part in general policy development. leading to the lack of capable partners on the side of civil society. including strategic planning. Though the number and variety of business actors dramatically increased since the introduction of the market economy and opening up of the Polish markets to the global competition. four of which were indirectly elected between 1990 – 2002 before the new administrative reform introduced the position of the directly elected mayor of the City of Warsaw in addition to the new unified administrative structure. In this manner. between the Warsaw city authorities and existing NGOs is still very weak. did not have the loyalty to the city as a whole. there is evidence suggesting still low collective interest representation in the non-governmental sectors. to be more closely involved in the development of the general policies for city development. The mayor. and the problem lies on both sides. not to mention cooperation. Communication.city district – Centrum Gmina – automatically became the President of Warsaw once he was elected by the Centrum Gmina Council. Warsaw has had five mayors in fifteen years. There is also evidence suggesting the sensitivity of the public opinion when it comes to close relations between local authorities and the business sector.
as far as it took place in the turbulent conflict-ridden local public sector in the city in the end of the 1990s. “The Performance Principle in Strategic Planning. Krajobraz Warszawski. Krajobraz Warszawski. Needham (eds. Khakee. A. H. Motte. G. and B. London: C&W/H&B. 43 . ‘Case study – The strategic and physical planning of Warsaw. This belief is not fully supported by the local experience of economic development that shows power of private developers in shaping the urban environment. ed. London: UCL Press. 2001. and the lack of ideas of how it can be done by designing a more participative planning process. 2005. M. Budapest: OSI/LGI. The experience of project implementation management. 52a (Dec..” In The Revival of Strategic Spatial Planning. Bas and Lawrence E.) 1997. Healey. certainly challenge this belief. Cushman & Wakefield/Healey & Baker. Making Strategic Spatial Plans: Innovation in Europe. Amsterdam: Royal Netherlands Academy of Arts and Sciences. 5. ‘A Vision of Metropolitan Warsaw’ (special issue).’ Krajobraz Warszawski. References Buczek. Salet and A. 2004. Basingstoke: Palgrave Macmillan.’ LGI course material for the Urban and City Management Course. J. Local Governance in Western Europe. Comparing Local Governance: Trends and Developments. no. Denters.) Krajobraz Warszawski.3 Contribution of strategic planning to the development of effective urban governance? The case of urban development planning in Warsaw shows that the governing arrangement in Warsaw is still of a local government type rather than a form or urban governance. 1999. John. My research shows the existence of a deeply ingrained belief in the public sector in this post-socialist city in the possibility of strong local government and local government-based leadership in urban development contrary to the local governance thesis. 45. no. but it is too early to see how the unified city policy-making and management introduced in 2002 will shake this belief in the capacity of the local public sector to steer the development of the city without building partnership arrangements with non-governmental actors. 2000. A. ‘On the New Spatial Policy.in the planning processes in an organised way from the very beginning. Peter. 2001. Mastop. European Cities Monitor. P. Faludi.. Rose (eds). London: Sage. By W. 2001.
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