Brownfield Redevelopment and Housing Area Renewalsig.urbanismosevilla.org/Sevilla.art/SevLab/m001... · PHYRE - Physical Regeneration of Urban Areas Background Report Brownfield Redevelopment

PHYRE - Phys ica l Regenerat ion of Urban Are a s

Background Report

Brownfield Redevelopment and Housing Area Renewal

Heerlen Seminar

16 - 18 March 2006

Background Report


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Table of Contents

1. Background

1.1 The URBACT-Seminar, Page 2

1.2 The PHYRE-Network, Page 2

1.3 The Heerlen-seminar, Page 3

2. Physical Regeneration in existing housing areas in the context ofshrinking cities with a loss of population

2.1 Regeneration of housing areas in the framework of urban shrinkage, Page 6

2.2 The results from the survey amongst member towns, Page 7

2.3 Case Study 1: Kassel - Untere Neustadt, Page 9

2.4 Focus on Practice 1: Re-use of central land along the Narew River in Lomza, Page 12

2.5 Focus on Practice 2: The Leith Project in Edinburgh, Page 14

2.6 Focus on Practice 3: Neighbourhood Contracts in Brussels, Page 17

2.7 Conclusions and questions for the seminar, Page 21

3. Brownfield redevelopment - innovative procedures, ideas and methodsfor analysis

3.1 The need for innovative ideas for the redevelopment of redundant sites & buildings, Page 22


3.3 Case Study 2: Heerlen - Redevelopment of a former mine site, Page 24

3.4 Focus on Practice 4: Heerlen - Woonboulevard, Page 288

3.5 Focus on Practice 5: Vilnius - “Northtown”, Page 31


4. Negotiation and co-operation with owners

4.1 Negotiation and co-peration with owners: The task, Page 35


4.3 Case Study 3: Taranto - Rehabilitation of the “Palazzo degli Uffici”, Page 37

4.4 Focus on Practice 6: “Housing in Ownership - Lack of resources, Page 42


5. List of available appendices, Page 49


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1. Background

1.1 The URBACT-Programme

Cities in Europe play a central role in economic growth, employmentand competitivity. But they are, at the same time, confronted withserious difficulties: inegalitarian urban development, creation of zonesof economic and social relegation, degradation of the environment,insecurity, erosion of the social link.

The efforts of URBACT concern mainly the cities and those areas, whichare characterised by a raised level of unemployment, of delinquencyand poverty and by the insufficient presence of public services.

URBACT, a Community Initiative Programme facilitates the networkingbetween cities from all the Member States around three larger objecti-ves:• Develop transnational exchanges between URBAN I and URBAN II

cities, those cities having benefitted from an Urban Pilot Project,and all cities with more than 20.000 inhabitants in the NewMember States of the Union.

• Draw lessons from the analysis of their experiences, policiesimplemented locally and propose innovative approaches tothose difficult issues.

• Disseminate towards the actors in all European cities the experi-ences in those different areas, the lessons learned and theresulting proposals for local projects and needs.

The cities participating in the URBACT-programme are joined togetherin numerous thematic networks that deal with most of the currentquestions in the framework of urban policy in the European Union andits Member States.

1.2 The PHYRE-Network

The objective of the PHYRE-network is to exchange expertise oninstruments in urban renewal, and thereby to consider social and eco-nomic aspects of urban regeneration. Thus, the focus lies on an inte-grative approach crossing sectoral boarders and exceeding plain phy-sical city development.

During the exchange process, participants have the opportunity tomake themselves familiar with procedures, instruments and restraintsof other European municipalities and legislative frameworks, to presenttheir own approaches and results in urban renewal and to contribute toestablish universally applicable strategies, if possible.

Three focal points are treated in thematic seminars, hosted by differentpartner cities:

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• Social and Mobility Policy [Komotini, Greece];• Strategies/Policies in urban regeneration [Heerlen, the

Netherlands];• Economic Aspects / Action for Employment [Taranto, Italy].

A focus on transnational co-operation methodology permits to keepthe employed methods in a permanent development process. The aimis to optimise the advantage for every network participant, whichmeans to concentrate on both successful projects and local needs.

1.3 The Heerlen-seminar

The working seminar “Urban physical regeneration” will take place on16 and 17 March 2006 in Heerlen. It will focus on the following threesub-themes:• regeneration in cities with shrinkage-related problems;• brownfield redevelopment;• negotiation and cooperation with owners.

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Picture 1: The PHYRE-partners


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The definition of these topics has been the result of a structured ana-lysis that the network partners have jointly undertaken during a prepa-ratory meeting in Heerlen in November 2006. During that meeting theexperiences of the network partners in respect of each topic wereexamined and clarified with reference to the following aspects:• what exactly is the problem and the challenge in the network’s

member towns - as the same topic does not necessarily meanthe same problem and task in each of the cities involved;

• what kind of projects and activities are carried out in eachmember city with regard to the specific topic;

• what kind of innovation and Best Practice has been achievedwith regard to the topic;

• and, finally, what are needs and deficites for each of the topicsin the member cities - to see which needs and interests can becovered with experiences and inputs from within the networkand which need to be covered external experiences.

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Table 1: Preparational matrix for the topic “Redevelopment of brownfields”


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This systematic introductory debate and particularly the examination ofpractices, needs and deficits has allowed a well-structured preparationof the seminar and the inputs to be provided - from within the net-work as well as from outside knowledge. Tables 1 and 2 show theresults of this discussion in detail. As a consequence of this preparati-on, three case studies will be presented during the seminar: • Development of the housing area “Untere Neustadt” on a for-

mer parking place near the river Fulda [Kassel] for topic 1;• Redevelopment of former mine sites [Heerlen] for topic 2 and• Rehabilitation of the “Palazzo degli Uffici” [Taranto] for topic 3.

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Table 2: Preparational matrix for the topic “Redevelopment of housing estates”


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Building on the statements and results of the preparatory seminar aquestionnaire was also circulated to all partners with the aim of focus-sing and clarifying the issues encountered by the partner cities inrespect of these topics. It was also decided to develop the themes byadding particular experiences of certain partners incorporated in docu-ments entitled “Focus on Practice”.

External inputs will supplement the case studies in order to provideinputs that were required by the partners during the preparationalmeeting. The topics for these inputs are:• How to co-operate with the owners of brownfields and derelict

land?• How to stimulate renovation of private housing?• How to find good methods for the analysis of market opportuni-

ties for brownfield redevelopment?• Which financial models do exist for redevelopment projects?• How to strengthen the environmental quality of inner-city hou-

sing areas?• How to tackle the gypsy problemespecially with regard to relo-

cation and provision of new living areas and housing? [For thistopic, an external Focus on Practice has already been providedfor Seminar 1]

This Background Report summarises the results of all preparationalwork in order to allow all participants a good preparation for the semi-nar before they come to Heerlen. The orignial documents - CaseStudies, Focuses on Practice etc. - are summarised and analysed in thisreport. As original and complete documents they are available as anappendix to this report for detailed study [see the overview at the endof this report].

2. Physical Regeneration in existing housing areas in thecontext of shrinking cities with a loss of population

2.1 Regeneration of housing areas in the framework of urban shrinkage

It is generally accepted that the problems of regenerating existinghousing areas cannot only be answered by a physical developmentapproach. Nevertheless, intervention in the physical fabric is a key ele-ment of urban renewal. It can operate as a catalyst to focus attentionon wider opportunities and needs in the community, to draw in invest-ment and to make a positive change to the image of deprived areas. Itcan provide a new context for habitation in specific areas dependingon the policy of the municipality.

This topic incorporates a number of aspects such as the improvementof public open space, the provision of affordable housing and/or mar-ket housing, renovation of existing buildings, demolition and recon-struction, new construction, densification, down-sizing, provision of

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services and amenities etc. Location and scale are also significant fac-tors in terms of the interventions that characterise our response toregeneration. Inner city [often historica] sites, peripheral housing esta-tes are the setting for the realisation of projects, comprehensive inte-grated actions or small scale interventions all of which can representan important contribution to the redevelopment and renewal process. The concept of “shrinking cities”, urban concentrations effectivelyexperiencing demographic decline, has added a new dimension to thefactors to be taken into consideration in the urban renewal process.How can urban regeneration policies and strategies respond to situati-ons where supply, for instance in the housing market, exceedsdemand? How does one deal with service and facility provision in rela-tion to declining population levels? What is the effect of increasedcompetition between urban settlements and outward migration on themost disadvantaged sectors of the population [aggravation of theeffects of social exclusion etc.]?

2.2 The results from the survey amongst member towns

Areas concerned The feedback from the preparational survey shows that most of theexisting types of areas are in the focus of local strategies and projectsfor regeneration. Mainly affected are:• the pre-war housing stock and post-war apartment blocks in

Bydgoszsz;• post-war apartment blocks between the city centre and the

periphery in Heerlen;• different types of neighbourhoods in the inner city and on the

way to the periphery in Kassel;• low-rise traditional housing between the city centre and the

periphery in Komotini;• a clear concentration on the historic city centre and the inner

city in Taranto;• all kinds of neighbourhoods in all parts of the city of Vilnius and• post-war housing blocks in the periphery and between city and

periphery in West-Athens. • Heerlen, Taranto, Lomza, Vilnius and Bydgozscz also report the

relevance of heritage issues in this context.

Problems and tasksMost areas show all symptoms of disadvantage and deprivationamongst the residents. In cases like Kassel and Heerlen, this is a con-sequence of structural changes [closure of mines and/or heavy indu-stry], in cases like Bydgoszsz, Lomza and Vilnius the cumulation ofproblems and disadvantage results from the general changes and chal-lenges of the surrounding societies. In some of the locations, ethnicelements add to the tensions and create additional tasks and challen-ges.

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So, the tasks in most cases are comprehensive and very complex,asking for integrated and strategic approaches. The most urgent pro-blems are a downward spirale in the development of the housing stockand environment due to a lack of investment and the social problemscreated by unemployment, exclusion and lack of perspectives amongstthe population.

Tendencies of “shrinking”The challenge of “shrinking cities” does not yet affect all of the member towns of the PHYRE-network. Especially for the two Greekcities this is not a topic. In the other locations, such tendencies areclearly visible and have two central causes:• a declining population due to a negative birth ratio as a tenden-

cy in Kassel and Heerlen;• outward migration in most of the member cities. This is due to a

lack of attractiveness of certain neighhoods or the entire city -but in most cases especially a lack of employment opportunitiesin the area. That is the reason that people move to other regions- and an important topic in Lomza and Taranto - that youngpeople do not come back to their home towns after they havestudied elsewhere.

Answers to challenges of shrinkingThe city of Kassel is the only member town that works in one of theareas on the basis of a national policy that is dedicated to this topic:To cope with tendencies of shrinking on the local level. This policyoffers subsidies to adapt problematic parts of the housing stock tofuture market conditions [including the option to demolish part of thehousing stock], to re-use and develop brownfields and to raise theattractiveness of inner cities.

In general, the affected cities search a solution to work against suchtendencies of shrinking in two main-lines of action:• Urban Regeneration Policy: Integrated approaches to improve

the quality of life in disadvantaged areas in order to stop theloss of population and re-integrate them into the urban con-text.Very often, a high emphasis in such approaches is placedon an improvement of public open space and the provision ofamenities for such areas.

• Much more important as a new development are changes inHousing Policy: The main question here is, what kind of housingpolicy it needs to attract new groups of tenants and to raise theattractiveness of the city on a regional housing market. The casestudy from Kassel presented in the next chapter shows oneexample implemented in this framework. The city of Heerlenthinks and acts in a similar direction but has not yet developeda coherent new policy to react to these new challenges.

PartnershipApproaches and strategies to answer the problems and challengesdescribed do, in most cases, involve various levels of the states. Interms of vertical co-operation, the national, regional and local level are

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involved in most of the approaches described. In terms of horizontalco-operation on the local level, the situation in the member cities isnot as coherent. In most cases, local authorities do co-operate withresidents and tenants’ associations, with service providers and finan-cial institutions. But, there are only a few cases where this co-operati-on is put on a contractual basis or a partnership agreement that wouldfix the roles and contributions of each of the partners. In most casesthe co-operation is flexible, only Heerlen reports the instrument of acontract between local authority and developer.

2.3 Case Study 1: Kassel - Untere Neustadt

The “Untere Neustadt” in Kassel is an area that is located closely to the city centre, at the banks of the river Fulda. Theneighbourhood that originally formed this part of Kassel had beencompletely destroyed during World War II with a subsequent use of thesite as a huge parking area and, temporarily, for festivals and otherevents for 40 years.

With the population growth of the 1990’s, due to a high degree ofimmigration from Eastern Europe, it was realised that this area - aprime site for urban development - could be developed into a centrallylocated and attractive housing area. Linked to that plan was the inten-tion to offer on this site high quality housing at high architecturalstandards as this market segment was missing in Kassel’s inner city.So, the overall aim of the project was to create an attractive new partof the city where people would want to live and work in a sociallymixed and ecologically sustainable environment.

After a planning and consultation period that lasted from 1991 until1998, the new estate was constructed in the following period withcompletion in 2005. As a result, there are now• 450 flats available of which 260 have been bought by non-profit

housing associations;• 15% of the estate’s surface is used for social and commercial

functions• 10% of the area is pedestrian area.

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Picture 2: Entering the area from the city centre


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As a positive results of this planning, it can be observed that now,even though the housing market is very relaxed in Kassel, this areafinds a sufficient demand on the local housing market and has turnedinto an attractive location for housing and living.

This achievement is the result of a plannig process that has continous-ly put a strong emphasis on quality and participation:• The initial incentive for the project came from a workshop that

was discussing perspectives for the Unterneustadt, held by anacademic in December 1989.

• In January 1990, the city council had a hearing concerning theissue and subsequently several European wide architectural andplanning contests have been implemented with the aim to findnew perspectives for this area near the river.

• The responsibility for the overall planning process remainedwith the city council and continuously invovled several municipaldepartments and a development corporation [a public-privatepartnership formed by the local authorities and to banks].

Partnership• The manifold workshops and local press activities were an

important means to gain recognition from the population and bythe city council - and achieve their support and cooperation forthis project.

• The creation of the Forum Unterneustadt was demanded by thecity council and turned out to be a valuable resource to accom-pany the planning and implementation and even the furtherdevelopment of the area after completion of its major construc-tion works.

• The creation of the advisory council has been an important toolto get and keep important key players involved and gain theirknow-how and support for the project.

• Intermediate financing was provided as a decisive contributionto the realisation of these plans by the regional bank of Kassel.The decision that 50% of thebank’s costs would be deferedafter selling the lots, was certainly an important factor fo thesuccess of the project.

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Picture 3 - 5: Impressions from the area


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Factors of successAn important factor of success has certainly been the very intense par-ticipation process during the planning and realisation period for thisnew estate. This included the following key players and groups:• The “Forum Unterneustadt”, with residents, politicians,

representatives of citizens initiatives and of different organisa-tions. The forum exists until today. No action could be accomplished when the forum expressed a negative opinion

• An advisory council with experts from Kassel, Germany andabroad

• A curatorship with nine representatives [citizens, representativesof economy and politics]: representative function partnershipand its structure.

Innovation• The creation and integration of the Forum Unterneustadt as a

good tool for comprehensive and continuous participation. • The integration of students and academics with workshops from

the beginning. • The development of housing with a high living standard in the

city centre in times of over-supply on the housing market. • Keeping the middleclass in the city and the factors that contri-

buted to the success of this practice’s financing by theregional bank of Kassel.

Lessons• Citizen participation is a very effective tool to ensure local

identification with a project. This is not only important to gainacceptance and support during the planning and implementati-on process, but maybe even more once a new estate is built andneeds to develop into an accepted urban neighbourhood.

• A well-organised public-private partnership can help to realiseprojects with social ambitions.

Transferability• The public-private partnership as a joint venture between the

local authorities and two local banks was important for the suc-cess of this project and can be easily transferred.

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Picture 6 - 8: Impressions from the area


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• The Forum Unterneustadt, a permanent local consultation forumcan - with a specific choice of participants in each individualplanning case - be equally transfered.

• The same goes for the advisory council as a tool to ensure external expertise and quality control.

2.4 Focus on Practice 1: Re-use of central land along theNarew River in Lomza

The area The planning area covers about 50 hectare and is located on the pic-turesque banks of the Narew River between the Old Bridge and theNew Bridge. This river is a territorial border of the city, so that theboulevard area has a peripheral location. But, at the same time it is sit-uated close to the historical city centre. There are no architecturalmonuments, but this urban structure has a historical value. The area is in large parts used for agricultural purposes or is simplewasteland – at the same time having the function of flood area for theriver. There are some detached low-rise houses and a few otherbuildings on the site. 36,6 ha [about 70%] of the ground belongs tothe city of Lomza, partially in co-ownership and about 13,7 ha [30%]are privately owned.

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Picture 9: The planning area


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The emptiness of such a central area in the heart of the city causesproblems of chaos and underdeveloped areas. The “genius loci” hascompletely disappeared.

Objectives of the projectIt is the aim of this initiative to transform of wide urban area togetherwith private investors. From an urban development point of view, itseems essential to make a better use of this attractive location near theOld Market. This means in practical terms:• Improve the traffic infrastrucutre for cars and bicycles and the

public space [aesthetic values].• Redevelop the public infrastructure for tourism, recreation, cul-

ture and sports.• Revitalise the regenerated areas with public functions of munici-

pal, regional and national meaning.• Restore the order to the urban layout through developing empty

spaces between the river and the existing built environment.

Problems• The local authorities do not have sufficient financial resources to

implement all the project proposals that have been developed.• The structure of the ownership in the area makes to realisation

of the existing planning difficult and time consuming.

Process InnovationThe local authorities of Lomza have launched a competition for thedevelopment of this central land along the river. In a first stage, theparticipants presented a general approach to the development of thearea and a vision for its future, in the second stage they developeddetailed project proposals. As a result of the first stage, four different visions for the future deve-lopment of the area have been developed. Two of them were chosenfor further elaboration, so that now two detailed concepts are available.

AchievementsThe winner of the competition has been selected and currently nego-tiations are taking place. This procedure has resulted in high qualityplanning and design with a chance that this central area will contributeto a growing attractiveness of the city of Lomza as a whole - once theplanning proposal has been implemented.

Experiences with participationThe participation of the local community in this planning process hasshown ambivalent results. On the one hand, this has clearly contribu-ted to a commitment for the development of the area and contributedmany ideas. On the other hands, many ideas of the local communitycan not be realised so that a certain degree of frustration is created.

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2.5 Focus on Practice 2: The Leith Project in Edinburgh

The contextThe city of Edinburgh cannot be described as a “shrinking city”. Onthe contrary, it should be more readily classified as a “high growth”city and therefore has not been eligible for direct European funding inrespect of urban regeneration. Although population figures dipped inthe eighties, by 2000 the continuing capacity of the city to attractemployment [coupled to the new élan as Scottish capital within a newdevolved UK governmental structure] ensured a restoration in theglobal level of habitation. Today unemployment figures for the city as awhole are particularly low. However, this tertiary-sector led globalprosperity does not necessarily mean that all areas of the city exhibitthe same positive characteristics. Certain districts, particularly but notexclusively peripheral housing estates, bear witness to a history ofurban deprivation and social exclusion.

The planning areaThe area around the port, the historic community of Leith, is one ofthe city districts which has faced aggravated difficulties [economic,social and physical] and has been subject to diverse programmes ofrehabilitation. With the post-war decline in the importance of the portfunction and collapse of the industrial power base of the neighbour-hood, Leith experienced a steady deterioration. Even before 1971 theCity Council demolished 2000 homes as part of a slum-clearance pro-gramme. Between 1951 and 1971 population levels declined by 30%with of course the most economically able groups being the first toleave. What survived was an important architectural heritage of build-ings with no function, a dependent low-income population with highunemployment levels, predominantly social housing tenants, generallypoor quality housing provision, abandoned industrial and residentialsites, degraded urban landscape, lack of community facilities, intrusivetraffic levels with heavy goods vehicles, drugs, prostitution, etc. Aturning point in this downward spiral was the recognition that an inte-grated approach to rehabilitation was necessary and the initiative takenby the then Scottish Development Agency to launch the “LeithProject” in 1981.

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Picture 10: A view on the planning area


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Objectives of the projectThe aim of the initial “Leith Project” was, by means of the establish-ment of a partnership [firstly a partnership of public authorities], tofocus efforts and investment in Leith on urban regeneration. Job-creation, provision of decent housing, clean-up or redevelopment ofderelict land, requalification of public open space were the key objec-tives to be addressed. Although the “project” has constantly evolved,attention has continued to be focussed by the public authorities on thegeneral aims.

PartnershipThe basis of the process has been partnership, a new concept in the80’s. The partnership principle was applied not only to the questionof physical rehabilitation but also in terms of community initiatives sothat representatives from bodies such as the police, health boards andeducation authorities could be brought together to examine specificproblems and seek a coordinated response. Different partnershipstructures have been established, dissolved and adapted over timedepending on the phase of the ongoing activity, changes in local gov-ernment structures, economic conditions, actors involved in particularprojects etc. So the whole process could be described as flexible inresponse to changing opportunities, even becoming informal in thesense that absolute control does not rest solely with public authorities.

Ambivalence of achievementsThe availability of waterfront sites and a development potential, encap-sulated in intrinsically high quality historic urban fabric, has been amajor influence in attracting inward investment and surely privateinvestment. As the process progressed there was a definite swingtowards development or market led urban renewal. While populationand employment levels increased, this did not necessarily directly ben-efit the existing community. Unemployment levels in the indigenouscommunity remain high [even in 2000, 5x the rate of Edinburgh as awhole]. Jobs created and houses constructed did not necessarily corre-spond to the skills or needs of the local [often immigrant] population.

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Picture 11: Former whisky warehouses converted to business and restaurant locations [groundfloor] and upmarket apartments


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So we can now speak of a juxtaposition of upwardly mobile high-income, new inhabitants living alongside, but not together with, a lowincome in many cases dependent but surviving population. Some con-sider that the realisation of this phenomenon has been slow to filterthrough. It is in any case true that today the concern of local authori-ties is much more orientated towards community improvement andinvolvement. While this social aspect may not have been afforded acorrect priority in the past, the general improvement in affordablehousing should not be dismissed nor the positive effect on certain tra-ditional businesses within the local economy. Criticism could also bemade of the level of real participation and involvement of the commu-nity in the whole time-scale covered here. It is not clear yet how sus-tainable certain prestige projects may prove to be.

LessonsThe lessons to be drawn seem to be:• Prime sites can be exploited to diminish the effects of

“shrinking cities” if the development climate is appropriate orcan be manipulated or stimulated (regulation, financial incenti-ves, logistical support, procedural facility).

• The change in status of Forth Ports allowed a major stock ofderelict land, in fact worthless land [as long as it was designatedas port facility], to be recovered for development purposes. Thisinvolved an important negotiation procedure to ensure that anew private institution would benefit as a partner in real estatepromotion while acting itself as catalyst.

• Identification of key actors and integration in a partnership pro-cess allows an understanding of the different needs of publicauthorities and private ventures to be translated into concreterenewal projects. Information is also a key factor in raising pro-files.

• Even while the motivation is to limit public investment, guaran-tees still need to be built in to a market led process in order toaddress the real needs of an indigenous population in difficulty.A continued awareness of the balance between the effects ofredevelopment and the achievement of defined social objectivesis indispensable so that a parallel process can operate. Thiswould suggest that some form of continuous global supervisionis essential although this may be a very light framework.

• The potential and disproportionate effect of low cost, locallyinspired initiatives should not be overlooked [the Leith walkwayproject for example, parts of which were sponsored byEdinburgh firms]. On the contrary correct identification of such“keys” can have a strong impact on the image and marketingof a neglected urban area.

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2.6 Focus on Practice 3: Neighbourhood Contracts onBrussels

Background and contextEconomic recession in the 1970’s accompanied by transformation ofthe economic power base of the city of Brussels fundamentally alteredthe socio-economic balance in many districts of the capital. Thedecline or departure of small and medium-sized industries which tra-ditionally characterised life in the centre of the city further aggravatedtrends of outward migration and decrease in population, growth inunemployment, increasing deprivation for remaining inhabitants leastable to adapt to this new situation, and producing a steady deteriora-tion of the urban fabric.This was particularly the case in the central districts ranged alongeither side of the canal and railway, namely the communities of:Molenbeek; Anderlecht; Saint Josse; Schaerbeek; Saint Gilles and theold City of Brussels. Following a process of government reform inBelgium a two-tier system of local authority [involving the creation ofBrussels Capital Region as a new institution to oversee and coordinatethe 19 former communes/unitary authorities] was adopted to adminis-ter the territory of Brussels.One of the policies characterising this new structure has been thesearch to develop initiatives to counter the particular problems ofthese disadvantaged central urban areas. The new region established aRegional Development Plan and Regional Land Use Plan, and set out tostimulate the communes to develop their own local plans within thisframework. One of the main objectives identified in the RDP was toreverse the trend of outward migration and to enhance the quality oflife and environment particularly in deprived central areas. An impor-tant new instrument was identified and developed to intervene in theprocess of urban degradation. The concept of NeighbourhoodAgreements was initiated in 1993 and launched in 1994.

ObjectivesThe aim of the Neighbourhood Agreement was to operate as a tool tostimulate urban renewal in well-defined, disadvantaged areas of thecity. The option was to direct limited public investment and actions toanswer the particular needs of these districts in terms of housing andrenovation [affordable housing], public open space and amenities, andsocial cohesion. By coordinating and focussing national, regional andlocal public investment on specific actions in these areas, and provid-ing support for the use of funding from Objective II and URBAN theintention was to start a process which would also attract and draw inprivate investment hopefully ensuring long term andcomprehensive area renewal.

Detailed descriptionThe Neighbourhood Agreement or Contract is in fact a partnershipbetween Region and Commune to initiate certain operations within adefined district [set boundaries on the basis of social indicators,derelict land etc.] and designed to revitalise the locality, [today over a

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4- year period involving acceleration of procedures]. It can include therenovation of existing homes, the creation of new housing, the reha-bilitation of sites for economic production but in combination withhousing development, improvement of public open space, creation orsupport for local amenities and infrastructure and the implementationof social initiatives and participation. The actions are organised into 5categories of intervention.

Category 1 Creation of housing comparable to social housingRenovation, construction or reconstruction of homes by the Communeor the Centre for Social Welfare in buildings where the public authorityis the owner or becomes the owner [compulsory purchase if necessary].The housing stock thus created, or improved, remains the property ofthe public authority. The objective is to increase the affordable housingstock available for families in difficulty with priority given to those whoare affected by renovation programmes.

Category 2 Creation of “conditional” housing [middle class housing]The acquisition of a building or a site still to be prepared for construc-tion by the local authority, by means of purchase (also compulsory) orthrough leasehold. The aim is then to offer the property for sale via apublic announcement to private investors, or other institutions, at aprice lower than the market value. A condition is imposed on the buyerto make the resulting homes available to families whose annual incomedoes not exceed a defined sum. By reducing the cost to the investorthe intention is to attract private intervention and stimulate social-mix.

Category 3 Partnership between the public and private sectorThe Commune or Centre for Social Welfare will lease [max. 40 years)] aproportion [max. 75%] of the housing realised by a private enterprise.The homes leased in this way are rented as social housing but remainthe property of the private investor and are not subject to conditions.The objective is to encourage private intervention in the housing mar-ket by guaranteeing a minimum return on the real estate investment.

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Picture 12: Impressions from the project area


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Category 4 Actions to create or improve public open spaceRedesign and maintenance of streets, pavements, traffic junctions andsquares. Improvement of public open space, safety and access aroundschools, residential areas. Street lighting improvements and treatmentof green spaces inside housing blocks. In recent initiatives this catego-ry has been almost exclusively financed by the funding cooperationcontract agreed between the National Government and Brussels CapitalRegion

Category 5 Social cohesion measuresThe creation or improvement of local facilities or services, indoor sporthalls or play areas for example. The support of local initiatives toenhance the social and economic improvement of the district. Theseprojects can be varied involving job training, community integration,health and safety in the home or cultural/artistic activities for example.

Relevance

This programme is intended to intervene in terms of redevelopingabandoned sites and buildings [different scales of brownfields[, tostimulate renovation and new construction in existing housing areas,to upgrade the surroundings and to provide community facilities. Inthis sense there is a particular relevance to the themes covered inPHYRE also in respect of shrinking cities and negotiation with owners,developers and local inhabitants.Since 1994, some 700 houses have been made available, a significantnumber of streets have been re-profiled and improved and some 65local facilities have been realised. During the first 6 years the resultswere slower in terms of the numbers of houses involved and eventoday it is not simple to have a comprehensive overview of the realisa-tions per action previewed as constituting the neighbourhood agree-ments. It is difficult to make a cost-benefit analysis and also the con-tribution of the private sector is not easy to evaluate. Nevertheless theprogramme has had a serious impact on the image of certain parts ofthe city and at the very least is a catalyst for change integrating andfocussing the actions of a number of disparate agencies.

DeficienciesIt is quite possible that the contribution by the private sector has notreached the hoped for level within the formal framework of theNeighbourhood Agreement. The areal definition of the neighbourhoodsdoes not always correspond to the perception of the local community,neither by definition does it necessarily correspond to statistical sec-tors which makes demographic evaluation difficult.Differences in political colour between different adjacent communes orbetween commune and region do not facilitate decision-making eitherin terms of policy or implementation. Despite the presence of a coordi-nating structure the relative autonomy of these initiatives and theirarea-based focus has not necessarily guaranteed an integratedapproach across frontiers or an optimal response to major develop-ment opportunities or projects in the vicinity. Transparency is not per-

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haps as evident as one would anticipate, once sites are defined anddiscussions commence with potential developers.

Conclusions

The Neighbourhood Agreement as it is worked out in Brussels is not aperfect mechanism. However, the overall objective and application ofinstruments is more than worthy of examination and certainly has autility for transfer to other cases. Through a good understanding of thepositive experience and the deficiencies it should be possible toimprove the management of such a programme and even to customiseit to respond to particular contexts in other urban areas.

InnovationThe innovative aspects would seem to be:• The combination of approaches in one global package.• The attempt to combine public and private investment in

response to the objectives set out• A limitation and focussing of public intervention.• The degree and structure of community involvement.• The combination of physical, economic and socio-cultural

objectives.

Transferability

This tool is adequately transferable, and adaptable. The experience inBrussels can also be used as a laboratory to improve or modify theapplication or indeed expand it’s sphere of influence.

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Picture 13: Impressions from the project area

2.7 Conclusions and questions for the seminar

The preparational work shows, that the challenges facing local actorswith regard to the regeneration of housing estated and inner city loca-tions are significant and that the framework to overcome the problemsis not an ideal one - as the most significant and influential causes ofthe problem - lack of employment and income - can hardly be influ-enced on the local level. This is not a new topic and the seminar willcertainly not find new solutions.

However, the analysis of the inputs prepared for the seminar indicatesthat there are some promising elements that should be discussedamongst the participants. These questions for discussion are:

• In which way can regeneration initiatives create a new attrac-tiveness to regeneration areas that does not only make the area itself more attractive, but can also make a contribution to the overall attractiveness and growth of the city.

• Is the designation of priority areas or issues and targeting ofactions an effective means of achieving a more widespreadresults?

• Can punctual intervention, and if so which type, truly influence the renewal process?

• How can we identify untapped potentials, prime sites, unexploited heritage?

• Which partnership models can contribute to a more structured and coninuous co-operation of all those concerned and can make sure that all necessary partners get motivated and make a reliable contribution to the strategy.

• How can local communities, tenants associations and other local actors be empowered to make a valuable contribution to the regeneration initiatives.

• What kind of analysis is implemented to define the need of newhousing and which trends are taken into considerations for theinvestment in large housing projects?


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Picture 14: Another impressions from a Brussels project area


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3. Brownfield redevelopment - innovative procedures,ideas and methods for analysis

3.1 The need for innovative ideas for the redevelopment ofredundant sites & buildings

The existence of brownfield sites in the centre as well in peripheralareas of cities presents difficult challenges particularly for local autho-rities: • There is no control over the location of these sites. • There is no control over the presence and condition of buildings

on the site. • There is no control over the past industrial activities on the site

and the eventual pollution caused by these activities. • Such sites can seriously damage the overall image of a city.

Yet such sites can often be considered as prime development sites ininteresting locations: within urban concentrations; in inner cities; oftenin relation to key line infrastructure [railways, road network] or alongwaterways. Depending on their location and other constraints derelictor abandoned areas can also vary in scale ranging, for example, from asingle vacant building in the inner city to wide expanses of formerindustrial zoning in peripheral or even rural sites.

In this sense, therefore, they can represent exceptional opportunitiesfor urban renewal or amenity provision if the process of rehabilitationcan be efficiently managed.

There are specific characteristics associated with the phenomenon“brownfields” – site classification and levels of contamination, questions of ownership and liability [who is responsible for decontami-nation?], means of financing and partnership, risk management, pro-ject type and new land uses, community involvement etc...

An examination of current experiences in this field [i.e. how to initiatethe process of brownfield redevelopment, what is the potential forinterim uses....] should provide helpful indicators in order to optimallyexploit the potential of such sites.


The contributions from the member cities show that there is a widerange of types of areas that has become redundant and needs redeve-lopment now. Such types existing in the member cities are:• old industrial sites;• former military sites; • railway buidlings and sites that are not in use anymore;

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• former waste disposal areas;• small-scale areas in more central inner-city locations [i.e. aban-

doned warehouses, gap sites]; • in the case of Heerlen one site became redundant after it had

been used by caravan dwellers.

The motivation for local authorities and other public bodies to takecare of these areas and develop perspectives for a new use are similarin most of the member cities. In most cases the objectivie is to• improve the image of the area or work against a negative con-

tribution that such sites create to the overall image of the city;• to develop new economic activities on the sites - in some cases

important for the local authorities as that generates additionaltax income for them, also with a view to retaining or recreatinglocal employment;

• environmental reasons - in a limited number of cases there is afear of environmental and health risks created by these sitesthat forms the motivation to start a planning and conversionprocess.

This implies at the same time that the selection of such areas is doneby the local authorities as part of their overall urban developmentplanning - even though in many cases the local authorities are not theowners of such sites: Very often they are still privately owned - insome cases there are semi-public bodies who have become ownersand are then partners in strategies for a re-use of redundant sites andbuildings.

When is comes to the definition of new uses, again a wide variety ofoptions can be observed in the member cities. Sometimes - as in thecase of Kassel - it is the mixed-use schemes that are most successfuland attractive for investors and later users. In other cases - such as inHeerlen - it can also be a mono-structured new use with a clear focusand image that makes it easier to create an attractive environment forinvestment and revitalisation. Types of new uses for redundant areasreported by the member cities are:• leisure-related functions;• new housing areas; • areas for retail and light industries;• cultural and/or social projects;• new urban parks and green sites as a less commerically oriented

leisure facility; • conference and/or exhibition centre.

In most of the cases these conversion projects are implemented inpartnership: In most of the cases this means that the public entities[local or regional authorities] work together with the private sector -the main contributor of investment needed for the conversion. This co-operation in most cases is an informal one. Only in a few cases - like

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Kassel - there are contractual solutions that define the roles and con-tributions of the partners involved. A participation of residents is notthe standard when it comes to the revitalisation of redundant sites andbuildings. The feedback from the member cities shows, that such par-ticipation is obviously most difficult to achieve when the sites are peri-pheral and the citizens do not really feel affected by their negativeimpact. When it comes to more central locations, participation andinvolvement of citizens is more common. In most cases it remains onthe level of informing and consulting the public with a limited numberof events and/or campaigns. In a few cases - like Kassel - more conti-nuous and intense participation is achieved, with residents taking acti-vely part in planning workshops and in accompanying the entire pro-cess of planning and implementation.

3.3 Case Study 2: Heerlen - Redevelopment of a former minesite

Origin of the project

On the 6th of December 1965, Prime Minister Mr. Den Uyl declared inHeerlen the closure of the mines. Because of huge financial losses andbecause of the discovery of the [much cleaner] gas fields in the North-east of the Netherlands, this dramatic decision was inevitable. Within 9years all mines closed their gates. A negative image and atmospherebegan to grow in the district. A new economic use had to be found forthe area so that a new impulse could be given in order to revitalize thesituation. A second reason for the start of the reconstruction was thefact that the areas had to be reconstructed from a spatial point of view.

Organisation & CooperationIn 1965, a cooperation model between several municipalities in theEastern mine district decided to join together in the Urban RegionEastern Mine District, in Dutch called SOM. They developed a wideranging masterplan for the entire region. The goal of the plan was togive an analysis of the possibilities of a possible new spatial structurein order to realize a new area for living and working. The plan wascompleted in 1974.

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Picture 15: The Wilhelmina mine in 1939


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After the initial plans, a structural organisation [the SSO] was foundedin 1975 to carry out the operation ‘From black to green’. In thisorganisation the four ‘mine municipalities of the Eeastern mine dis-trict worked closely together. The decisive power was given to a dailyexecutive committee consisting of 4 members [representatives of theMunicipalities]. This committee came together on a regularly basis inorder to take decisions. The most important instrument for the execu-tive committee was the operation plan as this was the framework inwhich this committee was permitted to operate. Another importantelement of the organisation was the private company Hoefnagels whichwas responsible for the project coordination. Most important reasonfor this private – public partnership is the temporary character of theoperation. It was the conviction of the involved municipalities that theestablishment of a new interlocal governmental organisation was notlogical. A second reason was that a private organisation was regardedas too unbiased and impartial in the decision-making process. TheSSO operated on a regional scale, which was necessary to effectivelyrealize the project. The structure of the different local authorities wasnot capable to meet these challenges as all former mine-locations werespread out over the boundaries of the communities.

ChallengesDestruction of the old mining plants was not enough. Foundations hadto be dug and a thick covering layer had to be put on the ground.Thistype of technical activities, necessary for the later construction ofhouses and buildings, had never been done on that scale before. Theclearance of the former mines asked for technical knowledge andintensive cooperation between the partners.

Overall objectivesTarget of the operation was an comprehensive reconversion of the for-mer coal mine sites. The aim was to create an attractive area for com-panies and inhabitants in the eastern mining district. In order toachieve this, it was decided that reutilisation and redevelopment of themine sites into destinations for housing, leisure and nature had to bethe outcome of the operation.

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Picture 16: “De-Construction” activities in 1976


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ActivitiesIn 1978 the Municipality of Schaesberg [nowadays called Landgraaf]purchased the site from the private company. The goal was to makethe hill part of a green area with leisure functions. In this period, thesludge ponds near the spoil heap were filled up with the material ofthe spoil heap and the steep slopes of the hill were slightly moderatedin order to make it more safe for public. After these activities, theheight of the mountain decreased by 20 meters. The black material ofthe hill was covered up with a second layer. Soon the hill was a symbolfor the slogan ‘From black to green’ as grass gave the heap a newface.

The scope of the reconstruction projects can be subdivided into hous-ingprojects, leisure projects and industrial projects. Because housing isstrongly linked with local policy, the Municipalities themselves wereresponsible for housing projects. The SSO was, because of the regionalcharacteristics of these projects, responsible for leisure and industrialprojects. One of the aspects which had to be taken into account in thismassive physical operation is the relation with the social revitalisationin the former mining area. As a result of the closure, social problemsbecame a challenge, such as loss of identity, changes in family dynam-ics and the loss of the strong social context.

Create a skiing area in the NetherlandsThe idea to use the spoil heap as ski slope originated from a privateindividual. The former European skiing champion Sigi Moser launchedthe idea to start a ski centre, using the technique of brushes. With helpof the Municipality, e.g. the construction of infrastructure in order toimprove the accessibility, the ski centre was developed. At that time,this ski slope was the longest artificial slope in Western Europe. In the end of the nineties, the company of Moser sold the slopebecause of financial problems. This second private enterprise addedtwo new elements: the production of real snow and the construction ofa chairlift. More over, plans were developed for a complete indoor cen-tre. A few years ago, the ski slope was taken over by the companySnowworld. This company invested in the covering up of the slope.Thanks to the strong opinion of one entrepreneur [the director ofSnowworld], the Municipality of Landgraaf was convinced and grantedpermission.

Partnership & CooperationIn the case of Snowworld, it is important to realise that the initiativeduring the years to start and continue the ski slope came from privatecompanies. This process implies another attitude of public authorities.Without a facilitating and conditional approach of the local authoritiessuch a development is impossible to realise. In addition, standardmunicipal instruments [such as a spatial plan] are used.Involvement of the local population in the decision making process wasminimal. The most important reason was the location of the formermine sites. Most redevelopments took place on sites that were notlinked directly to any of the neighbourhoods. Everybody agreed thatsomething had to be done quickly and effectively. More over, one

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should bear in mind that the operation took place in the 1970s and1980s. Compared to the present planning culture, focussed oninvolvement of interested parties, an interactive approach was not yetcommon at that time.

Critical elementsBecause of the deadline of the redevelopment operation, a lot of buil-dings, factories and pithead shafts were demolished rapidly.Nowadays, the conclusion can be drawn that a lot of significant histor-ical landmarks disappeared. The importance of the conservation of thisheritage, as reminder of a rich mining history, was not considered pro-foundly.

Positive outcomesSnowworld Landgraaf attracks a lot of visitors. It is seen as the mostimportant tourist attraction in the region Parkstad Limburg. The skicentre has 3 slopes with in total 8 ski lifts. There is a slope of 520m[the longest artificial slope in Europe] and recently [in 2003] a slope of500 meters has been opened. In addition, there is a third slope with alenght of 100 meters. To maintain the ideal snow condition the tem-perature on the slopes is kept on a constant level of -5 degreesCelsius. Besides the skiing and snowboarding on real snow, Snowworldalso focuses on other leisure functions like celebrations, conferencesand meetings.

Lessons to be learnt

The most important lesson from the redevelopment in the Easternmine district is the importance of a proactive approach of all parties inthis region. Because of their conviction and their efforts, a targetedinitiative began to grow with a common feeling of joint responsibility.This resulted in a strong co-operation on a regional level, exceedingthe municipal borders. Another important lesson is to gear the activities in the plan area toeach other. In other words: don’t develop the same project onlocation A as it is done on location B. This consideration to act in a

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Picture 17: Snowworld


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complementary way is necessary on a regional level in order to avoid acompetitive planning approach. In these efforts, the qualities of thesites have to be the starting point. A third important lesson is the importance of a good co-operationbetween public and private bodies. Nowadays this seems to speak foritself, but in the seventies the model of the SSO [the relationshipbetween the executive body and the private company] was new andunique. This cooperation resulted in a creative, professional and effec-tive planning process.

3.4 Focus on Practice 4: Heerlen - Woonboulevard

Origin of the projectIn 1965 a regional caravan camp was allocated in an area called ‘Inde Cramer’. This area is situated outside the city centre of Heerlen,near the highway N 281. The settlement of the caravan camp for agroup of caravan dwellers was made possible by the Municipality ofHeerlen by assigning a long lease contract for the grounds of the areafor a period of 50 years. In the seventies and eighties the spot changed into an area with un-desirable functions. As a result of the foundation of several [legal andillegal] demolition firms, the amount of car wrecks grew more andmore throughout this area. As a result of this practices the groundswere polluted severely. Moreover, during this period the group of car-avan dwellers grew to more than 100 families. The area was more andmore considered as a no-go area. Besides this, the concentration ofcaravan dwellings resulted in a breeding ground for criminal activities.

TheStart of project developmentThe motivation to start this redevelopment project was the unwantedconcentration of caravan dwellings. The decision to cut back on theconcentration of these dwellings was brought up by the Dutch gov-

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Picture 18: Caravan dwellings on the planning site


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ernment. It was part of national policy to deconcentrate caravandwelling families [in stead of concentrating these groups]. This was aresult of the conviction that these families had to integrate in society.A second important reason was the need to clean the pollutedgrounds. Both soil and groundwater were part of a large scale cleanup operation in order to restore this area into the same conditions asbefore 1965. After the decision to clean up ‘In the Cramer,’ the ideawas brought up to develop a peripheral retail trade centre. The de-velopment of this kind of a large scale economic activity in the outsidearea of a city was initiated in more regions throughout the Nether-lands.

The planning and implementation processA crucial moment in the redevelopment operation was the ambition ofa regional project development company to build the largestWoonboulevard of Europe in the ‘In the Cramer’. This initiative wasembraced by the local political parties. There was an important condi-tion put forward by this company though: the Municipality had todeliver completely clean grounds to the development company.

Participation and relocation of residentsIn 1987 the Municipality of Heerlen decided to remove the caravancamp in ‘In the Cramer’. For the operation several [financial, legaland environmental] project groups were installed in order to carry outthe operation. In the project group, cooperation took place with a del-egation of the caravan camp inhabitants. In the operation, 130 families[of which 75 on legal stands and 55 on illegal stands] were removed toother areas. More than 150 caravan stands were dismantled, 3 cardemolition companies were removed to a special for this purposeallocated area, 12 demolition companies were forced to discontinue, aschool was dismantled, 223 other caravan stands in the region wererealised.

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Picture 19: The “cleaned” planning site


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AchievementsThe Woonboulevard Heerlen was officially opened in 1991 as the firstWoonboulevard in the Netherlands. In the end of the nineties, aninvestor decided to add 40.000 m2 to the existing retail surface. Thiswas completed in 2004.The Woonboulevard in Heerlen is the largest in this type of Shoppingcentre in Western Europe. With a total surface of 150.000 squaremetres of space and 52 different shops in home and garden furnishingit attracts more than 4 million of visitors per year. The amount ofshops and visitors is still rising. The Woonboulevard is easily accessible thanks to the nearby situatedhighway, the amount of parking places [more than 3,000] and also bypublic transport visitors can reach the Woonboulevard.

EvaluationResearch shows that the Woonboulevard in Heerlen is the fourth bestin the range of most visited shopping centres in this Euroregion. In thisresearch, only people are counted originated from outside the region,in the case of Heerlen this region is called Parkstad Limburg [with atotal amount of approximately 275,000 inhabitants]. In average, theWoonboulevard is visited 9 times annually by people from outside theParkstad region and per visit 100,- Euros are spent.

Innovation:In the Netherlands, the concept of the Woonboulevard is [since theeighties] a popular spatial function in the border of the cities. In thebeginning of the operation in Heerlen, this type of function was newand innovative. In 1989, the first Boulevard was developed in Almere[near to Amsterdam]. Later on, other rather similar Woonboulevardsopened across the Netherlands. In 1994 Woonboulevard Eckersrijt wasdeveloped in the city of Eindhoven and in 1995 WoonboulevardAlexandrium in Rotterdam.

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Picture 20: Parking area in front of the new shopping centre


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Key factors of successTo maintain the concept in the long term, a clear policy is needed.Thanks to strict municipal conditions, the concept of home furnishingis still preserved in Heerlen. A special committee was set up in order totest requests of companies to settle their company on the boulevard.Only if the type of shop is considered to fit into the concept, settle-ment is allowed. An important factor that contributes to the success of the Woon-boulevard in Heerlen is the creation of a multifunctional area wherepeople like to stay for a longer period of time. To attract and keep thevisitors in the area, five restaurant and cafes offer people the opportu-nity to have drinks and eat. Another factor which contributes to the success is the urban design ofthe site. The front part of the boulevard has a length of approximately1 km and is designed in a distinctive way, parallel to the highway andrailway. Yet, every shop is significant recognisable because of its dis-tinctive image.

3.5 Focus on Practice 5: Vilnius -”Northtown”

Origin of the projectThe “Northtown” was a former Soviet army military campus located inthe centre part of the capital city of Vilnius. After the Republic ofLithuania had gained its independence in 1990, the Soviet army startedto withdraw from its locations in the country and, in Vilnius, left thismilitary base as a redundant site with a rather negative image andimpact on urban development in the surrounding.

ObjectivesThe main objective of this development initiative was to integrate theNorthtown territory into the residential area Zirmunai. In order to pre-pare the creation of a residential environment with mixed new use in acentral location of the city, it was important to creative attractive con-ditions for private investment. This included a targeted effort to over-come the negative image of the area and to involve significant privateinvestment as well as the local residents for the more precise definitionof facilities and uses to be realised.

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Picture 21: Northtown military barracks


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OrganisationWhen starting this project, it was clear to the local decision makers inVilnius that in the local public budget there would not be enoughfinancial power and resources to implement this project as a purelypublic initiative. Therefore, the Joint Stock Company [JSC] Northtownwas set up in 1998 by the local authorities of Vilnius. In 1999 JSCNorthtown signed the contract with Vilnius county governor adminis-tration for the rent of approximately 53 hectars territory where theformer Soviet army base had been located for 99 years. The main pur-pose of this company was to prepare the land plots for potentialinvestors, including the demolition of the buildings of no value and thecreation of a sewage system, electricity and other network infrastruc-ture.According to the Vilnius General Ctiy Plan that was approved in 1998,the detailed plan for integration of the Northtown territory into theresidential area Zirmunai was prepared. ParticipationThe JSC Northtown prepared the lots for the investors on the basis of aplanning provided by the local authorities and organized the publicprocurement competition for the subrenting of the individual construc-tion site. The consultation with local residents was rather active. Theyparticipated in meetings organised by the JSC Northtown for the dis-cussion of proposals made in the detailed plans. During these meet-ings, the residents highlighted the three biggest problems for them: • parking, • green open spaces and • infant and primary school.

These inputs were taken into account for the further planning.

Final planningAfter the consultation, some changes were made to the orignial plan-ning:• Some of the lots foreseen for commercial purpose were changed

to the residential sites;• the territory for the green open spaces was enlarged from 0,5 to

0,9 hectars;• it was decided to convert the building of the Labour Exchange

into a infant and primary school once the current contract has-expired.

FinanceJSC Northtown invested about 17,4 mln. Euro in the area which wascomplemented by and about 145 mln. Euro of private investment. Itwas a unique situation that JSC Northtown was established by themunicipality but it worked by itself and without any financial supportfrom the municipality. JSC Northtown’s investments into this territorywere generated by the infrastructure fee that the tenants were obligedto pay and that went inot a revolving fund for further investment.

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The financing for the creation of necessary infrastructure and the com-pany’s activities was organized as a revolving fund.

Innovation and Added ValueSuch a development of a publicly-owned redundant site by a newlycreated semi-public body was a very innovative operation for the cityof Vilnius. It turned out to be a rather successful one, as a site of 53hectare of former military use was almost completely redeveloped inthe rather short time of 7 years.The creation of open green spaces for the residents as one obligationfor investors, fixed in their contracts, has certainly been another suc-cessful and innovative element of this strategy. A third element of success has certainly been the very efficient plan-ning and implementation process carried out by JSC Northtown and itsinnovative way of financing on the basis of a revolving fund.

LessonsEfficient redevelopment of the Brownfield in rather short time [7 years]by establishing a company, which administrated all procedures andalso worked with a revolving fund.

PerspectivesJSC Northtown is still continuing its activities. It will implement anotherredevelopment project on a former military site. It will organise andadministrate the conversion of post military territory Vismaliukai intoresidential use and create an environment of high standard and quality.

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Pictures 22 -25: Impressions from the newly created area


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The case studies and focuses on practice that have been submitted bythe PHYRE-partners show, how complex the task of revitalisation ofredundant sites is and how different the starting situations as well asthe best possible solution can be in each location. Some common con-clusions can be drawn from the analysis of these examples:• The conversion of large brownfield in most cases is a compre-

hensive task that needs the combination of skilled planning[power] and significant private investment. Therefore, most ofthese projects will only be implemented successfully with theuse of a public-private partnership.

• The example of Vilnius has shown that in the framework of suchpartnerships it is possible to set up contracts that do not onlyallow contruction and investment, but at the same time makesure that certain public needs - like green spaces - have to beimplemented by the investors who receive building permission.

• The model contract that has been developed and applied inKassel as a tool to provide such a partnership with a stable basisand fix the rules and contributions of each participant is cer-tainly worth a closer analysis.

• All of the cases presented indicate that an early and continuousparticipation of residents provides a clear added value to thelater implementation and accepted.

• The examples also seem to indicate that a mono-structured re-use of a redundant site clearly tends to be less attractive andsustainable than a mixed use scheme.

• The example of Heerlen also shows that sometimes the solutionmight be very unusual and unexpected - like creating a skiingfacility in Heerlen - but that especially such unusual ideas mightadd attraction to a new function and make the newly createduse an important incentive for a city as a whole.

Questions for further discussion and clarification during the semi-nar might be:

• How to organise the cooperation between the public and the private sector - what kind of contracts and agreements do seemuseful and what can be achieved with them?

• How can an early and continuous participation of residents beorganised and implemented with a clear impact?

• How can the conversion of a brownfield be used to create an additional attractiveness to the entire city, its image and its economic power?

• Is it important or useful to develop a proactive procedure to monitor and identify sites for conversion?

• How can conditions and controls be applied to guarantee aspects such as design quality, environmental standards, social inclusion?

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4. Negotiation and co-operation with owners

4.1 Negotiation and co-peration with owners: The task

In the last two decades of the previous century it became increasinglyevident that the scale of urban renewal required to regenerate anddevelop our cities could not be implemented only by initiativesfrom the public sector. The inability and/or unwillingness of pub-lic authorities [national, regional or local] to comprehensivelyfinance programmes and projects has resulted in a search toexplore new mechanisms of providing funding and organising inter-ventions for redevelopment.

Public-private partnerships, comprehensive local partnerships, financeinitiatives, social partnerships are all examples of framework struc-tures designed to spread the burden of investment, to pull in moreprivate funding in sectors that in many countries were traditionallyheavily, if not completely, subsidised by the respective public bodies.

Under the first two themes the consideration of actors and partnershipstructures has already been covered in the questions. However a par-ticularly significant actor in the whole redevelopment process is theowner or owners involved in designated or potential action areas. Thedecision to block or release land or property is of crucial importanceto the success of a global initiative.

The decision or ability of owners to participate in urban renewal canbe equally critical in realising efficient project management wheremargins are often exceptionally tight. In this context owners may belarge private companies, property developers or speculators, they maybe small-scale owner- occupiers and they may even be public bodieswhose awareness, policy or strategy for a particular site may not cor-relate with the needs identified for the purposes of urban renewal.

Therefore the third theme was highlighted in the preparatory meetingand should provide an important complement to the understanding ofthe possibilities and pitfalls in the process to ensure that renewal pro-grammes can be initiated. The questions are equally relevant to thetopics of brownfield redevelopment and physical regeneration in exist-ing housing areas so please describe both experiences if they apply toyour situation.


The result of the survey amongst the member cities of the PHYRE-net-work shows, that this is an important topic in most of the cities, butthat at the same time not many experiences have been made with newand promising forms of co-operation with owners of houses or sitesthat are the focus of public planning activities or interests.

Only three of the member cities report positive experiences in thisrespect in the past:

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• Kassel reports such positive experiences with a public owner inthe framework of a co-operation between local authorities andthe regional government of Hessen for the conversion of formerpolice barracks.

• Heerlen seems to have the most comprehensive and structuredpositive experience in this field: Here, the masterplan that hasbeen developed for the GMS-area has been used as a basis for agood co-operation with house owners.

• The citiy of Taranto equally reports positive experiences withregard to the co-operation with house owners: Here, such goodco-operation has been achieved in the framework of the resto-ration and development of the old city centre as well as theBorgio.

• The city of Taranto has also made very positive experience inco-operation with a local bank. Here, the bank has agreed toprovide financial assistance to house owners who are willing toinvest. And, in addition, if houses are regarded as “dangerous”and owners are not prepared to invest and co-operate, to acqui-re such buildings when the legal instruments can be appliedsuccessfully.

Not surprisingly, most of these experiences reported during the prepa-ration of this topic, are reported as mixed experiences: There arealways those who co-operate, and those who are not interested - orhave other interests than the public authorities. In more detail, the fol-lowing problems have been described by the member cities:• Differences in the understanding of value and price of a site: In

Kassel, efforts to co-operate with the railway company and itsvarious entities often have one dicisive problem: The companyitself keeps the sites and buildings in their accounting with veryhigh values - values, that in most cases do not correspond withthe actual market values. This makes a co-operation and adevelopment of new functions for such sites and buildingsimpossible, as the prices set by the owners can not be realisedon the market.

• The need to involve legal procedures: Komotini reports that inmany cases owners are not prepared to co-operate and that thelocal authorities have to undertake legal procedures to acquirethe land they need for development purposes. The good thing isthat the law in Greece allows this. The bad thing is that thisresults in very long procedures that can take up to two yearsbefore the public sector can acquire the land and start the fore-seen activities.

• Resistance from the residents: Taranto reports an unusual caseas here it is the local residents who are not prepared to co-ope-rate and stop the planning of the local authorities: In this case,the local authorities wanted to re-locate tenants from a settle-ment that they tended to demolish. This estate has been con-structed during the 1930s and is now characterised by a highdegree of empty flat and by a bad reputation. Therefore, remo-val was foreseen to build something new and more attractive on

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the site. In this case it was the tenants who stopped the imple-mentation of the plan, as they refused to move and started toprotest against the planning of the local authorities.

• Waiting for public subsidies: Heerlen reports of owners who arenot willing to invest, but instead demand subsidies and grantsfrom the local authorities before they do anything. Such finan-cial resources, however, are not available in Heerlen.

4.3 Case Study 3: Taranto - Rehabilitation of the “Palazzo degliUffici”

The project areaThe area where this case study has been implemented is the inner cityand it is both a residential area and a business centre. The city centeralso hosts a naval base with its arsenal commonly known as“L’Arsenale“. In particular, the following districts are concerned:• In the Island district there is the Old City that has a typical

medieval structure. The neighbourhood Tamburi and Borgo areconnected to the Island with two bridges.

• The district Borgo had a strategic importance for coastal andnaval defence for many years. Its development took place at thebeginning of the XVIII sec., during the French domination, withGiuseppe Bonaparte and Giocchino Murat.

• The district Tamburi grew along the main road of access to thecity. During the1970s, a new bridge named “Punta Penne” wasbuilt to connect the access to the city with the new areas ofurbanization. In the Tamburi district there are housing built bythe end of 1950s, the railway station and the Port.

Social and economic aspectsConcerning the social and economic aspects, the Island has been thefirst city land facing degradation and impoverishment. The rapiddecrease of population, the progressive absence of economic activitiesand the relentless degradation of the architectural heritage, made thecity center unattractive. At the same time the urbanization expanded innew districts where it was possible to build up modern buildings forthe middle class and low cost settlement for young and poor popula-tion in the outskirt. Clearly, this trend was aggravating the decline ofinner city and the one of Borgo district too.The identity of the city inexorably seemed lost in anonymous districts,poorly designed and with growing problems in mobility and publicservices. In the Island district the real estate had lost every minimumand appreciable value, and the same phenomenon had begun to affectthe near districts of Borgo and Tamburi. The city degradation was thenvisible and apparently inevitable. Even more, the absence of theatres,together with dangerous and unpleasant public areas, deprived the citizens of places for meeting and socializing. Consequently, the young population abandoned the city for other larger urban areas offering other facilities such as a university.

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Statistical data from the year 2000 on the quality of living in the Italiancities relegated Taranto to the last places of the national list.

Recent history of the areaDuring the Seventies, the city of Taranto faced at the same time itsgreatest industrial development and its decline . The investments inthe industrial sector employed an increasing number of people, oftencoming from the traditional labour sectors as fishing and agriculture.At that time a huge area for the steelwork industry was built at theboundary of the inner city and the Urban General Plan, estimated anenormous increase of the population of about 600,000 inhabitants forthe year 2000. Simultaneously the old “Plan for the Reorganizationand the Conservative Restoration of the Old City” did not preserve thehistory neither improved the quality of life in the city.After thirty years the disastrous results are very obvious now:• The model of industrial development had wounded the city and

its population. Taranto has the first national rates for mortalityfrom lung cancer.

• The development of one big industry had monopolized the localeconomy denying the development of a local entrepreneurialclass.

• The city has grown with no planned rules and with many socialcosts.

• The Old City is now mummified, and it has lost every attractive-ness for settlement

Policy Changes

This disastrous situation described above demands a series of con-nected new policies aimed at revitalizing the all city center regarding:• more attention to environmental aspects with severe regulations

for air and water pollution;• renewal of the harbour and the bolster of its economy;• new planning and financial management for urban restoration

together with measures to prevent urban sprawl;• improvement of life condition in the Old City through public

services and facilities.

Objectives of the projectThe rehabilitation plan of the historical city centre has some funda-mental targets:• the multipurpose rehabilitation of the building and the city inte-

gration of facilities and services;• to improve accessibility and safety in public spaces with a focus

on the needs of disabled people; • to create opportunities for investments in the public services

and tourism.

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An important issue concerning the rehabilitation project of the“Palazzo degli Uffici” was to avoid any possible disturbance to theactivities of the school situated in the same building. Thanks to thedimension of building, it was possible to carry on the restoration worksfirst on the South side and subsequently on the North side, withouthindering the teaching activities.

ActivitiesRehabilitation of the “Di Palma” Street: The“Di Palma” Street projectin the Borgo district concerns the restoration of the street and apedestrian zone along the street itself. The realisation of the projectencouraged the private sector in investing in new stores, bars andopen air meeting places. At the same time, private entrepreneursdecided to invest in rehabilitating ancient buildings nearby, creating atheatre district. This includes the theatre Fusco, an ancient building forpublic services, an open theatre Peripato park and XIX c. style Gazeboin Garibaldi square, located in the Borgo neighbourhood. That is whythe Romagnoli S.P.A. - an Italian company leader in the building indus-try - designed a proposal of Project Financing to carry on the rehabili-tation of “Palazzo degli Uffici “.Renovation of “Palace of the Offices”: This initiative concerns therestoration and functional rehabilitation of “ Palazzo degli Uffici”. Thetarget of the project is to enhance the value and the prestige of thePalace, using traditional and modern restoration techniques able topreserve the original architecture of historical building, while allowingmodern functions. The majestic façade was restored preserving therusticated “ashlar”, cornices, decorations, e.c, according to a restora-tion plan specifically designed [called “Plan of the Colour]”.The restoration of the Palace is meant to positively affect three publicsquares nearby, like the Garibaldi Square where the NationalArchaeological Museum is located, with a “chain effect” of restoration/rehabilitation of public areas.

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Picture 26: “Palazzo degli Uffici” before the project start


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New functions for an old buildingThe “Palazzo degli Uffici” is meant to host several functions followingthe requirements expressed by the Municipal Administration:• The ground floor will be dedicated to business activities or third

sector [not yet specified].• The first floor will be hosting distinguished and separated

functions: the Archita school, and private offices;• The second floor will be completely dedicated to the school with

all the necessary rooms for an improved development of theteaching activities.

• Between second and third floor, the mezzanine, is dedicated toArchita school with laboratories and offices.

• The third floor will be dedicated to Offices of the University ofTaranto.

• The fourth floor will be partially dedicated to physical activitiesand special classrooms of school, partially to compatible officesor activities according to the demands of the market.

• The last floor will host “Belvedere” to third sector and retailand similar.

The organisation of the process• The Mayor of Taranto created a board called “Reorganization of

the Old City and Special Plans” and it is its duty to carry on“Special Plans”

• The board employs 30 people competent in technical and admi-nistrative field.

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Picture 27: “Palazzo degli Uffici” today


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• The economic and social partnership has been created with theSpecial Plans but today it still appears to be not strong enoughto launch new proposals.

• The Municipal Administration has set up a “DevelopmentAgency in order to strengthen the collaboration between thevarious institutions involved. Key players in this agency are thelocal authorities of Taranto, the county administration, theChamber of Commerce and the Port Authority.

Another collaboration has been launched with the Employer’sAssociation of the industrial sector by the subscription of an officialpact to attract financial investment in the city.

ParticipationThe experience of building partnership for the “Special Plans” hasshown some limits in commitment and participation. They are probablydue to the fact that stakeholders belonged mainly to institutions andthe private sector. On the contrary, other forms of partnerships createdwithin the Social Plan of Zone have demonstrated a high level of inno-vation. During the Special Plans, the Municipality of Taranto was alsopreparing the Social Plan of Zone, involving citizens, NGO’s and non-profit organizations in more than 70 public meetings. In this case,informal and micro partnerships, with none or minimal financial influ-ence, have been able to provide more creative solutions, guiding publicpolicies concerning the revitalization of the city centre.

Strategic ApproachThe strategy followed three main phases:• The municipality organized public forum concerning the future

urban development of the city. The prioritised actions are:· the settlement of the University in the Old City;· the regeneration of public spaces: accessibility, security and

pedestrianization;· the restoration of the private houses;· a strengthening of tourism.

• After that, the municipality launched a project that turned thehistorical town center into a pedestrian precinct. This encoura-ged local enterprises and small shops to invest or re-invest inlocal business in the city center.

• The success of the second phase that revitalized the city center,motivated the local administration to launch a bigger project:the restoration of an old and prestigious building belonging tothe municipality for public purpose. The project has been car-ried on with project financing, involving private and public inve-stors.

The public participation stimulated new ideas concerning the revita-lisation of the city center and gave support to private initiatives. Asresult, local owners renewed stores and small shops turning the citycenter into an attractive/pleasant zone for citizens and tourists.Consequently, home owners invested into renovating the residentialarea nearby, once practically abandoned.

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CoordinationThe local authority worked as “galvanizing agent” in starting a reno-vation process that supported the initiatives of local owners, while carrying on a larger project with the financial support of private enter-prises. This experience has showed that within European Programs asUrban, the committment of the local authority has been consistent. Ingeneral, with all the other planning procedures, there is scarce coordi-nation especially at regional level.

InnovationThe innovative aspect has been represented by the possibility to man-age a certain amount of financial resources to invest in restoration of aspecific area with unanimous agreement of all the involved stakehold-ers. Unknowingly, this path begins with the creation of the local uni-versity seat, a new opportunity and a way to stem the flight of localbrains and expertise. At this stage the generating centre is still to bedetermined, but the programming suggested for the candidature to theEuropean Community Programme Urban focuses on the revival of thecity and of its island, concentrating on four key areas: the universityand those who will benefit from it, the tourist appeal, the residentialrequalification and the social and economic development.Now, thanks also to other public and private funding that has beenreceived in the meantime, this characterisation has begun to unfolditself, the university seats are finding locations in the “Palazzo degliUffici” and in the old city where the innovative “Dolphin Island” willsoon be housed, which involves a scientific initiative, unique in theMediterranean, to take care of cetaceans and protected marinespecies and for the diffusion of dolphin therapy.

4.4 Focus on Practice 6: “Housing in Ownership - lack of resources”

The topic of measures that can be developed and adopted to addressthe problem of property owners with limited financial resources inrelation to urban renewal programmes is a very important one in sev-eral member cities of the PHYRE-network. And yet, from within thenetwork there are not many experiences that could act as a stimulatinginput for the development of new solutions. Therefore, a Focus onPractice has been developed to provide the partners and the discus-sions with some innovative ideas and a review of some of the activitiescarried out in the framework of this topic.

IntroductionDeterioration of housing stock through time is obviously inevitable.The question is how the life cycle can best be managed to maximisereturns on investment both in terms of the physical fabric and achiev-ing the desired social benefits [continuity of decent housing inhealthy and viable communities]. Massive post-war housing programmes dramatically increased hous-ing provision across Europe [both in West and East] but consequently

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heightened the challenge facing those responsible for ensuring ade-quate housing standards. While [historic] inner city properties shouldnot be forgotten in this context, the most spectacular evolution hassurely been associated with the problems of the ubiquitoushousing estates. Often well conceived, these “brave new world”solutions are now facing a multitude of well–documented problems. It is not the intention to describe a phenomenon which is already wellunderstood. However it is worthwhile to note that in Western Europethe change in perception from prestige projects to problem areas wasapparent even some 30 years ago. In Eastern Europe this transforma-tion is much more recent [last decade in many cases]. It is also all themore acute in that Eastern countries generally have around a third ofthe population living in such accommodation, with regional peaksoften much higher. Recent responses to urban renewal have not only sought to improvethe existing housing stock or to demolish and construct new housing,but more importantly to re-differentiate the housing provision avail-able – to achieve a wider variation in types of houses and accompa-nying price categories with the corresponsing new tenure structures. Western European programmes promoting heavily subsidised sell-off of public housing have coincidentally found parallels in the Eastas a consequence of the transformation of the Eastern European polit-ical and economic systems. If one accepts that permanent rolling investment is required for therenewal of housing and the surrounding public space, - it is alsoimportant to consider that as problems associated with housing andneighbourhoods have increased, resources available for improve-ments have often been restricted. In many situations the spend-ing power of private and public investors is too constrained to followthe necessary pace of renewal. In the search for new forms ofowner-resident responsibility the incapacity of owner-occupiers, co-ownership structures or private landlords to contribute to the mainte-nance of their homes is a specific and growing concern, particularlywithin the new member states. This Focus on Practice does not look at one case but rather attempt topresent a range of examples, experiences and measures aimed ataddressing the particular problem of low-income property ownerswho are unable or unwilling to participate in the renovation of theirproperty. This does not have the pretension of being exhaustive andshould even be open to correction/addition if any of the partners cansuggest instruments or expertise to be included. It should perhapsbest be regarded as work in progress.

Pre-purchase initiatives It may well be too late for most partners in the PHYRE network butperhaps it is still interesting to examine possibilities to influenceowner responsibility particularly prior to stock transfer from public toprivate ownership.

Building in of safeguards or guarantees as conditions within the con-tract stipulations. In the UK “right to buy” the new owners were

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afforded extra reductions in the cost price per year on the conditionthat they would continue to occupy the property [1% for houses 2%for apartments]. This meant that a reduction of 32% could beincreased to the maximum 60% for a house if the owner agreed tooccupy it for 30 years or more [apartment 70%, 15 years]. If the prop-erty was sold further within 3 years of the initial transfer then thereduction had to be reimbursed. Further limits to the levels of reduction were placed on propertiesidentified as having more market potential and properties where sig-nificant renovation work had taken place in the 10 years prior to sale.

Possibility of buying in stages. Also in the “right to buy programme”the state allowed the possibility for social tenants to buy their homesin stages. The first portion was generally of the order of between 60and 80% of the cost price. The remaining portion of the total costcould be paid off at any time but was obliged to be paid directly if theproperty was resold or in the case of decease of the new owner. The value of this portion is then evaluated in relation to the housingmarket with the possibility of a 20% reduction. This type of construction is much more developed in Finland whereoccupiers can own a share of their home which corresponds to theirability to pay and/or their desire to acquire the total property rights.This means that through time they can increase their share inthe property. In theory these contingencies allow the housingauthority or association to exercise a control over the occupantsresponsibility and to determine and plan their own responsibilities inrespect of the property [maintenance etc.] as part of a dynamicadjustable market process.

Reserving funds accrued from the transfer of stock: Prior to sale con-tingencies can be taken to reserve a proportion of the revenue fromstock transfer as an investment with a view to creating a fund to assistfuture programmed renovation. Of course when homes are sold as inSlovenia for 10-15% of the estimated market value, arriving at almost90% home ownership, the potential discrepancy between scale ofproblem and revenue accrued is not to be ignored.

Provision of housing allowance for aspiring owner occupiers: In Francea means tested allowance paid to tenants living in privately-owned housing can also be applied to home-buyers to cover theexpenses required to maintain a dwelling in a decent state [with vari-ous conditions attached]. In the Netherlands, a subsidy can be givento home buyers the amount being conditional on the level of mortgageand rate of interest, level of income of the applicant, family composi-tion and so forth.

Setting up of an effective management structure: This impliesthat there is an understanding that obligations also need to be ful-filled by a controlling body and not only the residents. By instituting amanagement structure or agency linked to specific neighbourhoodscontact between partners and steering of actions and funding can bebetter organised and monitored. In “Koelnberg” near Cologne, a possible option to demolish and redifferentiate was not carried outbecause of laws protecting multiple ownership. Instead the manage-

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ment of the estate was turned over to a newly created privatesector company.

Mechanism of assistance and incentives The second last component of the previous chapter [housing allowanceor housing benefit] represents of course a subsidy mechanism, anaid to the individual in function of his needs and means as opposedto the classic housing grant [aide à la pierre in France]. In WesternEurope at least there has been a long tradition of grant assistance forhousing improvement. By means of examining the operatingframework for urban renewal in France as a basis, we can perhaps addother or new or achievements.

Grant assistance for owner-occupiers: Within the French system theseregulated subsidies reserved for people with incomes under a giventhreshold, are intended to allow owner occupiers to make improve-ments to their home [health and comfort standards, energy savings,access]. The housing has to have been in existence for 20 years andthe non-reimbursable grant is generally 20% of the cost of work. Thisrate can be higher if the residence is included in a designated pro-grammed housing improvement area [OPAH - for households in seri-ous difficulties], in order to finance work which will remedy the inade-quate character of the property or for work on rehabilitating condo-miniums in a state of decay. In the UK Housing Improvement Grants and Repair Grants are similarlyavailable for housing which does not conform to minimum comfortstandards [points system evaluation in Birmingham] or for necessarystructural repairs. Levels of subsidy are of course subject to condi-tions - thresholds, market value of property, location in priority des-ignated improvement areas, age of property etc. These can be as highas 75%. Furthermore Historic Building Repair Grants can also be attrib-uted for buildings of recognised historical or architectural interest. InBrussels a process exists to maximise the available grant aid foreseenby law to owner-occupiers living in designated areas in difficulty.

Loans: An interest free loan system is also available to recognised low-income home owners in France. This is also a means of encourage-ment popular in the UK where “equity release” is a topical instrumentwhereby property owners exchange a share in their property against aloan. This was originally foreseen as a possibility for aged sections ofthe population but has been widened to cover, people with lim-ited resources. In a range of soft loan products there are also systemsdeveloped to assist migrant cultures in this respect. Micro-credits are a variation on this where loans can be attributed,even via the public authority, to individuals or small local enterprisesnormally excluded from this type of credit funding because oftheir fragile position. This involves a simple principle based oninterest rates below market or normal bank levels; no require-ment of a guarantee by the applicant; low levels of periodicrepayment; acceptance of very small loans which are not interestingfor established institutions in the market place.

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Poland is also examining the introduction of a “renovation credit”with a subsidised interest rate for owners and managers of residentialbuildings.

Grant assistance for private landlords: Via the French National Agencyfor Housing Improvement (ANAH) non-reimbursable grants are alsoattributed to owners who wish to improve their properties on condi-tion that the housing is more than 15 years old and that the ownercontinues to rent the property for a further 10 years. Increasedrates can be envisaged for landlords willing to impose rent regulation[to favour occupation by low-income groups] or in OPAH areas forexample, or for houses in conservation areas.

Fiscal incentives: In France these include: tax benefits for landlordswho commit themselves to renting their property for a period of atleast 6 years subject to rental thresholds; the setting off of costsassociated with property, against earnings from property and, wherecosts are greater than revenues against personal incomes, and; thededuction of property deficits from overall income when the work iscarried out for reasons of heritage. As in other European states[i.e. Belgium] work on improvements undertaken by all owners hasbenefited from a reduced level of VAT [Fr 5.5% as opposed to 19.6%,Be 6% as opposed to 21%].

Personalised housing allowance: This monthly allowance is granted tolandlords, by the French state on behalf of the tenant, who consent tolimit their rent levels to an agreed fixed rate [regulated property]. Inthe Netherlands, Housing Assistance has been one of the principlesupports afforded by the government in the housing sector. This ismeans tested and subject to a rigorous evaluation system.

Compulsion Coercive measures: In France, the law on Solidarity and Urban Renewal(SRU) allows far-reaching measures to be taken to ensure the disap-pearance of housing deemed to be unfit for habitation. If a dangeroushousing order is imposed on a property, grant assistance and housingrelated benefits are cut off until the work is carried out. If the neces-sary works do not proceed then the local authority can order the workand charge the cost to the owner, with the property value functioningas collateral to ensure that the public authority is paid. Two types of order can be imposed: an unfitness notice (where build-ings are considered to be a danger to human safety) or an Inadequacydeclaration (where the building does not comply to agreed standardsof health). Of course these are extreme measures which can involve thecompulsion to re-house either by the private-landlords involved or bythe municipality. They are therefore more likely to be used as a lastresort, and generally demand further investment from public fundswith compulsory purchase as ultimate recourse. The Netherlands can operate similar contingencies but in fact this typeof intervention is applied very sparingly.

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Information and assistance Provision of logistical support and working with inhabitants: This canrange from the setting up of a specific entity or office to ensure maxi-mum information is given to owners [examples in Birmingham UK] tothe installation of a neighbourhood task force to work with ownerson the renovation programme [neighbourhood Zwammerdam inAmsterdam]. Preferably this is a proactive initiative which advises owners of theirrights and obligations, assists in the search for appropriate individualfunding, provides information of the programme at every stagein the process, encourages participation and collective actions,organises the phasing of temporary re-housing etc. Such a structurecan provide a formal and informal forum where all partners involvedcan be brought together and operates as a link between neigh-bourhood and public authority in the first instance. It can also evenlead to the definition of job training or employment initiatives withinthe renovation programme for local inhabitants [neighbourhood con-tract Brussels].

Added value of the practice As mentioned above, this compilation of cases and models is in no wayintended to provide a comprehensive picture of all possibilities toassist low-income property owner participation in the renovationprocess. It perhaps even leaves open the question of which innovativemeasures can be applied to new evolving situations in Eastern Europeor how can risks be limited so that the private sector becomes moreinvolved. Rather it should be seen as a framework of measures whichexist and are drawn from current experience. However, it is hoped that it can provide a basis for further reflectionand perhaps stimulate the network partners to add from their ownexperiences, and so build to a more complete toolbox - and whoknows identifying actions which would have an effective relevance toaddress the needs and deficits presented by Vilnius on this subject. There appears to be no quick fix on this issue and so I return to theinitial remarks. It is unlikely that populations, owner-occupier or oth-erwise, in an acutely precarious socio-economic situation will sudden-ly become self-sufficient in terms of renovating or even maintainingtheir property. It would seem that no single measure can solve thisproblem either. So the global top-down approach will continue to benecessary just as the bottom-up commitment of involving communi-ties in their own destiny [even if they don’t appear to want to partici-pate] has a significant role to play. So we are drawn to examine the application of a range of measureswhere a financial contribution by the public authority will continue tobe necessary. The clue is how best to reduce this contribution, whilein the first instance, directing the appropriate and the most effectiveactions to treat identified priority problems, particularly where thefinancial budgets of the public authority are as insufficient as the population targeted.

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Innovation & Transferability Mostly these are established practices, so they are not innovative assuch. If innovation can be envisaged, it is where authorities who havenot used these instruments can adapt them to apply to their particularsituation or where these measures can be combined in an innovativeway within a global package of tools designed to combat urbandegeneration. Most of these measures have proven that they are capa-ble of being transfered to respond to different national contexts withnecessary adaptation.


The findings from the partner survey as well as the casy study fromTaranto have clearly shown, that there are many successful ways andmodels for co-operation with property owners in the framework ofurban development and urban regeneration. This refers to the ownersof housing as well as the owner of businesses, stores etc. There seemto be successful partnership models that do - in their best form -equally involve the local citizens and other important key players. But,at the same time, the examples have shown, that there are two vitalpre-conditions for such successful co-operation:• First of all, these owners must have a strong interest of their

own to join such activities. They will not participate for comple-tely altruistic reasons, but only if a clear benefit for them is tobe expected. In most cases, this will mean a - short-term orlong-term - profit. Therefore, this is one of the crucial factorsfor success: If such a benefit is possible, how it can possibly becreated and also communicated, so that the private sector beco-mes aware of it and gets interested.

• Secondly, even if private owner see such a potential benefit, theywill only be able to join co-ordinated action and realise thisbenefit if they have sufficient financial resources to do so. TheFocus on Practice has illustrated very clearly that this is not thecase in many large housing estates across Europe. The Focus onPractice has given a good overview over existing incentives andtools to overcome that obstacle. But still, solutions are difficultand need to be re-invented and re-designed in each singlelocation and planning case.

Therefore, questions for discussion might be:

• How can we identify the principal obstacles to private participation or investment and can these obstacles be removed or diminished?

• What can be the potential addeed value for the private sector in various planning cases - how can such added value be createdby local authorities?

• How can it be communicated to motivate private partners andthen be realised together with them?

• What is the role, aim and responsability of the administration inthe negotiation process?


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5. List of available appendices

Appendix 1:

Case Study 1: Kassel - Untere Neustadt

Appendix 2:

Case Study 2: Heerlen - Redevelopment of a former mine site

Appendix 3:

Case Study 3: Taranto - Rehabilitation of the “Palazzo degli Uffici”

Appendix 4:

Focus on Practice 1: Re-use of central land along the Narew River inLomza

Appendix 5:

Focus on Practice 2: The Leith Project in Edinburgh

Appendix 6:

Focus on Practice 3: Neighbourhood Contracts in Brussels

Appendix 7:

Focus on Practice 4: Heerlen - Woonboulevard

Appendix 8:

Focus on Practice 5: Vilnius - “Northtown

Appendix 9:

Focus on Practice 6: “Housing in Ownership - Lack of resource

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Documents

Brownfield Redevelopment and Housing Area Renewalsig.urbanismosevilla.org/Sevilla.art/SevLab/m001... · PHYRE - Physical Regeneration of Urban Areas Background Report Brownfield Redevelopment