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Proceedings of the Institution of

=
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<   Civil Engineers
    Municipal Engineer 000               Lee Pugalis
                                         Durham County
    Month 2010 Issue ME000
=   Pages 1–9
    doi:
                                         Council, County
                                         Durham Economic
                                         Partnership, School of
    Paper 900048                         Architecture, Planning
    Received 30/10/2009                  and Landscape,
    Accepted 04/03/2010                  University of
                                         Newcastle-upon-Tyne,
    Keywords:                            Durham, UK
    history/town & city planning/urban
    generation
;

       The (incremental) renaissance of the historic city of Durham
    L. Pugalis         BA, DipTP, MA, MTP, MRTPI, MIED, MeRSA


    The UK historic city of Durham is considered by policy-                     examines the role of place quality improvements administered
    makers to be the ‘jewel in the crown’ in terms of                           to stitch together the historic city fabric with a contemporary
    economic potential for a county that has struggled to find                  urban aesthetic, making the case that place-shaping should
    a niche role following the collapse of coalmining.                          respond to the needs of everyday users and local inhabitants.
    Perceived through the eyes of a local practitioner, this                    This is done by first briefly venturing into Durham county’s and
    paper takes a look at how a networked ensemble of                           city’s rich historical legacy, as a means to situate it spatially and
    actors are responding to the economic recession and                         economically. The role and motivations of Durham city Vision
    planning for the upturn. The paper examines the role of                     are then examined– the networked ensemble of actors
    place quality improvements administered through the                         spearheading its renaissance ambitions – with a particular focus
    delivery of a city masterplan to stitch together the                        on place quality as an instrument for regeneration. The paper
    historic city fabric with a contemporary urban aesthetic.                   closes with an analysis of the city’s response to the recession and
    Through the case of the (incremental) renaissance of                        some reflections on practice. An alternative to attention
    Durham city, it is suggested that a sensitive multilayered                  grabbing ‘big project’ place-shaping is highlighted, as the
    development approach underpinned by deliberative                            author contends that a sensitive multilayered development
    democracy is required that responds to the needs of                         approach may be more fruitful in the longer term.
    everyday users and local inhabitants.
                                                                                2. DURHAM COUNTY AND CITY
                                                                                HISTORICAL BACKGROUND
    1 INTRODUCTION                                                              Owing, in part, to the past dominance of traditional extractive
    Historic cities have a crucial role to play in the social, cultural         industries, County Durham has struggled to manage the
    and economic development of post-industrial landscapes                      transition from an industrial to a postindustrial, knowledge-
    (Doratli et al., 2004; English Heritage, 2005; Gilderbloom et al.,          driven economy. (Coal has an illustrious association with the
    2009; Ren, 2008; Tiesdell et al., 1996; Wilson, 2004). The                  North East dating back to ancient times, but became more
    preservation and restoration of historical space can produce a              widespread in the thirteenth and fourteenth centuries. Coal
    ‘heritage dividend’ (English Heritage, 1999) in cultural and                dominated the region’s industry in the seventeenth and eight-
    economic regeneration. The term ‘heritagisation’ has been                   eenth centuries and the world’s first railways emerged using
    coined to refer to the recommodification of such assets. In this            horse-drawn wagons to carry coal from the local mines to
    paper attention is drawn to the historic city of Durham, situated           Newcastle, aptly named ‘Newcastle Roads’. ) Indeed, manufac-
    in the North East of England (see Figure 1), which is considered            turing remains a dominant employer of the county’s workforce
    by a networked ensemble of policy actors to be the ‘jewel in the            (see Table 1), but even so, the decline of coal mining during
    crown’ in terms of economic potential for a county that has                 much of the twentieth century severely undermined the
    struggled to find a niche role following the collapse of                    economic vibrancy of the county.
    coalmining (Durham County Council, 2009). (Note: The term ‘a
    networked ensemble of actors’ is here applied to describe the               Although the visible scars of the county’s industrial past are
    fluid coming-together of different individuals and organisations            largely gone, the legacy of social and employment problems
    to champion a shared cause.)                                                remain (County Durham Economic Partnership, 2008; Robinson
                                                                                et al., 2007). In 2005, gross value added (GVA) – the UK
    A commonly held view by local and regional policy-makers is                 government’s estimation of gross domestic product (GDP), used
    that Durham city possesses significant untapped potential as a              as a proxy measure of the state of the whole economy – was
    world class visitor destination, cultural centre and space of               65% of the national average. Such gloomy characteristics have
    consumption. Such ambition is reflected in Durham’s recently                become even more desperate as the impacts of the global
    launched draft cultural strategy supporting its bid to become UK            economic recession are deeply felt in County Durham. For
    Capital of Culture in 2013 (DCC, 2009c). Perceived through the              example, in recent years the county has generally recorded a
    eyes of a local practitioner, this paper takes a look at how a              lower job seekers allowance (JSA) unemployment rate than the
    networked ensemble of actors in Durham are responding to the                North East region as a whole, but with the onset of the current
    economic recession and planning for the upturn. The paper                   recession this picture appears to be changing rapidly (Pugalis

         Municipal Engineer 000 Issue ME000                       The (incremental) renaissance of the historic city of Durham                Pugalis   1

Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:26
NORWAY
                                                                                                                            Stavanger
                                                                                                                                  ROGALAND
                                                                                                                                           AUST-ADGER

                                                                                                                                            VEST-AGDER




                                                                      Inverness
                                                                                       Aberdeen
                                                                                                                                                      Holstebro
                                                             SCOTLAND
                                                                                 Dundee                                                           RingkØbing
                 A t l a n t i c
                                                                                                              N o r t h     S e a
                   O c e a n                                                                                                                                 RIBE
                                                                                Edinburgh
                                                                                                                                                         Esbjerg
                                                                      Glasgow


                                  Londonderry                                               Newcastle
                                                                  Dumfries
                                                                                 Carlisle   upon Tyne
                                             NORTHERN
                                              IRELAND                           DURHAM  Middlesbrough
                                                        Belfast
                                  SLIGO                                               Darlington
                                             Monaghan                        UNITED KINGDOM
                             MAYO        CAVAN Dundalk                                                                                                    LOWER
                                                                       Preston      Leeds          Hull
                                 Longford Mullingar
                                                                                     ENGLAND                                         Groningen SAXONY
                              GALWAY              Dublin            Liverpool                    Grimsby
                                                                                   Mariohester                                 Leeuwarden THE
                                  IRELAND                           Stoke-on-Trent  100mi                                           NETHERLANDS
                                                                                          Nottingham
                           Ennis                                                                                  Great          Lelystad
                                         Kilkeany                  Shrewsbury Derby                Norwich
                            LIMERICK                                                                              Yarmouth Amsterdam      OVERIJSSEL
                    Tralee           Clonmel Wexford                                      Leicester Lowestoft
                                                                         Birmingham                                        The Hague         GELDERLAND
                       KERRY                                                            Coventry
                              CORK        Waterford                            Hereford                                                    Arnhem
                                                                                                                             Rotterdam            Dortmund
                              Cork                                WALES            Gloucester Luton        Ipswich
                                                          Swansea                         Swindon           Southend-on-Sea            Tilburg    Duisburg
                                                                                                      London      Oostende Antwerp              Dusseldorf
                                                                     Cardiff      Bristol                                                               GERMANY
                                                                                                     250 mi                       BELGIUM
                                                                             Southampton             Brighton                                        Maastricht
                                                                                                                     Calais     Kortrijk Brussels
                                                                      Weymouth                         Eastbourne                                         Neuwied
                                                                                        Bournemouth                       Lille     WALLOON REGIIN
                                                                     Plymouth                                   NORD-PAS-DE-CALAIS
                                                                                                                                                      LUX     Trier
                                                                             English Channel                Abbeville
                                                                                                                         PICARDIE
                                                                                                                                             Charleville-Mezieres
     © 2001 Microsoft Corp. All rights reserved.                                           Cherbourg                  F R A N C E                LORRAINE
      Figure 1. Map of Durham. The map situates Durham in relation to other UK cities, showing those within a 100 and 250 mile radius


    et al., 2009). County Durham JSA annual increase exceeded                          the national average. Many communities are locked into a cycle
    100% for 7 consecutive months, beginning in February 2009 (at                      of multigenerational unemployment, deprivation and state
    102%) and peaking at May 2009 (at 119?6%) (see Table 2).                           dependency: 65?8% of residents live in the highest 30% of lower
                                                                                       super output areas (LSOAs) ranked nationally on the basis of
    The economic history of the county has generated a spatially                       employment deprivation. Problems are particularly acute in the
    fragmented and isolated geography of small dispersed settle-                       county’s former coalfield communities (pit villages) and exacer-
    ments: with a population of around 500 000, County Durham is                       bated by poor housing stock, worklessness and limited accessi-
    made up of more than 40 settlements of 3000 or more residents                      bility to employment opportunities (DCC, 2009b). In this sense,
    (see Figure 2). The county has around 34% of its population living                 Durham is still playing ‘catch up’, managing its economic, social
    in areas classified as town and fringe, which is more than triple                  and environmental legacy while simultaneously looking forward,

                                                                                                           Durham (2008)

     Sectors                                                                                number                                           %

     Agriculture and fishing                                                                   3600                                         1?5
     Energy and water                                                                          4700                                         2?0
     Manufacturing                                                                           41 000                                        17?4
     Construction                                                                            18 200                                         7?7
     Distribution, hotels and restaurants                                                    39 100                                        16?5
     Transport and communications                                                            15 700                                         6?7
     Banking, finance and insurance                                                          24 900                                        10?5
     Public admin. education and health                                                      74 800                                        31?6
     Other services                                                                          13 300                                         5?6
     Total in employment                                                                    167 800                                        71?0

     Source: Annual Population Survey, April 2007-March 2008, 95% confidence interval of percent figure (+/2)

     Table 1. Employment by sector in County Durham


2   Municipal Engineer 000 Issue ME000                       The (incremental) renaissance of the historic city of Durham                               Pugalis

    Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:27
County Durham (annual                               County Durham (% annual
   Date                                                        County Durham (level)                                        increase)                                            increase)

   Oct 2008                                                                  9   148                                                 2903                                                   46?5
   Nov 2008                                                                 10   198                                                 3916                                                   62?3
   Dec 2008                                                                 11   549                                                 5099                                                   79?1
   Jan 2009                                                                 13   093                                                 6154                                                   88?7
   Feb 2009                                                                 14   445                                                 7295                                                  102?0
   Mar 2009                                                                 14   781                                                 7703                                                  108?8
   Apr 2009                                                                 15   204                                                 8110                                                  114?3
   May 2009                                                                 15   265                                                 8314                                                  119?6
   Jun 2009                                                                 14   900                                                 7860                                                  111?7
   Jul 2009                                                                 14   805                                                 7453                                                  101?4
   Aug 2009                                                                 14   674                                                 6647                                                   82?8
   Sep 2009                                                                 14   421                                                 5914                                                   69?5

   Source: Nomis

    Table 2. County Durham residents claiming JSA


  identifying new opportunities that will restructure the economy,                                                  potential to play a much stronger and more influential role in
  generate employment and new wealth across the county.                                                             the North of England’s economic renaissance.

  Nevertheless, the county of Durham is home to a historic city;                                                    3. DURHAM CITY VISION: THE ROLE OF
  locally and regionally considered to possess untapped potential                                                   PLACE QUALITY
  as a world-class visitor destination, international centre of                                                        1000 years of evolution have created the Durham we see today;
  education (Durham University is the leading university in the                                                        always changing but always the same. It is a city firmly anchored in
  North of England and is consistently ranked in the world’s top                                                       both time and place, and it is eternal
  20 research institutes based on the impact of its scientific                                                         (Source: Durham City Partnership, 2007: 11)
  research) and as a regional retail centre and business location.                                                  Connected to the East Coast Main Line with a direct route to
  Internationally renowned and home to the cathedral and castle                                                     London and the A1 motorway, Durham city has excellent
  UNESCO World Heritage Site (see Figure 3), Durham city has the                                                    transport links and is also home to one of the country’s leading



                                                                                                                                    Chester-
                                                                                                               Stanley A693
                                                                                                                                    le-Steet
                                                                                                      A692
                                                                                            Consett
                                                                                                                                  CHESTER-LE-STREET
                                                                                                                                                                             Seaham

                                                                                            DERWENTSIDE

                                                                                                                     A691

                                                                                                                                               A690
                                                                                                                                                                         EASINGTON
                                                                                                                                          Durham
                                                                                                                                                                               A19
                                                                                                                                       DURHAM
                                                                                                                                                                                 Peterlee


                                                             WEAR VALLEY                                                                A167
                                                                                                  A68                                              A1 (M)

                                                                                                                                      Spennymoor




                                                                                                                        Bishop
                                                                                                                       Auckland                       A689

                                                                                                                                        Newton              SEDGEFIELD           Legend
                                                                                                                                        Aycliffe                                          District Boundary
                                                                                                             A688
                                                              TEESDALE                                                                                                                    County Durham Unitary Council boundary
                                                                                                                                                                                          Railway

                                                                                                                                                                                          Urban Areas
                                                                                                                                                                                 Rural Population Density (No. of people per ha)
                                                                                                                                                                                          0.02-0.31

                                                                                                                                                                                          0.32-0.79

                                                                                                                                                                                          0.80-1.60

                                                                                                                                                                                          1.61-2.96
                                                                 A67                                                                                                                      2.97-5.25

                                                                                                                                                                                          5.26-9.09

                                                                                                                                                                                          9.10-15.56

                                                                                                                                                                                          15.57-26.43

                                                                                                                                                                                          26.44-44.70

                                                                                                                                                                                          44.71-75.44
   N                                                                                                                                                                             NE England Census 2001 Statistics
       1:275,000_@A4                                                                                                                                                             Population (Source ONS)
                                                                                                                                                                                 Total Rural Population: 212897
   Source: 2001 Census, Output Area Boundaries. Crown copyright 2003. Crown copyright material is reproduced with the permission of the Controller of HMSO.
                                                                                                                                                                                 Total Urban Population: 280573

    Figure 2. County Durham’s dispersed settlement pattern. County Durham’s population density reflective of its dispersed settlement
    pattern. Source: EDAW (2009)


        Municipal Engineer 000 Issue ME000                                              The (incremental) renaissance of the historic city of Durham                                                                 Pugalis       3

Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:33
parking, the requirements of modern retailers, changing expectations
                                                                               of visitors, the needs and demands of students, the implications of a
                                                                               growing evening economy and a lack of cultural venues.
                                                                               (Source: Durham City Partnership, 2007: 7)


                                                                            In the late 1990s, an ensemble of public and private sector actors
                                                                            commissioned David Lock Associates to produce ‘A develop-
                                                                            ment framework for the heart of Durham’ (David Lock
                                                                            Associates, 1998). The framework explored the development
                                                                            potential of a range of sites, resulting in the completion of the
                                                                            Gala Theatre, Millennium Place and Clayport library complex
                                                                            which opened in 2002 (Pugalis, 2009a). Even so, opportunities
                                                                            for redevelopment within the city remained limited and the
                                                                            city’s outward expansion curtailed by planning policy and
                                                                            transport infrastructure. A variety of actors perceived retail
                                                                            facilities to be inadequate and there was a low percentage of
     Figure 3. Durham Castle and Cathedral. Durham Castle and
     Cathedral UNESCO World Heritage Site from the banks of                 multiple occupiers, which tend to ‘anchor’ sites and attract
     the River Wear.                                                        additional consumers (Experian, 2006). Leisure facilities were
                                                                            also considered to be underrepresented, particularly bars and
                                                                            clubs to cater for the substantial student population (circa
    universities, attracting some of the brightest students from the        15 000). Around this time, local and regional actors debated the
    UK and other countries. The city serves the surrounding rural           concept of a networked partnership entity to deliver the vision
    hinterland, including a county-wide population of almost                for Durham.
    500 000 inhabitants, and thus has a large net inflow of
    commuters. Much of its building stock dates back to the                 ‘Durham city vision: 2020’ is one of the North East’s key
    medieval period and a high proportion of buildings are ‘listed’         transformational projects (One NorthEast, 2006, 2007); devel-
    (see, for example, Figure 4). Its overall environment and               oped through the Durham City Partnership set up in 2003 (The
    atmosphere are qualities valued by both visitors to the city and        partnership consists of Durham County Council, One NorthEast
    its residents (Donaldson, 2004). Yet, despite these obvious             Regional Development Agency, Durham University, the Dean
    merits, there has been a perception that the city’s ‘offer’, in terms   and Chapter of Durham Cathedral and the business community
    of housing, leisure, retail and cultural facilities, together with      through the North East Chamber of Commerce.) A masterplan
    the quality of its public spaces is not meeting its full potential.     for the city launched in March 2007 (Durham City Partnership,
    Collectively, these have arguably led to reduced employment             2007). The 2020 vision aims to reinvigorate the county’s
    opportunities and poor economic performance.                            economy through place quality enhancements and recasting the
                                                                            city centre. Analysing the city’s ‘place assets’, the masterplan
    The compact nature of the city centre – surrounded by a green           considers how people use spaces and what people value. It puts
    belt and further constrained by the implementation of a major           forward a combination of capital and revenue strategies for
    road network in the early 1970s – makes expansion difficult (see        different themes and functions within the city centre.
    Figure 5). Subsequently, over recent decades the city centre
    offer has ‘stagnated’:                                                  Masterplans have an extensive lineage but their popularity has
       As the towns and cities around changed significantly, Durham         spread over the last decade or so (Bell, 2005; CABE, 2008;
       remained the same and the problems of an old, established city       Holmes and Beebeejaun, 2007), to a point that they are almost
       centre confronting the requirements of a city centre in the late     de rigueur in contemporary place-shaping practice. Yet, perhaps
       twentieth century were compounded year on year – access and car      because of their universal application, a variety of masterplan
                                                                            styles exist, some of which are summarised in Figure 6. In the
                                                                            case of Durham’s masterplan, even though it is championed by a
                                                                            networked ensemble of public and private actors, it is primarily
                                                                            a public-led guiding document. A notable example of a
                                                                            visionary plan is that produced for Chicago in 1909, inspired by
                                                                            its principal creator Daniel Burnham who proclaimed: ‘Make no
                                                                            little plans. They have no magic to stir men’s blood and
                                                                            probably themselves will not be realized. Make big plans; aim
                                                                            high in hope and work, remembering that a noble, logical
                                                                            diagram once recorded will never die, but long after we are gone
                                                                            will be a living thing, asserting itself with ever-growing
                                                                            insistency. Remember that our sons and grandsons are going to
                                                                            do things that would stagger us. Let your watchword be order
                                                                            and your beacon beauty. Think big’ (cited in Moore, 1921). Will
                                                                            Alsop’s Middlehaven regeneration plans for Middlesbrough and
                                                                            his masterplan for Barnsley are more contemporary examples of
                                                                            Burnham’s ‘think big’ philosophy. In terms of binding plans, a
     Figure 4. Mixed historic architectural fabric
                                                                            well known example is the implementation of plans to

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    Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:35
4

                               1                2

                                                                               3



                                                                                      5




    Figure 5. Compact city centre. The compact nature of Durham city centre is compounded by ill-defined gateways, fragmentation and
    severance (E David Locke Associates)


  regenerate the Gorbals area of Glasgow (Tiesdell and                (c) an increase in retail floor-space from 184 000 m2 in 2005 to
  MacFarlane, 2007).                                                      192 900 m2
                                                                      (d) 419 new residential units
  The masterplan is composed of a series of ‘strategies’, including   (e) £67m private sector leverage
  iconic development, modern jewels, illumination and shopping,
  which are spatialised through the designation of seven city         The masterplan puts down on paper the general view that Durham
  ‘quarters’ (see Figure 7) (Marcuse, 1989). Self-prescribed as ‘a    does not need more iconic ‘big projects’, warning that even
  comprehensive strategy for the city’, the masterplan has been       though such projects can be politically ‘seductive’, a failure to
  developed so ‘that local decisions can be made in a strategic       deliver could paralyse the city’s revitalisation ambitions (Durham
  way’ (Durham City Partnership, 2007: 6). A summary of the           City Partnership, 2007). Instead of championing ‘big projects’ the
  main priorities comprising the 2020 vision is given in Table 3.     masterplan is grounded in four development principles
  Collectively, these projects at an estimated total cost of £200m
  intend to deliver the following outputs                             (a) Realisable development ambitions – anchored in market
                                                                          realism with a commitment to world-class design quality
  (a) 4267 net additional new jobs                                        befitting its historic setting.
  (b) an increase in office floor-space from 207 000 m2 in 2005 to    (b) ‘Jewel’ development opportunities – smaller-scale inter-
      300 000                                                             ventions that establish a reputation in the city for

      Municipal Engineer 000 Issue ME000                The (incremental) renaissance of the historic city of Durham             Pugalis   5

Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:37
Public_
                                                                         Private
                                                                       Partnership

                                                 Public-led                                        Private-led




                                                                       Masterplan




                 Visionary                                            Guiding                                          Binding

                 _ Raise expectations
                                                               _ Set out general design principles                    _ Set out clear and often
              _ Generate hope, hype and
                                                                                                                 prescriptive painciples (e.g. design
                       optimism                                  _ Loosely coordinate individual                               codes)
                                                                         developments
                                                                                                                   _ May have formal legal and
            _ Reference document to generate                                                                             planning status
                 development momentum                              _ Supplementary planning                        _ Used to secure development
                                                                           document                                         agreements
                                                                _ Used in design negotiations and
             _ Unlikely that development will                                                                    _ Often accompanied by delivery
                                                                         partner buy-in
           closely resemble masterplan spatial                                                                    plans and funding agreements
                          vision


                                                                _ developments guided by spatial
            _ Forge the early development of                                                                     _ Development closely attune with
                                                                              vision
              partnerships and collaboration                                                                           masterplan proposals




     Figure 6. Masterplan styles. Depending on the development context and partner relations will dictate which style of masterplanning is
     most appropriate. Source: author


        well-crafted but small-scale new buildings that are sympa-                 the global economic recession and plans for the upturn (Pugalis,
        thetic to their setting and yet set themselves apart through               2009b). Unlike the rest of the county, Durham city has one of the
        uniqueness of form and use.                                                highest concentrations of financial and business services in the
    (c) Reinforce the cultural role of the market place – re-establish             North East, which is being adversely affected by the credit crisis
        it as the heart of the city of the everyday user and social life           (DCC, 2009a). However, so far, the economic blow to the
        of Durham.                                                                 financial and service sectors has been cushioned by the boost in
    (d) Improve the management and marketing of ‘assets’ – engage                  tourism courtesy of ‘staycations’, as people choose to visit more
        local people and businesses; opening up fresh opportunities                local destinations, and those employed by public institutions
        for collaboration, creativity and enterprise.                              (which accounts for about one-third of the local workforce).
                                                                                   (Note: Tourism currently contributes around £1?6m to the
    Guided by these four development principles, place quality                     county economy per day; sustaining 12 000 jobs. While this is
    improvements (to date) have been sensitively administered to                   less than other ‘heritage cities’, such as York and Lincoln, there
    stitch together the historic city fabric with a contemporary                   remains significant potential for growth in Durham city and its
    urban aesthetic. The implementation of key strategies has helped               surrounding satellite attractions.) Yet, with public sector
    the city capitalise on existing assets, while some other key                   spending anticipated to retrench over the next few years, it
    projects are entering the latter stages of the development                     would be premature to talk of an economic upturn materialising
    process. For a summary of the current position of key projects                 in 2010.
    see Table 4. Where possible, delivering the masterplan has been
    aligned with other capital projects, including accessibility and               The masterplan 2020 vision for the historic city of Durham
    transport improvements.                                                        ‘reflects a premise that Durham has not yet reached its true
                                                                                   potential and the Vision is therefore a guide for the future’
    4. RESPONDING TO THE RECESSION AND                                             (Durham City Partnership, 2007: 6). In terms of preservation and
    REFLECTIONS ON PRACTICE                                                        restoration, there exists an uneasy relationship between
    Not too dissimilar to other cities in Britain and internationally,             economic and cultural values. While often overlaying and
    the city of Durham is facing sizeable challenges as it responds to             intersecting one another, these values can sometimes clash

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    Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:42
FRAMWELLGATE

                                                                                      CLAYPATH


                        VIADUCT



                                                          CENTRAL




                                        CROSSGATE
                                                                 PENINSULA




                                                                                          ELVET




    Figure 7. Durham city centre quarters. Each ‘quarter’ is spatially distinct; composed of unique social, cultural and environmental
    features (E David Locke Associates)


  head-on to the extent that promoting economic values can                 economic landscape when the masterplan was published in
  rebuff cultural values and vice versa. While setting a broad             March 2007. Keeping space open, the networked ensemble of
  strategic direction, space is left open for changing political           actors involved in Durham’s place quality-led economic
  imperatives, community aspirations and different economic                resurgence have recognised the clash of values between historic
  climates. The latter has been particularly important, as the post-       built-environment preservation and the capitalist production of
  credit crunch development climate is markedly different to the           space.

   Project name                                                                          Description

   The heart of the city: market place and      Physical streetscape improvements, including lighting and signage, and ‘soft’ marketing,
   vennels                                      events and business development initiatives. It seeks to enable the market place to become
                                                the most important commercial asset in the city, setting the tone for the whole city centre.
                                                Physical interventions and change in the highways layout intend to reconfigure and
                                                reprioritise space for pedestrians and enable its use as a marketplace, an events space and a
                                                meeting place (see Figure 8).
   Capitalising on existing assets              Make the most of icons and assets it already has, including the castle, the cathedral, and to a
                                                lesser extent, the university, the Gala Theatre/Millennium Place, and the integrity of the
                                                historic city core.
   Redevelopment of the former ice rink site,   Mixed-use development opportunity, unique to the city centre. Potential for a
   Freemans Place                               contemporary urban infill scheme.
   World Heritage Visitor Centre, Owengate      Providing a focus for the World Heritage site, with the aim of attracting more visitors and
                                                increasing local spend.
   Necklace Park                                An innovative proposal intended to draw together a series of existing spaces and places
                                                along the 12 mile chain of the River Wear, stretching from Finchale Priory to Sunderland
                                                Bridge.
   Durham Riverbanks Gardens                    Linked to the World Heritage site and Necklace Park, a restoration project to provide a
                                                garden attraction and enhancement of overall visitor experience
   Light and dark and signage strategies        Ambitious strategies intended to put the city centre at the forefront of urban lighting and
                                                signage in the UK and Europe.

   A strong emphasis on place quality runs through each of the projects contributing to the 2020 vision priorities. Source: author

    Table 3. 2020 vision priorities


      Municipal Engineer 000 Issue ME000                    The (incremental) renaissance of the historic city of Durham                 Pugalis   7

Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:44
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     Figure 8. Market place proposals. Detailed redesign proposals to augment the market place’s role as the heart of the city (E David
     Locke Associates)

    The charm and spatial uniqueness of Durham owes a lot to its                                                                       tendencies, where a preoccupation with the past ignores the
    built-heritage, urban morphology and medieval street network.                                                                      potential of the present (see, for example, Gallacher, 2005). No
    It is therefore imperative that a clash of values – by way of                                                                      ‘right’ decision can be made about what gets preserved and why,
    public debate and community participation – is actively                                                                            which supports the need for deliberative democracy, whereby
    encouraged. The author suggests that such deliberative democ-                                                                      such practice may prevent the politico-economic imperatives of
    racy can put in place the necessary safety-valve to prevent the                                                                    a few, subverting the rights of the many. It is possible for a space
    chrematistic pursuit of short-term profit over longer-term socio-                                                                  to testify to the past and simultaneously project images of the
    environmental value. Indeed, if Durham’s place assets are                                                                          future.
    perceived to provide ‘competitive advantage’, then insensitive
    development strategies would be akin to killing the golden                                                                         An early recognition that Durham city does not require a
    goose. In some of Durham’s urban ‘quarters’, there is a danger                                                                     proliferation of ‘big projects’ is perhaps a development
    that historical elements are being selectively recycled which                                                                      philosophy that other city governance ensembles may want to
    could amount to the production of an internationally standar-                                                                      consider, especially as planning for the upturn in likely to take
    dised abstract transnational space (Ren, 2008), devoid of local                                                                    place in a climate of austerity. Not wishing to portray the
    spatial character. Conversely, other researchers warn of the                                                                       ongoing renaissance of Durham as a resounding ‘success story’,
    dangers posed by an overemphasis on nostalgic preservation                                                                         it does offer practitioners and academics an interesting case of

     Project title                                                                                                                                                         Status

     The heart of the city: market place and vennels                                                                                               Ongoing
     Capitalising on existing assets                                                                                                               Elements complete, overall work ongoing
     Redevelopment of the former ice rink site, Freemans Place                                                                                     Site acquired and design brief completed
     World Heritage Visitor Centre, Owengate                                                                                                       Advice to the parties
     Necklace Park                                                                                                                                 Ongoing
     Durham Riverbanks Gardens                                                                                                                     Ongoing
     Light and dark and signage strategies                                                                                                         Completed

     Projects continue to progress ‘on the ground’. Source: author

     Table 4. Development status of key projects


8   Municipal Engineer 000 Issue ME000                                                                         The (incremental) renaissance of the historic city of Durham                        Pugalis

    Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:49
how to approach the regeneration of a historic space through                East’s Historic Environment. English Heritage North East
  prioritised place quality enhancements. The revitalisation of               Region, Newcastle.
  collective spatio-historic assets, such as the city of Durham, is       Experian (2006) Baseline Information for Major Centres Study:
  an incremental process. Consequently, a multilayered approach               Durham City. Durham, County Durham Economic
  to place-shaping may prove more fruitful – politically,                     Partnership.
  culturally, economically and environmentally – than big                 Gallacher P (2005) Everyday Spaces The Potential of
  projects predisposed to deliver quick wins.                                 Neighbourhood Space. Thomas Telford, London.
                                                                          Gilderbloom JI, Hanka MJ and Ambrosius JD (2009) Historic
  ACKNOWLEDGEMENTS                                                            preservation’s impact on job creation, property values, and
  The author would like to acknowledge the receipt of Economic                environmental sustainability. Journal of Urbanism:
  and Social Research Council (ESRC) award PTA-030-2005-                      International Research on Placemaking and Urban
  00902 and the support of Durham County Council.                             Sustainability 2(2): 83–101.
                                                                          Holmes K and Beebeejaun Y (2007) City centre masterplanning
                                                                              and cultural spaces: a case study of Sheffield. Journal of
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  Bell D (2005) The emergence of contemporary masterplans:                Marcuse P (1989) Dual city: a muddy metaphor for a quartered
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    To discuss this paper, please email up to 500 words to the editor at journals@ice.org.uk. Your contribution will be forwarded to the
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      Municipal Engineer 000 Issue ME000                   The (incremental) renaissance of the historic city of Durham                Pugalis   9

Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:12:13

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2010 The incremental renaissance of the historic city of durham

  • 1. Proceedings of the Institution of = < < Civil Engineers Municipal Engineer 000 Lee Pugalis Durham County Month 2010 Issue ME000 = Pages 1–9 doi: Council, County Durham Economic Partnership, School of Paper 900048 Architecture, Planning Received 30/10/2009 and Landscape, Accepted 04/03/2010 University of Newcastle-upon-Tyne, Keywords: Durham, UK history/town & city planning/urban generation ; The (incremental) renaissance of the historic city of Durham L. Pugalis BA, DipTP, MA, MTP, MRTPI, MIED, MeRSA The UK historic city of Durham is considered by policy- examines the role of place quality improvements administered makers to be the ‘jewel in the crown’ in terms of to stitch together the historic city fabric with a contemporary economic potential for a county that has struggled to find urban aesthetic, making the case that place-shaping should a niche role following the collapse of coalmining. respond to the needs of everyday users and local inhabitants. Perceived through the eyes of a local practitioner, this This is done by first briefly venturing into Durham county’s and paper takes a look at how a networked ensemble of city’s rich historical legacy, as a means to situate it spatially and actors are responding to the economic recession and economically. The role and motivations of Durham city Vision planning for the upturn. The paper examines the role of are then examined– the networked ensemble of actors place quality improvements administered through the spearheading its renaissance ambitions – with a particular focus delivery of a city masterplan to stitch together the on place quality as an instrument for regeneration. The paper historic city fabric with a contemporary urban aesthetic. closes with an analysis of the city’s response to the recession and Through the case of the (incremental) renaissance of some reflections on practice. An alternative to attention Durham city, it is suggested that a sensitive multilayered grabbing ‘big project’ place-shaping is highlighted, as the development approach underpinned by deliberative author contends that a sensitive multilayered development democracy is required that responds to the needs of approach may be more fruitful in the longer term. everyday users and local inhabitants. 2. DURHAM COUNTY AND CITY HISTORICAL BACKGROUND 1 INTRODUCTION Owing, in part, to the past dominance of traditional extractive Historic cities have a crucial role to play in the social, cultural industries, County Durham has struggled to manage the and economic development of post-industrial landscapes transition from an industrial to a postindustrial, knowledge- (Doratli et al., 2004; English Heritage, 2005; Gilderbloom et al., driven economy. (Coal has an illustrious association with the 2009; Ren, 2008; Tiesdell et al., 1996; Wilson, 2004). The North East dating back to ancient times, but became more preservation and restoration of historical space can produce a widespread in the thirteenth and fourteenth centuries. Coal ‘heritage dividend’ (English Heritage, 1999) in cultural and dominated the region’s industry in the seventeenth and eight- economic regeneration. The term ‘heritagisation’ has been eenth centuries and the world’s first railways emerged using coined to refer to the recommodification of such assets. In this horse-drawn wagons to carry coal from the local mines to paper attention is drawn to the historic city of Durham, situated Newcastle, aptly named ‘Newcastle Roads’. ) Indeed, manufac- in the North East of England (see Figure 1), which is considered turing remains a dominant employer of the county’s workforce by a networked ensemble of policy actors to be the ‘jewel in the (see Table 1), but even so, the decline of coal mining during crown’ in terms of economic potential for a county that has much of the twentieth century severely undermined the struggled to find a niche role following the collapse of economic vibrancy of the county. coalmining (Durham County Council, 2009). (Note: The term ‘a networked ensemble of actors’ is here applied to describe the Although the visible scars of the county’s industrial past are fluid coming-together of different individuals and organisations largely gone, the legacy of social and employment problems to champion a shared cause.) remain (County Durham Economic Partnership, 2008; Robinson et al., 2007). In 2005, gross value added (GVA) – the UK A commonly held view by local and regional policy-makers is government’s estimation of gross domestic product (GDP), used that Durham city possesses significant untapped potential as a as a proxy measure of the state of the whole economy – was world class visitor destination, cultural centre and space of 65% of the national average. Such gloomy characteristics have consumption. Such ambition is reflected in Durham’s recently become even more desperate as the impacts of the global launched draft cultural strategy supporting its bid to become UK economic recession are deeply felt in County Durham. For Capital of Culture in 2013 (DCC, 2009c). Perceived through the example, in recent years the county has generally recorded a eyes of a local practitioner, this paper takes a look at how a lower job seekers allowance (JSA) unemployment rate than the networked ensemble of actors in Durham are responding to the North East region as a whole, but with the onset of the current economic recession and planning for the upturn. The paper recession this picture appears to be changing rapidly (Pugalis Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 1 Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:26
  • 2. NORWAY Stavanger ROGALAND AUST-ADGER VEST-AGDER Inverness Aberdeen Holstebro SCOTLAND Dundee RingkØbing A t l a n t i c N o r t h S e a O c e a n RIBE Edinburgh Esbjerg Glasgow Londonderry Newcastle Dumfries Carlisle upon Tyne NORTHERN IRELAND DURHAM Middlesbrough Belfast SLIGO Darlington Monaghan UNITED KINGDOM MAYO CAVAN Dundalk LOWER Preston Leeds Hull Longford Mullingar ENGLAND Groningen SAXONY GALWAY Dublin Liverpool Grimsby Mariohester Leeuwarden THE IRELAND Stoke-on-Trent 100mi NETHERLANDS Nottingham Ennis Great Lelystad Kilkeany Shrewsbury Derby Norwich LIMERICK Yarmouth Amsterdam OVERIJSSEL Tralee Clonmel Wexford Leicester Lowestoft Birmingham The Hague GELDERLAND KERRY Coventry CORK Waterford Hereford Arnhem Rotterdam Dortmund Cork WALES Gloucester Luton Ipswich Swansea Swindon Southend-on-Sea Tilburg Duisburg London Oostende Antwerp Dusseldorf Cardiff Bristol GERMANY 250 mi BELGIUM Southampton Brighton Maastricht Calais Kortrijk Brussels Weymouth Eastbourne Neuwied Bournemouth Lille WALLOON REGIIN Plymouth NORD-PAS-DE-CALAIS LUX Trier English Channel Abbeville PICARDIE Charleville-Mezieres © 2001 Microsoft Corp. All rights reserved. Cherbourg F R A N C E LORRAINE Figure 1. Map of Durham. The map situates Durham in relation to other UK cities, showing those within a 100 and 250 mile radius et al., 2009). County Durham JSA annual increase exceeded the national average. Many communities are locked into a cycle 100% for 7 consecutive months, beginning in February 2009 (at of multigenerational unemployment, deprivation and state 102%) and peaking at May 2009 (at 119?6%) (see Table 2). dependency: 65?8% of residents live in the highest 30% of lower super output areas (LSOAs) ranked nationally on the basis of The economic history of the county has generated a spatially employment deprivation. Problems are particularly acute in the fragmented and isolated geography of small dispersed settle- county’s former coalfield communities (pit villages) and exacer- ments: with a population of around 500 000, County Durham is bated by poor housing stock, worklessness and limited accessi- made up of more than 40 settlements of 3000 or more residents bility to employment opportunities (DCC, 2009b). In this sense, (see Figure 2). The county has around 34% of its population living Durham is still playing ‘catch up’, managing its economic, social in areas classified as town and fringe, which is more than triple and environmental legacy while simultaneously looking forward, Durham (2008) Sectors number % Agriculture and fishing 3600 1?5 Energy and water 4700 2?0 Manufacturing 41 000 17?4 Construction 18 200 7?7 Distribution, hotels and restaurants 39 100 16?5 Transport and communications 15 700 6?7 Banking, finance and insurance 24 900 10?5 Public admin. education and health 74 800 31?6 Other services 13 300 5?6 Total in employment 167 800 71?0 Source: Annual Population Survey, April 2007-March 2008, 95% confidence interval of percent figure (+/2) Table 1. Employment by sector in County Durham 2 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:27
  • 3. County Durham (annual County Durham (% annual Date County Durham (level) increase) increase) Oct 2008 9 148 2903 46?5 Nov 2008 10 198 3916 62?3 Dec 2008 11 549 5099 79?1 Jan 2009 13 093 6154 88?7 Feb 2009 14 445 7295 102?0 Mar 2009 14 781 7703 108?8 Apr 2009 15 204 8110 114?3 May 2009 15 265 8314 119?6 Jun 2009 14 900 7860 111?7 Jul 2009 14 805 7453 101?4 Aug 2009 14 674 6647 82?8 Sep 2009 14 421 5914 69?5 Source: Nomis Table 2. County Durham residents claiming JSA identifying new opportunities that will restructure the economy, potential to play a much stronger and more influential role in generate employment and new wealth across the county. the North of England’s economic renaissance. Nevertheless, the county of Durham is home to a historic city; 3. DURHAM CITY VISION: THE ROLE OF locally and regionally considered to possess untapped potential PLACE QUALITY as a world-class visitor destination, international centre of 1000 years of evolution have created the Durham we see today; education (Durham University is the leading university in the always changing but always the same. It is a city firmly anchored in North of England and is consistently ranked in the world’s top both time and place, and it is eternal 20 research institutes based on the impact of its scientific (Source: Durham City Partnership, 2007: 11) research) and as a regional retail centre and business location. Connected to the East Coast Main Line with a direct route to Internationally renowned and home to the cathedral and castle London and the A1 motorway, Durham city has excellent UNESCO World Heritage Site (see Figure 3), Durham city has the transport links and is also home to one of the country’s leading Chester- Stanley A693 le-Steet A692 Consett CHESTER-LE-STREET Seaham DERWENTSIDE A691 A690 EASINGTON Durham A19 DURHAM Peterlee WEAR VALLEY A167 A68 A1 (M) Spennymoor Bishop Auckland A689 Newton SEDGEFIELD Legend Aycliffe District Boundary A688 TEESDALE County Durham Unitary Council boundary Railway Urban Areas Rural Population Density (No. of people per ha) 0.02-0.31 0.32-0.79 0.80-1.60 1.61-2.96 A67 2.97-5.25 5.26-9.09 9.10-15.56 15.57-26.43 26.44-44.70 44.71-75.44 N NE England Census 2001 Statistics 1:275,000_@A4 Population (Source ONS) Total Rural Population: 212897 Source: 2001 Census, Output Area Boundaries. Crown copyright 2003. Crown copyright material is reproduced with the permission of the Controller of HMSO. Total Urban Population: 280573 Figure 2. County Durham’s dispersed settlement pattern. County Durham’s population density reflective of its dispersed settlement pattern. Source: EDAW (2009) Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 3 Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:33
  • 4. parking, the requirements of modern retailers, changing expectations of visitors, the needs and demands of students, the implications of a growing evening economy and a lack of cultural venues. (Source: Durham City Partnership, 2007: 7) In the late 1990s, an ensemble of public and private sector actors commissioned David Lock Associates to produce ‘A develop- ment framework for the heart of Durham’ (David Lock Associates, 1998). The framework explored the development potential of a range of sites, resulting in the completion of the Gala Theatre, Millennium Place and Clayport library complex which opened in 2002 (Pugalis, 2009a). Even so, opportunities for redevelopment within the city remained limited and the city’s outward expansion curtailed by planning policy and transport infrastructure. A variety of actors perceived retail facilities to be inadequate and there was a low percentage of Figure 3. Durham Castle and Cathedral. Durham Castle and Cathedral UNESCO World Heritage Site from the banks of multiple occupiers, which tend to ‘anchor’ sites and attract the River Wear. additional consumers (Experian, 2006). Leisure facilities were also considered to be underrepresented, particularly bars and clubs to cater for the substantial student population (circa universities, attracting some of the brightest students from the 15 000). Around this time, local and regional actors debated the UK and other countries. The city serves the surrounding rural concept of a networked partnership entity to deliver the vision hinterland, including a county-wide population of almost for Durham. 500 000 inhabitants, and thus has a large net inflow of commuters. Much of its building stock dates back to the ‘Durham city vision: 2020’ is one of the North East’s key medieval period and a high proportion of buildings are ‘listed’ transformational projects (One NorthEast, 2006, 2007); devel- (see, for example, Figure 4). Its overall environment and oped through the Durham City Partnership set up in 2003 (The atmosphere are qualities valued by both visitors to the city and partnership consists of Durham County Council, One NorthEast its residents (Donaldson, 2004). Yet, despite these obvious Regional Development Agency, Durham University, the Dean merits, there has been a perception that the city’s ‘offer’, in terms and Chapter of Durham Cathedral and the business community of housing, leisure, retail and cultural facilities, together with through the North East Chamber of Commerce.) A masterplan the quality of its public spaces is not meeting its full potential. for the city launched in March 2007 (Durham City Partnership, Collectively, these have arguably led to reduced employment 2007). The 2020 vision aims to reinvigorate the county’s opportunities and poor economic performance. economy through place quality enhancements and recasting the city centre. Analysing the city’s ‘place assets’, the masterplan The compact nature of the city centre – surrounded by a green considers how people use spaces and what people value. It puts belt and further constrained by the implementation of a major forward a combination of capital and revenue strategies for road network in the early 1970s – makes expansion difficult (see different themes and functions within the city centre. Figure 5). Subsequently, over recent decades the city centre offer has ‘stagnated’: Masterplans have an extensive lineage but their popularity has As the towns and cities around changed significantly, Durham spread over the last decade or so (Bell, 2005; CABE, 2008; remained the same and the problems of an old, established city Holmes and Beebeejaun, 2007), to a point that they are almost centre confronting the requirements of a city centre in the late de rigueur in contemporary place-shaping practice. Yet, perhaps twentieth century were compounded year on year – access and car because of their universal application, a variety of masterplan styles exist, some of which are summarised in Figure 6. In the case of Durham’s masterplan, even though it is championed by a networked ensemble of public and private actors, it is primarily a public-led guiding document. A notable example of a visionary plan is that produced for Chicago in 1909, inspired by its principal creator Daniel Burnham who proclaimed: ‘Make no little plans. They have no magic to stir men’s blood and probably themselves will not be realized. Make big plans; aim high in hope and work, remembering that a noble, logical diagram once recorded will never die, but long after we are gone will be a living thing, asserting itself with ever-growing insistency. Remember that our sons and grandsons are going to do things that would stagger us. Let your watchword be order and your beacon beauty. Think big’ (cited in Moore, 1921). Will Alsop’s Middlehaven regeneration plans for Middlesbrough and his masterplan for Barnsley are more contemporary examples of Burnham’s ‘think big’ philosophy. In terms of binding plans, a Figure 4. Mixed historic architectural fabric well known example is the implementation of plans to 4 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:35
  • 5. 4 1 2 3 5 Figure 5. Compact city centre. The compact nature of Durham city centre is compounded by ill-defined gateways, fragmentation and severance (E David Locke Associates) regenerate the Gorbals area of Glasgow (Tiesdell and (c) an increase in retail floor-space from 184 000 m2 in 2005 to MacFarlane, 2007). 192 900 m2 (d) 419 new residential units The masterplan is composed of a series of ‘strategies’, including (e) £67m private sector leverage iconic development, modern jewels, illumination and shopping, which are spatialised through the designation of seven city The masterplan puts down on paper the general view that Durham ‘quarters’ (see Figure 7) (Marcuse, 1989). Self-prescribed as ‘a does not need more iconic ‘big projects’, warning that even comprehensive strategy for the city’, the masterplan has been though such projects can be politically ‘seductive’, a failure to developed so ‘that local decisions can be made in a strategic deliver could paralyse the city’s revitalisation ambitions (Durham way’ (Durham City Partnership, 2007: 6). A summary of the City Partnership, 2007). Instead of championing ‘big projects’ the main priorities comprising the 2020 vision is given in Table 3. masterplan is grounded in four development principles Collectively, these projects at an estimated total cost of £200m intend to deliver the following outputs (a) Realisable development ambitions – anchored in market realism with a commitment to world-class design quality (a) 4267 net additional new jobs befitting its historic setting. (b) an increase in office floor-space from 207 000 m2 in 2005 to (b) ‘Jewel’ development opportunities – smaller-scale inter- 300 000 ventions that establish a reputation in the city for Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 5 Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:37
  • 6. Public_ Private Partnership Public-led Private-led Masterplan Visionary Guiding Binding _ Raise expectations _ Set out general design principles _ Set out clear and often _ Generate hope, hype and prescriptive painciples (e.g. design optimism _ Loosely coordinate individual codes) developments _ May have formal legal and _ Reference document to generate planning status development momentum _ Supplementary planning _ Used to secure development document agreements _ Used in design negotiations and _ Unlikely that development will _ Often accompanied by delivery partner buy-in closely resemble masterplan spatial plans and funding agreements vision _ developments guided by spatial _ Forge the early development of _ Development closely attune with vision partnerships and collaboration masterplan proposals Figure 6. Masterplan styles. Depending on the development context and partner relations will dictate which style of masterplanning is most appropriate. Source: author well-crafted but small-scale new buildings that are sympa- the global economic recession and plans for the upturn (Pugalis, thetic to their setting and yet set themselves apart through 2009b). Unlike the rest of the county, Durham city has one of the uniqueness of form and use. highest concentrations of financial and business services in the (c) Reinforce the cultural role of the market place – re-establish North East, which is being adversely affected by the credit crisis it as the heart of the city of the everyday user and social life (DCC, 2009a). However, so far, the economic blow to the of Durham. financial and service sectors has been cushioned by the boost in (d) Improve the management and marketing of ‘assets’ – engage tourism courtesy of ‘staycations’, as people choose to visit more local people and businesses; opening up fresh opportunities local destinations, and those employed by public institutions for collaboration, creativity and enterprise. (which accounts for about one-third of the local workforce). (Note: Tourism currently contributes around £1?6m to the Guided by these four development principles, place quality county economy per day; sustaining 12 000 jobs. While this is improvements (to date) have been sensitively administered to less than other ‘heritage cities’, such as York and Lincoln, there stitch together the historic city fabric with a contemporary remains significant potential for growth in Durham city and its urban aesthetic. The implementation of key strategies has helped surrounding satellite attractions.) Yet, with public sector the city capitalise on existing assets, while some other key spending anticipated to retrench over the next few years, it projects are entering the latter stages of the development would be premature to talk of an economic upturn materialising process. For a summary of the current position of key projects in 2010. see Table 4. Where possible, delivering the masterplan has been aligned with other capital projects, including accessibility and The masterplan 2020 vision for the historic city of Durham transport improvements. ‘reflects a premise that Durham has not yet reached its true potential and the Vision is therefore a guide for the future’ 4. RESPONDING TO THE RECESSION AND (Durham City Partnership, 2007: 6). In terms of preservation and REFLECTIONS ON PRACTICE restoration, there exists an uneasy relationship between Not too dissimilar to other cities in Britain and internationally, economic and cultural values. While often overlaying and the city of Durham is facing sizeable challenges as it responds to intersecting one another, these values can sometimes clash 6 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:42
  • 7. FRAMWELLGATE CLAYPATH VIADUCT CENTRAL CROSSGATE PENINSULA ELVET Figure 7. Durham city centre quarters. Each ‘quarter’ is spatially distinct; composed of unique social, cultural and environmental features (E David Locke Associates) head-on to the extent that promoting economic values can economic landscape when the masterplan was published in rebuff cultural values and vice versa. While setting a broad March 2007. Keeping space open, the networked ensemble of strategic direction, space is left open for changing political actors involved in Durham’s place quality-led economic imperatives, community aspirations and different economic resurgence have recognised the clash of values between historic climates. The latter has been particularly important, as the post- built-environment preservation and the capitalist production of credit crunch development climate is markedly different to the space. Project name Description The heart of the city: market place and Physical streetscape improvements, including lighting and signage, and ‘soft’ marketing, vennels events and business development initiatives. It seeks to enable the market place to become the most important commercial asset in the city, setting the tone for the whole city centre. Physical interventions and change in the highways layout intend to reconfigure and reprioritise space for pedestrians and enable its use as a marketplace, an events space and a meeting place (see Figure 8). Capitalising on existing assets Make the most of icons and assets it already has, including the castle, the cathedral, and to a lesser extent, the university, the Gala Theatre/Millennium Place, and the integrity of the historic city core. Redevelopment of the former ice rink site, Mixed-use development opportunity, unique to the city centre. Potential for a Freemans Place contemporary urban infill scheme. World Heritage Visitor Centre, Owengate Providing a focus for the World Heritage site, with the aim of attracting more visitors and increasing local spend. Necklace Park An innovative proposal intended to draw together a series of existing spaces and places along the 12 mile chain of the River Wear, stretching from Finchale Priory to Sunderland Bridge. Durham Riverbanks Gardens Linked to the World Heritage site and Necklace Park, a restoration project to provide a garden attraction and enhancement of overall visitor experience Light and dark and signage strategies Ambitious strategies intended to put the city centre at the forefront of urban lighting and signage in the UK and Europe. A strong emphasis on place quality runs through each of the projects contributing to the 2020 vision priorities. Source: author Table 3. 2020 vision priorities Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 7 Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:44
  • 8. k Leaze lin way s road e a ge r L rid e walk tb r Proposed 'living bridge' development Ri foo e Prop silver versid ve bl Ca resid d Ba devential ose ck sed ri Indoor e lopm market ir Town hall We Propo Proposed access to str ent indoor market ee t s llerie d rs yar Market work ts ga place Fowlep sho and and craf Proposed art galleryand Art and cafe Outdoor art exhibition space et tre rs ve Sil Framwe ll gate b ridge Figure 8. Market place proposals. Detailed redesign proposals to augment the market place’s role as the heart of the city (E David Locke Associates) The charm and spatial uniqueness of Durham owes a lot to its tendencies, where a preoccupation with the past ignores the built-heritage, urban morphology and medieval street network. potential of the present (see, for example, Gallacher, 2005). No It is therefore imperative that a clash of values – by way of ‘right’ decision can be made about what gets preserved and why, public debate and community participation – is actively which supports the need for deliberative democracy, whereby encouraged. The author suggests that such deliberative democ- such practice may prevent the politico-economic imperatives of racy can put in place the necessary safety-valve to prevent the a few, subverting the rights of the many. It is possible for a space chrematistic pursuit of short-term profit over longer-term socio- to testify to the past and simultaneously project images of the environmental value. Indeed, if Durham’s place assets are future. perceived to provide ‘competitive advantage’, then insensitive development strategies would be akin to killing the golden An early recognition that Durham city does not require a goose. In some of Durham’s urban ‘quarters’, there is a danger proliferation of ‘big projects’ is perhaps a development that historical elements are being selectively recycled which philosophy that other city governance ensembles may want to could amount to the production of an internationally standar- consider, especially as planning for the upturn in likely to take dised abstract transnational space (Ren, 2008), devoid of local place in a climate of austerity. Not wishing to portray the spatial character. Conversely, other researchers warn of the ongoing renaissance of Durham as a resounding ‘success story’, dangers posed by an overemphasis on nostalgic preservation it does offer practitioners and academics an interesting case of Project title Status The heart of the city: market place and vennels Ongoing Capitalising on existing assets Elements complete, overall work ongoing Redevelopment of the former ice rink site, Freemans Place Site acquired and design brief completed World Heritage Visitor Centre, Owengate Advice to the parties Necklace Park Ongoing Durham Riverbanks Gardens Ongoing Light and dark and signage strategies Completed Projects continue to progress ‘on the ground’. Source: author Table 4. Development status of key projects 8 Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:10:49
  • 9. how to approach the regeneration of a historic space through East’s Historic Environment. English Heritage North East prioritised place quality enhancements. The revitalisation of Region, Newcastle. collective spatio-historic assets, such as the city of Durham, is Experian (2006) Baseline Information for Major Centres Study: an incremental process. Consequently, a multilayered approach Durham City. Durham, County Durham Economic to place-shaping may prove more fruitful – politically, Partnership. culturally, economically and environmentally – than big Gallacher P (2005) Everyday Spaces The Potential of projects predisposed to deliver quick wins. Neighbourhood Space. Thomas Telford, London. Gilderbloom JI, Hanka MJ and Ambrosius JD (2009) Historic ACKNOWLEDGEMENTS preservation’s impact on job creation, property values, and The author would like to acknowledge the receipt of Economic environmental sustainability. 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Your contribution will be forwarded to the author(s) for a reply and, if considered appropriate by the editorial panel, will be published as discussion in a future issue of the journal. Proceedings journals rely entirely on contributions sent in by civil engineering professionals, academics and students. Papers should be 2000–5000 words long (briefing papers should be 1000–2000 words long), with adequate illustrations and references. You can submit your paper online via www.icevirtuallibrary.com/content/journals, where you will also find detailed author guidelines. Municipal Engineer 000 Issue ME000 The (incremental) renaissance of the historic city of Durham Pugalis 9 Proceedings of the Institution of Civil Engineers tme900048.3d 6/8/10 17:12:13