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Planning Derry
- Planning and Politics in Northern Ireland
- Gerald McSheffrey
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- Published by:
- Liverpool University Press
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- 28 July 2017
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- 15 March 2000
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The story of the making and eventual implementation of a city and regional plan for the Londonderry area makes fascinating reading. Published in 1968, just before the outbreak of the recent 'troubles', it became the basis for subsequent plans implemented by officials of the Northern Ireland Department of the Environment, the Northern Ireland Housing Executive and dedicated community leaders. Their often heroic commitment to the future of the city and its environs transcends even the worst days of civil strife.The author was one of a small team that made the plan and he places it in context, explains how it came to be made and records the difficulties of planners working in the political circumstances that prevailed. Against the background of the general social, economic and physical conditions of the city and region, he focuses on the housing crisis before elaborating on the making of the plan in particular.Professor McSheffrey stresses that although the story may be of interest to planners and development professionals, it is not an academic study of the planning process. He hopes it will introduce general readers to the importance of planning and the complex social and ethical issues inherent in the process. Planning Derry for example, involved value judgements concerning people and political and religious views in Northern Ireland at the time, but he has tried to be objective and avoid bias or the espousal of a particular political viewpoint. The book is, above all, about the dedication of individuals who believed their planning efforts could make a difference and provide better living conditions and choices for the people of the area.McSheffrey concludes on an optimistic note concerning the future place of Derry in Ireland. As the peace process unfolds, he hopes that perhaps the people of Derry, as they continue to develop and rebuild their city, might become a symbol of liberation from the past and of expectations of a peaceful and prosperous future for all Irish people.
11 - Community Resolve
- Gerald McSheffrey
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- Book:
- Planning Derry
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- Liverpool University Press
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- 28 July 2017
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- 15 March 2000, pp 109-114
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Summary
‘Derry is a city in the hands of inspired leaders.’ The talent and energy of the many civic leaders of Derry is indeed incomparable and explains how this city, which has suffered so much, can reach beyond mere survival to embrace the future. Spanning just one generation John Hume, the consummate politician, and Phil Coulter, the composer and entertainer, have gained recognition far beyond their national and cultural boundaries. Their attachment to their native city is expressed by one in practical terms, while the other is inspired to express it in music. But there have been many others, perhaps not so well known, who have been instrumental in the development of their city. As A.E.J. Morris points out, ‘Theoretical planning expertise is of little significance in the absence of community resolution’. Eamonn Deane, James Doherty, Paddy Doherty, and John Hume are but a few of Derry's many leaders.
Although no longer as prominent an activist as he was in the fifties and sixties, James Doherty continues to serve the needs of the people of the area. He remembers his service as chairman of the Education and Library Board as one of the most rewarding and fruitful periods of his many years of public service, but what I remember most are his contributions to promoting the housing needs of Derry in the making of the Munce Plan and his consistent and unswerving belief in the benefits of planning for the future. John Hume's career and his continuing contributions to the development of the city and its population, from the sixties on, are unparalleled, and the scope of his career is different in that locally, nationally, and internationally it could be considered an example for aspiring politicians everywhere. In a recent book, he describes growing up in the Bogside and how he was drawn into the civil rights movement and a career in politics. Since 1972, he expanded his work to promote industrial development and secure investment in Derry by establishing ties with politicians in Europe and the United States. Much of the progress seen in Derry today is a direct result of these contacts.
10 - The Development Commission
- Gerald McSheffrey
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- Planning Derry
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- Liverpool University Press
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- 28 July 2017
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- 15 March 2000, pp 98-108
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Summary
The Londonderry Development Commission was established in 1969 by the O'Neill Government as it tried to stave off the impending crisis brought about by years of discrimination against Catholics in employment and housing. Under New Town Legislation adapted from the British model, an existing town could be designated for expansion. As in the case of a new town, a government commission would be appointed to subsume the powers of existing local authorities and implement the plan. The commission would be kept in place until such time as the plan was implemented and the normal process of governance by a town council would thereupon resume.
So Derry, for the second time in its history, became a ‘new town’. Neither Jim Foster nor I could have suggested that our speculative suggestion for implementation of the plan, excluding the involvement of the Unionist-dominated local authorities, would be realised so soon. That it did occur was not so much based on the rational objectivity of our recommendation but rather the mounting violence that left a weakened Stormont Government little alternative. It now seemed that some modicum of justice had been achieved as the gerrymandering Derry mayor and his Unionist councillors were despatched with one stroke of the pen. Brian Morton (later Sir Brian), a prominent Northern Ireland realtor, was appointed chairman of the Commission and Stephen McGonagle, a former President of the Irish Congress of Trade Unions, was appointed vice-chairman. Gerald Bryan, formerly Chief Executive and head of the Civil Service on the Isle of Man, turned out to be a highly effective general manager. There was equal representation of both Catholic and Protestant members forming the rest of the Commission, but its establishment would prove to be no panacea for the rising tide of violence. As Stephen McGonagle remembers: ‘We met in the Guildhall on 2nd April 1969 only to be met by Luddite squatters led by Eamonn McCann and Bernadette Devlin who were protesting everything.’ Thereafter the Commission was forced to hold its meetings in the Rural District offices whose powers it had also subsumed.
LIST OF ILLUSTRATIONS
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- 05 January 2012
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- 15 March 2000, pp x-xiii
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Frontmatter
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- 05 January 2012
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- 15 March 2000, pp i-v
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Planning Derry
- Planning and Politics in Northern Ireland
- Gerald McSheffrey
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- Published by:
- Liverpool University Press
- Published online:
- 05 January 2012
- Print publication:
- 15 March 2000
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- Book
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The story of the making and eventual implementation of a city and regional plan for the Londonderry area makes fascinating reading. Published in 1968, just before the outbreak of the recent 'troubles', it became the basis for subsequent plans implemented by officials of the Northern Ireland Department of the Environment, the Northern Ireland Housing Executive and dedicated community leaders. Their often heroic commitment to the future of the city and its environs transcends even the worst days of civil strife. The author was one of a small team that made the plan and he places it in context, explains how it came to be made and records the difficulties of planners working in the political circumstances that prevailed. Against the background of the general social, economic and physical conditions of the city and region, he focuses on the housing crisis before elaborating on the making of the plan in particular. Professor McSheffrey stresses that although the story may be of interest to planners and development professionals, it is not an academic study of the planning process. He hopes it will introduce general readers to the importance of planning and the complex social and ethical issues inherent in the process. Planning Derry for example, involved value judgements concerning people and political and religious views in Northern Ireland at the time, but he has tried to be objective and avoid bias or the espousal of a particular political viewpoint. The book is, above all, about the dedication of individuals who believed their planning efforts could make a difference and provide better living conditions and choices for the people of the area. McSheffrey concludes on an optimistic note concerning the future place of Derry in Ireland. As the peace process unfolds, he hopes that perhaps the people of Derry, as they continue to develop and rebuild their city, might become a symbol of liberation from the past and of expectations of a peaceful and prosperous future for all Irish people.
5 - THE HOUSING CRISIS
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- Liverpool University Press
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- 05 January 2012
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- 15 March 2000, pp 42-50
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Summary
We had spent the time from our appointment in March to our next meeting with the Steering Committee in June beginning the surveys necessary to prepare the plan. We had yet to determine if and how the planning process should be adapted to take account of a number of developments in the pipeline. The June meeting opened with the Chairman, Commander Anderson, forcefully reminding us once more that it was the Steering Committee that had been established to produce a plan for the area. Our role, as he saw it, was to serve as technical advisers. I was relieved that Jimmy had now decided to present the report prepared by Stan and myself, and that we were only to field questions when necessary. This was obviously more acceptable to the Chairman and became the modus operandi for all our meetings. Jimmy knew that a number of road proposals were of immediate concern and mentioned the need to consider a second river crossing when establishing the future road pattern. He went on to assure the committee that road improvements and other developments in the pipeline, which would not prejudice the overall planning of the area, would not be unnecessarily delayed.
Councillor James Doherty succinctly explained that he saw the task of the committee as operating at two levels. First, there was the task of dealing with pressing situations requiring first aid and second, the preparation of a plan to accommodate future growth.
11 - COMMUNITY RESOLVE
- Gerald McSheffrey, Arizona State University
-
- Book:
- Planning Derry
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- Liverpool University Press
- Published online:
- 05 January 2012
- Print publication:
- 15 March 2000, pp 109-114
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Summary
‘Derry is a city in the hands of inspired leaders.’ The talent and energy of the many civic leaders of Derry is indeed incomparable and explains how this city, which has suffered so much, can reach beyond mere survival to embrace the future. Spanning just one generation John Hume, the consummate politician, and Phil Coulter, the composer and entertainer, have gained recognition far beyond their national and cultural boundaries. Their attachment to their native city is expressed by one in practical terms, while the other is inspired to express it in music. But there have been many others, perhaps not so well known, who have been instrumental in the development of their city. As A.E.J. Morris points out, ‘Theoretical planning expertise is of little significance in the absence of community resolution’. Eamonn Deane, James Doherty, Paddy Doherty, and John Hume are but a few of Derry's many leaders.
Although no longer as prominent an activist as he was in the fifties and sixties, James Doherty continues to serve the needs of the people of the area. He remembers his service as chairman of the Education and Library Board as one of the most rewarding and fruitful periods of his many years of public service, but what I remember most are his contributions to promoting the housing needs of Derry in the making of the Munce Plan and his consistent and unswerving belief in the benefits of planning for the future.
8 - Selling the Plan
- Gerald McSheffrey
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- Planning Derry
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- Liverpool University Press
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- 28 July 2017
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- 15 March 2000, pp 85-90
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Summary
Putting the final plan together would be achieved in a matter of weeks because of the enormous amount of graphics produced by Mike Murray and his team and the availability of both this material and text from the reports. The team had worked day and night for over a year, sacrificing many weekends in the process as had all the team. Because of the nature of their work Mike's group were inevitably at the end of the production line. This usually meant spending anything from two to four days with little or no sleep printing reports to ensure that the Steering Commit-tee's efforts remained focused. Mike told me later that he was never nearer a divorce from his wife Lynn than during this period even though she worked in the office and understood that architects and planners often worked en charrette through the night. Alan Bradshaw and Jim Foster were also near the limits of their endurance, but no one complained and the excitement of finally producing a plan and the opportunity to make it public at last kept the momentum going over these final weeks.
I worked with Jim Foster and Mike Murray's team to organise a draft of the final plan, which was to be presented to the Steering Committee at their meeting on 25 January 1968. Taking the text and illustrations from the nine reports, Jim and I proceeded to organise it so that the plan could be read in its entirety by the general public, reducing sometimes lengthy reports into a chapter of twelve pages or so. It was often a struggle to capture the essence of a report using as few technical terms as possible and eliminating any planning jargon that might have inadvertently crept in. With dictionary and thesaurus nearby we would ponder each word and phrase until we were both satisfied, but we had to be careful to keep as near as possible the original text so that the committee would recognise it as something they had already approved. If questioned we would need to be able to refer to the reports and make clear that where changes had occurred they had been made solely in the interests of clarity and continuity.
9 - Interlude
- Gerald McSheffrey
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- Planning Derry
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- 28 July 2017
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- 15 March 2000, pp 91-97
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I have often reflected on my decision to leave the Munce Partnership, and while in the long run I had no reason to regret my decision, I realised that my people-participation model did not fit very well with the aggressive entrepreneurial goals of private practice. My planning qualifications had not been acquired without great cost to myself and my young family and I cherished the title of chartered planner. While my ethical standards might have been described as overly conservative at the time, Jimmy's Nietzschean approach to practice sometimes left me unnerved. When we had finished the Derry plan Jimmy had anticipated that we might somehow become involved in its implementation. To his credit he had been prepared to gamble on this and must have sustained considerable losses in producing the plan. While his time commitment and role in Derry had made him a background figure as far as the team was concerned, his advocacy at meetings and his work behind the scenes were critical in dealing with the Steering Committee and getting the plan accepted.
Nevertheless even today I find the necessary marketing aspects of private practice un-comfortable and look back with some nostalgia to what seemed to have been a time when work was earned solely on the basis of reputation. I realise, however, that this pre-fifties model is probably a chimera of my own making, and in this too I have not yet wholly succeeded in discarding my Candide-like persona. But working for the Belfast city planning department, in public service, and being placed in charge of a small office of a dozen or so staff responsible for urban design and design review for a city of approximately 700,000 seemed to be a good alternative to even the imagined vicissitudes of private practice. Also, notwithstanding the spectre of the ring road at that stage in my career it offered a more secure if less exciting livelihood. But my ability to successfully persuade private architects to take more cognizance of the context of their buildings and their social responsibilities, met with more success in contrast to the downright opposition I encountered in my dealings with the city architect's department.
BIBLIOGRAPHY
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- Liverpool University Press
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- 05 January 2012
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- 15 March 2000, pp 130-132
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3 - The Planning Team
- Gerald McSheffrey
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- Planning Derry
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- 15 March 2000, pp 24-29
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Numerous theories exist today on teamwork and teambuilding. From a distance of thirty years, it seems to me that more than chance brought our small planning team together. Each one of us—and each of our consultants as well—turned out to be vital for the making of the Londonderry plan. The contribution of consultants proved to be essential in the successful outcome of the plan and the absence of even one of the participants, whether staff or consultant, would have greatly diminished the end result. Interestingly as it turned out, the backgrounds and philosophical outlook of everyone involved were so intertwined thatwe could almost anticipate each others thoughts.Not that therewasn't argument and even dissension at times, but the infrequent nature and substance of the arguments and the goodwill and humour of the participants, combinedwith incredible dedication and hard work, enabled us to accomplishmuchwithin a very short time.
While at least half the teamhad known each other formany years in the Munce office and had established good working relationships, there were other factors influencing the strong philosophical direction that evolved during the making of the plan. Paramount was the influence of the pioneering, turn-of-the-century planner, Patrick Geddes. The attitude of Geddes to industrialised countries was succinctly explained by Percy Johnson-Marshall who wrote that:
As far back as 1911, Patrick Geddes explained that two kinds of vision were necessary in countries such as Britain, which includes numerous urban agglomerations: one, a vision of economic activity and broad land use distribution, was regional in scale; the other, essentially visual, was a three-dimensional exploitation of the imaginative possibilities inherent in all technological inventions which had, by theirmisuse, tended to destroy the existing environment rather than help create a new one.
Also important to the team was the emphasis Geddes placed on survey, and we were always mindful of his paradigm of Place, Folk and Work. I suspect also that with the exception of the engineers on the team we were all in some way Utopians, although I personally liked to think of myself as a pragmatist—a term then in vogue and frequently overused by British Prime Minister Harold Wilson, a Socialist. Peter Daniel, Mike Murray, and I all had strong Edinburgh connections where the ideas of Geddes and his ‘Outlook Tower’ had been kept alive by Johnson- Marshall.
4 - PLACE, FOLK AND WORK
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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The city of Derry, or Londonderry as it was known at the time of the plan, is situated on the River Foyle at the neck of the Inishowen Peninsula, five miles south of the river's confluence with the large sea inlet of Lough Foyle. While no precise records exist, it is known that people have settled in the area at least since the Bronze Age. In 1965 it had a population of around 56,000. By contrast the larger rural district had a population of about 25,000 and extended south-eastwards from the city in an isosceles triangular-like form for a distance of some twenty miles towards the Sperrin Mountains. Its northern boundary ran along the border with County Donegal and the Irish Republic while its western boundary followed that of County Tyrone. The eastern boundary aligned with that of Limavady Rural District and the remainder of County Londonderry. The total area of the county borough and rural district combined is about 134 square miles, and the rural district is bisected by the smaller River Faughan, which terminates in the Foyle Estuary. The Foyle itself flows majestically in a north-easterly direction, then embraced by its lough, reaches out to meet the broad expanse of the Atlantic Ocean.
Dominating the valley of the Foyle lie the foothills of the Sperrin Mountains to the east and the Donegal Hills to the west.
2 - The Steering Committee
- Gerald McSheffrey
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- Planning Derry
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- 15 March 2000, pp 17-23
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I was enjoying my first visit to the United States and my first full-time stint as a teacher in the School of Architecture at theUniversity of Kansas when one morning in early February 1966, I got the long distance phone call. It was Jimmy Munce calling from the Belfast office of James Munce Partnership. His husky military-style accent with its slight English overtones sounded a trifie more excited than usual. ‘We're going to be interviewed for a planning job in Londonderry,’ he said. ‘Can you fiy back for a few days?’ I feltmyself suddenly caught up in Jimmy's excitement as I had been so many times previously in the seven or eight years I had known him. ‘I'll arrange it,’ I replied. ‘When do I need to be there?’
Ten days later I foundmyself onmy way back to Belfast thinking of the busy few days that lay ahead and wondering if Jimmy's optimismabout getting the commission was justified.There had been some disappointments in the past and before my departure to the United States the firm's application to prepare a plan for Belfast had been rejected, even though the Munce Partnership (then Munce and Kennedy) had entered into association with the prominent Scottish planners Sir Robert Matthew and Percy Johnson-Marshall. James Frederick Munce was not a man to be deterred by a few temporary setbacks.He had returned fromthe SecondWorldWar a major and a toughened veteran of the Burma campaign, to inherit his father's small but successful civil engineering practice. Jimmy, at this time in his late forties, was an architect by training but an entrepreneur by nature. He had expanded the practice to include architecture, quantity surveying, and recently city planning as major components to form what was fashionably called at that time a multi-disciplinary practice. With a staff of some seventy or eighty in the Belfast office and branch offices in London and Glasgow, Jimmy had already some major industrial projects and a number of rural housing projects occupying his attention.
He had also been busy overseas and had followed up his success of completing a sports complex for the Pan-Arabic games in Amman, Jordan, with his similar current multi-million dollar project in Tripoli, Libya. Much to his chagrin none of this success bore much fruit in his native province.
Contents
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- 05 January 2012
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6 - Breaking the Stalemate
- Gerald McSheffrey
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- Planning Derry
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November and December passed and we entered 1967 with Bob and Jimmy still exploring ways of moving beyond the housing issue. Somehow we managed to keep our hopes and spirits alive as our knowledge of the area grew and the possibilities for future growth captured our imaginations. Perhaps, we reasoned, we had been too optimistic about our first report.
The location of new housing and the possible extension of the city boundary were controversial political issues for the Steering Committee, so why not present them with reports that were less so and leave the controversial issues to the end? I don't know who thought of it but it was a brilliant strategy. Looking back I like to think it was me, since I had just returned from the US inculcated with the incremental American approach to problem solving, but it could just as easily have been Jim Foster who had been drafting the first reports or perhaps Peter Daniel who was carrying around a copy of Machiavelli's The Prince about this time. For example, if we were to present reports on shopping, industry, population, and other incontrovertible issues we could ask for approval of these reports by the committee. Since decisions on these issues narrowed the options for housing location (they were spatially interrelated by journey-to-work patterns, shopping, etc.) the committee could arguably not refuse to consider housing options irrespective of their political connotations. Also these reports taken together would be the essence of the plan, and we would therefore be making measured progress towards our ultimate goal.
This meant that the small planning team would have to produce several finished planning documents over a short period of time instead of simply a draft interim plan and final plan, but finished and approved documents would make it difficult for the committee to go back on its own decisions and delay the plan. Altogether this would mean an incredible workload for everyone, especially for Jim Foster and Mike's publication team, but every-one embraced the idea. It also appealed to the more devious side of Jimmy Munce's character, and Bob Simpson, though worried about the expenditure involved, acquiesced. In November we came up with the idea of presenting a progress report that would become ‘Report No. 1–Interim Report’.
5 - The Housing Crisis
- Gerald McSheffrey
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- Planning Derry
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- Liverpool University Press
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- 28 July 2017
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- 15 March 2000, pp 42-50
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Summary
We had spent the time from our appointment in March to our next meeting with the Steering Committee in June beginning the surveys necessary to prepare the plan. We had yet to determine if and how the planning process should be adapted to take account of a number of developments in the pipeline. The June meeting opened with the Chairman, Commander Anderson, forcefully reminding us once more that it was the Steering Committee that had been established to produce a plan for the area. Our role, as he saw it, was to serve as technical advisers. I was relieved that Jimmy had now decided to present the report prepared by Stan and myself, and that we were only to field questions when necessary. This was obviously more acceptable to the Chairman and became the modus operandi for all our meetings. Jimmy knew that a number of road proposals were of immediate concern and mentioned the need to consider a second river crossing when establishing the future road pattern. He went on to assure the committee that road improvements and other developments in the pipeline, which would not prejudice the overall planning of the area, would not be unnecessarily delayed.
Councillor James Doherty succinctly explained that he saw the task of the committee as operating at two levels. First, there was the task of dealing with pressing situations requiring first aid and second, the preparation of a plan to accommodate future growth. He then raised the question of housing need in the area, explaining that within the city boundary, land had become restricted for new housing, and many needy families were living in deplorable conditions. Housing need had become critical, and he suggested that we prepare an interim report defining possible sites for executive and public housing as a matter of urgency.
We already knew there was a long waiting list for public housing (which in the UK and Northern Ireland was subsidised), and the city had been involved since the fifties in a number of developments carried out by a quasi-government organisation, or Statutory Authority, the Northern Ireland Housing Trust.
Bibliography
- Gerald McSheffrey
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- Planning Derry
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Appendix: Northern Ireland Regional Plans
- Gerald McSheffrey
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Summary
PRELIMINARY TERMS OF REFERENCE FOR CONSULTANTS ONA FIFTEEN-YEAR PLANFORTHE LONDONDERRYAREA
Professor Sir Robert Matthew placed Londonderry at the head of a list of key centres for industry outside of the Belfast Region. The recommendations of Professor Wilson and subsequent studies by the Ministries of Development and of Commerce suggest that by 1981 the population of the Urban area of Londonderry (60,000 in 1961) is likely to be 80,000 rising possibly to 100,000 at the end of the century.
The advent of large-scale industrial development could, however, have a considerable effect on the growth and distribution of population and plans for the area should be sufficiently flexible to meet such contingencies. The Consultant will be required to take into account Londonderry as a port, an industrial, commercial, cultural and tourist centre, and to suggest means of stimulating development for the benefit of its citizens and Northern Ireland.
The area of study is to be the County Borough and Rural District of Londonderry but the area should be looked at in its total context of adjoining areas and the Province as a whole. The work will involve examination of the existing structure, resources, population, employment, communications and services and the making of proposals for physical renewal of the area in terms of land use, transportation, environmental standards and general character. Particular attention is to be paid to the possibilities of expanding existing and creating new villages within the general area, to the promotion of local and regional recreational facilities and the conservation of agricultural land and areas of high amenity value.
The Consultants will be paid by the Ministry but will report in the first instance at agreed regular intervals to the Steering Committee composed of representatives of the County, the County Borough and the Rural District. They will also work in close consultation with the officers of these Authorities and of the Ministry of Development and of appropriate Statutory Undertakers. During the period of work the Consultants will be required to advise on important applications for Interim Development.
INDEX
- Gerald McSheffrey, Arizona State University
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- Planning Derry
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- 05 January 2012
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