11-12 October 2007 kvarterloeft Ten years of Urban Regeneration Rikke Hvilshøj Rikke Michael Parkinson On site Workshop On site Tematic Workshop Tematic  RIKKE HVILSHØJ

Kolofon

150 delegates from more than 20 countries attended the Published by: The Ministry of Refugee, Immigration and Integration Affairs International conference on Integrated Urban Regeneration in Edited by: Ellen Højgaard Jensen and Asger Munk Copenhagen 10-11 October Journalists: Gregers Lohse and Peter Burhøi Layout, graphics and production: Johan Fast and Thor Salling Tool-kit This paper outlines the main discussions and conclusions, but more Printed by: Illemann Tryk information, PowerPoint presentations and a list of participants are Translated by: Scandinavian Translators A/S available at: www.nyidanmark.dk Photos: Frederikke Friderichsen Rikke Hvilshøj - preparing for the future

Opening speech by Rikke Hvilshøj, Minister of Refugee, Immigration and Integration Affairs.

Rikke Hvilshøj thereby highlighted two tressed areas in general and ensuring proper The Danish Minister of Integration, important areas, citizen participation and knowledge dissemination, we are also look- Rikke Hvilshøj, opened the International collaboration, which during the conference ing into the possibility of creating a national became two of the most frequently discussed knowledge centre”, added Rikke Hvilshøj. Conference on Integrated Urban subjects. At the same time, Rikke Hvilshøj will Regeneration with a speech that focused Integrated Urban personally enter into dialogue with ethnic on the future of Integrated Urban Regeneration is linked to minorities living in distressed areas. integration of minorities “In the coming months, I will therefore Regeneration. be going on a national dialogue tour to meet For the Danish minister, Integrated Urban the young people in their own environment Regeneration is closely linked to integrating and listen to their views on improving inte- ethnic minorities, as the deprived areas are gration, also locally. I am expecting a great often characterised by having many inhab- deal from this tour and am looking forward itants with different ethnic backgrounds to to embarking on it,” said the Minister of Danish. Refugee, Immigrant and Integration Affairs “This challenge of ethnic segregation must before concluding: “Finally, I want to thank be adequately addressed, or we may end up you for joining me in celebrating Kvar- with divided societies that lack cohesion in- terloeft, which has left its footprint on the stead of societies that profit from diversity,” development of Integrated Urban Regenera- said Rikke Hvilshøj, tracing the many trails tion efforts for many years to come. I wish Kvarterloeft had blazed. you a fruitful conference.” “First of all, the concept behind Kvarter- loeft has been implemented into Danish law. Secondly, there have been measurable social effects in many of the areas, for example with reduced crime rates. Thirdly, people in the areas have gained a more positive image of the areas and feel safer there. Fourthly, we Rikke Hvilshøj can learn from the methods used in Kvar- This challenge of ethnic terloeft. Systematically using quantitative segregation must be he Danish Minister of Refugee, of Kvarterloeft. Some Kvarterloeft plans success criteria to measure the results of the Immigration and Integration Affairs, focused on avoiding more affluent people projects has worked,” said the minister. adequately addressed, Rikke Hvilshøj gave the opening taking over an area, others on attracting resi- Now the Kvarterloeft programme is imple- or we may end up with T menting an exit strategy, but that does not speech at the International Conference on dents with more resources, and yet others divided societies that Integrated Urban Regeneration in Copen- on re-branding their area. But all shared the mean the focus on deprived areas will be hagen. A speech that – as she said herself common trait that citizens play a big role in lost. The National Building Fund, an institu- lack cohesion instead of – marked the end of ten years of urban re- planning in dialogue with experts. Kvarter- tion that has accumulated funds paid by the societies that profit from generation. loeft also meant crossing boundaries in the tenants in non-profit housing over the years, diversity,” The minister began with a brief evalua- governmental and municipal area, as people will give approximately 53 million Euro Rikke Hvilshøj, Minister of until 2010 to integrated urban solutions and tion: had to step outside their administrative and Refugee, Immigration and “Since 1997, twelve quite varied areas professional sectors and make a commit- social projects. “As the Danish Government from all around Denmark have been part ment to work together.” has the responsibility for monitoring the dis- Integration Affairs  MICHAEL PARKINSON “20 years of experience in 20 minutes”

Lecture: “Integrated Urban Regeneration in Europe – messages from Kvarterloeft” by Michael Parkinson, Professor, CBE, and Director of the European Institute for Urban Affairs.

Professor Michael Parkinson knows everything there is to know about Integrated Urban Regeneration. In 20 minutes, he summarised 20 years of experience in a lecture that focused on Integrated Urban Regeneration in the past and how to make it even better in the future.

ichael Parkinson, Professor, CBE, Michael Parkinson and Director of the European In- stitute for Urban Affairs, outlined M tween collaboration and competition. know that. Cities are the engines of competi- gone down and perceptions of the communi- this precisely some way into his lecture, which laid the foundation for two days’ “There is a paradox of collaboration and tiveness, they know that social exclusion is ties have become more positive. The social intensive professional discussions at the In- competition between cities. They work a drain on European competitiveness. They mix has been shifted and some of the visible ternational Conference on Integrated Urban together but at the same time compete for know a lot of social exclusion can have ma- social problems have been reduced,” said Regeneration in Copenhagen. investments, growth and people.” jor consequences for Europe. It’s a European Michael Parkinson before spelling out the Michael Parkinson’s speech, delivered At the same time, the view of cities has problem, not a national problem.” issues and questions Kvarterloeft has raised from the platform in Eigtveds Pakhus’ grand generally changed. Yet although Integrated Urban Regenera- that the conference could usefully answer: hall, cut to the quick with the precision of a “The cities are not dragged by national tion has gained ground in the EU, there are “The issues raised for the future are what scalpel: and regional economies. They are drivers still relevant critical objections to it. cost benefits collaboration? How to collabo- “So what about our conference on Inte- of national and regional economies. Now “There are pros and cons. Should we be rate? How to motivate and involve citizens? grated Urban Regeneration? Is it desirable? you recognise that cities are assets to be taking this kind of action and looking at How to make it accessible to citizens? How Yes. Is it possible? Yes. Does it work? Yes. built upon as opposed to basket cases you small places with different problems. You to strengthen social cohesion? And how can Is it transferable? Yes. Must we try? Yes. Is pity. But at the same time social exclusion is go to one place, do the job and then move. we strengthen good practice? And I think it easy? No.” growing,” said Michael Parkinson. When you focus on one place, a lot of people the big issue is the boundaries for Integrated Hopefully, the 150 participants from 20 are excluded. Don’t they need attention? At Urban Regeneration. Is it the whole city, different countries could do it a little easier. What experience has been the same time it creates dependency. Some parts of the city or beyond the city, beyond “You’re getting 20 years of experience in gained from Integrated Urban people will say that the problems are found neighbourhoods? I think that neighbour- 20 minutes,” said Michael Parkinson. Regeneration in Europe? in that area, but the solutions are not. The hoods are not quite the scale for the future,” real problems are economic, the jobs aren’t said Michael Parkinson before pressing on The participants could consider themselves “How did we get to here?,” asked Michael there, but somewhere else. That’s the down- with the last two Powerpoint slides: warned. Parkinson rhetorically and described pre- side,” said Michael Parkinson and continued Under the heading “Integrated Urban cisely how Integrated Urban Regeneration with the pros: Regeneration in Europe: Messages from has developed in Europe: I LOOK FORWARD TO “On the other hand, working in one place Kvarterloeft”, Professor Parkinson defined “I know that Athens is not Stockholm. Dif- HEARING REPORTING BACK means you really can make a difference. Sec- five focus areas: What is happening in Eu- ferent cultures, different traditions, different SOME GOOD ANSWERS ondly, we have seen it can address market ropean cities? What experience has been histories. They are different. There is no failure. Thirdly, I think you increase capital gained from Integrated Urban Regeneration single European model. We know all that.” and social capacity. Fourthly, you need to in Europe? What worked in the UK & EU? “But there has been convergence on link small excluded areas to the mainstream What worked in Kvarterloeft? What about principle. I was thinking of the last decade economy. Again, it makes a difference.” our conference? partly because of Kvarterloeft. We have been pinching ideas from each other. There Is it desirable? Yes What worked for Kvarterloeft? What is happening in has been convergence on principle about Is it possible? Yes Having outlined the Integrated Urban Re- European cities? what different things might do. At the same Does it work? Yes Michael Parkinson started by saying that the time, national governments are encouraging generation at a more general level, Michael key trends in European cities are globalisa- it. But what’s really driving all this as usual Parkinson moved on to the Danish Kvarter- Is it transferable? Yes tion, economic technological restructuring, is the cities themselves. They are doing it,” loeft project, which he described as a suc- Must we try? Yes cess. competition between firms and places, and said Michael Parkinson. Is it easy? No” welfare state restructuring and marginalisa- But why is the EU interested in Integrated “There have been a lot of physical im- tion. Urban Regeneration?” asked Michael Par- provements in these communities and al- Michael Parkinson on These key trends have different conse- kinson. though these places remain poorer than other Integrated quences. Especially in the relationship be- “Cities drive regional economies. They places, incomes have improved. Crime has Urban Regeneration  PANEL DEBAT “Urban integration development is easy to say, hard to do”

The panel Jean-Loup Drubigny, France, Director of the URBACT Secretariat Mart Grisel, the Netherlands, Head of the EUKN Secretariat Asger Munk, Denmark, Head of the National Programme for Urban Regeneration Professor Dr. Jan Vranken, Belgium, Research Unit on Poverty, Social Exclusion and the City, University of Antwerp

How do you achieve successful Integrated Urban Regeneration? Which urban projects have been most successful, and what challenges lay ahead? These three questions were the focal point for the conference panel debate that gave colleagues from all over the world the chance to be heard and learn about Integrated Urban Regeneration. Asger Munk

hat is Integrated Urban Regen- Clear goals and focus areas and the right experts, otherwise it won’t work,” said As- eration? If you ask a man on indicators for evaluating urban integration ger Munk. Wthe street, he probably wouldn’t programmes were two of Jan Vranken’s know. But ask the leading experts in the area most important points. Regeneration takes too long – and well, they wouldn’t know either. At Jan Vranken also highlighted the necessity The panel’s third participant, Mart Grisel, The major challenge is to least not all of them. Because only a few of of good connections between the civil soci- from the Netherlands, talked about the built get distressed urban areas the 150 participants felt sure about the an- ety and decision makers. environment. He pointed out that there are swer when moderator Greg Clark asked the “You must organise participation from still many obstacles when discussing “the into social contact with the participants at the conference panel debate people who live in the area where urban de- good examples” rest of the city.” about this issue. velopment is taking place. This increases the “Urban integration development is easy Asger Munk “Then do you think it works?” asked the chances of taking initiatives that empower to say, hard to do. For example, when we moderator, in top form. He is an adviser on the people,” was Jan Vranken’s message. ask the various EU countries to tell us about urban regeneration for the British govern- Asger Munk from the Danish Ministry of their best practice examples, there are still jobs, both inside and outside the areas where ment and OECD. Refugee, Immigration and Integration Af- many problems linked to them,” explained urban regeneration is needed. For example, Half of the hands in the audience went up. fairs was another panellist. As Head of the Mart Grisel. if you ask people to get a job that is five ki- “But is it important?” asked Greg Clark National Programme for Urban Regenera- He also stressed the need to remember to lometres away, you must ask yourself what finally. tion, he also believes that residents are the align expectations with reality. transport options are available,” he empha- Just about everyone thought so, judging by key to the success of Integrated Urban Re- “We often see that urban renewal projects sised. the show of hands. generation. take between 10-15 years. This means that The stage was now set on the first confer- “A very important factor is that you don’t people do not always see the results of their No manuscript prepared in ence day on 10 October in Eigtved’s Pakhus simply look at an area and residents as a work,” explained Mart Grisel. advance in inner Copenhagen. In just half an hour, the problem, but also as a resource. Or you will The panel’s last participant, Jean-Loup Then the debate began. Volunteers could 150 participants from 20 different countries begin to stigmatise the whole neighbour- Drubigny, from France, talked about econ- suggest what makes Integrated Urban Re- were to suggest critical factors for the suc- hood,” Asger Munk pointed out. omy and education. He said that the key to generation a success. Torkil Lauersen from cess of an urban regeneration intervention. And stigmatisation must be avoided by successful Integrated Urban Regeneration the Kvarterloeft project in Nørrebro Park meeting the residents eye-to-eye, so that the is to look at the financial and work-related pointed out that experience shows the design Public participation is vital Integrated Urban Regeneration projects also aspects in the areas affected. For Drubigny, for public participation should be precise but The panel debate’s four speakers were the become their projects. it is vital to do something about the low eco- not too detailed. first people that moderator Greg Clark ad- “In concrete terms, you must invite people nomic activity and the high unemployment “In Nørrebro Park, the participants them- dressed: What is Integrated Urban Regen- to join in so that they feel part of the plan- that usually characterises such places. selves helped to develop the neighbourhood eration? Professor Jan Vranken began: ning. But the citizens must be in dialog with “You must promote access to potential plan. In our opinion, it was a success because  PANEL DEBAT

The future challenges identified by the panel

- Creating social cohesion Greg Clark - and acknowledging that social cohesion sometimes leads to social exclusion. people don’t like taking part in a play where Public/private collaboration (Jan Vranken) the manuscript is written in advance,” said Mart Grisel, from the Netherlands, saw it as Torkil Lauesen. a challenge in itself to retain the integrated - Managing the social and John Clark from Burngreave New Deal for approach but also emphasised that one deci- spatial aspects of new popu- Communities, England, agreed. sion influences another. lations moving into cities. The former Danish minister Sonja Mik- You must promote “Urban Policy is a bit like a water bed. (Jan Vranken) kelsen from the Danish Urban II programme When you push one side, the other side in Aarhus defined public participation as a access to potential jobs, moves too. The same applies when you im- - Promoting contact be- critical success factor. both inside and outside plement an initiative in one area, as it also tween distressed urban “They must do something. They must take influences developments in the surrounding areas and the city as a whole. the initiative and take charge of projects. the areas where urban areas,” said Mart Grisel. (Asger Munk) That promotes public participation and em- regeneration is needed. Jean-Loup Drubigny from France had the powerment,” she said. For example, if you ask honour of summing up the debate, which he - Integrating climate changes people to get a job that did by highlighting that “The flows of emi- (Asger Munk) Avoid stigmatisation gration” were a major challenge in the years is five kilometres away, The audience also suggested successful pro- ahead. He also warned about leaving Inte- - Maintaining the integrated grammes. And they came to the fore when you must ask yourself grated Urban Regeneration exclusively to approach as the point of Greg Clark called for suggestions and it was what transport options are private companies. view. (Mart Grisel) simply a matter of taking the microphone. “We must mix private and public-sector available.” That was what Raymond Young from Scot- investments. We cannot allow investments - Encouraging awareness of land did. Jean-Loup Drubigny, Director to be exclusively private because that has areas surrounding regenera- He told the conference about an area in of the URBACT secretariat gone horribly wrong in the past,” Jean-Loup tion areas. (Mart Grisel) Scotland that had been so stigmatised that Drubigny emphasised. potential job applicants were rejected if they He also pointed out that if people move - Continuing work on said they lived there. benchmarks, and exchang- “We destigmatised the area by starting a from areas that have been through Inte- grated Urban Regeneration, it is not neces- ing experience with projects marketing programme that showed people both in Denmark and abroad. were quite normal, even though they lived sarily a sign that the programme has failed. (Jean-Loup Drubigny) in the neighbourhood. The private sector re- “Shouldn’t we all have the possibility to sponded by offering people jobs,” explained move to live where ever we want?” Raymond Young  TEMATIC WORKSHOP How to make people participate

Who, what, where? Thematic workshop: Social exclusion, empowerment and citizen participation. Speakers: Annika Agger, Ph. D., Roskilde University, and Professor Dr. Jan Vranken, University of Antwerp, Belgium. Moderator: Lykke Leonardsen, Copenhagen Municipality.

Citizens who participate in Integrated Urban Regeneration projects are often too few and much too similar. But is this really a problem? The answer from the participants at the “Social exclusion, empowerment and citizen participation” workshop was a clear “yes” – because without a palette of different interests, creativity and legitimacy disappear.

he thematic workshop on social educated into becoming more active and exclusion, empowerment and citi- aware members of society through such a Tzen participation really hit the spot. process. For example, they learn to organise Throughout the conference it was clear that and they create networks. one of the themes closest to the participants’ “But is it a problem that only a few and hearts was how to get local residents to join very similar citizens take part in projects in Integrated Urban Regeneration projects. such as Kvarterloeft?” asked moderator The first speaker, Annika Agger, who has Lykke Leonardsen. written a Ph.D. thesis on the residents’ Kvar- “The number of participants depends on terloeft experiences, explained this in more the problem being solved,” said Eva Sø- detail. “But first it was important to define rensen, Professor at Roskilde University: “If who we are talking about,” she said. Kvarterloeft is seen from a democratic per- “Many different labels have been used spective, it is a problem that few participate. for residents in the Kvarterloeft projects. If you see it from the government’s perspec- For example, they have been described as tive, it may not be a problem if the problems courage citizen participation,” added Torkil planners and politicians must be better at participants, citizens, recipients, residents, in the areas are solved,” she said. Lauesen from the Nørrebro Park Kvarter- acknowledging this.” users, etc. But various expectations and at- “More could easily have been done to en- loeft project. titudes are associated with these different “I would have liked to do more about labels, and it is therefore important to clarify preparing residents’ meetings, which should how you see citizens in the process, and what be more entertaining in order to attract more citizen participation actually involves,” said people.” Five points Annika Agger. In her thesis, Annika Agger concluded that Necessary conflicts 1. Conflicts can be produc- citizen participation also involves excluding If Kvarterloeft is seen from Myrèn Trond from the Bjerke District in the tive and must not by defini- some citizens, whereas resourceful citizens a democratic perspective, City of Oslo explained that if you want more tion be avoided. are favoured. It is therefore important to use it is a problem that few citizens to take part, it is important to have many different approaches if you want many participate. If you see it conflicts that encourage participation in resi- 2. It is important to focus on different citizens to participate,” she pointed dents’ meetings. “Their problem is that there out. from the government’s what is expected of the citi- are no conflicts. Those who are involved zens in terms of participation, perspective, it may not be do not like objecting to some of the project Citizens learn by getting in- and important to be aware a problem if the problems ideas, so few citizens attend and a creative of the labels given to citi- volved process does not materialise.” in the areas are solved.” zens, as they tend to define Professor Dr. Jan Vranken then took the “That can be a problem,” said John Ander- the citizens’ engagement. floor. Jan Vranken thinks that the benefit of Professor Eva Sørensen, sen from Roskilde University. citizen participation is that citizens become Roskilde University “Conflicts can help to mobilise people, and 3. The form of participation must be in focus. Alternative ways of involving people must be thought up to gain the benefit of people’s vari- ous resources.

4. It is important to have good cooperation between the various levels – state, municipality, local institutions and citizens.

5. Both the state and citizens can gain something from the process – management and empowerment.  TEMATIC WORKSHOP “Inform me, and I will forget, activate me and I will participate”

Who, what, where? Thematic workshop: Transfer of knowledge and best practice Speakers: Dr. Gill Taylor, Chief Executive of the Academy of Sustainable Communities (ASC), UK, and Jean-Loup Drubigny, Director of the URBACT secretariat, France. Moderator: Sonja Mikkelsen, former of the Minter of Health and Transport, Manager Danish Urban Project.

How do you trans- fer knowledge and best practice? One thing is certain: A homepage or pam- phlet does not work alone. Practitioners and experts need to meet face to face, as the participants of the “Transfer of knowledge and best practice” work- shop pointed out.

r. Gill Taylor, Chief Executive of the tariat, added: One of the participants from Forstadskon- Sustainable Communities (ASC), “Language is very important. If people sulenterne (suburban consultants) in Den- opened the “Transfer of knowledge don’t speak English, they can’t communi- mark pointed out that when discussing best D Six points and best practice” workshop with a series of cate with each other. And it is very important practice, you should take care not to transfer questions: that people meet each other. You learn when the initiatives directly: “How can other people have access to best you meet people. You don’t learn when you “There are different cultures. It’s about talk- 1. Every EU fund/programme practice? How do we make it more open? read books or websites.” ing the same language if you want to learn. should bring in European How do we get information, which we think Not only implementing the same practice as knowledge. is out there?” Is it possible to transfer other places, but understanding why they are And later, when the debate had started, she knowledge? implementing it and how you can transfer it 2. Make sure there is a common source of skills answered herself: Generally, the participants agreed that to your own context.” used to educate all people “Practioners don’t want to go through knowledge is transferred best from mouth to working in neighbourhoods. websites. They want face-to-face communi- mouth and face to face: Common understanding cation.” “Face-to-face transfer of knowledge is about how we are working Before this, Gill Taylor had specified why what gets the message across because you to involve citizens. Common the transfer of knowledge and best practice can aim it, and people can take what they is important: To improve professional prac- source of knowledge. want and ask more questions,” said Cecilie You learn when you meet tice by providing relevant knowledge and Bredenfeldt Matzen from the Copenhagen 3. Face-to-face transfer. skills, to use evidence to influence policy Municipality. people. You don’t learn Especially for citizens and at a national level and to provide informa- “Inform me, and I will forget, activate when you read books or politicians. Cross-cutting tion for teaching and learning materials for me and I will participate,” added Andreas websites.” demand: Access to face-to- practitioners,” she said and gave a number Schubert from the Hanseatic City of Ros- face transfer. of recommendations: tock. Jean-Loup Drubigny, Director You should improve accessibility for busy However, Jean-Loup Drubigny also advo- of the URBACT secretariat, 4. Knowledge transfer must practitioners, provide cutting-edge best prac- cated that we remain realistic: France be demand driven. Cross- tice and innovative methods of learning, link “You must be realistic about what can be cutting demand. together existing knowledge and expertise, organised. Training doesn’t have to be in- interpret quality, target knowledge and ex- ternational. It is possible to train people at 5. Peer review as a method. pertise, develop best practice examples from a national level. You have to convince the Common source. abroad and support exchange of information government that this is important, and that and expertise. we can bring good skills,” said Jean-Loup 6. Bottom-up perspectives. The workshop’s other speaker, Jean-Loup Drubigny. Drubigny, Director of the URBACT secre-  TEMATIC WORKSHOP

Integration means “equal opportunities for everyone”

Who, what, where? Thematic workshop: Ethnic integration. Speakers: Ramanan Balasubramaniam, Consultant, Denmark, and Gunvor Christensen, Ph. D. student, Denmark. Moderator: Kay Jokil, Manager of the Urban Regeneration Project in Vollsmose.

a good living from being a carpenter, or a is therefore important to review how we How do you get immigrants to participate social and healthcare assistant,” Ramanan think about integration,” said Gunvor Chris- on an equal footing with others in Balasubramaniam explained. tensen. Efforts to encourage immigrants to get an Several warnings were given not to think integration projects? You must start by education must also be focused. Because of immigrants as one group. Because the statistics show that more immigrant girls minorities differ a great deal. understanding that immigrants do not than boys get an education. However, the “Some groups of immigrants do well in comprise one group, and that different opposite picture was revealed when looking terms of education and work. But unfortu- at the employment rate. nately, others do very badly,” said Ramanan methods must therefore be used to “In many cultures, traditionally girls stay Balasubramaniam. at home, even though they have educations. encourage them into the process. We must do something about this. Yet that is not easy because this problem is firmly em- bedded in the private sphere,” said Ramanan f integration is to be strengthened, vol- minorities. This could, for example, involve Balasubramaniam. unteers are needed from among the eth- arranging cultural activities,” said Gunvor The issue of involving immigrants more in You can either start Inic minorities themselves. However, it Christensen. society also affected the subsequent discus- is difficult to find suitable volunteers among Ramanan Balasubramaniam, the work- sion. initiatives aimed at the immigrants, and ethnic Danes lack the shop’s other speaker and Consultant for the Kay Jokil, Manager of the Urban Rege- involving ethnic minorities. knowledge of language, culture and religion Ministry of Refugee, Immigrant and Inte- neration Programme in the Odense neigh- necessary to motivate immigrants to partici- gration Affairs, had something to add: “But bourhood of Vollsmose, believes that many These should focus on pate more in society. community initiatives cannot stand alone. immigrants actually do take part in many bridging, with clear This quote came from Ph.D. student Gun- Integration will succeed only if the vast ma- activities in their local communities. expectations concerning vor Christensen at the ethnic integration jority of immigrants gain an education. The “Many ethnic minorities network and or- workshop. young minorities have low rates of employ- ganise themselves more than Danes. They the result. Or you can The Danish Kvarterloeft programmes are ment and education. At the same time, they just do so in their own clubs and societies,” make the project content an attempt to break down the barriers and are twice as likely to drop out of education said Kay Jokil. interesting to a defined improve living conditions. But who and than ethnic Danes,” he explained. But what does integration actually mean? what should the projects target? Gunvor He pointed out that immigrants and their According to Gunvor Christensen, it means group of ethnic minorities. Christensen gave her own suggestion: parents often hold onto old images of what creating equal opportunities for everyone. It This could, for example, “You can start initiatives aimed at invol- makes an education good or bad. should certainly not be assimilation, as such involve arranging cultural ving ethnic minorities. These should focus “We must encourage immigrants and their an approach would make immigrants feel on bridging, with clear expectations about parents to understand that medical school or more alienated. activities.” the result. Or you can make the project con- engineering are not the only right choices. “It is no use forcing immigrants to take Gunvor Christensen, Ph.D. tent interesting to a defined group of ethnic They must understand that you can earn part in Danish systems in a Danish way. It student  TEMATIC WORKSHOP Integrated Urban Regeneration requires strong leadership

Who, what, where? Thematic workshop: What is needed to create successful Integrated Urban Regeneration? Speakers: Thomas Franke, Researcher and Consultant at Deutsches Institut für Urbanistik (DIFU), Germany, and Professor Dr. Uwe-Jens Walther, Institut für Soziologie Fachgebeit Stadt – und Regionalsoziologie, Germany. Moderator: Dan Mogensen, Head of the Urban Regeneration Programme for Copenhagen Municipality.

For ten years, we have been trying to answer the workshop’s main question: What is needed to create successful Integrated Urban Regeneration? Some of the code words are networks and a combination of bottom-up and top-down – spiced up with a large helping of political enthusiasm and courage.

Resource pooling – both between private and public-sector players and internally in the public sector – is important. Public par- ticipation at various levels – activation, par- ticipation and empowerment – is important. And the projects must be network-oriented, according to Thomas Franke. One workshop participant pointed out that although it is a matter of creating empo- werment among local residents in the area where Integrated Urban Regeneration is in progress, you must take care not to simulta- neously manipulate them. The workshop participants also concluded that political courage and risk taking are important. “The quality of leadership of the local and national government is very important,” stated Michael Parkinson – a point he re- peated several times during the course of the two days. But Dan Mogensen, Head of the Urban Regeneration Programme for Copenhagen Municipality also established that you must be realistic. “There are problems that a local project can’t solve; it is a question of defining which problems Integrated Urban Regeneration can deal with,” said Dan Mogensen.

Four points

1. Political support is impor- tant. Political courage and risk taking are important – having the guts to make room for local autonomy.

2. Local management. They hat will it take to create successful In his speech, his colleague, Thomas Fran- make things happen. It Integrated Urban Regeneration? ke, Researcher and Consultant at Deutsche is important that they are The question – like the answer Institut für Urbanistik (DIFU), pointed out supported by the political W and administrative system. – is comprehensive. No doubt about that. the need to work with networks and involve The workshop’s first speaker, Professor The quality of leadership citizens at various levels. Do they have the tools to do Uwe-Jens Walther, from Germany, therefore of the local and national “It is necessary to have an area-based focus the job? drew attention to the fact that the question that can form the basis for defining poten- has been the subject of discussion for the government is very tials and problems. It can also form the basis 3. Who is in charge when past ten years. important.” for communicating and creating cooperation asking questions, defining Professor Walther began by briefly outlin- Professor Michael Parkinson between various local players,” said Thomas weaknesses, solutions? ing the European experience gained to date: Franke. Both multi-level policies, multi-sectoral He then listed four points that are important 4. Long-term projects create policies, bottom-up and top-down approach- No one at the workshop tried to conceal the when creating successful Integrated Urban tensions between having es are needed to create successful Integrated fact that if Integrated Urban Regeneration is Regeneration. An area-based focus is im- time to solve the problems in Urban Regeneration. to be successful, it requires political cour- portant that can form the basis for defining the areas, and the politicians He also emphasised the need to be very age: potentials and problems while creating the and citizens, who often have specific in relation to public participation “The policy in place needs to be changed as foundation for communicating and creating shorter time perspectives. and partnerships. much as the areas,” said Uwe-Jens Walther. cooperation between various local players. 10 TEMATIC WORKSHOP New architecture must focus on life between the buildings

Who, what, where? Thematic workshop: The role of architecture. Speakers: Helle Søholt, Architect MAA Partner Gehl Architects, Denmark, Oliver Schulze, Architect RIBA, Urban Designer, Gehl Architects, Denmark, and Louise Kielgast, Anthropologist, Gehl Architects, Denmark. Moderator: Raymond Young, Adviser on Danish Integrated Urban Regeneration.

Architects must involve citizens right from the start and must also take into account social and economic factors in the areas where integrated urban regeneration is to take place. These were some of the points made at the workshop on architecture.

Architecture is about creating places. to look at building culture as more than Citizens must join in of public participation is timing. First the And the physical changes can change simple architecture. This means construct- But who will you involve in the process and citizens are involved and then the profes- “people’s perceptions of a place, but ing an environment and managing it. how should it happen, precisely? sionals can take over more,” she added. also of themselves.” And there were plenty examples of this: According to Louise Kielgast, an anthro- These were the opening words from Melbourne was described as a unique ex- pologist who works for Gehl Architects, moderator Raymond Young, who has been ample of a city that had changed from being citizens prefer to be involved at the begin- an Adviser on Danish Integrated Urban a city that was only alive during working ning of a project, because they can help to Regeneration. hours from 8 a.m. to 5 p.m. to being alive shape the vision and strategy for developing However, physical changes in the around the clock. the area. landscape do not automatically lead to Bogota in Columbia was highlighted “The architect’s role then becomes more improved economic and social conditions for its work on improving infrastructure, of a filter for the ideas that citizens put as was generally thought in the 80s. Today, the environment and life in the city by forward,” explained Louise Kielgast. One of the most impor- social and economic factors are incorpo- building parks and cycle paths. And Sankt But should the architect simply do what tant tasks is to create rated into the project even before it kicks Hans Torv in Nørrebro in Copenhagen was the citizens say without adding anything space where people can off, according to Raymond Young. recognised for its high quality in creating a personally? Yet architecture is more than just the public space. “No,” said Louise Kielgast, “because the meet, and develop pub- physical building itself, according to Oli- “One of the most important tasks is to architect’s specific competencies come into lic spaces – integration is ver Schulze and Helle Søholt, workshop create space where people can meet, and play in the design process itself. The archi- possible when different speaker and architects at Gehl Architects in develop public spaces – integration is tect knows how the citizens’ visions can be Denmark. possible when different people meet,” said realised in the design. people meet.” Life between the buildings is at the heart of Oliver Schulze. “The most important factor in the process Oliver Schulze, Gehl Architects today’s academic tradition. It is important 11 Lecture Managing networks – in a democratic way

Lecture: “Managing networks – in a democratic way” by Professor Eva Sørensen, Roskilde University

a process that focuses much more on prob- thing the political and administrative system where no networks exist,” said Eva Sørensen Governance lems. We need to find the problems in these needs in order to solve the problems. It’s all and sent out a plea to politicians: “Politicians networks in areas before we have a chance of enhancing about making the locals into co-governors,” must improve the capacity of society to cross-sector policy making. One of the weak said Eva Sørensen. govern itself. That’s the main objective for Integrated Urban points in the public sector today is that we But do we need to govern governance net- public administrators and politicians today compartmentalise it. But problems are not works? if they want to enhance the ability to solve Regeneration divided into sectors. We need cross-sector “Now I’ve been talking about how fantastic problems,” said Eva Sørensen. projects transform solutions. This is what area-based initiatives networks are,” Eva Sørensen continued: make possible,” said Eva Sørensen. “But all these benefits are only potential. societal actors Yet area-based regeneration does not sim- We have had this dream for too long about ply involve citizens, but also businesses, the civil society emerging by itself. No way. into engaged co- NGOs and local public institutions in all We need to govern networks. There is no governors. But sorts of governance processes. negative relation between top-down gover- “Today we talk a lot about activating citi- nance and bottom-up governance,” said Eva that doesn’t mean zens when solving problems. But we should Sørensen. that they shouldn’t also focus on different kinds of actors: Or- Governing something that is autonomous ganisations, different local institutions and may sound illogical. But it is possible, ac- The benefits of be governed firms. In area-based initiatives we have an cording to Eva Sørensen. opportunity to involve all those people who “We all know framing and managing by governance networks? by the political normally don’t get much say. That is impor- objectives. You can also design the insti- tant.” tutional setup of what’s going on. You can - They transform societal system, according But before continuing, Eva Sørensen steer by incentive through different kinds of actors into responsible and to Professor Eva wished to clearly define governance -net funding schemes. You can construct stories engaged co-governors works: and facilitate networks by building networks (everyday makers and sub- Sørensen from “It’s a group of interdependent but opera- elites) tionally autonomous actors who act together Roskilde University. in order to reach negotiated goals that fit into - They help to inform and a wider scheme and a larger process of pub- qualify policy goals fter a panel debate and five intensive lic governance. What I’m talking about here workshops, Professor Eva Sørensen is a group of stakeholders from different or- - They produce ownership from Roskilde University had the We have had this dream A ganisations and sectors. It’s very important that enhances policy imple- honour of summing up the first day of the for too long about the because they come with different resources, mentation conference. She did this by defining one of not the same,” said Eva Sørensen. civil society emerging by the most important subjects of the day – in- “But why are governance networks so - They provide a tailor-made volving the public and other interest groups itself. No way. We need to important? organisational framework in Integrated Urban Regeneration projects govern networks. There “They transform societal actors into re- – in theoretical terms. sponsible and engaged co-governors. I use is no negative relation - They bring differences But before Eva Sørensen went on to talk this term co-governors because this separa- together to promote in- about governance networks, she began by between top-down gov- tion between local democracy and those novation (bonding leads discussing why area-based regeneration is ernance and bottom-up who govern is very dangerous. Why are to conservation, bridging so important. we involved, why do we engage all these governance.” produces change) “I think that one of the things we need is people? Because these people have some- Professor Eva Sørensen

Eva Sørensen 12 on site WORKSHOP in holmbladsgade Architects and residents debating to and fro: Here lies the creative potential

Who, what, where? On-site workshop: “The role of public space and architecture”. In Holmbladsgade, Copenhagen. Moderator: Kai-Uwe Bergmann, Architect at the Bjarke Ingels Group Speaker: Thomas Christoffersen, Project Manager

Important – but difficult took out a Holmbladet newspaper that had The day ended in the Maritime Youth House, been made to inform and invite residents to another of the neighbourhood’s architectural join the debate. He began to flick through it landmarks, where Kai-Uwe Bergmann, who and read the articles aloud and commented has worked in both Canada and the USA, fo- afterwards: cused on how to involve locals in projects. “Holmbladet is one of the most important “It’s all about communication. Communi- structures if you are considering doing these cating the intentions and communicating in kinds of things in your own cities. How to an open dialogue with the citizens to allow let people know what is going on. How to let them to feel like a part of the process.” them know about the successes and so on.” But that is easier said than done according to Sidsel Andersen from The Bjerke District in the city of Oslo, Norway: “Often the architectural practice has been very closed. Maybe you should incorporate the communication part into the architects’ education programmes, so they are more able to have this dialogue with society. Too often the big discussions come afterwards.” Holmbladet is one of the Thomas Christoffersen, the architect for Kvarterloeft in Holmbladsgade, agreed but most important structures saw progress all the same. if you are considering “You’re right. When work on Holmblads- doing these kinds of gade began in 1997, architects weren’t gen- erally very experienced at having a dialogue things in your own cities. with residents. But step by step they have How to let people know become more open.” what is going on. How to Like Sidsel Andersen, Dan Mogensen, Head of the Urban Regeneration Programme let them know about the Thomas Christoffersen Prismen Holmbladsgade for Copenhagen Municipality, has worked successes and so on.” with less attentive architects. So he also sent Architect Kai-Uwe Bergmann out a plea. How do you get local residents involved “I think architects should see the creative potential in it also. It’s not just irritating and when new architectural landmarks are extra expenses. I think that the Kvarterhuset added to a neighbourhood? At the on-site has become fantastic because of the process. The architect Dorthe Mandrup might not say workshop in Holmbladsgade, there were that. We’ve seen projects that start with the architect or developer, but get some good re- many ideas - and most people agreed: sistance that makes them rethink the projects. The architects and the municipality need to And the outcome is better for everyone.” listen to the residents – because this is the Normally it’s top-down . While all the participants agreed unani- source of creative potential mously that it is important to interact with the residents when building new architec- olmbladsgade was once a densely gade. tural landmarks in a neighbourhood, Annette crowded working class neighbour- Under the heading “The role of space and Kristensen from Helsingør Municipality in hood with industry side by side architecture”, Thomas Christoffersen fo- H Denmark was a little worried about the fu- with housing and few public spaces where cused on how they had managed to get local ture: the residents in and around Holmbladsgade residents involved in the process when new “I’m very concerned about how you can could spend their leisure time. architectural landmarks were added to their use the experiences from these projects, be- But “once upon a time” in Holmbladsgade neighbourhood in Holmbladsgade. cause the rest of the municipalities don’t do is a long time ago. The participants were to see more ex- what’s been done here. Normally – also in When the on-site workshop participants amples. From Kvarterhuset, the tour moved Copenhagen – you don’t ask the people first. arrived at their first stop, Kvarterhuset (the along Prags Boulevard – a former “dog You hire an architect and then ask the people. neighbourhood house) – they saw a vibrant toilet” as Thomas Christoffersen put it, but And then you don’t have a dialogue?” culture centre that was one of the results of now a green area with various sports facili- “But maybe we can hope that this confer- the Kvarterloeft in Holmbladsgade. ties every 100 metres. ence will help, so many people can see that “The aim of the Integrated Urban Regen- The tour then visited Prismen Sports and some of the best things over the last 20 years eration and Kvarterloeft in Holmbladsgade Activity House. Prismen is a large sports hall have been built in a process between resi- was to create these kinds of public spaces, designed with a Danish natural landscape in dents and the municipality,” said Kai-Uwe but not by dictating from the top down,” ex- mind, according to Anne Kristine, an em- Bergmann: plained the first speaker of the day, Thomas ployee at Prismen. Everything is green, the And sometimes solutions can be very sim- Christoffersen, an architect and project co- stairs, the floor and the walls. ple, according to Kai-Uwe Bergmann, who ordinator for the Kvarterloeft in Holmblads- 13 on site WORKSHOP in Brøndby Strand Brøndby Strand is a resource – not a problem

Who, what, where? On-site workshop: “Ethnic and social integration”. In Brøndby Strand. Moderator: Pamela Paquin, Consultant, Pioneers of Change, USA. Speaker: Pia Wallbohm Blådal, Project Manager.

And integration also applies to the mu- nicipality’s senior citizens, as the workshop participants could see when they visited “Strandstuen”, a drop in centre for senior citizens. Strandstuen was previously used mainly by senior citizens with Danish back- grounds, but has recently also attracted more pensioners with immigrant backgrounds who use the place as an activity centre. “Ethnic minorities are encouraged to use the venue for their own events, and this helps to combat loneliness, lack of exercise and gender separation,” Eva Roed pointed out. But can integration actually succeed if you consistently see immigrants as a problem and not a resource, asked the American-born moderator Pamela Paquin, when the debate began. The answer is to find opportunities in the diversity, according to one participant. An- other pointed out how important is was to recognise foreign educations.

It is no use having an engineer from Kuwait selling fruit in the market just because his diploma is not Danish.” Workshop participant

The neighbourhood, which is just 12 kilo- ticket controllers in trains, even though they Ten years ago, the metres outside Copenhagen centre, consists had criminal backgrounds. residents would of 12 highrise blocks of flats that have be- “They had a kind of mentor working with come something of a hallmark for the area. them. But the good thing was that these boys not have admitted Seven years ago Brøndby Strand was a became role models for their friends, who socially deprived area with run-down build- otherwise caused trouble around Brøndby that they lived in ings. Today the buildings are still run-down Strand Station,” explained Eva Roed. Brøndby Strand. but the area around the concrete buildings Yet not everything is as it should be in are full of well-lit walkways, and trees and Brøndby Strand. Two-thirds of the residents Today it is different. bushes have been planted in what were once still think that Brøndby Strand has a bad large empty spaces. reputation, and just as many think that the Seven years’ work “Before we started our Kvarterloeft proj- media blow the problems out of proportion. on Integrated Urban ect, the residents themselves were very Because Brøndby Strand has beautiful coun- embarrassed about the area. When asked tryside, a low level of churn and crime that Regeneration has where they lived, most said “Vallensbæk” does not stand out from the rest of the police (a “nicer” place in the same area ed.), even district, according to Eva Roed. created a team spirit though they lived in Brøndby Strand,” Eva between immigrants Roed, Brøndby’s Deputy Mayor explained Integration for seniors to the participants of the ethnic and social Keeping the young immigrants from com- and ethnic Danes. integration workshop. mitting crime in the streets of the area is one of Brøndby Municipality’s declared goals. hat do you do if juvenile crime is Negative media coverage So drop in centres for both immigrant boys high, incomes are low and senior The negative image of the neighbourhood and girls have been established that are run Wcitizens in the area are afraid to has now been turned around, according to mainly by enthusiastic volunteers. walk the streets? And if a large proportion the mayor. The average income is increas- “Our employee walks about in and around of the crime is committed by youths with ing, crime rates are falling and a new study Brøndby Strand encouraging youngsters to another ethnic background than Danish? has shown that 9 out of 10 residents say they use the drop in centres to get them to change Well, you do what they do in Brøndby are satisfied with living in Brøndby Strand. their habits and stop hanging out on the Strand. You establish new youth clubs for But Brøndby Strand has also had a helping streets,” said the municipality’s SSP worker both boys and girls, get-togethers for both hand from the private business community (youth/school/police liaison officer) Jens senior citizens and youngsters and consult to reverse the negative spiral. The Danish Arnsbjerg, when the workshop participants the residents so that they accept responsibil- State Railways (DSB) has successfully em- visited the drop in centre for youngsters in ity for their neighbourhood. ployed immigrants from Brøndby Strand as Brøndby Strand. 14 on site WORKSHOP in Nord Vest Two’s company - three’s a crowd

Who, what, where? On-site workshop: “Citizen involvement partnerships” in Northwest Copenhagen. Moderator: Raymond Young, Scotland, Adviser on Danish Integrated Urban Regeneration. Speakers: Hans Peter de Place and Cecilie Matzen, Managers of the Urban Regeneration Secretariat, Copenhagen.

ence that he gained from Integrated Urban is more like a big stable mother ship. The Regeneration projects in Scotland. various projects must therefore be anchored “What happens if one party disappears? in Copenhagen Municipality, as this unit is Who should represent the residents, when Kvarterloeft disappears? And how can you “attack” private investors to get them to join the public/private local partnerships?” asked Raymond Young. Øystein Leonardsen from Copenhagen Mu- You must look at parts nicipality commented on the first theme. He of Kvarterloeft as a thinks that public/private partnerships often develop into exclusively private projects and number of experiments. he finds this problematic, as it then becomes The various Kvarterloeft more difficult for residents to safeguard their projects are like small interests. But in connection with Kvarterloeft, which ships on an ocean, while is now drawing to a close after ten years, it Copenhagen Municipality is more a matter of the public partner with- is more like a big stable drawing. “That is a problem,” said Dorthe Eren from mother ship. The various the local committee in Valby, Copenhagen: projects must therefore be In Integrated Urban Regeneration projects “How should the citizens’ interests be anchored in Copenhagen heard when Kvarterloeft ends?” she asked. Municipality, as this unit is of the future, it is important that private Rik Baeten, SSP Social Integration – PGV, suggested that the areas establish some co- sure to stand the test of investors, public authorities and local ownership centres, as this is important for time.” continuity in the work that has been started Øystein Leonardsen, residents work together. Unfortunately, in the area. This idea was supported by John Copenhagen Municipality often one of the parties pulls out along the Clark, Burngreave New Deal for Commu- nities. He said that it is important – as has way. It is therefore important to find ways been done in Britain – to maintain continu- ity in work in the neighbourhood by build- of maintaining the continuity, according ing some functions in the area that can be to the participants at the on-site “citizen self-sufficient after the project period ends - Public/private local partner- – e.g. some offices. He also pointed out that ships are important for the involvement partnerships” workshop. it is important to initiate projects that can development of local areas. generate an income that does not depend on - It is important that someone t was no coincidence that Northwest car park. project support. represents the residents Copenhagen was the setting for the “In England there is a saying: two’s com- However, even though the public partner is and their requirements. conference participants to discuss pub- pany, three’s a crowd,” began moderator withdrawing, it will still have an important I role to play, according to Øystein Leonard- lic/private partnerships. Raymond Young, referring to the fact that - It is important to focus on Nord Vest is a good example of how pri- public/private partnerships have three part- sen: the private investors, as they vate investors, public authorities and local ners – private investors, public authorities “You must look at parts of Kvarterloeft are important players in the residents – despite the many differences of and local residents. as a number of experiments. The various opinion – have managed to create the “1001 But often one of the parties jumps ship Kvarterloeft projects are like small ships on area. trees” fairytale park on what was once an old at some point, in Raymond Young’s experi- an ocean, while Copenhagen Municipality 15 on site WORKSHOP at Islands Brygge Local employees build links between the neighbourhood and the authorities

Who, what, where? On-site workshop: The Ugly Duckling. Islands Brygge, Copenhagen. Moderator: Johan Andersson, Project Manager, Democracy Across Øresund, Sweden. Speaker: Poul Jensen, Architect and experienced neighbourhood activist.

How do you create the conditions for railway carriage is used as an archive, and ceed. It takes a long while to build up trust. It old walls and concrete floors are reminders took many years for the locals to trust me,” active local citizens taking the initiative of bygone days. he said. And even the local playground was targeted “You need to accept the dual loyalty. The to develop their neighbourhoods? Look for a visit. The playground was developed locals have to accept you – and the politi- at Islands Brygge: A recently renovated together with children from the local school. cians must too,” added Carola Schmidt, TU Instead of seesaws and swings, the children Berlin. waterfront, a community centre and requested tunnels and gun slits. The Swedish moderator Johan Andersson a harbour beach are visible results of could see differences in how you involve “Bryggens” dynamic development, which residents in the process of Integrated Urban Regeneration in Sweden and Denmark. He - Employing link workers is a was initiated many years ago from the approached the discussion from a demo- good idea. cratic perspective. bottom up by active residents. “In Sweden, you do what the politicians - Project design and project say. In Denmark there is more of an activist management are key to n the 1970s, the docks at Islands Brygge And just like the Hans Christian Andersen culture and people want to be consulted,” success. were yet another of Copenhagen’s many fairytale, Islands Brygge has become a beau- said Johan Andersson. run-down districts. But the local resi- I tiful swan. The waterfront housing is some He also pointed out that one of the prob- - Start with the needs of local dents had plenty of initiative and have fought of the most sought after in Copenhagen. And lems for Kvarterloeft is that the secretariats residents. to get the quarter a better image. Slowly but the residents have a view of a beach right in will disappear when the project stops. Then surely, the district has been transformed. It the heart of the city. Every summer, Islands contact between the authorities and citizens - The political parties can be all began in 1978, when a group of local ac- Brygge’s harbour beach is full to bursting is lost. He therefore suggested that “link involved – but with caution. tivists worked out an architectural plan. By with sun-loving Copenhageners. workers” should be used, who are employ- 2000, 90% of the plan had been realised. The workshop participants visited both Is- ees living in the area who can build bridges - The project design should At Islands Brygge’s Culture House, the lands Brygge’s community centre, which is between the neighbourhood and the world address when and how the first stop on the tour, Poul Jensen, a local the result of an architectural competition in outside. activist and architect who has been part of 2001, and the local park, where the hallmarks Poul Jensen agreed with this idea, but had - political parties should the scheme from the very beginning in 1978, of the industrial culture are put to active use. something to add. be involved in grassroots explained that today, everybody wants to The railway sleepers are still there, an old “It will take time for link workers to suc- projects. live at Islands Brygge.

In Sweden, you do what the politicians say. In Denmark there is more of an activist culture and people want to be consulted.” Johan Andersson, moderator, Project Manager, Sweden 16 on site WORKSHOP in Nørrebro Park When a neighbourhood gains an identity

Who, what, where? On-site workshop: “Branding and identity”. Nørrebro Park, Copenhagen. Moderator: Andreas Schubert, Senior Expert, Urban and Regional Development, Rostock, Germany. Speaker: Jens Langebæk, Manager of the Urban Regeneration Secretariat in Nørrebro Park.

many were curious to know whether the Nørrebro Park is politicians had been attentive to the recom- not what it used mendations and decisions proposed by the area’s steering group. And they actually had, to be. Before the according to Jesper Langebæk, Manager of the Urban Regeneration Secretariat in Nør- Kvarterloeft, it was rebro Park. known as “Outer Before the Kvarterloeft, Nørrebro Park was used mainly by local drinkers. The Nørrebro South”. A 16,000 residents in the area largely stayed away. Today it is different. Nørrebro’s cool naming competition image among young people is now also true for local residents of Nørrebro Park. At the workshop, the speakers explained resulted in a new about the expedience of “mixing” the neigh- bourhoods so to include residents who are name, and the entire old, young, students and families with chil- area now has its dren. But what does the future hold for Nørrebro own new identity. Park? The secretariat behind the Kvarterloeft South was just the name of an area squashed was when the area changed its name from oday, a district or a neighbourhood focused on people forming networks that in between four large streets in Copenhagen. Outer Nørrebro South to Nørrebro Park. It must have its own identity or even will hopefully continue after the secretariat No identity, no soul. The residents and also also received a thorough facelift at the same brand. This is also the case for the closes. These networks can strengthen the T other Copenhageners wanted the area to time, which helped give the neighbourhood neighbourhood of Nørrebro in Copenhagen. area and its residents in the future because have a clear image with which they could an identity. But in some parts of Nørrebro, unique identi- they know who to contact when proposing identify. When participants at the workshop on ties are hard to find. In 2001, Outer Nørrebro changes or initiating processes. This work began in 2002. The first step branding and identity visited Nørrebro Park,

THE COPENHAGEN DECLARATION ON INTEGRATED URBAN REGENERATION The Copenhagen declaration on integrated urban regeneration principles, practices and prospects.

Professor Michael Parkinson, CBE, and Director of the European Institute for Urban Affairs, summed up at the International Conference on Integrated Mart Grisel Urban Regeneration in Copenhagen. Jan Vranken

The Copenhagen Conference specifically explored the challenges of delivering inte- Jean-Loup Drubigny What was the purpose of the grated urban regeneration in Europe, reflecting particularly upon a decade’s experience Copenhagen conference? in Denmark with the Kvarterloeft programme. A wide range of partners from many countries, many levels of government and the public and private community sectors The Copenhagen Conference served several purposes. One important purpose was to were able to agree on: be part of the implementation of the Leipzig Charter, which was adopted at the infor- mal EU ministerial meeting in May 2007, by creating a forum for discussion of some • The economic drivers that made integrated urban regeneration programmes of the key issues in the Charter and related reports to the German Presidency. Another necessary across Europe purpose was to link to the work of the Portuguese Presidency by involving some of the • The challenges and principles involved in delivering such policies important knowledge providers in urban policy including URBACT, EUKN and the • The factors that create success Academy for Sustainable Communities in the UK. • The challenges faced in continuing the commitment in future

This document records the main findings of the Conference on these related issues. 17

resources and impact upon cities. They attempt to create new delivery vehicles, like What trends are shaping European the local secretariats in Kvarterloeft. They attempt to involve a wider range of partners cities? in policy making and delivery.

The Conference agreed there were four key trends affecting European cities that What are the advantages and disadvantages of make integrated policy responses necessary. Globalisation has removed power from cities and nation states. Economic and technological restructuring has created a new IUR? economy with divided labour markets. Growing competition between places - as well Conference recognised that there are some concerns about the principles of integrated, as firms - has led cities to compete for scarce resources like public and private sector area based programmes. It was noted that these interventions can displace problems to investment, skilled people, infrastructure and prestige projects. And the restructuring other areas of a city. Also it was agreed that not all excluded people live in excluded of welfare states has led to increased marginalisation of excluded individuals and com- areas. Other areas with similar challenges are left out of the policy. The economic solutions to the social problems of small areas may lie outside not inside the chosen munities in many European cities. area. And the impact of mainstream programmes may be much more important than special initiatives. Finally, areas can become too dependent upon such interventions. What has been their impact upon cities? But Conference agreed that these potential disadvantages were outweighed by the fol- lowing strengths. They were able to meet market failure in small areas. They increased social capital and capacity within the areas. They could link the excluded area to the The impact of these trends are the following. Cities see themselves as performing wider spatial economy. They can integrate different policy sectors. They could have in international no longer national hierarchies. But place is becoming more not less greater impact upon the chosen areas because they are concentrated, targeted, visible important in a globalised world as a source of security, identity and strategic deci- and time limited. In other words, the benefits outweighed any costs. sion-making. Cities engage in collaboration and networks to learn from each other and share good practice at the same time as they compete for scarce resources like money, people, prestige and projects. Cities are seen as the drivers of national and regional economies not as drains upon their performance and are the key to the long What are the critical success factors for term economic competitiveness of Europe. But at the same time, cities are becoming IUR? increasingly divided with rich and poor people and places becoming juxtaposed next door to each other. These developments have made all governments in Europe and the European Commission recognise the need to focus policy more upon the performance The European experience is that there are many challenges in making the integrated and competitiveness of European cities. In turn this has underlined the need to have approach work. It requires major political support for the key principles. It requires long term financial support for the programmes. It requires governments to integrate integrated policies for urban regeneration and development. the priorities, policies and programmes at central and local levels. It requires bending the priorities of mainstream programmes to the areas. It requires involving the private What has been happening to urban sector, empowering the community sectors and building transparent and accountable partnerships. The degree of success in meeting these challenges in different European policy across Europe? countries has varied. It has been affected, for example, by the balance of power and resources between national, regional and local government; the level of partnership Conference recognised that despite great diversity in recent years, there are a series working that exists between the public, private and community sectors; the degree of of common policy trends across European cities and countries. There has been a more integration between economic, social and environmental policies and the level of po- explicit focus upon urban issues. Greater significance and powers have been given litical support for collaboration between different government departments at national to cities. National government policies generally have become less top down, more and local government level. bottom up and more partnership based. National policies have become as concerned with encouraging economic opportunity, as with meeting social need. Most important, national governments have sought to tackle urban challenges on a more integrated, What worked in the EU? The URBAN initiative was the leading European example of such programmes. Con- often on an area, basis . ference agreed that URBAN had been well received and had made a difference to many communities in many European cities. The advantages were that they brought What do integrated urban regeneration a long term, strategic, comprehensive approach to the area; they encouraged partner- programmes try to do? ships; they were multi-annual programmes; they required community participation; Integrated urban regeneration programmes (IUR) have been found in many places in they linked Europe to its citizens; they encouraged project management capacity; they Europe during the past decade. For example, the UK has had City Challenge, Single improved policy making relationships between national and local governments. Regeneration Budgets, New Deal for Communities, Urban Development Corpora- tions, Urban Regeneration Companies and City Development Companies. Ireland has URBAN worked well across Europe where: it combined existing programmes and had Area Based Partnerships. France has had contrats de villes and d’agglomeration. projects; where the community helped manage and deliver it; where it had simple The European Commission has had the URBAN initiative. And Denmark has had management systems; where there was cooperation between partners; where there was Kvarterloeft. Some have ended. Some continue. strong political and administrative leadership. URBAN had not worked well where the local community and the private sector were not engaged and the administrative sys- tems were too complicated and bureaucratic. URBAN had improved delivery in many The common principles of such policies are that they attempt to improve the position countries. Nevertheless Conference noted that the sums of money involved for each of excluded communities by encouraging vertical policy integration between different initiative were not big; the principles were not that innovative in all countries since levels of government - national, regional and local. They try to improve horizontal some were working along these principles already; URBAN was sometimes a little integration between government departments at national and local level as well as slow in operation and it did not influence or change wider policy making relationships between public, private and community partners. They try to link area based initiatives to the wider mainstream programmes of government, since the latter have far greater in all European countries.

Mart Grisel Jan Vranken

Jean-Loup Drubigny

The Panel 18

crucial to the delivery of integrated programmes within neighbourhoods, it is critical What worked in Denmark? to pay attention to how those workers can be better recruited, trained and politically Conference agreed the Kvarterloeft programme had made real achievements. The ar- eas which had the initiative had experienced: physical improvements; a reduction in supported in future. crime levels; an increase in income; improved perceptions of the area; more mixed population; reduced visible social problems; and strengthened social capital. Architecture, design and place making help Conference agreed that the quality of architecture, design and the public realm more Kvarterloeft also brought improvement in the way in which policies were made. The broadly was crucial to the success of integrating excluded urban neighbourhoods. huge majority of all the projects were implemented. Many partners thought it the big- They could bring a variety of advantages. They could make places more attractive gest and best initiative in this field. It had provoked little community opposition, unlike to live, meet basic housing requirements, provide communal meeting places, encour- many previous initiatives. It had encouraged increased collaboration between depart- age safer communities and connect with community history. They could help create ments. It had encouraged increased professional debate. It had increased community identity of place underlining their uniqueness not their sameness. They could help involvement in decision-making. It had improved the external image of many neigh- create self-confidence in local people by encouraging investment in the area and the bourhoods, even though there was more to do. It had provided an alternative model people and help realise existing potential in excluded neighbourhoods. They could for decision-making which had been mainstreamed into decision-making. Kvarterloeft create diversity. And they could create public spaces which connect neighbourhoods worked where it: had the support of the city officers and the Mayor; had skilled project with the rest of the city. co-ordinators; provided structures for activists to engage; allowed conflict resolution; had the political endorsement of government. Sharing the lessons Conference underlined the importance of sharing the lessons from comparative experi- What works more generally in IUR? ence. It insisted that a learning element must be required in every EU funded project. Discussion in Conference identified some of the key success factors more generally. At national level there should be a common source of knowledge about working in Successful programmes needed to define clearly the goals of the programmes; the neighbourhoods and an understanding of how to deliver integrated urban development. boundaries; the measures of success and the evidence base. They also needed to: get Face to face knowledge transfer was more important than websites and documents - long term government support; mobilise public support; disseminate results widely; especially for politicians and citizens. Knowledge should be demand driven rather than have flexibility with money; get the participation of workers and users as wellas foisted upon reluctant partners. Finally Conference recognised that working up from residents of areas; find policy makers who could combine dual loyalties to their local communities to government was the right way of working in Europe. government and to their areas and teams. Conference also agreed on the need to man- age the expectations of policymakers and communities so that unrealistic expectations were not dashed and political support lost. It was also crucial for the city to have a clear long term plan which showed how the individual neighbourhoods fitted into the Unfinished business wider urban territory. It was important to recognise that in any partnership there will be But if there was agreement on many of the key principles, success factors and achieve- legitimate differences of interest and that partnership is a way of managing resources ments, Conference also recognised there some important tensions within the policy to produce the best results for excluded communities, not of denying differences in that needed to be addressed. For example, it was clear that although all countries views. subscribed to the principles, they were not put into practice in all countries. Broadly northern European countries had made more progress in this direction than southern Conference agreed that making these programmes work requires entrepreneurs and and the former eastern countries. There was more to be done in many countries to risk takers in government and communities. But government often discourages risk make the principles a reality. The challenges also varied, with greater infrastructure taking. So these principles will require a cultural as well as an administrative shift in and physical challenges in the east and greater challenges of economic and cultural many countries. Politicians need to give a lead in encouraging risk taking by public integration in other countries. administration. Equally, making these policies work takes a long time – often much longer than the normal political cycle of national and local politicians. So these pro- Conference also recognised that language matters and words can mean different things grammes need to have short term gains - as well as long term goals - if they are to in different places. For example, everybody agreed that empowering communities was receive political support. Conference also underlined that since good local teams are important. But different countries and cities have invested more or less resources in 19

encouraging it. It was agreed the process is resource intensive but must be encouraged and Leipzig had in recent years endorsed those principles. But it was clear that they by proactive policies from government. Conference also agreed that important practi- were not yet accepted or acted upon in all parts of the government in all European cal issues were raised about who would integrate programmes, who would integrate countries. It was crucial that the pressure to legitimate the principles and practices was and pool resources, who would decide who would be empowered. There were also continued. challenges about whether boundaries should be fixed or flexible. Kvarterloeft - the dangers of success Conference finally agreed that the experiment of Kvarterloeft had made an important What will be the future urban contribution to the development of integrated urban development and regeneration challenges? in Denmark and Europe. Denmark had been one of the first countries to introduce the initiative. The programme had worked. The principles were clearly understood and accepted. But because the initiative was changing its shape, financial resources, Conference agreed that the experience across Europe showed that integrated urban departmental location and ownership, Conference underlined two important tasks for development and regeneration was possible and desirable and had made a difference. future policy. First it was crucial that the learning process continued. All efforts to It also agreed that since the world was becoming more complex the principles underly- capture and share the detailed lessons for policy must be sustained by national govern- ing the policies were becoming more not less relevant. ment. Specifically, the Minister’s offer to Conference to explore a knowledge resource centre must be delivered. Conference agreed cities would face a range of old and new challenges in the future which would reinforce the need for integrated urban development. Social exclusion as Second it was important that, since responsibility for the initiative has moved to well as the consequences of an ageing population would remain important challenges. other parts of government, that local government which has been a major partner in Climate change would be an increasingly important threat to the sustainability and sta- the success of Kvarterloeft, should remain an equally important player in the new bility of cities. Globalisation will encourage more emigration and re-migration within arrangements. Equally important the different departments of national government and between cities, making it imperative that cities react more quickly to the changing should remain as committed to the principles and practices in future as they have social challenges they face. Equally, absorbing the former east European cities and been in the past. The message for the Conference was that Kvarterloeft had been their specific needs will be a major challenge to Europe. a success. It was crucial to celebrate it. But it was even more crucial to sustain its principles in future! In terms of policy making, maintaining integrated solutions would remain crucial as would the need for national and EU governments to encourage further participation and to provide a more enabling framework to help cities face their challenges. This presented a series of challenges which still have to be faced. They include how to en- courage and incentivise collaboration between partners; how to motivate and involve citizens more; how to make partnerships accessible and accountable to citizens; how to build upon and strengthen and build upon good practice; how to link neighbourhood to bigger areas; how to sustain support for the principles when many of the individual initiatives including Kvarterloeft and URBAN were being mainstreamed into more general policy for cities. Finally increasing fiscal pressures upon public budgets will make it more important that cities learn how to work with the private sector and de- velop better ways of sharing risks and rewards with it.

What’s next for IUR and Kvarterloeft?

Conference agreed that it was crucial to repeat and sustain the key principles for suc- cessful integrated urban development. Ministerial Conferences in Rotterdam, Bristol Concluding speech “We have gone beyond a charter”

Professor Michael Parkinson, CBE, and Director of the European Institute for Urban Affairs, summed up at the International Conference on Integrated Urban Regeneration in Copenhagen.

kinson, and highlighted that the right ques- actively in the future. “We have worked for two days, and tions are just as important as the answers “The Danish Minister of Refugee, Im- many people think they have understood if you are to create successful Integrated migrant and Integration Affairs said in her Urban Regeneration. opening speech that she will consider col- what has happened during the past two lecting this knowledge in a knowledge cen- days. But they are wrong, because now Integrated Urban tre. I have to say that from my perspective, Regeneration in Europe it would be a great tragedy if this was not Michael Parkinson is going to tell us what Many European governments have focused the case. I would encourage all our Danish on Integrated Urban Regeneration in recent colleagues to bring their influence to bear really happened,” said Asger Munk. And years. But this focus is in danger of disap- to make sure this happens,” said Michael Michael Parkinson did just that – in his own pearing, pointed out Michael Parkinson, and Parkinson. during the conference did nothing to conceal way. that Integrated Urban Regeneration requires political determination and courage. IUR is complex ing and about getting area-based initiatives “Regardless of how much money the gov- arkinson pointed out that Integrated linked into mainstream programmes where ernments invest, Integrated Urban Regene- Urban Regeneration is a complex the money lies. Fourthly, it’s about new ration stops being sexy at some point. When subject. There is little doubt about delivery mechanisms – new approaches. In this happens, it is easy for the governments It’s not area vs. people. It’s P this context, we have had many discussions to say that now that we have completed a that, and he referred to the first day when area and people. It’s not only a few participants dared put up their about the local secretariats and about involv- successful Integrated Urban Regeneration top-down vs. bottom-up. hands when asked to define what Integrated ing more partners. And I think area-based programme, it is time to spend the money on Urban Regeneration actually covers. initiatives raise the question of flexible or something else,” said Michael Parkinson. It’s both top-down and “From that I concluded two things. A. We fixed boundaries. What is the area and what It is therefore ultimately a question of bottom up. It’s not about didn’t know what were talking about. B. We is its purpose? We need to focus on that,” politics, Michael Parkinson concluded. And simply changing areas know it’s a very important thing indeed,” said Michael Parkinson concluding: it’s a matter of continuing to tell the politi- said Michael Parkinson, proceeding to “It’s not area vs. people. It’s area and cians that Integrated Urban Regeneration or changing sectors and identify the points on which the conference people. It’s not top-down vs. bottom-up. It’s works and is worth the money. policies. It’s about both.” participants had agreed: both top-down and bottom up. It’s not about One of the successful projects was the Professor Michael simply changing areas or changing sec- Danish Kvarterloeft project. But the pro- “Firstly, vertical policy integration up and Parkinson, CBE, and down, local, regional, national and EU, is tors and policies. It’s ject is now changing both its format and important. Secondly, horizontal integration about both,” said principles. Michael Parkinson believes the Director of the European is important. Thirdly, it’s about mainstream- Michael Par- knowledge collected to date must be used Institute for Urban Affairs

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Michael Parkinson