Summary
With respect to large development projects town planning in Britain has abandoned the judicial model—based on relatively objective application of rules in the grant or refusal of planning permission—in favour of a contract model—a model based upon dealing and negotiation. Planning permissions are thus bargained for. The permit is granted in “. planning gain”.—which can take the form of a community building or the grant of housing.
The reason for this shift away from rules is based not only on the lack of clear standards to guide development but also upon the structure of the decision-making situation (diadic or tryadic) and also upon factors involving the political and administrative culture of Britain. Factors here involve hostile attitudes to law and lawyers, and new “corporate” methods of public administration that avoid the legal control of official discretion.
Zusammenfassung
Bei großen Entwicklungsplanungen hat die Stadtplanung in England das Modell der gerichtlichen Nachprüfbarkeit (das auf einer objektiven Anwendung von Vorschriften bei der Baugenehmigung beruht) zugunsten eines Vertragsmodells verlassen. (Ein Modell, das auf Verhandeln und Kompromiß beruht) Die Genehmigung wird erteilt „im Austausch“ für „Planungsgewinne, die in der Realisierung eines öffentlichen Gebäudes oder der Finanzierung von Bauvorhaben bestehen können“. Die Gründe für das Abgehen von regel gebundenem Verwaltungshandeln liegen nicht nur im Mangel klarer Entscheidungsregeln, sondern auch in der Struktur der Entscheidungssituation, sowie in generellen Einstellungen innerhalb der politischen und Verwaltungs-Kultur Großbritanniens. Feindselige Ablehnung von Recht und Rechtsanwälten herrscht vor; neue „korporative“ Formen der Verwaltungsentscheidung, die rechtliche Kontrolle vermeiden, werden bevorzugt.
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Anmerkungen
P. Hall, Urban and Regional Planning, (1975), p. 6.
L. Fuller, The Morality of Law, (1959), p. 106.
The words of John Burns, President of the Local Government Board, introducing the Housing, Town Planning, etc. Act, 1909. See J. B. Cullingworth, Town and Country Planning in Britain (1976), p. 16.
D. Foley, Controlling London’s Growth: Planning the Great Wen 1940–60, (1963), p. 53.
“. The Future of Development Plans”, Report of the Planning Advisory Group, HMSO, (1965).
See P. Drucker, The Concept of the Corporation (1946), R. Titmuss, “. Welfare ‘Rights’, Law and Discretion”(1971) 42 Political Quarterly, p. 113.
K. C. Davis, Discretionary Justice. A Preliminary Inquiry (1969). For my discussion of the judicialisation and legalisation of administrative decisions see J. Jowell, Law and Bureaucracy (1975). See also J. Jowell, “. Judicial Decision-making and Administrative Tasks” Zur Soziologie des Gerichtsverfahrens, Jahrbuch für Rechtssoziologie und Rechtstheorie, Band 4, ed. L. Friedman und M. Rehbinder, 1976, pp. 185-205.
Town & Country Planning Act, 1971, s. 6, 7.
Town & Country Planning (Structure and Local Plans) Regulations S. I. 1974 No. 1486, (1) and Schedule 1.
s. 29 (1) of the Town & Country Planning Act, 1971.
Ibid.
Town & Country Planning (Structure and Local Plans) Regulations s. I. 1974 No. 1486, 9 (1) and Schedule 1.
See e.g. Hall v. Shoreham-by-sea U.D.C. [1964] 1 W.L.R. 240, Fawcett Properties v. Bucks C. C. (1959) 2 All E.R. 321, R. v. London Borough of Hillingdon ex. p. Royco Homes [1974] 2 W.L.R. 805.
See O. Marriott, The Property Boom (1967) and S. Elkins, Politics and Land Use Planning (1974).
The power was introduced by s. 34 of the Town & Country Planning Act, 1934, and was contained in s. 10 of the Town & Country Planning (Interim Development) Act, 1943, s. 24 of the Town & Country Planning Act, 1947, and s. 37 of the Town & Country Planning Act, 1962.
The sample comprised 106 of 370 English local authorities, and included all the London authorities, all the metropolitan authorities (counties and districts), and the non-metropolitan districts containing the 30 largest towns outside London and the metropolitan areas. The research was supported by a grant from the Social Science Research Council.
87 of the 106 questionnaires were completed. The figures and percentages below will refer to these completed questionnaires.
Interviews were conducted with the planning or legal officers (or both) and lasted between 11/2 and 5 hours.
This research has been reported in the Journal of Planning and Environmental Law, July 1977, pp. 414–433.
See cases cited at note 13 above.
V. Aubert, “. Competition and Dissensus: Two Types of Conflict and Conflict Resolution” (1963), J. of Conflict Resolution, p. 26, and “. Courts and Conflict Resolution” (1967), J. of Conflict Resolution, p. 40.
C. Lindblom, The Intelligence of Democracy (1965).
V. Aubert, op. cit. Supra.
L. Fuller, “Collective Bargaining and the Arbitrator” (1963) Wisconsin L. Rev. 3.
See M. Eisenberg, “Private Ordering Through Negotiation: Dispute-Settlement and Rulemaking” (1976) Harvard L. Rev. 637.
See R. Pahl and J. T. Winkler, “Corporatism in Britain: Why Protecting Industry Need Not Mean More Bureaucracy” The Times, March 26, 1976, p. 14, cols. 1-5; J. T. Winkler, “. Law State and Economy: The Industry Act 1975 In Context” (1976) Brit. J. of Law & Society, p. 103.
A. V. Dicey, The Law of the Constitution (1885).
W. Ivor Jennings, The Law and the Constitution (1933).
See K. C. Davis, Discretionary Justice: A Preliminary Inquiry (1969), ch. 2.
R. Titmuss, supra, note 6.
See J. B. McLoughlin, Urban and Regional Planning: A Systems Approach (1969).
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Jowell, J.L. (1980). Town Planning in Britain: The Flight from the Judicial Model. In: Blankenburg, E., Lenk, K. (eds) Organisation und Recht. Jahrbuch für Rechtssoziologie und Rechtstheorie, vol 7. VS Verlag für Sozialwissenschaften. https://doi.org/10.1007/978-3-322-83669-4_4
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