London 2012 Legacy – Did London Deliver on its Singapore Pledges?

By Peter Evans

The Aquatic Centre of the Olympic Games of 2012 is affordable, well used and well liked by the ­community.

Photos: Peter Evans

Legacy has become a core dimension of mega-event sporting facilities, and the conversion of the Olympic bidding and hosting strategies. With such expansive Park/Village into a sustainable place to live, with potential to bring about the positive regeneration of an affordable housing options. These undertakings became area, the Olympic Games is a trigger for state-led social, known as the ‘Singapore Promise’; and, following the urban and economic transformations. The Games act as numerous examples of ‘White Elephant Syndrome’, a consensus builder – creating a willingness to mobilise London appears to have delivered what many consider resources to focus on and deliver city projects – whilst to be the prototypical 21st century Olympic Games. The stimulating a broader acceptance within government, Olympic Stadium has been reconfigured into a football industry and civil society of sustainable and ethical best stadium, similarly the athletes’ village is now a newly practices. beautified urban East Village neighbourhood. To In 2005, Lord Coe and his bid team pledged that accommodate the fundamental remodelling of the a London 2012 Olympics would regenerate one of newly established E20 post code, the transport system London’s poorest areas and deliver lasting-legacy, most in and out of Stratford has been transformed and the notably the inspiration of a generation to participate commercialisation of the area is relentless. and volunteer in sporting activities hosted in flexible However, prior to the Singapore Promise, Malfas et al (2004) argued that economic benefits would remain the prime motivation for hosting the Olympic Games Peter Evans | Senior teaching fellow at Birmingham City University, located in central England, and lectures on critical and that the potential social, political, cultural and management theory. He has a Masters degree in Olympic environmental impacts are ultimately utilised to validate Studies from the University of Cologne and worked for UK Anti-Doping during the 2012 and 2016 Olympics. His research the staging of the Games rather than providing an actual interests focus on the impact and legacy of mega-events. benchmark for positive change for the residents of the Looking ahead, he will be undertaking in-depth ethnographic host city community. Has this been the case in London studies into the 2022 Commonwealth Games in Birmingham. since that momentous day in July 2005?

44 Inspired to Participate? of tomorrow and the Olympians of the future, we humbly submit the bid of London 2012”. The IOC was on board; Coe London’s Singapore Presentation, on 6th July 2005, was had won the day and London 2012 was both a reality and delivered by an eclectic mix of characters (from opposing a seductive vision of a healthier nation, transforming the political persuasions, to royalty, to former Olympians). lives of young people (Gibson 2015). However, it was the words and vision of Sebastian Coe Against the odds, the London bid was a success with that resonated most across a spellbound, consenting IOC Coe and Prime Minister Tony Blair taking the plaudits. keen to endorse one of their own. However, the rhetoric in Singapore had been largely Coe single-handedly usurped the agenda, ahead of without tangible substance; Tony Blair had stated: “Our the shoo-in bid of Paris, with a passionate oration and vision is to see millions more young people in Britain and an enlightened pledge that not only inspired delegates across the world participating in sport and improving but questioned the relevance of the Olympics in the 21st lives as a result of that participation. And London has century. Thus, whilst Coe extolled the virtues of the IOC, the power to make that happen”. This pledge had to be pandering to egos (“no group of leaders does more than translated into action and a somewhat shell-shocked you to engage the hearts and minds of young people”), UK Sport (the country never expected to actually win the he challenged the Movement, now operating within its bid) now had a new, truly colossal remit – how do you post-commercial phase, to make a bold decision that inspire a generation to re-engage with Olympic Sport was critical to the very survival of Olympism: in a country besotted with football and disengaged In the past, you have made bold decisions. Decisions from exercise? As unlikely as that sounds, it was still which have taken the Movement forward in new and further compounded by the need to reach out beyond exciting directions. Your decision today is critical. It is Britain’s shores to the youth of the entire Olympic family a decision about which city will help us show a new – changing a generation on a global stage was a truly generation why sports matters … why the Olympic noble goal but it was vision that appeared decidedly ideals still matter so much. empty in the cold light of day. Nevertheless, London, although burdened by a This vision provided clear daylight between the respective complex governance structure involving the Government bids of London and Paris, capturing the attention of an Departure for Culture, Media and Sport (DCMS), the British audience at least partly in touch with the need for the Olympic Association (BOA), the Greater London Authority Movement to connect to a generation that they did not (GLA), the Mayor of London, the Olympic Delivery understand. Lord Coe had a vision to keep the Movement Authority (ODA), the London Organising Committee of the germane to ‘Generation Y’ (the digital, liberal Millennials Olympic Games (LOCOG) and the London Development whom the establishment wished to ‘connect’ with Agency (LDA), did attempt to plan for legacy at an early but didn’t know how to) and thus Coe handed the IOC stage, with local consultation – although there was salvation: “On behalf of the youth of today, the athletes resentment that the regeneration would ultimately

The East Village or International ­Quarter. Londoners are invited to ‘Get Living’ in the refur- bished athlete’s ­village. It is now a thriving, affluent community. Critics have argued, with some justification, that this does not represent ‘affordable housing’ for local people. The housing has attracted a ­diverse community, together with inter- national property investors.

JOH 3 | 2018 London 2012 Legacy – Did London Deliver on its Singapore Pledges? 45 At the heart of the East Village new ­residential district is Victory Park, home to a variety of stylish, chic bars, coffee shops and restaurants catering for a prosperous neighbourhood.

happen to the local communities rather than being Inevitably, the 2008 global financial crash and ensuing influenced by them (London East Research Institute credit crunch led to a change of government in the [LERI], 2007). It is also to London’s credit that this UK and thus a change in philosophy as a period of coalition of agencies was not dominated by commercial austerity and retreat in social investment took hold. interests in the same way as perhaps the 1996 Atlanta The Conservative–Liberal coalition committed to a Games were. lasting Olympic legacy, but Michael Gove (the new The first step on this epic journey was for the DCMS to DCMS Minister) almost immediately cut funding for commission a ‘Taking Part’ survey (called the ‘APS’ or physical education in schools by £162m. The popular ‘Active People Survey’) in 2005 to benchmark sporting ‘School Sport Partnership’, introduced under Labour to engagement for adults aged 16 and over and children integrate activities across schools, was disbanded. The aged 5 to 15 years old in England, providing a clear Sport England fund called ‘Sport for All’ was another picture of why people do or do not engage with sport. victim of the cuts and any hope that the funding and The first APS revealed that between October 2005 infrastructure would therefore be in place to harness the and October 2006 swimming (3.27 million people), anticipated huge public interest and desire to re-engage football (2.02 m), cycling (1.69 m) and athletics (1.34 m) with sport post-London 2012 was perhaps lost long were the most popular ‘once-a-week’ participation before Mo Farah, Jessica Ennis, Bradley Wiggins, Chris sports in England. Richard Caborn, the Sports Minister Hoy, the Brownlee Brothers, Andy Murray, Nicola Adams in 2005, proposed that the plan was for one million et al provided the hosts with truly glorious evenings, more people to be participating in sport by 2013 and to inspirational role models and a platform for real change. achieve this Sport England, who had responsibility for Indeed, there was clear evidence from the athletes generating and maintaining participation in sport, were themselves that funding sport, at grass roots level provided with record levels of funding from the Labour prior to the influence of elite national bodies, Government in the period prior to the 2008 stock market makes a difference. Of the 65 Team GB medallists a crash. disproportionate 37% were achieved by privately- For the three-year period to March 2008, Sport England educated athletes in a country where only 7% are thus spent £660 million to promote sport and physical educated (Vasagar, 2012). Clearly, these institutions, with activity, and whilst progress was relatively slow, the better facilities and coaching, out-performed the state National Audit Office (NAO) reported that participation school system, supporting the view that the UK had a had increased by 520,000 during this period (Amyas two-tier provision of sport based on socio-economic Morse, head of the NAO, 2010). Furthermore, by 2010, status. Lord Moynihan, Chairman of the British Olympic 95% of state school children were given the statutory Association, said that the figure was “one of the worst minimum two hours of weekly physical exercise (up from statistics in British sport” and it should be a priority to just 25% in 1997). make sport a more accurate reflection of society.

46 The Stratford ­Shopping Centre is the ‘poor-relation’ to the new Westfield (one of the largest urban shopping ­centres in Europe). ‘Studio Egret West’ designed ‘The S­tratford Shoal, a 250 m titanium sculpture in Stratford as a ­public realm inter- vention, which aimed to ­improve the urban continuity and l­egibility of the ­existing 1970s ­Stratford Centre. Most people viewed it as an attempt to hide an unfashion- While this is simultatenously impressive and disturbing, Family), sought the advice of prominent UK NGBs to able part of Stratford it is not critical – most of the British public did not aspire ride the wave of sporting success. The lack of a coherent that was in a prime for their children to become Olympians but they did ­government strategy for sport was exposed and ­Cameron location. want them to have the opportunity to pursue these sought to belatedly act (had he done so effectively his sports, many of which are swamped by the English own personal legacy may have been to alter the UK’s slide obsession with football (the media, school curricula and towards obesity instead of his Brexit epitaph). culturally). Blair and Coe had provided a vision and a For many (Olympic) NGBs however, Cameron’s entreaty taste of real legacy – could Prime Minister David Cameron of the Football Association, English Cricket Board and deliver the means for lasting change? Rugby Football Union to help deliver a lasting legacy was misguided. None of these sports were responsible The impact of austerity measures post-2012 for the uplift in sporting activity in the UK (indeed statistics prior to the OG suggested that these sports were Initially, there were some encouraging signs. In December haemorrhaging market share in terms of participation). 2012, Sport England released figures that revealed the Predictably, they concluded that more funding of their original targets had been met and surpassed: 15.5 million respective sports would meet the needs of the next people aged 16 and over were playing sport at least once generation; so, the answer was more of the same (it was a week, representing a rise of 1.57 million over the 2005 none less that Albert Einstein who once said: “We cannot benchmark. These figures included a huge upsurge of solve our problems with the same thinking that we used 750,000 in the Olympic year (clearly it was the ability to when we created them”). accommodate and retain this spike that would ultimately Belatedly, in March 2013, Prime Minister Cameron determine the legacy of the London Games). announced the new funding for primary schools of £150 The National Governing Bodies of sport in the UK m a year for two years. The money was ring-fenced and reported unprecedented levels of inquiry into how and given directly to primary schools in England. Schools where to participate in Olympic Sports. Coe’s vision were able to pay for extra coaching sessions to improve seemed a genuine possibility, but the Government had the quality of sports and PE provision. Cameron said: seemingly missed the boat – so many people, mostly “We can create a culture in our schools that encourages children holding the hands of despairing parents, all children to be active and enjoy sport.” Having reported that they were unable to find the facilities and dismantled the school sport partnerships this appeared coaching required to try to replicate the skills of their new to be a quick fix born of political expediency. Shadow heroes. Sports Minister, Clive Efford, described the move as Former Prime Minister David Cameron, the old-­Etonian follows: “Cameron wanting praise for putting money who had clearly enjoyed the Olympics enormously (he back into school sport is like a burglar returning stolen was often seen in prime seating alongside the ­Royal goods and expecting to be hailed as a public hero”.

JOH 3 | 2018 London 2012 Legacy – Did London Deliver on its Singapore Pledges? 47 Outside Leyton tube A successful narrative? female participation with a cutting-edge advertising station, the l­ocal campaign called: “This Girl Can!” The results have borough ­arranged Despite Efford’s scathing summation of Cameron’s been highly impressive in breaking down barriers for a number of posturing, participation has continued to grow, reaching and taboos to female opinions of sport (the campaign shops 15.97 million in December 2016 (higher than October addressed head-on the issue of body image and the to be upgraded. 2012) and a full 1.88 million higher than when London fear of judgement). The online video attracted 37 million This ‘beautification’ won the bid in 2005. What is even more remarkable viewers and inspired 1.5 million to participate in sport. could be arguably is that this has been achieved against a backdrop of In evaluating the fulfilment of participation pledges regarded as a local authorities in the UK investing 27% less on sport made in Singapore it is difficult to quantify and qualify P­otemkin façade. in the period 2009/10 to 2013/14 (a drop of £389 m due, the level of success as the objectives were ill defined. The In the photo: In primarily, to austerity cuts). Olympic Games did create numerous role models and the shadow of the There have, of course, been winners and losers: some open the eyes of the British public, too long fixated on ­Olympic Stadium, sports (such as swimming) have fallen from grace in the football, but the lack (or deconstruction) of infrastructure faced with evictions, shifting sands of public tastes; economically-deprived and Government investment stunted the impact of the demolition and an groups and those with disabilities have not enjoyed Games which could have been transformational rather uncertain future the participation growth at the same level and some than just statistical. Indeed, by 2018 the British media, estate has survived. geographical areas of England, particularly in the north, through media rights and coverage, is perhaps more The local public appear to have benefited the least from the Games. entrenched in football than ever before – with the next house (The However, the mood within the industry is pragmatic; generation more likely to spectate the game rather than ­Carpenter’s Tavern) Phil Smith (2016), Sport England’s director of sport, participate in it. has seen a signifi- stated: “… we’re the first host nation ever to deliver the Despite this, significantly more people now play sport cant increase in legacy of getting more people active”. in the UK in 2018 than prior to the Singapore Promise – trade on West Ham Whilst this has to be celebrated, Sport England, local and it must not be overlooked that, without the Olympic match days. authorities and the UK Government must heed the Games in 2012, grass roots sport participation may have shifting profile of sport, as Richard Cabourn suggests: continued unabated on its near-terminal decline across “… funding things such as Park Runs and community the UK. Thus, although the 2012 Olympic Games may projects and not just focusing on giving big sport not have been truly transformational in changing the associations lots of money and then letting them decide UK’s sporting environment, it did force sport onto the how best to use it”. This has certainly been the case government conscience and obliged it to take action – with swimming, which has seen a 23.7% drop in weekly reflecting upon the cost cutting exercises experienced participation over the last decade (equating to three- elsewhere across the social sector, the consequences for quarters of a million people). What is of real concern is sport of London not having prevailed in Singapore are that such a phenomenal decline has occurred against a beyond bleak. backdrop of 564 new pools opening (Rhodes, BBC, 2016) Overall, I’m inclined to suggest a qualified success across England (73% of which are in London). for the participation legacy – but what of the urban It is also worth considering how insightful, well- regeneration plans? State-led urban renewal is much resourced campaigns, that reflect and resonate with more rapid than the more normal organic changes seen the demands of inactive people, can have much more in the development of a city, so whilst participation cost-effective gains over that of a mega-event. For growth has been a slow grind the urban environment example, in the UK, Sport England (2016) targeted has seen seismic change.

48 The policy of ‘convergence’: The word ‘survival’ was certainly not part of the state-led urban renewal Government’s lexicon when it bid for the Games in 2005. Nevertheless, as Bernstock (p. 216) goes on to state: The Growth Boroughs Partnership (GBP – formerly As the government attempts to recoup the costs of the ‘Host Boroughs Partnership’ and comprising of staging the Olympics through the sale of land, the local and national government, the Mayor and local incentive could be to sell to the highest bidder and this communities) was established in 2006 with the aim of may mitigate against a more socially inclusive form of “regenerating an entire community for the direct benefit urban regeneration. of everyone who lives there”. Creating a ‘Strategic Regeneration Framework’, the GBP instigated the policy This appears to be the case as the demand from private of ‘convergence’ for the six host boroughs, which stated, investment endures, despite any uncertainty fears “within 20 years communities who host the 2012 Games associated with Brexit. will have the same social and economic chances as their neighbours across London” (Bernstock, 2016). Potempkin images London’s East End has had an ongoing housing problem for decades. For example, between 1987 Across the six boroughs there is an eclectic mélange of and 2004 the proportion of social housing in Tower housing activity. In Hackney Wick the Government’s Hamlets (one of the six London ‘Olympic Boroughs’) House Price Index (HPI) evidences enormous levels of declined from 82% to 46% (Bernstock, 2016). Whilst gentrification-related house price growth, significantly this borough was notoriously impoverished, the land above the London average. For example, between prices were high – due to the proximity of the financial July 2009 and July 2014 Hackney experienced property centre of London. It was therefore quite clear that one increases of 82%, compared with 48% across London. of the impacts of regenerating the Stratford area of The area is now awash with signs of the contemporary London would be to create an environment appealing subculture of ‘hipsters’ (affluent bohemians) who are to investors seeking to capitalise on renovating responsible for the abundance of new coffee shops, property, which increases property values and rent, and bistros and warehouse galleries in the locale of the vastly ultimately leads to the displacement of the very people improved post-Games infrastructure. Nevertheless, that regeneration seeks to assist: low-income families a once run-down, derelict area is now bursting with (Lees et al, 2008). vibrancy. So, whilst this ‘East-meets-West’ aspiration appears The Borough of Newham has omnipresent levels of to be a laudable, well-intentioned objective there were construction that are not only transforming the skyline legitimate concerns that the divide could be bridged but having significant impacts on the social fabric. In at the expense of social housing and their tenants. 2016, it was reported that Newham had become the 25th Indeed, some commentators suggested that this may most deprived Borough in England, a huge improvement go beyond perfunctory planning practices (that cause from 2nd in 2011. On the surface, this is to be applauded. unintentional displacement) and become a form of However, as house prices rise, and rents soar, many social cleansing, indicative of a progressive, elitist analysts suggest that the gentrifiers are displacing replacement agenda. Newham’s poorer residents. Carpenter’s Estate in Certainly, so great is the level of transformation in particular was the scene of ongoing battles between some London Boroughs that it led the influential urban residents and the Local Authority over evictions and studies author Paul Watt (2016) to describe the East End stands in stark contrast to the proliferation of affluent areas such as Hackney and Stratford as “gentrification on skyscrapers. steroids”. The impacts are varied, however. Whilst the Ultimately, the majority of the new-build East London University of East London (UEL, 2015:15) reports reduced housing has never fully embraced the concept of levels of Poverty and Social Exclusion (PSE) across meeting local housing needs; it has become a process the Olympic Boroughs post-2012, it is an area-based for maximising returns on investment at a time of record measure rather than people-based (Cohen and Watt, low interest rates (Watt and Bernstock, 2016). 2017). This disparity is highlighted by the London School At the epicentre of all the reconfiguring of Stratford of Economics (LSE) Housing and Communities (2014) ‘quarter’ sits the Westfield Centre, which has attracted organisation, who state: phenomenal footfall from across London and from a Life in general and rising costs in particular, make global tourist industry. Meanwhile, the design of the survival increasingly difficult … Rent, energy bills, the physical environment surrounding the shopping district cost of childcare and food … a decline in job security, has received cosmetic attention in an attempt to ‘stitch’ income and prospects. They feel worse off and are the fringes of the area into the broader London milieu – generally insecure. a kind of tactical urbanism. This has resulted in some

JOH 3 | 2018 London 2012 Legacy – Did London Deliver on its Singapore Pledges? 49 In the aftermath of the Olympic Games, London has avoided the ‘White Elephant’ syndrome by provid- ing West Ham United with a new home.

degree of beautification, which Fussey and Coaffee (2016) Elsewhere, the Olympic Swimming Pool and Velodrome describe as “Potempkin facades concealing the down- are open to the public, and well populated. The at-heel high streets”. One such concealment is the so- basketball arena and water polo centres were removed to called ‘Shoal’, a public sculpture designed to conceal avoid costly maintenance, with the basketball relocating Stratford’s municipal architecture. to the Copper Box. The Queen Elizabeth Park remains a A short walk from the Shoal one finds the Olympic place that people enjoy using and adds to London’s rich Stadium – one of the most iconic images of any Games. traditions of parks. Four years earlier, Beijing’s Bird’s Nest amused and In conclusion, the London 2012 Games met many of the thrilled a global audience. China, however, was enjoying promises made in 2005. The stadiums were reconstituted a monumental coming-of-age global salutation of its to reduce tax-payers’ burden, the transport infrastructure place in the 21st century and was ill-disposed towards has seen significant investment and improvement, the creating a benchmark for rational facility design and area is now landscaped and provides upgraded living legacy (to be fair, due to the planning time frames, the conditions with marvellous facilities and the levels of subsequent Games rarely have time to incorporate best sport participation have risen (albeit not to the predicted practice or learn lessons from the previous Games). levels). However, as is often the case in society, those However, London, in the midst of a debilitating global most at need were further marginalised – unable to gain recession, could not afford such profligacy – there was a foothold on the social ladder and displaced to other a clear need to find solutions to post-Game facility areas beyond London’s new urban utopia. management issues. Since 1999, the principle of sustainable development London again delivered in this area. Whilst it could forms part of the contract between the IOC and the host have done much better there is no obvious, embarrassing city (IOC, 2011). This is to be applauded, but it remains white elephant scarring the landscape. The Olympic a discretionary principal that does not require local Stadium has been renamed the London Stadium and, legislation. Perhaps the next phase for the IOC is to learn putting aside the lack of imagination involved in the from the successes and failures of London 2012 to truly renaming, the stadium is used on a regular basis by promote a social sustainability agenda through binding West Ham United Football Club. The relocation of West commitments enforced through the host city statutes. Ham United was not smooth: the stadium is not ideal for Thus, this author calls for a binding host city football and the East End businesses and community that commitment that ensures Tokyo, and future host cities surround the old stadium (now demolished) were bitterly beyond 2020, convert their respective athlete villages opposed to the move. Nevertheless, time heals, and the into truly affordable housing and local authority social stadium is becoming more established, whilst attracting rental values in the vicinity of the Olympic complex are regular 60,000 attendances. frozen to support the most vulnerable tenants. •

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