URBACT Summer University 2013 - Masterclass - Ivan Tosics "Designing Urban Policies in an Integrated Way"

DESIGNING URBAN POLICIES
IN AN INTEGRATED WAY
Iván Tosics
Thematic
Pole Manager

WHO ARE YOU?
• RED: local politician
• BLUE: city officer-practitioner
• GREEN: advisor-researcher
• YELLOW: private sector
• WHITE: other
Urban policies in integrated way 2

STRUCTURE OF THE MASTER CLASS
1. WHY is integrated development needed?
2. WHAT has to be done to achieve more integration?
3. HOW can better integration be achieved?
4. Discuss the problems of integration!
5. Closing up
3Urban policies in integrated way

LINKS BETWEEN PROBLEMS
• The main challenges of the upcoming decades:
– demographic (ageing)
– economic (growing global competition),
– environmental (less renewable energy sources, more carbon
produced)
– socio-spatial (migration with growing inclusion problems,
growing inequalities within society)
• All these challenges have to be handled AT ONCE

http://www.google.hu/imgres?imgurl=http://
www.ruhrnachrichten.de/storage/scl/mdhl/fotostrecken/lokales/rn/dortmund/lokales/mitte/2011/02-2011/plovdiv1/2297054_m0w756h504q75v3295_zzdo-Plovdiv_und_Stolipinovo

MONO-SECTORAL ANSWERS ARE PROBLEMATIC
• For each challenge „best” solution(s) can be found
– Apply most modern technologies
– Eliminate energy inefficient housing
– Create new housing areas for the poorest
– Develop urban areas in compact way
– Concentrate support on the most excellent regions
– Regulate migration
• However, these „best” solutions create huge
externalities (negative outcomes) regarding the other
challenges

Urban policies in integrated way

INTEGRATED ANSWERS ARE NEEDED
• Instead of mono-sectoral („best” for the given sector)
interventions integrated answers are needed
• The smart, sustainable and inclusive aspects of growth have
to be linked to each other
• However, there are strong interests against integrated
planning:
– „opportunity planning” in east-central European countries
(subordinate urban development to investors)
– „revanchist regeneration” (making inner cities attractive in
order to maximize tax incomes) in western Europe
– free market led development without planning and public
control (Spanish and Irish examples)

CRISIS MAKES INTEGRATION NOT EASIER
Novelties of the present situation:
•for a number of years there will be no economic growth
– and even later the present form of economic growth will be
questioned as sacrifying the scarce environmental resources
and increasing socio-spatial inequalities
•the capacities of the public sector will be – for long time –
much more limited than so far
•the tolerance level of the people (regarding inequalities
and democracy deficits) is sharply decreasing

Large drop in public resources makes difficult to
continue earlier welfare and development policies

2. WHAT has to be done to achieve more
integration?
5. Closing up

TYPES OF INTEGRATION POLICIES
• between policy areas (horizontal, in terms of policy
management), coordinating the policy fields
• between neighbouring municipalities (territorial, in
terms of geography), allowing for cooperation in
functional urban areas
• between different levels of government (vertical, in
terms of government), allowing for multi-level
governance

INTEGRATION BETWEEN POLICY AREAS
• Avoiding silos
• All sectoral decisions should be controlled regarding their
effects on other sectors
• Needs strong initiatives:
– policy schemes (national, regional or local) for integrated planning;
– appropriate tools (for investments, for management);
– special organizations managing the integrated process;
– citizen participation
Integrated development might require sub-optimal solutions
along each dimension in order to reach good balance
between all dimensions

EXAMPLES ON POLICY INTEGRATION
• Neighbourhood regeneration: improving the physical
environment with measures helping local people into
jobs and promote social and cultural cohesion
– Duisburg area with 13 th people (RegGov; URBACT Results:54)
• Neighbourhood management: to bring local services
together to address long-standing problems in the area.
Participation of local communities is crucial.
– Nijmegen Integrated Community Centre, with joined-up plan
‚Behind the front door’ to address anti-social behaviour
(CoNet; URBACT Results:55)

COORDINATION BETWEEN MUNICIPALITIES
Cooperation between neighbouring municipalities in
functional urban areas is crucial to
•avoid the negative effects of competition (investments,
services, taxes) between local authorities
•help to integrate policies – economic, environmental and
social challenges can best be addressed at once on broader
urban level
•reach the economy of scale – size matters in economic terms
and in services
However, functional urban areas are undefined and usually
weak in administrative-political sense

CITIES (million) Admin city MUA/city FUA/city
London 7,43 1,1 1,8
Berlin 3,44 1,1 1,2
Madrid 3,26 1,5 1,6
Paris 2,18 4,4 5,1
Budapest 1,70 1,2 1,5
Vienna 1,60 1,0 1,6
Lisbon 0,53 4,4 4,9
Manchester 0,44 5,0 5,8
Liverpool 0,44 2,7 5,1
Katowice 0,32 7,1 9,5
Lille 0,23 4,1 11,3
…
AVERAGE (40 cities) 42.63 mill 1,7 2,3
Sources: ESPON, 2007: Study on Urban Functions. ESPON Study 1.4.3 IGEAT, Brussels. Final Report
March 2007 www.espon.eu City population: http://www.citypopulation.de

Territorial levels around Budapest
Popula-
tion
(million)
Administrative
status
Functional
importance
Budapest
municipality
1.7 local government
Agglomeration
of Budapest
2.5 none (statistical
unit)
job market,
housing market,
infrastructure
Region of
Budapest
2.9 NUTS II planning
level
none
Economic area
of Budapest
4.0 none economic area
(investors)

OECD delimitation of functional urban areas
• OECD identification of FUAs
– population grid from the global dataset Landscan (2000). Polycentric
cores and the hinterlands of FUAs identified on the basis of commuting
data, including all settlements from where at least 15% of the workers
commute to any of the core settlement(s).
• OECD defined four categories (total functional urban
area):
– small urban areas with a population of 50 – 200 thousand;
– medium-sized urban areas (200 – 500 thousand),
– metropolitan areas (500 thousand – 1,5 million);
– large metropolitan areas (above 1,5 million population).
• 29 OECD countries: 1175 functional urban areas. Public
database: www.oecd.org/gov/regional/measuringurban
• European OECD countries: 659 functional urban areas
(29 large metropolitan areas and 88 metropolitan areas).

European
OECD
Countries
Large
metro-
politan area
(1,5 mill - )
Metropolitan
area
(0,5 mill-1,5
m)
Medium
sized urban
area
(200 th–500)
Small urban
area
(50 th– 200
th)
SUMM Share of
population in
FUAs (%)
Austria 1 2 3 - 6 56,5
Belgium 1 3 4 3 11 58,9
Czech Rep 1 2 2 11 16 45,6
Denmark 1 3 - - 4 53,8
Estonia - 1 - 2 3 55,3
Finland - 1 2 4 7 49,7
France 3 12 29 39 83 62,8
Germany 6 18 49 36 109 64,3
Greece 1 1 1 6 9 49,8
Hungary 1 - 7 2 10 49,7
Ireland - 1 1 3 5 50,3
Italy 4 7 21 42 74 50,8
Luxembourg - - 1 - 1 80,2
Netherlands 1 4 11 19 35 72,1
Norway - 1 3 2 6 44,5
Poland 2 6 16 34 58 55,2
Portugal 1 1 3 8 13 53,9
Slovak Rep - 1 1 6 8 36,9
Slovenia - 1 1 - 2 39,1
Spain 2 6 22 46 76 62,7
Sweden 1 2 1 8 12 52,7
Switzerland - 3 3 4 10 55,6
UK 3 12 44 42 101 73,0
SUMM 29 88 225 317 659

COORDINATION BETWEEN GOVERNMENT LEVELS
• Multilevel governance means sharing responsibilities
between different levels of government
• Rationale: higher levels of government are concerned
with outcomes at the lower level, agreeing in co-
assignment of responsibilities
• Cities can strive for more integration, BUT cities can not
achieve the most important goals without regional and
national frameworks
• Examples:
– Law on Communaute Urbain (France)
– New Deal for Communities (UK, …)

THE FRENCH ‘URBAN COMMUNITIES’
• Created by the French Parliament in 1966 as compulsory
settlement associations in metropolitan areas of Bordeaux,
Lille, Lyon and Strasbourg.
• 1999 Chevenement law: strengthening the roles of
settlement associations while keep them voluntary to create
– 2009: 16 urban communities in France with a combined
population of 7,5 million inhabitants. All urban areas in France
over half million inhabitants are urban communities, except
for Paris.
• Purpose: to achieve cooperation and joint administration
between large cities and their independent suburbs.
• Urban communities are voluntary in their creation. However,
if created, broad range of compulsory functions and single
business tax regime are compulsory.

PROGRAMME FOR THE POOREST COMMUNITIES
England: New Deal for Communities, 1998-2008
•A budget of £2 billion, distributed over 10 years, was
allocated to 39 areas, each containing around 4,000
households. Each of the areas received around £50 million
•The following key issues were set on the agenda: reduce
worklessness and crime and improve health, education, and
community safety as well as housing and the environment.
•Implementations included collaboration between agencies or
initiatives. Local partnerships were formed between residents,
community organisations, local authorities and local
businesses

Economy/jobs
Sustainability/energy Social/inclusion
PLL
UK/FR CZ
HU
EST
IT
LV/LI
How to measure integration?

City,
size
Areas around the city Functions of the
different areas
Legal background
Birming
-ham
(1,04
mill)
1. Greater Birmingham and
Solihull Local Enterprise
Partnership (1,9 million)
Birmingham, Solihull + 7
settlements
2. Birmingham agglomeration
(2,3 mill): physically built area
+ 10 km green belt
3. West Midland Metropolitan
County (2,55 mil): two main
parts, Birmingham – Black
Country
4. Birmingham Metropolitan
Area (3,6 million): County +
towns with 30-60 th.
inhabitants including rural
areas
5. West Midlands Region (5,3
mil)
1. Not clearly decided yet: may
contain strategic planning,
economic development,
transport, culture and the
creative industries, tourism and
inward investment, business
support, skills, the green
economy and housing. Finance
comes from business oriented
public measures.
2. No functions
3. County: Integrated Transport
authority (crosses several
LEPs, containing only some
part of the Birmingham LEP)
under geographical
reorganisation.
4. Non
5. Non
1. LEP system introduced in
2010 (local governments had
the right which LEP to choose).
Voluntary partnership. It has
boards and working groups,
members are mixture of
political leaders and business
leaders.
2. No organisation
3. The County was established
by national law in 1974, and
originally had a council. The
council was abolished in 1986
and replaced by the current
governance by the political
leaders of the 7 districts.
4. There has never been any
governance arrangements at
the Birmingham Metropolitan
Area level
5. The Region was just
abolished in 2010.

5. Closing up

HOW CAN BETTER INTEGRATION BE ACHIEVED?
1. tools to achieve integration of policies
2. institutional aspects (top-down view)
3. participation-inclusion of citizens (bottom-up view)
4. involvement of the private sector
5. who should do what

TOOLS TO ACHIEVE INTEGRATION OF POLICIES
Special tools are needed to achieve coordination between
policy areas, territories, government levels.
Possible coordination tools:
•area based programmes
– illustration: Budapest, Magdolna quarter urban regeneration
•strategic planning
– illustration: strategic plan of Budapest
•large project
– illustration: London Olympics

COORDINATION THROUGH AREA BASED PROGRAMME
• To overcome the difficulties of coordination small
spatial units can be selected to focus on.
• URBAN programme (up till 2006): concentration on
deprived areas.
• National examples imitating URBAN: national policy
framework for deprived areas, selected on the basis of
indicators.
– Example: the socially sensitive urban regeneration
programme of Hungary, 2005 - onwards

A projekt terület
Nagyfuvaros utca -
Népszínház utca – Fiumei
út – Baross utca – Koszorú
utca által határolt terület
Budapest belvárosának
határán, Józsefváros
középső részén
L: 12.068 fő
T: 263.800 m2
The project area
It’s bounded by
Nagyfuvaros – Népszínház
– Fiumei – Baross –
Koszorú streets
Location: in the
periphery of the
downtown of Budapest, in
the middle of the district
8. of Budapest
Inhabitant: 12.068
Area: 263.800 m2
Elhelyezkedés Location

Budapest, Magdolna quarter
• Strategic plan of district VIII for fifteen years (2005-
2020)
• Socially sensitive urban regeneration programme:
– Phase I (2005-2008): funded jointly by the Budapest and
the District 8th Municipalities – pilot project for Budapest
Rehabilitation Fund socially sensitive subprogramme, 2.7
million eur total investment
– Phase II (2008-2011): ERDF funding (ROP) – key
project and a model program, 7.2 million eur total
investment
– Phase III – (2013-onwards) ERDF, 13 m eur total
investment
• Integrated programmes: both physical and soft
projects with extended partnership

Main pillars of the Magdolna I. programme
The aim of the programme is not to turn Magdolna
into a rich area,but to bring back the colourfullness
of Józsefváros and terminate deep poverty.
• Urban renewal: special programme for the tenants
– To involve them into the renewal
• Programme for creating communities
– Create a community house, give rooms for civil
organizations
• Public space program
– Improve the central square (Greenkeys, Interreg IIIB)
• Educational program, safety program
– De-segregate the school (from 98% to ‘normal’ share of
Roma kids)

Hungarian national framework of urban regeneration
Follows the idea of EC Community Initiative ”Urban”
Political commitment – IUDS incorporated in the Building Act
Strategic approach
Area-based approach
Integrated Urban
Development Strategy
•Strategic problem analysis
•Mid-term development strategy
•ANTI-SEGREGATION
Programme
Intervention
area 1
Intervention
area 2
Intervention
area N
Intervention Plan for Area 1
”Hard” components: Housing, Community facilities,
”Soft” components: Training, Employment, Community
actions (Global grants)
Urban
Development
Manual
Integrated approach

Main interventions of Phase II
• Hard investments
– To improve housing conditions (60% of the
project): 7 condominiums, 16 social housing
buildings (2 fully, 10 partially, 2 facades)
– To improve living environment: public spaces
• To strengthen local social services
• To improve the educational service
• To improve the employability of people
• To improve public safety conditions

COORDINATION THROUGH STRATEGIC PLANNING
• Strategic planning (since the 1980s): long-term concept
and spatial view with frameworks, principles and
conceptual spatial ideas.
• Only for strategically important parts of the city, to inject
a spatial dimension into sectoral strategies, integrating
economic, infrastructure and social policies in space.
• Strategic plans are usually not integrated with the
regulatory aspects of the planning system and do not
affect land rights, therefore they can be easily put aside if
political leadership changes.
– Example: Budapest. Eastern gate

PROVIDING BETTER ACCESS TO THE
TRANSITIONAL ZONE BY CONSTRUCTING A NEW
BRIDGE AND A RING ROAD

BUDAPEST
brownfield regeneration
residential development
centre development
green area recultivation
8 DEVELOPMENT AREAS
Danube
Heart of Budapest
Buda’s centre
North Budapest
South Budapest
East Gate project area
Urban subcentres
Line of No. 4 underground

Észak-BudapestÉszak-Budapest

BUDAPEST
Cultural axisCultural axis
65-85 000 sqm65-85 000 sqm
Culture, entertainment, restaurant,Culture, entertainment, restaurant,
services, education, creative industries,services, education, creative industries,
public park (tender)public park (tender)
Mixed commercial useMixed commercial use
100-120 000 sqm100-120 000 sqm
office, hotel, conference,office, hotel, conference,
residentialresidential
Graphisoft ParkGraphisoft Park
R&D (completed)R&D (completed)
Mixed commercial useMixed commercial use
35-50 000 sqm35-50 000 sqm
office, retailoffice, retail
(tender)(tender)
Residential areaResidential area
(completed)(completed)

COORDINATION THROUGH LARGE PROJECT
• Large projects (World Expo, Olympics, Capital of Culture, …)
may be used to coordinate efforts in planning of the city or
one of its areas
• The more investments arrive suddenly to a deprived area the
more difficult it is to make the development integrated
(involving the residents)
– Example: London, Olympics. The Olympic Park area was one of the
most deprived ones in London. 65% of residents were supportive for
Olympics in London. Majority also agreed that the games contributed
to the regeneration of their local area. Mainly long term benefits are
awaited not immediate things… Investments came to the area but not
jobs which would be directly accessible by the present generation of
the residents.

INSTITUTIONAL ASPECTS
Cooperation forms have different institutional set-ups:
•with some sort of institution/office: European Grouping of
Territorial Coopeartion (EGTC), Multi-Party Contracts (e.g. LEPs)
•without insitutional character: Policy Platforms (EU initiated),
Territorial Pacts, Local action plans, Local strategic partnerships
(see Tasan-Kok – Vranken, 2011)
Strategic planning process may create new types of institutions
which are important to stabilize in time strategic planning ideas.
For territorial (metropolitan) cooperation it might be important
to create some type of institution.

City, size Areas around the
city
Functions of the
different areas
Legal background
Stuttgart
(0,6 mill)
1. Stuttgart
Region (2,7
mill) 178
municipalities
2. Stuttgart
Metropolitan
Region (5,3
mill)
1. Land use
planning, the
organisation of
public transport
and the promotion
of the economy
2. Voluntarily
tasks in the field of
transport,
economic
development,
climate change
1. Stuttgart Region
(Parliament with 91
delegates) and the
Stuttgart Region
Association and
agencies
2. Committee with 36
nominated delegates.

PARTICIPATION-INCLUSION OF CITIZENS
• Participation is crucial for integrated development.
• Much depends how the participatiory aspects are implied
– it can range from participatory budgeting type deep
involvement till manipulation (masquerading the
dominance of economic interests).
• Recent scandals, as Stuttgart21, Berlin MediaSpree,
Hamburg Gangeviertel might underpin the view that no
integrated project is possible without participation.

EXAMPLES ON PARTICIPATION
• Participation techniques need to be adapted to local
circumstances (CoNet handbook, URBACT Results:57)
– Participatory budgeting (Berlin)
– Neighbourhood Mothers (Berlin)
– Organize popular family events (Zabrze)
– Mixed methods and use of LSG (Alba Iulia)
– Encourage social innovation through NGOs, CBOs
• URBACT projects (through LAPs and LSGs) and Strategic
Planning might contribute to build social capital in
governance structures.

INVOLVEMENT OF THE PRIVATE SECTOR
• Barcelona Strategic Plan, Rotterdam Climate Initiative: broad
involvement of major economic actors.
– Might be seen as corporate planning for economic development
goals with certain social and environmental aims attached.
• New (2010) ideas to involve private capital to finance
investments of public interest: ‚impact development’, re-paying
private investment from the savings on public expenditures.
– Social Impact Bonds: investors/funders provide the initial capital
support and the government agrees to make payments to the
program only when outcomes are achieved. So in principle
government pays only for success.

EXAMPLES ON PRIVATE SECTOR INVOLVEMENT
• URBACT projects have relatively little experience and
mixed results in private sector involvement (URBACT
Results:58).
– RegGov: private actors (e.g. Housing Companies) need to be
involved as LSG members into neighbourhood regeneration –
Duisburg, Södertälje
– Jessica4Cities: engaging the private sector might be expensive
option for certain types of PPPs
• Could visionary planners change cities with the help of
investors on the basis of public sector guarantees…? Not
without real citizen participation …

JACQUIER: Multilevel : yesterday, today and may be tomorrow
A building process : the role of urban and regional policies
Until now
Former Organisation
Polarized Spaces
"Hardware" Policies
Central State
Province
Commune
Now
Transition
Then
New organisation
Homogeneous spaces
"Software" Policies
European Union
Transborder
Regions
National Regions
Metropolitan
Areas
Neighbourhoods
Vectors
Sustainable Urban
Development
Integrated Policies
as operators for transition
Social Cohesion Policy
SDEC, INTERREG
CIP URBAN, URBACT
Regional Politicies
DOCUP OP
Interreg
National IPSUD
(Big Cities programme
Politique de la ville,
Soziale Stadt, ...)
CIP Urban
Area-based approaches

5. Closing up

TABLE DISCUSSIONS FOR 15 MINUTES
Discuss one of the following questions in your group:
•What kind of experiences, successes or failures, do you
have with the different types of integration policies
(horizontal, territorial, vertical)?
•What kind of experiences do you have with the different
types of coordination mechanisms (area-based, strategic
planning, large project)? Do you have additional ideas for
coordination?
In each group a note-taker should be selected who will
send me the notes today via email.

5. Closing up

LINK TO EU POLICIES
• Integrated urban development is the key to achieve the
EU2020 targets. Thus national and EU level support is
needed to initiate cross-sectoral and cross-territorial
planning towards green and social economy strategies.
• The new EU tools (ITI, CLLD, Horizon2020) in the
upcoming 2014-2020 period can help integrated
planning and development.

Regional
ERDF OP
National/sectoral
ERDF OP
ESF OP
CF OP
Integrated sustainable urban development
City 3

Example: Member State A
Total allocation
for ITI at least
5% of Member
State’s ERDF,
delegated to
cities
I
T
I
+ additional
ESF and CF,
if appropriate
City 1
City 2
City 3


City 25
City …

INTEGRATED DEVELOPMENT AND EUROPEAN POLICIES
• ITIs, led by cities, in conjunction to CLLDs, led by public-
private-thirdsector partnerships in neighbourhoods
might help integration in narrow functional areas
– there is a need for defined boundaries and (at least
delegated) fixed institutional structure
• regional innovation strategies, led by administrative
regions and Horizon2020 innovation partnerships might
help integration in broader metropolitan areas
– can and should be kept on flexible spatial level

NATIONAL POLICIES NEEDED
• The national level is of crucial importance in initiating
integrated urban development across policy sectors, in
functional areas and across levels of policy making
– Good examples can be discovered e.g. in France, Germany,
Switzerland, Finnland; promising discussions seem to go on in
Sweden, Poland, Norway, Belgium, UK
• Cities have to lobby (referring to the EU and to
URBACT) their national and regional governments with
arguments and ideas towards integrated urban
development

TOWARDS MORE DEMOCRATIC DEVELOPMENT
Give important role to bottom-up initiatives.
However, avoid the dangers of
technical optimism – do not devolve too much power to non-
political, non-elected actors
local democracy optimism – the situation would not improve a
lot “If Mayors Ruled the World”
Bottom-up initiatives should be embedded into well-
defined top-down frameworks
French Urban Communities, Berlin neighbourhood fund,
Hungarian Integrated Urban Development policy…

DO MORE WITH LESS PUBLIC MONEY
Develop more efficient public policies with integrating the
economic, environmental and social policies:
fight against urban sprawl with densification of inner residential and
brownfield areas
connect green economies to inclusive job creation (e.g. energy
efficient renewal of deprived areas): GREEN SOCIAL ECONOMY
use social innovation to handle the problems of youngsters,
unemployed, migrants…
Integrated strategic planning on the level of functional urban
metropolitan areas could be the starting point for al this.

SHORT DEBRIEFING
Please answer shortly the following questions on the
coloured papers (and leave them on your seat):
•WHITE What are your main conclusions from this session
(3 most relevant messages)?
•RED What are the main challenges in your context that
prevent integrated urban development?
•GREEN Is there anything you have learned during this
session that you think you can use in your work?

Thank you for
your attention!
tosics@mri.hu

URBACT Summer University 2013 - Masterclass - Ivan Tosics "Designing Urban Policies in an Integrated Way"

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URBACT Summer University 2013 - Masterclass - Ivan Tosics "Designing Urban Policies in an Integrated Way"