Developing socially productive places Learning from what works: lessons from British Land – RSA conference

July 2014

Contents

About this paper 3 Foreword 4 Planning, development and the power of communities 6 Conference summary: challenges for the built environment 8 Conference summary: learning from experience 11 Developing socially productive places 19 Further resources 22 Endnotes 24

Developing socially productive places 1 The RSA in partnership with

2 About this paper

This paper reflects the insights generated David Bloy, British Land from the RSA’s conference on April 2nd Sarah Cary, British Land 2014 – Developing Socially Productive Places. Anna Devlet, British Land This project has been kindly Tim Dixon, University of Reading supported by British Land. British Land owns, manages, develop and finances a Rachel Fisher, National Housing portfolio of retail, office and residential Federation property across the UK Liane Hartley, Mend We are grateful to the following individuals who provided comments Joseph Kilroy, Royal Town on a draft, and to all the speakers and Planning Institute delegates who were generous in sharing Waheed Nazir, Council their expertise at the conference and in subsequent conversations: John Parmiter, Peter Brett Associates Graham Randles, nef consulting Lisa Taylor, Future of Ed Watson, London Borough of Camden

Developing socially productive places 3 Foreword

This paper explores the relationship public services,1 a concept created by which ultimately produce social and between the physical and social aspects of the 2020 Public Services Commission economic value. For example, a theatre community-building and place-making. and developed at the RSA. Socially is useless without the groups and It invites local authorities, developers, productive places are neighbourhoods companies which perform. communities and businesses to deepen and districts where people are enabled With some notable exceptions, their understanding of what makes places individually and collectively to meet the property and development industry good for people in the long term. their own needs and achieve their has struggled to quantify the value Content is drawn from a conference aspirations for issues which matter to of the relationship and the nature of organised by the RSA with the support them. They require a system of physical interaction between the ‘hardware’ of British Land and held in April 2014. assets – homes, streets, open spaces, and ‘software’ of socially productive Developing Socially Productive Places shops, workplaces and community places. Building assets for community brought together perspectives from facilities – which function together in use alongside development is often over 100 professionals from a wide ways that respect and broaden the social an afterthought; considered a social range of organisations. Drawing on and economic networks through which sweetener or an extractive tax on top examples of good practice, shared at we live, work and play. of the economic basis for development. the conference by expert speakers, we It can be helpful to see the system This is short-sighted. Long-term looked at approaches to policy making, of physical assets provided by the property value is driven by the long- engagement and metrics that might development industry as the ‘hardware’ term economic relevance of an asset. support a ‘socially productive’ built on which social and economic activity Remaining relevant in the long-term environment. takes place, from household to requires adaptability – the ability In essence, social productivity is multinational level. People, institutions, to support updated software. the additional social value that can be organisations and firms develop the Many have been trying for a long time created through better relationships ‘software’ applications: working to ensure that the development industry between citizens, society, business and arrangements and patterns of activity delivers the best possible impact and that

4 planning supports this. But experience Featuring examples from practice This paper challenges and shared at the conference highlighted the presented at the conference, Section 3 supports the next generation aspiration gap that remains. Fostering illustrates how progressive approaches culture change is not easy; the capacity can support socially and economically of developers and local to develop and apply innovative valuable outcomes at different stages authorities to develop new solutions is stifled in a climate where of the development process – from ways of working with public finances face unprecedented engaging communities in planning to pressure and developers are emerging evaluating impact on well-being. local communities and from years of market uncertainty. Section 4 draws conclusions from governments, outlining Reflecting on the different context for the evidence and outlines a long-term the value of insight into change in the public and private sector, agenda for generating the experience this paper challenges and supports the necessary to develop socially productive local networks next generation of developers and local places, and provides references to further authorities to develop new ways of resources. We conclude that progress will working with local communities and only be made if both public and private governments, outlining the value of sectors, individuals and community insight into local networks. groups, collaborate in new ways. Section 1 provides an on overview of Finally, we suggest several how planning and development relates opportunities to learn from existing to the communities and places which and emerging practice, which will inform host and support the process of change the RSA’s programme of work on place, in the built environment. Section 2 communities and public services. draws on the keynote speech of former housing minister Mark Prisk MP at the conference, to outline key challenges for the coming decades.

A message from British Land, Chris Grigg

Our research into 30 years of Our challenge is transferring We partnered with the RSA to learn development at Regent’s Place – a large what worked in Regent’s Place to how we can better invest our time central London mixed use campus – other cities and neighbourhoods. and resources into local communities, was an opportunity to explore what is How can we all demonstrate to local creating places that benefit local people. transferrable elsewhere. And the research communities that they will benefit did more than answer the question from physical investment? How can of whether a development created in we create organisations and community partnership with the local community partnerships which work with us to can create trickle-down benefits for that direct the shape and uses of places? And community. Crucially, it showed that are there other models of accountability these social benefits can also actually and transparency to consider? We are bring commercial benefits. also grappling with how we can improve the local economic benefits of our construction and property management activity; we want to explore better ways of supporting local jobs, production and skills.

Developing socially productive places 5 Planning, development and the power of communities

During a period when property values influence over the decisions that In some cases, the development are rising in most parts of the UK and affect us.2 and redevelopment of manmade development activity is picking up, a key The networks which link people environments is reflecting and driving concern of local authorities and other together into communities operate at social and economic change. For accountable bodies is that economic several scales, from local to global. example, in the UK, retail development growth must benefit residents while New technologies provide new platforms is changing in response to the growth improving public finances. for social and economic exchange at in internet shopping. We are seeing One dimension of developing socially a global scale, connecting people and developers add cultural facilities – productive places involves supporting places at an unprecedented speed. theatres next to office blocks and local people to engage with development cinemas and restaurants in retail parks as a means of addressing doorstep Global communication – and brands such as Asda adopting issues such as employment, transport trends are affecting planning a “community venturing” approach, and provision of health and education and development of the built forming partnerships with charities and locally. environment public services. There is also growing A socially productive place would Peer-to-peer, collaborative networks and sustained interest in the imperative build community capacity to benefit – empowered by new communication for buildings to reduce their contribution from and drive growth, and increase technologies –increasingly enable us to to climate change and their exposure to resilience to shocks and the ability to access resources and social networks, the risks climate change poses. adapt together to new circumstances. providing new platforms online and In other cases, planning and As demonstrated through the RSA’s offline for interaction. At the same time, development has been slow to adapt. Connected Communities’ programme many people are demanding ‘real life’ In a networked world, traditional models of action research, our social networks leisure experiences which are perceived as of ownership are being challenged and play an important role in determining authentic and represent values alternative people are finding ways of utilising our ability to create change and our to dominant global corporate identities. spare capacity in the built environment.

6 Airbnb was established in 2008 and has since grown to be the largest global network of short-term rental accommodation, with 500,000 private properties available to rent for business trips and holidays. Many authorities are seeking to incorporate this new business model within existing taxation and regulation frameworks developed for the hotel industry – without much success. Adopting the language of the “sharing economy”, Airbnb calls itself a “community marketplace” – one in which many users of accommodation also provide accommodation to others. Other networks, such as SparePlace, started by RSA Fellow Dan Thompson, are applying this logic to commercial and creative spaces including shops and offices. People rely on the built environment to provide the networks and resources that enable hundreds of jobs at the other end ‘hardware’ on which to live lifelong learning. Equally, the conditions of the country. Modern methods of their lives of the built environment can constrain construction will increasingly involve As well as housing, and other buildings opportunities if facilities are inadequate off-site pre-fabrication. The challenge in which to produce and consume, to meet demand or too prescriptive for planning is that the costs and benefits infrastructure networks connect places and inflexible to changing needs. LSE’s of development are not shared equally to one another and service them with work on “ordinary streets” has shown among stakeholders, and often extend utilities. Ensuring that people’s needs that adaptable low-cost premises for beyond the site of development. The are met requires developers, and retail and commerce play a crucial role complexity of the challenge comes from local planning authorities, to protect in community development and social the need to involve different stakeholder the interests of the public, including mobility. This can be of value to diverse groups at different scales in negotiating neighbours to new development. groups of people on the same high street the inherent trade-offs over the Ensuring that developments function simultaneously, and especially valuable long-term. well together with infrastructure as a for immigrant communities. system is the role of spatial planning. Ensuring that the whole is greater than Planning should be thought Investing in planning can the sum of its parts is a broader process of as a frontline service support other public sector of place-making. Successful place- Development is one of the most making requires an understanding of powerful drivers of local political objectives in housing, how people, households and community engagement, and therefore the planning education and economic networks respond to and use the process represents a significant gateway health, and pro-actively opportunities afforded by the built to stronger community relations and environment. dialogue on a range of issues. strengthen relationships Socially productive places can Investing in planning can support between developers, support well-being and prosperity for other public sector objectives in housing, incoming people, businesses the people that live, work and play there education and economic health, and pro- through intelligent design. Well-designed actively strengthen relationships between and existing communities. buildings, streets, and neighbourhoods developers, incoming people, businesses Ultimately the success of can promote the social interactions and existing communities. Ultimately that enhance trust, cohesion and the success of a development should be a development should be inclusion. Economically, good place judged by its impact on those who use it, judged by its impact on those design supports business connectivity and its ability to contribute to a broader who use it, and its ability and innovation. For the individual set of social and economic outcomes. citizen, a well-designed, socially As British Land’s recent study to contribute to a broader productive place can be the difference into social and economic impact has set of social and economic between disengaging with education shown,3 the impact of development in outcomes. and training, and connecting with the one part of the country can support

Developing socially productive places 7 Conference summary: challenges for the built environment

This section summarises 1. Density only answer, nor are legal transactions the principle challenges for Development needs to be at higher such as Section 106 and Community density to be viable (financially) and Infrastructure Levy (CIL) payments. planning and development, sustainable (in environmental terms). Planning needs to be seen as a process as tabled at the Developing But existing communities often to achieve social and economic Socially Productive Places fear crowding and congestion, poor objectives through development, and quality high rise buildings, and loss more than simply a process of gathering conference in Mark Prisk of historic character. The challenge contributions that pay for their MP’s keynote speech. Direct is to demonstrate that density will objectives elsewhere. quotations are italicised. allow for better urban infrastructure A positive framework would help – for example, more frequent buses build trust, setting out roles and Mark Prisk’s full speech is available on or additional facilities at expanded responsibilities, and sharing risks YouTube at bit.ly/markpriskatthersa local schools. and rewards. In the US, Community Benefits Agreements are legally binding, “We will need to show people that community groups sign alongside when we build to a greater density, it’s developers. desirable for … the wider community.” A more transparent and democratic approach to allocating Section 106 Policymakers need to do more payments would maximise benefits to develop frameworks in which for communities, at the same time communities, developers and councils as reassuring developers that money can sustain long term partnerships. was being used as intended and not Formalised, structured neighbourhood as a proxy tax to plug holes in local planning agreements are not always the government finance.

8 2. Flexibility The planning system, and land use Borneo Sporenburg, Amsterdam regulation, needs to allow buildings to change in how they are used over time, responding to changing needs, but ensuring an overall balance of supply. The challenge is to practice thoughtful and evidenced flexibility in the management of land use over time.

“Those of you who are investors or owners will reel from the idea of broad, mixed-use asset classes. However isn’t it time to recognise how people’s lives are changing, and not leave these assets increasingly vulnerable to becoming redundant?”

A silver lining during the economic downturn was the emergence of successful ‘meanwhile’ temporary uses such as ‘pop-up’ shops (see text box below), supported by initiatives such as the Coming Soon Club (in Wembley, London). Developing places involves initiatives big and small, temporary and long-lasting. Development does not always have to come from developers. In this era following the financial crisis, transition should be considered a structural feature of the way places Districts which balance public and connectivity. This is particularly will be built, with a new set of tools private interests. important for vulnerable groups such and approaches that deal with this as new immigrants and less mobile uncertainty. Creativity, appropriation, “So what does it mean for a space older people. Public facilities such and a rediscovery of the ability of to be public? And how do we square as parks and playgrounds are where citizens to shape their everyday spaces private ownership and public access, neighbours form relationships. Informal are highlighting the benefits of emergent in either new settlements, or urban associations to supervise, support and and adaptive approaches. Support for renewal schemes?” campaign for the maintenance of such such approaches is often missing in long- facilities provide an important basis for term masterplans. At its best public space stitches expressing ownership of space. together private institutions to provide Urbanists have noted the public 3. Balance public and a sense of place which is greater than the behaviours which provide whimsical private interests sum of its parts. Providing small-scale indicators of places supporting social When community groups come open space in housing developments life: the destinations people choose for together to create changes to the built has been shown to encourage pro- first dates, places where children play environment, this should often be social behaviours between neighbours. safely but unsupervised. Large and seen as a positive indicator of social Given the ability, residents can appraise enduring institutions and infrastructure productivity. Authorities should consider and propose successful open space facilities also play a key role. Developers the merits of community ownership solutions.4 Inspiring urban design can could learn more from locations like the of assets, or any vehicles which secure be generated by setting a stimulating school gate as an informal social space, long-term stewardship. Building design code, as took place in Borneo and many local authorities appreciate and maintaining high-quality public Sporenburg in Amsterdam’s docklands, the importance of welcoming arrival realm is expensive, but privatising which allowed for private housing with gateways to a place; the first impressions public space is not the answer. The creativity and expression within a high created for visitors at bus and train challenge is how to deliver public good density framework of public space. interchanges. with private investment. We need to Accessible public realm is an Further devolution of powers means scale-up innovative investment and important feature of socially local neighbourhood planning groups funding vehicles such as Tax Increment productivity places – places designed are taking on new responsibilities. Financing and Business Improvement to support social and economic They need capacity and foresight to

Developing socially productive places 9 build communities sustainably over time alongside private interests, at a Boundary Estate, Shoreditch, London scale ample to meet the demands of future generations. Both planning and development are in and of themselves processes which forge strong community identity, and can bring people together, forging social capital.

“The final challenge is how can we empower people to create lasting communities? It’s that social side, less tangible but just as important, which acts as the glue that binds a community together. Now all too often this is the exception not the rule. We need to change this, developers, community leaders and politicians alike.”

Pop-up and meanwhile uses allow for temporary experiments to see what works. These often include commercial uses, and can catalyse new local business networks as they feature lower barriers to entry, that encourage local people to take ownership and initiative. Great value can come from small urban spaces in which groups can engage and inform one another, and take collective action. For example, public consultations by local authorities may take place on pavement space near to a busy pedestrian crossing. Small plots of green space can be adopted and managed by residents associations to provide pocket parks, gardens, and sanctuary.

10 Conference summary: learning from experience

Birmingham City Council show that in than longer-term or broader growth preparing masterplans and development pressures. Understandably, their focus proposals, if you treat communities is on fine-grain issues – improving with respect, openness and transparency, lighting and referencing the authentic much more is achieved. Productive local heritage of existing communities. Engaging people in planning dialogue in the face of opposition A focus on a high quality environment – requires trust that planners are not in the clear routes where people felt safe – was Birmingham’s Big City Plan pockets of developers but are concerned therefore important for public support with delivering sustainable growth. and business footfall. Waheed Nazir is Most objections to Green Belt Most planning documents are a release are valid concerns about bringing struggle to read. Birmingham decided Director of Planning and forward infrastructure investment in to simplify and clarify the message. Regeneration at Birmingham time for proposed housing growth. The plan was about expanding strength City Council. His full Plans must clarify funding timescales of the city centre into wider areas, using and responsibilities, and use creative the distinct character of individual areas presentation is available investment vehicles (such as Enterprise such as the . Getting at bit.ly/RSAsummary31 Zone investment in Paradise Circus). the support of local politicians means People want to shape the plan, explaining things by reference to the Local authorities and neighbourhoods not write the plan. Conventional long-term outcomes, not in land-use draft and approve planning documents neighbourhood planning requires planning terms. which outline the policies governing intensive resourcing which is often The Big City Plan is about setting development, and developers then seek not sustainable. Most communities clear principles and focusing on permission for schemes to match the are much more interested in the deliverable projects. The development aspirations of these plans. Lessons from immediate challenges they face community wants to see clarity of vision.

Developing socially productive places 11 Articulating what the city wants to achieve is more important than the Learning points Addressing community concerns planning status of a masterplan. Ordinary people are interested in places, not planning. A plan-led approach to Birmingham site- and neighbourhood- community engagement must: specific plans are now falling into place • mitigate the technical nature of many traditional planning documents guided by the principles of the Big City • communicate clear principles for development Plan. Bringing education and housing • address high-quality design within the planning department provides • coordinate so that physical and social infrastructure are delivered in a timely manner, real integration to match development working across local authority departments with social infrastructure. Planning can be a catalyst for forging community identity and participation. Although there are limitations in using a neighbourhood planning approach alone to address public engagement issues, successful engagement will see communities take ownership of the trade-offs inherent in land use planning. New tools such as those developed by Commonplace and SEEPLAN can help in sharing information and learning between local stakeholders.

See Further Resources section at back of this document.

Co-producing development with long-term stewardship Joseph Rowntree Housing Trust at Derwenthorpe Nigel Ingram is Director of Development at the Joseph Rowntree Foundation & Housing Trust. His full presentation is available at bit.ly/RSAsummary32

Experience from Joseph Rowntree Housing Trust’s (JRHT) Derwenthorpe development demonstrates how the a sense of place through quality design feedback from early consultation had social, financial and environmental at high environmental standards. favoured designs which separated the impacts of new development relate to The trade-offs generated debate new housing from existing housing. one another. Derwenthorpe reflects before spades hit the ground. Land Delays to planning proved to have principles reaching as far back as identified for housing in the late 1980s a silver lining. Early evidence gathering New Earswick, started in 1902. New and first proposed by JRHT in 1998, and engagement strongly indicated Earswick aimed to foster social cohesion faced local objections based on perceived that new residents would require for workers in York, not only through loss of amenity, flooding, traffic certainty about the energy performance new affordable housing, but through increases and connecting ‘different’ of their homes in the context of new governing bodies with a focus neighbourhoods. The objections ambitious sustainability objectives. on creating a sense of community. culminated in three formal examinations Derwenthorpe’s energy generation Derwenthorpe – an urban extension at – a six-week planning inquiry, a Village was ultimately designed to provide the edge of York for 540 homes – drew green inquiry, and a two-year European all homes with heating and hot water on this heritage in its ambition to infraction investigation – before consent through a community heating system. provide affordable housing and create was gained to start on site. Local Confident in the green efficiency of its

12 build and able to realise economies of scale as a purchaser, JRHT has taken Learning points Securing social infrastructure responsibility for providing energy to The concerns of existing residents and the security of new residents can be addressed residents at a competitive price, at a time by taking an involved and longer-term approach to planning and designing social when energy prices are an increasing infrastructure, which itself supports behaviour change and more pro-social behaviour concern and a source of insecurity for at the outset. those on low incomes. The energy hub • Even with a single landowner, many local concerns about new development relate to also serves an additional purpose as a pressure on existing neighbouring facilities amenity space and school places, public meeting place for residents, local schools transport capacity and road congestion. and community groups. This space, built early in the phasing of development, reinforces the links between their social, financial and environmental aspects of behaviour changes and forging new neighbourhood identity.

Focussing economic benefits locally Pooled recruitment at King’s Cross Ed Watson is Assistant Director of Regeneration and Planning at London Borough of Camden. His full in the construction industry around King’s Cross. The Centre links Learning points presentation is available at residents of Camden and Islington Making the most bit.ly/RSAsummary33 who are looking to start or further a of development on career in construction to training and simultaneous sites Development of the built environment apprenticeship opportunities, including can support economic and social a variety of courses offered free to • Councils and developers should opportunities. Building on several unemployed local residents. These work together to maximise the economic and social benefits decades of good practice, conference range from general pre-employment across nearby developments. delegates suggested that this needs preparation to employer-led seminars Multiple construction projects coordination beyond the scale of on industry-specific skills. collaborating between boroughs development sites in order to maximise Following on from this, KX Recruit can support more apprentices impact. The King’s Cross development was established to help local residents by pooling efforts, rather than demonstrates how Camden Council, find work in the area and help King’s recruitment taking place for one lead developers and their supply Cross-based employers fill vacancies. project at a time. chains have put systems in place to The level of local recruitment KX • The benefits are greatest when ensure ambitious targets are met for Recruit aims to achieve is between local investment (for example ensuring that the value of investment 15–30% local residents; since opening through upskilling local workforce) in construction reaches the firms and in 2004 1,200 people have secured jobs secures coordination over a long- workers located near to (potentially in the industry. term programme of development. negative) construction impacts. There are other opportunities The Construction Skills Centre for cooperation of this type, for is a key part of the commitment to example on local procurement deliver local benefits. It offers advice and training provision. and information on finding work

Developing socially productive places 13 Investing in community relationships British Land at Regent’s Place

Thirty years of experience from Regent’s Place demonstrates how the West Euston Partnership brought together British Land, the local authority and a united local community voice. The Partnership effectively identified and implemented social and physical investments which contributed to the transformation of the wider neighbourhood beyond the redevelopment of 13 acre estate. Despite the lack of a formal planning framework for the site, The West Euston Partnership married up investment in social ‘software’ – existing community organisations, work enabling programmes and resident’s networks with the creation of physical ‘infrastructure’: new theatres, walking routes, retail and office buildings and community spaces. A racially motivated murder catalysed “The most unusual aspect of the community cohesion in this instance, community engagement here was the Learning points but experience from elsewhere shows proactive and collaborative engagement Forming a lasting motivations for community engagement of all sectors of the community with and effective local can be supported by special events, British Land, through the West Euston partnership or threats to cherished assets such as Partnership Planning Working Group, heritage assets or public services. Public as part of the planning process. This • Successful community investment interest reinforces councillor interest. informed British Land’s response in what takes time and effort by developers, including long-term consistent In a recent study on 30 years’ community and leisure facilities were representation, engagement by investment at Regent’s Place, nef provided on and off site.” senior executives and dedicated consulting research found that the area Frances Wheat, Head of Development staff. Management, Camden Council around the estate saw a substantial • Local political support is essential; reduction in levels of deprivation in site-specific planning frameworks recent years – in the top 1% of the are not. greatest improvement across London. “At Regent’s Place, the West Euston • The results for developers can be And from 2004 to 2010, the area achieved Partnership brought the community profitable, as quality of public realm the top 5% of all London areas for together and so we were able to build drives rents, and local consent for improvements to employment. This social relationships and break down barriers density allows greater floorspace change was supported by the Partnership to engagement in a community that yield from a site. between the council, ward councillors, was not the type of middle-class group the police, University College London, that normally engages in planning. This the NHS, community organisations meant that we came to understand the and other local stakeholders with the issues they faced, and so were better able common aim of making the area a better to work with them on how those issues place to live and work. might be addressed.” Regent’s Place signifies a holistic Nigel Webb, Head of Development, British Land approach to development, highlighting the wider impacts on community well-being from investment in social, in additional to physical, infrastructure.

14 Generating returns for public investment Leeds City Council’s plans for South Bank Tom Bridges is Chief Economic Development Officer at Leeds City Council. His full presentation is available at bit.ly/RSAsummary35

Leeds City Council is applying new This expansion of green space is approaches which open up its South designed to attract new commercial and Learning points Bank neighbourhood. These are residential development. In economic Getting maximum value designed to ensure that public finances terms, the Council recognises this from city centres can realise a return on investment in must generate additional development • Knowledge-intensive industries are high quality public realm, infrastructure rather than displace it from elsewhere. particularly attracted to co-locating and community facilities – something The challenge is to create financial in city centres, and particularly that can be a struggle within current vehicles which support the viability of sensitive to quality of urban realm accounting frameworks. public realm investment by capturing and provision for recreation and As the heart of a large city-region the value it brings to nearby sites. entertainment. which spans West Yorkshire, Leeds Conventional accounting models (such • Public investment in space such has seen significant redevelopment as the Treasury’s Green Book) don’t as parks can bring certainty to in its historic centre in recent decades, adequately appraise schemes which have a neighbourhood seeking private including new retail premises and less direct and longer-term economic investment, and a platform for civic residential accommodation. The city benefits. Such schemes are – by definition and cultural events. Maximising centre is itself an engine for increasing – transformational rather than the benefits of major new transport the number and quality of jobs, and incremental, and more sophisticated infrastructure investment requires quality of place is key to attracting appraisal techniques are needed. Leeds long-term planning well in advance. knowledge-intensive industries. is considering using Tax Increment • Current accounting and appraisal While there is a deficit of quality Financing, which it has secured models struggle to accommodate green space in Leeds City Centre, the permission from central government the wider economic benefits South Bank is home to significant to pilot. of transformational public brownfield industrial land and the investments; new innovative planned High Speed Rail station. The investment vehicles are needed Council has created a plan to develop to return value created in future a new City Centre Park, conceived as development phases. a destination in its own right, a catalyst Read more about Tax Increment for regeneration and place-making Financing from Core Cities: on the South Bank, and a means to bit.ly/abouttaxincrementfinancing enhance connectivity. The design will ensure that it is an accessible, safe and secure space that will improve pedestrian and cycling connections to surrounding communities, linking the north and south banks of the River Aire. A wealth of opportunities for public art and cultural attractions will also be generated from the green infrastructure, including a civic event space.

Developing socially productive places 15 Managing growth at scale The Cambridge sub-region Cambridge was referred to during a breakout seminar conference, which considered how to leverage economic growth across city-regions. Full minutes are available at bit.ly/ DevelopingPlacesStrandC

Pushing out the Green Belt has enabled the growth of Cambridge as a dynamic centre of regional economic activity, fulfilling the potential of the University supply and development”.5 The County- busway to Huntingdon, releasing growth of Cambridge and its graduates to level Structure Plan was driven by an capacity outside the city. Cambridge also attract high-value knowledge industries. ambition for growth and quietly moved successfully lobbied for Department for A clear sub-regional vision and the limit of the green belt to release Transport upgrades to the A14 trunk co-operative working have enabled large sites for housing and expand road and its rail station. Further new significant housing and economic growth centres for economic activity such as settlements are being built at Alconbury over the last two decades. This has NW Cambridge around the University and Northstowe and are planned at involved the creation of award-winning campus and the Cambridge Biomedical Waterbeach and Bourn. Approval and new neighbourhoods, densification of Campus around Addenbrooke’s delivery of this form of development brownfield land, and new connections Hospital. Astra Zeneca is planning requires significant coordination and to nearby towns. to develop a new major new research capacity among local government Since the 1980s, Cambridge has facility near Addenbrooke’s, on a former and agencies, and investing political appreciated that as well as providing Green Belt site. capital to overcome objections to rural fuel for the city centre’s social and In the 1990s, planning strategy sought development. cultural offer, the University represents “selective dispersal of jobs away from Increased density development its competitive advantage in attracting Cambridge”. within the city limits makes better industry at a national and global Cambourne was the first relatively use of existing assets and is preferable scale. Cambridge has unique historical large new settlement planned and in sustainability terms, for instance development conditions. It escaped built west of the city. Its attractiveness reducing the need to travel by private WW2 bombing, and post-WW2 and affordability have meant demand car. Redevelopment projects, especially rebuilding, features many listed for social infrastructure from young near the rail station, have been pursued buildings, land at risk of flooding, families (such as school and nursery vigorously. Accordia, for example, and extensive land owned by the places) has exceeded expectations. has won multiple awards. Large-scale University. The City Council, alongside However, employment has not followed, retail redevelopment in the city centre neighbouring South Cambridgeshire creating additional demands on has also consolidated Cambridge’s district councils and Cambridgeshire transport links. Development of stand- role as a regional centre. However, County Council, has been among alone new settlements are often more pressure on travel routes into the city the most pro-active UK authorities infrastructure-intensive (and hence and housing market affordability have in planning for growth. expensive) and remote employment sites not diminished. An international comparative study are less conducive to agglomeration Cambridgeshire now has a co- concluded that Cambridge represents effects – the productivity benefits of dependence between growth in city- “an example of how current policies firms locating near many others another. based employment and housing growth might better be integrated to provide Designated a growth area by central in surrounding communities. Economic an environment for a more positive government, Cambridge secured loans productivity has required housing approach to large-scale continued land and equity shares to build a guided growth. Cambridge and the sub-region

16 have delivered impressive growth by UK standards. Capitalising on the role of Learning points Securing social infrastructure the University, there are wider lessons • Creating momentum for large-scale and sustained business and population growth for other UK city-regions, currently through planning and housing development requires commitment, vision and being explored by the City Growth determination across decades which span election cycles and policy changes. Commission, hosted at the RSA. • New settlements require significant infrastructure co-ordination for regional transport provision and local social infrastructure, and will tend to rely on continued “Per capita, the UK has the best higher- city-centre employment growth, creating transport pressures. Commuting patterns education sector in the world. It’s and housing affordability are signals of whether economic growth is being inconceivable that second-tier cities comfortably accommodated. will succeed without these institutions • Universities will increasingly serve as drivers of economic activity as the economy linking into their local economy: both restructures towards knowledge-intensive industries. Local areas should consider in research and exploits of graduates. graduate retention strategies as a part of economic development, and work with Economic development outside London universities themselves as development partners. should focus on graduate retention. One policy idea is to give students a financial incentive, based on their loans, to stay and work where they study.” Jonathan Portes, Director of the National Institute of Economic and Social Research

provide, and the mutual behaviours and benchmark social networks and people exhibit: both school performance connections among residents of new and the presence of litter are just two developments, allowing an assessment examples of useful indicators. Housing of performance and feedback on “what delivery is already monitored closely by works” in the development planning Adding it all up Local Authorities, but could be extended and design phase. to cover measures such as length of The initiative, supported by Measuring and evaluating socially tenancy, affordability to local residents, Berkeley Homes and tested on large productive places or crowding and space standard. housing developments within their The health of local businesses and portfolio, involves direct survey work Tim Dixon is Professor at their contribution to local life is poorly with residents covering 45 questions, understood; existing measures draw compiled into 13 indicators under the School of Construction on sources such as VAT registrations three broad areas: amenities and Management and or shop vacancy rates. The East End infrastructure (reflecting the design and Engineering, University Trades Guild – as a new organisation service provision of the development), supporting traders around Brick Lane social and cultural life (reflecting how of Reading. His full and Spitalfields in London – surveyed the development works), and voice and presentation is available a sample of its membership to discover influence (the potential to shape the at bit.ly/RSAsummary37 how many customers businesses knew future). by name, number of years of continuous A key driver of the project was the operation, and the proportion of desire to create a standardised toolkit. How will we know when we’ve achieved workers and suppliers who were located Results are benchmarked against social productivity in a place? While in the area. national averages for neighbourhoods economic and, increasingly, environmen- Ground-breaking work is taking which have similar profiles to the tal performance can be quantified, many place to understand how collective housing development in terms of developers, authorities and communities well-being and quality of life is impacted socio-economic and demographic have neglected to develop measures of by development: the infrastructure data.8 There are, however, challenges the social aspect of sustainable places, to support social and cultural life, in controlling for all relevant variable and use this feedback.6 This can be done opportunities for people to get involved, factors: for example, new residents through tweaking existing monitoring and scope for the place and the in a new development may have a regimes, experimenting with alternative community to evolve. different pattern of social and cultural indicators, and using emerging sophisti- New measurement techniques engagement than a mix of existing and cated tools. pioneered by Social Life with University new residents in an established area. Social productivity is supported of Reading7 draw on nationally-collected Communities reproduce themselves by the quality of services institutions well-being indicators to understand over time, often without external help

Developing socially productive places 17 or physical development. This is in part It is clear that high-quality design has a function of turnover or population measurable impacts on the performance Learning points in a given location. In many London of the built environment in terms of • Judge the social productivity boroughs, over 15% of adult residents social productivity. One peer-reviewed of places through independent are refreshed annually by those arriving study showed that the impact of evaluation which quantifies and from elsewhere in the UK and from classroom design accounts for 25% qualifies the experience of the “end across the world. of observed differences in learning users” – residents and occupiers – There is huge value in demonstrating progression.9 Land-use planning across in relation to the “hardware” at their that the experiences of residents a wider scale can also have well-being disposal. using a development can be captured. impacts. For example, behavioural • Significant progress has been This information can feed through psychology evidence in relation to made in developing measures to designers, planners, developers housing choices shows that people over- for health, well-being, economic and investors, and occupants of estimate the positive impact that outside sustainability, civic participation, developments themselves, incentivising space will have on their well-being, and and other outcomes that successful continuous improvement based on the under-estimate the negative impact of development supports. observed outcomes. Such measures extended commuting times. • Be sensitive to the mobility of need to be embedded in public policy In all cases, measuring social populations, and their participation and corporate policy to have influence. productivity is useful when results can in alternative types of community networks including virtual networks Berkeley has committed to carry out a guide investment, planning, design and and identity networks which span social sustainability assessment on every other decisions to improve performance. local geographies and extend site of more than 100 homes, before globally. submitting a planning application. • Data should be publicly accessible and understandable in order to drive decision-making by individuals, authorities and developers.

There are 13 criteria in the Berkeley Homes social sustainability toolkit

C E O Y R MMU S U TIT O T N T C C R E A N I U D NSPO I S A I R T R L L T Y A S A R S C P N A T O A GHBOU R D L L D IS IN C EI F T E N IN K C C N T S I TH IV I U E C W H S NG L D A EI K B T RA ELL N CT W U E LIN A R R LOC AL INTE A

S GRATION L

E

I

F L

T EELIN I I GS O

F SAFE F N T TY

YOU E

E T LA

REE A L M ST E O C B C

T A A I A P C L L S I F A T E A L Y C B O IL A T I T T TI P O E S A S S I D N A E F N L U

NG E I N L C

E WIL V O C E I C E E N A N D I N F L U

18 Developing socially productive places

It has been 36 years since Parliament people in poor places achieve more, Appreciating the timescales involved voted to pass the Inner Areas Bill, which they move out. And when deprived in building community networks is saw significant central government places experience investment and also crucial to successful planning resources go into urban regeneration, improved facilities and amenities, they and development. New developments led by urban development. In the often price out or alienate existing – such as York’s urban extension at 1980s, urban development corporations residents. A social productivity Derwenthorpe – can take a generation to created conditions for private sector approach seeks to understand the plan and deliver, with incoming residents redevelopment in several the inner- potential of places and people through inevitably navigating different networks city areas. 1990s urban regeneration the value of the relationships held in to existing residents. This impacts on companies broadened the focus to networks – which span scales from our ability to measure and evaluate include skills and training, focusing on local to global. social sustainability, but Regent’s Place areas of deprivation. Urban regeneration From the evidence collated for provides evidence that new development became a big industry in itself, and with the conference we have seen that can deliver community benefit for the planning reforms and, later, the whether engaging Birmingham’s existing neighbours. Urban Task Force recommendations, residential communities in We’ve also seen that networks are came a further focus on inner-city neighbourhood plans or developing crucial to the business community, redevelopment. Attempts were made recruitment programmes for major and to the economic vitality of for whole-place approaches through urban regeneration projects such a place. In Leeds and in Cambridge, Single Regeneration Budgets and later as Kings Cross, the appropriate authorities are seeking to make the most New Deals for Communities. geographical scale at which to of agglomeration effects – the powerful What has been consistently neglected engage and coordinate is a crucial productivity benefits which occur from is an understanding of the dynamic consideration, taking into account firms locating near one another. As the and mobile nature of people and the that impacts often spill across economy transitions further to service- networks they form. Often when poor administrative boundaries. sector knowledge industries, city centres

Developing socially productive places 19 and universities will be increasingly “smart cities”. Through a partnership local economic and social benefit. important in attracting jobs. In turn, with crowdfunding platform Kickstarter, A good example of this is the West housing demand is driven by proximity the RSA has supported several projects Euston Partnership which articulated to jobs and the wider qualities of place which strengthen social relations at the needs of the diverse community – including the social amenities and the a neighbourhood scale. These include around Regent’s Place to Camden strength of community networks. Talk to Me, a project to address Council and British Land. isolation and encourage strangers to Applying these approaches is Place-making can come engage in conversation; and New Urban not an overnight job. Managing the from different places Voices, which support young people in forces and harnessing the potential The policy rhetoric of valuing a sense Dundee and Angus to set-up and run of development through planning of place,10 existing assets and local exhibitions showcasing their ideas for requires resources, capacity and distinctiveness does not often reconcile change in their local communities. This coordination. Local authorities have with the culture of development which involves collaborating with experienced a crucial role in using planning and values scale, simplicity, and aspires to designers, artists, and council workers, development to reinforce wider social national and globally recognisable values to design and influence development in and economic objectives. in branding and design.11 The financial their local areas through the design or crisis of 2008 led to a stalling of many re-design of the physical environment development projects across the UK around them, and the way people and highlighted the fragility of relying interact with it. Leaders should consider on corporate financing to change the The examples highlighted suggest the following: physical assets in a place. that all types of developers will require • Planning as a frontline service, From a tumultuous period of recent a wide range of new competencies. which doesn’t exist in isolation from economic history, new approaches to Community-led development approaches other public sector roles which community planning are beginning can be nimble, while large corporate influence how a place functions. to emerge, often led or catalysed by developers can bring significant value, • Investing in planning can bring community groups, and based on a clear leveraging money, resources and value to other public sector expression of values and outcomes. expertise beyond that available locally, objectives, and pro-actively A plurality of approaches is needed. and having the ability to operate at speed strengthen relationships between Some of these, such as Incredible Edible, and scale. Common lessons are emerging developers and incoming people which started in Todmorden in Yorkshire that are important in realising the aim and businesses and existing but is now operating in hundreds of of socially productive places. communities. communities nationwide, deliberately • Developing socially productive bypass bureaucratic processes which First, developers need to get smarter places means supporting local rely on a narrow account of how at engaging with local communities. people to engage with development value is created and maintained. Relationships should be direct, start as as a means of addressing issues The project seeks to turn hundreds soon as possible and then be sustained such as local employment, transport of small plots of land into spaces to beyond the completion of the initial and provision of health and grow food, encouraging ownership and buildings. Developers can get to know education. • responsibility over the environment the needs and aspirations of their local Socially productive places build community capacity to benefit and food supply. communities, at a time when planning from growth, increase resilience Community-led development teams are stretched increasingly thinly to shocks and support people’s can achieve density, flexibility and in most areas. Allocating time and ability to adapt together to new adaptability over time. Hackney Co- resource is a significant investment, circumstances. operative Developments coordinated requiring consistency. A range of long-term public and private sector channels and learning approaches are investment that created new business needed for engagement to go beyond premises with award-winning listening, to informing decision-making This paper provides support for public realm. Co-operatives, public on how the built environment affects the case that planning can provide a private-partnerships, and other a place. worthwhile long-term investment. By forms of asset sharing, have been developers, communities and councils shown to balance private and public Second, communities can benefit working towards a common goal of interests. Most importantly, the act of from consolidating their strength creating socially productive places, development itself is an opportunity in diversity into one voice – and common oppositions can be overcome. for public engagement and building hence consolidate their power to Partnerships forged in the development social capital. communicate effectively. This is not to process can create long-term adaptability The RSA is interested in developing ignore important differences, but where – both in the built environment, and in the concept of “smart communities” different groups collaborate, consensus the social networks which create and – adding a more human dimension to can be reached on how a development sustain local economies. the excitement over technology-driven should be shaped for the maximum

20 Going forward

The RSA – building on existing partnerships with British Land and others – will explore how greater local autonomy and better regional connectivity within cities and city regions can enable more citizens and businesses to thrive economically and socially. We will support place-based public service reform which makes the most of the full range of assets in a place, particularly the creative potential of local people.

Developing socially productive places 21 Further resources

Developing Socially Power Lines uses New Cross in South Our Economic Contribution presents Productive Places East London as a case study, and looks statistics on the scale of economic at networks of power and influence, and impact from British Land activities. Conference presentations in particular those who are isolated in Building Business, Creating Growth the community. Linking local growth with local politics highlights the economic impact which by Daniel Goodwin FRSA, former Chief Community Footprint argues that links development to suppliers across Executive of St. Albans City & District businesses should act as ‘community the UK. Council. hubs’, helping promote social interaction Developing through social enterprise amongst their customers and developing Thought leadership by Kate Swade, Development Manager local action plans to create happier, from Developing Socially at Shared Assets. more resilient communities. Productive Places Heritage Exchange is a project supported participants by Heritage Lottery Fund and the RSA, The RSA Value of Planning presents an analysis and explores how the heritage sector can of the various policy instruments for Shopping for Shared Value considers develop a stronger role in place making. how retailers can adopt a ‘community planners to shape, regulate and stimulate venturing’ approach, enhancing relation- the behaviour of ‘market actors’ (Royal ships within their local community. British Land Town Planning Institute, June 2014). Citizen Power draws on three years Regents Place at 30 provides a reflection Fostering Growth presents ideas for of work in Peterborough improve of the development process at a large strengthening the economic benefits attachment and develop networks central London office development, of planning (Royal Town Planning between people, build local participation highlighting the involvement of, and Institute, June 2014). and cultivate public service innovation. impact on, surrounding communities.

22 Tools to engage and Seeplan is a project of Bengler in measure impact Norway. It looks at how information design and data visualization can Spare Place and Somewhere To each improve access to city planning process. provide a platform to identify under- The Oslo Planning Authority opened up used spaces open to pop-up and 10 years of case history and a series of temporary uses. tools were developed which emphasise Social sustainability toolkit from different aspects of the information. Berkeley Homes facilitates measuring These include 3D illustrations, network community outcomes (see section 3.7). maps, interactive timelines and augmented reality applications. Commonplace is a crowdsourced insight tool for local authorities, property developers and residents. It aims to ensure that communications strategies are appropriate, targeted and effective by listening and responding to the needs of the community at a street-by-street. Working from a smartphone and tablet platform, Commonplace is in use by local authorities, housing associations, property developers and neighbourhood plans and has been shown to increase consultation engagement, reach and diversity at low cost.

Developing socially productive places 23 Endnotes

1. Business, Society and Public Services: 8. T. Dixon and S. Woodcraft, Creating A Social Productivity Framework, the RSA strong communities – measuring social (2012) sustainability in new housing development. 2. Power Lines, the RSA (2011) Town and Country Planning, Nov. pp. 473–480 3. Our Economic Contribution, British (2013) Land (2013) 9. Barrett et al., A holistic, multi-level 4. J. Anderson, Well-being & analysis identifying the impact of classroom Neighbourhood Outdoor Space Provision, design on pupils’ learning, Building and PhD thesis (Cambridge University: Department Environment 59 (2013) of Architecture), forthcoming 10. For example, in the Lyons Review 5. International Review of Land Supply of Local Government (2007) and Planning Systems, Joseph Rowntree 11. P. Jones and J. Evans, Rescue Foundation (2013) Geography: Place Making, Affect and 6. A. Colantonio, A. and T. Dixon, Urban Regeneration, Urban Studies 49 (2012) regeneration and social sustainability: best practice from European cities. Real estate issues. Wiley-Blackwell, Chichester, pp317. (2010) 7. N. Bacon, D. Cochrane, S. Woodcraft and J. Brown: Creating Strong Communities: How to Measure the Social Sustainability of New Housing Developments. The Berkeley Group (2012)

24

The RSA (Royal Society for the encouragement of Arts, Manufactures and Commerce) believes that everyone should have the freedom and power to turn their ideas into reality – something we call the Power to Create. Through our research and 27,000-strong Fellowship, we seek to realise a society where creative power is distributed, where concentrations of power are confronted, and where creative values are nurtured. The RSA Action and Research Centre combines practical experimentation with rigorous research to achieve these goals.

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