Towards an Inclusive and Sustainable CLLD …...RSA Cohesion Policy Research Network Workshop EU and the CITY Delft, 14 October 2016 Towards an Inclusive and Sustainable CLLD Lessons

RSA Cohesion Policy Research Network WorkshopEU and the CITY Delft, 14 October 2016

Towards an Inclusive and Sustainable CLLDLessons from a Neighbourhood Management in Berlin

Pietro L. [email protected]

Gran Sasso Science Institute - Social Sciences Unithttp://www.gssi.infn.it

Towards an Inclusive and Sustainable CLLD | Pietro L. Verga, GSSI

Research Project

RESEARCH TOPIC The Community-Led Local Development instrument and its effectiveness in tackling local poverty and inequalities in a participatory way

RESEARCH QUESTIONUnder which conditions can the Community-Led Local Development become a tool for enhancing the well-being of disadvantaged residents in deprived urban neighbourhoods?

UNIT OF ANALYSIS

Körnerpark Neighbourhood Management in Neukölln, BerlinCo-financed by ERDF in 2007-2013 Programming PeriodPrinciples and features comparable with CLLD approachTaken as a model practice by EU policy-makers

RELEVANCE

New area-based instrument of 2014-2020 Cohesion PolicyAddress crisis-related and other externally-induced issues at sub-regional level and contribute achieving the objectives of Europe 2020Concerns about the openness of governance framework and the effectiveness of the instrument in addressing disadvantaged citizens needs


Index

INTRODUCTION

CONTEXT

FINDINGS FROM THE CASE STUDY

CONCLUSIONS

1. The Community-Led Local Development2. Expectations VS Open Questions

1. Policy Context: Soziale Stadt and Soziale Stadt Berlin2. The Target Neighbrourhood: Körnerpark, Neukölln, Berlin

1. The Local Development Strategy2. The Local Governance

DISCUSSION & POLICY LESSONS

1. Heterarchy or Elites Domination?2. Local Developmen for Whom?


Introduction

Reach shared visions for the future development of target areasGenerate social and economic development at local levelTackle deprivation and inequalities affecting deprived urban neighbourhoods

The Community-Led Local Development (CLLD) is a new area-based instrument introduced for the 2014-2020 Programming Period of European Cohesion PolicyAimed at involving local partners in the design and implementation of integrated strategies for the physical, social and economic regeneration of deprived territories at sub-regional levelAddress relatively small areas with a population between 10,000 and 150,000 inhabitantsAdopt an integrated and multisectoral approach in the definition of place-tailored comprehensive projectsFoster a bottom-up approach by organising Local Action Groups through which partners from the private, public and voluntary sectors are involved in all phases of the project

EXPECTATIONS OPEN QUESTIONS

Who and how will actually participate and manage LAGs?Which objectives will be pursued by LAGs at local level?Who will ultimately benefit of the initiatives?

INTRODUCTION


Context | 1 - Policy Framework

CONTEXT

Soziale Stadt Programme (national framework)TARGET: areas with “Special Development Needs” threatened by socio-spatial segregation and social polarisationAIM: Improve living conditions and the attractiveness of neighbourhoodsFOCUS: creation of stable social structures and the enhancement of life opportunities for residents; physical rehabilitation + education, employment, social and ethnic integrationSTRATEGY: triggering the development potential through the direct involvement of citizens within participatory planning platforms called Neighbourhood Managements

Soziale Stadt Berlin (local framework, unique features)SOCIAL URBAN DEVELOPMENT MONITORING system (LOR): statistic indicators, basis for spatial planning, forecasting and monitoring demographic and social developments in the city; and for the identification, assessment and classification of the “areas with special needs”NEIGHBOURHOOD COUNCILS: provide a platform for discussion and consultation, as well as to enable residents to participate in deciding how funds should be used to fund local regeneration projects


Context | 1 - Policy Framework

CONTEXT

Quartiersfonds Categories and Co-Financing Schemes for the PP 2007-2013 and 2014-2020


Context | 2 - The Target Neighbourhood

CONTEXT

Evolution of the Multi-Ethnic Composition of the Körnerpark by Region of Origin

Percentages of Unemployed and Welfare Recipients in Berlin, Neukölln and Körnerpark


Context | 2 - The Target Neighbourhood

WB Categories WB Dimensions Local WeaknessesM

ater

ial L

ivin

g C

ondi

tions

Income & Wealth High rates of dependency on welfare Low purchasing power

Jobs & Earnings High rates of unemploymentLarge proportion of workers in low-wage sectorScarcely diversified, cheap business framework (especially in the early years of QM)

Housing Challenges are emerging concerning the availability and affordability of apartments for low-income people

Qua

lity

of L

ife

Education & Skills Overall low educational and skills’ levelsWeak proficiency of the German language

Social Connections Especially in the early years of QM:Lack of cultural and recreational opportunitiesDifficult interactions among different ethnic groups

Environmental Quality

Especially in the early years of QM:Neglected public spaces and facilities High rate of vacant or abandoned properties

CONTEXT

Local weaknesses categorised by well-being dimension


Findings | 1 - The Local Development Strategy

FINDINGS

Timeline of actions funded through QF2-3/Projekstfond and QF4/Baufond, categorised by Type


Findings | 1 - The Local Development Strategy

FINDINGS

Total Expenditure for Hard Measures of QF2-3/Projekstfond and QF4/Baufond, categorised by Type

Total Expenditure for Soft Measures of QF2-3/Projekstfond and QF4/Baufond, categorised by Type


Scheme of the Governance Network for the Körnerpark Neighbourhood Management

Findings | 2 - The Local Governance

FINDINGS

Regulation & RequirementsGoals & ObjectivesFundingApproval of Major Projects

Projects’ Design & ProposalApproval of Minor ProjectsImplementation of Local Projects



FINDINGS

Residents with a MIGRATION BACKGROUND are UNEVELY REPRESENTED:

from 6/16 in 2008 to 3/13 in 2015

LITTLE TURNOVER of RESIDENTS’s delegates between mandates

11 new members and 7 re-elected in 2010

7 new / 6 re-elected in 2015

Direct CONNECTIONS of RESIDENTS’s DELEGATES with LOCAL STAKEHOLDERS & QM’s PARTNERS

from 2/16 in 2008 to 5/13 in 2015



FINDINGS

Distribution of QF2-3/Projektsfond funding among Project Carriers

45 different project carriers

19.4% of monies (€331 K) distributed between the 75% of actors

80.6% of funding (€1.38 mln) allocated to 12 project carriers

Top quartile has 6 outside values, which taken together constitute 63% of the overall QF2-3/Projektsfond’s expenditure. Outside values correspond to actors who had a seat in the Neighbourhood Council in the same period when funding were allocated to them.

Overall the 9 actors who had a sit in the NC received the 68% (€1.15 mln) of the total expenditure


Discussion | 1 - Heterarchy or Elties Domination?

DISCUSSION

top-down activation of participatory platform+ vague definition of who should take part to LAGs

+ scarce interest and low involvement of citizenry and especially minorities+ low turnover among delegates in LAG

Risk of elite’s domination, for which more resourceful actors, lurking behind the rhetoric of participation and partnership, would eventually form coalitions and capture the initiative in spite of the most disadvantaged inhabitants

--> lack of legitimacy and inclusiveness

Local Action Groups should: Reflect the socio-economic pattern of the target areas Become truly independent and community-controlled bodies, grounded on (and subordinated to) a broadly shared consensus among the citizenry

The CLLD regulation should: Better clarify the criteria for the allocation of voting rights to residents, stakeholders, and organisations Better empower low-skilled residents and ultimately to enhance their chances to access to the decision-making arena


Discussion | 2 - Local Development for Whom?

DISCUSSION

The CLLD needs to:Provide specific guarantees, safeguards and/or protection devices in order to make sure that the main beneficiaries of local development would be, first and foremost, the people in need. Proactively engage citizens in addressing key OECD well-being dimensions towards a structural and long-lasting improvement of their socio-economic status.

Potential conflict between the goals of attractiveness and competitiveness versus the goal of redressing of social imbalances and inequalitiesRisk that disadvantaged residents become merely the end-users of an economy of service-provisionAn enhanced environment can likely increase the target areas’ attractiveness for wealthier populations, in turn undermining the affordability of housing for low-income long-term residents, and thus potentially triggering displacement processesPossible paradoxical effects of local development initiatives that might be counter-productive in respect to the goal of improving disadvantaged people’s living conditions in the places where they live.


Conclusions - Towards Inclusive & Sustainable CLLD

CONCLUSIONS

What to do?Clearly state that the priority is to bring about change in the well-being of local inhabitantsEstablish a common baseline approach for assessing CLLD based on quality of life indicatorsBind local initiatives to the achievement of previously defined performance goals on selected indicators

Community-Led Local Development initiatives should be:1. Flexible in terms of the kind of measures and projects implemented at local level2. The result of a strongly inclusive decision-making process3. Primarily aim at enhancing the well-being of disadvantaged people already living in the area. --> meet mutual standards in terms of governance quality as well as of outcomes and impacts on the communities, possibly informed by the a participatory solidarity economy approach

Thank You Very Much!

“Only with a burning patience can we conquer the splendid Citywhich will give light, justice and dignity to all mankind”

(A. Rimbaud)

Documents

Towards an Inclusive and Sustainable CLLD …...RSA Cohesion Policy Research Network Workshop EU and the CITY Delft, 14 October 2016 Towards an Inclusive and Sustainable CLLD Lessons