hqe2r guide du quartier _participation

8/14/2019 HQE2R Guide Du Quartier _participation

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Sustainable renovation of buildings for

ustainable neighbourhoods

Contract n EVK4-CT-2000-00025

Participation byneighbourhood

residents and users:

methods and practice

October 2003

Philippe Outrequin, La Calade

Celia Robbins, UWE

O M k C i

DDDEEE

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http://hqe2r.cstb


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Sustainable renovation of buildingsfor sustainable neighbourhoods

Contract n EVK4 CT 2000 00025

Participation by neighbourhoodresidents and users:

methods and practice

October 2003

Philippe OUTREQUIN La Calade, France

E-mail: [email protected]

Celia ROBBINS UWE, U.K.

E-mail: [email protected]

Ove MORCK Cenergia, DenmarkE-mail: [email protected]

Catherine CHARLOT VALDIEU CSTB, FranceE-mail: [email protected]


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Deliverable 14: Participation by neighbourhood residents and users: methods and practice HQE2R

Contents

Abstracts.......................................................................................................... 8

1.1. Summary of the HQE2R European project and methodology .......................11

1.2. Where are we in the HQE2R process and methodology? ..............................12

1.3. What about the content of this deliverable ?..................................................14

2. PARTICIPATION AND THE REGENERATION PROCESS ....................... 16

2.1. Preconditions for participation .......................................................................16

2.2. Participation in different types of regeneration process...............................172.2.1 - Generative and Participative Programming (Programmation Gnrative et Participative:

PGP) .....................................................................................................................................172.2.2 - Regeneration led by a social agenda : participation structure for the New Deal forCommunities, Bristol, UK......................................................................................................23

3. PARTICIPATION IN THE HQE2R NEIGHBOURHOODS...........................26

3.1 Introduction.......................................................................................................26

3.2 The participation context for HQE2R partner countries..................................26

3.3. Case studies from the HQE2R neighbourhoods.............................................273.3.1 - Frederiksberg Copenhagen - Denmark.................................................................273.3.2 - Quartier Viscose Echirolles - France......................................................................283.3.3 - La Roseraie Angers - France .................................................................................303.3.4 - Mimont- Prado- Republique Cannes - France .......................................................313.3.5 Anzin.........................................................................................................................323.3.6 - Loebtau Dresden - Germany..................................................................................333.3.7 - Melegnano - Italy.......................................................................................................343.3.8 - Cinisello Balsamo - Italy ............................................................................................353.3.9 - San Leonardo, Porta Mulina Mantova - Italy..........................................................36 3.3.10 - Bon Pastor Barcelona - Spain ..............................................................................373.3.11 - Manresa - Spain ......................................................................................................383.3.12 - Raval, Ciutat Vella - Barcelona ...............................................................................393.3.13- Community at Heart, Barton Hill - Bristol - United Kingdom.....................................40 3.3.14 -Vlissingen - RSG area..............................................................................................41


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4.2.8 - Information neighbourhood newsletters ..............................................................53

4.3. Tools for individual events ..............................................................................544.3.1 - Surveys ...................................................................................................................544.3.2 - Participatory survey technique................................................................................544.3.3 - Citizen meetings .....................................................................................................554.3.4 - Citizen Hearing. ......................................................................................................564.3.5 - Interviews with residents.........................................................................................574.3.6 - Constructive evaluation...........................................................................................57

5. SUMMARY AND DISCUSSION.................................................................. 60

5. 1. Recommendations .........................................................................................60

5.2. Discussion........................................................................................................60

5.3. Further reading on participation (annotated bibliography)...........................62

Appendix 1.....................................................................................................78

Communication and participation procedure............................................. 78

from the marketing perspective................................................................... 78


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Memorandum: the HQE2R approach

and the findings of the projectJe refuse lide quil y a dun ct la lumire et de lautre les tnbres, lhomme et la

femme, moi et lautre, le bien et le mal. Je cherche un lieu o ces contradictions puissent trersolues. Cest une qute sans illusion 1 - Murale, Mahmoud Darwich, dition Actes Sud

1.1. The objectives of the HQER project

Sustainable Renovation of Buildings for Sustainable Neighbourhoods or HQER is a projectpartly funded by the European Commission under the Fifth Framework R&D Programme.The project started in September 2001 and will continue until the end of March 2004.Co-ordinated by the CSTB (Centre Scientifique et Technique du Btiment), France, itcombines research and demonstration aspects with the co-operation of 10 European research

partners and demonstration partners (local authorities or social buildingowners) working upon14 neighbourhoods2.The objective of the project is to develop a new methodology or approach together withthe necessary methods and tools to promote sustainable development and the quality oflife at the urban neighbourhood level. HQER aims at providing decision aid tools formunicipalities and their local partners, focussing on neighbourhood inhabitants and usersconcerns. With its integrated approach, it aims at providing a framework, which can begenerally applied to European cities. The project uses case studies as neighbourhood modelsfor which the tools are elaborated and in which the approach or the different tools can be

tested.The elements taken into account in the development of this approach towards sustainable developmentand its tools are:

Improvements in the quality of the buildings and non built elements, which areclosely linked with needs expressed by the actors concerned (users), especially as regardimprovements in comfort and reductions in the costs-in-use and maintenance ofresidential and non-residential buildings (energy savings, reduced water consumption,

optimisation of the use of raw materials). Improvements in the quality of life through urban development, which respects theenvironment: reduced urban sprawl, more effective use of public spaces, and the creationof cycle-ways, pedestrian areas and green spaces. Developing coherence and synergy

between the neighbourhood levels and the conurbation. Encouraging work in partnershipand building the capacity of the local community to achieve meaningful participation.


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sustainable development. It is a question of providing operational tools for a concreteanalysis and evaluation, which are open to public (and private) debate and to action.

1.2 - The HQE2R approach and the expected project results

Today cities are being rebuilt, buildings are being rehabilitated, and neighbourhoodsrevitalised. To assure sustainability, this regeneration must go beyond technical solutions,taking social trends, changes in behaviour, environmental and economic development intoaccount.

To define concrete action plans, sustainable development requires an iterative way ofachieving a decision, because of the necessity of taking the various principles of sustainabledevelopment into account all together at once. As the market law only takes into accounteconomic factors, and principally only in the short-term, sustainable development requiressustainable development principles: the integration of the long-term, global impact ofdecisions on environmental and social factors, with less hierarchical forms of participationthan usual market practices.

The HQE2R methodological framework for sustainable neighbourhood analysis and

development is structured as an ideal regeneration neighbourhood projects into 4 phases: adecision phase, an analysis phase - identifying priorities, definition, discussion, anassessment of scenarios phase and finally the setting up of the action plan for theneighbourhood).The methodological framework is furthermore based on 6 sustainable development principlesat the city scale, and then a system of 21 sustainable development targets under 5 mainobjectives (see the list next page) and backed up by a set of 51 key issues with their 61

indicators for the neighbourhood and its buildings (ISDIS system).

THE HQER APPROACH TOWARDS SUSTAINABLE

NEIGHBOURHOOD DEVELOPMENT

2. Strategic decision

for sustainable

regeneration of theneighbourhood

4. Shared SDdiagnosis of the

neighbourhood

(potential,

dysfunction,

3. Inventory based on the

21 targets and theintegrated SD indicators

system (ISDIS)

12. Monitoring andevaluation of the

1. Identification of

problems (social,environmental, technical)

that need actions

PHASE 1 : DECISION PHASE 2 : ANALYSIS


for sustainable



neighbourhood

(potential,

dysfunction,



system (ISDIS)




that need actions







for sustainable



neighbourhood

(potential,

dysfunction,



system (ISDIS)




that need actions



for sustainable



neighbourhood

(potential,

dysfunction,



system (ISDIS)




that need actions



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The HQE2R project results are specific tools for local communities and for their localpartners (see also the diagram below):

- The choice of 6 sustainable development principles at the scale of the city and adefinition of sustainability for the neighbourhood scale.

- The definition of an overall methodological framework with 5 main globalsustainable development (SD) objectives, their 21 targets, 51 key issues or sub

targets and then 61 indisputable indicators at the neighbourhood and building

scales (the ISDIS system).

- A shared SD diagnosis method for SD (with an integrated analytical grid for theprevious inventory) adapted to the neighbourhood scale.

- Evaluation tools for scenarios or neighbourhood projects as decision aid tools forassessing different scenarios before the final action plan for the neighbourhood ischosen (3 models with the support of 3 analytical grids):

3 models:

- INDI (INDicators Impacts) a model of sustainable regeneration impact using

indicators and allowing the development of different environmental andsustainable development profiles

- ENVI (ENVironmental Impact)

- ASCOT (Assessment of Sustainable Construction & Technology Cost), amodel of global cost of energy efficient technologies from an environmental point ofview at the building scale.

- Recommendations for improving participation in neighbourhood regeneration projects.

- Recommendations for taking SD into account in urban planning documents (for eachpartner country).

- Recommendations for specifying sustainable development in the building process

- Recommendations for specifying sustainable development for non built elements

- Indicators for the different phases of a project state indicators, pressure indicatorsand then monitoring indicators.

Choice of 5 SD

objectives, 21SDtargets, 51 SD key

issues and indicators (atthe neighbourhood and

Development of a shared SD

diagnosis method enabling theidentification of territorial SD

stakes*

Definition of 6 SD

principles at thecity scale

RESULTS OF THE HQER PROJECT:an approach with methods and tools

for sustainable neighbourhood regeneration


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AbstractsENGLISH ABSTRACTThis document is concerned with the practices of involving residents in the regeneration of urbanneighbourhoods. It builds on the Deliverable 15 of the HQE2R project, which described the nationallegislative context for participation in each of the projects partner countries. Deliverable 15 also developeda Scale of Participation based on three dimensions (nature, content, timing).

The first aim of this document is to describe how resident participation has been addressed in each of theprojects case-study neighbourhoods, and to reflect on these in the light of the Scale of Participation.

The second aim is to present short descriptions of a sample of participation methods that could be used toenhance participation in the case study neighbourhoods and others engaged in a regeneration process.These main parts of the document are set in context by briefly describing the HQE2R project, anddiscussing the nature of participation in different types of regeneration process.

The document concludes with the observation that practice varies widely across Europe and it would beinappropriate to give detailed recommendations. However, the document focuses on two methods whichpresents participation as a continuum and progressive process. This is supplemented by a discussion of

questions raised by regeneration practitioners at a conference held by the project partnership.

FRENCH ABSTRACT

Ce document recense les pratiques de participation des habitants et usagers des quartiers dans les projets derenouvellement urbain. Il complte lanalyse prsente dans le deliverable 15 sur le cadre lgislatif etrglementaire de la participation dune part et sur les pratiques (notamment dans le cadre dAgendas 21

Locaux) dautre part. Il sappuie sur lchelle de participation HQE

2

R trois dimensions (nature de laparticipation - depuis linformation jusqu la co-production de projets participation dans le phasage duprojet et sujets retenus pour la participation :) galement prsente dans le deliverable 15.

Lobjet de ce document est de prsenter diffrentes pratiques utilises dans les quartiers pilotes ou test duprojet HQE2R au regard de lchelle de participation HQE2R, puis de dcrire diffrentes mthodes quipermettent dencourager ou de favoriser la participation des habitants et usagers dun quartier au fur et mesure des tapes dun projet de renouvellement urbain. Le document insiste notamment sur certainesmthodes qui permettent dimpliquer les habitants selon un processus continu et progressif.

Ce document se termine sur les questions voques par les participants la confrence europenne deCopenhague de Mars 2003 dont un des thmes majeurs tait la participation des habitants.

DEUTSCH ABSTRACT


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Es ist festzustellen, dass die Beteiligungspraxis in den unterschiedlichen Staaten sich so weit von einanderunterscheidet, dass es nicht sinnvoll erscheint, detaillierte Empfehlungen fr alle Staaten gleichermaen zu

geben. Stattdessen erscheint es sinnvoller eine Checkliste mit Aspekten bereitzustellen, die imBeteiligungsprozess Bercksichtigung finden sollten. Ergnzt wird der Bericht schlielich durch eineAuseinandersetzung mit aktuellen Fragestellungen zur Brgerbeteiligung, die von an der praktischenUmsetzung von Stadtentwicklungsmanahmen Beteiligten bei einer vom Projekt durchgefhrtenKonferenz aufgeworfen wurden.

DUTCH ABSTRACT

Dit document behandelt het betrekken van de bewoners bij de renovatie van stadswijken. Het is gebaseerdop deliverable 15 van het HQE2R project waarin de nationale wettelijke context wordt beschreven voor departicipatie (inspraak) in elk land van de projectpartners.

In deliverable 15 is ook een participatieschaal ontwikkeld gebaseerd op drie dimensies (aard van departicipatie, informatie en timing).

Het eerste deel van dit document is de beschrijving van hoe bewonersparticipatie in elk van de projectcasestudie is vormgegeven en hoe dit geprojecteerd kan worden op de participatieschaal.

Het tweede deel is de presentatie van enkele korte omschrijvingen van participatie methodes die gebruiktkunnen worden bij de versterking en/of verbetering van de participatie bij de projectcase studies en anderebetrokkenen bij een renovatieproces. Deze hoofdonderdelen worden behandeld in het kader van een korte beschrijving van het HQE2R project en de aard van de participatie bij verschillende soortenrenovatieprocessen.

Het document besluit met de constatering dat de praktijk in Europa sterk varieert en dat het daarom nietrelevant is om gedetailleerde aanbevelingen te doen. Aandacht wordt gegeven aan twee methodes dierepresentatief zijn voor participatie als een continu en progressief proces. Dit wordt aangevuld met degegevens uit de discussie door betrokkenen vanuit de praktijk tijdens de conferentie in Kopenhagen, maart2003, welke georganiseerd werd door de partners van het HQE2R project.

DANISH ABSTRACT

Dette dokument beskftiger sig med fremgangsmder til involvement af borgere i byfornyelse. Det bygger p Deliverable 15 i HQE2R projektet, der giver rammerne for den nationale lovgivning for hvert af de

lande, der deltager i projektet. I Deliverable 15 udvikledes ogs en skala for borgerdeltagelse baseret p 3omrder (art, indhold, tidspunkt i processen).

Dette dokuments forml nr. 1 er at beskrive, hvorledes borgerdeltagelse er blevet behandlet i hvert afprojektets case-studies af bykvarterer, endvidere at vurdere disse set i lyset af skalaen for beboerdeltagelse.

Det andet forml er at prsentere en kort beskrivelse af udvalgte fremgangsmder, som kan bruges til at


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il contesto legislativo nazionale sulla partecipazione in ognuno dei paesi partner del progetto e nel qualeviene anche sviluppato il concetto di Scala di partecipazione mediante un diagramma tridimensionale:

carattere e modalit della partecipazione, fase di confronto e dibattito sul contenuto dei progetti, scopi finalie tempistica.

Lobiettivo di questo documento in primo luogo spiegare come la partecipazione dei residenti sia statacondotta allinterno dei quartieri pilota del progetto HQE2R ed inoltre presentare esempi e metodi diapproccio che possano incoraggiare e favorire la partecipazione di abitanti ed utenti in un processo diriqualificazione urbana, seppure in diversi contesti.

Il documento si conclude osservando che tali pratiche variano largamente nei vari paesi europei. Pertantonon vengono date dettagliate raccomandazioni, ma si focalizza lattenzione su quei metodi che presentano

la partecipazione come un continuo processo in evoluzione, richiamando gli argomenti discussi allaconferenza svoltasi a Copenhagen a marzo 2003 nellambito del progetto HQE2R, incentrata sul tema dellapartecipazione.

CATALAN ABSTRACT

Aquest document recull diferents experincies de participaci per part dels residents i usuaris en els

projectes de renovaci urbana de barris, completant lanlisi presentat en el deliverable 15 sobre el marcnormatiu de la participaci ciutadana i les prctiques, emmarcades generalment ens processos dAgenda 21locals. El document recull lescala de participaci HQE2R a tres dimensions (tipus de participaci, des delinformaci a la coproducci dels projectes, abast daquesta i el moment en la que es produeix) quesesmentava ja en el deliverable 15.

Lobjectiu daquest document s el de presentar les diferents prctiques utilitzades en els barris pilots del projecte en base a aquesta escala de participaci, a ms de descriure els diferents mtodes que han depermetre enfortir i afavorir la participaci dels residents i usuaris dun barri al llarg del procs de renovaci

urbana. El document insisteix sobretot en certs mtodes que permeten implicar els ciutadants en un procscontinuat i progressiu.

Aquest document es completa amb les consideracions expressades pels participants a la confernciaeuropea de Copenhague del mar de 2002 la qual tenia com a un dels temes principals la participaciciutadana.

SPANISH ABSTRACT

El presente documento recoje las diferentes experiencias de participacin por parte de los residentes yusuarios en los proyectos de renovacin urbana de barrios, completando el anlisi presentado en eldeliverable 15 sobre el marco legislativo de la participacin ciudadana y las prcticas, encuadradasgeneralmente en los procesos de Agenda 21 locales. El documento recoje la escala de participacin HQE2Ra tres dimensiones (tipo de participacin des de la informacin a la coproduccin de proyectos-, el


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1. INTRODUCTION: PARTICIPATION

IN THE HQE2

R PROCESS1.1. Summary of the HQE

2R European project and methodology

Today cities are being reconstructed, buildings are being rehabilitated, and neighbourhoods revitalised.To assure sustainability, this rehabilitation must, besides technical solutions, take social trends,changes in behaviour, environment and economic development into account. In the HQE2R project 14neighbourhoods and 10 research institutes in 7 European countries are co-operating to provide

methods and tools for use by local municipalities and their partners: government agencies, planners,landlords, local citizens and other users in sustainable urban renewal projects.The project is partly financed by the European Commission Programme for Energy, Environment andSustainable Development (City of Tomorrow) and is lead by CSTB.

The objective of the project is to develop a new methodology together with the necessary tools to

promote sustainable development and the quality of life at the crucial and challenging level of

urban neighbourhoods

As far as developed until now, the HQE2R methodological framework for sustainable neighbourhoodanalysis and development is structured into 4 phases (an inventory, an analysis - identifying priorities,definition, discussion and assessment of scenarios and finally setting up an action plan for theneighbourhood). It is furthermore based on a set of 21 sustainable development targets under 5 mainobjectives and backed up by a set of indisputable indicators and 3 new assessment tools.

In detail the main results of the work done until now are:

the choice of6 sustainable development principles for the city scale, the definition of5 main globalSustainable Development (SD) objectives with 21 targets atthe neighbourhood and buildings scales, and the definition of sustainability for theneighbourhood scale;

a shared diagnosis for SD method (with an integrated analytical grid for the previousinventory) adapted to the neighbourhood scale;

SD indicators at the built environment and urban scales:

- state indicators for the buildings and neighbourhood diagnosis,

- a system of51 key issues (ISDIS) linked to the 21 SD targets with their61 SDIndicators toassess the sustainability of the neighbourhood,

- monitoring indicators for the different projects upon the neighbourhood (and for the city),

a model of indicators (INDI model) as a decision aid tool for the elaboration of the SD profile


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briefing documents or guidelines for non built elements in a neighbourhood;

a guideline for the management of sustainable neighbourhood regeneration projects.

1.2. Where are we in the HQE2R process and methodology?

The Rio Declaration on Environment and Development, adopted unanimously by the 178 Statesrepresented in 1992, evokes in one of its 27 principles the participation of citizens as a fundamentalaspect of sustainable development. The tenth principle states:

the best way to consider environmental questions is to ensure the participation of all thecitizens concerned, at the appropriate level. At the national level, each individual must haveaccess to information relative to the environment held by public authorities, includinginformation relative to dangerous substances and activities in their communities, and be ableto participate in the decision process. The states must facilitate and encourage the public in becoming more concerned and participating by putting information at their disposal.Comprehensive access to judiciary and administrative actions, namely redress and appeals,must be ensured.

The HQE2R approach (and process) is directly concerned with the participation methods in use ineach of the partner countries. Current good practice demands that regeneration projects must take fullaccount of social dynamics, as major a component of sustainable development (also taking intoaccount the environment and economic development). The involvement of residents and users in thelife of their districts and of their cities gives great benefit to local social dynamics.

Participation at the centre of the HQE2R approach:

The approach of the partnership is that participation should be at the centre of the approach (seeoverall approach diagram below). It is a guiding principle of the methodology that the appropriatelevel of participation should be sought at each stage, and that the aim should be to progress throughthe three dimensions described above.

The wide variety of practice across Europe calls for a degree of pragmatism both in the completion ofthe project and in the final recommendations. In the completion of the city case studies, the research

teams are guided by the local context in determining the appropriate level of resident participation.The project will explore whether it is possible to make recommendations that will apply to allEuropean countries. Some of the questions that will be addressed include;

- Is there a minimal level of participation at which it is possible to speak about sustainability?

- Is it possible for participation to be effective and efficient at any level of participation, i.e. can


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13La Calade UWE Cenergia CSTB

HQE2R:To

wardsamethodologyfo

rsustainableneighbourh

oodregeneration(Deliverable10shortversion)

13

CSTBLaCaladewithcontributionbyICIE,IOER,QuascoandU

WE






for sustainable

regeneration of the

neighbourhood

7. Evaluation ofthe scenarios

against SD

targets (INDI,

ENVI, ASCOT)

6. Generation ofscenarios

(to identify options

for SD action)

4. Shared SD

diagnosis of the

neighbourhood

(potential,

dysfunction,

cohesion)


21 targets and the

integrated SD indicators

system (ISDIS)

Participation of residents and users

Partnership (public / private)

Local Governance

12. Monitoring and

evaluation of the

project : SD

monitoring

indicators

8. Action plan for

the neighbourhood

9. Urban planning

regulations including

SD recommendations

11. Projects upon

the neighbourhood

with SD

specifications

10. Projects for

Sustainable Buildings

(new & existing) with

SD specifications

5. Strategicpriorities for the

neighbourhood and

definition of

objectives for SD


problems (social,

environmental, technical)

that need actions


PHASE 3 : DECIDING UPON THE ACTION PLANPHASE 4 : ACTION and EVALUATION

Source: HQER Project (http://hqe2r.cstb.fr) SD: Sustainable Development


for sustainable

regeneration of the

neighbourhood

7. Evaluation ofthe scenarios

against SD

targets (INDI,

ENVI, ASCOT)

6. Generation ofscenarios

(to identify options

for SD action)

4. Shared SD

diagnosis of the

neighbourhood

(potential,

dysfunction,

cohesion)


21 targets and the

integrated SD indicators

system (ISDIS)

Participation of residents and users

Partnership (public / private)

Local Governance

12. Monitoring and

evaluation of the

project : SD

monitoring

indicators

8. Action plan for

the neighbourhood

9. Urban planning

regulations including

SD recommendations

11. Projects upon

the neighbourhood

with SD

specifications

10. Projects for

Sustainable Buildings

(new & existing) with

SD specifications

5. Strategicpriorities for the

neighbourhood and

definition of

objectives for SD


problems (social,

environmental, technical)

that need actions


PHASE 3 : DECIDING UPON THE ACTION PLANPHASE 4 : ACTION and EVALUATION

Source: HQER Project (http://hqe2r.cstb.fr) SD: Sustainable Development


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1.3. What about the content of this deliverable ?

This report is concerned with the process, methods and practice for collecting information fromthe residents and users, i;e. of participation by residents in urban or neighbourhood regenerationprojects.

We use the scale of participation developed in the HQE2R Deliverable 15 to analyse a range ofparticipation methods for collecting information and discuss their application in the regeneration process. The participation scale is also applied to the 14 HQE2R case studies, to aid anunderstanding of participation in different European cities. We propose which methods might be

applied in order to improve participation in the case study neighbourhoods.

The HQE2R scale of participation (cf deliverable 15) is developed from Arnsteins ladder of

citizen participation, and uses the following definitions:

- Coercion: Residents are given no access to decision making. Information is withheld,or used to direct behaviour according to the interests of the local authority. Equates tomanipulation and therapy in the Arnstein ladder.

- Information: Information is transmitted to the recipients of a service orredevelopment to keep them up to date with decisions. There is no dialogue andresidents have no access to decision making.

- Awareness raising: Information is given to residents with the aim of helping them tounderstand the issues and objectives of the regeneration programme from the point ofview of the local authority. In the case of a sustainable development project (e.g.recycling or energy conservation), this might include education about the purpose and

relevance of the initiative they are being asked to co-operate with. Residents do nothave access to decision-making, although the presentation of good quality informationis a pre-requisite of developing participation.

- Consultation: Residents opinions are sought to inform the decision makers, whomight take these views into consideration, but are under no obligation to do so. Typicalforms of consultation include questionnaires and public meeting. The contribution thatconsultation can make to participation is entirely dependent upon the weight given toresponses by the authorities, it can thus be very disempowering for residents. A

frequent problem is that consultation occurs too late in the regeneration process toaffect major decisions. Early consultation thus has greater potential.

- Empowerment: Empowerment of individuals and groups within a neighbourhood is aprecondition of effective participation. Communities cannot take an active part in theirown governance if they lack the skills, knowledge and organisational capacity to do so.Development in this area is often referred to as community capacity building. This


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- Partnership: residents are involved in on-going joint working, as distinct from one-offor periodic consultation. Project development is transparent and open to resident

representatives throughout. Decisions are negotiated between partners.- Delegated power, or joint management: Local politicians delegate a specific area of

responsibility to residents, accepting that they will be tied by decisions taken outsideof their control. The participatory budget of Porto Alegre is a well-known example ofthis mode of participation.

- Self-management: A project, service, budget or property (e.g. a social housing blockor estate) is managed directly and independently by the community.

The HQE2R analysis, developed in Deliverable 15, adds a further two dimensions to make thelink between participation, the project process and the range of topics included. Our hypothesisis that, as resident participation develops, it will;

1. Occur throughout the project process, from early investigations and proposals toimplementation and evaluation,

2. Develop from focussing on relativley minor and local issues, to considering broader

concerns, and eventually global environmental issues.

We thus represent participation on a three-dimensional diagram:

Monitoring

Implementation

Decisions

Diagnosis

Identificationof problems

THE THREE DIMENSIONS OF PARTICIPATION

From Local

To Global

PROJECT PHASES

From short term

to long termMonitoring

Implementation

Decisions

Diagnosis

Identificationof problems

THE THREE DIMENSIONS OF PARTICIPATION

From Local

To Global

PROJECT PHASES

From short term

to long term


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2. PARTICIPATION AND THE REGENERATION

PROCESS

We propose that participation should occur at as many stages of the regeneration process as ispossible within national laws and practices. The methods presented in chapter 3 of this reportshould not therefore be looked at in isolation, but rather in the context of participationthroughout the regeneration process; individual methods are the building blocks for aparticipatory approach.

If we consider the stages in the project process (as presented in our three dimensions ofparticipation diagram), we might describe broadly the type of participative activity suitable toeach stage:

Establishing local issues and priorities (Diagnosis)

At this early stage the priority is to inform the community and gain a broad base of participation. The appropriate methods are thus those that reach a large number of people;dissemination of good quality information, awareness raising activities and events, surveys,

public meetings, participatory research. Project development, decision making and implementation

There is the possibility of several levels of participation here. Where possible, a small numberof residents might be involved in project management, developing detailed proposals inpartnership with public agencies. If this is not possible, resident advisory groups might feedlocal views to the project managers (meeting throughout the process, not on a one-off basis).Broader participation, in the form of a ballot or a consensus building exercise, might beemployed to aid decision making (e.g. voting on different options).

Monitoring and evaluation

It is desirable, although realtively rare, to involve residents in setting the criteria against whicha scheme will be evaluated. Community-generated indicators are an example of good practice.As with project development and decision making, participation in evaluation might occur ontwo levels, through a resident advisory group, and through mass participation in response tosurveys and at public events.

2.1. Preconditions for participation

Insitiutional learning

We should remember at all times that participation is a two-way process. It is not possible toachieve any level of participation without commitment on the part of public agencies to adapt


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the University of Paris XII. It aims to develop generative and participative programming(Programmation Gnrative et Participative: PGP) as a method of ensuring the participation of

residents and users in urban projects.Town-planning decisions are traditionally presented as the result of negotiations between thecentral administration, local political power, technicians and society, within the framework of arelatively simple process ranging from the preparation of the programme to the implementationof the project and construction site, followed by its everyday management.

The place and the role of residents in these different stages are subject to many questions andrecommendations by law-makers and central and local administrations, although theimplementation conditions of this involvement is not always explained, particularly within theframework of urban projects.

The proposed procedure is neither a joint effort, in which residents share responsibility with theauthorities, nor a direct democracy; but nor is it a formal consultation or dialogue, in whichnothing guarantees that the opinions, intentions or demands of residents will be taken intoaccount. The PGP breaks with traditional linear development processes, in which a projectmanager proposes to a contracting authority (client) who has the proposed outlines and consultsthe residents, etc.

By definition, the PGP aims to be both "generative" and "participative" 8:

- The generative procedure: generative programming involves entrusting to an operationalgroup a project leader, the architect/sociologist duo an exploratory task whichconnects, in an iterative way, problems to be solved (uses, technical, economic, legal, etc.),spatial and technical proposals or intentions and developmental and architectural answersor possibilities. This process should make it possible to progressively adjust intentions inrelation to uses and technical possibilities.

- The participative procedure: this is the expression of the power relationships betweendecision-makers and citizens, but also the maturing or expression ofparticular projectsderived from the processes of information, communication, consultation and dialogue.

7 EPPPUR's objective is to create the conditions for an encounter and comparison between the approaches ofarchitects, town planners, landscapers and specialists in the social sciences, who have hitherto built upscientific approaches which are sometimes not very open to each other.As the Paris town-planning institute ( Institut dUrbanisme de Paris), within the framework of its policy todevelop doctoral studies, would like to increase exchanges between academics and the many trades involvedin development thanks to the rise of professional itineraries and careers which bring together and alternatetraining/research and practical town-planning, EPPPUR aims to deploy and support research into the conceptsof projects and urban landscapes, and into the modes of production and programming of space in general, not


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The PGP procedure is the result of the work of three groups:

- The decision-makers within the collective contracting authority (or steering group)

include the contracting authority (a mayor or a person designated by the town council) andrepresentatives of the local and central institutions concerned; this group should alsoinclude partners with local influence, such as associations. The task of this group is todebate intentions / proposals, designing and coordinating projects in order to achieveoverall consistency and modifying the project according to changing demands andfinancial constraints. This group is the project's political decision-making hub. Theintroduction of residents into this group is not desirable. The group's legitimacy derivesfrom its role as contracting authority (client) and in the case of a local authority, from the

election of the town council and mayor. The Steering Committee expresses the generalinterest, free of pressure from any lobbies whatsoever.

- The programming team (architect, sociologist, manager, economist, etc.), along with thecontracting authority (client) within the operational group, draws up the project anddefines the problems of use associated with architectural proposals. The operational groupalso prepares the work of the other two bodies, producing outlines, scenarios, hypotheses,evaluations, etc. It also has to ensure communication and coordination with and betweenthe two other groups. To do this, the operational team must have multi-disciplinary skills.

The team can also be beneficially managed by a duo: two people with complementaryskills, defined according to the project (skills are more important than professional status).

- Residents and users, maintenance staff, and visitors are grouped together in what isreferred to as the transactional group. On the basis of their experience, these players haveskills relating to uses; the task of this group is to give projects a concrete content.

The contracting authority (client) plays a central coordinating role, belonging simultaneously toboth of the collective contracting authority and the operational group.

The generative and participative programming procedure is summarized in the table below,which may serve as a guiding thread9.

The resident-participation procedure is implemented throughout the programming process:

a) Participation in the diagnosis is achieved through two types of action:

- publicmeetings which bring together the collective contracting authority and the residents(and the entire transactional group),

- the "diagnosis on foot", which also associates associations and professionals.This phase also aims to find out more about the problems of residents. The authors of the PGPprocedure are wary of the concept of need, which corresponds to a function to be fulfilled,leading to prescriptive programming approaches (for example, the construction of high-risehousing estates in the 1960's to fulfil an urgent need for housing). The functional approachtends to eclipse thinking about uses conflicts of use the schemes of the players involved and


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- Survey of a few executives or representative people at the moment of programming inorder to specify the programmer's orientations, without any guarantee of

representativeness, possibly leading to suspicion and doubts among those who were notconsulted.

Asking residents and users about their "needs" renders any preliminary work on objectives and problems difficult. The objectives of sustainable development must be integrated into thesustainable development diagnosis. Using these objectives as an analytical grid, the consultant,working with the residents, has to bring out the district's problems.

It is important to make a distinction between the initial identification of problems (social,environmental, economic, technical, etc.) requiring action to be taken, and the revelation of the

strategic problems of the district and residents, derived from the shared diagnosis (identified inthe HQE2R methodology as the district's risks and rewards).

The "diagnosis on foot"11

The objective is to produce a common diagnosis of the potential of a situation or territory. Itmakes it possible to familiarize oneself with the field and with the viewpoints of the various

players.The "diagnosis on foot" takes place in three phases:

- a field visit by groups of five or six people with diverse skills,

- the pooling of comments and observations

- the drawing up of a report which highlights the elements of the diagnosis and anyquestions which remain unanswered.

b) The programme corresponds to the proposal phase. To draw up these proposals, residentparticipation can take at least three forms:

- visits by day or by night make informal exchanges possible with residents, shopkeepers,young people, etc.

- working groups: these groups are organized on the basis of of "transactional spaces", i.e.according to the spaces which the district's residents and users may frequent, but withdifferent roles; the objective is not to define the needs of users or residents but tounderstand not only the practices connected with facilities or spaces in a district or town, but also the symbolic or emotional representations of certain spaces, as well as thedifficulties or obstacles encountered when using these spaces or facilities.


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c) The "search for solutions" phase is also an opportunity for meetings of users, publicmeetings and participation workshops.

The project's final elaboration involves the presentation of topics and projects and thegathering of residents' opinions.


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Deliverable 14 HQE2R

2.2.2 - Regeneration led by a social agenda : participation structure

for the New Deal for Communities, Bristol, UK

The New Deal for Communities (NDC) is one of the area-based initiatives that contribute tothe UK Governments regeneration programme. It targets money on small neighbourhoodswith the aim of improving job prospects, bringing together investment in people and buildingsand improving neighbourhood management and services (DETR 199813). The distinctivefeatures of the New Deal for Communities are; that it targets very small areas of between 1,000and 4,000 households and that the range of projects that can be funded is flexible. Strategy is

set, and projects selected at the local level, the projects chosen tend to be a mixture of socialinitiatives (e.g. education and training, crime prevention, youth activities, health promotion),supplemented by physical investment. Neighbourhoods are awarded up to 50M to spend overa ten-year period. The NDC is the latest generation in an evolving area of public policy. Overthe last decade, partnership working and community participation have become increasinglycentral to the delivery of regeneration programmes in the UK. The NDC gives greater scopefor local control over decision making and resource allocation than has been seen before. Thefunds under this programme are managed not by local authorities, but by locally appointedmanagement boards composed of neighbourhood residents and representatives of otherstakeholders. Partnerships are monitored by central government to ensure that they complywith the overall aims of the programme and that their work is correctly administered.

The New Deal for Communities in Bristol: Community at Heart

The NDC was launched nationally by the Department of the Environment, Transport andRegions (DETR) on 15 September 1998. Seventeen urban areas were invited to bid for the

programme, with the actual neighbourhoods being chosen at the local level. A number ofBristol neighbourhoods were candidates: the selection process was devolved to representativesof the candidate communities at a day event held in the autumn of 1998. Representativespresented their ideas and discussed strengths and weaknesses, the final decision being reachedby a consensus. The nomination was awarded to Community at Heart (CAH) a group of foursmall neighbourhoods, Barton Hill, Lawrence Hill, Redfield and The Dings, to the East ofBristol city centre.

A period of intensive work and community consultation followed the neighbourhoods

nomination as Bristols candidate for NDC. The first task being to put forward an initial bid tocentral government, followed by a detailed delivery plan. Final confirmation of the receipt of50M over ten years was given in January 2000. The Delivery Plan (Community at Heart,199914) is the key document guiding the development of CAH. One of the key concerns of theDelivery Plan is that there must be a flow of skilled local people with the ability to lead theNew Deal process A total of 5M will be committed to capacity building through community


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The Delivery Plan sets out eight outcome areas, attended by ten year targets:

Employment and business Sustainable health and well-being Tackling crime Raising educational achievement Housing Community Services Arts, sports and leisure Tackling racism.

The Community at Heart Organisational structure; delivering

regeneration through community empowerment

The CAH delivery mechanism is based around a management board, consisting of 12 locallyelected residents, supported by 8 representatives of key agencies including; Bristol CityCouncil, Bristol Regeneration Partnership, Avon Health Authority, the police and theEmployment Service.

The Management Board is at the head of the resident-led structure of Community at Heart.Three sub-committees support the main Management Board with oversight of ProgrammeManagement, Project Appraisal and Best Practice (Vision and Values).

Community at Heart (Bristol NDC) Organisational Structure

Finance

Main ManagementBoard

OutcomeGroups

Resident-

based forums

Project AppraisalPanel

Best PracticeGroup

ProgramManagement

ExecutiveManagement Team

Best PracticeManagement

ProjectDevelopment

ProgramDevelopment

Sub-themeGroups


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Participation is tus central to the scheme on a number of different levels:

Community leadership; a small number of individuals are closely involved in theprogramme through board membership. These people commit significant amounts of time tothe project, and have collective responsibility for its success.

Regular support for outcome groups and specific projects; A larger number ofresidents participate regularly via the outcome groups, which discuss priorities and projectsassociated with different thematic areas. These participants make a major contribution to theiterative development of the initiative. Others volunteer on specific projects, often givingpractical support, e.g. through youth work.

Mass participation through surveys, events, consultation and voting; Regularparticipants remain a minority of the population, although it is available to all. The views of themajority are sought through a range of means. A number of large scale surveys have beencommissioned. These are supplemented through public meetings and events. People also havethe opportunity to vote for their local board members.

Problems associated with the community-led approach

At the time of writing, the NDC in Bristol is in the fourth year of a ten year programme.Participation has been sustained, although significant support and development is required.There is a turnover of volunteers as people cease their involvement through burn-out, or anynumber of personal reasons. There is thus always a need to keep attracting and supporting newvolunteers.

CAH is a major new presence within a small neighbourhood. The rapid development of acentral government funded body has led to certain difficulties. Establishing, from scratch, a

new organisation to deliver a complex range of projects is in itself a difficult task which hasnot always gone smoothly. The fact that the community has high expectations of it anddemands transparency and accountability also has consequences. There have been accusationsthat CAH is employing too many people from outside the neighbourhood, and that too muchmoney is going on organisational expenses, rather than on the residents themselves. Someresidents have felt that the organisation is not delivering enough visible successes to justify theamount of funding it has.

2


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3. PARTICIPATION IN THE HQE2R

NEIGHBOURHOODS3.1 Introduction

This section offers a review of the process implemented by the HQE2R researchers tocomplete the inventory and diagnosis phase of the project, with an emphasis on the nature andextent of participation. Being influenced by both national and local contexts, the process variedfrom country to country and from one city to another.

The shape of the process in each case study was determined by a multi-layered context with anumber of contributing factors:

National laws and programmes

The existence at the national level of laws and/or programmes advocating participation in theregeneration process is clearly a key driver in determining local action.

Culture and tradition

Achieving effective participation is not as simple as passing laws or funding programmes.Implementation is strongly dependent upon the culture of national and local governance.

Local government practice in planning and regeneration

Implementation will also be strongly influenced by local practice in planning and regeneration;the range of actors involved and whether the process enables public participation.

The specific regeneration context of the case study

In addition to these levels of context, the scope of the HQE2R teams to act was determined bythe specifics of each case study. The nature of the regeneration project being studied mightmake public participation in the inventory and diagnosis difficult (e.g. in the case of Vlissingenwhere the regeneration site was a derelict shipyard). Factors influencing participation inHQE2R included:

- whether local associations were active and had been involved in the regenerationprocess,

- whether the regeneration process was advanced or in its early stages,

- fears about raising local expectations that could not be met,

- resources,

- freedom of the HQE2R team to act within the constraints set by the local council.

D li bl 14 P i i i b i hb h d id d h d d i HQE2R


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theoretically allows community members to take all the major decisions in relation to theregeneration of their neighbourhood. In Denmark, there is not a legal framework for this typeof community decision making, but it is considered good practice for community involvementto be a key part of the regeneration process from the beginning.

By contrast in France and Spain, it is generally perceived that community involvement onlyoccurs after the main decisions about a regeneration project have been taken. In France anumber of recent laws are bringing participation closer to the centre of planning andregeneration, although the mechanisms for implementing them are unclear and local councilsface a steep learning curve if they are to put them into practice.

In Italy, participation in public affairs (local politics, schools, roads, spending on public

housing) is largely mediated through representative democracy. Direct participation in thesematters is not the norm. This situation is perpetuated both through resistance from localpoliticians and officers to opening up decision making processes, and through communities being unaccustomed and hesitant to engage. Active participation in Italy occurs mainly inrelation to specific housing blocks and their immediate neighbourhood, and is rooted in thetradition of close-knit communities of extended families.

A key principle that has been articulated by all the HQE2R partners is that examples ofeffective participation are dependent upon local circumstances. We might also assert thatthe relationship between national laws and programmes, and the local implementation ofparticipation is a complex one. It is thus possible for participation to succeed in places whereit is not strongly supported by national legislation. Likewise, strong guidance from the nationalgovernment does not guarantee effective participation in cities and neighbourhoods. The keyfactors in bringing about effective participation are a high level of social organisation

among the community, combined with openness and transparency on behalf of the

council or other regeneration agency.

3.3. Case studies from the HQE2R neighbourhoods

In each of the case studies, we briefly describe the current phase of the regeneration process,and the participation activities that have contributed to it. We then describe how these activitiescontributed to the HQE2R inventory and diagnosis, and participation activities initiatedspecifically by the HQE2R research teams. Each case study ends with a short reflection onparticipation in relation to the scale developed by the HQE2R team (section 1 of this report),and suggests which other methods from the catalogue (section 3 of this report) might beapplied.

3.3.1 - Frederiksberg Copenhagen - Denmark



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In the Danish urban renewal law participation is mentioned as an important part of the renewal process - it is considered that a holistic urban renewal process is not possible withoutparticipation.

Participation in the inventory

Municipality officers and other agencies

The following departments contributed information to the inventory; Environment, buildingand planning, housing and real estate, roads and parks, land register, industry, differentservices in the directorates of cultural and social services.

The local energy company and Statistics Denmark also supplied information.

Local residents, or residents associations were not involved in the inventory.

Participation in the diagnosis

Municipality officersOfficers from the housing and real estate, environment, roads and parks, the general office ofthe directorates of cultural and social services contribute to the diagnosis.They are represented in a steering committee for the implementation of the regenerationprocess and they join the relevant working groups where the priorities are being decided upon.

Local politiciansThe municipal council that means all the local elected politicians, but in particular thepoliticians in the committee on residences and real estate.They validate and decide upon the overall programme for the regeneration process and largerprojects. There has been informal informational meetings with the committee on residencesand real estate, individual politicians have joined the public meetings.Residents groupsIn general local groups of any kind and individual residents have been involved in the priority

setting through public meetings and working group meetings. Approximately 100 persons haveinvolved during the process.

Frederiksberg : reflection on the scale of participation, and which other

methods could be used in this contextIn terms of the scale of participation, the initiative has achieved participation and a degree ofempowerment. The citizens do not formally have the competence to make final decisions, asthe local authority has to validate the programme and the projects. But that is merely the legalformality the recommendations from the working groups are usually followed by the council.

The next stage on the participation scale would be one of the more advanced forms ofcooperation, i.e. devolved power or self-management. This would require an appropriatepolitical and legal framework, which would probably need to be decided at the national level.It cannot be assumed that residents would demand this higher level of participation andresponsibility.



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Deliverable 14: Participation by neighbourhood residents and users: methods and practice HQE R

proposals from the residents to improve the transport system, quality of life, the school system,housing and the quality of services and facilities.

Participation in the inventoryMunicipality officersOfficers from the Urbanism, Housing, Transport, Environment, Works, green spaces, socialservices of the city contributed to the inventory through interviews. The research team alsoanalysed relevant studies and projects.Local politiciansThe inventory was presented to local politicians.Residents groups and individual residents

The residents association, young peoples association, remote inhabitants and representativesof different parts of the neighbourhood were involved. Workshops were held, attracting around150 people. These enabled the exchange of information and led to empowerment for localmanagement of the neighbourhood (cleaness, dogs, waste, open spaces with a badmaintenance, parking, safety. Small group meetings were held in local centres on a range ofthemes.OthersSocial housing owners, local businesses (small and large shops), teachers, social workers, were

involved in thematic workshops. Also numerous services from the Conurbation, theemployment association (ANPE) and social associations (CCAS, PLIE). That was linked to theLocal Agenda 21 which is at its first beginning.

Participation in the diagnosisThe research team carried out the diagnosis of priorities for the social policy officers for thecity and the conurbation, in partnership with the citys urbanism councillor, the mayor of thecity and the president of the conurbation. The social housing owner and central government

representatives met with the partners to discuss the diagnosis. Residents groups and localpeople were not included in this part of the process. That will be done further because theneighbourhood diagnosis for SD must be linked to the Local Angenda 21 of the whole city andthe Action plan for the neighbourhood has to be in coherence and within synergy with thisLocal Agenda 21.

Other problems or issuesThere is a discontinuity between the participation of people in giving their opinions and theparticipation of people to the final decision, which completely belongs to the elected people

from the municipality. There was good participation from residents interested in the future oftheir city. A lot of work has been done by the municipal services for the Local Agenda 21 andit is difficult to do everything together

Cite Viscose : reflection on the scale of participation, and which other

methods could be used in this context



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3.3.3 - La Roseraie Angers - France

The regeneration process in the neighbourhoodAt the stage of definition of the regeneration project.Local residents and residents groups are involved through a range of interactions:

Public meeting Permanent place to receive people and to give information in the neighbourhood (one

day a week) Register and mailings Commissions and meeting

Personal appointments and meetings Presentation of the project by files and documents Video DVD

Influence of national and local policy on the process: LAW SRU, Law on local democracy(December 2002). There was a local will to develop participation to overcome exclusion,which is in part caused by a lack of involvement in civil society. The will of the mayor and the

municipal team was important in deciding to implement a Local Agenda 21.

Participation in the inventoryThe inventory was written by the research team with the help of a previous one done in atraditonnal way and paid by the municipality for giving to the 3 teams selected through a callfor tender.The results of the 3 teams or the 3 scenarios were then presented and discussed in a lot a publicmeetings during summer 2002.

Municipality officersResponsible officer for Urban Renewal Policy. A definition study was carried out by threeteams (architect, urbanist) and the city was assisted by the research team to include the field ofthe SD in the analysis. Studies were presented to the city authorities then to the different localgroups which held discussions about the different options and defined the main priorities forthe project (cf above).Local politicians

The Housing director and the Mayor were involved in the inventory.

Residents groups & Individual residentsThe local traders association and the residents association were involved. Many responseswere received to the register, and there was strong participation in a public meeting where thethree definition studies were presented. The residents voted for their project and given theirviews on the best improvements to make. In total around 350 were involved in the process.Others



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Other problems or issuesA lot of work was required to achieve this level of participation, partly because theneighbourhood is rather large, with 17,000 residents.

La Roseraie : reflection on the scale of participation, and which other

methods could be used in this contextParticipation led to empowerment to reach a consensus among the population and among thepolitical class. This led to the decision to immediately implement some new facilities includingmeeting centres and a launderette. Participation in this instance equates to empowerment.

The next stage on the participation scale might be to foster partnership working betweenresidents and the local council in the management of the new facilities that are beingdeveloped.

3.3.4 - Mimont- Prado- Republique Cannes - France

The regeneration process in the neighbourhoodDefinition, execution and approval of the housing renewal project are all currently under way.Meetings have been held with the retail association and residents association. Individualowner-occupiers who can benefit from subsidies to retrofit their housing or retail stores have

also been involved.A permanent office has been opened in the neighbourhood to give information and advice topeople about the overall renewal project for the neighbourhood as well as their own housingrenovation project.

The result of participation to date has been to take more account of parking and trafficproblems. Participation to date equates to information.


Municipality officers and politiciansRepresentatives of the urbanism, environment, energy, water and transport services wereinvolved in the inventory. They took part in meetings and provided information and reports (2studies had been already paid by the municipal services: one to an architect about urbanfurniture and the architectural quality of the buildings, and one for a traditional inventory).Some meetings were held with resources persons. The environment and urbanismcouncillors took part in meetings.Residents groups and individuals

About 20 members of the local traders association are working in partnership with the councilto develop the local retail trade.Individual residents were not involved in the inventory, except through a questionnaire(elaborated by the research team) to fulfill when they came to the municipal office.OthersM ti h ld d i f ti h d ith th i l h i ( h h



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p y g p

Mimont- Prado- Republique : reflection on the scale of participation, and

which other methods could be used in this contextThe presence of a neighbourhood office represents good practice in the dissemination ofinformation. The fact that there are few local associations indicates a need for developmentwork in the neighbourhood, to identify and support the people who could act as localrepresentatives. The use of Participative and Generative Programming (PGP) could ensure thatlocal views are heard by decision makers throughout the regeneration process. The worginggroups already suggestedby the research team might also contribute to the empowerment ofthe local residents.

3.3.5 AnzinThe regeneration process in the neighbourhoodThe regeneration process of the city centre is linked to the new Master Plan for the whole cityand also to the Urban transport plan at the conurbation level with the implementatuon of a newtram (TCSP). The conurbation is in charge of the management of the regeneration project andnot the city.The regeneration projet is about an industrial (miner) brownfield in the city centre and thestake is about the integration of this new area in the city center (buildings as well as residents

or inhabitants). Participation in the inventory

Municipality officers and other agenciesThe research team met all themunicipal services and a lot of local (municipal as well as insidethe whole conurbation around Valenciennes) agencies.Local politiciansThe Mayor was an active member of the different municipal working meetings organised.Residents groups

The residents were not involved in the inventory.Retailed shops associationAn inquiry was managed at the end of 2002 and the first beginning of 2003 in order to taketheir wishes and views into account.

Participation in the diagnosisThe diagnosis was completed in discussion with all these local actors. A public presentation

was held in May 2003. So until now, we had only information Other problems or issues

The area which is concerned has not yet any resident so it is rather difficult to imagine theirparticipation at this first stage but the residents of the city centre who are already there must beinformed of course but also listened...



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3.3.6 - Loebtau Dresden - Germany

The regeneration process in the neighbourhoodRegeneration is seen as a continuous process. The borders of the formal regeneration area havebeen redefined recently. All the formal steps of the regeneration process need to be fulfilledonce again taking into account the new borders and the changes occurred since the formalregeneration area was defined. Nevertheless the inventory for this new process might be seenin part as a validation/approval of the former actions (especially renovation of a large share ofthe buildings)

Within the formal regeneration process there was a public meeting where all the residents and

all other interested people were invited. There the private company which is in charge theimplementation of the regeneration process explained the idea of this process. There has beenintensive consultation between land owners and the company running the regeneration process.

It is difficult to tell the direct effects of participation; the priorities stated by the residents inquestionnaires correspond broadly with the priorities of the planning administration. Theestablishment of a subsidised job for a person working for the initiative of local businesspeople in order to promote the area was due to the initiative of this group.

The administration and especially the private company which is in charge of theimplementation of the regeneration process does only the legal minimum, or to what it ispolitically forced to by a strong initiative of the people.


Municipality officers and other agenciesA broad range of public services supplied information for the inventory; Town Planningdepartment and municipal statistical office of the City of Dresden, regional school department,local water supply company, environmental department (Dresden), department for

environment and geology of the state of Saxonia, Ministry for environment and agriculture ofSaxonia, police department (Saxonia), building inspection of Dresden-Cotta (borough ofDresden which Loebtau belongs to), local refuse disposal service, department for monumentalprotection (Dresden).Local politiciansThe chief of the local administration was interviewed.Residents groupsFive interviews were held with representatives of local groups; the youth club, centre for

elderly people, local business association and local church. These groups are have all workedwith the local council in the policy areas relevant to their interests.Individual residentsFive active members of the community were chosen, representing a cross section of theneighbourhoods population. Semi-structured interviews were held with these representativesto gain qualitative data on life in the neighbourhood The topics covered were based on the



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Loebtau : reflection on the scale of participation, and which other methods

could be used in this contextThe extent of participation follows the regulations valid in Saxonia for the execution of thefederal Building Code in special redevelopmet areas (consultation in the ladder ofparticipation). Further steps are also possible but not mandatory (in Berlin e.g. the mandatorystep equates to consultation in the ladder of participation but in practice it is mixed withelements of partnership). In Dresden these further stages are thus only developed when the people in the area strongly insist on a larger participation, as occurred in another part ofDresden (Dresden-Neustadt). But in our investigation area Dresden-Loebtau there was nostrong initiative in this direction (which itself actually is an indication for a lack of communityand part of the problem of the neighbourhood). As in Cannes, the lack of local associations is a

sign that there is scope for developing local activity and supporting potential volunteers.

3.3.7 - Melegnano - Italy

The regeneration process in the neighbourhoodMost of the action plans still require development. To date, there has been progress on

integration between rail and bus services. Some actions have been implemented in respect ofreducing noise pollution from road and rail traffic.No residents have been involved to date. The municipality plans to involve local people in thefuture.The techniques to be used for participation are still under discussion, but the main options are:

- showing the project proposals in a public conference (April/May 2003)- conducting a questionnaire survey with residents to help establish priorities (April

2003)

- opening a new web page on the municipalitys website where it will be possiblefor local people to read news and submit their opinions abour HQE2R by E-mail(April/May 2003).

Participation in the inventoryThe following municipality services contributed to the inventory; Registry Office, TownPlanning Office, Environment Council Office, Social Services, Housing service, Ecology andSport. With each of these there were exchanges in writing, and face to face interviews. The

following agencies were also consulted; ASL (Sanitary Enterprise), MEA (Melegnano Energyand Environment), ARPA (Regional agency for Environment), Police, ALPSES Centre.

No local politicians or residents groups were involved in the inventory.

Participation in the diagnosisThe HQE2R diagnosis was completed in discussion with officers and elected councillors from



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directly involved in decision making. If it wanted to improve participation however, thecouncil might develop dialogue through a method such as Planning for Real, or ScenarioWorkshop. The limits of the consultation should be clearly defined, in order to avoid the

problem of raising false expectations.

3.3.8 - Cinisello Balsamo - Italy

The regeneration process in the neighbourhoodThe process has just started, the municipality is planning to present a programme to obtain

financial support from the Italian national regeneration programme. Residents have not yetbeen involved, participation will only be initiated if the programme is awarded funding.

Participation in the inventoryThe HQE2R team carried out a process of consultation on current conditions in theneighbourhood involving the following actors.Municipality officers:Technical officers, co-ordinator of the LA21 project (the LA21 project had only just startedwhen the inventory was carried out). Much of the quantitative data came from the planning,environment, social welfare and registry offices. Technical officers were asked to provideavailable data (HQE2R indicators + specific indicators according to the local situation) andwere asked to explain the situation in the neighbourhood according to each SD target ofHQE2R. Local politicians were not involved in the inventory phase.Local residents groups:1) Neighbourhood inhabitants group for safety and security issues,2) Neighbourhood inhabitants group for mobility issues,3) North-African womens association of Cinisello.

The geographical scope of each of these groups is larger than the case stdyneighbourhood.The North African womens group represents the entire city of Cinisello.Membership of the other two groups is limited to the administrative area of Cinisello Balsamo.Structured interviews were held with a total of five representatives from these groups. Each ofthese groups has previously worked in partnership with the local council, on social welfare,community safety and social integration projects.Individual residentsIn addition to the community groups above, some 20 people were interviewed during a walk

through the neighbourhood. A group of school children between the ages of 6-14 years werealso interviewed as part of a special project funded by the local council, The sustainable cityof children. Discussions were held with the local priest, who is seen as a key person in thesocial life of the neighbourhood.



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Cinisello Balsamo: Reflection on the scale of participation, and which

other methods could be used in this contextIt was very difficult to obtain information on existing residents groups and representative ofthese groups. Working in partnership and exchanging knowledge and information proved to bea challenge for the council officers, as they are not accustomed to working in this way. Thisshows the need for institutional development within the council, which is necessary beforemore participatory approaches can be implemented. The council may thus feel morecomfortable with structured consulatation techniques such as the Citizen Hearing, the PlanningCell or Planning for Real. These techniques offer the opportunity for good quality consultationand would start to develop dialogue, without transferring decision making power to residents.The council should always be clear about the limits of what is up for discussion, and

demonstrate that it has taken account of the citizens views.

3.3.9 - San Leonardo, Porta Mulina Mantova - Italy

The regeneration process in the neighbourhoodThe process is in its early stages, with the local council planning to develop initiatives to

promote sustainable regeneration across the whole city of Mantua, based around a city-wideLA21 project. HQE2R is the only additional project being implemented in the San LeonardoPorta Mulina neighbourhood (i.e. there is no regeneration project here beyond that which isbeing applied to the city as a whole).


Municipality officersOfficers from the Technical services of the municipality contributed to the inventory. TheLA21 project co-ordinator and co-ordinators of the LA21 topic groups were involved indefining the indicators. Qualitative information on users needs and wishes was provided byofficers responsible for; social welfare, education and culture, registry office and the municipal police. Much of the quantitative data came from the planning, environment and registryoffices. The task was greatly assisted in Mantova because there was a single contact personwho co-ordinated data collection and sent formal requests to external agencies.These partners responded to a structured interview. The results of the interviews werepresented within a grid and checked by the municipality officers and the local priest. Theseresults formed the basis of the diagnosis. A meeting was held for officers who might be

interested in the inventory and who could suggest data collection methods.Elected politiciansThe Councillor responsible for environment proposed some specific indicators during ameeting with all the partners involved and reviewed the final list of indicators of the inventory.Local residents groupsSi i f h i id A21 i ( i i ffi



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of these factors differed from the vision of the technical officers, and the unresolvedquestions in the diagnosis reflect this divergence of opinion.Politicians

Councillor responsible for environment.The councillor has reviewed the shared diagnosis and highlighted some unresolvedquestions which have been approved by all the partnesr involved in the diagnosis.Local residents groups, individuals and residents.

The same groups as for the inventory. The representatives of the LA21 topic groupshighlighted their expectation for the neighbourhood according to the 21 HQE2R target(responding to structured interviews) and participated in the final decision about local priority(taken during a meeting). The same applies for the individual residents and the priest.

Other problems or issuesThere were no difficulties in gaining participation in San Leonardo, the process was aided because the research team was able to make use of the ongoing LA21 process. The onlyconstraint was that most of the local residents groups were on the scale of the municipality,being involved in LA21 at that scale.

Mantova : reflection on the scale of participation, and which other

methods could be used in this context

Participation, and a degree of partnership working, has been initiated through the LA21 process. This will be a good foundation for developing dialogue through consultationtechniques.

3.3.10 - Bon Pastor Barcelona - Spain

Participation in the regeneration programmeThe councils plans have been shown to the residents, the project has been appro

hqe2r guide du quartier _participation

Documents