september 2005urban planning carleton university 1 planning urban system and components systems view...

September 2005 Urban Planning Carleton University

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Planning Urban System and Planning Urban System and ComponentsComponents

• Systems View• The Basic Framework for Urban Planning• Systems Approach: Framework for Urban/Transportation Planning: Systems Analysis• Planning Theories & Conceptual Models ofPlanning Theories & Conceptual Models of Decision-MakingDecision-Making• Comprehensive PlanningComprehensive Planning


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The Urban System

• Concept of an urban area as a “system”• Subsystems

The Physical Subsystem

•Physical setting

•Infrastructure

Activity Subsystem

•Urban activities

•Urban economy

•Employment

Human Subsystem

•Population

•Attitudes & behaviours


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The Urban System -- cont’d

• The Physical Subsystem: composed of both natural and person-made components; has a set of characteristics and performance properties

• The Human Subsystem: composed of individuals and groups having various characteristics


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The Urban System -- cont’d• Activity Subsystem: interface between the

human subsystem with its properties and the physical subsystem with its own characteristics

Systems View– Emphasis on systems views of urbanized area

problems– Inter-relationship of the elements of urban structure Example: Urban activity system, land use, and

transportation


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The Urban Activity and Transportation Systems

URBAN ACTIVITY SYSTEM TRANSPORTATION SYSTEM

Land Development

Location Choice

Activity Schedules

Activity Patterns

Transportation Network

Automobile Ownership

Travel Demand

Network Flows


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The Land Use Transport Feedback CycleMode choiceRoute

choice

Link loads

Travel times/distances/cost

Accessibility

Site attractiveness

Location decisions of investors

Construction

Location decisions of users

Moves

Activities

Car ownership

Trip decisions

Destination choice choice

Transport

Land use


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The Basic Framework for Urban Planning:

Systems Approach

1. General purpose is to introduce some of the basic ideas of systems analysis

1. Specific aim is to provide a background which will help us perceive the ways in which systems analysis can be used in formulating urban plans


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The Need for Systems Analysis

1. The material and non-material world has changed profoundly from what it was many years ago.

1. Our tendency to view problems more broadly and comprehensively.

2. Both the real world and our perception of the real world have changed.


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Some Characteristics of the Urban Phenomenon

1. Great size – the magnitude of the phenomena being treated

2. Breadth – the relationships between various components

3. Complexity: (a) numerous parts,

(b) relationship between parts

4. High Cost

5. Uncertainty


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Systems Analysis

Current Observations New Observations

(at t=0) (at t=1)

• Goals

• Objectives Analysis Evaluation Selection Partial

• Criteria Implementation

• Standards

Alternatives

Feedback


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Investigate and identify the problem

Develop problem statement

Establish goals and objectives

Establish criteria (and standards) for design and evaluation

Design alternative actions

Collect relevant data

Analyze alternatives

Evaluate alternatives in terms of effectiveness & costs

Choice

Implementation (of some parts of the Plan)

Systems Analysis – cont’d


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Problem Definition

• Goals are ends towards which planning effort is directed

• Objectives are expressed in a form that is more detailed and achievable. A goal can be divisible into a number of objectives

• Criteria are defined from objectives and expressed in measurable and achievable terms

• Standards – specified values of criteria

• Constraints – all constraints have to be identified

Goals Objectives Criteria Standards


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Example

• Note: Goals, objectives, criteria can be assigned priorities (i.e. weights can be applied)

Example:Goals: To make work sites accessible, energy

efficient in location, environmentally suitable for development, cost-effective to serve with infrastructure, and compatible with surrounding areas.


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Example -- cont’d

Objectives:

• To minimize cost of transit and road network

• To maximize accessibility of work locations by transit and private transport

• To minimize trip lengths for all travel in locating work area sites

• …


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Example -- cont’d

Criteria (for design and evaluation)• Maximize the coverage of transit – arterial streets & important

collectors should be served by transit• Minimize capital costs, maintenance costs and operating costs

of roads and transit systems• Minimize summation of interzonal travel time• …Standards• Minimum peak frequencies of transit (x buses/hr)• Transit stations/bus stops shall be no more than x meters of

distance from any generator of travel• All sites for industry and general commercial use shall be

within d distance from an arterial, etc.


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Definition (Design) of Alternatives

AlternativesDevelopment of concept plan alternatives – strategic levelHow to grow? Major transportation facilities defined, etc.

Analysis of AlternativesTo forecast (to estimate) the consequences of the alternatives –

with respect to “criteria” for design and evaluation.

Note:objective criterion

Goal objective criterionobjective


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Evaluation of Alternatives

To assess the +’ve and –’ve aspects of the consequences of alternatives; to assess the effectiveness & costs:

• (Benefit-cost) Analysis

• Cost-Effectiveness Analysis

• Overall Effectiveness Analysis

• Statements of +’ve and –ve features


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Evaluation of Alternatives-- cont’d

Choice• Decision by the council; approved by the province

Partial Implementation (following Detailed Design)• Private• Public sector facilities & services

Review, Re-evaluate• To establish whether changes/modifications are

required


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Socio-economic environment

Problem Definition

Broad Specification of supply strategies

Strategy (systems) analysis

Evaluation & Choice

Detailed Analysis & Evaluation

Partial Implementation/demonstration study

Re-evaluation of strategy & system

Choice

Implementation

The Progressive Planning Approach(The Systematic Approach; Systems Analysis Approach)

PreliminaryAnalysis

Detailed Analysis

Partial

Implementation

Systems Approach Continued


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Transportation Planning in the Transportation Planning in the System ContextSystem Context

Transportation is an important subsystem of the Urban System


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Problem Recognition & Definition• Values, goals, objectives, criteria for Re-examination of

design & evaluation (Issues)– societal needs goals & objective

Solution Generation• Resources• Alternatives

Solution Analysis• Land Use & Transportation

Model Estimation of Impacts

Evaluation & Choice

Capital Programming

Implementation

Monitoring

Transportation Planning in the System Context


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Goals, Objective, Criteria

Values Goal Objective Criterion

Goal Objective Criterion

Values: the underlying basic qualities upon which ethics, morals, and preferences of societies, groups, & individuals are based.

Goals: the idealized desired ends at which the planning process is based (e.g. safety, environmental quality, mobility for various groups, etc.)


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Goals, Objective, Criteria -- cont’d

• Objectives: measurable operational statements of goals (e.g. Access to jobs, access to cultural & other facilities).

• Criteria: indices of measurement capable of defining the degree to which an objective (or goal) has been attained.

*Criteria are used for system design & evaluation


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Systems Analysis (Continued)

Solution Generation:Plan option: [Land use + Transport] Resources

Solution Analysis:Alternatives Land use Impacts

Transportation (Consequences)Model

Evaluation: to place values on impacts & assess the desirability of solutions


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Goals, Objective, Criteria -- cont’d

Choice: the political process

Capital Programming: assignment of resources to segments of the plan

Implementation: to build, operate


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The Framework for Urban The Framework for Urban Transportation Planning: Transportation Planning: Additional Information Additional Information


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Organize the process

Design the Program

InventoryExisting conditions

Prepare computer zones & networks

Forecast growth & development

Forecast travel & impacts

Evaluate alternativeTransportation improvements

Recommend plan

The Transportation Planning Process

Initiate Community Participation

Form Committees

Define goals & objectives

Transportation Improvement Alternatives


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Organizing the Process

• Problem to be addressed

• Reasons for planning

• How to design the planning program?

• Who should be involved?


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Committees

Dealing with:

• Policy factors

• Citizen advisory factors

• Technical factors

Goals & Objectives: covered earlier


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Community Participation

• How to involve the “community”?• Parts of “community”?• How to get feedback?• How to provide information?• Active participation at all levels of planning process

Program Design: What will be done? By Whom? When?

The program design should be adaptable to changing situations.


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Background

Due to growing list of issues & severity of issues and public pressure, transportation planning has to address the following requirements:

• Comprehensive consideration of social, economic, land use, and environmental effects of all modes of transportation.

• Coordination of: all government agencies

• Provide for participation in the planning process by citizens & other interest groups affected


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Background -- cont’d

• Update overtime: regional & local area plans– reflecting growth in urban areas, changes in land use, transportation needs & performance of transportation facilities.

• Work with those agencies who have implemented the plan and developed projects


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Urban Transportation Planning & Management

Long termMedium termShort term

Long term, Comprehensive, Strategic Planning:

• Land use & transportation scenarios “Official Plan Framework” (A legal document, a blue print for development)

• Infrastructure changes


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Urban Transportation Planning & Management -- cont’d

Medium Term – combined elements of short term and pressing features of long term planning (e.g. traffic control systems)

Short Term – obtain best use from existing facilities and services (TSM – transportation System Management)


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Plan Testing & Development

Current Traffic Present deficiencies

Percent facilities & service Future deficiencies

(under “do-nothing” case)

Future traffic

Future deficienciesFuture facility (for future system& service options alternatives)


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Future traffic on“committed system”

Current traffic on existing system

Future traffic on existing system

Test alternative additional roads/highways

Test public transit options in high-demand corridors

Test HOV* network in capacity- constrained corridors

Review results with committees & councils/boards & community groups

Select final plan *HOV: High Occupancy vehicle

Present deficiencies

Future deficiencies under do-nothing


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Planning Theory & Conceptual Planning Theory & Conceptual Models of Decision-MakingModels of Decision-Making

Applicable to the overall Urban System & Subsystems


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Planning Theory & Conceptual Models of Decisions-Making

Approaches to the process of planning & decision-making:

• The Rational Approach (the system Analysis Approach)

• The Satisficing Approach

• Disjointed Incrementalism Approach– opposite to the Rational Approach

• Middle Level Approach (mixed scanning—includes elements of the Rational Approach & the Disjointed Incremental Approach)

Rational Approach

Satisficing Approach

Middle Level Approach

Disjointed Incrementalism


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The Rational Approach

Calls for a:

• Comprehensive effort, elements of optimization (to define a number of alternatives & select the best)

• Steps have been covered already the Systems Analysis Approach

• Although logical & comprehensive, some believe that it is very demanding (in terms of time and money)


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The Rational Approach -- cont’d

• This approach enables:

- All relevant goals to be included

- Contradictory goals can be sorted

- Feedbacks are allowed (e.g. from evaluation back to goals/objectives/criteria) so as to clarify “values”


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The Satisficing Approach

• According to some views, the real world looks for “satisfactory” or “adequate” solutions (plans) – not “the best” among a number of alternatives.


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Disjointed Incrementalism

• “Muddling through”

• No need to work with a range of possible courses of action– focus on a short list of serious alternatives

• Work with marginal or incremental changes to the previous policies & plans


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Middle Level Approach (mixed scanning)

Includes elements of the Rational Approach and the Disjointed Incrementalism.


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Advocacy PlanningAdvocacy Planning

A Brief Introduction


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Advocacy Planning

• For whom to plan?

• To whom the planner should give her/his loyalty?

In Systems Approach– multiple goals, multiple interests, and the questions of “who pays, who gains”, are handled.


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Planning from Right and Left

• Right– “market mechanisms” are regarded as more efficient allocators of resources than are administrative decisions.

• Left– “view fromthe left” is critical of the influence of the capitalistic interests

In Systems Approach, both views can be accommodated


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Examples of Distribution Goal/Objective/Criteria

• Range of the public to be served?

• Geographic areas within the urban region– which one (or ones) should be developed

• Social classes or age groups

e.g.– Mobility for the poor, handicapped, old-aged non-drivers

– Inner city residents impacted by road developments that improve mobility for the suburban residents


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A Hypothetical ExpresswayThrough a Downtown Area

(highly simplified)

See Impact-Incidence Matrix:

+ve impact

-’ve impact

CBD

Fringe

Proposed Expressway


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Group impacted

Impacts

Direct market values

Indirect non-market values

Other quanti-fiables

Other non-quantifiables

Suburban users of inner city expressway

Construction $(-)

Operating costs $(+)

Travel time saved $ (+)

Accidents damage $(+)

Fewer lives lost

(+)

Less difficulty finding way (+)

Benefits – Costs > 0

Inner City inhabitants

Acreage taken $(-)

Lost tax base

$(-)

Travel time(?)

Relocations(-)

Increased noise level (-)

Increased pollution (-)

Difficulty in getting around expressway (-)

All affectedOverall

Benefits – Costs > 0?


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The Comprehensive PlanThe Comprehensive Plan

For the Urban Area and its Components


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The Comprehensive Plan

• It covers the entire urban area and all components of the urban system

• It has along time horizon – 20 years+

• Goals – all relevant goals are covered; all interest are accommodated; conflicting goals/objectives/criteria are treated


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The Comprehensive Plan -- cont’d

Goals normally cover the issues of: • health, • public safety, • circulation, • provision of services and facilities,• fiscal health, • economic development,• environmental protection,• and perhaps some “redistributive” goals.


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Stages of the Comprehensive Planning Process

The same as described under the Systems Analysis; “research” can be highlighted (add to the “problem definition” and other steps – normally understood to be there)

september 2005urban planning carleton university 1 planning urban system and components systems view...

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