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The Process of Urban Regeneration in Dublin: Before the Crisis, After the Crisis

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The Process of Urban Regeneration in Dublin: Before the Crisis, After the Crisis The process of urban regeneration in Dublin: Before the crisis, after the crisis DR NIAMH MOORE SCHOOL OF GEOGRAPHY, PLANNING AND ENVIRONMENTAL POLICY, UNIVERSITY COLLEGE DUBLIN Presentazione al Dipartimento di Architettura, Università degli Studi di Palermo Seminar Overview The urban context The general development of Dublin The ‘urban crisis’ in the 1980s Framing regeneration Entrepreneurialism and governance Changing policy environment: area-based interventions Strategic urban projects & the public-private relationship Before, during and after the boom: Case study: Dublin Docklands After the boom: Where to now? The Urban Context Dublin, Ireland Dublin and Irish urban change 1970s /1980s: Global economic change, decline BUST of inner city Mid-1980s to 2007: Global growth, return to the inner city, redevelopment and regeneration, BOOM gentrification etc. 2007 to present: Global recession, national economic decline, construction slump, recovery? BUST 1950s onwards: Context for change: Global economic transformation National government policy: Wright Plan, 1966 Suburban expansion to the north, west and south Urban decay in 1970s and early-1980s Out-migration of industry to locations on the urban fringe New companies chose to locate operations in attractive suburbs Unprecedented rise in unemployment of 97,000 (1971- 1981) Changing distribution of economic functions and a redundant inner-city. Population change in Dublin Dublin 2011: 1,270,603 Dublin City: 525,383 (+3.8%) Fingal: 273,051 (+13.8%) DunLaogh: 206,995 (+6.7%) South Dublin: 265,174 (+7.4%) Comparison with Palermo: Dublin city centre smaller Urban Functional Area larger Framing regeneration Context for change National economic crisis Government intervention Market-oriented US / UK influence: Allowed tax incentive areas to be designated by Minister Promoted creation of special bodies for redeveloping special areas Kick-started redevelopment Changing role for local authority Regeneration: The Dublin approach Partnership a key concept Method: Role of fiscal (tax) incentives of significant importance De-regulation / ‘light touch’ regulation to create a ‘favourable business climate’ Streamlined planning Spatially targeted (Harvey, 1989) Focus on ‘new economy’ Public-private relationship in Dublin 1986-1994: State dependent on private funding, relaxed power over developers/property interests provided incentives/good environment for business 1994-1998: State increased power over private sector by restricting designated areas, channelling attention into specific sectors and types of development 1998-2007: State reduced tax incentives to adopt a more sustainable approach; in turn the private sector more opportunities to gain from major developments through PPP approach Phase 1: 1986-1994 Economic context – local and national recession Out-migration of industry to locations on the urban fringe New companies locate operations in attractive suburbs 20% rise in unemployment in Dublin 1971-1981 Changing spatial distribution of economic functions Rise of the neo-liberal agenda: Local authorities financial difficulty ‘Inefficiency’ a key metaphor Private sector need to be engaged Government intervention Urban Renewal Act 1986 Guiding principles: Leverage of private sector investment Spatial integration of culture, economy and ecology in the new urban region The ‘urban’ to be developed in the national interest Designation of areas for special incentives – tax related Governance and goals Promoted creation of special bodies for redeveloping special areas – new state actors Changing role for local authority Emphasis on physical renewal especially new build with just one exception Example: Temple Bar (left bank’) Special agency in collaboration with local authority (1991) Culturally based regeneration / distinctiveness Involvement of state cultural agencies: a ‘cultural quarter’ IR£40m (€50m) funding under cultural development programme Enhanced incentives for refurbishment Central & local government partnership: ‘creative industries’ Phase II: 1994-1998 Changed economic context: Recovery and growth gaining momentum Renewal proceeding but needed reform Success in stimulating property-based urban renewal Large areas of city under construction Less progress in employment, amenities, education and training Unintended consequences of policy Displacement and relocation of commercial users Shadow effect of new developments on old Conservation/refurbishment hard as policy favoured new build Single-use commercial favoured over MXD Incentives overheating property market?? Evolution of regeneration in 1990s Urban Renewal Act, 1994: OPLURD: EU funding and area-based partnerships Enterprise Zones: East Point & Grand Canal Incentives for development of Enterprise Units and R&D facilities East Point: Sun Microsystems, Oracle, Yahoo Grand Canal Street: Google, eBay A new context for planning Formalisation of frameworks for partnership Major Urban Initiatives: HARP (Historic Area Rejuvenation Project) in Dublin 109 hectares in inner central area. Based on strategy of creating four local cells within the area. Retail cell focused on Henry Street/Mary Street, The Markets cell, The Smithfield cell and the Collins Barracks cell. Opportunity for the local authorities involved, to reassert their position as the lead agencies in urban renewal Direction of regeneration: Deficiencies of the property led approach, and the failure of benefits to trickle down to local communities KPMG report, 1996: “...there has been little benefit to date from the redevelopment to the neighbouring communities in terms of employment, amenity and facilities. Social problems such as drugs, poor education attainment and marginalised communities remain" (1996: 91). Phase III: 1998-2007/8 One of strongest European economies in economic and employment growth Necessity to stabilise demand rather than boosting demand, sustainable development New approach to regeneration from 1998 – Integrated Area Plans Public-private partnerships (PPP’s) - commitment to principle of engaging private sector in delivery of what were predominantly state activities Public-private partnerships in practice State reduced tax incentives, adopted a more sustainable approach; private sector opportunities to gain from major developments through PPP approach €950m upgrade of M50 (Dublin ring €104m Convention Centre Dublin road) Former Spencer Dock railyard SIAC/Ferrovial Treasury Holdings/SISK/CIE Opened Sept 2010 Opened Sept 2010 Partnerships and regeneration Key policy mechanism - Integrated Area Plans Strengths and weaknesses of areas Apply for designation Target sub-areas or key projects with incentives only where proven barriers to development exist Area of high social disadvantage, monitoring and implementation PPP approach worked as property market was strong Dependency on PPP schemes to replace or refurbish obsolete social housing estates PPP scheme at Spencer Dock (CIE and Treasury Holdings) Integrated Area Plans Challenging specialisation 1. Liberties Digital Hub 2. Kilmainham Residential, community 3. Heuston Gateway Mixed use 4. Smithfield / HARP Markets, leisure ✓ 5. Temple Bar Cultural, tourism ✓ 6. Docklands Financial, ICT, Mixed use Heuston Gate 2-hectare (4.5 acre) state- owned site to the south-west of Heuston railway station Balance to the Docklands developments at the eastern end of the river Liffey Two landmark buildings Cultural flagship development – Exploration Station Digital Hub: Accommodating Creative Industries Digital Hub Development Agency established in 2003 Enterprise and social development strategies Ensure creators and innovators of next generation digital media products and services have an opportunity to grow. Leveraging the project to provide social and educational developments and reform. Board level integration with Dublin City Council, Enterprise Ireland and the Industrial Development Authority. The turn to community 1980s urban regeneration: Assumption that economic development ‘trickle down’ Community development in opposition to central government Early 1990s softening of approach UK City Challenge policy - partnership and consultation Mid 1990s, tackling social exclusion a key theme European Union influence Arrival of slightly Left-leaning government in Ireland Late 1990s : More scope for community involvement Language of community and partnership Community involvement in partnership poor outcomes Range of difficulties in engaging ‘In all the work I’ve been involved in, it’s us who have to put the effort into reaching the council’s level ... They never come down to ours’ ‘With so many men in suits, it was difficult to find the courage to speak up’ ‘ The officers pay more attention to questioning whether we are representative or not than they do to what it is we actually say’ Before, during and after the boom: Dublin Docklands Docklands in the 1980s Similar to rest of the city Gregory Deal Nationalisation of Port & Docks Board site Key legislation: Urban Development Areas Bill (1982) Urban Renewal Act (1986) Custom House Docks, mid-1980s Early regeneration in docklands International trend in urban waterfront regeneration A ‘flagship’ project for Dublin: National economic development & tax revenue Prevention of ‘brain drain’ & harness high education levels Physical regeneration & post-industrialisation International Financial Services Sector Financial incentives and flexible
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