Lyn Ellen Pleger Democratic Acceptance of Spatial Planning Policy Measures Democratic Acceptance of Spatial Planning Policy Measures Lyn Ellen Pleger Democratic Acceptance of Spatial Planning Policy Measures 123 LynEllen Pleger,PhD KPM Centerfor Public Management University of Bern Bern, Switzerland ISBN978-3-319-90877-9 ISBN978-3-319-90878-6 (eBook) https://doi.org/10.1007/978-3-319-90878-6 LibraryofCongressControlNumber:2018939947 ©SpringerInternationalPublishingAG,partofSpringerNature2019 Thisworkissubjecttocopyright.AllrightsarereservedbythePublisher,whetherthewholeorpart of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission orinformationstorageandretrieval,electronicadaptation,computersoftware,orbysimilarordissimilar methodologynowknownorhereafterdeveloped. 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Printedonacid-freepaper ThisSpringerimprintispublishedbytheregisteredcompanySpringerInternationalPublishingAG partofSpringerNature Theregisteredcompanyaddressis:Gewerbestrasse11,6330Cham,Switzerland Acknowledgements This book is based on my Ph.D. thesis and writing this book was only made possiblethroughthesupportofmanydifferentpeopletowhomIowealotofcredit, thank you very much. Aboveall,IwouldliketoconveymymostsincerethankstomysupervisorProf. Dr.FritzSager.HewasnotonlyagreatPh.D.supervisor,alwaysprovidinghelpful advicethroughoutthewholeprocessofthisbook,buthewasalsoamentorwhose academic and professional experience was a consistent and great source to learn from. I appreciate that he enabled me to follow my own research approaches and alsoalwaystooktimetoprovideconstructiveinputandencouragement.Thankyou very much. SpecialthanksgotoProf.Dr.IsabelleStadelmann-Steffen,thesecondsupervisor of my Ph.D. thesis, who provided very valuable input and comments addressing boththeoreticalconsiderationsaswellasmethodologicalapplications.Iwouldlike to thank Philipp Lutz for the productive cooperation with him and Fritz Sager on the experimental study of this book. I am also very grateful to the Swiss National Science Foundation (SNF), which funded the research of my Ph.D. thesis as part of the research project POLISOL (grant 157851). Forthesuperbworkingatmosphere,Iwouldliketothankallmycolleaguesand friendsfromFritzSager’sresearchteam.Itwasalwaysfun,whichmadeitfeelless like work and I have also benefited greatly from their input and support. I had a great time during my work at the KPM, thank you, Team Sager. Importantly, I would like to express my deepest gratitude to my friends and family. Explicitly, Ifirstly thank Philfor all his support.Iwould alsolike tothank Phil, Gareth, Liam and Christine for proofreading my English. For their critical feedbackandenrichingcomments,Iwouldalsoliketoexpressmyspecialthanksto my friends Sharon, Andrea, Susanne, Kolja, Anna, Peter and Nula. In addition, I thank the RHB from Refrath. Myparticularandexplicitthanksfortheirunwaveringsupportgotomyparents, DorisandRoland,thankyouverymuchforeverything.Ialsothankmysister,Inga, as well as Bernd, Emil, Jonas, Ulrike, Arnim, Merle and Marit. v Contents 1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1.1 Research Question . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 1.2 Research Aims and Contribution . . . . . . . . . . . . . . . . . . . . . . . . . 4 1.3 Current Challenges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 1.4 Empirical Research Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 1.5 Structure of the Book . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 Part I Sustainable Spatial Planning and Democratic Acceptance 2 Sustainable Spatial Planning in Direct Democracies: The Case of Switzerland. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 2.1 Spatial Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 2.1.1 Terminology and Meaning of Spatial Planning . . . . . . . . . 19 2.1.2 Origin and Establishing of Spatial Planning. . . . . . . . . . . . 20 2.1.3 Challenges, Fundamentals and Goals of Spatial Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 2.1.4 Sustainability in the Context of Spatial Planning . . . . . . . . 23 2.2 Spatial Planning as a Public Policy . . . . . . . . . . . . . . . . . . . . . . . 24 2.2.1 Mode of Action of Spatial Planning Policies. . . . . . . . . . . 24 2.2.2 Involvement Pattern of Affected Parties . . . . . . . . . . . . . . 26 2.3 Sustainable Spatial Planning Measures. . . . . . . . . . . . . . . . . . . . . 29 2.3.1 Definition and Types of Spatial Planning Measures . . . . . . 29 2.3.2 Regulative Policy Instruments and Incentive-Based Policy Instruments. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 2.3.3 Effectiveness of Spatial Planning Measures . . . . . . . . . . . . 31 2.4 Spatial Planning in Switzerland. . . . . . . . . . . . . . . . . . . . . . . . . . 33 2.4.1 Characteristics of Spatial Planning in Switzerland . . . . . . . 34 2.4.2 Origin and Establishing of Spatial Planning in Switzerland . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 2.4.3 Spatial Planning Measures in Switzerland . . . . . . . . . . . . . 38 vii viii Contents 3 Democratic Acceptance of Spatial Planning Policies . . . . . . . . . . . . . 39 3.1 Definition of Acceptance of Public Policies . . . . . . . . . . . . . . . . . 40 3.1.1 Differences Between Acceptability and Acceptance . . . . . . 41 3.1.2 Measuring Democratic Acceptance of Spatial Planning Measures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42 3.2 Direct Democracy in Switzerland . . . . . . . . . . . . . . . . . . . . . . . . 45 3.2.1 Direct-Democratic Rights in Switzerland. . . . . . . . . . . . . . 46 3.2.2 Usage of Direct-Democratic Rights. . . . . . . . . . . . . . . . . . 47 3.3 State of Research on Democratic Acceptance Determinants of Policy Measures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 3.3.1 Findings from Environmental Policies. . . . . . . . . . . . . . . . 51 3.3.2 Findings from Transport Policies . . . . . . . . . . . . . . . . . . . 52 3.3.3 Approaching Democratic Acceptance of Spatial Planning Policy Measures . . . . . . . . . . . . . . . . . . . . . . . . 55 Part II Acceptance of Spatial Planning Measures at the Macro Level: A Multilevel Approach 4 Determinants of Democratic Acceptance: A Two-Level Analysis . . . 59 4.1 Theoretical Framework and Hypotheses. . . . . . . . . . . . . . . . . . . . 61 4.1.1 Individual Determinants . . . . . . . . . . . . . . . . . . . . . . . . . . 63 4.1.2 Contextual Determinants . . . . . . . . . . . . . . . . . . . . . . . . . 65 4.2 Data and Operationalization . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69 4.3 Method and Model. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71 4.4 Results. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75 4.5 Preliminary Discussion and Conclusion . . . . . . . . . . . . . . . . . . . . 83 4.6 From Contextual Determinants to the Importance of the Content . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85 PartIII AcceptanceofSpatialPlanningMeasuresattheMesoLevel: A Case Study 5 The Motivation Behind Democratic Acceptance: A Case Study . . . . 89 5.1 The Ballot Proposal of the Amendment of Spatial Planning Law. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91 5.2 Theoretical Framework: Heuristic Versus Systematic Reasoning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92 5.2.1 Heuristic Reasoning: Peripheral Context . . . . . . . . . . . . . . 93 5.2.2 Systematic Reasoning: Motivation Content . . . . . . . . . . . . 94 5.3 Research Design. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96 5.3.1 Data and Operationalization . . . . . . . . . . . . . . . . . . . . . . . 97 5.3.2 Model. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99 Contents ix 5.4 Results. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100 5.4.1 Peripheral Context. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100 5.4.2 Motivation Content . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102 5.4.3 Comprehensive Model . . . . . . . . . . . . . . . . . . . . . . . . . . . 108 5.4.4 Personal Reasons for Voting Decisions. . . . . . . . . . . . . . . 109 5.5 Preliminary Discussion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113 5.6 Preliminary Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115 5.7 From Content Determinants to the Importance of the Content Provision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116 Part IV Acceptability of Spatial Planning Measures at the Micro Level: An Experimental Approach 6 Framing Effects on Democratic Acceptability: An Experimental Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121 6.1 Theoretical Framework: Framing Theory and the Causal Model of Public Policy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 124 6.2 Hypotheses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 127 6.3 Experimental Research Design . . . . . . . . . . . . . . . . . . . . . . . . . . 128 6.3.1 Procedure and Method. . . . . . . . . . . . . . . . . . . . . . . . . . . 129 6.3.2 Participants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 131 6.4 Results. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 132 6.4.1 Goal Framing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 133 6.4.2 Attribute Framing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135 6.5 Preliminary Discussion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 136 6.6 Preliminary Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 139 6.7 Further Findings from the Experiment . . . . . . . . . . . . . . . . . . . . . 141 6.7.1 Acceptability of Incentive-Based Spatial Planning Measures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144 6.7.2 Acceptability of Specific Characteristics of Spatial Planning Measures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146 Part V Discussion and Conclusions 7 Discussion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 151 7.1 Initial Research Question and Procedure . . . . . . . . . . . . . . . . . . . 152 7.2 Synthesis of Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153 7.2.1 What Are the Contextual Determinants of Democratic Acceptance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153 7.2.2 How Does the Content Influence Democratic Acceptance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155 7.2.3 Which Means of Information Provision Influences Democratic Acceptance . . . . . . . . . . . . . . . . . . . . . . . . . . 156 7.2.4 Overall Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 157 x Contents 7.3 Interpretations and Possible Explanations. . . . . . . . . . . . . . . . . . . 160 7.3.1 Particularity of Spatial Planning as a Policy Area . . . . . . . 161 7.3.2 Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163 7.3.3 Embedded Layering Model for Spatial Planning Policy Measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 166 8 Conclusions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 169 8.1 Implications for Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 170 8.2 Lessons for Practice . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 173 Appendices.... .... .... .... ..... .... .... .... .... .... ..... .... 177 References.... .... .... .... ..... .... .... .... .... .... ..... .... 193 Abbreviations AP Freedom Party of Switzerland [Freiheits-Partei der Schweiz] CBA Cost-Benefit Analyses CI Credible Interval CVP Christian Democratic People’s Party [Christlichdemokratische Volkspartei] EU European Union EVP Evangelical People’s Party [Evangelische Volkspartei] FDP FDP.The Liberals [FDP.Die Liberalen] FL First Level GLM Generalized Linear Model GPS Green Party [Grüne Partei der Schweiz] KPM Center for Public Management [Kompetenzzentrum für Public Management] MCMC Markov Chain Monte Carlo ML Multilevel OECD Organisation for Economic Co-operation and Development PI Policy Instrument PPP Polluter Pays Principle RPG Federal Law on Spatial Planning [Raumplanungsgesetz] SD Standard Deviation SE Standard Error SL Second Level SP Social Democratic Party [Sozialdemokratische Partei der Schweiz] xi