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GIZ Keystone Paper 3 – Transformative City

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GIZ Keystone Paper 3 – Transformative City Competence Centre for Climate Change Tailor made training courses on climate change adaptation A cookbook for different formats and target groups TRANSFORMATIVE CITY KEYSTONEKEYSTONE PAPERPAPER 3 3 Competence Centre for Climate Change Tailor made training courses on climate change adaptation A cookbook for different formats and target groups This document is part of five keystone papers looking at current emerging topics in the building and city sector, focusing on energy efficiency and resilience. The keystone papers were developed within the framework of the Sino-German Urbanisation Partnership as a basis for the forthcoming working period and cover following topics: 01 02 03 04 05 Plus Energy Buildings Energy Eciency Transformative Climate Risk Urban Renewal and Districts of Buildings and City Management in Districts Districts in Urban in Cities Renewal Prepared by: Happold Ingenieurbüro GmbH Pfalzburger Straße 43-44 10717 Berlin, Germany 2 Keystone Paper 3 - Transformative City CONTENTS 1. SETTING THE SCENE 10 1.1 TRANSFORMATION OF GERMAN CITIES AND TOWNS 10 1.2 PLANNING PRACTICE AND LEGISLATION – FROM FUNCTIONALISM TOWARDS COMPACT PLANNING PRINCIPLES 11 2. REGULATORY FRAMEWORKS 12 2.1 GERMANY’S URBAN PLANNING LEGISLATION – THE PREREQUISITE FOR URBAN TRANSFORMATION 12 2.2 INTEGRATED URBAN DEVELOPMENT CONCEPTS (ISEK) 13 2.3 PUBLIC-PRIVATE-PARTNERSHIPS THROUGH URBAN DEVELOPMENT CONTRACTS 13 2.4 INTER-MUNICIPAL COOPERATION OF SMALL AND MEDIUM SIZED CITIES AND TOWNS 13 3. FINANCIAL INCENTIVES AND SUBSIDIES 15 3.1 URBAN DEVELOPMENT SCHEMES OF THE FEDERAL GOVERNMENT OF GERMANY 15 3.2 ADDITIONAL PROGRAMMES SUPPORTING TRANSFORMATIVE PROCESSES IN CITIES 17 4. BEST PRACTICE 18 4.1 TRANSFORMATION OF ZOLLVEREIN COAL MINE COMPLEX, ESSEN 18 4.2 LEIPZIG 2020 AND LEIPZIG 2030 PLAN 20 4.3 INTEGRATED URBAN RENEWAL IN THE BOTTROP, RUHRGEBIET 21 5. EMERGING TRENDS 22 5.1 REINDUSTRIALISATION OF URBAN AREAS - SMART MANUFACTURING IN THE POST-FOSSIL CITY 22 5.2 RE-MIXING CITY CENTRES – NEW LAND USE CATEGORY “URBAN AREAS” 22 5.3 SUBSIDISED SHRINKING – GOVERNMENT PROGRAMMES SUPPORTING DISADVANTAGED REGIONS 23 5.4 ENHANCING GREEN INFRASTRUCTURE - IMPLICATIONS FOR URBAN TRANSITION 23 6. DISCUSSION 24 7. REFERENCES 25 Transformative City 3 4 Keystone paper 3 - Transformative City LIST OF FIGURES FIGURE 01: GROWING AND SHRINKING REGIONS IN GERMANY (BBSR, 2017) 10 FIGURE 02: POTENTIAL DEVELOPMENT AND IMPLEMENTATION PROCESS OF AN ISEK (SOURCE: BMU FROM SCHULTEN STADT- UND RAUMENTWICKLUNG, 2016, ADAPTED BY BUROHAPPOLD) 12 FIGURE 02: CITY OF LEIPZIG © J. KAZAH 15 FIGURE 03: ZOLLVEREIN COAL MINE COMPLEX, ESSEN © AVDA 18 FIGURE 02: CITY OF LEIPZIG © LEIPZIG-HAUPTBAHNHOF WEBSTER 20 FIGURE 04: INTEGRATED URBAN RENEWAL IN THE BOTTROP, RUHRGEBIET © X1KLIMA 21 Transformative City 5 6 Keystone paper 3 - Transformative City ABBREVIATIONS BauGB German Building Code (Baugesetzbuch) BauNVO German Land Use Ordinance (Baunutzungsverordnung) BMU Federal Ministry of the Environment, Nature Conservation and Nuclear Safety BMWi Federal Ministry for Economic Affairs and Energy DGNB German Sustainable Building Council EU European Union GHG Greenhouse gas IBA International Architecture Exhibition IKI International Climate Initiative ISEK Integrated Urban Development Concept KfW Kreditanstalt für Wiederaufbau (Germany’s government-owned development bank) NKI National Climate Initiative PPP Public-private-partnership SEKo Integrated City Development Concept Transformative City 7 8 Keystone paper 3 - Transformative City EXECUTIVE SUMMARY Cities are shaped by continuous urbanisation, increasing or European Cities of 2007, highlights the European Union’s (EU) shrinking population numbers, as well as other demographic ambitions to follow a more inclusive, and participatory approach changes. Cities are important economic drivers, and also in urban development and rehabilitation and is the guiding responsible for a large proportion of ecological impacts and principle of recent developments regarding urban planning emissions. Physical transformation in urban environments mainly legislation. occurs in form of renewal, rehabilitation and upgrading. Germany’s Federal government offers a number of subsidy programmes, In the national urban planning legislation, the German Building with many of them targeting inner city neighbourhoods, the Code (BauGB) is the most important regulatory document. It improvement of existing structures, renovation of existing defines legally binding land use management, and regulates area- buildings and blocks, as well as the enhancement of green related requirements for urban development and construction infrastructure and public spaces. projects. Another instrument outlined in BauGB are so called Integrated Urban Development Concepts (ISEKs), utilised by Many large and medium sized cities in Germany experience a shift municipalities for the creation of concrete, long-term strategies in growing or shrinking population numbers. Metropolitan areas addressing challenges in urban development. Urban Development are particularly attractive for newcomers due to their high quality Contracts, municipalities are able to establish public-private- of life, availability of jobs, and a variety of educational, and leisure partnerships and deduct certain municipal duties to private facilities. Besides having potentially positive impacts on urban developers as a precondition for project realisation. For smaller economy, rising population numbers are often accompanied towns and municipalities, the formation of inter-municipal by stress on the housing market and infrastructure, cooperation is an option, to enhance their potential to requiring action by municipalities regarding new realise projects through combined investments. housing construction, and enhancement of public transportation. In contrast, a number of cities located Germany’s Federal government offers a number in Eastern Germany and areas characterised by of programmes providing financial assistance for a declining heavy industry in the West, undergo municipalities to tackle challenges of demographic a transformation in their economic significance and structural change. Every year, Administrative and number of residents. This can result in vacant Agreements on Urban Development are negotiated housing units, derelict industrial sites, and oversized and agreed upon between the Federal and state infrastructures that no longer meet their intended governments, which define the exact amount of financial demand. Sustainable urban development for such transforming assistance as well as thematic focal points and target sectors. cities thus depends on forward-thinking action and targeted In recent years, budgets increased significantly, with the Federal investments to improve attractiveness and liveability. government dedicating 740 million Euro for the schemes in the 2017 period. Urban planning legislation in Germany was heavily influenced by so-called functionalist planning paradigms dating back to the Despite the current shift from an industrial- towards a service- first half of the 20th century. The approach followed the principle oriented economy, new technological innovations allow for of separation of functions, such as housing, working, leisure and other forms of re-industrialisation of urban cores. Manufacturing individual, motorised transportation. Functionalist planning processes emitting minimal amounts of particle matter, with low influenced in particular urban development of the 1950s and noise levels, can be established close to residential areas, and 1960s, resulting in prefabricated large-scale mass housing, and allow for synergies with its surroundings. The most recent land dependency on motorised transportation, and neglect of urban use category of “Urban Areas” supports this trend by providing centres. From the 1970s onwards, subsidy programmes were a statutory framework. Transition of urban centres also allows introduced by the Federal government to enhance the urban for integration of new green infrastructure, by that addressing design flaws of the past. The recent Leipzig Charter on Sustainable ecological, economic and social challenges at once. Transformative City 9 1. SETTING THE SCENE In global and local transformation processes, cities have a key 1.1 TRANSFORMATION OF GERMAN CITIES AND role as dynamic centres of growth. Many contemporary cities TOWNS in Germany and around the world are shaped by continuous urbanisation, increasing population numbers and demographic Besides redevelopment of inner city neighbourhoods, today’s changes. Furthermore, cities are important economic drivers, German cities and towns are confronted with other phenomena while being responsible for large amounts of resource use and of transformation. A number of German cities experienced a swift emissions.1 Urban transformation describes such diverse facets population increase in the past decade. Large cities transforming of change in dense, urban environments. It regards transitions of from an industrial- towards a service-oriented economy are the urban fabric and the built environment, as well as interlinked particularly attractive, due to availability of a broad range of jobs, socio-economic processes and shifts in urban lifestyles.2 Other leisure facilities and accessibility of various forms of transportation. forms of transformation include technological innovations, new In contrast, many cities formerly characterised by traditional forms modes of industrial production (e.g. Industry 4.0), digital and of heavy industry,
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