The Benefits of Urban Planning Are Clear. So Why Is It So Hard to Sell
By Goh Chia Chia
21 January 2025 | 5 min read
Is Urban Planning Still the Key Tenet to Guide Urban Growth?
Effective urban planning fosters economic growth and enhances infrastructure resilience (UN Habitat, 2019). It is often seen as a critical tool to guide urban growth, ensure a better quality of life and achieve sustainable urbanisation (World Bank, 2021).
The benefits of urban planning are widely acknowledged, and the need for urban rejuvenation and renewal in many cities is more pressing than ever. Yet, urban planning does not seem to be the definitive solution cities look for now.
Urban Planning often gets sidelined by the allure of winning elections and economic myopia. Ignoring the importance of good and long-term urban planning is not only detrimental to improving livelihoods, but inaction to mitigate the trade-offs can also hold serious opportunity costs. It is probably timely to ask — what is missing from traditional urban planning which city governors need right now?
“If You Build It, They Will Come”: Urban Planning as the Core Solution to Guide Urban Growth
Urban planning has long served as the key tenet to guide urban growth, with notable successful case studies such as Copenhagen’s Five Finger Plan and Singapore’s strategic urban Concept and Master Plans. With their high percentile rankings in almost every urban index, Copenhagen and Singapore often become the common yardstick for other developing cities. Both of their successes are often attributed to the presence of good urban plans.
Copenhagen’s Five Finger Plan
Case Study 1:
Copenhagen’s Five Finger Plan – Successful Limiting Factor for Urban Sprawls
Singapore’s 1971 Concept Plan
Case Study 2:
Singapore’s Urban Reset with Urban Concept and Master Plans
The rapid increase in urbanisation rates in the postwar period posed the need for modern metropolises to address the twin spectres of urban sprawl and overcrowding. The Five Finger Plan (1947) initiated by a private urban planning lab provided an ambitious and comprehensive urban morphology for Copenhagen’s future urbanisation along five corridors extending from the city center, connected by efficient public transportation. Though the plan has undergone several revisions, the core principles still remain intact even after more than seventy years.
The plan promotes the reduced usage of private automobiles and encourages mobility using public transport and other carbon-friendly modes of transport such as cycling.
Throughout the years, the Five Finger Plan has proved to be one of the most ingenious plans in Denmark’s history, as the effects have further trickled down and formed the transport landscape Copenhagen hoped to set out and is well known for today. In 2022, Copenhagen reached its 2025 target by achieving a modal share of 25% for public transport, cycling and walking of all trips to, from and in Copenhagen. The Five Finger Plan was also poised as the key contributor in preventing limiting urban sprawls in Copenhagen.
Figure 1 – Development in trip modal distribution 2013-2022 and targets for 2025 (Source: Copenhagen Municipality)
All these were only made possible with the strict enforcement of the urban plans with the statutory order in place. Similar characteristics are also observed within the Singapore context.
Singapore successful conversion from a “urban squalor” to one of the world’s most liveable cities could not be achieved without the strict implementation of a comprehensive planning framework supported by strong legislative tools. In the 1950s, Singapore was faced with a myriad of urban issues such as high unemployment rate, overcrowded slums, acute housing shortage, severe lack of basic infrastructure in the 1950s.
Singapore’s first concept plan was formulated in 1971 to guide the physical development of Singapore and ensure the optimal use of limited land resources to meet the residential, economic and recreational needs of the increasing population. In the plan, satellite towns were separated from each other by a system of parks and green spaces – a key feature that remains staple in Singapore’s present landscape. The concept plan was then consistently reviewed and revised thereafter to adjust for the changing needs of the population.
Today, Singapore is globally recognised as one of the most liveable and green cities sustained by a competitive economy and have countries looking at becoming the ‘Singapore’ of their region.
Case Study 1:
Copenhagen’s Five Finger Plan – Successful Limiting Factor for Urban Sprawls
The rapid increase in urbanisation rates in the postwar period posed the need for modern metropolises to address the twin spectres of urban sprawl and overcrowding. The Five Finger Plan (1947) initiated by a private urban planning lab provided an ambitious and comprehensive urban morphology for Copenhagen’s future urbanisation along five corridors extending from the city center, connected by efficient public transportation. Though the plan has undergone several revisions, the core principles still remain intact even after more than seventy years.
The plan promotes the reduced usage of private automobiles and encourages mobility using public transport and other carbon-friendly modes of transport such as cycling.
Throughout the years, the Five Finger Plan has proved to be one of the most ingenious plans in Denmark’s history, as the effects have further trickled down and formed the transport landscape Copenhagen hoped to set out and is well known for today. In 2022, Copenhagen reached its 2025 target by achieving a modal share of 25% for public transport, cycling and walking of all trips to, from and in Copenhagen. The Five Finger Plan was also poised as the key contributor in preventing limiting urban sprawls in Copenhagen.
Figure 1 – Development in trip modal distribution 2013-2022 and targets for 2025 (Source: Copenhagen Municipality)
All these were only made possible with the strict enforcement of the urban plans with the statutory order in place. Similar characteristics are also observed within the Singapore context.
Singapore successful conversion from a “urban squalor” to one of the world’s most liveable cities could not be achieved without the strict implementation of a comprehensive planning framework supported by strong legislative tools. In the 1950s, Singapore was faced with a myriad of urban issues such as high unemployment rate, overcrowded slums, acute housing shortage, severe lack of basic infrastructure in the 1950s.
Singapore’s 1971 Concept Plan
Singapore’s first concept plan was formulated in 1971 to guide the physical development of Singapore and ensure the optimal use of limited land resources to meet the residential, economic and recreational needs of the increasing population. In the plan, satellite towns were separated from each other by a system of parks and green spaces – a key feature that remains staple in Singapore’s present landscape. The concept plan was then consistently reviewed and revised thereafter to adjust for the changing needs of the population.
Today, Singapore is globally recognised as one of the most liveable and green cities sustained by a competitive economy and have countries looking at becoming the ‘Singapore’ of their region.
Both case studies demonstrate that urban plans developed over five decades ago continue to have a significant influence on the landscapes of both cities today. The Five Finger Plan has successfully prevented uncontrolled urban sprawl and promoted green transport modes in Copenhagen, while the 1971 Concept Plan transformed Singapore into a true “Garden City,” featuring highly accessible green spaces throughout its heartlands and satellite towns.
Are Urban Plans the Absolute Panacea to Fixing Complex Urban Issues?
They are not – there can be no singular solution for a constantly evolving complex issue. Undeniably, urban plans can affect the way people live, work and play – but without other levers, it may be quickly seen as a powerless tool. Complex systems surrounding our urban environment make it practically impossible for master and urban design plans to address everything under the urban umbrella.
Take Singapore as an example; Singapore would not have been successful in implementing its urban plans without the supporting iron fist of the Land Acquisition Act back in the 1960s; Its historical success of public housing will also not be possible without the support of policy levers such as the 1964 Home Ownership for the People Scheme and the Central Provident Fund (CPF).
Home Ownership for the People Scheme
(Source: National Archives Singapore)
CPF Housing Grants
(Source: The Straits Times)
Copenhagen also enjoyed its fruits of labour with a good complement of urban policies and its Five Finger Plan. The Five Finger Plan was solely visionary, till a General Plan was drawn in 1952. Nonetheless, to make sure the Five Finger Plan illuminates a strong path dependency for sustainable urban growth, Copenhagen instituted strict planning laws in 1949, which were later expanded and renewed in the 1960s and 1970s to regulate land use – this includes banning housing construction in certain areas. Without supporting urban policies, urban plans can only exist on a piece of paper.
Looking forward, what is the future of urban plans?
As societies progress, new conditions shape the way urban plans are drawn. Urban planners today are working with less greenfield sites, more fragmented plots of land, increased expectations from communities, higher costs and an increasing time crunch for political successes. The scale of influence of urban plans has diminished over time.
The inability to uncover the intrinsic interplay of policies and urban plans is the main reason why many city leaders continue to face challenges in successful urban plan implementation. This is also why urban plans are becoming increasingly difficult to sell as a single product though its benefits are clear.
Uncovering the Intrinsic Interplay of Policy and Planning
Successful case studies have shown that no matter how good the urban plans are, they do not constitute the city’s success story fully. Nonetheless, that is not to say that urban planning is of no relevance today – ultimately, some planning is better than no planning.
(a) Opposition between planned residential neighborhoods and unplanned ones in Ouagadougou,
(b) Opposition between planned residential areas and deprived (poorer) neighborhoods in Dakar (Source: Researchgate)
Urban leaders need to see urban planning and policies as complementary forces rather than disjointed efforts. The disconnect often arises when urban planning tends to focus on long-term visions, while policies are shaped by political cycles, immediate concerns, and resource constraints. Closing the gap between policy and urban planning requires a deliberate, collaborative approach that aligns the strategic vision of planning with the pragmatism of policymaking. Fortunately, we don’t have to reinvent the wheel.
Unlocking the first step with short- and medium-term urban rejuvenation initiatives
Phasing is one way of focusing on the nearer-term, while also accommodating for the longer-term need of urban planning. Phasing is a common concept within urban planning, allowing for complex, long-term visions to be broken down into manageable steps for city leaders, all while considering resource limitations. Urban planners can seamlessly take it a step further by proposing and integrating short- and medium-term urban projects alongside phasing plans, which will offer a valuable proof of concept for larger, long-term urban strategies.
For policymakers, these initiatives present a low-risk opportunity to showcase progress while evaluating the feasibility of broader plans. This encourages city mayors, policymakers, and communities to stay actively engaged in the process, creating a middle ground to align policy implementation, funding, and other efforts, thereby generating momentum for long-term initiatives. Over time, these initiatives that has helped to build trust and credibility amongst different stakeholders, will become the connective tissue that paves the way for a long-term cohesive urban plan and more robust policies.
Establish a healthy vicious cycle that yields positive urban outcomes
Establishing clear monitoring and accountability systems are key in ensuring that both policies and plans are evaluated and adjusted based on real-world outcomes. Feedback loops — where data collected from implemented policies informs urban planning decisions and vice versa — are essential for maintaining alignment.
An example of this can be seen in the transformation of New York City’s Times Square. Initially, pedestrian plazas were introduced as temporary pilot projects to address traffic congestion and improve public space. The success of these efforts, backed by data and positive public feedback, led to permanent changes that aligned with the city’s larger urban design and sustainability goals.
Times Square, New York City
(Source: Snohetta)
Illuminating Bespoke Pathways to Success
It is not uncommon for city governments to express big aspirations for their city’s growth – wanting their cities to transform into the next influential New York City, London, Copenhagen or to be the next Singapore of their region. Unfortunately, there is never a one-size-fits-all solution. Regional and local nuances must be carefully considered at every step, whether in the drafting of urban plans or the alignment of policies. There are many ways to do it:
Proper Visioning
A proper visioning exercise for the city’s long term urban development goals should be conducted before drawing up any urban plans for the city.
The exercise helps to prioritise phases in urban development with relevant policy roadmaps. By engaging different urban stakeholders, the visioning exercise reduces bias, and conflicting interests, and encourage a collective vision to emerge.
Scenario Planning and not Traditional Forecasting
Traditional forecasting is no longer robust in preparing a city for the urban challenges coming their way.
Participatory and evidence-based scenario building will help to unveil blindspots and challenge current planning assumptions to make sure urban plans remain resilient over the next few decades.
Urban Policy Toolkits
A bespoke policy toolkit is essential to elevate the resiliency and efficacy of urban plans.
The toolkit helps city leaders to conduct risk modelling and policy evaluations to further stress-test and fortify their pathways towards sustainable growth.
It is now the prime time for urban leaders to explore a holistic solution that bridges the gap between urban planning and policy, enabling them to achieve their development goals and ensuring their cities flourish sustainably.
The author would like to thank Saravanan Sugumaran for his contributions to the article.
Author
Country Analyst
Chia Chia is a Country Analyst at MORROW Intelligence (MI), where she leads the firm’s ASEAN Urban Systems flagship project with her strong research expertise in urban system management.
