Critical perspectives on network governance in urban regeneration, community involvement and integration

Significant claims have been made about the benefits of network governance and management in securing community involvement and assisting social integration in complex urban regeneration programmes. The move from vertical to horizontal forms of coordination, and the assumption of a more equal power distribution between participants, have combined with an emphasis on mutuality and trust to present networks as a promising mechanism for pluriform involvement and collective decision-making. Often this promise runs ahead of the evidence of how network governance functions in practice, the opportunities for different actors to influence the process and the often disappointing outcomes of joint decision-making. This special issue contributes to the ‘second generation of research on governance networks’ by tackling key questions relating to the sources of governance network failure and success. Building on the articles in this special issue, we explore these questions in relation to urban regeneration, community involvement and the integration of minority groups in The Netherlands, Sweden and England. This article reviews the articles in this special issue from the perspective of Klijn and Skelcher’s (2007) four conjectures on democracy and governance networks and Sørensen and Torfing’s (2007) four conditions for democratic anchorage. It also suggests ways in which the research agenda on networks in urban regeneration, community involvement and integration might be developed.     

Neighborhood network governance, ethnic organization, and the prospects for political integration

How may ethnic organizations work as mechanisms for political integration in suburban multicultural contexts with participative and network modes of governance? The overall argument of the paper is that a shift from vertical to more horizontal modes of governance affects the prospects for ethnic associations to fulfil different democratic functions. It does so in a complex, multidimensional and somewhat contradictory way. Although network modes of governance are often argued for in terms of openness and inclusion, it should not be taken for granted that such governance structures do promote democratic functions of ethnic associations. Drawing on an in-depth case study of ethnic associations and network politics in Botkyrka, Sweden, the purpose of the article is to provide theoretically informed arguments on how the political integration potential of ethnic organization is affected when they participate in local network-like arrangements and institutions. In brief, the article outlines three arguments: (1) There are different mechanisms of ethnic organization that might contribute to a more politically integrated society. (2) More horizontal network modes of governance generate new conditions for these integrative mechanisms to emerge out of ethnic organization. (3) In such a context of network governance, the different integrative mechanisms of ethnic organizations are not always supplementary, but sometimes contradictory, causing genuine dilemmas to be dealt with by local actors.     

An urban social movement challenging urban regeneration: The case of Sulukule, Istanbul

Urban regeneration projects have become a focus of attention in Istanbul due to tourism promotion, particularly great expectations from the European Capital of Culture 2010 Event. Sulukule, a Romani neighborhood on the historical peninsula of Istanbul, was designated as an urban redevelopment zone. The Sulukule Urban Regeneration Project is one of the recent efforts to present “a better urban environment” to foreign visitors and investors. The project has accelerated the struggle for land, causing dispossessions, evictions and demolitions. Locals’ needs and rights are denied. Consequently, the citizens in Sulukule started to oppose regeneration and formed an urban social movement. This paper attempts to analyze the urban social movement in Sulukule, the Sulukule Platform, which emerged as an urban coalition challenging tourism-led regeneration.     

Globalization and urban governance in Istanbul

Since the 1980s, the topic of governance has been extensively investigated in parallel with the effects of globalization on policy issues. Meanwhile, there has been an increasing fragmentation of responsibilities in the urban arena. Now, the main focus is on new institutional relations and the policy process in which different constituents and agencies participate at both the national and the local level. As a result of the rescaling process of the state, networked forms of governance constitute a new form of politics. The changing governance structure in Istanbul, as in many other cities, is shaped by the interaction of economic and institutional factors, which are mediated through political, cultural and other contextual forces. To demonstrate that global forces influence urban management systems, this article describes the increasing participation of the private sector in urban development in Istanbul. An evaluation of urban governance is made to ascertain whether the concept of governance can explain the urban management model prevailing in Istanbul.     

Chinese strategies of experimental governance. The underlying forces influencing urban restructuring in the Pearl River Delta

Pragmatic Chinese ideological slogans like “groping for stones crossing the river”, “no matter if it’s a black cat or a white cat, as long as it catches mice it’s a good cat” became guiding principles for a multitude of experimental approaches to new developments in the realms of Chinese economic, political, socio-cultural, and physical urban transformation since the beginning of reform and opening up in the late 1970s. Today, these concepts find their daily expression in so-called conceded informality. This paper illuminates the characteristics of nowadays typical, Chinese decision- and policy-making processes in the field of urban restructuring, with a focus on the informal and experimental aspects of flexible conceptual frameworks.     

Thirty years of urban regeneration in Britain,Germany and France: The importance of context and path dependency

It is a little over 30 years since Jim Callaghan's Labour Government passed the 1978 Inner Urban Areas Act. The following year marked a shift in power to Margaret Thatcher's Conservative Government and a very different approach to urban regeneration. These developments established and shaped the approach to urban regeneration in England for a generation. The economic context and the urban changes of the 1970s and 1980s and the nature of these responses put England at the forefront of the evolution of this type of urban policy in Europe. It is therefore timely to reflect on 30 years of urban regeneration and to do so from a comparative perspective, setting the English experience alongside that of Germany and France. In this paper the authors compare the experiences of these three countries. The great benefit of international comparison is that it allows the observer to step outside their own institutions and context, to compare with other countries and to look back at their own country from a new, foreign, perspective. The emphasis of this paper is on the contingent and contextualised nature of actions designed to foster urban regeneration. This reinforces the rationale for studying the evolution of this policy field in different nation-state settings.     

Partnerships and networks: The governance of urban regeneration in Britain

Urban regeneration in Britain has often been described as being ‘market-led’. However, such a characterisation does justice neither to the complexity of urban policy over the past 25 years, nor to the changes that have taken place in the same period. Nevertheless, since the beginning of the 1980s partnership with the private sector – however the concept has been understood – has been a vital ingredient of the regeneration process. What is striking is the way that the will to involve the private sector has had a profound impact on local governance. This paper outlines the evolution of urban regeneration in the context of evolving urban policy since 1979. It traces the approach adopted by the Conservative government in the 1980s, specifically through the use of Urban Development Corporations; it examines the change of heart in the early 1990s that preceded the coming into power of a Labour administration; and it looks at the experience of urban regeneration under the leadership of Tony Blair. It explores the changing role of key actors within the process, and the way in which urban local government has responded to the evolution of national policy. The case of Sheffield is used to illustrate the general theme of changing national policy.     

Deadlocks and breakthroughs in urban renewal: a network analysis in Amsterdam

Urban renewal in the Netherlands has become a matter of ‘networking’. Housing associations, Dutch social landlords, became financially independent in the 1990s and have a responsibility in urban renewal. It is a joint responsibility in which local authority, social landlord and tenants are dependent on each other. This situation is rather new and needs some getting used to, as the two case studies show. The paper concludes that taking account of the complexity of networks could improve the chances of gaining support for problem definitions and solutions. This would result in agreement about goals and win–win package deals for actors, and ultimately in ‘more’ progress in urban renewal.

Local experiences of urban sustainability: Researching Housing Market Renewal interventions in three English neighbourhoods

Ideas and thinking about sustainability and sustainable development have permeated over the last decades into most disciplines and sectors. The area of urban studies is no exception and has generated an impressive body of literature, which aims to marry ‘sustainability’ and ‘urban development’ by grounding the many interpretations of sustainability in an urban setting. This has taken many forms and inspired a range of initiatives across the world including ‘healthy cities’, ‘urban villages’, ‘millennium communities’ and the ‘mixed communities’ movement. Moreover, urban regeneration has come under considerable scrutiny as one of the core mechanisms for delivering sustainable urban development. At the most basic level, it can be argued that all urban regeneration contributes to a certain extent to sustainable development through the recycling of derelict land and buildings, reducing demand for peripheral development and facilitating the development of more compact cities. Yet, whether urban regeneration bears an effect on urban sustainability is an underresearched area. In addition, little is known about these impacts at local level. This paper aims to extend our understanding in these areas of research. We do so, by taking a closer look at three neighbourhoods in Salford, Newcastle and Merseyside. These neighbourhoods underwent urban regeneration under the Housing Marker Renewal Programme (2003–2011), which aimed to ‘create sustainable urban areas and communities’ in the Midlands and North of England. Approximately 130 residents from the three areas were interviewed and a further 60 regeneration officials and local stakeholders consulted. The paper looks at the impact of urban regeneration on urban sustainability by examining whether interventions under the Housing Market Renewal Programme have helped urban areas and communities to become more sustainable. It also discusses impacts at local level, by probing into some of Housing Market Renewal's grounded ‘sustainability stories’ and looking at how change is perceived by local residents. Furthermore, it re-opens a window into the Housing Market Renewal Programme and documents the three neighbourhoods within the wider context of scale and intervention across the whole programme.     

Regeneration of Dutch post-war urban districts: the role of housing associations

In the Netherlands the regeneration of post-war urban districts is closely intertwined with the role of housing associations. This is hardly surprising, given that the housing associations have such a large share of the market (usually over 50%; sometimes nearly 100%) in many early post-war urban districts. This has caused a growing concentration of low-income households in those urban areas and a selective migration by middle- and high-income households from the city to the suburb. Official government policy on housing and urban renewal is directed at a redifferentiation of the urban housing stock. Specifically, the policy promotes more owner-occupation, larger and higher-quality homes, and a greater percentage of homes with a garden. This implies the demolition of social housing estates and selling social housing. The position of housing associations in the regeneration of Dutch post-war urban districts is somewhat enigmatic. On the one hand, national government is expecting them to take initiative and invest in urban renewal; on the other, government is urging them to cut down their market share. How are housing associations coping with this paradoxical challenge? And what are the current national policies about the position of housing associations? Aedes (the umbrella organisation of Dutch housing associations) and the Dutch Ministry of Housing have agreed upon the so-called great transition of housing associations. Here we explain and critique this great transition, which will hamper the current regeneration of Dutch urban districts. As an alternative we present the new transition.     

Critical success factors for urban regeneration projects in Korea

Urban regeneration projects aim to foster the well-being of a city by bringing lasting improvements in the social, economic, physical, and environmental aspects of an urban area. Urban regeneration projects have a higher possibility of uncertainty and complexity than other construction projects. Therefore, the purpose of this research is to identify the critical success factors (CSFs) of such projects and to prioritize CSFs in each project phase so that project promoters and managers can appropriately focus their efforts. We identified and confirmed 10 CSFs through a brainstorming process and 29 expert surveys. The priority of CSFs in each phase of an urban regeneration project can be determined using the suggested model, which takes into account degrees of both importance and satisfaction of each CSF. The priorities were assessed based on 122 expert surveys and the proposed model, and the implications of the results are discussed.     

The role,organisation and contribution of community enterprise to urban regeneration policy in the UK

This monograph investigates the organisation, constitution and delivery of community-based organisations which are normally called community enterprises in the UK. These are organisations which emerge from local communities at the neighbourhood level, work in partnership with the public and private sectors, and provide a range of services to meet social, economic and environmental needs. The main focus of the paper is to explore how these organisations contribute to local regeneration strategies, generate social capital and contribute towards the promotion of civil society in general. The main emphasis is on organisations in England and Wales but comparisons are made with the USA and other countries where relevant literature is available. The key questions to be answered relate to the organisation and management of these bodies; the extent to which they engage with and contribute to local regeneration strategies; and the impact they have particularly in acquiring and managing assets. The diversity of the sector, and the range, scale and level of benefits it can deliver is illustrated through five detailed case studies of community enterprises established at different times, in different geographical locations and with different objectives and funding regimes. But, whilst the UK political economy is moving towards less state intervention and more community self-help, the community development corporations in the USA provide an indication of the future direction community enterprises might take in the UK as part of a broad trend towards civic capacity building.     

The local governance of culture-led regeneration projects: a comparison between Montreal and Toronto

This article analyses culture-led regeneration processes in the context of two case studies. We analyse the roles of urban stakeholders and the adaptation of regeneration strategies in two different local planning cultures: Toronto and Montreal. The two regeneration projects analysed are the redevelopment of the Toronto Entertainment District and a real-estate project proposal within the ‘Quartier des Spectacles’ in Montreal. The analysis highlights the specific planning culture embedded in local governance, aligned with two distinct applications of the creative city concept.     

The rhetoric of community participation in urban South African water governance

The persistence of the water insecurity challenge has manifested in weak government financial systems, insufficient technical capacity, and ineffective water governance systems in the global arena. This paper is a contextual analysis of community participation in water governance in urban South Africa since 1994. Limited community participation in urban water governance results in persistent inequality in access to water and sanitation services. New strategies and effective mechanisms are needed to include communities in water governance and pricing.     

Location choice of Chinese urban fringe residents on employment,housing, and urban services: A case study of Nanjing

Urban fringe area is the most important space for city development. It includes several complicated elements, such as population, space, and management organization. On the basis of local population attributes in the city fringe area combined with people’s movement characteristics in time and space, this article reclassifies basic public service facilities and discusses the relationship between facility layout and housing, employment, and commuter transportation. Through a questionnaire survey in Qiaobei District of the urban fringe area in Nanjing and on the basis of comparative analysis, we discuss the impact factor on the choice of housing, urban services, and the tolerance of commuting time. Our findings indicate mutual promoting and restricting connections among living, employment, and services. Workers’ living situation determines their daily behavior, such as dining, shopping, and entertainment. Furthermore, different income levels have a great influence on residents’ choices with regard to places to live and develop their careers     

Urban design, regeneration and the entrepreneurial city

This paper explores whether and how forms of entrepreneurial governance effecting deprived regions of the UK have embraced urban design as a necessary and distinctive feature of regeneration efforts. It applies established theory and thinking to work completed in the city centre of Liverpool since the late 1990s. The article examines the economic and governance context through which new forms of urban design policy and guidance have emerged, and discusses whether and how they have been applied to developments emerging across the centre.The case has embraced an urban design agenda and this can firmly be attributed to entrepreneurial forms of governance, although the attributes of the built form sometimes credited to such places were not so evident. Principles embedded in policy and guidance have dovetailed with substantive thinking within urban design and can be recognised in significant projects. Whilst there should be a concern for the privatisation of the public realm generally, issues such as gentrification and a more general concern for placelessness are overstated. Iconic forms of development have not materialised. Forms of over development, such as tall buildings, have been moderated by policy and guidance. Large scale projects can be designed to fit into and enhance the fabric of the city when urban design thinking is clearly embraced by partners. Established critiques of the relationship between urban design and entrepreneurial forms of governance have not always explored the multiple meanings and discourses that the built environment can contain, but where urban design is concerned the discussion must at least embrace the criteria urban designers themselves employ to design schemes or judge the results.     

The devolution of urban food waste governance: Case study of food rescue in Los Angeles

In Los Angeles (LA), food waste is at record levels. This has negative outcomes for food insecurity, land use, and methane production associated with climate change. To overcome these challenges, a range of government, private, and civil society organizations (CSOs) have developed programs to reduce food waste. With the decentralization, privatization, and devolution of food waste policies to local actors, CSOs have emerged as key institutions in the governance of food waste in many contexts. However, it is unclear whether CSOs have the capacity to reduce food waste and food insecurity, empower communities, or promote social change. To this end, this paper critically analyzes a local food rescue CSO as a case study in order to understand the challenges associated with food waste governance in LA and the roles that CSOs play in food waste reduction. Through an analysis of interview and participant observation data in LA’s food system, this paper examines the ways that food waste is produced, regulated, and reused by institutions in LA. Findings illustrate that although local CSOs have expanded their food waste reduction programs, the impact of their operations may be limited. In addition, while CSOs rescue some food, they operate in conjunction with food waste surpluses and the overabundance of food, and do little to reduce the root cause of food waste or food insecurity. Although the structural causes of food waste are arguably beyond the scope of some CSOs to change, data in this paper suggest that some CSOs may contribute indirectly to neoliberal governance when they romanticize the power of local communities, depoliticize food issues, and focus on individual personal responsibility. For these reasons, this research suggests that food waste may only be reduced significantly with more government regulation of the institutions which produce food waste, namely food businesses and households.     

Housing the urban poor in post-reform China: Some empirical evidence from the city of Nanjing

This paper provides first-hand empirical evidence about the differentiation of housing conditions among China’s urban poor families based on a case study of Nanjing. The main findings include: (1) the Hukou family registration system has strong differential effects on poor families’ housing conditions; (2) housing conditions among the urban poor are tightly associated with privatization and home ownership, where non-owners face more severe housing difficulties than nominal owners; and (3) resettlement has played a positive role in improving the poor’s housing conditions, but its positive effects are only present in cases where work units or the government has taken the responsibility of housing the resettled poor. These findings show that housing the urban poor in post-reform China is largely: (1) path-dependent, (2) privatization-oriented, and (3) development-driven, and a mechanism that can pro-actively ensure the poor’s basic right to housing is still lacking.     

Housing activism in urban China: the quest for autonomy in neighbourhood governance

Abstract

The creation of a neoliberal housing regime triggered extensive housing activism during the last decade by middle class homeowners who were protecting their rights to their neighbourhood. Yet such actions also signify the quest for autonomy from the ubiquitous control of the local state as the vanguard of political power hegemony at the grassroots level. Yet there is evidence of an escalation in “non-peaceful” actions in the richest cities in China despite the tight control of the authoritarian state. With data taken from official documents and interviews as well as from news reports about neighbourhood disputes in Beijing, Shanghai, Guangzhou and Shenzhen, this article gives an analytic account of the disputes and actions of homeowners in residential neighbourhoods while making their claims as well as on the strategies used by the local state in controlling the homeowners' associations. The article is able to enrich our understanding of housing activism in a non-democratic regime.     

Retrofitting cities: Local governance in Sydney,Australia

Transforming cities to a lower carbon future is one of the key challenges of contemporary urban governance. Retrofitting the city – or modifying existing urban infrastructures, buildings and daily life to suit different energy sources and different expectations of energy consumption – is essential to this transformation. In urban studies, little focus has yet been applied to the shape and character of urban governance frameworks and mechanisms required to successfully retrofit cities. In this paper we address this lacuna by exploring the logics, practices and dynamics of retrofitting governance in the Australian city. Using a governmentality perspective, the paper identifies the involvements of different scales of government in retrofitting policies and mechanisms and connections between them. Based on a unique survey of carbon reduction initiatives involving government, business and community actors across Australia’s capital cities, we outline the types of retrofitting solutions being proposed and enacted. Using a focus on local initiatives from Sydney, Australia’s largest city, the paper documents four key techniques through which retrofitting is being governed – self-governing, holistic, facilitative and educative. The findings suggest that governance gaps remain in attending to the daily life of technologies and the materiality of daily life.