Integrated Urban Development in European Metropolitan Areas | Iván Tosics

1. Integrated urban development in European metropolitan areasIván TosicsMetropolitan Research Institute, Budapest Which perspective for European Metropolises? Cross-analysis around Ile-de-France Brussels 22 September 2011

2. Structure of the presentation • The complexity of challenges in the future development of European cities • Integrated governance across territories, levels and functions: different examples of good practice • How does east-central European metropolitan regions perform? • Conclusions for the Paris/Ile-de-France region: a view of an outsider

3. Challenges for future development • collapse of the normal functioning of the climate • growing problems with fossil fuels • unmanageable problems of the ageing societies and of the potential migrant flows, • sharp conflicts due to growing inequalities between social and ethnic strata and/or different areas.

4. THE european demographic challenge The current size of the population of Europe is about 500 million. It is predicted to grow till 2025-2030, reaching 520 million. From appr. 2010 the death rate exceeds the birth rate thus the population surplus comes from third country migration. Share of EU-27 within world population: 13.3% (1960); 7.5% (2005); 5.4% (2050). Source: United Nations 2008

6. The present problems of development policies in European urban areas • The potential answers to address these problems one-by-onecreate conflicting interactions: the easiest answer on any of the problems usually makes things worse regarding the others. • The outdated territorial administrative systems also prevail to tackle the complex challenges • As a result, usual policies within the existing structures lead to serious externalities, unwanted negative consequences

7. Externalities of one-by-one sectoral interventions • Costly investments into CCS technologies or over-ambitious environmental aims might crowding out financial means for economic development and social inclusion. • Zero-carbon new construction is many times more expensive than energy-saving through renewal of existing buildings. • Concentration on affordable policies might lead to richer people leaving the cities. Improving living conditions within ghettoes or building new social housing leads in many cases to the final exclusion of the poor groups from the mainstream society.

8. Conflicting interactions between sectoral policies Technical solutions against climate change are costly and threaten to financially crowd out the interventions towards social cohesion, territorial balance, solidarity.

9. Strong protection of un-built areas might lead to over-densification of already dense urban areas

10. Isolated interventions into the social structure lead to decrease of economic opportunities

11. Externalities of development in outdated territorial structures • The present government and territorial system of municipalities is unfit for the needed integrated policies • Europe has 21st century economy, 20th century governments, 19th century territorial systems. The latter have to be changed, innovative developments have to happen in the functional urban areas.

13. „America’s metropolitan areas can no longer afford the crazy quilt of tiny, fragmented governments that they have inherited from the 19th century. … The result is a fundamental mismatch between the real metro-scaled economy of innovative firms, risk-taking entrepreneurs and talented workers and the inefficient administrative geopgraphy of government.” Katz, 2010

14. The area of Ferihegy Airport

15. TOWARDS BETTER INTEGRATED URBAN DEVELOPMENT POLICIES • Economic, environmental and social challenges have to be addressed at once • For policy interventions an adequate territorial level has to be found • Integrated development is needed in functional urban areas (metropolitan areas in the case of the largest urban concentrations)

16. Different approaches to increase the significance of territorial cooperation • Committee of the Regions: more power to the administrative regions! • Metrex: more power to the functional urban regions! • Creative governance: instead of unified definition to city regions with fixed boundaries, flexible arrangements (with guarantees for longer term commitment) create better ground for creativity, innovation.

17. Metropolitan coordination models Salet-Thornley-Kreukels (2003) Metropolitan Governance and SpatialPlanning: • “Metropolitan coordination is a multi-actor and multilevel game with manifold conflicting and cooperating powers….” • The key is not in formal reorganisation of the administrative structure but “… in new methods of ‘organising connectivity’.” • “Metropolitan policies are made in private sector domains, … in European programmes, in national policies and in manifold initiatives within the metropolitan setting. The main challenge to metropolitan policies is to find the keys to unlock the connections between different spheres of action.”

18. Different models of formal relationships between local and regional governments • unitary government metropolitan regions • no problems of internal coordination and all metropolitan wide services might be organized efficiently; • however democratic quality is low, work of government is based on technocratic factors • Communidad Madrid: strong regional government of 5 million people, involving Madrid local government with 2.6 million and other 26 settlements all which have restricted power; Greater Berlin: Joint Spatial Development Departments despite the fact that unification of Berlin and Brandenburg was voted down by BB • duality of local and regional level government with a regional hierarchy • the regions are usually not capable of successfully achieving their own strategic planning perspectives • but are powerful enough to prevent the success of bottom-up strategies, • the outcome of the power-game can be very different (Catalonia-Barcelona, Lombardia-Milan, Bavaria-Munich)

19. duality of local and regional government with a ‘mediating’ regional government • strong power is on the local level • the region develops strategic spatial planning perspectives, stimulates large projects and organizes communication between all actors • the success of the region depends on the national backing (France: national-regional 5 year contracts, Baden-Württemberg and Stuttgart, Sweden, Netherlands) • ad-hoc coordination of metropolitan policies along functional relationships or symbolic projects • no integration with other policy sectors • distanced technocratic government without direct political control (Germany: functional organization of metropolitan-wide public transport, Britain; IBA Ruhr-area, Olympics Barcelona)

20. Key factors for successful metropolitan areas • The task is to combine • top-down hierarchical framework (redistribution) organized by higher tiers of government and • bottom-up cooperative incentives (win-win) for development: Stuttgart, Marseilles, Copenhagen/Malmö. • Formal reorganisation of government is not the only factor for success but it might be important. “Reform of government structures should not attempt to keep pace with the social and spatial dynamics of metropolitan development, but durable institutions of government should adopt flexible policies of coordination. “

21. JACQUIER: Multilevel : yesterday, today and may be tomorrow A building process : the role of urban and regional policies 21

22. The performance of east-central European metropolitan areas • In the EU-15 there are different examples of metropolitan governance with many interesting, innovative solutions • The east-central European countries and metropoles are clearly lagging behind in the development of public-led integrated governance systems

30. ESPON meeting – 15 December 2010 Regional level: Voivodeship Spatial Development Plan, 2004 (1) • EXISTING STATUS – the reference to Silesian Agglomeration („Silesia” Metropolis): • Silesian Agglomeration (14 cities - boroughs) showing the tendency of: polycentric development and the migration of the population beyond the Agglomeration’s area (the development of the neighboring areas); • Katowice is the biggest city of Agglomeration and the administrative capital of the Voivodeship; Its periodical evaluation form2006

31. ESPON meeting – 15 December 2010 Introduction – „Silesia” Metropolis 35 km http://pl.wikipedia.org/wiki/Katowice 60 km

32. ESPON meeting – 15 December 2010 Regionallevel: Voivodeship Spatial Development Plan, 2004 (2) • VISION - elements of the of the spatial structure: • 4 metropolitan areas with the centers in particular agglomerations (Silesian, Częstochowska, Rybnicka, Bielska Agglomerations) = they make Consolidated SileisainMetroplitan Area (being a part of Silesian and Cracow Europolis); • Multifunctional zones (of agricultural and residential, recreational and forest, agricultural and truism type, etc.) with local centers – evenly distributed in the entire Consolidated Silesian Metropolitan Areas; • Development bands (transport and settlement corridors) – connected functionally with metropolitan areas and economically stimulated by location the development t and environmental friendly functions; Consolidated Silesian Metropolitan Area Northern Metropolitan Area Central Metropolitan Area Western Metropolitan Area Southern Metropolitan Area

33. ESPON meeting – 15 December 2010 Regionallevel: Voivodeship Spatial Development Plan, 2004 (3) • THE SPLANNED PATIAL STRUCTURE - reference to Silesian Agglomeration („Silesia” Metropolis): • Silesian Agglomeration (consisting of 24 cities) is a center of the main metropolitan area of the European significance (along with Agglomerations of: Rybnik, Częstochowa, Bielsko-Biała - which are the centers of remaining of supportive metropolitan areas) • Cities of the Agglomeration make one integrated area in terms of transport, economic and technical connections, which as a whole needs concentrated revitalization and restructuring actions. The concept of the spatial structure The border of the Consolidated Silesian Metropolitan Area The border of the Metropolitan Area Agglomerations Agglomeration of the European status (an element of Europolis) European center National center Supra local center Local center Centers supporting the agglomeration’s development European and national development bands Mulifunctinal zones

34. ESPON meeting – 15 December 2010 National level: Poland’s spatial development (1) National Spatial Arrangement Policy, 2001 - currently obligatory planning document - prepared in the other legal system (invalid today) and Poland wasn’t a member of EU. • Project of National Spatial Arrangement Policy 2030 – in the preparatory phase: • It is a main government strategic document defying the guidelines of the national spatial policy for 30 years; • It combines components of spatial planning and socio-economic development aspects; • It presents a spatial development vision based on the functional network of national growth centers, which create a polycentric network metropolis (comprising of the biggest cities and other sub-regional and peripheral centers related to them) - open to the influence of the European metropolitan centers (it is a new approach to the spatial development vision of Poland than in the document from 2001)

35. Informal, flexible methods of governance:further examples Eindhoven knowledge region • One of the voluntary regional associations allowed by the Dutch law. These regions have statutory policy competences, such as economic development, transport and environment (and previously also spatial planning). • Eindhoven city-region: 21 municipalities decided voluntarily also to create a joint fund to strengthen the economic structure of the area. Brainport Foundation, leading also to cross-border strategic cooperation with knowledge-based industries in Belgium, Germany and France.

36. Strategic spatial planning as major governance toolThe Romanian Growth Pole method REGIONAL OPERATIONAL PROGRAMME OF ROMANIA 2007-2013 “Support to sustainable development of urban growth poles” Allocated funds: 1.4 bill. Euro (30% in ROP financial allocation) Objective: to increase the quality of life and to create new jobs in cities Key area of intervention:Integrated Urban Development Plans implemented through projects addressing the following issues: • Rehabilitation of the urban infrastructure and improvement of urban services, including urban transport; • Development of sustainable business environment; • Rehabilitation of social infrastructure, including social housing and improvement of social services.

37. “Support to sustainable development of urban growth poles” • Three types of urban growth poles identified: • Growth poles - 7 large urban centers and their hinterland, designated by the Government: Iasi, Constanţa, Ploieşti, Craiova, Timişoara, Cluj-Napoca, Braşov; • Urban development poles– 13 cities, designated by Government Decision: Suceava, Bacău, Brăila, Galaţi, Piteşti, Râmnicu Vâlcea, Arad, Deva, Satu Mare, Baia Mare, Oradea, Sibiu and Târgu Mureş; • Urban centers - towns over 10.000 inhabitants, other than growth poles and urban development poles.

39. Support to sustainable development of urban growth poles • Association for Intercommunity Development (AID)has to be created for each growth pole; it comprises the city identified as urban core of growth poles and territorial administrative units in their hinterlands (towns, communes). County Councils may also be members of this Association • The role of the AID: • Establishes the geographical area of the growth pole; • Ensure the setting up of the technical team(s) of experts at the level of each growth pole, having the task to elaborate, monitore and implement the Integrated Urban Development Plan; • Set up the decision-making mechanismsfor each growth pole; • Agree the Integrated Development Plans, including an action plan containing a list of projects set up by AIDs

40. Finanţarea polilor de creştere Identificare Aria de influenţă urbană SOCIAL INFRASTRUCTURĂ Elaborare Plan integrat STRUCTURI DE AFACERI Elaborare Proiecte Individuale

41. Polul de creştere Timişoara - componenţa

42. Strategic spatial planning:further examples SCOT in Montpellier • Plan of the urban community, subordinating all the development activities of 31 settlements to the forward looking strategic plan, taking all aspects of integrated development (especially public transport) into account. The Hague Region: integrated planning • Regional Structure Plan of The Hague Region, aiming for open, green, accessible and high quality peri-urban spaces in the whole of the daily urban system area around the city. • The Plan stimulates for a joint steering of area development and for a joint policy implementation. Specific platforms are established as alliances between government bodies, community based organizations, private partners.

43. Socially creative strategies Hungarian Integrated Urban Development Plans Hungarian ROP 2007-2013 – the IUDS is compulsory requirement for all larger cities • Based on long-term goals (for 15-20 years, with outlook for the city-region) • The IUDS is a medium term (7-8 years) strategic document for the city, with sectoral and territorial aims, oriented to implementation • Necessary to revise every 3-5 years • To be discussed and approved by a resolution of the municipal assembly to ensure legitimacy • An anti-segregation plan has to be prepared and counter-signed by an independent social mentor

44. Anti-segregation plan (horizontal) Status assessment (included in the IUDS): Delimitation of segregated areas and areas threatened by deterioration and segregation (indicators) Status assessment of the delimited areas Assessment of the segregational impacts of envisaged developments and individual sectoral policies Anti-segregation programmes (interventions) Defines a vision for the degraded area whether it will be eliminated or will be integrated into the urban fabric by way of rehabilitation, determines the main directions of interventions Objectives: decreasing the degree of segregation and avoid increase of it somewhere else as a result of intervention Complex system of tools: housing, education, social care, health care (soft programmes) Mobilisation programme: elaboration of guidelines

45. Socially creative strategies:further examples Berlin: neighbourhood programme (Soziale Stadt) • first 10, later 34 areas of interventions were selected. In these districts with special development needs 390 th inhabitants were living who got decisive role in the spending of the dedicated financial means. • new experiment: how to modernize the Soziale Stadt approach, how to apply the lessons learnt in the deprived areas to the case of the whole of the city? The target-group specific scope is extended to include territorial reference with a focus on the social situation. This should lead to the expansion of the neighborhood approach, beyond the most deprived areas.

46. Summary of innovative solutions in CEE • The Katowice attempt: toaimforadditional, ‘weak’ levelforwin-wineconomiccooperation • The RomanianGrowthPolemethod: todelimitmetropolitanareainwhichintegratedplanning is required • The HungarianIntegrated Urban DevelopmentPlans: toincludesocialaspectintointegratedplanning Thesemethodswouldnotexistwithoutthepush of EU planning and StructuralFunds

47. The Paris/Ile-de-France metropolitan area – a view from outside • Large and growing urban area which is since long in the focus of public planning efforts. It has a well developed development strategy which balances between polycentric development with strong urban poles and compact development based on the urban core of the agglomeration. • Governance background for intra-metropolitan polycentricity is well established: • the Paris-IdF metropolitan area represents relatively well the functional metropolitan area; • it possesses a Regional Master Plan which is a long-term strategic framework for coordinating public policies and private actors and has a strong role regulating local master plans; • a Regional Council exists, in association with the national state, which must be considered for municipal planning at the local level.

48. Problems of the area There are, of course, some serious problems • the level of top-down public control was extremely high, it took long time for the region (in fight with the departements and Paris) to be able to articulate common interests and to get it heard by the central authorities; to get the private actors involved seems to be even more difficult • the MUA - FUA data show extreme values, illustratingthe irrationality of the delimitation of Paris. Thus the ‚Grand Paris’and the ‚Paris Bassin’debates are relevant and important – but no single, even a brilliant solution would solve the ‘natural’ problems of metropolitan development.

49. Thinking about the future Paris/Ile-de-France area is one of Europe’s most developed region and has huge potentials The aim might naturally be for further economic development, attracting talents, to become a real world city What are the dangers for economic development based growth ambitions in the present and future European reality? • Dangers of one-sided economic development: growing inequalities (Paris and London riot examples) • Negative externalities of successful agglomerational development of the economy. (Crush hour on railways gets worse – London). • Migration to the wealthiest parts of Europe from the less well performing areas of Europe

50. How regions are affected?Source: The ESPON 2013 Programme DEMIFER (Demographic and migratory flows affecting European regions and cities) Reference scenarios, 2010:28) STQ Scenario: Status quo scenario: the demographic trends remain the same as currentlyThe map below displays an East-West gap in demographic terms