There are multiple ways of imposing this structure, laws, and trade-offs between various stakeholders. For example, Japan has a national top-down system where municipalities have little control over development, and therefore by necessity the system is mostly rules-based - if you meet the hopefully well-crafted requirements, you build. Whereas in North America, housing is a top-down and centrally planned economy at the municipal level. In Britain and a lot of North America, decisions are 'discretionary' and subject to reviews and debates and NIMBY tantrums (otherwise known as democratic control by taxpayers). Various bandaids are applied over the North American system to attempt to stop it from becoming a Kafkaesque bureaucratic mess where nothing gets built, and at times those efforts even partially succeed, even if the whole thing has an air of reforming the Gosplan.