The shark house dilemma
Public goods, individual rights and conflict in spatial planning
In 1986 a man put a fibreglass shark through the roof of his house in Oxford. The council wanted it gone. Forty years later the shark is still there, and the council now protects it as heritage. In this game you become one of the people of Headington and fight over one simple decision: should the shark stay or go?
Meet the characters ↓How to play ↓The real story ↓
One shark, six questions
The Shark House dilemma is an exercise in negotiation over a set of societal questions that are relevant for planning and for planners.
What are the rights of individuals in face of the rights of the community?
Is public art a public good?
Who decides what is public art and what is beautiful or not in the public domain?
Who has access to urban art?
Who are the actors involved in planning decisions?
How fair are decision-making processes in planning (procedural justice)? Where is power located in planning processes?
You will step into the shoes of actors who have different formal and informal relationships with the problem, with each other and with relevant institutions. They are differently positioned to make decisions: they have different capacities and agency. Along the way you will explore the paths that lead to a decision, and to some sort of consensus, or at least a decision that everyone accepts even when not everyone wants it.
The objective of the game is to convince the chief planner to do your bidding.
A shark lands in Headington
The shark landed on the roof of 2 New High Street, Headington, in the early hours of Saturday 9 August 1986. It had been winched up by a crane overnight. The police knew, but there was no law that stopped a man from putting a shark on his own roof (headington.org.uk, n.d.).
The sculpture is officially called Untitled 1986, a title fixed to the gate of the house. It was designed by the sculptor John Buckley, built by the carpenter Anton Castiau, and commissioned by Bill Heine, an American who had studied at Balliol College, ran two Oxford cinemas and later became a presenter on BBC Radio Oxford. The shark is made of fibreglass and is about 7.6 metres (25 feet) long. It was put up on the 41st anniversary of the atomic bombing of Nagasaki (headington.org.uk, n.d.; Walter, 2017).
Asked by journalists what it meant, Heine said:
The shark was to express someone feeling totally impotent and ripping a hole in their roof out of a sense of impotence and anger and desperation…. It is saying something about CND, nuclear power, Chernobyl and Nagasaki.
Bill Heine, quoted in headington.org.uk (n.d.)
Even the meaning is contested. The Guardian linked the shark to the Cold War and the Nagasaki anniversary (The Guardian, 2007). The Telegraph called it a protest against the American bombing of Libya (Walter, 2017). Who gets to say what a public sculpture means: the artist, the owner, the press, or the council that later lists it?
Forty years in nine steps
Figure 1. Forty years of the Headington shark, from enforcement to heritage.


What would you have decided?
In 1990 Oxford City Council refused retrospective planning permission (90/00084/NF). In 1991 Heine appealed to the Secretary of State for the Environment, then Michael Heseltine. The inspector, Peter Macdonald, reported in 1992 (headington.org.uk, n.d.).
Before you open his report, decide. Was the shark development that broke the rules? Was it art that the rules should accommodate? Was the council right to fear that sharks would soon crash through roofs all over the city?
Open the inspector’s recommendationRead it only after you have made up your mind+
It is not in dispute that this is a large and prominent feature. That was the intention, but the intention of the appellant and the artist is not an issue as far as planning permission is concerned. The case should be decided on its planning merits, not by resorting to “utilitarianism”, in the sense of the greatest good to the greatest number. And it is necessary to consider the relationship between the shark and its setting…. In this case it is not in dispute that the shark is not in harmony with its surroundings, but then it is not intended to be in harmony with them. […] An incongruous object can become accepted as a landmark after a time, becoming well known, even well loved in the process. […] The Council is understandably concerned about precedent here. The first concern is simple: proliferation with sharks (and Heaven knows what else) crashing through roofs all over the City. This fear is exaggerated. […] But any system of control must make some small place for the dynamic, the unexpected, the downright quirky. I therefore recommend that the Headington shark be allowed to remain.
Inspector Peter Macdonald (1992), as quoted in headington.org.uk (n.d.)
Notice three moves. The inspector sets aside the artist’s intention. He refuses to decide by counting who likes the shark. And he treats precedent as an empirical question: five years, no other sharks. Which of these moves would your character accept?
And then the twist. In 2022 Oxford City Council added the shark to its list of local heritage assets. Heine’s son, who owns the house, objected that the council had ignored his father’s anti-war, anti-nuclear message, and found it absurd to use planning powers to protect a symbol of defiance of planning law (Kirka, 2022). The same institution that tried to remove the shark now protects it.
Meet the people of Headington
Fifteen cards. Each character has a story, a position in the neighbourhood, friends, enemies and at least one secret. Read your own card closely, then read the cards of the people you will need to convince.
BHThe sharkBill HeineAge 65. Radio broadcaster and writer; owner of the Shark House.
Open the card +
Age 65. Radio broadcaster and writer; owner of the Shark House.
Bill started working for BBC Radio Oxford in 1983, and is considered by many to be very opinionated and perhaps somewhat controversial in the field of radio presenting. He is not afraid to speak his mind and allowed his listeners to do the same during his former afternoon phone-in show. American-born, Heine has lived in Oxford since studying for a postgraduate degree at Balliol College in the late 1960s. In the 1970s and 1980s, he ran both the Penultimate Picture Palace cinema in East Oxford and the Moulin Rouge Cinema (which he later renamed Not The Moulin Rouge) in Headington, and he is the owner and commissioner of the Shark House.
The only real person in the game. The real Bill Heine died in 2019; in the game he is alive and well.
WHCouncil and planningWalter HarringtonAge 45. Chief planner of Headington.
Open the card +
Age 45. Chief planner of Headington.
Walter is a sporty, jovial planner married to Desiree, a florist in town. They have two daughters, 10 and 12, who love the Shark House and are delighted when they pass in front of it. He admires Bill Heine, the owner of the Shark House, for his audacity. He wants to concentrate on the real problems at hand, namely the removal of the Headington Garden Flats, caused by an enormous increase in the lease of the land owned by the Combs-Lyon family. He is a pub-goer and is part of the Headington Cricket Club.
Everyone is trying to convince Walter. Whoever plays him should decide what he is willing to trade.
ASCouncil and planningAdele SekulaAge 50. Mayor of Headington Council.
Open the card +
Age 50. Mayor of Headington Council.
Adele came from Poland in 2005, just after the country’s accession to the European Union, to do her PhD in political science at Oxford University. Her thesis on the economics of the welfare state gathered much attention. She then embarked on a meteoric political career, first as a councillor representing the area where the Shark House is located and then as secretary for social affairs for Headington Council. Under her administration, poverty levels have fallen thanks to a pioneering poverty alleviation programme coupled with on-the-job training. Adele is a Labour mayor, and was disappointed when many of her friends voted to leave the EU. She is troubled by the prospect of having to let the Headington Garden Flats be redeveloped, due to the renewal of the land’s lease by Lady Arabella Combs-Lyon, the local aristocrat, whom she personally dislikes.
SMCouncil and planningSaida Ben MansourAge 25. Social worker at Headington Council.
Open the card +
Age 25. Social worker at Headington Council.
Saida is a social worker in Headington, and her main responsibility is towards the women of the neighbourhood where the Shark House is located. Although this is a relatively affluent neighbourhood, the Headington Council Flats are located there and have faced the prospect of eviction for some years. Saida and a group of women at the council got together to raise awareness of domestic abuse in the local council schools. She works with community leaders, including Elisa Harris, a local school teacher, and Alvita Powell, the matriarch of a Jamaican family living in the council flats around the corner. When Saida first saw the shark, she rolled her eyes and thought: “Oh, no, another boy’s phallic symbol!” She has grown to like it after meeting its rebellious owner, Bill Heine. She identified with the rebellious nature of the shark and started seeing Bill more often.
ACLand and heritageLady Arabella Combs-Lyon, OBEAge 67. Heiress of a large estate in Oxfordshire.
Open the card +
Age 67. Heiress of a large estate in Oxfordshire.
Half of Headington sits on land that belongs to the Combs-Lyons. The land is leased to developers for 100 years and developers collect rent from tenants. This includes the school, the pub (The Rising Sun), the Headington Garden Flats and even the Shark House itself. The lease on the land of the Headington Garden Flats is about to be renewed and Lady Arabella intends to raise it substantially. Headington Council intends to appeal against the rise to keep rents affordable for the citizens who live there, but the future is uncertain. Lady Arabella lives in Headington Manor, built in 1770 and surrounded by a green estate. The manor fell into disrepair after her father, Sir Archibald, died suddenly of a heart attack in 1986. She is president of the Headington Heritage Society, wants to preserve the “Britishness” of Headington, and supports the Oxford Cricket Club.
She owns the land under the Shark House. What does ownership let her do here, and what not?
MGLand and heritageMolly GumpAge 75. Retired teacher; member of the Headington Heritage Society.
Open the card +
Age 75. Retired teacher; member of the Headington Heritage Society.
After 40 years as a teacher at the Windmill Primary School, Molly welcomed retirement as a chance to enjoy what she and her husband Ted, a plumber, never had time for. They bought a timeshare apartment in Málaga, but the 2008 Spanish property crisis hit the developer and the apartments were never delivered; they are still in a seemingly endless legal battle. Meanwhile Molly befriended Lady Arabella and helps give guided tours of the manor. She is part of the Headington Heritage Society, which manages the manor and its grounds, the little Headington Historical Museum with its medieval armour, and a few more listed buildings. Molly is fond of the typical British charm of Headington. She dislikes foreigners in general, and Bill Heine particularly annoys her because of his lack of composure (she once saw him picking his nose).
AVTown and gownProfessor Advait VarmaAge 52. Dean of a college in Oxford.
Open the card +
Age 52. Dean of a college in Oxford.
Professor Varma is a third-generation Indian Briton whose family came to the UK in 1947, when India obtained independence. He is the dean of the college where the mayor, Adele Sekula, obtained her PhD. He is socially conservative, votes Tory and voted Leave in the Brexit referendum, because he believes Britain is better alone than being patronised by France and Germany. He is a strong believer in rules and regulations, because he says they make life together easier. His wife, Preetika, is also a scholar, but disagrees with him about pretty much everything. He is friends with Edmund Green and is a pub-goer.
EGBusinessEdmund GreenAge 63. Pub owner and neighbour of the Shark House.
Open the card +
Age 63. Pub owner and neighbour of the Shark House.
Edmund owns The Rising Sun, a traditional pub in Headington where people gather to celebrate the World Cup and the Cricket World Cup. He is a conservative Tory voter who voted to leave the European Union because he wants Britain to “take back control” over immigration and defence. Ed is not a fan of foreigners and just about puts up with Deepanshu. He is the father of Elisa Harris (née Green), a teacher at the local school and an activist for women’s rights.
DDBusinessDeepanshu DasAge 56. Shop owner in the street.
Open the card +
Age 56. Shop owner in the street.
Deepanshu owns a convenience shop in the same street as the Shark House. He was deeply distrustful of Bill Heine, the American who one fine day decided to plant a shark through the roof of his house. Deepanshu started to change his mind when tourists from London began arriving in droves to photograph the shark. He is the captain of the Headington Cricket Team, a team of men in their forties and fifties who play every weekend at the Headington Country Club, and he is immensely popular. Walter Harrington plays in the same team.
HCBusinessHuazu ChenAge 35. Owner of the Peking Duck, a Chinese restaurant.
Open the card +
Age 35. Owner of the Peking Duck, a Chinese restaurant.
Huazu is a single mother and owns the Peking Duck, where many people get their takeaway, including the Harringtons, Professor Varma, Edmund Green and Bill Heine. Her former husband is in prison for domestic violence. Huazu is friends with Alvita Powell and has been helped by Saida Ben Mansour and Elisa Harris; Elisa has become her best friend. Huazu likes the shark, and can’t understand what the fuss is all about.
DHBusinessDesiree HarringtonAge 46. Flower shop owner.
Open the card +
Age 46. Flower shop owner.
Desiree is the niece of Lady Arabella; some say she will inherit the land, since Lady Arabella never had children. Unlike her aunt, Desiree is a free spirit and campaigns for the legalisation of cannabis. She is married to Walter Harrington, the chief planner, and is friends with Saida Ben Mansour and Elisa Harris. Her marriage is unhappy, but she won’t break free because “it is just too much fuss!”. Her aunt finds her too “wild” and would love her to behave like a lady; Desiree rolls her eyes more than usual when this comes up. She voted Remain and is a firm supporter of the Green Party.
APCouncil flatsAlvita PowellAge 75. Housewife and social activist in the council flats.
Open the card +
Age 75. Housewife and social activist in the council flats.
Alvita came from Jamaica in 1948 with the Windrush generation, the Commonwealth citizens who came to Britain as children after the Second World War. She has lived in the council flats with her husband David since 1971 and is still incredibly active there. Although socially conservative, she became involved with domestic violence after a neighbour, Huazu Chen, sought refuge in her flat following an attack by her husband. She works with Saida Ben Mansour and Elisa Harris. She has resolutely fought the plan to redevelop her block, triggered by Lady Arabella’s lease rise. She fears the media attention on the shark will reflect badly on her community, fears gentrification and rising rents, and thinks all this may attract “those hipsters from London and their cappuccinos”. She is suspicious of artists.
She has the most to lose from rising land values, and the least formal power. Can she turn the shark into an argument about the flats?
DPCouncil flatsDavid PowellAge 78. Retired plumber.
Open the card +
Age 78. Retired plumber.
David came from Jamaica in 1960 and is married to Alvita. He was a fervent Labour voter, but became disillusioned with politics after the Leave vote. He belongs to the Headington Country Club and helps the cricket club, though he feels too old to play. He used to be a Rastafarian, but joined the Quakers after a car accident in which he and Alvita almost lost their lives. Adele Sekula, the mayor, belongs to the same circle of Quaker friends, but they are not close: as Quakers, they mostly sit in silence. David thinks every man should be able to decide what to do with his property. He is also worried about too much media attention.
EHCouncil flatsElisa HarrisAge 38. Teacher at the local primary school, The Windmill.
Open the card +
Age 38. Teacher at the local primary school, The Windmill.
Elisa is the daughter of Edmund and Peggy Green. Raised in a conservative household, she became a feminist and an activist early on. She is friends with Saida Ben Mansour and with Alvita Powell. She teaches small children, but takes an interest in the many vulnerable teenagers living in the flats. She is a sports fan and is often seen at her father’s pub. Elisa wonders whether the shark is public art.
JoWild cardThe JokerAge ?. Any character you like.
Open the card +
Age ?. Any character you like.
You can invent any character, including one who represents you. Define your position on the shark clearly before the game starts.
About the characters. The game is inspired by real events. The Shark House is real, and so are some of the places. Bill Heine is the only real character; everyone else is invented and has no connection with real persons, dead or alive. “Headington Council” and its mayor are invented too: in reality, decisions about the shark were taken by Oxford City Council and the Secretary of State.
Alliances start from relationships
You must try to form alliances and co-opt people to your cause, using their existing relationships as a basis. The map shows five kinds of tie drawn from the cards. Click a name to see who that character can count on, and who they cannot.
Figure 2. Click a name to reveal that character’s connections. Click ‘Show all ties’ to start again.
All connections as textThe same information, character by character+
Bill Heine · 4 ties
- Desiree Harrington: friends and intellectual partners (friendship and care)
- Saida Ben Mansour: seeing each other (friendship and care)
- Lady Arabella: owns the land under the Shark House (land and lease)
- Molly Gump: she cannot stand him (old flames and grudges)
Walter Harrington · 4 ties
- Desiree Harrington: married (family and marriage)
- Molly Gump: aunt and nephew (family and marriage)
- Deepanshu Das: same cricket team (clubs, faith and work)
- Adele Sekula: chief planner and mayor (clubs, faith and work)
Desiree Harrington · 5 ties
- Walter Harrington: married (family and marriage)
- Lady Arabella: aunt and niece (family and marriage)
- Bill Heine: friends and intellectual partners (friendship and care)
- Saida Ben Mansour: friends (friendship and care)
- Elisa Harris: friends (friendship and care)
Lady Arabella · 9 ties
- Desiree Harrington: aunt and niece (family and marriage)
- Molly Gump: friends; Molly guides tours of the manor (friendship and care)
- Alvita Powell: lease rise threatens her flats (land and lease)
- Edmund Green: owns the land under his pub (land and lease)
- Bill Heine: owns the land under the Shark House (land and lease)
- Adele Sekula: the council will appeal her lease rise (land and lease)
- Adele Sekula: personal dislike (old flames and grudges)
- Prof. Advait Varma: dated when young (old flames and grudges)
- Edmund Green: dated briefly when young (old flames and grudges)
Molly Gump · 6 ties
- Walter Harrington: aunt and nephew (family and marriage)
- Lady Arabella: friends; Molly guides tours of the manor (friendship and care)
- Bill Heine: she cannot stand him (old flames and grudges)
- Elisa Harris: Elisa dislikes Molly; Molly is fond of Elisa (old flames and grudges)
- Prof. Advait Varma: he secretly hates her (old flames and grudges)
- David Powell: secret romance in the 1980s (old flames and grudges)
Prof. Advait Varma · 5 ties
- Deepanshu Das: second cousins (family and marriage)
- Edmund Green: friends from the pub (friendship and care)
- Adele Sekula: dean of the college of her PhD (clubs, faith and work)
- Molly Gump: he secretly hates her (old flames and grudges)
- Lady Arabella: dated when young (old flames and grudges)
Edmund Green · 5 ties
- Elisa Harris: father and daughter (family and marriage)
- Prof. Advait Varma: friends from the pub (friendship and care)
- Lady Arabella: owns the land under his pub (land and lease)
- Deepanshu Das: Edmund just about puts up with him (old flames and grudges)
- Lady Arabella: dated briefly when young (old flames and grudges)
Elisa Harris · 6 ties
- Edmund Green: father and daughter (family and marriage)
- Saida Ben Mansour: friends (friendship and care)
- Alvita Powell: friends (friendship and care)
- Huazu Chen: best friends (friendship and care)
- Desiree Harrington: friends (friendship and care)
- Molly Gump: Elisa dislikes Molly; Molly is fond of Elisa (old flames and grudges)
Saida Ben Mansour · 5 ties
- Elisa Harris: friends (friendship and care)
- Alvita Powell: work together against domestic abuse (friendship and care)
- Desiree Harrington: friends (friendship and care)
- Bill Heine: seeing each other (friendship and care)
- Adele Sekula: social worker at her council (clubs, faith and work)
Huazu Chen · 2 ties
- Elisa Harris: best friends (friendship and care)
- Alvita Powell: gave her refuge; friends (friendship and care)
Alvita Powell · 5 ties
- David Powell: married (family and marriage)
- Elisa Harris: friends (friendship and care)
- Huazu Chen: gave her refuge; friends (friendship and care)
- Saida Ben Mansour: work together against domestic abuse (friendship and care)
- Lady Arabella: lease rise threatens her flats (land and lease)
David Powell · 4 ties
- Alvita Powell: married (family and marriage)
- Adele Sekula: same Quaker circle (clubs, faith and work)
- Deepanshu Das: Country Club and cricket (clubs, faith and work)
- Molly Gump: secret romance in the 1980s (old flames and grudges)
Adele Sekula · 6 ties
- David Powell: same Quaker circle (clubs, faith and work)
- Walter Harrington: chief planner and mayor (clubs, faith and work)
- Prof. Advait Varma: dean of the college of her PhD (clubs, faith and work)
- Saida Ben Mansour: social worker at her council (clubs, faith and work)
- Lady Arabella: the council will appeal her lease rise (land and lease)
- Lady Arabella: personal dislike (old flames and grudges)
Deepanshu Das · 4 ties
- Prof. Advait Varma: second cousins (family and marriage)
- Walter Harrington: same cricket team (clubs, faith and work)
- David Powell: Country Club and cricket (clubs, faith and work)
- Edmund Green: Edmund just about puts up with him (old flames and grudges)
Who is the best-connected character in the map?Think first, then open +
Lady Arabella, Elisa and Molly each sit on many ties, but of different kinds. Arabella’s ties are mostly land and old grudges; Elisa’s are friendship and care. Which kind of tie is more useful in a tribunal?
Who controls the land under the shark?Think first, then open +
Lady Arabella owns the land on which much of Headington, including the Shark House, stands. How might the lease change the debate?
Whose interests are missing from the map?Think first, then open +
Tourists, future residents, the artist John Buckley, the teenagers of the flats, the people of other Oxford neighbourhoods. The Joker can bring one of them in.
How to play
Figure 3. The game in about 85 minutes.
The problem and the logic of the game are presented.
Character cards are handed out, with the map of relationships. Students learn their roles.
In pairs or trios, answer the crucial questions from your character’s point of view.
Discuss your answers quickly in public.
Form two lines facing each other. Introduce your character in one minute, then one line shifts so everyone meets someone new.
For or against keeping the shark.
Debate in front of a judge, elected by the students, about your right to have your preferences respected.
The judge decides and must justify the decision. Alternatively, decide by simple majority.
- Respect and appreciate each other’s opinions.
- Most people in the classroom like the Shark House. This is a role-playing game: it only works if you speak and act from your character’s perspective.
- Play any character regardless of your own sex, sexual orientation, religion or ethnicity. The point is to get into someone else’s shoes.
- Form alliances and co-opt people to your cause, using existing relationships as a basis.
- The objective is to convince the chief planner to do your bidding.
- Is your character for or against the shark?
- What is your character’s main argument?
- Is the Shark House a public good or a public nuisance? Why?
- What positive or negative externalities does the shark generate?
Eleven arguments on the table
Every argument below has been made by someone, somewhere. Some are about rights, some about externalities, some about law, some about feelings. Pick the two that best serve your character, and prepare for the two that hurt you most.
The owner of the Shark House has the right to express himself. Nobody can interfere with his right of expression.
The inhabitants of Headington have the right to enjoy their built environment, the beauty of the place and its history, without having these rights interfered with by private interests.
The shark is a work of art, and as such must be protected.
The shark is ugly and interferes with the aesthetic of a historical street.
The shark attracts a large number of tourists and is good for business around the area.
The shark had no planning permission and was built against the law, therefore it must be removed.
The shark interferes with the historical heritage of the area, which is a traditional Victorian street.
The shark produces traffic jams in the area, because of the large number of visitors, and interferes with the quality of life of inhabitants.
Headington has benefited from the shark, as it is now known worldwide. The shark is a landmark.
Because of the new economic activity generated by the shark and the great number of visitors, land value has increased and some inhabitants find it difficult to pay rent.
Headington children are delighted by the shark and find it makes their city more fun. Children are the biggest fans of the shark.
Check the facts before you use them. Some of these claims are empirical: do visitors really cause traffic jams? Has the shark raised rents? Others are normative: is ugliness a planning harm? A good tribunal argument says which kind of claim it is making.
What does national policy say?
The original game gives players extracts from the National Planning Policy Framework of 2012, the version in force when the game was designed. The framework has since been revised several times and renumbered, so treat these as historical extracts.
Para 56+
The government attaches great importance to the design of the built environment. Good design is a key aspect of sustainable development, is indivisible from good planning, and should contribute positively to making places better for people.
Department for Communities and Local Government (2012), para. 56
Para 58 (extract)+
Planning policies and decisions should aim to ensure that developments respond to local character and history, and reflect the identity of local surroundings and materials, while not preventing or discouraging appropriate innovation.
Department for Communities and Local Government (2012), para. 58 (extract)
Para 60+
Planning policies and decisions should not attempt to impose architectural styles or particular tastes and they should not stifle innovation, originality or initiative through unsubstantiated requirements to conform to certain development forms or styles. It is, however, proper to seek to promote or reinforce local distinctiveness.
Department for Communities and Local Government (2012), para. 60
Para 61+
Although visual appearance and the architecture of individual buildings are very important factors, securing high quality and inclusive design goes beyond aesthetic considerations. Therefore, planning policies and decisions should address the connections between people and places and the integration of new development into the natural, built and historic environment.
Department for Communities and Local Government (2012), para. 61
Para 63+
In determining applications, great weight should be given to outstanding or innovative designs which help raise the standard of design more generally in the area.
Department for Communities and Local Government (2012), para. 63
Para 64+
Permission should be refused for development of poor design that fails to take the opportunities available for improving the character and quality of an area and the way it functions.
Department for Communities and Local Government (2012), para. 64
Spot the tension. Paragraph 58 asks development to respond to local character and history. Paragraph 60 forbids imposing particular tastes and stifling originality. Paragraph 63 gives great weight to innovative design. Which paragraph does each of your allies need, and which one would the heritage society quote?
Five positions, one decision
The tribunal must end with a decision. Five positions are on the table. You may also write a sixth.
The shark will be immediately removed.
The shark will be moved to a park.
The shark will be moved to a museum.
The shark will be put in the back garden of the house and will be accessible to the public.
The shark will remain and be recognised as a symbol of Headington.
Which position is a compromise, and who pays for it?Think first, then open +
Moving the shark keeps the object and destroys the work: the inspector noted that the sculpture is specific to its setting and would be read quite differently elsewhere. Who would accept that loss, and why?
Does the judge’s justification matter if the majority agrees?Think first, then open +
A majority vote tells you what most people prefer. A justified decision tells you why the minority should accept it. The inspector explicitly refused to decide by the greatest good of the greatest number.
What did the real Oxford finally choose?Think first, then open +
The shark stayed after the 1992 appeal, and in 2022 the council listed it as a local heritage asset (Kirka, 2022). Is that the end of the story for the residents of the flats in your game?
Debrief: what did the shark teach you?
Step out of your character. The shark is funny. The questions it raises are serious.
Public goods
Is public art a public good? Who can be excluded from looking at the shark, and does one person’s enjoyment reduce anyone else’s? And what about the rents?
Public goods →Power and attention
Which characters had formal power, and which had only relationships? Did the tribunal give voice to those with high interest and low power?
Session 05 · Attention, please! →Spatial justice
Who gains and who loses if the shark makes Headington famous: the shop owner, the pub, the landowner, the tenants of the flats?
Spatial justice →The final question. Planning is meant to protect the public interest. The shark began as private defiance of planning law and ended as public heritage protected by planning law. What does that tell you about who defines the public interest, and when?
Running the game
- Character cards (this page, or print the cards from the game manual).
- A map of relationships: Figure 2.
- The crucial questions sheet.
- A space for two lines of speed dating and a tribunal with a judge’s chair.
- Assign Walter Harrington, Lady Arabella and Alvita Powell first: they carry the planning, land and housing threads.
- With more than 15 students, add Jokers or double up roles as allies.
- Let the judge set the rules of the tribunal at the start.
- Keep 10 minutes for the debrief: it is where the learning happens.
The game also exists as a PlayDecide discussion game, with story, info, issue and challenge cards and a vote on the five positions, for groups of four to eight players in about 90 minutes.
Game designed by Roberto Rocco, Spatial Planning and Strategy, TU Delft. Inspired by Professor Vincent Nadin, who uses the Headington shark as an example of conflict, negotiation and shifting values in planning.
The texts behind this page
Department for Communities and Local Government. (2012). National planning policy framework. Department for Communities and Local Government.
headington.org.uk. (n.d.). The Headington shark. https://headington.org.uk/shark/index.htm Accessed on: 16 October 2026.
Kirka, D. (2022, March 25). UK ‘shark house’ owner dismayed at getting protected status. Associated Press. https://www.news4jax.com/news/world/2022/03/25/uk-shark-house-owner-dismayed-at-getting-protected-status/ Accessed on: 16 October 2026.
The Guardian. (2007, August 9). In praise of… the Headington shark [Editorial]. The Guardian. https://www.theguardian.com/commentisfree/2007/aug/09/comment.comment Accessed on: 16 October 2026.
Walter, S. (2017, December 18). House with 25ft great white shark on its roof could be given listed status by council who wanted it demolished. The Telegraph. https://www.telegraph.co.uk/news/2017/12/18/house-25ft-great-white-shark-roof-could-given-listed-status/ Accessed on: 16 October 2026.