Options of Actions

Results WP 4 Living Conditions – “Restructuring of the urban fabric” Daniel Kampus, Bettina Burgsteiner-Koch

1 1. Introduction

Urban renewal or restructuring has been in operation since humans first built permanent settlements. Cities are dynamic urban structures and therefore have to deal with structural changes constantly. They are in a constant process of metamorphosis and unavoidably have to face the necessity of continuous regeneration. The fundamental objective of urban renewal is the revitalisation of any or all portions of the urban structure which are not fulfilling the functions for which they were designed. Looking back in history, it can be seen that decline is also no new phenomenon and was not the end, but often the starting point for a new development of historical cities. These cities have shown that they succeeded to design the structural change according to new demands and developments.

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2. Definition of Urban renewal

Most experts agreed that the main purpose of urban renewal is to deliberately change the urban environment and to inject new vitality through planned adjustment of existing areas to respond to present and future requirements for urban living and working (Miller). For them, the fundamental objective of urban renewal is the application of several principles resulting in the revitalization of any or all portions of the urban structure which are not fulfilling the functions for which they were designed (Miller). Urban renewal generally applies to inner-city areas, centrally located in historical districts including non-residential as well as residential land uses (Grebler). Claude H. Boistière, of the French Ministry of Reconstruction and Housing, identified the different approaches to urban renewal as rehabilitation, complete demolition and rebuilding, and a combination of both, considering conservation to be a form of rehabilitation.

∑ Redevelopment: Redevelopment consists of the removal of existing buildings and the re-use of cleared land for the implementation of new projects (Miller, 1959). This approach is applicable to areas in which buildings are in seriously deteriorated condition and have no preservation value, or in which the arrangement of buildings are such that the area cannot provide satisfactory living conditions. However, this approach may carry heavy social and environmental costs. The demolition of architectural environments is probably the most serious consequence of the redevelopment approach (Kazemian, 1991). Redevelopment generally involves the relocation of the original population to another part of the city. Even when the residents are rehoused on the same site after its redevelopment, the transformation of the neighbourhood beyond recognition has inevitable psycho logical impacts upon the community.

∑ Rehabilitation Rehabilitation, often termed conservation or preservation, can be defined as the opposite of redevelopment. It is based on preserving, repairing, and restoring the natural and man-made environ ments of existing neighborhoods. Rehabilitation is applicable to areas where buildings are generally in structurally sound condition but have deteriorated because of neglected maintenance (Miller, 1959). It takes advantage of the existing housing stock as a valuable resource and adapts old houses to present -day life and acceptable standards by providing modern facilities (Zhu Zixuan, 1989). Citizen participation is a recurring theme throughout all phases of the rehabilitation process. However, many people do not consider rehabilitation to be a realistic approach because of the technical difficulties and

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the amount of work and research involved. Rehabilitation is often perceived as a complex and time-consuming process which is more difficult to implement than redevelopment. It requires a high degree of social organization and social responsibility, as well as a total reorganization of the housing process.

∑ Integration The third approach to neighborhood regeneration, referred to as integration, views rehabilitation and redevelopment as complementary forces and combines the best aspects of both approaches. It consists of rehabilitation of what can realistically be saved, combined with reconstruction of new buildings in place of those beyond the reach of feasible rehabilitation (Yu Qingkang, 1988).

Integration is considered today to be the most acceptable way to regenerate old neighborhoods. It allows for flexible project implementation which can preserve the traditional urban environment and its human scale while achieving respectable densities. It respects the social order of the community by rehousing the majority of the original residents on the site and invites mass participation.

3. Focus themes of work package 4

A growing number of European cities currently have to deal again with challenges due to demographic changes and population declines and as a consequence with restructuring their urban fabric. Urban development and planning has to be reassessed and a new approach has to be created – namely not trying to keep the image of unabated growth alive but to see the changes as chance and introduce a controlled restructuring or even reduction. The main fields of modification that have been examined in OP-ACT’s work package 4 are the adaptation of the housing market, changes in urban structure and reassessment of technical and social infrastructure.

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The restructuring of certain quarters is in full play in many cities. Forms of re-use for empty shops, houses or for closed down factories or other brownfields have to be found and there is an urgent need for action.

The focus within OP-ACT therefore was laid on the following issues:

a. Re-structuring of the housing market - renewal/restoration - compatible densification - controlled perforation (de-densification) - specialised offers for individual customers

b. Urban structure: Land use planning and use of brownfields - more brownfields available than land needed - abandoned blackfields that are often severely polluted - suburbanization - development from city center to peripheries

c. Adaptation of the infrastructure to the challenges of shrinking or stagnation - green infrastructure (e.g. parks, rivers, …) - social (health care, elderly, …) and educational infrastructure - technical infrastructure (also transport road and rail) - maintain an efficient supply with goods and services

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3.1 Housing

The main factors caused by demographic change that influence the housing market can be described as following:

- Ageing population with special needs in housing - Increasing number of smaller households, especially of one-person households - Appearance of new household types, a fluidity in household formation and increasing housing mobility - Migration flows in terms of international immigration and in-migration and out- migration to and from the cities - Suburbanisation - out-migration of middle classes to neighbouring municipalities - Expansion of deprived and socially difficult neighbourhouds within city borders - Concentration of elderly and the underuse of housing in the historical inner-city

When a city faces a reduction in economic productivity and the resulting reduction in the demand for labour, workers will begin to leave the city. Yet, when population in a city begins to decline, housing units do not magically disappear from the urban landscape, but the housing and property prizes will fall in this area. This fact attracts persons who often cannot afford to live in “better” neighbourhoods, for example migrants and other disadvantaged groups.

On the one hand housing is most visibly affected by population losses; when population numbers drop, there is less demand for the existing housing stock and the consequences are often falling rents and housing prices, a cut in real estate investments and residential vacancies. This leads to a decline of expenditure on maintenance and therefore to a devaluation and dilapidation of existing residential sites – in some cases even to an intensified perforation of the urban fabric. Thus, innovative measures for empty houses (apart from demolishing) – and not only houses, but also for shops – have to be developed.

On the other hand, some of the OP-ACT partner cities reported that new houses and apartments are needed in spite of the population decline, because of the increasing number of one-person households. So, shrinking does not inevitably lead to housing vacancies, it depends on what proportion of housing is allocated by the market. Housing vacancies and shrinking however seem to correlate in social housing areas and especially in the short-term, before the market has time to react.

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Recommendations for the further use of vacant buildings:

3.2 Urban structure

Many former industrialized cities (as many of OP-ACT’s partner cities) had to struggle with population losses and its consequences due the crisis or even collapse of established industries which led to the closing down of factories. Vacant land is therefore the most visible byproduct of urban shrinkage. The abandoned former production areas – the brownfields – are considered a sign of decay and decline in some city districts and are often the reason for a negative image of this area or even the whole city in the public appearance. City planners are confronted with the fact that there are much more brownfields than new land for development is needed. Additionally these properties are often contaminated and cannot be used at all or only with an enormous financial effort. When redevelopment of vacant land is not feasible in the near term or for the foreseeable future, holding strategies and temporary uses can promote stability and uphold adjacent property values.

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Generally six strategies for the use of brownfields as well as former housing estates can be defined:

- Re-use: The former use of the property will be revitalised (e. g. an industrial area will be used again for another kind of industry)

- New use: The form of use stays the same, but the buildings on-site change (e. g. an old factory will be demolished and new, high-technology production facilities will be built)

- Conversion: The previous use will be replaced by a new one (e. g. a former commercial estate will be changed into a residential estate)

- Temporary use: Brownfields and vancant buildings are reserved for a later use. In the meantime these estates can be used spontaneously, but also limited in time and they have to be maintained.

- No use at all: Vacant buildings and abandoned estates are left as they are.

- Renaturation: The previous use will be abandoned and no new use is defined. The estate is actively recultivated.

The positive side-effect of deindustrialisation is a clearly recognizable improvement of the urban environment (less air and water pollution, less noise, etc.). This fact together with a renaturation of the brownfields and the creation of new green spaces and parks might lead to change the image of the city from a “former polluted and industrial site” to a “now clean and green city” that attracts new residents and helps to stop shrinking. Nevertheless, city councils often cannot afford the expensive redesign and management of brownfields and especially blackfields on their own. Funding by the national governments is needed as well as agencies that help to arrange contacts between potential investors and the land owners.

Temporary uses for vacant land provide opportunities for grassroots, economic development, local tourism, and enhanced quality of life for residents of depopulating areas. Temporary-use initiatives enable local entrepreneurs to envision new uses for vacant sites that are often former industrial and commercial properties and to transform them into temporary market places, venues for extreme sports and cultural events, outdoor art installations, gardens and agricultural sites, and community gathering places. Temporary uses are intended as low-cost and short-term. They provide a holding strategy that activates vacant land in ways that do not inhibit and can often facilitate a long-term, profitable use.

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The following chart shows some recommended strategies for the development of brownfields and blackfields:

3.3 Technical infrastructure

Population decline and an increase of costs for technical infrastructure usually go hand in hand. Substantial costs savings can be reached by increasing urban densities and locating new development near existing built-up areas. In the cities that are facing population decline, there is also a de-densification of certain quarters. The decrease of population density also leads to additional costs because of a constant underutilisation of the network. Underutilization results in longer detention times of piped water, to microbial recontamination, increased corrosion of tube material - to higher costs for the maintenance of the system and therefore to higher costs also for every single household. The consequence of an underutilised system is the raise of the costs of the operation and maintenance of roads and sewer or drinking water networks.

The shrinking of the number of inhabitants affects not only the technical networks but also the availability of and access to the public transport system. Less users lead to

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less efficiency and profitability of the public transportation. Consequently tariffs are increased, the intervals of certain bus lines become longer and some lines are abandoned at all. Thus, the quality of living – especially for young and older people- in certain districts gets worse because of a decreasing supply with public transportation. Additionally the individual traffic will increase which results in environmental problems.

Summing up, it has to be stated that measures for urban restructuring and deconstruction shall always be examined with their effects on the technical infrastructure system. It is therefore also of utmost importance that operators of the technical infrastructure participate in the urban restructuring processes right from the beginning.

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4. Good Practise Examples at European and partner level

‹ Federal Programme in Germany – Stadtumbau Ost (Urban renewal East)

The programme is built on an integrated approach on basis of integrated urban development concepts to link urbanistic and housing industrial aspects.

Main priorities of - Urban development concept: Strategies for the overall the programme: urban development and involvement of all different stakeholders, definition of objectives and actions for urban restructuring and definition of the districts concerned. This concept is the precondition to receive funds from this programme. - Demolition and partly revitalisation of buildings or flats linked with revaluation/ upgrading measures - New and re-use of buildings to reach a space-saving settlement development - Subsequent or interim use of cleared spaces (e. g. for parks, sport activities, recreation areas, etc.) - New construction of buildings tailored to the needs of the housing market, especially to foster the development of in inner city areas (e. g. to close the vacant space between two buildings)

Conclusions: - Deconstruction and revaluation should be complementary measures to an overall urban development concept - Demolition of vacant flats mostly at city peripheries (mostly in former (prefabricated) slab-constructions) - Revaluation mostly in inner city districts - Demolition is only accepted by citizens if it goes hand in hand with actions to revaluate - Revaluation and rehabilitation is therefore the real criteria for the success of the programme - The main aim of these measures should always be to adapt the urban structure to the new demands and to reach a better quality of living.

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‹ Selbstnutzerprogramm Leipzig (www.selbstnutzer.de) (Public Private Partnership example for old/vacant buildings)

Initial situation: - Radical change in housing market since reunification - High population losses - High vacancy rate of flats - Increasing supply with one-family houses or freehold flats in the suburbs

Project: - Public-private partnership programme “owner- occupiers.de” launched in the year 2001

Main aims: - Consolidation of the housing market - Preservation and addition of urban development structures - Strengthening of owner-occupied home ownership in the inner city - The city functions as an agent to offer vacant houses to interested investors.

Methodology: - No traditional funding project – networking is more important. - It bundles a lot of activities and offers broad and free advisory functions for interested buyers. - Interested buyers form a so called home owners‘ association (a company constituted under civil law) to reduce costs.

Financing: - Private investment by the building owners - Public sources of funds from the program of Stadtumbau Ost to 1/3 own funds of the city, 2/3 of federal and state

What was achieved? - Between the years 2001 and 2007 the population in the revaluated quarters of old buildings increased about 47.000 persons. - The renaturation of more than 11.500 housings has contributed to the decrease of the vacancy rate to about 38.000 housings in the year 2008 (this conforms ca. 12% of the total stock). - In the course of the occupiers-owner-programme, 390 households were assisted by the origination of owner- occupied houses. Since 2003 about 192 town houses were built and about 50 projects are in planning.

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Lindenau/Karl-Heine-Straße: 4 families restored an old building and preserved the historic fronts

‹ Wächterhäuser / Leipzig /Germany) – Guardian houses (Example for interim use of vacant buildings)

Main aims : - Saving the old building by using it - Prevent the building from damage through vandalism and on-going decline - Giving private building owners the chance to reduce the running costs - Finding and implementing simple uses as small steps for the building to develop a sustainable and long-term oriented economic recovery

Methodology: - Guardian houses” creates a framework where homeowners and potential renters sign a flexible contract to settle the conditions of the use of these vacant houses. - This contract establishes that the renter needs to join the “Haushalten e.V” association to have the permission for a temporary use of the house, with no rent to be paid

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(except heat, water and electricity) but they have to renovate the rooms or the flat by themselves.

What was achieved? - Since the year 2004 an average of 13 “Guardian Houses” could be initiated. - Actually three of them are not “Guardian Houses” any more. - For one of them a direct contract between building users and owner was concluded. - For the second one the contracts were changed into standard rental agreements between users and owner. - The third “Guardian House” was bought by the temporary users. - A further positive impact was created through the new implemented users and their contributions or offers (i.e. cultural, creative, artificial) which generated a positive vibe around the city quarter.

Beneficiaries: - Owners of empty multi-storey dwellings - Creative associations or private persons as users - Young entrepreneurs - The City of Leipzig - People or families who live in the surrounding neighbourhood

Picture showing the reuse of a former salesroom in a “Guardian House”

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‹ Nachbarschaftsgärten / Neighbourhood gardens (Leipzig/Germany) (Example for interim use of brownfields)

Initial situation : - In 2004, the creation of a garden was planned on a brownfield in the district Lindenau by the district association, the district management and some volunteers.

Project: - A private property that was dumped with litter was found and a user contract was signed by the district association. Using the property was cost-free but the users were obliged to use and cultivate the garden. Only € 45,00 for water consumption have to be paid.

What was achieved? - 30 neighbourhood gardens were established in the western part of Leipzig. - Leipzig now offers a brownfield management and functions as agent for the interim use of these properties. - Other German cities copied the project (e.g. Berlin). - This project also functions as a project for integration as people from different ethnic origins come together in the garden. - Not just gardening, but creation of additional utilizations (Bicycle-house where you can repair your bike and get advice from other bike-fans, wood-workshop, etc.).

Barriers: - The user contract lasts just for 1 year. - Too much demand for such gardens – long waiting list.

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‹ Waldstadt Silberhöhe – Halle/Germany (Example for renaturation of a former residential area)

Project : - A big former residential area at the periphery, where the houses were demolished, has been transformed into a local recreation area by re-forestation. - This area is now linked with the bordering landscape. - The project was financed by funds from the Stadtumbau Ost, by sponsors and citizens.

Methodology: - The renaturation is part of a re-development of the overall district development. - The city supported the process with an active real estate management. - Properties were exchanged with building societies, land- use categories were changed from building land to forest, etc. - Residents were involved into the planning process right from the beginning.

What was achieved? - Demolition of 2200 flats, 1 school, 1 nursery - Reduction of technical infrastructure - Reforestation of the former residential area with 8000 trees - Creation of a wharf, a picnic area, a barbecuing area, etc. - Linking of the green space in the residential area with the natural landscape of Saale-Elster-Aue - Improvement of the conditions for local recreation in the city - Establishing of a district management office

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‹ Construction of a cultural centre on a former brownfield area (Notodden / Norway) (Example for the rehabilitation of a brownfield area)

Project: - The city centre will be moved from the old centre to the lake. - More than 20 years have gone by from the idea to the implementation. - The building of a cultural centre by the municipality should be the first step for investors to participate in the rehabilitation of the whole brownfield area. Notodden Townhall has decided to join several cultural functions such as a cafe, a museum, and a library under one roof; this allows the possibility of creating a building where people of different ages and interests can meet and interact. Additionally 100 new flats for 1-person families shall be built as flats are needed even if the population is not growing, because of the high amount of one-person households. - This project shall also contribute to make the city more attractive and offer attractions that other cities do not have and thus to win the competition.

Methodology: - Citizens participated in the development of the site and the construction of a place where people can live, meet, relax and buy something. - The project is financed by national, regional and municipal budgets. - The cultural centre will be managed by a PPP and will provide two cinemas, an art school, a stage, a private studio, space for private shops, offices, etc. Eventually, a new hotel should also be built. - Architecture and city planning should be for people to meet, consume and create.

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‹ Requalification of existing buildings in the port area (Ancona / Italy) (Example for the revitalisation of a disadvantaged neighbourhood)

Project: - The municipality has started a general programme to improve the image of the city and make it more liveable, accessible and sustainable. - One innovative action refers to the disadvantaged area between the port and the railway station where many migrants live. - The main needs were a requalification of the existing buildings and the improvement of the safety within this neighbourhood.

Methodology: - Citizens were included in the re-planning of this area. - Financial benefits (reduced taxes or bureaucratic benefits) for private owners if they renovate their buildings - Cooperation with the police - Car park: the municipality paid for the building and a private partner operates it.

Measures: - Renovation of buildings (most of them are owned by the municipalities) - New structure of the area that makes it easier for the police to control it and make it saver for the inhabitants - Building a car parking in this area and a provide a bus service from there to the city centre for free

What has been achieved? - The actions brought new life into the area. - The former disadvantaged area has been transferred into an intercultural area (with a positive connotation) – there are open markets for foreign food, exotic restaurants, which attract especially young people. - More Italians live there now as it has become saver. - Prizes for the flats have not been increased.

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‹ Slimming down of city infrastructure (Altena/Germany)

Initial situation: - The population decreased from 32.000 to 18.500 inhabitants during the last decades. A further decline to 15.000 inhabitants is predicted for the next years. - The city therefore plans its development accordingly – cope with still some losses and then try to stabilise.

Actions taken to slim down the - Two schools had to be closed, but a new one was infrstructure: installed in an existing school building in cooperation with a small neighbouring town. - Old buildings with flats up on the hills were demolished. - Three kindergartens were shut down. - The city administration was downsized. - Services had to be established to provide the people in some areas with for example with fresh products. All these services are managed by the citizens themselves, the municipality just helps them. Or little buses take old people from A to B and these are driven by volunteers.

‹ Shop concept (Altena/Germany) (Example for the re-use of vacant shops)

Initial situation: - The empty shops in the centre have to be filled. - It is hard to find entrepreneurs who are willing to settle there.

Measures: - The city rents shops that have been vacant for years from private owners for € 100,-/year. - Together with the citizens these shops are developed and renovated with the final aim to come to market rates and to do something there for tourists. - People who invest there get better tax conditions.

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5. Urban development

During the partner workshop in Legazpi, the following three methods for urban development as regards population decline were highlighted:

- Active slimming down - Stabilisation and growth - Target group focused urban development

OP-ACT partners tried to find the main challenges for each of these methods, the most experienced barriers and solutions to overcome these barriers.

The first working group dealt with “active slimming down” and preconditions are needed to start the process of reduction and deconstruction.

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The group that dealt with the second approach “stabilisation and growth” focused on how to define those quarters or areas of a city that need re-structuring the most.

The third working group discussed if urban restructuring and development is also focused on certain target groups. The posed the question if development projects can be realised just for one target group alone.

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6. Conclusions and recommendations:

The consequences of population decline and demographic change represent a challenge to change and review the principles upon which urban policy and planning have been traditionally based. Accepting the inevitable might mean planning for the future of a considerably smaller city, to empty out run-down neighbourhoods, to re- green once populated areas, and to adopt an economic development plan that boils down to controlled shrinkage in a smaller but nevertheless liveable place. There is no blueprint for how cities should react on the challenges of on-going demographic change in Europe. Instead shrinking cities need creative and highly flexible urban strategies in highly uncertain environments. Today, there is general agreement in the shrinking cities debate that a paradigm-shift is needed for planners from growth-oriented planning to ‘smart shrinking’. Traditionally planning is based on growth expectations. Due to the fact that contraction processes are complex, dynamic and difficult to place in local political arenas the lack of adequate instruments for developing existing complex settlement structures with unused or

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underused building stocks and surplus infrastructure requires not only new tools but a new planning paradigm.

Summing up it can be said that population decline and a shrinking city do not only have negative implications, such as vacant houses and shops, a decrease of service quality, closing down schools, kindergartens, etc., but this development can also be seen as opportunity to solve environmental problems and to build a new quality of life for the inhabitants. Renewal can be the starting point to make a city more green, more sustainable and compact. Creating realistic visions for “slimming cities” should be the main planning approach. Public authorities - at local and especially at national level - are therefore asked to provide the right framework so that it is ensured that the re-structuring of the urban fabric goes in the right direction and that the reduction process does not lead to a fragmented and socially polarized urban structure. Integrated and holistic policies as well as federal funding programmes are needed to realise the change to a well-fit urban design.

Recommendations:

‹ Avoid negative connotation – do not talk of a shrinking city but a slimming city. See it as a chance for new and integrated development.

‹ Try to start a paradigm shift – from growth management to organized conversion/ urban redevelopment!

‹ Elaborate a city development concept that refers to the entire city and consider all factors that influence city development. Then build a network, develop an strategic action plan and work with incentives.

‹ Try to involve neighbouring municipalities and cooperate with them at the same level – do not just see them as competitors!

‹ Use the abandoned areas to make your city greener and enhance the quality of living. Lay your focus on the inner city, enhance its attractiveness.

‹ Promote urban living; try to bring commuters back to the city to avoid suburbanization.

‹ Build one eye catcher or important building in the restructuring area as stimulus for private investors for further development.

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‹ Create living space for families at a favourable price within the city borders; provide beneficial land for building; support individual housing projects; create family friendly neighbourhoods and award prizes for family friendliness.

‹ Promote civic participation (children, adolescents, senior citizens) and offer more transparency - establish a “culture of dialogue“.

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References:

Glaeser, Edward and Joseph Gyourko. Urban Decline and Durable Housing. Journal of Political Economy 113, no. 2 (2005):

Grebler, Leo. Urban Renewal in European Countries: Its Emergence and Potentials.

Rink, D., Haase, A., Bernt, M., Großmann, K. (2010). Addressing Urban Shrinkage Across Europe – Challenges and Prospects.

Rink, D., Haasa, A., Bernt, M., Mykhnenko, V. Shrink Smart – Challenges of shrinkage.

Miller, J. Marshall, ed. New Life for Cities Around the World. International Handbook on Urban Renewal.

Kazemian, A. Reza. Urban Renewal Versus Local Values.

Schiller, Georg, Siedentop, Stefan. Infrastrukturfolgekosten der Siedlungsentwicklung unter Schrumpfungsbedingungen.

Yu Qingkang. "Integration of Old and New in China's Historical Cities."

Zhu Zixuan. Plannification and Management of Beijing: Focus on Development and Conservation of the Inner City Area.

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