Gro Sandkjær Hansen, Jan Erling Klausen and Signy Irene Vabo PLUS - PARTICIPATION, LEADERSHIP AND URBAN SUSTAINABILITY Country report Norway Working Paper 2004:108 Title: PLUS - Participation, Leadership and Urban Sustainability Country report Norway Author: Gro Sandkjær Hansen, Jan Erling Klausen and Signy Irene Vabo Working Paper: 2004:108 ISSN: 0801-1702 ISBN: 82-7071-486-0 Project number: O-1939 Project name:: PLUS Financial supporter European Commission Head of project : Jan Erling Klausen Abstract: This is the report of Norwegian case studies of the PLUS (“Participation, Leadership and Urban Sustainability”) project funded by the European Commission under the 5th Frame-work Programme on Research and Development. The same format has been adopted in all nine country reports of this international project, and the research has responded to a common set of concepts and ideas about leadership and communities. The PLUS project examines how leadership and community involvement can combine to lead to better policies for cities. Summary: Norwegian and English Date: August 2004 Pages: 202 Publisher: Norwegian Institute for Urban and Regional Research Gaustadalléen 21, Box 44, Blindern N-0313 OSLO Telephone (+47) 22 95 88 00 Telefax (+47) 22 60 77 74 E-mail: [email protected] http://www.nibr.no Printed: Nordberg A.S. Org. nr. NO 970205284 MVA © NIBR 2004 1 Preface In the period 2002 - 2004, NIBR and the cities of Bergen and Oslo participated in the project “Participation, leadership and urban sustainability” – PLUS. Funded by the City of Tomorrow and Cultural Heritage key action 4 within the Framework 5 Research Programme of the European Community, the project proposal was initiated by members of the European Consortium for Urban Research (EURA), in which NIBR is among the founding members. Nine academic partners and eighteen city partners were involved in PLUS, in addition to the international organisations Eurocities and Quartiers en Crise. The Cities Research Centre of the University of the West of England, Bristol, coordinated the project. Research activities in PLUS have been meticulously co-ordinated across countries, in order to facilitate comparative analysis. Following this, the Norwegian case studies are to be seen as inputs to the cross- national comparative analysis, and not as stand-alone outputs. This publication is not the final report of an assessment of the four policy initiatives studied in Norway, and they should not be regarded as such. The Norwegian PLUS team has been co-ordinated by Jan Erling Klausen, succeeding Jon Naustdalslid who headed NIBRs efforts in the quite extensive development phase of the project proposal. Other members of NIBRs PLUS team have been Gro Sandkjær Hanssen and Signy Irene Vabo, who are co-writers of this working paper with Klausen. Co-ordinators in Bergen and Oslo have been City Secretary Roar Kristiansen and Assistant Director General Helene Solbakken. NIBR would like to thank Kristiansen and Solbakken sincerely for their valuable contributions to PLUS. Our gratitude is also extended to the numerous individuals who have contributed to PLUS in terms of submitting forms, being interviewed or providing relevant documents. The main comparative findings in PLUS will be published in two books. The first book is about to be published by Routledge, and the title is Urban Governance and Democracy (Michael Haus, Hubert Heinelt, Murray Stewart, eds., 2004). Draft title of the second book is Working paper 2004:108 2 Leadership and Participation: Searching for sustainability in European cities. Editors are Panagiotis Getimis, Hubert Heinelt and David Sweeting, and expected publication is late 2005. For the present, the PLUS website is http://www.plus-eura.org/. Documents pertaining to PLUS may be downloaded, including the various national reports. PLUS has had a focus on two policy fields which are crucial to the quality of life in towns and cities: economic competitiveness and social inclusion. The research project is founded on the assumption that the achievement of effective urban governance and thus of sustainable policies is strongly dependent on the complementarity of urban leadership and community involvement. This complementarity is dependent on the institutional settings and contexts of local governments and the result of the initiative and action of local actors. Following this, the Norwegian case studies presented in this volume emphasize strongly the exertion of urban leadership and manifestations of community involvement. Oslo, 25 august 2004 Hilde Lorentzen Research Director Working paper 2004:108 3 Table of Contents Preface ..................................................................................................1 Tables....................................................................................................5 Summary...............................................................................................8 Sammendrag .......................................................................................11 1 Introduction.................................................................................14 2 National context..........................................................................16 3 City case studies..........................................................................25 3.1 Oslo ................................................................................25 3.1.1 City context....................................................................25 3.1.2 Case 1: Economic competitiveness................................35 3.1.3 Case 2: Social inclusion .................................................64 3.2 Bergen ..........................................................................100 3.2.1 City context..................................................................100 3.2.2 Case 1: Economic competitiveness..............................109 3.2.3 Case 2: Social inclusion ...............................................135 4 Comparative conclusions..........................................................167 4.1 The cities......................................................................167 4.2 The policy areas ...........................................................170 5 Executive summary...................................................................172 5.1 Introduction..................................................................172 5.2 General Norwegian context..........................................172 5.3 Local initiatives: Bergen ..............................................174 5.3.1 The Bergen context ......................................................174 5.3.2 Social inclusion:”Regeneration plan for Løvstakken”.175 5.3.3 Economic competitiveness: ”Strategic plan for Culture 2002 – 2012”................................................................181 5.4 Local initiatives: Oslo ..................................................186 5.4.1 The Oslo context ..........................................................186 5.4.2 Social inclusion: “Oslo Regeneration Programme for the Inner City Districts” .....................................................187 Working paper 2004:108 4 5.4.3 Economic Competitiveness: “The Programme of Regional Development for the City of Oslo and the County of Akershus”....................................................194 5.5 Comparative analysis ...................................................198 5.5.1 Political culture ............................................................198 5.5.2 Inter-city comparison ...................................................199 5.5.3 Intra-city comparison ...................................................199 Appendix 1 201 Working paper 2004:108 5 Tables Table 1.1 Interviews.......................................................................15 Table 2.1 Membership in local and regional councils (2002) .......22 Table 3.1 Composition of Oslo’s City Council, 2003 - 2007 .........28 Table 3.2 The Programme for Regional Development for the City of Oslo and the County of Akershus: Operational arenas .37 Table 3.3 Strategies for governmental actors ................................42 Table 3.4 Modus operandi for governmental organisations..........43 Table 3.5 Strategies for non-governmental organisations.............44 Table 3.6 Modus operandi for non-governmental organisations...45 Table 3.7 Majoritarian versus consensual strategies among different participants......................................................45 Table 3.8 Interests pursued by various actors ...............................46 Table 3.9 Patterns of influence ......................................................47 Table 3.10 Behaviour of local leaders and local administrators (I) 48 Table 3.11 Behaviour of local leaders and local administrators (II)49 Table 3.12 Information of citizens....................................................50 Table 3.13 Behaviour of citizens, business and NGO representatives50 Table 3.14 Influence of various actor groups ..................................51 Table 3.15 Network governance.......................................................52 Table 3.16 Obtainment of own goals ...............................................53 Table 3.17 Importance of own resources.........................................54 Table 3.18 Importance of the resources of others............................55 Table 3.19 Achievement of goals......................................................56 Table 3.20 Results of the initiative...................................................56