2014 Community Organisation in the European Quarter In

COMMUNITY ORGANISATION in the European Quarter in Brussels STRATEGIES FOR STRUGGLE – from 1986 until today

   Bulletin annuel d’information de votre comité de quartier,  asbl Groupe d’animation du Quartier européen de la Ville de Bruxelles, dit Quartier Nord-Est Animatiegroep van de Europese Wijk van de Stad Brussel, Noord-Oost-Wijk genoemd

 

author Hilde Geens TABLE OF CONTENTS

1. Introduction : The European Quarter and its inhabitants 4 Europe as a classic example 5 A leading role for the residents’ committees 6 Dealing with the private sector, even at present 7 Arbitrary, but with a certain sense of logic 8

2. Good to know 9 Europe in Brussels 10 Timeline 20

3. Five strategies 22 3.1. Consultations 24 The Brussels-Europe Area Study (1986-1987) 25 Plans as occupational therapy ? 30 Commissions de Concertation in the European Quarter 32 Comité de Suivi (1996-2001) 35 Conclusions 38 3.2. Studies by the inhabitants 40 The Livre Blanc Noir (1994) 41 Europe : a Living Campus (1995) 43 Conclusion 45 3.3. The cultural approach 47 The context 48 The event : Suite Jourdan Suite (1996-2001) 49 Conclusions 51 3.4. Three occupations 52 Sens Unique (a week in 1997) 53 The Stevin Project (1997-1999) 59 BruXXel (2001) 63 Conclusions 67 3.5. Accord-cadre – a special type of residents’ participation 69 The context 70 The Government of the Brussels-Capital Region contravenes the law 72 The reaction of the inhabitants 73 AQL demands management and long-term vision 75 The contents and legal construction of the accord-cadre 77 Negotiating with investors and the authorities 79 Difficulties in putting plans into practice 80 The most important results from 1988 until 1998 81 The criticism on the accord-cadre 83 Ultimately the accord-cadre also fizzles out 84

4. It is all still very topical 86

Lexicon 94

Epilogue 96 5

1. x. xxxxxxxxINTRODUCTION : THE EUROPEAN QUARTER AND ITS INHABITANTS Europe as a classic example

‘Europe’ is the dossier with the long- much in need of professional support. of those projects and draw detailed ties in the preparation process. That 5 est history that Brusselse Raad voor We have been at the heart of the pro- and rigorous conclusions. Those de- conclusion was another reason to re- het Leefmilieu (BRAL) has ever dealt cess during this time, more so than cisions are very relevant in view of cord our experiences. with. Bral has been keeping a close our French language sister-organi- what is going to happen in the fu- How do we view the actions of watch over the developments regard- sations Inter-Environnement Brux- ture in the Léopold- and North East the inhabitants and their participa- ing the implantation and expansion elles (IEB) and Atelier de Recherche et neighbourhood, the area, which we tion over the past decades ? Could we of the European institutions in Brus- d’Action Urbaines (ARAU). meanwhile have come to refer to as have done things differently ? Which sels since the beginning of the nine- During those thirty years of in- the ‘European Quarter’. opportunities did we miss ? – What

, contents teen eighties. Bral has witnessed the volvement in the Europe dossier, we The main project that profoundly were the failures, the lucky breaks transformation of the neighbour- took part in numerous actions and changed the European Quarter over and the successes ? And most of all, hoods. Bral has seen and supported initiatives. These were both large and the past decades is the construction what lessons can we learn from all of the reactions of the various neigh- small scale actions ; they differed in of the EU Parliament with its adjacent this for the future ? p bourhood committees. Bral has tak- style and strategy as well as dura- offices next to the Leopold Station. en its own initiatives and supported tion (from short-term actions to ac- The EU Commission has even grand- those of others. We never received tions lasting for years).The actions er plans to concentrate its buildings any specific or structural subsidy for also varied as to the target audience along the Rue de la Loi as set out in our activities in the European Quar- and the number of participants and the Projet Urbain Loi – PUL (City Pro- ter. The choice to deal with ‘Europe’ they were not all equally successful. ject Loi), the project for increasing has always been our own priority. In combination with varying part- the ‘building density’ of the Europe- From the first proposals for expan- ners, we made use of about all avail- an Commission in the Rue de la Loi. sion at the end of the nineteen sev- able methods of action and pressure : This fact alone justifies a review of enties, it was clear to us that the con- from press dossiers and consulta- the past to see what lessons may be sequences of the European presence tions groups, occupations and squat- learned. Moreover, we note that only would be felt beyond the immediate ting, cultural events, parliamentary sparse information about that new neighbourhood. After all, the dossiers questions up to even the elaboration project is given out. Hardly any ef- were being prepared on the national of alternative studies and plans. In fort is being made to actively involve level, and local groups were therefore this publication, we describe several inhabitants and other interested par-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 1. Introduction: the European Quarter and its inhabitants    A leading role for the residents’ committees   Bulletin annuel d’information At the beginning of the nineteen nine- into account. It is essential to have de votre comité de quartier,  asbl 6 ties, Bral motivated several groups security of tenancy, the quality of the Groupe d’animation du Quartier européen de la Ville de Bruxelles, dit Quartier Nord-Est 7 Animatiegroep van de Europese Wijk van de Stad Brussel, Noord-Oost-Wijk genoemd of inhabitants from the neighbour- environment needs to remain high hood to join forces in the Coordination and local facilities and local shops are Europe. In its heyday, more than a necessary. Therefore, their efforts are dozen committees were members of not in fact intended to thwart specific the partnership, well beyond the bor- projects or plans. Their only purpose ders of the neighbourhood. Over the has always been to strive for a lively

, contents course of time, some of them left as future-oriented and mixed neigh- active partners and the working area bourhood. The committees persist in of Coordination Europe became re- demanding that the authorities take stricted to the immediate neighbour- initiatives to get better control of the hood, where the Groupe d’Animation accelerated development in their du Quartier Européen de la ville de neighbourhood and that they involve Bruxelles (GAQ) and the Association them in this as equal partners. du Quartier Léopold (AQL) are at pre- Sometimes the local commitment sent the most important advocates. was very strong, sometimes a lot less In their turn, these groups motivated – and this was clearly related to the Bral and its sister-organisation IEB to lack of any positive results. Often, the ensure continuity and their profes- final outcome of the actions was after sional support. The committees from the Europe- u Right from the beginning of the nineteen an Quarter always dedicated their ef- nineties the various neighbourhood commit- forts towards more involvement in the tees of the EU Quarter have been united in planning process. They continue to do Coordination Europe. One of the committees, so until the present. They want their which has remained active in Coordination  needs and requirements to be taken Europe until the present is the GAQ. © GAQ 

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 1. Introduction: the European Quarter and its inhabitants Dealing with the private sector, even at present

all not in proportion to the time and From the nineteen fifties, the role of That history continues to repeat t The private sector is all in favour of the 7 the energy that had been invested in the private sector has been a determin- itself is also evident from the pre- demand by the EU Commission for more of- them. This has a disincentive effect. ing factor in the European Quarter and history of the Projet Urbain Loi (City fices along the Rue de la Loi. The Brussels’ Henri Bernard, who for decades was this remains the case today. Therefore, Project Loi). The similarities with the government tries to manage the increasing the driving force and the strategist of the participation and actions of the plans from the mid-nineteen eighties office space by means of the Projet Urbain Loi the AQL, proved that personal dedi- inhabitants have never been directed do not come out of thin air. [ see 3.1.]. p (PUL). © ADT-ATO cation plays an important role in the against the authorities alone. decisiveness of groups of volunteers. Experiences with various master

, contents His sudden death in October 2008 plans have shown that the coopera- was a major blow. Meanwhile, others tion between the authorities and the have taken over the torch, but it re- private sector is not a sinecure. Both mains a difficult battle. in the case of the Schéma directeur In addition to the classical resi- (master plan) Tour et Taxis as well as dents’ committees, we also see other the Schéma directeur Botanique (Cité people asking questions about the Administrative de l’État) it is self-evi- present development of the Europe- dent that the implementation of a an Quarter. An increasing number of master plan depends on the goodwill expats as well as young people have of the private partners. The master doubts about the uninspired construc- plan is definitely a step in the right tion of public spaces, the mobility direction as a planning tool, but the problem and the nuisance from build- analysis proves that the inclusion of ing sites. The experiences of the past the participation of the inhabitants years will serve as a good starting point cannot be taken for granted. Perhaps in particular for the people who are the experiences gained from the willing to actively commit themselves accord-cadre (framework agreement) to take action in the European Quarter could have served as inspiration as well as elsewhere in Brussels. p [ see 3.5.].

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 1. Introduction: the European Quarter and its inhabitants Arbitrary, but with a certain sense of logic

It is not our aim to recount the en- We are convinced that this publi- on with the analysis in order to refine 8 tire history of the European Quarter. cation will prove its usefulness. It will our conclusions. Neither is it our intention to come up be useful for those who want to know All basic documents and practi- with a sound, objective, irrefutable what has happened, for those who cally all sources in this publication explanation for the occasionally odd seek inspiration to take actions else- (plans, official texts, press releases…) succession of events and decisions. where, for those who want to learn are available from Bral. p However, we do hope to offer a sam- from the experiences of others, and ple of optional actions by inhabitants, finally for those who want to carry

, contents the classical, the most frequently used, the most original, the most diverse, the most striking actions… those, which we would like to put in the limelight. We have grouped the actions according to the selected strategy : consultations [3.1.], the development of a vision [3.2.], the cultural approach [3.3.], occupations [3.4.] and the legal/ contractual approach [3.5.]. For each category, we take stock. In order to provide a basic understanding of this o By means of a street action ‘Europus Om- very complex tale, we first provide a nivorans’ the Riverains Jourdan and Bral very short history of Europe in Brus- underline their point of view at the commis- sels and we also set out a time line sion de concertation. They are demonstrating showing the important facts and against the illegal expansion of office build- events. ings by the EU Commission in the Rue Frois- sart. – 1994 © Way Press International

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 1. Introduction: the European Quarter and its inhabitants 2. x. xxxxxxxx GOOD TO KNOW Europe in Brussels

In order to understand the stories Europa / Brussels, capital of Europe – about the participation and actions Badeaux, 2007. 10 of the inhabitants in the European Quarter, some basic knowledge about the EU and its presence in Brussels The EU : its institutions and seats is required. Here follows a very brief and general introduction, including When the ministers of Foreign Affairs only those facts, which are relevant of six European countries signed the

, contents for the following text. The time line Treaty of Rome at the end of 1957, it on p 20 – 21 helps to read the text. had not yet been decided where the For a detailed overview of the his- institutions of this brand-new Eu- tory of the European Institutions in ropean Economic Community (EEC) Brussels, we recommend the follow- would be located. This issue of the ing books : location of ‘the seats’ was a highly 33Carola Hein – Bruxelles sensitive matter. The consequent l’Européenne : Capitale de qui ? Ville provisional choices became more de- de qui ? / European Brussels : Whose finitive over time and the end result capital ? Whose city ? – Cahiers de la was a distribution of all seats over Cambre – Architecture n° 5, La Lettre Volée, three cities in three countries. 2006. Luxembourg acquired the Euro- However, this simple separation i The present-day Rue de la Loi is the result 33Thierry Demey – Bruxelles, chro- pean Court of Justice, the seat of ju- was only the beginning. Although of a lack of global planning. Over the course nique d’une capitale en chantier, 2. dicial power. Strasbourg acquired the the seat and the hemicycle – where of the years, the EU Commission has taken De l’ Expo ‘58 au siège de la CEE – legislative power, the European Par- the plenary sessions of the European over an increasing number of characterless Bruxelles, Paul Legrain, 1992. liament. The executive power came to Parliament take place – had been es- buildings. 33Thierry Demey – Bruxelles, capitale Brussels : the European Commission tablished in Strasbourg, the offices de l’Europe / Brussel, hoofdstad van and the European Council. of the Members of the European Par- liament and their political groups as

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know THE EUROPEAN QUARTER IN BRUSSELS

Saint-Josse- ten-Noode Schaerbeek

Bruxelles-Ville

, contents Woluwe-Saint- Lambert

Ixelles Etterbeek

Saint-Gilles

Pentagon European Quarter municipality border

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know well as the meeting rooms for the located, and which for the sake of Parliamentary Committees were lo- convenience we call the European 12 cated in Brussels, near the European Quarter, covers an area of around Commission. The secretariat and the 1 km2. Most of it is located in the European Centre for Parliamentary Léopold Quarter, a neighbourhood Research and Documentation on the just east of the centre of Brussels, the other hand are to be found in Luxem- so-called Pentagon [see map p. 11]. bourg. Over the course of the 19th century,

, contents Meanwhile, in addition to the ini- the Léopold Quarter was developed as tial three large European Institutions, a residential neighbourhood for in- a number of other institutions have habitants of Brussels who wanted to been founded like the European In- escape from the inner city. The origi- states provoked a not to be satis- i The iconic Berlaymont building – named vestment Bank, the European Central nal buildings are stately townhouses. fied craving among the institutions after a former girls’ school that was located Bank, the Economic and Social Com- Two wide avenues connect the Euro- for evermore office space and infra- there until the beginning of the nineteen six- mittee, the Committee of the Regions, pean Quarter with the Pentagon : the structure. Commensurate with this ties – houses the main seat of the EU Com- and so on. Following a lot of lobbying Rue de la Loi and the Rue Belliard. The there was a growth in the number of mission. Because of its central location, the and negotiations, these institutions Léopold Quarter is located on the ter- associated lobby groups, press agen- building on the Rond Point Schuman has ex- are distributed over various cities in ritory of the City of Brussels, but some cies, NGO’s, diplomatic and cultural erted an enormous influence on other devel- Europe. However, the centre of grav- of the institutions (connected to the representations, lawyer’s offices and opments in the EU Quarter. © BRAL (Cathe- ity of all institutions is located in EU-Parliament as well as a number of of course also the hotel and catering rine Antoine) Brussels. buildings of the EU Commission) were industry. In the year 2012, it was esti- also established in the neighbouring mated that the surface area taken up municipalities of Ixelles and Etterbeek by offices in the European Quarter was The buildings The European Quarter in Brussels [see map p. 13]. 3.4 million m², 1.5 million m² of which of the EU institutions in Brussels The continuous expansion of the is directly intended for the use of the The neighbourhood in Brussels where EU-competences and the regular in- Commission, the Council of Ministers The main seat of the European Com- most of the European institutions are crease in the number of member and the European Parliament. mission is the Berlaymont Building on

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know THE EUROPEAN INSTITUTIONS

square ambiorix

13 rue joseph ii parc de bruxelles rue de la loi

c h Berlaymont

avenue des arts avenue de cortenbergh .

Charlemagne d

’

t e

t Lex 2000 e r b rond-point , contents e e schuman k Royal Palace Justus rue belliard Lipsius parc du place cinquantenaire jean rey

av. d’auderghem

Altiero place du Spinelli luxembourg parc Paul-Henri léopold Spaak

rue du trône godecharle rue place c jourdan h a rue wiertz u s s e é wavr e sée de d haus ’ c ix The buildings of the EU institutions in Brussels e l l e s European Commission European Council European Parliament Committee of the Regions

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know 1971 2012

14 , contents

i Here you have a view of the area of the EU Parliament in 1979 and in 2012. When you look carefully you see the changes in the urban fabric, some city blocs have changed more than others. The old shunting yard was built over to make room for the EU Parliament. © MRBC – Direction Études et Planification 2013

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know the Rond Point Schuman. Together tower building on the corner of the MEP’s and their staff. This is only a hoods south of the Rue Belliard and with the nearby Charlemagne Build- Chaussée d’Etterbeek. place of work for the European Par- the Leopold station (in Etterbeek and 15 ing they are the oldest European In 2001, the EU decided by liament ; the actual seat is located in Ixelles). buildings in Brussels. Until 1995, the means of the Treaty of Nice to hold Strasbourg. The consequence of this Once the Berlaymont and the Charlemagne Building was the home all future summits of the Council is that each month a very expensive Justus Lipsius Buildings at the Rond base of the EU Council of Ministers. of Ministers in Brussels. Until that migration takes place back and forth Point Schuman had been construct- When the Council moved to the time, these meetings took place in between the two cities. Although the ed, no further large office projects new and much larger Justus Lipsius the country that was in charge of astronomical price for that monthly worth mentioning had been planned.

, contents Building across the Rue de la Loi and the six-monthly presidency. Since commute puts a heavy burden on the But of course the North East Quarter the Rond Point Schuman, the Com- that time, they always take place in budget and places a heavy charge on continued to change. The hotel and mission took over the Charlemagne Brussels and Belgium decided im- the environment, there still are no catering sector expanded immensely, Building as well [see map p. 13]. mediately to enlarge the existing in- concrete plans to change this absurd the rental prices went up and the ac- During the controversial and frastructure. For that reason, a new situation. companying ‘entourage’ of the Euro- lengthy asbestos renovation of the prestigious building is at present pean institutions took up residence : Berlaymont Building (from 1995 under construction along the Rue diplomatic representations of the until 2004), the various services de la Loi next to the Justus Lipsius The neighbourhoods in the north member states, lobbies, press agen- were distributed over many small- Building. The permanent chairman east and the south of Brussels cies, and lawyers’ offices etc. The er buildings within and outside the of the European Council, the Euro- inhabitants certainly did not get the Léopold Quarter. Even after its re- pean president will have his offices The consequences of the arrival impression that the EU integrated in turn to its home base at the Rond in that new building. of the EU institutions were not the the city, although this had been the Point Schuman, the Commission The European Parliament is lo- same everywhere. There is a great original intention of the authorities ; continued to use several of those cated slightly further away, between difference between what happened on the contrary, the EU simply took buildings. Meanwhile there are new the Place du Luxembourg and the in the neighbourhood surrounding over the entire neighbourhood. The plans for centralisation along the Leopold Park and it consists of the the Rue de la Loi, the so-called North market mechanisms caused a rapid Rue de la Loi. The Projet Urbain hemicycle and meeting rooms for East Quarter (on the border between rise in the price of real estate and put Loi (City project Loi), is to fulfil this the political groups and commit- Brussels, Schaerbeek and Saint- pressure on residential accommoda- purpose with among others a new tees as well as the offices for the Josse-ten-Noode) and the neighbour- tion.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know There is one large project in the these were mainly intended for the south of Brussels that has complete- European public. The prices for real 16 ly changed the area : the European estate and rental property increased Parliament and its adjoining offices here as well and even today there is of the Espace Léopold. For the pur- a lot of pressure to change one fam- pose of this project, the old shunting ily houses into offices or smaller and yard was built over and the adjacent more expensive studios or flats. streets were completely expropriated.

, contents An aerial photograph [see p. 14] immediately shows that this giant build- The committees ing is completely at odds with the remainder of the architectural con- Since the nineteen seventies there text of the city. The project was car- has been a residents’ committee in ried out by one private consortium : the North East Quarter : the GAQ. the Société Espace Léopold (SEL). The residents organised the group The adjacent neighbourhoods of Et- to defend the residential character terbeek and Ixelles mostly retained of their neighbourhood. After all, the their residential character, but there attractive cultural heritage of the was a drastic change in the popula- ‘squares’ (Square Ambiorix, Square tion. People connected to the Europe- Marie-Louise, Square Marguerite…) an institutions were prepared to pay was put under pressure. During the much higher prices to live in the area. sixties and seventies the value of the In compensation for the office build- cultural heritage was insufficiently ings in the Espace Léopold, residen- recognised, and many buildings were i The implantation of immense office complexes like the European Parliament in the Rue tial projects were realised (including demolished in order to replace them Wiertz caused major scars in the existing urban fabric in various locations in the neighbour- among others projects along the Rue by higher and more functional build- hood. During the eighties and nineties, major interventions were often carried out without Wiertz and the Rue Godecharles), but ings. Meanwhile, those townhouses coordination : the Leopold Park was also gradually taken over.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know are again in demand, but mainly to Luxembourg, for instance or the ficials also joined the actions by the vironment for a longer period of time, be used as offices. Comité Pascale-Toulouse, the Comité residents. and they live there with their fami- 17 Since May 1981 the inhabitants Idalie and a few other very local com- The AQL, the GAQ as well as the lies. Amongst them, as is the case for and users of the southern neighbour- mittees. Most of the smaller commit- Riverains Jourdan were part of the all residents, there are people who hoods organised themselves into tees were part of the AQL. Coordination Europe, created in the are committed to a better quality of the AQL. The AQL was a coalition of During the eighties, the neigh- early nineteen nineties. their urban habitat and environment. six neighbourhood committees, the bourhood surrounding the Place Some joined the existing residents’ Ligue de Familles (Family Associa- Jourdan in Etterbeek had much to committees, including the AQL, the

, contents tion), local SME’s (like the Office des endure as well as a result of what The Eurocrats GAQ and the Riverains Jourdan. In Propriétaires, which employed dozens happened in the European Quarter addition, there are also people who of local people) as well as profes- located nearby : property speculation, Not everyone who works for or is only work for a short period for the sionals from the area, including sev- traffic problems, local shops that suf- connected with the European institu- institutions as well as large group of eral artists. The main purpose of the fered from a lot of competition from tions is equally involved in what hap- rotating trainees. These Europeans AQL was to be able to react together snack bars and restaurants, residen- pens in the European Quarter. generally have little contact with the to the Brussels-Europe Area Study tial houses, which were divided up In general the so-called Eurocrats inhabitants of Brussels, and mostly (BEA Study) [see 3.1.] The founders into small flats – which then in their could be divided in elected represent- live in the expats’ community. wanted to be able to make use of a turn were rebuilt into a flat hotel… atives of the EU Parliament, officials Coordination Europe always at- professional tool with legal and town The inhabitants felt inundated by of the EU institutions and various tached a lot of importance to main- planning expertise to deal with vari- people who simply made use of the groups that reside only temporarily taining good relations with the people ous aspects and monographs of the neighbourhood, but did not really in Brussels. working in the institutions. Gradual- BEA Study. From the beginning, they know it and who did not (really) live Those elected to the European ly, an increasing number of European stated clearly that they wanted to be there. Parliament remain most of all in- officials live in Brussels and the envi- autonomous and independent of any Against this background, the resi- volved in their own country. They ronment of the institutions. It takes subsidies from the authorities. Other dents’ committee Riverains Jourdan stay in Brussels on a regular basis a lot of time and energy (which is/ committees have also intermittently was created. Their goal was to safe- but they are not residents. Among was not always there) to maintain been active in that same neighbour- guard the living environment of their the officials of the other institutions good relations with the trade unions. hood : the businesses of the Place (lively) neighbourhood. European of- many settle down in Brussels and en- When we initiated legal proceed-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know ings before the Council of State at the beginning of the nineteen eight- 18 ies, to challenge the implantation of the Council of Ministers in a residential area, we acted together with the trade unions [ see 3.4.].

, contents Bral and IEB

Around 1980, Bral and IEB mostly reacted in a defensive manner to the expansion plans of the Council (the Justus Lipsius Building) and the ac- companying infrastructure building work (the relocation of the Belliard tunnel). We lodged an objection dur-

u The sometimes complicated institutional organisation of Brussels, Belgium as well as the European Union explains the far from harmonious implantation of the EU institutions. The inhabitants were aware that they would also profit from the arrival of Europe, but they always resisted against being deni- grated to a role of second-class citizens.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know ing the meeting of the commission Fragmentation everywhere tutions. The European Council, the Moreover, the European Union de concertation (consultation commit- Commission and the European Parlia- remains a relatively young institu- 19 tee) and together we took legal action From the start, the establishment of ment act in an autonomous manner. tion, which continually changes and against the expropriations in the resi- the institutions in Brussels has been A number of services like the print- expands. New member states join dential zone Comines-Froissart. characterised by a complete lack of ing works and the archives certainly and new competences are acquired. In 1986, Bral published the Pro- strategy and planning, both by the could be organised more efficiently. The decisions about these issues are grammamap Europa (Programme Dos- Brussels and Belgian authorities and The institutions do not have a com- a laborious process however, which sier Europe). In this document, we de- by the institutions. It resulted in an mon mobility plan either. makes it difficult to foresee how

, contents scribed the current situation of the often uncoordinated building craze, The structure of the Belgian state much space each of the institutions European presence and the impact which in many cases was directed by also makes it difficult to formulate a will need at a particular moment in on the neighbourhood, and the pos- the private sector. coordinated policy. Since the compli- time. sible on-going developments, and we The structure of the institutions cated reform of the Belgian state at the In spite of all its promises and argued strongly for integrated plan- also contributed to this situation. Af- end of the nineteen eighties, the com- policy declarations, the Brussels ning. We also asked to provide a clear ter all, the European Union decides by petences for urban planning in Bel- Capital Region has not succeeded in answer about a specific location for consensus and it was not able to ob- gium are divided over three levels : the overseeing a harmonious develop- the European Parliament. The Pro- tain a consensus on the matter of the federal state, the Brussels Capital Re- ment of the European institutions gramme Dossier Europe constituted location of the seat of the institutions. gion and the municipalities. All three with respect for the dynamics of the a change of direction for Bral : we no It took a long time before the defini- levels have competence for the EU in- residential areas. The residents of the longer reacted to projects and build- tive decision about the various seats stitutions. It is difficult enough to know European Quarter have always been ing applications, but produced our was reached. For that reason, the EU which particular bodies deal with the aware that they too would profit from own document to stimulate the dis- rented its offices for a long time on the various procedures, but in addition, the arrival of Europe, but they refused cussion about the medium term. private market, which each time man- the various levels regularly have a to be treated as second-rate citizens. aged miraculously to ‘just happen to change in their political majority. This This publication recounts what the have’ buildings available according to fragmentation is clearly an important inhabitants of Brussels have done to their requirements. At the same time, factor in the sometimes-disconcerting ensure that their interests were con- there is also a lack of coordination history of the establishment of the Eu- sidered in the debate. p between the various European insti- ropean institutions in Brussels.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know TIME TABLE

The planning Plan de secteur Plan régional Plan régional d’Affectation Pras II PRD II Code Bruxellois Règlement Enquête Publique de Développement I (PRD I) du Sol I (Pras I) de l’Aménagement du Territoire Régional d’Urbanisme du Pras Démographique context (CoBAT) Approval ‘Brussels-Europe Area Study’ Announcement of the public auction Public Auction of Plan Médiateur Brussels-Europe Accord Tripartite Schéma Directeur of the four plots the houses of the (Verhofstadt and Picqué) du Quartier Européenne Stévin Block 20 Convention Brussels Region – First cooperation Start of the ‘Comité de Suivi’ Building permit Place Jean Rey Projet Urbain Loi federal government agreement federal government – Competition Règlement régional Initiatives Convention federal Brussels Region Brussels, Capital of Europe Prodi Verhofstadt (Beliris) ‘Les Sentiers de l’Europe’ d’urbanisme of the public government – zoné PUL 1 European Institutions End of ‘Comité de Suivi’ authority Plan Durant Plan de Donnéa

Inauguration of the Audition European Parliament ‘Jardin de la vallée du Maelbeek’ , contents 1979 1981 1983 1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 2011 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 Community-based initiatives Suite Jourdan Suite II Livre Blanc Noir

AQL wins its argument List of the 26 interventions BruXXel in a summary proceeding Bilan d’une Etude Oubliée Sens Unique Suite Jourdan Suite IV PUM – Parc Léopold and AQL signs the ‘accord-cadre’ Program of the ‘Coordinateur les Nouvelles Start Stévin Project Suite Jourdan Suite III aux obligations contractuelles’ Rivières Urbaines Bral programmamap Europa Europe: a Living Campus Suite Jourdan Suite I

The elections Communes Communes Communes Communes Communes Europe + Region Communes Europe Europe Europe + Region Europe+ Region Europe + Region Belgian Presidency Europe + Region Belgian Presidency

Composition EU 10 members 12 members 15 members 25 members 27 members

u continue on p. 21

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know TIME TABLE

The planning Plan de secteur Plan régional Plan régional d’Affectation Pras II PRD II Code Bruxellois Règlement Enquête Publique de Développement I (PRD I) du Sol I (Pras I) de l’Aménagement du Territoire Régional d’Urbanisme du Pras Démographique context (CoBAT) Approval ‘Brussels-Europe Area Study’ Announcement of the public auction Public Auction of Plan Médiateur Brussels-Europe Accord Tripartite Schéma Directeur of the four plots the houses of the (Verhofstadt and Picqué) du Quartier Européenne Stévin Block Convention Brussels Region – First cooperation 21 Start of the ‘Comité de Suivi’ Building permit Place Jean Rey Projet Urbain Loi federal government agreement federal government – Competition Règlement régional Initiatives Convention federal Brussels Region Brussels, Capital of Europe Prodi Verhofstadt (Beliris) ‘Les Sentiers de l’Europe’ d’urbanisme of the public government – zoné PUL 1 European Institutions End of ‘Comité de Suivi’ authority Plan Durant Plan de Donnéa

The elections Communes Communes Communes Communes Communes Europe + Region Communes Europe Europe Europe + Region Europe+ Region Europe + Region Belgian Presidency Europe + Region Belgian Presidency

Composition EU 10 members 12 members 15 members 25 members 27 members

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 2. Good to know 3. FIVE STRATEGIES Over the years the Brusselse Raad voor het Leefmilieu (Bral), Inter-Environnement Bruxelles (IEB) and the 23 inhabitants’ committees of the European Quarter have used very different strategies to help shape their residential environment. There are five main categories : consultations, the development of a vision, the cultural approach, occupations and the legal-contractual approach. No single action or campaign is a pure illustration of any one of those categories ; usually a combination of approaches was used. For instance, some kind of consultation and/or development of a vision will be found in each action.

, contents We do not intend to compare the various strategies or styles of action. The efficiency of any choice does not only depend on the method alone after all, but also on a number of external factors. The analysis shows anyway that these external factors always determined the success of an action. We will carry out an evaluation for each category of actions, with a view to the future, to find out what works under which conditions. Where should you dedicate your efforts, and what are the limitations ?

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies 3.1. CONSULTATIONS 25 The most obvious way to exert influence is to participate in the organised consultation meetings. This includes the steering committees for studies or projects, the classical commissions de concertation (consultation committee) in the framework of the urban planning legislation and land use plans as well as the rare consulta- tive structures intended to search for solutions for specific problems.

, contents Most of their attempts to be involved in consultation about the EU-dossier left the inhabitants with a sense of profound disappointment. The search for the best way of involving inhabitants in strategic planning in a coordinated, transparent way and on the basis of equality still goes on.

The Brussels-Europe Area Study (1986-1987)

The context The European Commission had been the then European Economic Com- rope requested ever more space, which using its buildings around the Rond munity (EEC) and the national state, meant that Brussels immediately had In the early nineteen eighties impor- Point Schuman since the nineteen six- Belgium would construct and make to allow an exception on its recently tant actors from the business world ties. Now the European Council was office- and meeting space available for approved Plan de secteur (Regional and the authorities had the same pur- also going to have a permanent seat the Council of Ministers. Discussions Land Use Plan) (1979). The administra- pose : Brussels definitely had to become there : in 1987, building permission was about the expropriation plan and the tive zone that had been planned origi- the capital of Europe. The most impor- granted for the Justus Lipsius Building building permit for the Construction nally was too small and a residential tant condition to bring this about was (the Council of Ministers). The prepar- of the Justus Lipsius Building started at zone (the residential block Comines- to create the necessary infrastructure atory procedure was an uphill battle. the beginning of the nineteen eighties. Froissart) needed to be expropriated for the main European institutions. According to an agreement between During the protracted negotiations Eu- for public benefit.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations o Since the nineteen seventies, there has always been an active building-site somewhere in the European Quarter. The authorities might be prepared to inform the public about the major infrastructure constructions, as in the case of this poster, dated 1993. However, there is no question of genuine coordination about building-sites. © RBC-BHG

Still missing was a hemicycle for then Brussels Government ordered the European Parliament in Brussels. the first global study for the area of Because of political and diplomatic the European Quarter : the Brussels- 26 reasons the discussion about this is- Europe Area Study (BEA Study) (Étude sue could not take place on a public Espace Bruxelles-Europe), which for forum. After all, all member states had many people was the source of all committed themselves not to under- later EU plans. The intention was to take any initiative to provide a parlia- involve as many interested parties as

, contents mentary infrastructure. However, pro- possible in order to get a large major- posals circulated off the record. In the ity to agree with the growing Europe- Programmamap Europa (Programme an presence. This study was to reveal Dossier Europe) (1986) Bral argued to the needs in offices, housing, public end these backroom discussions, and facilities, mobility, ecosystems, so- to organise a discussion about all Eu- cial and cultural developments etc., ropean institutions in the quarter in based on the existing situation. At all openness whilst also including a the same time, management stand- location for the European Parliament. ards were to be laid down, like for After the granting of the building instance the maximum number of permit for the Justus Lipsius Building parking places for each office block. and the adjacent new Belliard tunnel, Europe still had insufficient space – The study : even without taking the Parliament operating procedure and result into account. The number of member states increased and competences The BEA Study was a process that were enlarged. In 1986, Secretary of lasted for almost two years. It was State Jean-Louis Thys, who was com- ‘assisted’ by a limited technical steer- petent for Land Use Planning in the ing group and an advisory commit-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations t The plans for an extensive project (CIC) on the location of the former Leopold brewery (photo) unexpectedly conflicted with the publication of the final conclusions of the Brussels- Europe Area Study. This demonstrates how a process lasting almost two years and involving over 30 stakeholders was thwarted by secret discussions. © AQL

tee : an enlarged roundtable of 30 to ing the European institutions, asso- 35 representatives of various policy ciations (including Bral) and inhabi- levels and administrations, includ- tants. Three research consultancies 27 collaborated in the assignment : They drew up a detailed overview of the t The influence of the Brussels-Europe Area situation as well as a series of pro- Study is noticeable until the present. BRAL posals to achieve urban development was also involved in the design of this moth- of higher quality for the neighbour- er of all European plans. © RBC-BHG/CERAU , contents hood at large. It was difficult for the involved inhabitants to attend the monthly meetings, which usually lasted an entire day. However, it constituted an important source of information for them, the only source of essential information. The result of the process was an entire series of measures on different levels. For instance, there was a proposal to allow higher office buildings in the area, on condition that the infor vulnerable road users. In refer- Regional Development Agency), houses vestor would construct public spaces. ence to planning and development, a would be renovated in those zones, This concept would later resurface in number of Zones d’Intervention Prio- and small enterprises would receive the Projet Urbain Loi (City project Loi). ritaire (ZIP) (Priority Intervention Zone) support. The purpose was to invest in The mobility problem was addressed were demarcated for city renovation the zones around the European insti- among other measures by reducing programmes. Together with the So- tutions to create a buffer zone, which the number of underground parking ciété de Développement pour la Région was to put an end to uncontrolled ex- spaces and by providing more space de Bruxelles-Capitale (SDRB) (Brussels pansion.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations The subversion of the consultation BACOB – and the Brussels Govern- fore, it was not adjacent to the Ber- size and the importance of the CIC- process : the CIC-plan ment (which at the time was still a laymont, Charlemagne and Justus project completely overshadowed the part of the Belgian government). Lipsius Buildings. One of the most im- dynamics of the BEA Study. All the 28 One month before the conclusions of Moreover, the new project was lo- portant objectives of the BEA Study, energy of the authorities was focused the BEA Study were made public, the cated outside the EU-zone as defined to contain the EU-buildings within on the CIC-project, whilst neither press suddenly discussed an exten- at that time, and it was even at the a small perimeter, could therefore time nor finances were left for the sive construction project on the loca- other side of the buffer zone. There- no longer be achieved. Moreover, the execution of the decisions of the BEA tion of the former Léopold Brewery. It Study.

, contents was immediately obvious that the so- The same architects who had de- called Centre International de Congrès signed the CIC-project were also co- (CIC) (International Congress Centre) authors of the BEA Study, but they had been designed custom-made for had never mentioned the CIC-pro- the European Parliament. Therefore, ject during that planning process. It there had to have been secret con- seemed as if the BEA Study with its sultations between the consortium extensive description of urban devel- of investors – the Société Générale and opment programmes in an extensive zone was to draw the attention away from ‘the real work’ that was planned surreptitiously elsewhere. u The residents’ committee AQL often re- The frustration and indignation quested illustrator Frank Pé for help to sup- of the associations of residents did port their communications. This drawing of not so much concern the fact that a almost 20 years ago unfortunately is still re- parliamentary hemicycle was to be markably up –to-date : private investors and build (as part of the CIC), but rather the authorities sit around the table in order the manner in which that decision to prepare a large project. Residents can only had been taken. Everyone suspect- stand idly by. © Frank Pé /AQL ed that a parliamentary hemicycle

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations o The Brussels-Europe Area Study was ap- BEA Study started, it had also already sol (PPAS) (Specific Plan for Land Allo- proved at the end of 1988. The implementa- been decided to construct another cation), the SDRB for the renovation tion of the programme –among others via flagship, the Council of Ministers, in projects and the national Ministry 29 the municipalities who were to draw up the a residential zone (according to the of Public Works (predecessor of the Specific Land Use Plans – was set in motion, Plan de secteur of 1979). current Beliris) for the infrastructure but there never was any question of an op- This course of events left the in- projects. However, the operational erational component. It never became clear habitants with great disenchantment. part of the programme was omit- who was to do what, let alone by means of It laid the foundation for the distrust ted. It never became clear who was which funds. © City of Brussels , contents and even cynicism of Brussels inhabi- to provide the funding, let alone who tants towards research consultancies would coordinate the actions. and development plans. More inhabitants of the imme- The Brussels Government only diate surroundings became active volved in the steering committee and approved the BEA Study in December member of AQL. They decided that the associations that had supported 1988 ; more than a year after the rein future they would deal with their them had invested a lot of energy sults had been presented. The scope new colossal neighbour as ‘advisors’ and (mostly unremunerated) time to of that decision never became com- rather than as combatants [see 3.5]. p gather the required information and pletely clear. The BEA Study resulted to prepare dossiers. They had accept- in an action plan and a programme ed their responsibility in what they to alleviate the effects of the EU pres- viewed as a potentially positive de- ence, but no clear commitments would arise at some time, but during velopment. However, when it became were laid down regarding the fur- the BEA Study, the Parliament was evident that the planning process ther development of the European never discussed. had not taken place in all openness institutions. The implementation of The consultation that had started and that the important decisions had that programme required the col- with so much acclaim therefore pub- been taken behind the scenes, they laboration of various services and licly lost its political credibility. The felt betrayed yet again. It was a sec- policy levels : the municipalities for residents who had been directly in- ond betrayal, because just before the the Plans particuliers d’affectation du

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations Plans as occupational therapy ?

Les Sentiers de L’Europe (1997) is in particular the atmosphere of in Nice the EU had decided that all scandal that is remembered about future European summits would In 1997, in cooperation with EU Com- this first international competition take place in Brussels. This provoked 30 missioner Erkki Liikanen, whose com- in the EU Quarter. One of the candi- a multitude of new plans and stud- petences included European real dates later won his court case, after ies for the European Quarter : Brus- estate policy, Brussels’ minister for Ur- he submitted a complaint concerning sels, Capital of Europe (October 2001) ban Planning Hervé Hasquin launched the unauthorized conflict of interest at the request of the president of the the international competition Les between the jury and two of the lau- European Commission Romani Prodi

, contents Sentiers de L’Europe. During the pres- reates. Moreover, the winning design and Belgian Prime Minister Guy Ver- entation, he stressed the importance had not been limited to the public hofstadt ; the Schéma directeur du of repairing the image and quality of spaces and the pedestrian connec- quartier Léopold-Schuman à Bruxelles life of the European Quarter by means tions, but it had also located a num- (Master Plan for the Léopold-Schuman of the reorganisation of public spaces. ber of new large-scale projects, like Quarter in Brussels) (November 2001), A few years earlier, the inhabitants Lex 2000, an expansion of the Council which is usually referred to as the had already formulated a series of of Ministers, which meanwhile has ‘Durant Plan’, after the federal min- proposals on this issue [see 3.2.]. How- been realised [see map p.13]. ister competent for Beliris ; the Axes ever, the inhabitants were not in- directeurs Bruxelles-Europe (Guide- i Les Sentiers de L’Europe (1997) : a competi- volved in any way in the composition lines for Brussels-Europe) (May 2002), tion intended to enhance public spaces and of the programme of the competition, The next series of ‘plans’ (2001-2008) better known as the ‘de Donnéa Plan’ interconnections. The results were never car- the explanation to the candidates or as they had been drawn up at the re- ried out because the costs were considered the judging by the jury. Hervé Hasquin In the period before Belgium took quest of the then Minister-President too high. © RBC-BHG/ Art&Build considered that ‘this would exert too over the presidency of the European of Brussels, and finally also the Om- much influence on the international Union (the second half of 2001) and budsPlan Médiateur Bruxelles-Europe character and external expertise’. after the Treaty of Nice (at the be- (2003), ordered by Prime Minister Guy The fact alone that so many dif- The prize-winning design was ginning of 2001), the development Verhofstadt and the new Minister- ferent bodies were involved in pro- never executed, for reasons includ- of the European Quarter gained mo- President of the Brussels Capital Re- ducing their own plans proves the ing the high cost price. However, it mentum. At the European Summit gion, Daniel Ducarme. lack of coordination. None of these

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations plans was based on well-organised diateur also included an exhibition. bain Loi. It was a large-scale project, ter plan experienced considerable participation ; moreover, none of One of the authors had invited the providing for the concentration of delays. p them had an operational part. inhabitants for a guided tour on a Sat- offices along the Rue de la Loi. This 31 The authors of the Ombudsplan urday morning. Unfortunately, there time, the Brussels’ government and t Following the Treaty of Nice in 2001 the EU Médiateur had spoken to several was also an EU summit at that time the European Commission decided decided that henceforth all European sum- expert witnesses during the prep- and the exhibition room had been re- that a global proposal would be based mits would take place in Brussels. This re- aration. After the plan had been served as a coffee lounge for the driv- on an international competition. The sulted in an uncoordinated plethora of plans completed – it was a thick tome con- ers on duty. In the end, the explana- programme and the judgment of the for the EU Quarter. This ‘Plan de Donnéa’ did not have a properly organised participation , contents taining 133 proposals and measures tion to the exhibition had to be given competition were decided complete- – the King Baudouin Foundation or- in a different room, without a chance ly without any public debate. At the either, let alone an operational component. ganised two round table conferences of seeing the exhibition itself… same time, the execution of the Mas- © RBC-BHG/Agora at the request of the federal govern- In 2008, the Schéma Directeur du ment. One of these conferences was quartier européen (Master plan for the aimed at the civil society (the cultur- European Quarter) was produced as al world as well as universities, trade well, which claimed to summarize unions, a number of organisations all the above-mentioned plans… a associated with the EU as well as complete déjà vu. The drafting of this Bral, IEB and ARAU). The other con- plan could no longer expect much en- ference included an arbitrary sample thusiasm from the part of the inhabi- of inhabitants. The intention was to tants. Another abundance of mono- obtain feedback to the proposals. The graphs and proposals was produced, conclusions of those round table con- the implications of which were un- ferences were included in a report, clear. The result of that information but the plan itself was not amended exchange was that nobody could see (nor was it executed). the forest for the trees. Moreover, it A telling anecdote from that pe- was followed by yet another new plan riod relates that the Ombudsplan Mé- of the EU Commission : the Projet Ur-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations Commissions de Concertation in the European Quarter

The system of public inquiries and The residents of the North East transformation was no less invasive, hotel and apartment project at the commissions de concertation (consul- Quarter were rather confronted with but came about by the multiplication corner of the Place Jourdan and the tation committees) is embedded in the ‘smaller’ projects and therefore with effect of small-scale projects. Chaussée d’ Etterbeek), applications 32 Brussels’ town planning legislation. individual public inquiries. In the We do not wish to give a complete by the political and cultural repre- Since the approval of the Plan de sec- south of the Leopold Quarter, one overview of these projects, for that sentations of several regions or fed- teur (1979), certain building permit large intervention has completely al- would make for a long list. However, eral states the residential buildings applications are governed by this sys- tered the environment : the implan- we will mention some of the impor- along the Rue Wiertz and the Rue tem. A commission de concertation tation of the buildings of the Euro- tant dossiers that the residents were Godecharles and so on.

, contents carries out an individual examination pean Parliament. Further north, the confronted with unexpectedly. In ad- of project applications. The commit- dition to the building projects of the tee issues an opinion to the authori- EU institutions, there were among Did participation in the commission ties, which then take the final decision others the Cortenbergh project (of- de concertation produce an effect ? about the permit. Inhabitants may fices instead of residential housing study the dossiers and have a chance on the Ave de Cortenbergh, Rue New- The inhabitants’ expertise and the to get their voices heard at these com- ton and Rue Fulton), the application knowledge of the dossiers ensured in missions de concertation. for the extension of the Centre Bor- some cases that ‘frivolous’ projects Since the nineteen eighties there schette at the Place Jourdan (the ex- did not receive a permit in the end : has been a plethora of public inquir- tension never happened but the pro- for instance, a project on the corner ies in the European Quarter, for both ject changed many years later into a of the Rue Joseph II and the Rue St- large and small projects. In addition Quentin was turned down, after it to the applications for the European had been clearly proved to the com- institutions, applications were – and o Red posters, enquêtes publics and commis- mission de concertation that the pro- are still being – submitted by lobby sions de concertation. Residents and their com- ject violated the legal building code groups, representations of member mittees have studied hundreds of dossiers. in various points. This was a blatant states and regions, lawyers’ offices, They were a source of information, but the example, because it concerned build- the hotel and catering industry,… in projects were usually too far advanced to be ings from the Block Stevin [ see 3.4.], for short the entire ‘entourage’ of the EU. able to really influence them. which the authorities had imposed

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations 33 , contents

The block of houses situated on Chaussée d’Etterbeek, Rue Belliard, and Rue Froissart has had an eventful history of blight and speculation. The result is that several townhouses with cultural heritage have been demolished. They had to make way for new office buildings and dwellings.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations very strict technical requirements eral context or agreements that had at the public auction. Such projects been made at a different level. should never even have made it to One of the fundamental prob- 34 a public inquiry, as they were in fact lems for the neighbourhood is that inadmissible. It clearly demonstrates each town planning application is that the (too often shifting) members judged separately. There is no tool of the commission de concertation to measure the pressure of the en- i On this photograph, taken in the nineteen had too little knowledge of the gen- tirety of all projects. The Plan régional d’affectation du sol (PRAS) (Regional nineties during one of the many press conferences, we recognise among others Marcel Ri- , contents Land Use Plan) and the Plans particuliers d’affectation du sol (PPAS) (Specific jdams, former chairman of BRAL, Jean-Michel Plan for Land Allocation) ought to deal Mary, at that time general secretary of the IEB with this, but they allow too many ex- and the late Henri Bernard, the driving force ceptions : because of the value of the of the residents’ committee AQL. © Way Press cultural heritage, facilities for collec- International tive use or public services and so on. Moreover, the authorities were also concerned not to deal too severely with the EU. Thus, the function and the social composition of the entire neighbourhood gradually changed. It o Obviously it would be impossible to con- was not immediately visible, but all struct a tunnel under the Justus Lipsius the more noticeable for the residents. Building (Council of Ministers). For security Experience has taught us that reasons, the tunnel needed to be relocated to once large projects with clear politi- run under the present Place Jean Rey. This is cal support are being discussed in the only one of the many projects for which the commission de concertation, there is commission de concertation only served as a little that can be changed. pure formality. © RBC-BHG

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations Comité de Suivi (1996-2001)

In total, a lot of time and energy At the end of 1996, Henri Simons, al- has been spent in the analysis of the derman for Town Planning of the City various applications for permits, the of Brussels, organised a consultation 35 information and mobilisation of the between representatives of residents’ neighbourhood and the preparation committees and the EU institutions. of an argument to be presented to The federal government, the Region the commission de concertation. The and the neighbouring municipalities residents frequently asked for assis- of Ixelles and Etterbeek were also in-

, contents tance from residents’ federations like vited. This initiative first was referred Bral and IEB and other specialised to as the Comité Europe-Habitants, associations for urban planning, mo- later it became the Comité de Suivi. bility or cultural heritage. The press The Comité de Suivi was not a steer- was repeatedly involved in order to ing committee linked to a project or increase the impact of the interven- study, but a forum where all involved tions. Even if the residents did not partners of the authorities were pre- think that their contribution at the sent and where the representatives commission de concertation could of the residents were also entitled to still bring about any amendments submit points for discussion. Bral and to the project, they still carried out a IEB made a clear decision not to take policy of being present there, in order part in this consultation, in order to tation a clearer structure with a per- i According to Coordination Europe the reno- to avoid that their silence would be give priority to direct consultations manent secretariat from the spring of vation of the Leopold Park was a bone of con- interpreted as consent. with the residents and volunteers of 1997. From 1997 to 1999, the Comité tention in the Comité de Suivi. Without the Repeatedly, the commission de con- the residents’ committees (GAQ, AQL de Suivi met very frequently, during pressure of the Coordination, most of the park certation was used as a forum to and the Riverains Jourdan). some periods on a monthly basis. The was likely to be taken over by the European In- emphasize the general demand to Because of the occupation action then EU Commissioner Erkki Liikanen, stitutions, in stead of being a neighbourhood involve the residents and residents’ of Sens Unique [ see 3.4.] the city of supported the initiative and attended park for the surrounding residential areas of committees in global planning. p Brussels gave this forum of consul- the first meetings in person… Etterbeek and Ixelles. © Riverains Jourdan

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations A structure is one step... cause not all partners took the con- After all, the entrance to the park Consultation should also lead sultation equally seriously. along the busiest residential streets to implementation Coordination Europe invested a lot One of the 26 points on the pro- was always closed. Thanks to fund- 36 of time and energy in the Comité gramme was the new layout of the ing by Beliris, a thorough refurbish- The main obstacles to the implemen- de Suivi. It submitted very well pre- intersection Chaussée d’Etterbeek ment took place like the cleaning tation of the agreed measures were pared points to the agenda, and took – Rue Belliard [see map p. 13]. The of the ponds. However, several of not only the lack of funds, but also on most of the work. They proposed committees, the Brussels Region the footpaths were enlarged and the fragmentation of competence better pedestrian crossings in the and the City of Brussels came to an reinforced to allow car traffic, and the lack of communication. The

, contents European Quarter for instance, a agreement about the plotted route which occurs on exceptional occa- disappointment after the BEA Study shuttle bus for the European area as of the Maelbeek valley and the ex- sions, for instance when the Solvay was followed by a further sense of well as the renovation of the Leopold tension of the Leopold Park up to library is used for special events. let-down, this time because of the Park. the new square. However, Beliris Meanwhile the buildings and the Comité de Suivi. It became evident In the framework of the com- completely dismissed that compro- use of the park are gradually be- that Coordination Europe would need petition Les Sentiers de l’Europe mise. Beliris submitted its own ap- ing privatised. The Solvay library, a to take further action. There certainly Coordination Europe drew up a plication in 2000 and also provided listed building, which had been re- was no shortage of plans for the EU programme consisting of 26 points, the funding to realise its proposal. stored by public funding, has been Quarter, but this hardly made for any with which it wanted to influ- The present route and the adjoin- hired by a European lobby group, a local improvement for the residents. ence the agenda of the competi- ing Square Jean Rey needed to be crèche of the European Parliament Coordination Europe adjusted its list tion (1998). They concerned a list constructed quickly, in preparation has been established in the East- of demands and requested a so-called of small limited interventions, for the Belgian presidency during man building and it is soon also to ‘Coordinateur aux obligations con- which would significantly improve the second half of 2001. This strat- become the location of the House tractuelles’ (Coordinator of contractual the access to the neighbourhood. agem also hit the residents particu- of the History of Europe. In other obligations), who would need to ensure This programme was proposed and larly hard. words, the condition of the park the management and coordinated discussed in the Comité de Suivi. During the first meetings the has certainly been given a lot of at- implementation of the plans and pro- A sometimes-painful consensus residents had also raised the is- tention, but it was not undertaken jects on the various levels. was reached on a number of those sue of increased access and better in order to provide a green space According to Coordination Eu- points. The process was painful, be- maintenance of the Leopold Park. for the neighbourhood. rope, the federal level needed to ap-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations also to provide a suitable infrastruc- taking into account both staff and ture for the European summits. Too visitors. many important partners failed to at- 33The drawing up of scenarios for 37 tend the Comité de Suivi, which was the organisation of large events said to be ‘only’ an initiative of the like summits, taking into account City of Brussels. the access to the neighbourhoods. Coordination Europe set out the 33A sound management of construc- following tasks for this coordinator : tion sites, with permanent supervi-

, contents 33The management of the conse- sion and adjustment to limit the quences of the interventions on nuisance as much as possible. the quality of the urban habitat and environment in the surround- Coordination Europe elaborated the ing neighbourhoods ; proposal in 2001. It was presented to 33The production of a permanent the Councils of Mayor and Aldermen and current overview of the vari- of the City of Brussels, Ixelles and ous sites and the monitoring of the Etterbeek as well as the federal gov- legal provisions and implantation ernment. However, it did not produce of new projects (this was an es- any results. p sential requirement if you consid- i In order to enrich the state coffers, the point that coordinator. After all, the er for example that at the end of Régie des Bâtiments (federal Building Agency) European institutions had agree- 1996, the Régie des Bâtiments (fed- planned to quickly sell off four plots in the EU ments with the federal level about eral Building Agency) planned to sell Quarter. However, the Régie was not familiar the financing of the infrastructure a property, which it did not even with its own dossiers ; it was not allowed to of the European Parliament and the own). sell those plots and was not even the owner other institutions. After the Treaty 33The production of company trans- of one of them. of Nice, the federal government was port plans for the new buildings,

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations Conclusions

Negative 33Consultation requires a commit- no longer possible to differentiate ment of the participants. At least between the state of affairs and the A consultation between inhabitants they have to be present, and their points under discussion. The con- 38 and the authorities and/or private mandate needs to be clear. In the sultation was not well defined. In sector is not self-evident. A number Comité de Suivi the concept was both cases the planning processes of factors have a negative impact on definitely too informal. Important lasted for more than a year. There the consultation. Some factors even partners (like the federal authori- was no information if and when completely prejudice matters : ties) usually did not attend. People (partial) decisions were to be taken

, contents 33First of all, the various partners came too often in a personal capac- and there was no feedback to the in the consultation do not have ity and their institutions did not re- various participants in the consul- equal standing : neither in their ally consider this as a mandate. The tation. In that context, it is impos- role in the decision, nor as far as longer the consultation lasted, the sible to have an efficient influence access to information and ways to more people were absent. The con- on the policy. Although the resi- process that information, nor as sensus that was achieved could not dents had been invited, they were far as their economic position is be put into practice. After all, what no more than recipients of informa- concerned. The large contribution is the value of a consensus that is tion and had therefore no influence from the European institutions to reached without the attendance of on the discussion and the decisions. the Brussels’ economy plays a de- the most influential actors ? ciding role in the decision making i The purpose of an enquête publique is to 33The participation in consultation is process. The Brussels’ and federal 33In many cases of consultation, it is make concrete remarks in reference to a spe- frustrating if important decisions authorities wish to avoid at all not clear what points will be dis- cific plan. However, there are often so many are taken elsewhere. That was the costs for Brussels to lose its privi- cussed and who can take decisions monographs and new information, that in case for the BEA Study, the Comité leged position as capital of Europe, about which issues. For instance, the end you no longer know what has already de Suivi as well as for the Schéma and therefore they tend to accede there was such an abundance of been decided, what the long-term ideas are directeur (Master Plan). more to the questions (or even de- monographs and information dur- and which are the real points under discus- mands) of the institutions. ing the BEA Study and the Schéma sion. In that case, it is impossible to make re- 33The recognition and framework of directeur (Master Plan) that it was ally relevant observations. © RBC-BHG the Comité de Suivi was a direct

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations result of Sens Unique, the occupa- directeur. The main challenge is will of other representatives. This mered that point home, but obvi- tion action by the residents. This to process, combine, and analyse made it possible to obtain access to ously with insufficient result. In the is a clear victory in itself. However, that information and to draw con- the right person to address specific conclusions of the Ombudsplan me- 39 because of the unclear process of clusions. That has certainly been problems. diateur (2004) a type of organisation decision making, the irregularity of one of the strong points of the was proposed, which might have the various partners and the ‘coup’ committees and of Coordination 33During the course of the consulta- partially satisfied their demands. by Beliris concerning the recon- Europe. Although people rarely tions, the strategy of the inhabi- However, none of the Ombudsplan struction of the Square Jean Rey, commit themselves to committees tants evolved. They were first pre- mediateur was ever implemented

, contents the Comité de Suivi fizzled out into for long periods of time, this has sent during the steering committee and neither was the structure. a talking shop. The last meeting proved to be a strong point in the of the BEA Study. Based on those took place in March 2001. European Quarter. Here the resi- experiences, Coordination Europe Recently, the concept of a structure dents’ committees often proved to formulated their demand for a of guidance is gradually finding ac- have more continuity and knowl- more permanently structured con- ceptance. You might argue that the Positive edge of the dossiers than some sultation with all partners involved Agence de Développement Territo- administrations. At any rate, the as well as more opportunities to rial (ADT) (Agency for Territorial Devel- In spite of all of this, some positive el- administration’s familiarity with help set the agenda. Thereby they opment) has been founded with that ements can be found in the consulta- the dossiers and its expertise has raised the standard and argued for intention in mind. For the major play- tion strategy : decreased over the course of the consultation linked to supervision ers in the European Quarter, however, 33By means of the various types of years, because so many of the of the implementation. It is neces- this structure will still need to prove consultation, the residents ob- studies were outsourced to exter- sary to make plans and to consult, that it carries sufficient authority. tained important information : nal research consultancies. but in the end, it all comes down Although there is a more im- that happened in the case of the to the implementation. The many portant flow of information, for the classical procedure of the en- 33Consultation structures facilitate different partners need a structure moment the willingness to involve quêtes publiques (public enquiries), personal contacts. Because of their with a clear mandate to see to the residents on a regular basis in global but also in the case of the long- knowledge of the dossiers and their observance of agreements and if consultations about plans and their term consultation procedures like involvement, the residents won re- necessary to enforce them. For a implementation is not enough pre- the BEA Study and the Schéma spect and could count on the good- while, Coordination Europe ham- sent either. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.1. Five strategies | Consultations 3.2. STUDIES BY THE INHABITANTS Developing visions and carrying out studies is an indirect, but therefore no less efficient way of taking action. By developing and elaborating your own alternatives, you as resident, committee or association can have a positive impact on a planning process. There are numerous examples. Each remark about a proposal or plan, whether during a meeting of the commission de concertation (consultation committee), in a press release or on a banner during a street action, contains in fact an alternative. Bral considers it important to respond by proposing a very carefully prepared solution. Based on the slogan ‘if they do not do it (properly), than we shall’, we shall elucidate two publications 41 with concrete alternatives, prepared by residents.

t During an analysis of the traffic situation in the EU Quarter, the inhabitants are the pre-em- inent local experts. Within the framework of a call for projects Bruxelles Mobilité, the inhabi- , contents The Livre Blanc Noir (1994) tants from various neighbourhoods worked together to carry out a survey among passers-by at the beginning of the nineteen nineties. All this resulted in the so-called Livre Blanc Noir (Black The context Stratec was commissioned to review White Paper), the impact of which unfortunately remained limited. © AQL (Lagasse) the organisation of the traffic in The Brussels-Europe Area Study the BEA Study. In 1991, the consult- (BEA Study) (1986-1987) contained ing firm Van Wunnik completed the an extensive section on traffic. This study entitled ‘Public Spaces in the set out concrete proposals including Leopold Quarter’. The objective of a hierarchical ranking of streets to these studies was primarily to tackle keep through traffic out of residen- the problems of car traffic and to im- tial streets, a limitation of the num- prove the access to the institutions. ber of parking places, the increased That approach did not change the frequency of public transport and mobility problems of the residents, so on. However, like other important however. On the contrary, the situa- parts of the study, that section was tion deteriorated day by day. never implemented either. In 1991, the Gemeenschapscen- Other studies were carried out trum (community center) De Maalbeek later on. In 1989, the consulting firm of Etterbeek took the initiative to an-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.2. Five strategies | Studies by the inhabitants Place Jourdan, the Linthout neigh- King Baudouin Foundation. It con- bourhood (Bosman Park, Rue Gérard, tained a number of very accessible as well as Rue d’Oultremont and Rue tools to measure traffic intensity Degroux) and the Etterbeek section and speed among others. In dozens 42 of the Ligue des Familles. Together of locations, the volunteers meas- they organised the participation of ured the intensity of the car traf- the remaining local residents. fic and the volume of the parking On the one hand, there was a pressure. The underlying concept

, contents core group, which distributed a was the quantification of subjective survey they had prepared among complaints. In this way, both ‘sub- the members and sympathizers. Its jective’ and ‘objective’ data were purpose was to get an insight in the collected, which were subsequently routes most used by the residents, analysed with the assistance of ex- i The residents’ local knowledge of the area framework of the call for projects including bottlenecks and propos- perts. can and always should complete the ‘official’ Bruxelles Mobilité, organised by the als to improve matters. There was This project was very time con- studies commissioned by the authorities. In King Baudouin Foundation, and the a high degree of participation : two suming ; it included the mobilisa- reference to the production of the Livre Blanc result was the so-called Livre Blanc thirds of the forms were returned tion of the various associations, Noir, the residents of the EU Quarter advocat- Noir (the Black White Paper). completed. Yet some effort was re- the production and distribution of ed among other things for the setting up of quired to fill in the forms, as the the survey about the census and its 30 km zones and a hierarchical street lay-out. participants had to draw routes on processing into the formulation of These and other ideas were illustrated in this The project a map and add remarks, experi the conclusions. However, at the be- colourful map. © GC Maalbeek ences and suggestions. ginning of 1994, the bilingual leaf- A number of residents’ commit- In addition, there were volun- let Livre Blanc Noir was finally pre- tees that was active in the area ad- teers to carry out the census based sented to the press and the policy alyse the mobility situation in their joining the one covered by the BEA on the Workbook Bruxelles Mobilité, a makers. area from the perspective of the res- study, joined forces. They included notebook that Bral had put together In addition to a presentation ar- idents. The initiative fitted into the the residents from the areas of the in 1992, also with support from the guing for a better design of public

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.2. Five strategies | Studies by the inhabitants Europe : a Living Campus (1995)

spaces, the Livre Blanc Noir con- The context future, and to draft a common pro- reach a consensus. The federations tained three guiding principles : gramme for the future development IEB and Bral provided substantive, 33The creation of ‘urban chambers’ In September 1994, Coordination Eu- of the European neighbourhoods. Its strategic and logistic support. In ad- according to the borderlines of ur- rope presented its ‘Bilan d’une Etude aim was to formulate a thorough and dition, ARAU and two trade unions of 43 ban districts, with the imposition oubliée Espace Bruxelles Europe’ (As- well-considered programme from the European officials were also involved of 30 km zones within those cham- sessment of a forgotten Study Brussels- perspective of the residents. in the discussion and they co-signed. bers and the introduction of a sys- Europe Area) by means of a press The result was a well-organised tem of residential parking ; walk. This document called to mind and clear brochure, published in

, contents 33A hierarchical classification of the main conclusions of the BEA The project three languages : Wijken voor Europa / streets : important approach roads, Study, which had been ratified by the Europe en Quartiers / Europe : a Living district connecting roads and local government, the proposed actions Contrary to the defensive position Campus [40 p.]. First of all, the bro- streets ; and most of all the results achieved that the residents had to take up each chure offers a clear overview of the 33A number of proposals for the re- and the efforts of the various policy time during the numerous commis- history of the area, as experienced by design of the public space to pro- bodies. sions de concertation about ever more the inhabitants. Because of its com- mote pedestrian traffic. p The balance sheet showed a very new building plans, Coordination Eu- pact form, the many illustrations and negative result : hardly anything had rope elaborated a global project for clear brief background texts, it was been done to realise the promised the future of the European Quarter : suitable for a wide public and could buffer zones. Yet those zones were the Northeast Quarter and the neigh- be distributed on a large scale. required to prevent an unrestrained bourhoods surrounding the Rond Some details of the brochure expansion of the institutions. Even Point Schuman, the Place Jourdan and might well be outdated at present, worse, the authorities had neglected the Place Luxembourg. This project but the key ideas remain up to date : the whole concept and had tolerated allocated space for the European in- two axes should provide a structure infringements. There was barely any stitutions, but with respect for the re- to determine the development of the reaction to the publication of this quirements of the area. area. On the one hand, the Chaussée poignant assessment. It took very many discussions and d’Etterbeek operates as a north-south Coordination Europe then decided consultations between the residents’ connection, as a residential boule- that it was time to think about the organisations of the various areas to vard with mixed functions linking

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.2. Five strategies | Studies by the inhabitants Ixelles and Saint-Josse. On the other The objectives hand there is the ‘city path’ which runs from east to west along cultural Europe : a Living Campus was a com- and green stops : from the Cinquan- mon platform text. Coordination Eu- 44 tenaire Park, along the Rond Point rope had been established to unite Schuman, the Leopold Park across forces and to speak as much as possi- the esplanade of the European Parlia- ble with one voice. This was necessary ment and the Rue Luxembourg to the in order to transcend the sometimes

, contents Place Royale. local interests of the committees, for A map is included in the centre the priorities of the Northeast Quar- of the brochure, and shows the resi- ter are not identical to those of the dents’ proposals in colour. Together area surrounding the Chaussée de with the scale model that was pro- Wavre and the Place Jourdan. Europe : duced later for the campaign of the a Living Campus was a mobilising Fondation Sens Unique, it proved to be project, both internal and external. It a handy didactic tool for the discus- brought about a growing consensus sion about the future of the areas. about the common interests. Moreover, it also constituted an invitation to the various policy bod- o The brochure ‘Europe : a Living Campus’ from 1995 ies to restart the dialogue (which the was a joint report by the committees united in Coordina- Steering Committee had provided dur- tion Europe. The key ideas of this beautifully illustrated ing the BEA Study). That consultation platform text remain current issues until the present : the between all bodies involved as well as core idea of two axes which would provide a structure the residents should bring about a new to determine the development of the area was also in- vision for the more extended European cluded in the Schéma directeur du quartier européen (2008). Quarter, and could serve as a guiding © Coordination Europe principle for future developments. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.2. Five strategies | Studies by the inhabitants Conclusion

In our evaluation, we distinguish be- instance was unique. It had al- tween the internal and external level. ready mounted an exhibition about the European Quarter in the past in cooperation with the Louis 45 Internal Paul Boon Kring and in this way it raised awareness among its grass- These two publications were mile- roots. They went even further by stones for the committees and the taking the initiative for the project

, contents organisations for the following rea- Bruxelles Mobilité. Bral attaches sons : great value to these kinds of ini- 33Elaborating and deciding a point of tiatives, but unfortunately, it is view has had an educational and very rare that community centers emancipatory aspect : research was (gemeenschapscentra) take the carried out and in the case of the lead in this way. Livre Blanc Noir (Black White Paper), fieldwork was done with traffic counts and surveys. People’s own experiences were objectified and became transferable. u Within the territory of the EU 33The collective research, analysis Quarter, neighbourhood- or resi- and development of a vision rein- dents’ committees do not always forced the internal cohesion of the defend the same interests. How- groups. ever, they do agree about the 33They gave rise to coalitions with fact that long-term solutions not always obvious partners. need to be found for the traffic The involvement of the Gemeen- congestion often caused by schapscentrum De Maalbeek for the European presence in the area. © IEB

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS In the case of Europe : a Living External Campus were polite and friendly, monplace. For instance, nobody Campus, the cooperation with the but nobody took up the offer. The doubts any longer that two axes trade union of the European Offi- On the external level, our evaluation press warmly welcomed the Livre provide the structure for the lines of cials and the European Civil Ser- is less positive : Blanc Noir, but apart from that, development for the area. p 46 vices Union was important. Those 33Incredibly, the direct response to nothing happened. The inhabitants two trade unions co-signed the the content of both the Livre Blanc did not receive any recognition ei- vision of Europe : a Living Campus Noir and Europe : a Living Campus ther for their practical experience. t In order to prevent the rampant expan- and for the inhabitants this signi- was non-existent. In spite of the 33However, we conclude that in all fu- sion of the EU institutions the Brussels-Eu- rope Area Study proposed the idea of ‘buffer , contents fied the recognition of their pro- substantial dossiers, the presenta- ture master plans up to and includ- gramme. tion and the concrete proposals, ing the most recent Schéma direc- zones’. None of this was realised. On the 33Both publications were used for a those responsible for policy did not teur du quartier européen (Master contrary, the political authorities allowed long time as a showpiece to pre- take the content seriously. Nobody Plan for the European Quarter) (spring overt infringements. The residents of the EU sent the vision of the inhabitants requested the details of the studies 2008) core ideas from Europe : a Liv- Quarter sometimes had to pay dearly for the for the area. to verify them, let alone use them. ing Campus have simply been cop- hospitality extended to Europe. © Bral (Luc The reactions to Europe : a Living ied. Its contents have become com- Verhaegen)

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.2. Five strategies | Studies by the inhabitants 3.3. THE CULTURAL APPROACH Suite Jourdan Suite was a musical event where inhabitants and European officials met each other during concerts in private residences, in public places and in European buildings. Dur- ing the period between 1996 and 2001 it took place four times.

48 The context

The initiative for a large musical beek. After all, in 1993 the Louis Paul u With the event of Suite Jourdan Suite the residents

, contents happening was taken by the people Boon Kring had organised ‘Brussels who lived on and around the Place Capital… as well as residential city ?’ changed tactics and de- Jourdan, and who were united in a project with debates, an exhibition cided to take positive ac- the residents’ committee Riverains about the EU neighbourhood, walks tion. By playing music to- Jourdan. For many years, the com- and a publication. gether, the residents and mittee had been dealing with town The Riverains Jourdan and the the Eurocrats became bet- planning dossiers concerning their Louis Paul Boon Circle succeeded to- ter acquainted and gained neighbourhood and it reacted when gether to convince an impressive list respect for each other. necessary. In this way, the committee of partners to support the project : the © Riverains Jourdan always tried a ‘defensive approach’ association of businesses of the Place in raising public awareness about Jourdan, the other residents groups the disruption of the urban habitat. of the European Quarter – the Groupe However, after many years of cam- d’Animation du Quartier Européen de sic academies of Etterbeek, the French Liaison Office Brussels-Europe. The paigning and reacting against issues, la ville de Bruxelles (GAQ) and the As- speeking Centre Cultural Espace Office considered this musical event they decided in 1996 to change tack. sociation du Quartier Léopold (AQL) –, Léopold Senghor, the Dutch speaking a concrete illustration of its dual mis- The inhabitants’ committee found the residents’ federations Brusselse Gemeenschapscentrum De Maalbeek, sion to help European officials in their in the Louis Paul Boon Kring a partner Raad voor het Leefmilieu (Bral) and the municipality of Etterbeek, the City integration in Brussels and to make with experience in organising com- Inter-Environnement Bruxelles (IEB), Brussels, the European Parliament, Europe better known to the inhabi- mitted cultural spectacles in Etter- the Dutch- and French language mu- the European Commission and the tants of Brussels. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.3. Five strategies | The cultural approach – Suite Jourdan Suite o In total, four editions of the musical happening Suite Jourdan Suite took place in the EU Quarter. Inter-Environnement Bruxelles (IEB) featured the event on the front page of its magazine of the time Ville et Habitants The event : Suite Jourdan Suite (1996-2001) (now : Bruxelles en Mouvements) © IEB

The inhabitants wanted to demon- European Parliament. The purpose strate that there was a lot going on of Suite Jourdan Suite was to bring 3312 October 1996 : The European in their neighbourhood in spite of the about mutual contacts. An enduring Parliament opens its buildings for growing and threatening shadow cast acquaintance would help the people the public and agrees that the im- by the office buildings. That goal was who resided and those who worked mediate environment is taken over. 49 not innovative in itself ; however, it in the so-called European Quarter to For this edition, a scale model was used a new strategy : music. live harmoniously together. produced of the proposals for the Brass bands and the public brief- After fifteen months of prepara- Maelbeek valley as set out in Eu-

, contents ly brought new life to undeveloped tions and rehearsals and an intensive rope : a Living Campus [ see 3.2.]. plots of land. The focus was on the promotional campaign with a press 339 May 1998 : The intensive coope- Chaussée d’Etterbeek, which was to conference, a colourful poster and ration between the merchants of be turned again into the arterial road a lot word of mouth advertising, the the area resulted in an Open Party of the lively residential city in the first edition of the event attracted (the contribution by the inhabitants) on the Place Jourdan. In addition heart of Brussels Europe. The adja- around 5,000 visitors. The programme performed by hundreds of musicians to the musical event, there were cent ‘Van Maerlant’ plot (which the paper was for sale in five locations in – both amateur and professional – also exhibitions to remind people federal authorities had wrongfully the area. During the afternoon, it was who all lived and/or worked in the of the disappearance of the houses offered for sale – [see 3.4.] was taken also possible to get to know the area area. The long and intensive period of and artists’ workshops on the even over by Brazilian rhythms. For a few in a different way : via an exhibition preparation forged unique contacts numbered side of the Rue Gode- hours, the illegal parking lot was to of films and photographs, art, old between the inhabitants and the Eu- charle and the Rue Wiertz. dazzle like the future Place Europe post cards, maps, drawings and so on. ropean officials. 3327 November 1999 : In collabora- that had been planned there and that The Jourdan Suite was performed Each of the four Suite Jourdan tion with City Mine(d), an agency was to become a reflection of a viable, in the Cultural Centre Espace Léopold Suite-events was different. Each time producing social-artistic inter- democratic and humane Europe. Senghor. This music had been espe- different points were emphasised and ventions in the city, the theme of European officials played mu- cially composed for the occasion. It new collaborative associations start- ‘eternal construction sites’ is ela- sic in private houses. Inhabitants was a unique total work of art, a sym- ed up. Each time, the grand finale was borated. In the centre of the Place brought music to the buildings of biosis of Beethoven’s ninth symphony the performance of the Jourdan Suite. Jourdan, an enormous scaffold is the European Commission and the (the European anthem) and folksongs Here follows an overview : erected. This is the starting point of

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.3. Five strategies | The cultural approach – Suite Jourdan Suite a number of walks along a musical route. Residents open their houses, merchants their shops and schools their halls. 3313 October 2001 : During the af- 50 ternoon, there is a walk along various musical locations. Two lecturers from the Sint-Lukas

, contents school of Architecture have designed awnings for the occasion to enhance the visual recognition of the various locations. During the performance of the renewed Jour- dan Suite, a video film is projec- ted which depicts the contrasting life in the European Quarter in 7 scenes. During this Suite Jourdan Suite brass bands ensured the connection with the Leopold Station where the collective BruXXel started an occupation, which would last for months. [see 3.4.]. p i Le Parcours santé du Quartier Léopold : the goose board game, designed by illustrator Frank Pé for AQL, should obviously be regarded with a pinch of salt. If you survived the course in spite of the major challenges and the many obstacles in the EU Quarter, you were allowed to become a member of the residents’ committee. © AQL/Frank Pé

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.3. Five strategies | The cultural approach – Suite Jourdan Suite u Filmmakers are also often inspired by the surrealistic situations in the EU Quar- ter. © Monique Quintart Conclusions 33For each edition of Suite Jourdan for Suite Jourdan Suite Suite the public turnout was a suc- and also carried out a not- cess : each time there were around ed intervention in the tent 500 participants and over 5,000 of Sens Unique [see 3.4.], the visitors. For a large part, this was residents’ committees were 51 due to the mobilisation efforts of never invited during that pe- the neighbourhood committee, but riod, for instance within the also to the press, which paid a lot framework of the competition

, contents of attention to the original event. Sentiers de l’Europe to share The Jourdan area, which usually their local expert knowledge or was viewed as a ghetto of offices to give their opinion about pro- was put in the spotlight as an ani- jects. mated residential neighbourhood. 33The four editions took place with- 33Suite Jourdan Suite brought people out proper financial support. At together : not only residents and first, only expenses were reim- officials, but also top officials and bursed, but in later editions, even politicians. However, in the long that was omitted. The event, which term those new contacts did not developed from the grass roots, bear fruit. The new relationships unfortunately was never taken up and the goodwill created never suc- by the political institutions. Yet, ceeded in transcending the infor- the European institutions could mal level. In spite of the ‘good con- have grasped this opportunity to tacts’ with EU Commissioner Erkki show that they were not a sealed Liikanen, who after all opened the fortress and that they valued coop- doors of the European Commission eration with the neighbourhood. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.3. Five strategies | The cultural approach – Suite Jourdan Suite 3.4. THREE OCCUPATIONS Between 1997 and 2001, three occupations or actions by squatters took place in the immediate environment of the European institutions. The local committees did not initiate the actions, but they gave them their intensive support.

53 Sens Unique (a week in 1997)

, contents At the end of 1996, the Régie des Bâ- and did not impose any obligations. ried out and the distribution of the timents (federal Building Agency) an- They completely ignored existing – charges and costs. The conventions nounced the public auction of four legally binding – agreements and the also set out specific ‘compensations’ plots of land in the European Quar- crucial strategic role of these sites. and decided the use of these urban ter : the so-called Parc Anonyme, After all, each of them had a ‘past’. wastelands that had been the result Comines-Froissart, Van Maerlant and During the nineteen sixties of the real estate policy of the past. a site adjacent to the Résidence Palace and seventies, all these residential Each of those four plots of land was [see map p. 54]. A diverse group of Brus- blocks had been ‘sacrificed’ in favour cited explicitly in those legally bind- sels’ activists felt that they had to re- of the EU institutions, their possible ing provisions. act to this and put up a circus tent on expansion and adjacent infrastruc- The auction announced in 1996 the Van Maerlant plot. ture. Houses were demolished and/ did not refer in any way to those or expropriated. During the second provisions and in some respects was half of the nineteen eighties, con- completely in contradiction with The context ventions were adopted between them. This move by the Régie des Bâ- i The residents’ committees put an archi- the federal authorities and the Eu- timents caused a number of city ac- tectural model together in order to visualise The sale of the plots of land was en- ropean institutions (1985), and the tivists to react by setting up a tempo- their vision of the area. EU Commissioner tirely dictated by financial motives. Brussels’ Region and the federal rary Fondation Sens Unique. Erkki Liikanen gave a noted performance in The Régie des Bâtiments wanted to state (1989), about the infrastruc- The name ‘Sens Unique’ refers the tent of Sens Unique. However, it did not sell all of them to the highest bidder ture construction work to be car- both to the main urban motorways, lead to a structural cooperation.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel THE THREE OCCUPATIONS

STÉVIN

rue de la loi PARC AANONYMENONYME

av. de cortenbergh

’

t t

54 e r b e e rond-point k schuman

, contents plot at the foot of the RÉSIDENCE PALACE

rue belliard parc du cinquantenaire VAN MAERLANT place jean rey COMINES- av. d’auderghem FROISSART

place du luxembourg Former Leopold station

parc léopold The four plots to be sold by the Régie des Bâtiments (Sens Unique) Stevin Block 3 (Stevin) Leopold Station (BruXXel) place jourdan

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel the Rue de la Loi and the Rue Bel- liard, that each traverse the area in one direction, as well as to the one way direction in which decisions about the development in the Euro- pean Quarter are taken i.e. from top 55 to bottom.

, contents The initiators

A number of Brussels’ residents, including people from outside the Eu- ropean Quarter, students and artists had already met (in 1995 and 1996) during the occupation of the empty 3. To draw the attention of politi- i The circus tent on the Van Maerlant-site Hotel Central across from the Bourse The objectives cians to the needs of the area. was the epicentre of the battle against the to denounce the speculative vacan- 4. To find a sustainable solution for public auction of four crucial building sites cies in the centre of Brussels. They The campaigners hoped to achieve the so-called Block 3 of the Stevin in the European Quarter. Blinded by gold fe- shared the conviction that the public four objectives by means of the Sens blocks. ver, the Régie des Bâtiments managed to mo- at large needed to be made aware of Unique action : mentarily forget all that had previously been the policy pursued in the EU Quarter. 1. To realise general coordination agreed about these sites. This time they did not occupy a between the residents and all the The event building but an undeveloped plot of involved authorities and institu- land (Van Maerlant) by erecting a cir- tions, under the symbolic title The campaigners tried to involve the cus tent there for ten days. ‘Miss Europe (f/m)’. residents in advance of their action. 2. To halt the sale of the plots of land. They handed out empty boxes to lo-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel models etc. The box-campaign was At the end of the occupation, the not an overwhelming success, but it Fondation Sens Unique dissolved it- did bring a number of extra people to self. The follow-up of the contents the tent. and agreements with the policy mak- The action week started with a ers took place by way of Coordination press conference about the planned Europe, which therefore had a very 56 ‘sell-out’ by the Régie des Bâtiments. busy agenda in the following months. A voluminous dossier, prepared by The physical presence on the loca-

, contents Coordination Europe, provided clear tion and the strong dossier concern- evidence why legal reasons prevent- ing the planned sale had provoked ed the sale from going ahead. This a lot of public attention and politi- immediately set the tone. Through- cal reactions. The action had put the out the week, discussions about the residents of the neighbourhood in the neighbourhood raged in the circus picture. tent. Meetings took place between residents and politicians, there were debates between campaigners and The results those in charge of policy, and there were playful actions and performanc- To what extent did they achieve to es. The centrepiece in the tent was a four objectives that were the purpose large homemade model illustrating of the action ? the themes and proposals from Eu- 1. A general coordination i By means of this invitation, Sens Unique cal residents with the request ‘to do rope : a Living Campus [ see 3.2.] with between the residents and publicized its action in the area. Sens Unique something with them’ and to bring the common vision of the future of all the authorities involved refers here in particular to the one-way traf- them to the circus tent during the Coordination Europe. The model was As a direct consequence of Sens fic in the case of decisions about the area : all action. They could write or paint on an excellent starting point for discus- Unique, the alderman for Town Plan- were top-down decisions. © Sens Unique the boxes, use them as scaled-down sions with visitors. ning of the City of Brussels made

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel funding available from 1997 on- wards for the secretariat of the Co- mité de Suivi [ see 3.1.]. This provided new oxygen and a structure for the consultation between the residents and the various policy partners (the 57 European Commission, Brussels, Ix- elles and Etterbeek, the region and

, contents the federal authority). The last meeting of the Comité de Suivi took place in March 2001.

2. The sale of the plots of land The announced public auction of the plots of land did not take place in 1997, but in the end only one of the plots of land was to remain in the hands of the authorities. The dossiers prepared by Coordination Europe carried enough weight to help insure ‘anonymous’ to indicate that it was i The houses on the Van Maerlant-site had been demolished at the beginning of the nineteen that the sale of all the plots of land as unclear at the time who owned the seventies in favour of a motorway, which fortunately was never constructed. Afterwards, it a whole was withdrawn. block), remained for the time being became a gigantic building-site, first for the storm drain and later once again for a car tunnel. The so-called ‘Block 1’ which the under control of the Régie des Bâti- According to agreements between the Brussels Region and the federal authorities houses were residents and campaigners jointly ments. It wanted to construct of- going to be constructed here. The complexity of this dossier caused an urban wasteland that called the Parc Anonyme (‘park’ to fices on that location, as provided in lasted for years. © AQL (Lagasse) stress that the demolished block of the Plan de secteur (1979). The City houses had better not be rebuilt, and of Brussels favoured a green zone in

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel that area, but the federal authorities sels. Finally, after many tussles, this on the Plan de secteur of 1979. In the house project : a housing tower block estimated that such a change of use is what had happened by the middle previously mentioned convention be- of 24 floors, much higher than is al- would mean a loss to them of slightly of 1993. At the end of 1996, the fed- tween the federal state and the Brus- lowed according to the Regional Ur- over 340 million Belgian Francs. Final- eral authority could no longer offer sels Region (1989), it had been agreed ban Planning Regulation (RRU) and ly this plot of land became a part of the plot of land for sale, for the sim- that the land would remain the prop- with a disproportionate number a larger exchange operation between ple reason that they no longer owned erty of the authorities. Based on the (of m2) of luxury housing as opposed 58 the City and the federal authority in it ( !). After they had investigated the press file of Coordination Europe it to the number of middleclass hous- the wake of the Stevin Dossier. The dossier, the federal authority also was withdrawn from the sale. In 2006, ing. Some members of Coordination

, contents inauguration of the Parc de la Vallée reached that conclusion and with- the so-called ‘tripartite agreement’, Europe have meanwhile lodged an du Maelbeek, constructed with the drew the sale. between the federal authorities, the appeal against this. The procedure is financial assistance of Beliris, finally The Region of Brussels did not Brussels Region and the three mu- under way. took place in October 2001. construct the promised houses itself nicipalities Brussels, Etterbeek and The plot of land at the foot of the Comines-Froissart was one of the in the end, but sold the plot in 2003 Ixelles provided among other things, Résidence Palace was quickly sold. rare – all be it dilapidated and unde- to a private construction promoter. that the Van Maerlant block could be However, the construction site for the veloped – remnants of the ‘typical The result today is ‘Léopold Village’, sold after all, but according to spe- building of apartments was still ac- residential area’ that had been razed a complex of apartments and a hotel. cific conditions. In 2007, the federal tive at the end of 2013. to the ground because of the con- In principle, the Van Maerlant government sold it to a promoter to struction of the European Council of block had also mainly been des- construct offices and houses. The 3. Political attention for Ministers. In the building permit of tined for housing. At the beginning terms and conditions that were laid the needs of the neighbourhood the Council and in the consequent of the nineteen seventies, that block down in the sales contract, required Politicians of the federal and the convention between the Belgian state of houses had been expropriated by the construction of at least 18,700 m² Brussels’ government as well as from and the Brussels region, it had been the federal authorities for public use : of housing, of which at least half for the European Parliament visited the laid down that the federal authority the construction of the Maelbeek- middleclass families according to tent on the occupied plot of land. was to ensure new houses would be collector and road construction. The the system of the so-called ‘govern- Questions were raised in the Brus- build there before 1990, for otherwise buildings were demolished and the ment regulated houses’. At the end sels’ Parliament and some politicians its properties in that block of hous- undeveloped plot of land had been of 2011, the City of Brussels granted even made formal pledges. Politi- es would fall to the Region of Brus- marked as a typical residential area the permits for the so-called Light- cians from different political groups

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel t A thirty (30 !) year tug-of-war about the future of these residences in the Stevin-block caused the residents to pay a heavy toll. Many of them left at the time, because they were fed The Stevin Project (1997-1999) up with the uncertainty. asked questions, based on the press The Bral-project for the so-called file about the sale of the blocks of ‘Block 3’ of the so-called Stevin Blocks houses. Consequently, the Brussels [see map p. 54] was a direct result of the Region put pressure on the federal Sens Unique campaign. Thanks to the government and the public sale was public interest, the Vlaamse Gemeen- cancelled. Even afterwards, the prob- schapscommissie (VGC) (Flemish Com- 59 lems of the European Quarter re- munity Commission) approved a pilot ceived regular attention on different project. This allowed Bral to have one

, contents political levels. However, the needs of of their staff members support the the neighbourhood were never high residents of this block of houses for on the agenda. two years, from 1997 to 1999.

4. Finding a sustainable solution for the Stevin Block or ‘Block 3’ The chequered history allow people to live there again but 23 March 1981 – The same scenario : Bral continued to work on this proof the Stevin Blocks with very precarious rental contracts all residents again receive notice to ject for two more years (see next). p (one-month notice). vacate the premises and again this 26 augustus 1971 – The Belgian 28 September 1980 – All residents, notice is withdrawn after protests authorities expropriate four blocks 250 families, receive a notice of evic- have been lodged. of houses along the Rue Joseph II and tion, although there is no concrete 15 July 1981 – The decision is taken the Rue Stevin, in the shadow of the building project. According to the to expand the EU offices on the other Berlaymont Building, for a potential Plan de secteur of 1979, the Stevin side of the Rond Point Schuman (to expansion of the EU institutions. blocks are intended for housing or for construct the so-called ‘interpret- After a few years during which most the expansion of the EU, on condition ers building’ on the Rue Breydel) and of the houses stood empty, the Régie that the EU does not expand on a dif- therefore not on the side of the Ste- des Bâtiments (federal Building Agency), ferent plot of land on the other side vin Blocks. The consequence of this which has managed the buildings of the Rue de la Loi. After the lodging is that the latter will be earmarked since their expropriation, decides to of protests, the notice is withdrawn. for housing according to the provi-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel u Allowing houses to deteriorate for years in order to make a considerable profit in the end. This is what we call speculation. For years the City of Brussels and the Régie des Bâtiments have resisted taking any responsibility. All this took place at the expense of the residents.

sions of the Plan de secteur. On 15 Arts (the present-day Bozar). The Ré- July 1981, the expropriation decision gie takes over the shops from the City, is withdrawn by means of a Royal which in return becomes the owner Decree. However, nothing changes of the Stevin Block, on condition of for the residents. They are still con- the payment of an outstanding bal- fronted with insecurity of tenure and ance. From the beginning, the City 60 badly maintained houses. wants to immediately sell on the Ste- 1985 – The Régie des Bâtiments sells vin Block to a private promoter (with

, contents the houses of Blocks 2 and 4 sepa- an obligation to renovate) in order to rately to the highest bidder. This re- use the sale price to make up for the sults into an enormous wave of spec- balance due after the swap with the ulation. ‘Block 3’, the so-called ‘Stevin Régie. However, the City commits er- Block’ remains the property of the rors in the tendering process, which to confront renovation, maintenance 1997 – Start of the Stevin project de- Régie des Bâtiments. The federal au- results in many years of a legal tug- and urgent problems. A number of signed by Bral. thority decides to renovate this block of-war. Meanwhile, the Régie des Bâ- them move away, which results again for housing, in compensation for the timents initiates proceedings against in vacant buildings. The objectives construction of the European Coun- the City for the non-payment of the 20 September 1994 – The remaining cil of Ministers (Justus Lipsius) on the amount they had agreed. inhabitants of Block 3 propose to both The goal of the Bral-action was wide- housing block Comines-Froissart in 1 September 1992 – After the long le- the Régie des Bâtiments (federal Build- ranging. Our main concern was the a residential zone (according to the gal battle, the private promoter is no ing Agency) and the City to purchase situation of the residents. Firstly, we Plan de secteur of 1979). longer interested in the renovation the block of houses collectively with wanted to obtain clarity about the 20 May 1985 – The City of Brussels operation and cries off. This results in the assistance of the Fonds du Loge- ownership-situation. In addition, gives its approval to an exchange confusion about the present owner- ment (Housing Fund). They receive no we demanded lease contracts with with the Régie des Bâtiments. The ship of the Stevin Block. Neither the support from the City or the Region. a standard term of tenancy and the Régie is interested in a row of shops City of Brussels, nor the Régie des Bâ- 20 January 1997 – The Fondation Sens recognition of the block of houses as along the Rue Ravenstein, in view of timents considers itself responsible. Unique again calls attention to the im- an area for renovation with increased the expansion of the Palais des Beaux The tenants are left without support probable situation of the Stevin Block. premiums. Finally, we demanded the

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel renovation of all buildings according u This photograph demonstrates how stately to the requirements of the residents. buildings in the EU Quarter can deteriorate Our first step was the foundation because of decades of mismanagement. of a tenants association. All tenants were associated in the non-profit association Logements Célestes (literally for accommodation and their finan- 61 “heavenly lodging”) in order to search cial options. Logements Célestes also together for solutions. At the begin- received permission to use one of the

, contents ning of 1998, the Region officially rec- vacant buildings as a meeting place. ognised this association as a Associa- A financial plan was drawn up and tion d’Insertion par le Logement (AIL) at the same time, discussions started (Association for Integration by means of with the Fonds du Logement and a Housing). number of interested social housing companies in order for them to take on the renovation of a part of the housing The renovation proposal block. They were prepared to do this, on condition that the proprietor agreed. Logements Célestes produced a sce- This is of course a logical condition, nario where all residents obtained except that in this case it happened to a decent house within the block. It be a sticking point. After all, after the concerned a total of 37 houses, 13 of swap between the City and the Régie which were vacant at the time. Forty- des Bâtiments had run aground, nei- five families consisting of 173 people ther of them considered himself to be lived in the remaining 24 houses. All the owner of the 37 houses. possible renovation subsidies were Finally, Logements Célestes suc- discussed with each family individu- ceeded in drafting a complete and ally, taking into account their needs financially viable renovation and re-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel housing plan. The residents signed renovation, not even with the (con- of Brussels was aiming at a complete- a charter laying down the rehousing siderable) financial assistance of the ly different public than the sitting conditions. After additional politi- Fonds du Logement and three social tenants. The City did not wish to ne- cal lobbying, the block of houses rehousing companies. More important- gotiate with the association, but only ceived its regional recognition as a ly, the individual sale of the residen- with the individual residents. More renovation perimeter with increased tial houses, located in the heart of the over, they made use of an out-dated 62 subsidy in June 1998. Within such a European Quarter could considerably list of residents, thereby unjustly perimeter, the normal renovation enrich the City’s treasury. This was a excluding several families. The City

, contents subsidy in force everywhere else is poignant conclusion of many years of clearly exploited a traditional princi- considerably increased. speculation by the authorities. ple : divide and rule. The timing could not have been By means of external pressure worse. Most of the families were pre- and some procedural delays, the first The negative response by the City paring their annual holiday to Mo- notice was indeed withdrawn and rocco. Therefore, it was impossible to the entire process took an additional Without any consultation with Loge- agree to a common reaction at that year. However, many residents be- ments Célestes, the Régie des Bâti- moment. Logements Célestes tried to came discouraged and sought else- i Without any consultation, the Régie des ments and the City of Brussels had get external support, from individual where for a solution. Most of them Bâtiments and the City of Brussels reached meanwhile reached an agreement politicians, from the Brussels’ Parlia- had given up hope. an agreement about the sale of the Stevin- and the original swap was finally con- ment and the trade unions. However, blocks. A day after the announcement of cluded. The City of Brussels was now the City was unyielding and refused to this agreement, the residents were informed the official proprietor of the block change its decision to sell the houses. The result that they had to leave their homes within six of houses. One day after the official In the autumn the weekly meet- months. presentation of the renovation plan ings and negotiations started again. In 2000, the houses were sold by in June 1998, all tenants received a The possibilities to purchase a num- public auction to individual buyers. notice to vacate the premises in 6 ber of the houses from the City were The sales contracts contained provi- all new owners came from outside months. The City of Brussels was investigated. However, the financial sions for a renovation obligation and the area. However, when building not prepared to pay for the required conditions soon proved that the City a minimal term of residence. Almost permit applications were submitted

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel BruXXel (2001)

later on the City was very lax and the Belgium held the presidency of the conditions imposed were not always European Union from July until De- respected. Yet, it had been the City cember 2001. For a group of anti-glo- who had imposed these conditions, balists, this was a reason to occupy be it under pressure of Logements the then vacant station building in Celestes. However, only two members the Léopold Quarter. This occupation 63 of Logements Celestes remained in lasted 89 days. the area and the neighbourhood was

, contents insufficiently alert to check each time on the agreement during the various The context enquêtes publiques (public enquiries) and permits during the following The Belgian presidency provoked the months and years. This is how the discontent of the anti-globalists in promised family houses in the Stevin Brussels about the gap between the EU block were replaced by mainly small institutions and its citizens. During the apartments and studios for a Euro- same period, the European Parliament pean public. Moreover, the new (well in Brussels was involved in expanding off) owners were able to take advan- its stock of buildings in the Leopold tage of the increased renovation pre- Quarter. In 2004, the EU was to expand miums that the previous residents from 15 to 25 member states. There- had fought for. This was a bitter pill fore, in the autumn of 2000, the pro- autumn of 2001, during the Belgian i After the European Parliament had al- to swallow for the original residents moter of the Société Espace Léopold presidency, the town planning permit ready taken over part of the Leopold Park, the and the campaigners. p (SEL) had – at the request of the EU for this project was being dealt with. Leopold Station risked being completely de- Parliament – submitted building ap- The demolition of the Leopold Station molished as well. Today the station has been plications for additional offices and was part of the application. relocated and only the façade has been pre- meeting rooms (D4 and D5) along both For many people, the promoter’s served. © Het Nieuwsblad (December 1991) sides of the Leopold Station. In the plans for the demolition of the sta-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel u The collective BruXXel managed to maintain its occupation of the Leopold Station for almost 3 months, day and night. In this way, they forced the European Parliament to organise a hearing with all those involved. © BruXXel

tion building illustrated once more, 64 how clumsily the European institutions were plonked into Brussels.

, contents It became a symbolic dossier to denounce the state of affairs in the Eu- ropean Quarter. The initiators

City activists founded a temporary collective : BruXXel. The group of Cin- ema Nova and City Mine(d) made an important contribution. The latter association, dating from 1997 was the result of occupations discussed previously (Hotel Central, Sens Unique…). The name BruXXel indicated the multilingualism and the local grassroots of the collective. Because of their regular press conferences and a web- site on which their platform text could be signed, BruXXel could count on the

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel support from numerous French and o Impression of the construction site of the Dutch speaking social and cultural European Parliament that lasted for years. associations (KVS, Beursschouwburg, Bottom right the entrance to the relocated KunstenFestivaldesArts and others) Leopold Station, and adjoining it the build- and even from individual Members of ing site of what would later become D5 or the European Parliament. the Jószef Antall building. The former station 65 now only has a decorative purpose and is The objectives used as an information kiosk and exhibition space. © Philippe de Gobert , contents The goal of the occupation was in the first place to halt the imminent demolition of the station. In addition, it was only the preservation of the station the intention to use public debates to building on the agenda, but they also create a forum where European topics asked questions about the legitimacy could be discussed in an alternative of the building permits for the build- way. The collective BruXXel wanted ings D4 and D5. purposefully to act differently from The procedure for obtaining the European summits that always the building permit for these build- took place in highly secure meeting ings was in fact a very complex dos- sites and in very select company. sier for technico-legal reasons. First, parted from various locations and the Espace Léopold and the accord- the municipality granted a certificat The action accompanied by brass bands in the cadre (framework agreement) [ see 3.5.] d’urbanisme (planning certificate) (that direction of the Leopold Station. Dur- concluded between the investors, sets out the general framework with- The occupation started on Satur- ing the occupation, the campaign- the residents’ association AQL and in which a permit can be delivered). day 13 October 2001, following the ers supported by Coordination Eu- the SDRB (Regional Development Com- Later on changes to this certificate fourth edition of Suite Jourdan Suite rope were able to carefully review pany for the Brussels Capital Region). were approved retroactively, although [ see 3.3.]. Visitors and residents de- the global town planning dossier of In this way, the campaigners put not meanwhile an enquête publique

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel (public enquiry) about the permit had the procedure of granting building already taken place concerning a dos- permits for the buildings D4 and sier based on the first certificate. Stat- D5, in particular to ensure that the utory periods expired without any de- construction of compensation hous- cisions being taken and international ing – as had been imposed in the tendering procedures were not abided Plan particulier du sol (Specific Plan 66 by. In spite of the size of the construc- for Land Allocation) of the Espace tion site and in spite of the fact that Léopold – would in fact be realised.

, contents the buildings were intended for the As had been the case for the Euro- EU Parliament, it was still up to the pean Council, it had been laid down municipality of Ixelles – and not up to that as a part of the consent for the the Brussels Capital Region – to grant construction of the European Parlia- the permit, for the simple reason that ment, houses were to be construct- the official applicant was a private ed. In this case, it concerned hous- promoter. Moreover, all these events ing with a surface of 41,000 m². took place during an election year, which changed the municipal majority during the period that the dossier The results was discussed. That complexity made it very difficult to communicate with The intensive negotiations between a wider audience. The press focused the campaigners and Coordination mainly on the preservation and the Europe, in particular AQL on the one i The then federal minister for mobility Isabelle Durant, whose portfolio also included the new destination of the Leopold Sta- hand, and the European Parliament National Railway Company of Belgium came to encourage the BruXXel occupiers of the station. tion. and the investors on the other hand “These people attest to a democratic will that should not be stopped” she then said. © Gert Nevertheless, a smaller group resulted in the organisation of an of- Jochems remained active within Coordina- ficial hearing by the Bureau of the Eu- tion Europe to deal specifically with ropean Parliament in January 2002.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel Conclusions

In a meeting room of the European A second result might be that the A thorough knowledge of the issues not only during the occupations, but Parliament, the Bureau invited del- region took a stricter stance in the is essential for the entire EU dossier. egations of the partners involved : the town planning permit that was fi- It is certainly worthwhile to various Brussels’ authorities, the pro- nally issued. The government signed For all three occupations– Sens maintain a permanent structure to moters as well as the neighbourhood the town planning permit for D4 and Unique, Stevin and BruXXel – the exchange information with the vari- committees. Everyone was given the D5 in March 2002 and linked it to an thorough knowledge of the dossiers ous partners and to invest in good ar- 67 opportunity to explain his point of agreement with the real estate pro- proved to be a deciding factor. This chives. Authorities often do not have view, but there was no possibility to moters. That agreement set out more includes not only a familiarity with as good a memory as the residents

, contents debate. For that reason, no conclu- details about the time limits for com- the facts and the history of the case, and sometimes ‘forget’ parts of con- sions were formulated and no further pletion, bank guarantees and sanc- but also the various legal elements, ventions. You need knowledge and agreements about any future adapta- tions. According to a survey carried analysis and strategic choices. In information to be able to exert influ- tions were concluded. out by the Agence de Développement the case of Sens Unique, it allowed ence. However, not all information Because of the disgraceful han- Territorial (ADT) (Agency for Territo- us to stop the public auction of the can be obtained easily. For instance, it dling of the procedure for the grant- rial Development), around 10,000 m2 of four plots of land. In the case of the is not always obvious who takes a de- ing of the building permit for the housing still remained to be realised Stevin block, the convincing dossier cision about which issue, and at what buildings D4 and D5, the town plan- at the end of 2011, as town planning managed to persuade the Fonds du moment, and what the exact content ning edict was changed in 2002 : from compensation for the construction of Logement and some social housing of the decision is. To collect, analyse now on, the fonctionnaire délégué the European Parliament and its ex- companies to join us in a far rang- and interpret the information is also régional (official designated by the re- tension D4 and D5. ing renovation plan. In the case of a time consuming business. gional authority) would always have In the end, only the listed façade BruXXel, the knowledge of the dos- the competence for granting permits and the interior of the first floor of siers also helped to transform the for construction work of public inter- the Leopold Station were preserved action from a campaign against the The mobilisation and support est, no matter who the applicant was and restored. Until the present, the possible demolition of the Leopold from the grassroots (authority of private promoter). The former station – or what remains of Station into a renewed debate on the complexity of the European dossier it – is in use as an information desk houses to be built in compensation. The original types of action always has resulted in an amendment of the and exhibition space. p The local groups’ knowledge of the had a mobilising effect. The media legislation in other cases as well. dossiers proved to be a strong point ensured that public attention was fo-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel cused on the combination of a solid tion and support might well have In the case of BruXX- content and unexpected action. Be- been able to put more pressure on el, there were no such cause of the press interest, a local policy makers. agreements. However, dossier turned into a regional issue. because the occupation Both organisations from civil society lasted slightly longer – just as well as politicians from various Follow-up immediately under three months – the re- 68 levels were sensitive to the message. after the actions quired cooperation could be A clearly defined line of action, like realised during the time of the p

, contents the halting of the demolition of a Both for Sens Unique and for BruXX- occupation. building, facilitates that mobilisation el the initiative was developed by a more than a complex dossier. limited group of campaigners, who The length of time the action were not part of the residents’ com- lasted was also a definite factor : Sens mittees. Their commitment was of Unique lasted for a week, BruXXel a limited duration. Therefore, agree- lasted three months and Stevin last- ments and relations with the existing ed for more than 2 years. That proved committees and the larger group of to be a disadvantage for Stevin. The grassroots supporters are necessary. long-lasting administrative battle Before the beginning of the action, for security of tenancy had too little the city activists of Sens Unique had news value for the press. Bral, which consulted for months with the resi- had organised the project, had nolens dents’ association of Coordination volens focused in particular on the Europe about the follow-up of required internal social cohesion. Af- the issues in the dossier. These ter all, it had been obvious from the agreements about continuity o After Sens Unique the City of Brussels took the ini- beginning that individual solutions constituted an important les- tiative to organise regular consultation meetings with could only be enforced by means of son, learned from the occupa- all the stakeholders. They met each other in the Comité de solidarity. A broader external attention of the Hotel Central. Suivi Europe Habitants.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.4. Five strategies | Three occupations: Sens Unique, Stevin and BruXXel 3.5. ACCORD-CADRE – A SPECIAL TYPE OF RESIDENTS’ PARTICIPATION The residents’ committee AQL used a legal victory as leverage to conclude a contract with the private investors through direct negotiations. This accord-cadre (framework agreement) (30 June 1988) enabled the committee This building was named the ‘Caprice to come forward as an interested party each time the real estate project ‘Espace Léopold’ was further elabo- t des Dieux’ (the whim of the gods). By pure rated and realised. chance, the Centre International de Congres (CIC) happened to include a large meeting 70 The context room, which was perfect for the European Parliament. © Firmin De Maître

, contents The preparations for the construction cial-economic world from doing so. An of the European Parliament in Brussels investment group including the BACOB started in the shadow of the Brussels- bank and the Société Générale, which in Europe Area Study (BEA Study) (Etude the end would operate under the name Espace Bruxelles-Europe). That study of Sociéte Espace Léopold (SEL), devised was intended to provide a total pic- a concrete project on the site of the ture of the European implantation in shunting-yard near the Leopold Station the city as well as to ensure an inte- and the surrounding neighbourhood. grated approach. However, the actual That shunting yard certainly pre- plans were made behind closed doors. sented a number of advantages as a The origin, development and conclu- potential location. Several construc- sions of the BEA Study were related tion sites in that area were waiting for previously in this publication [ see 3.1.]. a new destination. The shunting-yard As mentioned previously, the Bel- itself was underused and the adjacent gian authorities had committed them- Leopold Brewery had also been va- selves not to take any initiatives in ref- cant for a while. Several buildings in erence to the construction of a potential the Leopold Park were also neglected : parliamentary hemicycle in Brussels. like the old Pasteur Institute and the However, this did not prevent the finan- empty Solvay Library. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation e t

w g

THE EUROPEAN PARLIAMENT AND ITS SURROUNDINGS

rue belliard place jean rey parc du D4 cinquantenaire Willy Brandt

71 place du luxembourg

av. d’auderghem , contents D3 Altiero Spinelli parc léopold D1-D2 hemicycle D5 Paul-Henri Spaak Jószef (vroeger(formerCIC) ICC) Antall

place rue godecharle jourdan rue wiertz

Linden project

ch. de wavre Forte dei Marmi project

Espace Léopold

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation The Government of the Brussels-Capital Region contravenes the law

The investors initiated the entire pro- finally it consisted of two approved secteur from 1979, where this area ject. The name of the project could Plans particulier d’affectation du sol had been designated as a mixed resi- not refer to a parliamentary hemicy- (PPAS), together constituting a pro- dential and business area. It was ob- cle, hence the name Centre Interna- gramme of a maximum of 195,000 m2 vious that the CIC was a complex of tional de Congrès (CIC) (International for offices and commercial space (al- meeting rooms cum office building Congress Centre). though the latter was only a fraction and that it could therefore in princi- 2 72 From the beginning, the inves- of the project) and at least 41,000 m ple not obtain a permit. tors envisaged an imposing project. for housing. In an attempt to avoid this con-

, contents The CIC was to be constructed on the At the end of the nineteen eight- straint, the Government of the site of the brewery and even partly in ies, the EU consisted of 12 member Brussels-Capital Region proposed a the Leopold Park. The building would states, whilst today there are 28. At revision of this part of the Plan de provide a space large enough to hold that time, it was not clear who would secteur, in favour of a project of pub- a plenary session of all European make use of all those offices, nor was lic interest. The revision took place Members of Parliament. Another new it the intention to build them all at at the request of Jean-Louis Thys, building would be constructed adja- once. However, the European Parlia- the State Secretary for town and cent to it, across the old shunting- ment has meanwhile taken even the country planning (he was also the yard to provide even more offices. last office complexes of the Espace initiator of the BEA Study). However, In 1987, the investors had com- Léopold (D4 and D5) along the Rue de the Brussels Government thereby pleted a first master plan for the en- Trèves into use and they are in search contravened its own rules ; as the tire project between the Rue Wiertz of additional offices elsewhere. EU member states had committed i A procedure pending before the Conseil and the Rue de Trèves. The global Although the authorities and the themselves not to undertake any d’Etat (Council of State) opened the doors to project was called Espace Léopold. Its investors (and possibly also some initiative for a parliamentary hemi- direct negotiations with investors involved in location was in part on the territory groups in the European Parliament) cycle, the CIC could only be a private the construction of the European Parliament. of the City of Brussels, in part in Ix- agreed that the old brewery with the project... and therefore not a project elles and bordered on Etterbeek. The adjacent shunting-yard was the best of public interest. p master plan underwent refinement, location, there was a legal problem. negotiations and adjustments and The project contradicted the Plan de

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation The reaction of the inhabitants

The Association du Quartier Léopold of lawyers and the small chance pression on their minds. It is certain this block of houses, also played a (AQL) challenged the ‘public inter- of obtaining a positive result, they that the Stevin-saga [ zie 3.4.] where role. est’ of the private project and in were also afraid of very difficult le- the legal tug-of-war between the The option of putting pressure February 1988, it won its argument gal actions. The memory of the un- City of Brussels and the Régie des on the authorities – to make them in a summary proceeding before the fortunate legal battle about the ex- Bâtiments (federal Building Agency) stand firm and to apply their own Court of First Instance. A ruling on pansion of the Council of Ministers was still in full progress, and which rules – was not acceptable to the 73 the substance of the dispute was (1984-1985) had made a deep im- resulted in a visible degradation of AQL either. The recent past had pending before the Council of State. demonstrated that the authorities

, contents Soon this proved to be an extremely were not reliable partners. First of all important element in the struggle of when they kept important decisions the residents of the Léopold Quarter. about the Council of Ministers and After all, the AQL was able to use the European Parliament outside the this legal victory as a lever to start global planning of the BEA Study, direct negotiations with the private and later on by immediately calling investors and could finally even con- into question the important conclu- clude a contract with them, the later sions of the BEA Study [see 3.1.]. The accord-cadre. AQL was well aware of the fact that Although the ruling of the judge the authorities did not always de- prevented the CIC from obtaining a permit immediately, it was self- evident that the investors would do o The neighbourhood committee had man- their utmost to realise the project at aged to reduce the size of the CIC-mammoth. all costs. The project was far too im- A conviction in the Court of First Instance and portant to be dropped just like that. a penalty payment of 300,000 BEF for each Therefore, the AQL could not afford day of continued construction ensured that to wait indefinitely for the court’s the investors came to the negotiating table. decision. In addition to the high cost © AQL/Frank Pé

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation fend the public interest. Remember Stevin blocks as well as in the case of the policy and consultations, nor did Jean-Louis Thys who had personally the expropriation of the residential they take up the fight. The associa- asked for revisions to the Plan de area Comines-Froissart, the national tion chose to be part of the structur- t AQL started discussions with private secteur to be able to grant a building authority consistently defended Eu- ing of the project by means of direct investors in the Espace Léopold in order to permit tot the CIC, supposedly for rope at the expense of Brussels. negotiations with the investors. p become a fully-fledged partner in the project the public interest. In other words, In view of all these considera- and to enforce matters that would offer guar- 74 the Brussels authorities clearly sided tions, the AQL decided not to follow antees concerning the integration of the pro- with the investors, and if necessary the habitual strategy of influencing ject. © Archives d’Architecture Moderne

, contents did so by means of illegal methods. Another reason why the AQL preferred not to put their trust in the authorities was the fact that the Espace Léopold and the CIC are located on the borders of three municipalities : Brussels, Ixelles and Etterbeek. Good cooperation would be required to ensure a coordinated approach. The Regional level would only really take shape in 1990. The Brussels Government that was still part of the national authorities was unable to make autonomous decisions. That national government was clearly more focused on the international rather than the local Brussels’ interests. Both in the case of the ongoing expropriations of the

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation AQL demands management and long-term vision

After the ruling of the Court of First The AQL’s negotiations with the The economic activities in the ordination cell to provide proper guid- Instance and using the lever of a pos- investors were not intended to obtain neighbourhood would also undergo ance. The AQL wanted to be part of the sible confirmation of this ruling by a similar one-off compensation, like a drastic change. The present smaller coordination. the Conseil d’Etat (Counsel of State), the construction of a neighbourhood enterprises would have fewer chances This immediately gave rise to a the AQL therefore decided to start infrastructure or social housing. The to expand. The art and audiovisual completely new culture of town plan- negotiations with the investors. The AQL started discussions in order to businesses that were located there ning action. After all, the ‘classical’ 75 committee did not oppose the arriv- become a partner in the management might have to give way to the office strategy – reminding policy makers of al of the hemicycle in the area, but of the entire project ; they wanted to supply companies. their political duties and responsibili-

, contents wanted to ensure the quality of life guarantee the interests of the resi- Not to mention the mobility prob- for the residents in the neighbour- dents in the project in the short term lem : the arrival and departure of the hood. as well as in the long term. It must be cars of the members of Parliament, A few years earlier, a committee recognised that this was a particularly administrative staff, suppliers, the of the Brussels’ Quartier Nord had fol- ambitious project. management of arriving and departing lowed a comparable strategy in a simi- The AQL was perhaps more aware groups of visitors and so on. Moreover, lar situation. It had managed to halt than the authorities of the conse- the residents would be confronted for a project to expand office space in a quences of the construction of the two decades ( !) with enormous build- residential zone by taking legal action Espace Léopold in the long term. The ing sites. before the Conseil d’Etat. By means area would be completely redesigned The point was to draw up a proper of direct negotiations with the build- as far as town planning was con- management plan – and preferably as ing promoter the committee managed cerned. A wave of expropriations and soon as possible – and to appoint a co- to obtain that he was to construct an demolitions would follow. Office space, important social housing project in co- which until then had been almost ab- operation with a social housing com- sent, would dominate the neighbour- u Integration should take place on various pany. Without being a direct partner in hood. International civil servants and fronts. However, the European institutions this convention, Bral also actively sup- not necessarily Brussels’ residents constructed their own community facilities, ported this initiative at the time. would become the main users of the which are still not accessible for the inhabi- area. tants of Brussels.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation ties – had reached its limits. One the one hand, there was the strong suspi- cion that the Brussels’ authorities did not necessarily put the interests of the Brussels inhabitants first. On the other hand, it had become obvious that the 76 local authorities themselves were often powerless. In the same way that

, contents they had been unable to play an active role with regard to the buildings for the European Parliament, they also had to stay out of all other important decisions about the European presence in Brussels. p

u Inhabitants and local businesses had to deal with the long period of building sites due to the construction of the Espace Léopold. Therefore, one of the major bones of conten- tion was to limit the nuisance caused by the building site. This photo shows the tracks of the Leopold Station before they were covered over. © AQL (E. Bernard)

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation The contents and legal construction of the accord-cadre

On 30 June 1988, after three months 33The identity of the neighbourhood 1. The setting up of a ‘management Rue Belliard) or via four narrow of negotiations, the investors (and needs to be reinforced ; the quarter body’ that could manage the pro- streets (the Rue Godecharle, the their contractors) and the AQL signed needs to acquire a ‘winners’ men- ject in the short and medium Rue Wiertz, the Rue Ardenne and the accord-cadre (framework agree- tality’. term : first of all, the construction the Rue du Remorqueur), which ment). With their signature, the AQL sites, but also the direct conse- were not only densely populated, also formally relinquished the case The accord-cadre consisted of nine quences for the area (the form and but which were also the place of 77 pending before the Conseil d’Etat, so pages and was drawn up in French. partners of this body were still to work of many small independent that the permit for the CIC could be Its official description is that of a be decided). businesses. Major traffic problems

, contents granted after all. ‘Protocol d’accord-cadre’. From a le- 2. That management body would be lay ahead – specifically for the res- The AQL based their negotiations gal point of view, both descriptions entrusted with the task of the de- idents of the Léopold Quarter. about the accord-cadre on the follow- are important. The document is a sign, the realisation and the man- 5. The promotion of local employ- ing principles : ‘protocol’ in the sense that it lists agement of the renovation of the ment. 33Each agreement is to be set down all legal documents of importance residential blocks adjacent to the 6. The promotion and support of in a contract ; to complete the project successfully Espace Léopold. the numerous artists living in the 33This allows residents to build up in mutual cooperation. This includes 3. The residents and businesses area. contractual and legal guarantees for instance the contract between the (both owners and tenants) that 7. The preparation of the signing of in preparation of each consecutive national authority and the investors would have to leave the Léopold a management agreement about step of participation ; that laid down the mutual obliga- Quarter to make way for the reali- good neighbourly relations be- 33These legal guarantees will in their tions between those two partners. It sation of the project would not be tween the present residents and turn be distributed as an example is also a ‘accord-cadre’ in the sense expropriated but assisted to new the ‘future’ inhabitants of the for others and as case law. that it sets out the conditions for the housing. area : the European Parliament. But also : later – more detailed – financial or le- 4. The actual management of the 33The material and financial inter- gal agreements for the further devel- nuisance caused by the enormous The agreement did not yet contain ests of the residents and SMEs take opment of the neighbourhood, in the building site of the CIC. This build- any specific measures for the design precedence over broader visions interest of everyone concerned. ing site could only be reached via and organisation of the site itself, and points of view ; The accord-cadre contained the busy or very busy traffic crossroads simply because the project was not following elements : (the Place du Luxembourg and the concrete yet. The negotiations about

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation t The ‘anecdotal’ stories behind the major investments sometimes made the local news pages. However, those stories were not the main concern of the Brussels’ politicians. The hospitality offered to the EU institutions came mostly at the expense of the local population. © De Morgen 1994

the requirements of the EU Parlia- ment were still ongoing. In fact, additional technical studies have brought about modifications to the project. Moreover, the exact location of the different buildings was also deter- 78 mined later on. However, the accord-cadre set

, contents down the most important objectives and provided the means (legal, financial, operational…) which were to be refined in function of the reality and evolution of the project. The protocol signified that all related and previous agreements, in which the AQL or the investors were involved, would be integrated in the legal scope of the agreement. This was important for the AQL, because in this way they obtained information about the wider legal background of the project and the way in which the various authorities (apparently) were involved in it. A number of these points were bound to be discussed at a later phase during the concrete elaboration of the partial agreements. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation Negotiating with investors and the authorities

In spite of its distrust of the authori- (Brussels Regional Development Agency), u Until the present the ties, the AQL expected that they too appeared to be the obvious choice. seminars and colloqui- would take on their responsibilities The Brussels’ Government had re- ums organised by Edi- during the various phases of the pro- cently allocated new competences tions et Séminaires are ject. This concerned both the devel- for city renovation to the SDRB (1988) among the most inter- opment of the project, as well as the and this agency had ambitious plans esting public network 79 supervision on the external effects for a global and integrated approach. meetings for the real and the consequences for the neigh- The SDRB would not only ensure the estate sector and the politicians. No collo- , contents bourhood’s everyday life. And this technical guidance for dossiers about would also apply after the European city renovation for the entire region, quium could take place Parliament had taken the buildings but it would also play an active role without the presence of into use. as social coordinator. an enthusiastic minis- During the summary proceedings Because of that double mandate, ter of the Brussels’ gov- in 1988, the dossier revealed that a it was therefore an ideal partner ernment. © Éditions et convention existed between the Bel- in the accord-cadre. At the end of Séminaires. gian State and the investors concern- March 1989, the AQL, the investors ing the construction of the CIC. This and the SDRB signed a codicil to the proved that the position of the au- agreement. The SDRB was to draw up thorities was not as neutral as they the dossier de base (basic file) for the had claimed. renovation of three adjacent blocks of Both the investors and the AQL houses. In addition, the SDRB would considered it important to formal- start immediately with a housing ly involve a government agency in project on the vacant sites on the cor- the accord-cadre. They preferred an ner of the Chaussée de Wavre and the agency that was active in the area. Avenue du Maelbeek, the so-called The Société de Développement pour Linden project [see map p. 71] p la Région de Bruxelles-Capitale SDRB

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation t AQL made an important contribution to the drafting of the master plan for the entire Espace Léopold. Together with experts and academics the first drawings of the promoter were profes- Difficulties in putting plans into practice sionally revised. The municipality of Ixelles laid down some of the results in urban and architectural specifications. The effect of the accord-cadre was soon put to the test. In 1989, a gas explosion hit several houses in the Rue Vautier. Two children lost their lives in the explosion. This was caused by a building site adjacent to 80 the Espace Léopold, but not subject to the extra safety measure imposed

, contents on the contractors by the accord- cadre. This terrible event motivated the partners of the accord-cadre to carry on with their work, but at the same time, it also made them more careful. The long delay in disentan- gling the civil and criminal liability for the accident has without doubt prejudiced the putting into practice of the accord-cadre. Suddenly the risks for the investors had become much more appar- ent. From then on, the committee was influenced not only by the major loss, but also by the bitterness about the slow administrative treat- ment of the accident and the com- also a stronger demand for greater The two parties did decide management body, as had been pensation. For then on, there was safety guarantees. quickly to recruit a secretary whilst provided for in the accord-cadre. p awaiting the constitution of the

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation The most important results from 1988 until 1998

33Residents from the Rue Godechar- 3345 Houses in the housing block be- blocks of houses around the Parlia- Park. For the block of houses Vaut- le and the Rue Wiertz who had to tween the Rue Jenner, the Chaus- ment and the esplanade. The basic ier-Wiertz this even resulted in the leave because of the construction sée de Wavre and the Avenue du principles were as follows : the safe- compilation of a basic dossier for a work and who had not found alter- Maelbeek, were built in coopera- guarding of the mixed functions Plan particulier d’affectation du sol native accommodation were provid- tion with the SDRB (the so-called (commerce on the ground floor), of (PPAS) (Specific Plan for Land Alloca- ed with different housing. Investors Linden project). the heritage and the internal areas, tion). However, the municipality of 81 provided for the guidance of a total 33Parameters were drawn up for the support for the existing business- Ixelles never went beyond the ap- of 137 people (owners and tenants, renovation and revalorisation of 7 es, and easy access to the Leopold proval of this basic dossier.

, contents both residents and enterprises). 33A number of anti-speculative 33For four years, two-weekly site measures were taken. Originally, it meetings were organised to man- had been the intention to found a age and limit the nuisance from true renovation company (together the site in the area as much as pos- with the recently founded SDRB as sible. The residents were able to catalyser) in order for them to pur- give their input to that meeting via chase all available sites and plots the secretary of the accord-cadre. and then to market them as reno- 33The AQL had an important input vated houses for the middle class- in drafting the master plan for the es. However, this did not happen. entire Espace Léopold. In cooperation with the experts, the urban planners professors Epstein and o The investors realised the Linden pro- Tsiomis, the first designs of the ject in cooperation with the SDRB. Accord- promoter were revised. The mu- ing to the framework agreement 41,000 m2 nicipality of Ixelles laid this down of affordable housing was to be constructed. in town planning and architectural Seven years after the EU Parliament had been specifications in reference to the taken into use, only 4,500 m2 had been com- south side of the esplanade pleted. © AQL (Lagasse)

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation As well as the previously men- traffic in that area. Difficult discus- tioned Linden project developed sions ensued, not only on the po- in cooperation with the SDRB, SEL litical level but also again in court. provided other housing projects via As a partner in the accord-cadre, its subsidiary companies e.g. the the AQL was once again directly in- Forte Die Marni project (between volved in those discussions. 82 the Chaussée de Wavre and the construction site management. As happened repeatedly to the resi- The regional authority – specifically Rue du Sceptre). Those apartments a direct consequence of the gas ex- dents and businesses in the area ; Bruxelles Environnement (the ad-

, contents were marketed as more luxurious plosion, Tractebel (shareholder in just a matter of priorities). ministration for the environment) – residences for the European public. the Société Espace Léopold) drew 33The accord-cadre also had an in- obliged the European Parliament by Moreover, the Fathers of the Bless- up a register of the underground direct influence on the decision means of the permit granted in 1997 ed Sacrament were convinced to utility lines. This has contributed to about a parking garage under the to draw up a mobility plan, although keep their enormous courtyard improved coordination of the inter- buildings of the European Parlia- the general obligation for Company garden, behind the church of the vention by the various concession ment. At the time the building per- transport plans was not implement- Blessed Sacrament, outside of the holders and later it was even con- mit was granted for the CIC-project ed until seven years later. Here they speculation carousel. The garden is verted into an ordinance setting out (1987), Brussels did not yet have followed a new approach as well : still being used as a camping dur- the coordination of building work any environmental legislation ; for the first time a phased permit ing the summer. The former hospi- on the public road. The need for this was only achieved in 1992. The was granted. The complete exploi- tal complex L’Oeuvre du Calvaire construction site coordination was application for the environmental tation of the parking was phased was also saved from speculation taken even more seriously in 1993 permit for the parking of 2.300 ve- in and also depended on specific and was taken over by the Marie when the European Parliament hicles was only submitted in 1994 conditions, like the drawing up of Haps School. held the first plenary session in its at the time the buildings were a Company transport plan, ‘avant All these non-speculative projects hemicycle at a time that the con- taken into use. The European Par- la lettre’ as well as the setting up of have definitely had a cooling-off struction sites of the D3 were still liament demanded the full use of an Observatory for Air Pollution. All effect on the real estate market. fully active. It was essential that the available parking space, whilst those involved, including the resi- 33This dossier has played a pioneer- the Parliament did not suffer an the Brussels Government on the dents’ organisations, were members ing role particularly in the area of electricity blackout (which however other hand wanted to limit the car of this observatory. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation The criticism on the accord-cadre

The choice to work with a accord- cadre instead of the classical method of influencing the policy was of course an enormous adventure. Be- cause the details had to be worked out along the way, it would demand 83 major efforts to stay alert at all times for any undesirable changes of direc-

, contents tion. The accord-cadre is like any other contract ; after it has been signed, it needs to be implemented. For any important step that was taken afterwards, the accord-cadre served as the reference. Of course, not everything that happened after the agreement was a direct result from it. The accord- cadre made it possible always to refer again to the ambitious objectives of

u The main entrance to the Leopold Station was relocated from the Place du Luxembourg to the Esplanade. However, this is not really a vibrant public space. It is hoped that this will now gradually change by means of the organisation of a variety of events.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation Ultimately the accord-cadre also fizzles out

the coordinated management of the Consistent compliance with the ac- follow-up. That was one of the rea- gotiations to bring the agreement various parties that were directly in- cord-cadre requires a sustained fol- sons that Coordination Europe later up-to-date and to renew it, but it volved : the residents, the SME’s and low-up of the arrangements, during demanded a ‘coordinator for the con- was impossible to conclude those the professionals from the neigh- several terms of office. Each admin- tractual obligations’ in the Comité de discussions. After all, the SEL had bourhood. Because of permanent istrative act needs to be analysed not Suivi [ see 3.1.]. meanwhile submitted an application watchfulness and the use of pressure, only to oppose it (if necessary) but The accord-cadre was to run for for a building permit for D4 and D5 84 negative side effects were constantly also to integrate it into the structure a period of 10 years and could be without taking into account the pre- being taking into account. This was of the acquired rights. Those acquired prolonged. The AQL started with ne- viously agreed urban planning prin-

, contents first done by the investors, but later rights then constitute the foundation also by the government agencies like for managing the development of the the IBGE. neighbourhood in the future. This re- However, this strategy was cer- quires a commitment that goes far tainly not an obvious choice. Some beyond the normal efforts of a resi- organisations from the Brussels’ civic dents’ committee consisting of vol- society regarded it as synonymous unteers. It demands time, knowledge with consorting with the enemy, ‘the of the dossiers as well as a financial promoters’. Others saw it as a way of investment to be able to pay for le- excluding the prime interlocutor for gal specialists. The lack of these el- the residents, in particular the policy ements was the reason that not all makers. Although the policy makers aspects received the same level of remained involved, the residents did not exclusively put their faith in them, but out of necessity, they also u AQL was aware of the fact that the im- hoped for results from the private plantation of the European Parliament would partners. p cause an urban and socio-economic meta- morphosis in the neighbourhood. © AQL (E. Bernard)

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation ciples of the professors Tsiomis and could be achieved. The separate legal Epstein. This was a breakpoint for the entity that was to manage the global AQL. The SEL did not want to revise agreement (management body) was its application however, and for that never realised. Originally, it had been reason, the accord-cadre was not the intention that the Fonds du Loge- prolonged in the end. ment would take on a part of the 85 Obviously, this was very regretta- housing programme. This too never ble. From the point of view of the res- happened.

, contents idents, the maximum potential had Moreover, it soon became clear not been reached by far. Therefore, that the SDRB could not realise its a number of developments in the city renovation ambitions. Instead of neighbourhood could no longer be di- applying an innovative city planning rected in the desired direction – and approach, its role was reduced – un- what was perhaps even more impor- der political pressure – to negotiator tant – a part of the results achieved between the authorities and the pri- sistence of the investors it remained i The Place Luxembourg has become the earlier could not be retained, let vate sector. The proposed social guid- a sleeping partner, among others place to be seen for the younger Eurocrats. This alone be expanded to other (similar) ance for the residents never came to to complete the renovation project urban scene obviously appeals more to them situations in Brussels. anything. Most of the SDRB renova- Jenner-Wavre-Maelbeek (Linden and than the empty Esplanade. However, you do Meanwhile, the private partners tion projects in the European Quarter Linden II). not often find Brussels’ inhabitants here. are no longer willing to enter into a took place outside the accord-cadre The scope of the Project Espace This exemplifies the fact that we can still not new accord-cadre. To enforce a new and without any consultation with Léopold made us fear the worst, par- speak of and integration in that part of Brus- accord-cadre is not an option either, the residents. Originally, the latter ticularly if we consider other large- sels that lies outside of the EU Quarter. for the leverage, which the residents had imagined that the SDRB would scale interventions in the North and once used to force the investors to be subservient to the agreement ; South quarter. In spite of the short- negotiate, has now disappeared. however, the opposite was the case. comings in its execution, the princi- the area did not suffer from specula- Therefore, not all of the objec- The involvement of the SDRB was ples and the acquired rights of the tive inaction. That in itself is an im- tives set down in the accord-cadre temporarily in doubt, but at the in- accord-cadre ensured repeatedly that portant result. p

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 3.5. Five strategies | Accord-cadre – a special type of residents’ participation 4. x. xxxxxxxxIT IS ALL STILL VERY TOPICAL From the end of the seventies Bral has closely followed the situation in the EU Quarter and our organisation has put together a vast archive about this dossier. That archive and our experience constituted the main sources for this publication. First of all, we wished to present an overview of the means and strategies employed by the committees and the civil society organisations in the EU Quarter in order to become involved in the future of their neighbourhood. That wealth of information of what has been attempted and realised should not be lost. It may 87 serve as a source of inspiration for residents’ committees within the context of the EU Quarter as well as for

, contents others. However, it was not the purpose of this publication to compare the various forms of participation to conclude which was the better or more efficient strategy. A true comparative analysis demands a different construction and presupposes a detached and neutral position. That is not the point of view that Bral wishes to present. This publication is a piece of city history about the origin of the European Quarter in Brussels, about the struggle of the residents and the various power relationships. We feel that people know too little about this history. It is necessary to evaluate and reflect in order to learn from experience and to be better prepared for future battles. In the various chapters of this brochure we discussed both the weak and the strong points of the various strategies employed by the residents. Here is a brief summary.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Could better results have been achieved ?

Of course, everything can always cellent dossier ensured that the Régie the elaboration of the financial plan, Acquire a thorough knowledge be done better, but the illustrations des Bâtiments (federal Building Agency) the charter concerning the rehous- of the dossier prove that the residents and their or- had to cancel its public auction. A ma- ing conditions signed by all residents, ganisations in the EU Quarter dealt jor mobilisation like the one organised their long-term involvement,… These If you are well informed about the with things in a professional man- at the time of the impending demoli- actions could have set precedents for dossier, you reinforce your negoti- ner. They employed a wide range of tion of the Leopold Station was able later similar actions. However, because ating position. You may make stra- methods to put their interests on the to prevent that decision. In addition, the pressure on the politicians proved tegic use of the factual as well as 88 agenda and to influence decisions. some building projects were adjusted to be insufficient and in the end the the legal knowledge. However, this

, contents Their efforts and commitment have in view of the reactions voiced during promised security of tenancy was not requires time and commitment. always been great, even though most the commission de concertation (con- realised, those interim achievements The complexity of dossiers and of those involved were volunteers. sultation committees). have come to nothing. the lack of transparency demon- Were the interests and points of strated by the various actors mean view of the quarter’s residents and that you need to search for infor- users (such as employees, entrepre- mation and you often have to try neurs, commuters etc) able to influ- “Looking back the weak point lies mainly to make sense of it. By sharing and ence some decisions effectively ? Were passing on knowledge you ensure the residents and users recognised as in the consolidation of the obtained results. that people remain involved and it fully-fledged stakeholders and were ” makes groups less dependent on they treated on the same level as the just a few individuals, for commit- real estate groups (owners and project tees consist entirely of volunteers. developers), the EU institutions and The situation looks different when The residents and associations Their efforts are not consistent, the various political authorities ? The we view the long term. During their ac- were certainly recognised as fully it is impossible to always ensure answers to those questions vary actions and mobilisation regarding the fledged stakeholders at certain mo- continuity. Moreover, the residents cording to each dossier. Stevin project the residents obtained ments in time, but looking back the often have local expertise and in- There are cases where residents tremendous results : their own long- weak point lies mainly in the consoli- formation, which are more diffi- have clearly influenced decisions : a term organisation, the temporary dation of the obtained results. Even cult to gather for professionals. campaign like Sens Unique, with its ex- management of the block of houses, with an efficient strategy and very

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Who decides at which moment ? Compiling and sharing good consultation, you are still operat- A logical precondition to be able to ex- this aspect, it lacks a clear vision for sound analyses ing within a specific decision making ert influence on decisions is to know the future, both for the short term structure. Moreover, the policy infor- who will take decisions about which and certainly for the medium and It is important to carry out a care- mation and the decision making pro- issue and at which moment. Unfortu- long term. Moreover, the various in- ful analysis of an action or con- cess in the case of important dossiers nately, that is a major sticking point. stitutions of the European Union sultation process, as well as of is very complex and non transparent It is almost never clear which parties (Parliament, Commission, Council, the results obtained. This helps in Brussels, even for professionals. are the responsible points of contact, and Committee of the Regions) have to construct a long term strategy, 89 Therefore, the possibility of exerting a both for the European institutions no joint strategy and carry out in- which makes for progress. Those

, contents lasting influence is very limited. and for the Brussels authorities. sufficient consultations. All this of analyses also need to be transfer- The authorities often limit their able, so that others will be able to role to providing information about use them. After all, residents, com- existing plans. The consultation with mittees, activists and associations residents about spatial planning is often start from scratch, while a insufficiently organised, unlike the lot has often already happened. It social dialogue that exists between “Haggling, not getting involved with the policy may be more efficient if you make employers and workers/trade un- use of and carry on from the expe- ions for instance. That consultation of a partner, or obstructing someone else’s policy are riences and acquired rights of oth- starts on the basis of clear agree- ers. Therefore it is necessary to not ments and each party has specific ac- part of the political culture. only transfer factual knowledge quired rights. The situation is differ- ” but also the analyses and strategic ent in the case of consultation with choices. residents. Except for the very limited, but legally required procedure of en- quête publique (public consultations), The European Union is a relative- course turns them into very difficult the residents do not have any gener- ly young institution, with cumber- negotiating partners. ally recognised and legally protected some decision making chains, and it The distribution of powers in rights. p is still expanding its office park. For Brussels also ensures that produc-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Being present at all times ing a good policy and therefore us- someone else’s policy are part of the SNCB), the SDRB as well as the vari- ing valuable input by residents is political culture. ous regional administrations. Within Try to be active and attend as very difficult if not impossible. The The EU Quarter is an outstanding this complex institutional landscape many consultation meetings as various levels of policy making have example of a neighbourhood where the required director/manager is possible. This is how you show been constituted by different coali- all levels meet. The quarter is located missing. At the same time, none of your involvement in your neigh- tions that moreover tend to change on the border of three municipalities. them have sufficient authority to be bourhood. This applies to the large in composition at different moments None of those municipalities focus able to enforce cooperation. formal consultation structures 90 as well as the many commission

, contents de concertation (consultation committees) for smaller projects. Even though the decisions are not really Within this complex institutional landscape always taken during the roundta- “ bles to which the residents, their the required director/manager is missing. committees and federations have been invited, yet that attendance ” policy constitutes a source of information and a way to become in time. Internal policy discussions on the EU Quarter in their policy. The The fear for relocation and a acquainted with those involved. are often more focused on the de- region (responsable for permits and consequent major economic loss in- Residents are often the most faith- lineation of competences and terri- general spatial planning), the federal duces a tolerant attitude towards ful and active participants in or- tories than about the policies to be as well as the European authorities the European presence. Although the ganised consultation. Authorities pursued. That fragmentation and are also involved parties (interna- Brussels Region declares that it sets more often fail to appear or come political competition almost make it tional treaties). Within that plethora great store by the European presence unprepared to meetings. impossible to achieve a joint project. of responsible and competent insti- in Brussels, there is no minister with Haggling, not getting involved with tutions, you also need to include the specific competence for this issue. the policy of a partner, or obstructing public transport companies (STIB and There is no single contact point for

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Visibility and communication The residents are no longer prepared to participate in consultations “ In addition to sharing information without guarantees. internally, it is also important to provide wider and more general ” communication in order to fos- the institutions, and therefore there It is clear that in this present con- sations the issue then was no longer ter solidarity among the public 91 is none for the residents either. text it is not the residents and their only the project itself, but also the de- at large. Special attention should

, contents Moreover, the internal divisions committees who hold the key to cision-making procedure and the (le- be paid to clearly communicate a among the authorities and the lack achieving high quality residents’ par- gal) implications thereof on the plan- well-balanced and understandable of transparent decision-making re- ticipation. Nevertheless, their many ning for the remainder of the area. message to a large group as well as inforce the position of the private years of efforts and experience in the Therefore, it is always important the various policy makers. There is sector. We find that their building European Quarter have made them to know which subjects will be dis- strength in numbers and a larger projects are in fact usually carried demanding. They are no longer pre- cussed during consultations, which group can exert more pressure. out, even though they may claim to pared to participate in consultations the breakpoints are for each party, The new social media can play be frustrated by the lack of legal cer- without guarantees. They have al- who will take which decisions and at an important role in this area. Try tainty. Take for example the case of ready heard many promises and have which moment in time and who has to maintain that broad solidarity the Espace Léopold where one group started consultations with a lot of en- to supervise it all. This may appear over a longer period of time. News controlled the development of that ergy and optimism. However, the re- to be a strict list of demands, but in has become very volatile and the neighbourhood for over two decades. sult was not in line with their efforts. fact those ‘demands’ only lay down attention span has become very That means that private actors man- It has also happened far too of- some basic conditions for good gov- brief, even for those who are in- aged to maintain their negotiating ten, that the authorities adjusted the ernance. p terested. Therefore, you need to positions during more than four leg- legal requirements along the way in always be on the lookout for new islatures in a widely varying political order to be able to carry out certain methods to keep people involved. landscape. projects. For the residents and organi-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Global management with an eye for detail Choose the right battle Although most of the examples from Parliament had been prepared by pri- Master Plan Europe where not a word this publication may date from some vate investors in the corridors of the had been said about these tower Among the plethora of problem time in the past, they still remain discussion about the Study Brussels- block projects. dossiers, committees mobilise to highly relevant. Europe Area. At the real estate fair of Meanwhile this concept has been focus on specific projects. A re- After the extension of the Euro- Cannes (Mipim) in 2007, an architect developed into the so-called Projet action does not only need to be pean Parliament in the Rue de Trèves and a Belgian Bank presented a tower Urbain Loi (City Project Loi) : an enor- against a certain project ; it is also (permission was granted in 2002) it block project located on the corner mous real estate project that in ad- possible to focus on how projects 92 appeared for a while that things were of the Rue de la Loi and the Chaus- dition to many years of building site originated or on what the quality

, contents more peaceful on the European real of the decision making process state front. It seemed that decisions was. It is impossible to take action had been made about the large pro- on all fronts at once. Therefore it jects and that mobility was now the is important to choose a feasible major hurdle. The Master Plan for Eu- motive for action. This action may rope was to lay down provisions for They often minimise the management of those also illustrate the more general de- the further integration of the institu- “ mands, like quality public spaces, tions. grand projects. Ultimately, it is the community who mixed and affordable housing and However, after the Parliament is multi-modal accessibility. it now the European Commission, will need to solve the problems and bear the costs. which has grand construction plans. The real estate developers are very ” keen to take advantage of this and they are clearly still very well informed about the requirements of sée d’Etterbeek and a few months nuisance will cause fundamental the institutions. It gives us a very later the Commission requested a changes in the neighbourhood. The strong feeling of déjà vu. restructuring of its administration on residents were only informed about During the mid nineteen eight- that location. All this took place, after this by the press. The first forum at ies the construction of the European the public hearings about the project which they were able to give their of-

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical How to carry on in the future ficial response to that plan, took place lasting building sites) as well as in ref- By using mobilisation and grassroots Alternate actions exactly four years ( !) after the decla- erence to the long term consequences action, it is possible to exert pressure ration of the Commission, that is to (mobility, changes in the population and to create the required balance of A varied approach is effective. It is say during the enquête publique (pub- and lack of affordable housing). Ulti- power in order to enforce this debate. appropriate to change your strat- lic enquiry) about the RRUZ/Regional mately, the residents will be the first This means that it is necessary to ap- egy and/or means of action from Regulation for Urban Development Zones, to be confronted with the nuisance. peal to creativity to mobilise people time to time. Whether you involve the first official ‘plan’ setting out the The community will need to solve the and their indignation about the state yourself in consultation meetings, 93 Projet Urbain Loi. Therefore, it is not problems and bear the costs. This is of affairs. Changing situations and carry out a detailed examination

, contents surprising that most reactions were the leitmotif during all the actions by new groups and collaborations be- of dossiers and elaborate strate- negative. the residents’ associations in the EU tween associations require their own gies, take street actions or organise The European Quarter remains a Quarter that were discussed in this approach. The past achievements of a cultural event, you address a dif- test site both for the real estate sec- brochure. p the residents in the European Quar- ferent and therefore larger public tor and for the authorities. Promoters ter may serve as an inspiration for at each occasion. You always pass launch their projects for increasing the future. on the message, but you do so in a building density here whilst the au- Very recently a number of factors different way. Active residents and thorities search for new legal instru- appear to have a more positive influ- their committees also need variety ments to provide those real estate ence on the climate for debate. The and creativity to combat boredom. developments with a legal frame- Agence de Développement Territorial When the residents’ battle carries work. The authorities legitimise their (ADT), which was mandated to co- on for years, it must remain enjoy- goodwill towards the promoters by ordinate large development projects able in order to maintain the inter- their concerns about losing major in Brussels in consultation with all nal cohesion. earnings. In their view the financing public and private partners, will play of the Brussels Capital Region might a role in this matter. The future will be endangered. tell the quality and impact of this However, they often minimise the tendency and whether it is going to management of those grand projects, last. p both during their construction (long

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS 4. It is all still very topical Lexicon

BRAL : Brusselse Raad voor het ARAU : Ateliers de Recherche et of the European Union in 2001. The pioneers of public space. [ french : Les Sentiers de Leefmilieu vzw – www.bralvzw.be d’Action Urbaines asbl – www.arau.org of this group were people closely linked to l’Europe / dutch : De Paden van Europa ] [transl. : Brussels Council for the a group of Brussels residents organised as a Cinema Nova and Citymine(d), who in turn BEA Study : Brussels-Europe Area Environment ] non-profit association, that analyses urban had developed on the basis of Hotel Central Study [ french : Étude EBE - Étude development projects and Sens Unique. Espace Bruxelles Europe / dutch: Studie IEB : Inter-Environnement Bruxelles RBE – Studie Ruimte Brussel-Europa] asbl – www.ieb.be – in broad terms the Hotel Central : In 1995 and 1996 a number Espace Léopold : The name of the area French-speaking sister organisation of BRAL of Brussels’ residents, students and artists on and around the former Leopold Train 94 SEL : Société Espace Léopold s.a. – the occupied the empty Hotel Central (nowadays Station (nowadays the Luxemburg train private consortium that carried out the devel- , contents GAQ : Groupe d’Animation du Quartier Marriott Hotel) across from the Bourse in station) that was developed in de mid-80s opment of Espace Léopold Européen de la ville de Bruxelles asbl the city centre, to denounce the speculative to welcome the buildings of the European – www.gaq.be – group of citizens in the vacancies in the centre of Brussels. Parliament. Roughly situated between CIC : International Congress Centre northern part of the EU Quarter Parc Léopold and Place Luxembourg. the current Paul Henri Spaak-building, which Fondation Sens Unique Stichting : see map p.71 [ french : Espace Léopold / is the building used by the European Parlia- AQL : l’Association du Quartier At the end of 1996, the Régie des Bâtiments dutch : Leopoldsruimte ] ment for its plenary sessions in Brussels Léopold et Européen de Bruxelles asbl (federal Building Agency) announced the [ french : CIC – Centre International de – www.quartier-europeen.eu – public auction of four plots of land in Les Sentiers de l’Europe : In 1997 Congrès / dutch: ICC – Internationaal group of citizens in de southeastern part the European Quarter: the so-called Parc Brussels’ minister for Urban Planning Congrescentrum ] of the EU Quarter Anonyme, Comines-Froissart, Van Maerlant Hervé Hasquin launched the international competition ‘Les Sentiers de L’Europe’, in SDRB : the Regional Development Riverains Jourdan : group of citizens and a site adjacent to the Résidence Palace. cooperation with EU Commissioner Erkki Company for the Brussels Capital living on and around Place Jourdan in A diverse group of Brussels’ activists felt Liikanen, i.a. responsible for the real estate Region since November 2013: Citydev Etterbeek that they had to react to this and founded the ‘Fondation Sens Unique Stichting’ so they policy of the European Institutions in [ french : SDRB – Société de Développement Coordination Europe : the collaboration could react together to this intended auction. Brussels. The idea was to improve the image pour la Région de Bruxelles-Capitale between GAQ and AQL supported by BRAL and the living quality in the EU Quarter. The / dutch : GOMB – Gewestelijke and IEB see p.6 (Collectief) BruXXel : Group of activists emphasis was on the organisation and design Ontwikkelingsmaatschappij Brussel ] that originated during the Belgian presidency

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS Lexicon Lexicon

ADT : Agency for Territorial MAPS : Hilde Geens (°1953) is senior staff Development [ french : ADT - Agence de • The European Quarter in Brussels : member urban planning at BRAL. She Développement Territorial asbl / dutch: p.11 has been working since the early eighties ATO – Agentschap voor Territoriale • The European Institutions : p.13 on the ‘European dossier’ and was deeply Ontwikkeling ] • The three occupations : p.54 involved in all initiatives and actions • The European Parliamant and described in this publication. To this day PPAS : Specific Plan for Land its surroundings : p.71 she follows closely the overall Brussels Allocation [ french : PPAS – Plan 95 planning processes, and in particular the Particulier d’Affectation du Sol / TIMELINE : p.20-21 developments in the European Quarter. , contents dutch : BBP : Bijzonder Bestemmingsplan ]

PRAS : Regional Land Use Plan [ french : PRAS – Plan Régional d’Affectation du Sol / dutch : GBP – Gewestelijk Bestemmingsplan ]

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS Lexicon Epilogue

Of course, the history of Europe in its surroundings. Can we therefore plex dossiers. This does not mean the Coördination Associative lacks Brussels is a never-ending story. Eu- conclude that the consultations that that things will be easy. Everyone will sufficient manpower and financial rope is still growing and demanding ended when the Comité de Suivi fiz- have to break their old habits. The means. This publication with its pal- more space in Brussels. Inhabitants zled out in 2001 have now been given message is to remove distrust and to ette of choices for actions by inhabi- of the European Quarter continue to a new opportunity ? take a constructive attitude. Moreo- tants provides sufficient proof that make their voices heard. Heated dis- At least we note a number of ver, the consultation should start in they have a great deal of dedication cussions about the reconstruction of positive elements. All partners are good time and be based on mutual and professionalism. 96 the Eastman Building in the protect- showing goodwill. Of course, the fact respect.

, contents ed Leopold Park – which will become that few or no economically impor- However, there is no point either I would like to thank all the people the site for the Museum of European tant real estate projects have been in being naive. At present, the resi- who have contributed to this publica- History – this time did not end up on planned for this site facilitates the dents are still no equal interlocutors. tion. They all have helped to reflect, the tables of the lawyers, but resulted deliberation. The Leopold Park may Residents and the groups and com- write, correct and amend : in a dialogue. be limited in size, but it represents mittees that represent them do not Albert Martens, An Descheemaek- This dialogue involves the Euro- a vast symbolic value, both for the have access to the same extensive er, Ann De Cannière, Annemie Pijcke, pean Parliament, the Brussels Region, European Parliament and for the professional services as the real es- Christian Dellicour, Christine Goyens, Bruxelles Environnement, the Agence neighbourhood. Once again, a great tate sector and the municipal or re- Gaëtan Van der Smissen, Gerben Van de Développement Territorial (ADT), many parties are involved in this gional administrations. If they are re- den Abbeele, Henri Bernard, Joost the City of Brussels and the munici- project (owners, users, managers, ally meant to play a significant role, Vandenbroele, Mark Trullemans, palities of Ixelles and Etterbeek. Even project leaders, various levels of gov- there needs to be moral as well as Mathieu Sonck, Piet Van Meerbeek, the Coördination Associative, rep- ernment…). financial support for the struggle of Sofie Vermeulen, Steyn Van Assche, resenting the voice of the groups of This turns the Leopold Park into the residents. I hope that this publi- Thierry Timmermans. residents that are involved in the EU a training ground par excellence, a cation may contribute to reinforce My special thanks go to Joost Quarter takes part in the dialogue. kind of laboratory to try out various this point. whose assistance for the last three Together they are now discussing an kinds of collaborations, which may It is hoped that we shall not con- years has helped me to reach the integrated and sustainable recon- hopefully demonstrate their worth at clude in the near future that this new homestretch. struction of the Leopold Park and a later date in the case of more com- consultation has fizzled out because Hilde Geens

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS Epilogue Colofon

vzw Brusselse Raad voor het Leefmilieu This publication is available in English, Zaterdagplein 13 (1st floor), 1000 Brussels French and Dutch and is free to T 02 217 56 33 download on www.bralvzw.be – Cette [email protected] – www.bralvzw.be publication est également disponible en français et est gratuite à télécharger Legal Deposit : D/2014/1969/03 sur www.bralvzw.be – Deze publicatie is V.U. (responsible publisher): Sarah Hollander, ook beschikbaar in het Nederlands en is Zaterdagplein 13, 1000 Brussels 97 gratis te downloaden via www.bralvzw.be

, contents Photos and images on front cover and Bral vzw is a Dutch-speaking Brussels- chapter pages © GAQ, BRAL, based association that brings together ADT-ATO, Le Soir, AQL (Lagasse), citizen groups, organizations and Brus- Riverains Jourdan, Coordination Europe selians with the same commitment: Photos and images : a livable city where everyone can live, work and travel in a comfortable manner , noncommercial 3.0 Belgian Licence, unless otherwise stated. that is at the same time environmentally sound and affordable. With our members Graphic design : Wim Didelez and partners we organise actions and Final editing : Lotte De Caluwe lobbying. We disseminate insights about Translation: Annelies J. Wing-Wirth – our diverse city and try to collaborate on the translation was possible thanks to the an equal footing with as many partners support of the King Baudouin Foundation as possible. We raise awareness and give advice to Brussels inhabitants, and sup- Copyright : Feel free to re-use this pub- port them in reaching their goals. As an lication or parts thereof, so long as it is independent organisation, our work is properly acknowledged based on solidarity, participation, equal- January 2014 ity and diversity.

COMMUNITY ORGANISATION IN THE EUROPEAN QUARTER IN BRUSSELS Colofon